Title: Commission on the Future of Florida's Environment. "DNR - State Recreation and Parks Land Acquisition Program." Issue Paper No. 8. February 1989. 33p.
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Title: Commission on the Future of Florida's Environment. "DNR - State Recreation and Parks Land Acquisition Program." Issue Paper No. 8. February 1989. 33p.
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Full Text
5 o J, - ':




DNR State Recreation and Parks Land Acquisition Program


I/ \ State cf Florida ,IMs11
^ u Attorney General
Marjory Stoneman Douglas Building State .,nmp:rr !i
3900 Commonwcalth Boulevard
Tallahassee, Florida 32399 Star Treasrer
Executive Director DOYLE CC'NER
Commrn issiont- o; Agriculture
March 6, 1989 BETTY CASTOr
Commissioner of Edut ion


TO: Dwaine Raynor, Staff Director
Commission on the Future of Florida

FROM: Gary F. Bishop, Supervisor/4A
Title and Land Records Section r UNIT
Bureau of Survey and Mapping. i:,LLdgt; ,

SUBJECT: Issue/Position Papers for the Commission on
Florida's Future Environment

The following is in response to Item No. 2, of your Feburary 20,
1989 memo to Tom Gardner. Our response is rather limited due to
the lack of available facts and figures concerning the history of
State lands acquisition.

The State Lands Inventory lists 10,700 parcels of uplands that
aggregate 1,873,874 acres. These lands were acquired from the
time of Statehood in 1845 to the present by various Acts of the
U. S. Congress, such as Swamp and Overflowed Land Act of 1850 and
the School Land Act of 1845, among others. Lands were also
acquired by purchase, donation, forfeiture, and current land
acquisition programs. The State also holds title to approximately
7,500,000 acres of submerged lands. These submerged lands..were
granted to the State upon admission to the union.


"Working together to protect Florida's future"


The State Recreation and Parks Land Acquisition Program

acquires recreation lands through three interrelated programs

funded directly or indirectly by the Land Acquisition Trust Fund

(LATF), pursuant to Chapter 375, Florida Statutes. These are the

LATF, the Save Our Coast, and the Eteach Access Initiative

programs. Brief explanations of each program follow, with more

detailed materials included as attachments.

Through the LATF program, 52 projects totaling some 79,786

acres have been acquired since July 1963, at a cost to the

program of over $70.7 million. An additional $72.8 million from

other funding-sources also went toward these acquisitions. For

the past several years, the program has received an annual

allotment of one million dollars. Because of this limited

funding, the program has been used primarily for the acquisition

of inholdings and additions to existing parks. Acquisitions

under this program fall into two categories: those valued at

greater than $250,000; and those valued at $250,000 or less.

Projects valued at greater than $250,000 must be processed

through the Land Acquisition Selection Committee (LASC) pursuant

to Chapter 259, Florida Statutes, and submitted in priority order

for approval by the Governor and Cabinet. There are currently 18

projects with a tax assessed value of more than $22.5 million on

the approved LATF priority list.

Projects valued at $250,000 or less are by law not subject

to consideration by the LASC, but must be approved for purchase

by the Governor and Cabinet. The number of projects being

actively worFked at any given time varies in accordance with the

.--, '. 3 abi I :i t of f i nrls..,

The S-ve Our Coast (SOC) PFrogr .am wa created in September

1981 by a resolution of the Governor and Cabinet to protect

representative sicmples of the state's undeveloped sandy beaches

for public recreational use and enjoyment.. On November 3, 191.,

the Governor and Cabinet approved the implementation procedur-es

for the program. It has been funded from revenues obtained from

the phased sale of $275 million in revenue bonds secured by the

Land Acquisition Trust Fund. As of January 31 199, 25

projects, comprising a total of 73,047 acres and 73.6 miles of

beachfront, were acquired at a total cost to the SOC program of

nearly $239 million. For details on specific projects see

attached SOC report.

