Item-P-11227.pdf

File Number: 11227 Page 1 of 2

Non Budget 2

Date: 09/19/2023 AGENDA ITEM Item: P [] Ordinance [X] Resolution [] Budget Resolution [X] Other

County Goals

[] Thriving Communities

[] Economic & Financial Vitality

[] Excellence In Government

[X] NA

Department: Community Services Division: Administration Subject: Recommended Phase 2 Facility Improvements to the Fairgrounds, Authorization to submit an Agricultural Education and Promotion Facility Grant Request, and Resolution Certifying the Fairgrounds Serves a Public Purpose.

Brad Burbaugh Director Community Services

Department Approval

Division Approval

Legal

Thomas Russell Brown Senior Assistant County Attorney

Approved as to Form and Legality

County Manager’s Office

Ryan Ossowski Chief Financial Officer

Council Action:

Modification:

Account Number(s): NA Total Item Budget: NA Staff Contact(s): Phone: Ext.

Brad Burbaugh 386 748 9120 13455 Nick Dunnam 386 748 9120 21264

Summary/Highlights:

On July 20, 2021, the Council received correspondence from the council-appointed Agribusiness Inter-Relationship Advisory Committee requesting consideration of an allocation of ARPA funds (from the revenue loss category) for improvements to the Fairgrounds (letter attached). On February 15, 2022, Council approved a $750,000 allocation for improvements contingent upon the development of a master plan to guide future investments.

On September 20, 2022, Council accepted the results of the Fairgrounds Master Plan from the University of Florida (presentation attached) and approved Phase 1 fairgrounds improvements in conjunction with a grant request to the Florida Department of Agriculture and Consumer Services (FDACS) to support the improvements. On August 2, 2023, the County received the award notification and appropriation of $1 million in state funds to support Phase 1 facility improvements. The Phase 1 facility improvements included new lighting, drainage improvements, developing signage to help the community to navigate the fairgrounds, as well as repave existing and pave current shell roads to expand community use for agricultural, civic, and emergency events.

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File Number: 11227 Page 2 of 2

Non Budget 2

On September 20, 2022 Council also provided direction to staff to “continue working with our partners at the fairgrounds and community to identify components of the Phase 2 improvements and investments to be presented at a future Council meeting".

On June 27 and August 16, 2023, staff met with fairgrounds stakeholders including representatives from the Volusia County Fair Association, Farm Bureau, Cattlemen's Association, and UF/IFAS Extension. Additionally, staff engaged the council-appointed Agri- Business Inter-Relationship Advisory Committee on July 31, 2023, to identify and reach consensus on Phase 2 facility improvement recommendations to be presented to Council.

The following improvements, identified in the Fairgrounds Master Plan approved by Council, are consensus recommendations from the abovementioned organizations and committee (support letters attached). Staff is requesting approval of the Phase 2 recommendations.

Phase 2 Recommendations

a) Improvements to the Hester & Daugharty buildings including exterior access to the restrooms, providing for improved access and natural lighting, an outdoor space/patio expansion, and technology improvements (see attached render from the fairgrounds master plan document).

b) Improve the central meeting point by adding a shade structure to create a “Celebration Plaza" as a central shaded outdoor space to address the lack of both shaded space and outside event space (see attached render from the fairgrounds master plan document).

Staff is requesting approval of the Phase 2 recommendations. Additionally, since Council approved Phase 1 improvements in 2022 the Bureau of Labor statistics reported a 19.72% increase in construction costs for the remainder of 2022 and an additional 12.3% increase in construction costs through July 2023. Thus, a portion of the $3 million requested as part of Phase 2 improvements may be used to supplement the cost increases associated with Phase 1 improvements.

On March 7, 2023, Council approved the ECHO Direct County Expenditure (DCE) plan which included $1 million to fund the Phase 2 facility improvements and serve as the required match for an FDACS Agricultural Education and Promotion Facility Grant Request. To leverage the Council's ECHO DCE allocation, staff are requesting authorization to submit a $2 million grant request to FDACS to supplement county funds allocated for Phase 2 improvements.

A requirement of the grant request is a resolution declaring the fairgrounds serves a public purpose which is also attached for Council review and approval.

Recommended Motion: Approval of the Phase 2 recommendations, authorization to apply for grant funding, and approval of the resolution with direction to continue working with partners at the fairgrounds and community to identify components of the Phase 3 improvements.