There are currently 31 projects with a tax assessed value of

nearly $95 million on the SOC priority list, but only about $8.5

million remaining uncommitted in the SOC fund.. Of this.,.$5.5

million has been set aside for the Beach Access Initiative. With

all of the demands on the LATF and the source's current

limitations, the SOC program is expected to end when the

remaining funds are spent. The remaining SOC projects may become

candidates for transfer to the Conservation and Recreation Lands


On May 19, 1987, the Governor and Cabinet approved the Save

Our Coast Beach Access Initiative for the purpose of acquiring

narrow corridors to help guarantee perpetual public access to

major stretches of Florica recreational beaches. At present, 13

projects with an estimated value of $1.7 million are being

processed toward acquisition under this matching program.

Projects are limited to a maximum state contribution of $1E7,500

or 75% of actual land costs, whichever is less.

Th' following ar-e attached to provide additional

i r, r ma ti on:

I. State Recreation cnd Parks Land Acquisitiorn Program 1989

Priority Li st (SOC and LATF).

2. Procedures For Ipl ementing Save Our Coast.

3. Status Report of Acquisition under Save Our Coast

program as of January 31., 19E9.

4. Beach Access Initiative as approved by the Governor and

Cabinet on May 19, 1987.

5. Procedures For Implementation of the Beach Access


6. Status Report of Beach Access Initiative.

February 16, 1989
.Shell island Bay 30 -0. $ 700,000
rth Shore Open Space Daoe 3 250 1,378,532
Avalon Tract St. Lucie 335 2,744 4,411,760
4. Matecumbe beach Monroe 10 840 1,500,000
Setastian Inlet Add. (South) Indian River 8 1,100 425,400
t. St. Augustine Bch. (Fleeman) St. Johns 113 2,265 2,075,850
7. barefoot Beach Collier 316 7,540 11,276,350
E. Grayton Beach East Add. Walton 29 2,406 exchange
c. Lighthouse Point Volusia 30 1,108 1,952,169
C. Fort Pierce Inlet Add. St. Lucie 25 2,400 2,081,710
.1. St. Michael's Landing Bay 1,000 5,561 1,604,791
12. Grayton Dunes Walton 4 108 500,000
SGuana River St. Johns 20 -0. 200,000
14. Sebastian Inlet Add. (North) Breverd 21 1,080 1,421,300
"5. Hutchinson Island St. Lucie 81 1,590 2,796,350
(Green Turtle Beach)
16. Alex's Beach Martin 8 1,155 2,136,356
17. Brevard County Beaches Brevard 32 430 1,074,060
18. Mexico Beach (Parker) Tract Bay 1 374 81,000
19. Washington Oaks Add. Fiagler 10 330 450,000
20. Hutchinson lsl.(Blind Creek) St. Lucie 431 6,798 17,538,650
21. Don Pedro Island Complex Charlotte 108 4,585 4,651,303
22. Posner Tract Broward 16 1,100 20,000,000
23. Ft. Pierce So. Jetty Park Add. St. Lucit 3 513 825,000
24. Gasparilla island Additions Lee 4 660 654,570
25. St. Joseph Peninsula Gulf 278 7,180 3,000,000
26. Clam Pass Collier 33 860 6,400,000
"27. Fletcher beach Martin 12 1,008 2,021,300
28. Indialantic teach Add. Brevard 1 200 10,000
29. Surfside Additions St. Lucic 3 549 827,000
30. North Beach Additions Broward 2 346 1,800,000
31. Santa Clara et al Tract Bay 16 1,329 1,140,700
1. Big Talbot Island Add. Duval 624 $ 2,234,440
2. 01etL Rive, Add. (Terama) Dade 21 8,400,000
3. Ft. Clinch Add. (Marsh) Nassau 384 261,600
4. Gold Head Branch Add. Clay 904 -647,220
5. Kingsley Plantation Add. Duval 11 173,211
6. Torreya (Rock Creek) Add. (1) Liberty 4,100 1,500,000
7. John U. Lloyd Beach Add. Broward 2 278,850
8. Paynes Creek Add. Haroee 115 227,273
S. De Leon Springs Add. Volusia 458 825,000
10. Fort Mosa St. Johns 38 114,64
11. Jug Creek (Cayo Costa Landbase)(2) Lee 10 -549,18C
12. Lake Talquin Additions Gadsden/Leon 352 385,503
13. Thousand Islancs (3) Brevard 447 3,230,950
14. Kanapaha Park (2) AlachaE 37 400,OO0
15. Lori Wilson Park Addition (3) Erevarc 8 2,104,820
1. Don Pedro Lanc Base (1) Char'otte 104 702,824
17. Lake Griffin Addition (South)(1) Lake 154 103,771
18. Sebastiar. Inlet Addition (Marina Brevard 13 382,920
Site) (1)
1. Total boundary map and legal description incomplete; confirmation of the total
project woulc remain conditional until acceptance of map and description by DNR staff
covering the total project.
2. Listing covers two alternative sites; acquisition of only one site is intended.
2. Project carries a legislative appropriation.



Procedures for Imolementing
a Bond-Financed Coastal Land Acquisition Program
Under Chapter 375, Florida Statutes


No place in Florida is more than two hours by automobile

from either the Atlantic or the Gulf coast, and most parts of

the peninsula are that close to both. The state's general

shoreline of some 1,350 miles is its dominant physical charac-

teristic. The shoreline provides for an important part of the

state's economic base, and is also its foremost recreation

resource. Sandy beaches comprise approximately 55V% of the -eneral

shoreline and are the focus of most of the recreational use.

Recognition of that fact has resulted in establishment of many

state and local beachfront parks in recent decades. Nevertheless,

the identified need for beach sites in most areas of the state has

not been met, and the possibility of ever satisfying that need

diminishes almost with each passing day.
Besides offering the most popular recreation, the coastal

zone has proven to be the most popular living place for

Floridians -- more than three-fourths of the people reside there --

with the result that the beaches have been turned into residential

areas at a rapid rate. The high appeal of seashore living, com-

bined with the greatly reduced availability of undeveloped beach-

front property that has resulted, has led to soaring prices for

the remaining coastal land. A recent, informal survey of County

Property Appraisers indicates that beachfront property values are

increasing at an average rate of 30% per year.
The situation described above seriously limits possibilities

for continued acquisition of beach sites to meet outdoor recre-
ation needs. At the same time, although perhaps more subtly, the
increased urbanization of the coastal zone and the changed economy
of automobile travel are further threatening the adequacy of the

existing seashore recreation areas to serve the needs of the

public. This condition also introduces serious problems in

governme:r..al planninS for outdoor recreation. The usual

inclination in state park site selection is toward sites having

outstanding natural qualities with regional or statewide appeal.

To provide for highly localized needs for public beaches, some

adjustment of traditional selection standards may be necessary.

As these developments have occurred, awareness of the
problem by governmental officials has increased. The report of

a Resource Management Tauk Force to the Governor in 1980 recom-

mended that public holdings of coastal lands be increased by 10%.
The Governor and Cabinet have now proposed an accelerated coastal

land acquisition program as well as other measures in a concerted

effort to "save our coast". In September, 1981, an executive

order called.for emphasizing coastal barrier lands i-n and aw i-

sition programs, for discriminate application of state and federal

development grants to discourage unwise coastal development, and

for encouraging greater circumspection in local management of

coastal growth.

The major inadequacy of the present "pay as you gc" land
acquisition effort is in the level of funds expected to be available

over the foreseeable future. Projected funds would be insufficient
to keep up with the rapid escalation of prices and secure the choice
remaining lands in time. An immediate increase in available
funding is possible by selling bonds against revenues expected to

accrue to the Land Acquisition Trust Fund in the years ahead,as

was done with great success in 1968.