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September 20, 2022

Fairgrounds Master Planning Research Project Results1

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Master Planning Process Overview

Phase 1, Facilities Assessment: Evaluated condition of the site, buildings, and grounds; assessed the adequacy and condition of existing site amenities; Identified emerging themes related to the potential for facility improvements.

Phase 2, Community Input: Conducted stakeholder interviews, hosted a public meeting, and distributed an online survey to gather input related to the types of improvements and events our community would like to see at the fairgrounds.

Phase 3, Conceptual Plans: Provided a menu of options for Council and community consideration which includes multiple concepts and elements as well as a story book of potential architectural themes that reflect the improvements the community and partners envision for the fairgrounds.

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Master Planning Project Guiding Principles

1. Developing a plan to guide investments and maintain the history and heritage of the Fairgrounds complex as a brand and as a cultural institution;

2. Increase opportunities for community activities and use as a destination facility;

3. Maximize visitor experience by providing continuous connectivity, improved signage, and other theme-based aesthetic and/or branding elements;

4. Identifying redevelopment opportunities to meet current and future community needs including emergency management;

5. Promote innovation as a lead theme through research-based planning and innovative projects;

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Existing Facilities Assessment – Phase I4

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Existing Facilities Assessment

Amenity Condition Notes

Paving FAIR Existing roads are fair but consider paving current shell roads which could also serve as walkways for outdoor events to frame an “event lawn”.

Walkways POOR No existing walkways in the core area, with severe lack of shading, lighting and urban provisions for the existing and future activities.

Landscape POOR Need an overall landscape design to provide for an attractive park atmosphere. Planting of a significant number of trees providing shade, color.

Unite the complex with the natural vegetation surrounding thearea

Signage POOR The existing signage is technologically obsolete as well as insufficient for the current and future needs of the community.

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Existing Facilities Assessment

Amenity Condition Notes

Parking FAIR Parking areas are sufficient but becomes unusable during heavyrain.

External lighting

POOR Lighting is insufficient and inadequate to satisfy the needs early morning activities (i.e., Farmers Market) and evening community activities/events.

Consider solar power to address operating costs of enhancedlighting.

Drainage POOR With the modified rain patterns (stronger concentrated rain events), a very serious drainage study should adapt the grounds for flooding resiliency. The difficulties have already been felt strongly enough to demand attention.

Buildings GOOD The buildings have been meticulously maintained and provide a great space for community events. Consider upgrades to the Hester & Daugharty building to make it feel less like a warehouse and provide access to the restrooms located inside thesebuildings.

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Potential Improvements to Hester & Daugharty Buildings

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Community Input Process Results – Phase II8

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Community Input Process – Phase II

Stakeholder interviews March 21, 2022 UF/IFAS Extension, County staff, Fair Association, Farm Bureau, and Cattlemen’s

Association.

Public meeting June 16, 2022, at Fairgrounds 28 participants

Public survey May 25 – June 26 336 respondents

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Approximately how many times in the previous 12 months have you visited the Volusia County Fairgrounds?

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How would you rate the overall quality of the Fairgrounds?

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How important are the Fairgrounds to your quality of life in Volusia County?

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In your opinion, do the Fairgrounds need improvements

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Qualitative Data Themes

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Priorities for Investments – Survey & Meeting Results

PRIORITY PUBLIC SURVEY PUBLIC MEETING

1 Add or enhance facilities (i.e.,building improvements)

Acquire new property

2 Add or enhance community events or programs

Add or enhance facilities (i.e.,building improvements)

3 Add or enhance amenities (i.e., groundsor equipment improvements/ additions)

Improve signage and aesthetics of fairgrounds

4 Maintain existing facilities Improve access to and through the fairgrounds

5 Improve signage and aestheticsof fairgrounds

Add or enhance amenities (i.e., groundsor equipment improvements/ additions)

6 Improve access to and throughthe fairgrounds

Add or enhance community events or programs

7 Acquire new property Maintain existing facilities P-19

What level of importance should each of the uses described below be given at the Fairgrounds?

Level of Importance* Investment Focus

9.05 Agricultural education and associated industry activities (i.e., livestock shows, cracker day, farmer's market, etc.)