An available source of funding to support the sale of revenue

bonds is provided by Chapter 375, Florida Statutes, under which

the land acquisition component of the "Save Our Coast" program will

be implemented. The greatly expanded capability for acquiring lands

will enable further emphasis to be given to the current beach

acquisition thrust, to help offset escalating prices and the

continuing loss of lands to development.

Provisions of the law. The Department of Natural Resources

presently administers the program for acquisition of outdoor recre-

ation lands under the "Outdoor Recreation and Conservation Act of

1963" (Chapter 375, Florida Statutes). Lands for new state parks

are acquired-nder this law, and, prior to the inception of programs

oriented more strictly to conservation and environmental preservation,

acquisitions for preserves -- serving more passive recreation

purposes -- were also made under it.
The Land Acquisition Trust Fund, created by the Outdoor Recre-

ation and Conservation Act, is the primary source of funds for

acquiring state parks properties. It is also used for assisting

with the acquisition of local parks and for funding other park


Additionally, Chapter 375 provides for the Land Acquisition

Trust Fund to be used to retire revenue bonds. The authority to

issue bonds is provided by the State Constitution. Article XII,

Section 9, specifically authorizes issuance of revenue bonds to

acquire lands for outdoor recreation and conservation and prescribes

the retirement of the-bonds with funds from the Land Acquisition

Trust Fund.

Bond issue potential. Total receipts of the Land Acquisition

Trust Fund in 1980-81 amounted to some $43.2 million. Documentary

stamp tax revenue, the principal and most predictable source of
funds, accounted for some 529.9 million while other, less pre-
dictable sources produced about $13.3 million. Disbursements in

fiscal year 1980-81 amounted to some $30.5 million -- $9.7 million
for acquisition of state parks and $20.8 million for other purposes,



including park development, transfers to the state parks operating

budget, debt service on bonds, and assistance to local programs.

Funds possibly available for park land acquisition or debt service

on additional bonds in 1981-82 are expected to be around $30 million,

including a carry-over balance of about $16.5 million from 1980-81.

The documentary stamp tax revenue is expected to increase

steadily in coming years, as indicated by the following tabulation.

Over the next five fiscal years, projected funds potentially

available for direct land acquisition or to defray bond debt service

will total $97.2 million, if other obligations on the Trust Fund do

not increase faster than presently expected.

Projected LATF Money Available ir ELarly Yearr
to Support Revenue Bonds Xssued in Fiscal Year 1962-E3
(Figures in Millions)

Total Total
Fiscal projected projected obligations Balance
Year receipts for other purposes available

1982-83 $ 42.5 $ 28.6 $13.9
1983-84 47.6 30.9 16.7
1984-85 52.7 33.4 19.3
1985-86 58.5 36.1 22.4
1986-87 64.8 39.9 24.9
$266.1 S16E.9 IS7.2

Bond issue implementation. The primary steps in establishing

a revenue bond program for land acquisition are:


1 a. The Governor and Cabinet, sitting as head of the

Department of Natural Resources, adopts a resolu-

tion requesting the Division of Bond Finance to

issue the revenue bonds.

15 b. Tne Governor and Cabinet, acting as the Governing

Board of the Division of Bone Finance, adopts a

resolution authorizing the issuance of the bonds.

15 c. The Div;sion of Bond Finance initiates bond valida-

tion proceedings.
135 d. The Governor and Cabinet, acting as the Governing

Board of the Division of Bond Finance, authorizes

the sale of each bond series as needed.



180 e. The Division of Bond Finance administers marketing

of each bond series, printing of bonds and coupons

and consummation of the bond sales.

An approximate six-month time period is considered sufficient

for accomplishment of the steps necessary to have the first increment

of bond proceeds available for purchase.

Bond sales scheduling. It is proposed that bonds be sold

incrementally in accordance with expected cash flow needs. Since

identification of acquisition priorities usually precedes purchase

by at least six months, estimates of funding needs can be made with

some accuracy as early as six-to-nine months before the immediate

need for purchase money. Accordingly, incremental sales at intervals

of up to nine months would most likely be suitable.

The first increment of bond proceeds should be the largest in

order to establish a contingency capability. A first increment of

$50 million is proposed, with subsequent increments being dependent

on the rate of acquisition progress and the capability of the Land

Acquisition Trust Fund to support the bonding program. The

following table shows a proposed schedule of bond sales which is

believed to be suitable and realistic for a program of up to $200


Proposed Schedule of Bonds Sales
for a $200 Million Program
(in Millions)
Minimum Maximum Minimum Maximum

July 1982 $ 40 .. $50 $ 40 $ 50
January 1983 0 50 40 100
July 1983 25 50 75 150
January 1984 25 50 100 200
July 1984 through 100 200
June 1985



Procran. guidance. Guidance for implementing the program will

come from the fL-lowing principal sources:

Chapter 375, Florida Statutes. As the proposed bond

financed coastal land acquisition program envisioned by

"Save Our Coast" will be an extension of the State's existing

land acquisition program under Chapter 375, Florida Statutes,

primary emphasis would appropriately be given to the purchase

of those properties which address identified public needs for

outdoor recreatic.. as indicated by .he state comprehensive

outdoor recreation plan. Consideration would also be given

to those properties which would, additionally, serve conser-

vation and preservation purposes as provided for by Chapter

375 and Section IC1.052(11), Florida Statutes.

State comprehensive outdoor recreation plan. The state

comprehensive outdoor recreation plan, which is required by

Chapter 375, contains data on the outdoor recreation needs

of the regions of the state to, in part, provide land acquisi-

tion guidance. (The 1981 plan reveals that additional salt-

water beach is the state's most critical outdoor recreation

resource need; by 1985 an additional 1E3 miles of beach will

be required to meet projected needs.)

"Save Our Coast" directive. The Resolution adopted by

the Governor and Cabinet on September 15, 1981, directs that

bond funds generated for the "Save Our Coast" program be used

"... for the accelerated purchase of sensitive coastal barrier

areas over the next two years."

Chapter 253, Florida Statutes. All acquisitions will be

processed by the Department of Natural Resources, Division of

State Lands, pursuant to Chapter 253, Florida Statutes.

Chapter 16D-1C, Florida Administrative Code. These rules

provide detailed staff guidance in selecting lands for

acquisition under Chapter 375. For designating acquisition
"priorities, it calls for sites to be considered on the basis

of: (a) suitability to meet calculated outdoor recreation needs


(b) proximity to urban areas, (c) suitability to provide

outdoor recreation generally, (d) quality of natural

resources, (e) development feasibility, (f) detracting

characteristics, (g) urgency in view of impending private

development, and (h) number of ownerships. Priority under

the program is already being directed to seashore tracts.

Eight of ten priorities on the most recent working priority

list are coastal properties.

Land acquisition objectives. The objective of the land

acquisition component of the "Save Our Coast" program is to carry

out an accelerated program for the acquisition of coastal lands

in Florida to provide needed public outdoor recreation and to

beneficially influence coastal growth patterns and coastal

conservation and preservation.

In fulfilling this stated objective, which is in accordance

with the requirements of Chapter 375, Florida Statutes, it is

recognized that the greatest public needs for outdoor recreation

most often occur in heavily developed and populated areas, where

the availability of highly suitable land is often nonexistent or

extremely scarce at best. Accordingly, it is becoming more and

more necessary to either move to an adjoining region of the state

to identify suitable property or accept property of smaller size

and fewer attributes, but which relates more directly to a locale

of high need.
Definition of coastal lands. For the purpose of acquisition

under the "Save Our Coast" program, coastal lands are defined as

those lands fronting on the general shoreline of the state, as

determined by the National Oceanic and Atmospheric Administration.