8.87 Youth activities

8.09 Entertainment for residents

7.65 Public/ community facilities

7.25 Social Activities

6.75 Events, activities, or infrastructure that highlight environmentalawareness

6.21 Economic development/tourism activities

5.61 Highlight innovative technology (i.e., solar energy).

* The level reported is the average using the following scale of 0 (not important) to 10 (very important).

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Conceptual Plans and Options – Phase III17

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Emergent Themes

1. Secure the territorial integrity through acquisition of neighboring parcels.

2. Recondition the grounds, through adequate drainage, lighting, shading/landscaping, renewable energy generation and addressing building deficiencies.

3. Develop an attractive, shaded gathering place for outdoor activities for the community.

4. Develop new venues: Early Florida historic village, an open-air covered facility.

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Emergent Themes

4. Incorporate the stewardship of the Volusia County conservation lands assets through a Volusia Forever Conservation and Sustainability Center.

5. Promote education, especially informal and early agricultural education intensifying the use of existing facilities.

6. Prepare for eastside development with widened roads with sidewalks and amenities. Connect with a walking path along Prevatt Ave.

7. Public Communications program: Develop an image. Reformat digital outreach, signage, and increase visibility through celebrations of the 100 years of the Fair (1923-2023) and the 50 years of the Farmer’s Market (1975-2025) as planned landmarks for inaugurations and special events.

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Proposals20

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Master Plan Proposal 1

Forested Areas Clear Green Areas

Existing Retention Ponds Existing Circulation

15 15 15

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

Proposal 1

Proposes the development of the scope of work within the existing boundaries of the site without the need to purchase additional land. This plan includes:

- the Volusia Forever Conservation Center which will be located adjacent to the existing IFAS offices expanding and sharing the existing demonstration gardens

- a new Open Air Stage

- a new Open Air Arena envisioned with movable bleachers to accommodate multiple functions and events, as well as emergency situations

- a Vegetated Central Lawns that provides 2 shaded paths for patrons from each existing entry way across the site while intersecting in the Celebration Plaza which provides a tensile canopy for additional exhibitions and seating areas

- shaded rest areas are located alongside the Central Lawn within the rain gardens

- an new Early Florida Village located by the west entrance providing a small chapel, demonstration shops and a reception hall for wedding and other events

Figure 10

List of Interventions

1. Volusia Forever Conservation Center

2. Additional Parking

3. Ag. Education & Youth Livestock Barn

4. Shuttle Service Drop-off / Pick-up

5. Preservation Trails

6. Chapel

7. 3-lane, tree lined street with sidewalks and decorative lighting on both sides

8. EFV Plaza

9. EFV Demonstration Shops

10. EFV Reception Hall

11. Celebration Plaza

12. Open Air Stage

13. Open Air Arena

14. Improved / New Rain Gardens

15. Improves Parking Signage

16. Entrance New Signage

17. Rest Areas

18. Vegetated Central Lawn

19. Grass Seating

20. Demonstration Gardens

21. West Entrance

22. South Entrance

23. Paved, lit path/sidewalk to connect with sidewalk on SR44

24. Public Safety (i.e., future fire department)

25. Paved Access Road

26. Roundabout

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Master Plan Proposal 1 - Open Air Stage or New Open Arena Examples

Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

Taking as an example the successful Deport Park located in Gainesville, FL, the idea to develop an open air stage overlooking the center of the site, anchors the Midway while enhancing aesthetics and drainage issues.

The open arena serves as a nexus that connects the two water bodies providing scenic views on both ends and allowing for cross-ventilation.

Figure 20

Figure 21

Figure 22

Figure 23

Figure 24

Figure 25

Figure 26

Figure 27

Figure 28

Figure 29

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Master Plan Proposal 1 - Volusia Forever Conservation Center Examples

Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

Figure 30

Volusia County will take stewardship in the devel-opment of the Volusia Forever Conservation Center as the unifying hub that will gather all the informa-tion available for locals and visitors as a main tour-istic attraction that will aid in the propagation and protections of these conservation lands.

Figure 31

Figure 32

Figure 33

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Master Plan Proposal 2 - New Open Arena Examples

Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

The team has explored an alternative location for the Open Air Arena to be located south of the Tommy Lawrence Arena, but due to the current constraints of the site, the Arena will be limited in size and vehicular circulation within it for emergency situations presents additional challenges that alternative 1 to the east of TLA does not have.