As a practical matter, this would include any property fronting on

the open waters of the Atlantic Ocean or Gulf of Mexico.

While various"evaluation factors, including the desirability of

preservation, will be applied to aid in the selection and ranking of

projects, primary emphasis must necessarily be given to public recrea-

tion. As.sandy beaches normally provide relatively high quantities of

recreation, beach projects are expected to be the main focus of the

Also, while a sufficient depth of uplands is needed to

accommodate necessary support facilities for public outdoor

recreation and/or to protect all or a suitable portion of a

coastal tract's dune system or other natural features, acquisition

emphasis will be given to length of shoreline.

Project nominations. Recommendations from any agency, organi-

zation or individual, privi.e or public, will be used in developing

a comprehensive inventory of potentially available coastal properties

for consideration. Specific sources are:

Project files of the state park system outdoor recreation

program. Since the 1960's, hundreds of proposals for park

land acquisitions have been processed to varying points,

depending on priorities and funding. Of those not acquired,

many are apparently qualified coastal properties.

DNR/University of West Florida inventory of beaches as

final report Iph I, completed in August 198.. This compre-

hensive beach study has catalogued vacant tracts of the State's

coastal barrier beaches along both coasts, excepting Monroe

County, pursuant to Chapters 161 and 370, Florida Statutes.

Project files of the conservation and recreation land

acouisitior program. While steps will be taken to avoid need-

less duplication between the "Save Our Coast" and Conservation

and Recreation Lands acquisition efforts, it is also important

that a qualified property not be overlooked or too quickly

eliminated from consideration because of its presence on

another acquisition program's priority listing, where it may

be too low in standing to receive funding. Regardless, the

mechanics of acquisition (appraisal, title work, negotiations,

etc.) for both programs will be handled by the same staff,

which will serve to avoid conflict.

Proposals solicited from local and regional authorities.

The staff will contact appropriate state agencies, regional

planning councils and counties to invite proposed acquisitions.

Local involvement. While the "Save Our Coast" program is
conceived by the staff as a state initiated and administered effort

which is not intended to place financial pressures on local govern-

ments, it will nonetheless be advantageous to involve local


governments in the identification and nomination of properties for

possible acquisition and in the development and management of those

parcels best suited for local management. Local government can more

economically manage an isolated beach access or recreation site in

conjunction with other such parcels in the immediate area, to the

financial benefit of the general public.

Local government will be given the opportunity to nominate

properties for purchase, whether smaller parcels for beach access

or recreation sites to serve strictly local needs, or larger more

costly tracts, which may be better suited for state development and

management. For the smaller beach access or recreation sites, the

State will expect the local government to provide (a) the basic

development needed to enable public use within a reasonable time

period five years as a guideline and (b) long term management -

25 years as a guideline.

The most critical public needs for coastal land acquisition

will be addressed wherever they exist, without regard to any

distribution between local and state level projects based on such

factors as property size and attributes. This approach would

leave to the State the requirement to arrange for appropriate

property management prior to acquisition, which would necessitate

firm commitments by local government for development and management

of the small projects.

Local governments will also be encouraged to participate

financially with the State in the acquisition of desirable coastal

properties. To promote such participation, the extent to which a

local government agrees to contribute funds toward a particular

purchase along with acceptance of development and management

responsibility as required by the State will be a primary factor
in the assignment of priorities among identified properties. It

is expected that a large share of available bond proceeds will be

allocated to joint State-local purchases of smaller, more urban

oriented coastal properties.


Basic project qualifications. To be further considered for

acquisition, each proposed project will have to satisfy the

following basic qualifications:

a. be privately owned, or if publicly owned, be held for

express purpose of resale to produce funding needed

for public purposes;

b. provide public outdoor recreation and be readily usable

or adaptable for that purpose;

c. have coastal features which are desirable for retention

in their present condition or are capable of being

restored for conservation and/or preservation benefit;

d. in the case of smaller projects of interest for beach

access or purely local recreation sites, have a local

government sponsor which is agreeable to providing the

site development needed to make the parcel usable for

outdoor recreation within a reasonable period, and to

providing day-to-day management of the parcel for a

long term.

Project screening and evaluation. Projects which satisfy the

basic qualifications for acquisition would be further evaluated and

screened on the basis of eight preference factors as follows:

Suitability for meeting identified recreation needs.

These needs are as set forth in the state comprehensive out-

door recreation plan.

Proximity to population centers. More benefits accrue

when recreation opportunities are provided within easy reach

of large numbers of persons.

Ability to provide recreation aenerallv. This pertains to

the degree of suitability of a tract for public outdoor recre-

ation without regard to its location.

Quality of resource. The higher the quality of a resource

in terms of natural values, or significance of archaeological

and historical features, the more appeal it has to the using


Recreation. development feasibility. A property almost


always requires some development to make it usable by the

public, if nothing more than means of access and sanitary

facilities. The makeup of the property could greatly

influence development feasibility as related to cost and


Property characteristics. An irregular boundary, shallow

property depth between the water's edge and back boundary,

inholdings, through roads or utilities could adversely affect

a property's otherwise desirability for acquisition.

Urgency. Impending development or diversion to some

undesirable use could indicate a genuine need for timely

consideration for acquisition.

Ownershi- composition. Without the power of eminent

domain, acquisition is much more likely to be successful

when dealing with one owner rather that numerous owners each

having a portion of the overall project.

Of these eight factors, primary consideration would be given

to suitability for meeting identified recreation needs, proximity to

population centers and quality of resource.

Priority determination. Priority determination will involve

the comparison and ranking of all properties evaluated on the basis

of the eight preference factors.

Comparison and ranking will begin immediately for projects for

which adequate- field information is available and will continue

throughout the life of the acquisition program as long as additional

project information is obtained and new projects are proposed.

The staff will assemble and maintain a working priority list

consisting of two principal parts. The first part will be a

continuation of the existing outdoor recreation land acquisition

program (although necessarily reduced) and w:ll consist of

unspecified additions and inholdings needed for existing areas of

the state park system, carry-over projects and any new interior

(non-coastal) projects.. These projects will be funded with carry-

over Land Acquisition Trust Funds and funds from this source not

allocated for support of the "Save Our Coast" bonding program.


The second part of the working priority list (to be funded with

bond proceeds) will contain the "Save Our Coast" projects.

The working priority list will contain sufficient projects in

each of the two principal parts the continuation of the existing

outdoor recreation program and the new "Save Our Coast" program-

so that the estimated aggregate value of each part will be at least

twice the funds anticipated to be available for the applicable

funding period.

The working priority list prepared by the staff will be reviewed

for coordination purposes by either or both, the Outdoor Recreation

Advisory Committee and the Interagency Management Committee, before

submittal to the Governor and Cabinet for approval.

The original working priority list and each proposed revision

will be submitted to the Governor and Cabinet for approval. The

staff will review the list each January. and July for the duration

of the acquisition program. Proposed changes will be reviewed by

the advisory committees) prior to submittal to the Governor and


Should a highly desirable property become available on some

urgent basis between semi-annual reviews of the working priority

list, the property will be promptly evaluated and ranked, and, if

warranted, submitted to the Governor and Cabinet for approval in

advance of the next regular semi-annual review.

Acquisition. The Division of State Lands would undertake

acquisition efforts pursuant to Chapter 253, Florida Statutes, and

devote staff time to the top priority projects in each category

proportional to the amount of funding available for each. Each .

negotiated project would be approved in detail by the Governor and

Cabinet before actual acquisition. Title to all lands would be

vested in the Board of Trustees of the Internal Improvement Trust


All bond proceeds will be used for the purchase of lands and
directly related acquisition costs if needed (appraisals," title
work, etc4) rather than for development and management.