Figure 34

Figure 35

Figure 36

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Master Plan Proposal Shaded Central Avenue (apply to all options)

Examples

Forested Areas Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

The Central Ave, has a very important task, it is responsible for the visual unifications of the site. This green shaded promenade allows patrons to enjoy the grounds comfortably and protected from the hot temperatures.

Evergreen trees able to create this type of canopy will endure this spinal core that ties back all the adjacent elements within the site. Rest areas will be located along the avenue to provide shaded seating areas for visitors.

The implementation of pavers and/or pervious surfaces under the canopy will aid with issues if drainage and run-off rain water.

The main intersection point of the avenue will be Celebration Plaza, a mem-orable and sculptural celebration of the legacy and upcoming anniversary of the Fair and the Farmer’s Market that could be displayed for generations to come.

Figure 43

Figure 44

Figure 45

Figure 46 Figure 47

Figure 48

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Master Plan Proposal 2 - Volusia Forever Conservation Center Examples

Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

The development of the Volusia Forever Conservation Center to be located on the east adjacent lands provides the opportunity to create and immerse visitors in the real experience of these conservation lands. By providing picnic areas, bird watching towers, elevated walkways, and demonstrations habitats, the center will become a destination stop for all travelers.

Figure 37

Figure 38

Figure 39

Figure 40 Figure 41 Figure 42

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Master Plan Proposal - Early Florida Village (apply to all options)

Examples

Forested Areas Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

The proposal of an Early Florida Village will contribute to elevate the VCF as the ultimate educational reference of the history of the area. A very attractive feature that not only can be utilized during the Fair but for spacial occasions such as weddings, receptions and small gatherings, the Village will offer the charm of the old days that is hard to find.

Figure 49

Figure 50 Figure 51

Figure 52

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Master Plan Proposal 3 (west land acquisition)

342 35

34 34 34 34

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

Proposal 3 - west land acquisition

Proposes the same layout as Proposal 1 with the additional west land envisioned as a new Sport Complex Facility which hosts various sport fields, water sports and a camp site on the South west wing. A feasibility study should be conducted to understand which sports are more appropriate for the area.

Forested Areas Clear Green Areas

Existing Retention Ponds Existing Circulation

List of Interventions

1.Volusia Forever Conservation Center

2. Additional Parking 3.Emergency Management HQ 4.Shuttle Service Drop-off / Pick-up 5..

Shaded VIP Solar Parking

6. Chapel

7. Early Florida Village (EFV)

8. EFV Square

9. EFV Demonstration Shops

10. EFV Reception Hall

11. Celebration Plaza

12. Open Air Stage

13. Open Air Arena

14. Improved / New Rain Gardens

15. Improves Parking Signage

16. Entrance New Signage

17. Rest Areas

18. Vegetated Central Avenue

19. Grass Seating

20. Demonstration Gardens

21. Enhanced Entry Way

22. Sport Complex Facilities

23. Kids Playground

24. Splash Park

25. Pool

26. Basketball Courts

27. Lacrosse Field

28. Olympic Swimming Pools

29. Football Field

30. Volleyball Court

31. Track Field

32. Camp Site

33. Soccer Field

34. Bleachers

35. Supporting Facilities

36. Kayak Ramp

37. West Entrance

38. South Entrance

12 2

15 15 15 15

Figure 12

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Master Plan Proposal 3 - West Land Acquisition (apply to options 3 and 4)

Examples

Forested Areas Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

The acquisitions of the Kilimanjaro properties will place the VCF as the new sport destination complex in the area. Not only providing various sports alternatives, but also amenities for the community, such as the pools and the children’s park, the camp site or the RV park.

Figure 56

Figure 57

Figure 58 Figure 59 Figure 60

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Master Plan Proposal 4 (east + west land acquisition)

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

Forested Areas Clear Green Areas

Existing Retention Ponds Existing Circulation

342 35

34 34 34 34

12 2

15 15 15 15

List of Interventions

1. Volusia Forever Conservation Center

2. Additional Parking 3.Emergency Management HQ 4.Shuttle Service Drop-off / Pick-up 5..

Shaded VIP Solar Parking

6. Chapel

7. Early Florida Village (EFV)

8. EFV Square

9. EFV Demonstration Shops

10. EFV Reception Hall

11. Celebration Plaza

12. Open Air Stage

13. Open Air Arena

14. Improved / New Rain Gardens

15. Improves Parking Signage

16. Entrance New Signage

17. Rest Areas

18. Vegetated Central Avenue

19. Grass Seating

20. Demonstration Gardens

21. Enhanced Entry Way

22. Sport Complex Facilities

23. Kids Playground

24. Splash Park

25. Pool

26. Basketball Courts

27. Lacrosse Field

28. Olympic Swimming Pools

29. Football Field

30. Volleyball Court

31. Track Field

32. RV Park

33. Soccer Field

34. Bleachers

35. Supporting Facilities

36. Kayak Ramp

37. West Entrance

38. South Entrance

Proposal 4 - east + west land acquisition

Proposes a combination of Proposal 1 and 2 with the acquisitions of both east and west adjacent parcels. The only variation on the west land will be a RV Park located on the SW wing in place of the previous camp site proposal.

Figure 13

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Master Plan Proposal 3 + 4 - South Variation Examples

Clear Green Areas

Existing Retention Ponds Existing Circulation

Existing Buildings Proposed Interventions

Proposed Water Feature Proposed Rainwater Garden

Both alternatives for the South-West wing of the Kilimanjaro properties provides lodging venues, one less formal and in a deeper contact with nature as a camp site, and a more formal RV park that could provide a more steady revenue to the site.

A great choice for those bikers and visitors that find hard to locate affordable lodging options during events.

Figure 61

Figure 62

Figure 63

Figure 64

Figure 65

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Phase 1 Improvements

Recommended for current $750,000 funding allocation and potential $1 million FDACS grant:

Upgrade (preferably green) infrastructure to address drainage issues Provide solar powered exterior lighting to expand use Repave existing and pave current shell roads Implement a landscape plan to provide for shade Develop signage to help the community navigate the fairgrounds

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Potential Improvements

Simultaneous to Phase 1 and with alternative funding source(s):

Acquire properties to the east of the fairgrounds to develop a

Volusia Forever Environmental Education Trail and parking area

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Example of Shade Structure at Celebration Plaza

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RESOLUTION 2023-XX

A RESOLUTION OF THE VOLUSIA COUNTY COUNCIL IN

SUPPORT OF THE APPLICATION FOR THE AGRICULTURAL

CENTER AND FAIRGOUNDS FOR STATE FUNDING FROM

THE FLORIDA DEPARTMENT OF AGRICULTURE AND

CONSUMER SERVICES (FDACS).

WHEREAS, The Volusia County Agricultural Center and Fairgrounds has long-served as the center of the County’s agricultural community by staging the County Fair, and serving 4-H, FFA, UF/IFAS Extension volunteers, and other educational, community, and civic events; and

WHEREAS, the fairgrounds encompass 111 acres of which 20 acres is owned and operated by the County with the remaining acreage owned by the Volusia County Fair and Youth Show, Farm Bureau, and Cattlemen’s association; and

WHEREAS, the fairgrounds hosted 60 events, of which 58% were agricultural education-related, with a total of 214,874 participants during 2022; and

WHEREAS, the County seeks to continue to renovate and upgrade existing infrastructure and provide improvements for the benefit of its residents and user groups; and

WHEREAS, the County Council approved $1,000,000 million on March 3, 2023, to fund phase 2 improvements to the county-owned portion of the fairgrounds; and

WHEREAS, meeting the increasing demand for agricultural education and other community and civic events, will best be met with improvements as detailed in the application for funding in which the County is applying for and requesting $2,000,000 million in grant funds to match the county’s $1,000,000 contribution for improvements.

NOW, THEREFORE, BE IT RESOLVED BY THE COUNTY COUNCIL OF THE COUNTY

OF VOLUSIA, FLORIDA, IN OPEN MEETING AT COUNCIL CHAMBERS IN THE CITY

OF DELAND, FLORIDA, THIS DAY OF , 2023 AS FOLLOWS:

1. The Volusia County Council authorizes the submission of an Agriculture Education and

Promotion Facility Request for Funding application, in which funds will be utilized to renovate and upgrade existing infrastructure at the Volusia County Agricultural Center and Fairgrounds.

2. The fairgrounds serve a public purpose in that they will provide a facility available to the public that will provide for an agricultural education and promotion facility that will also serve other civic and emergency needs.

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DONE AND ORDERED IN OPEN MEETING.

COUNTY COUNCIL

VOLUSIA COUNTY, FLORIDA

ATTEST:

Jeffrey S. Brower County Chair

George Recketenwald County Manager

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