As the power of eminent domain is not generally available to

the State for the purchase of lands for outdoor recreation at this

time, a project will be eliminated from further consideration when

its owner requires a clearly unreasonable price as determined by

qualified staff, rather than impede progress of an accelerated

acquisition effort.

Management. All lands acquired under the "Save Our Coast"

program which are appropriate for the state park system will be

assigned to the Division of Recreation and Parks for management

in the same manner as other lands acquired under Chapter 375.

Local government sponsors will be sought for all acquired lands

best suited for local government management.

Approved by the Governor and Cabinet on November 3, 1981



As the essence of the proposed plan is timeliness, implemen-

tation would begin immediately ar- be carried out as expeditiously

as possible. Initiation would be marked by Governor and Cabinet

approval of a plan for land acquisition under the "Save Our Coast"

program. If approval is granted on November-3, 1981, the following

timetable for implementation could be applicable.

Date Action Responsibility


November 4 Complete compilation of coastal prop- (DNR-staff)

erty inventory; (officially solicit

additional properties from counties,

regional planning councils, state

agencies and other sources)
December 8 -Adopt resolution requesting Division (DNR)

of Bond Finance to issue revenue bonds
December 15 Adopt resolr'iion authorizing issuance (DBF-Governin.

of bonds

SBegin evaluation of properties (DNR-staff)

January Review and approve initial acquisition. (DNR)

working priority list
February Commence pre-purchase procedures on (DNR-staff)

top priorities
March Obtain validation of bonds by Court (DBF)

April Adopt resolution authorizing sale of (DBF-Governin

first bonds
July Consummate first bond sale (DBF)

Review working priority list (DNR-staff)

Review and approve revisions to working (DNR)

priority list



Procedural Flow Diacram

Selection, Acquisition and
Management Disposition of Coastal Properties

Responsibility Principal Steps Input/Assistance

DNR/DRP Compile All potential sources

DNR/DRP Evaluate State Outdoor Rec. Plan
properties Coastal one Mgt. Plan

DNR/DP Identify .Advisory Committee(s)

EState Local

DNR Recoamend

DNR Exec. Bd. Approve
(Governor & Cabinet) priorities

DNR/DS I Accuire I Chapter 253, PS

DNR Exec. Bd.-TITF I management



PuDese: The purpose of this initizive is to proviot for. ublir bea:h accesss
in arees tha- heve hiph population Density and ve4iy 1iie.d av0ilptitoy of
su&itabe purtheseable beathfront lanC. Tnis inittizive 1il conentirete on
btninng ino public ornirship private lanes of liclted ertith ov crett at::ess
:o-rioers tn?" w.il puarantee perpetual public access to mnjor stretches of
rerrea:i onal beach.

Soutre of fundinc: bec;ase beach access points have not been able to compee
successfully rith harper SO projects, 25t of the prcfetes Iroan future SDt bond
sales il1 be set zsioe exclusively for small projeo-s unoer tnis initiative.

o-i.eriZ of elicibilt-v:
1. cirsfr :cesn poirns 1ill bee ritted o ITD ntxiamn weiCth o-r single indivir
tsoit oe tne-ips. Akcess points are, by efini:onr., ntr-ow coridoo-s o
e3ow peoestrimn ing-ess and express.
2. The Stae's ntm ximum ticizajion o teach vropertb v atcTved exceeding
25D.DDC. in efthne Lt el estimated vEalue or aEtua coso, shall to n.iB'te
D 75 q Zof S25C.ODD. This *11 ensure Tha-t ta maximn number of ascess poir.s
wiY1 be purchased with available funds.
2. Properiy-.purchased may not be contiguous to other public property capable of
providing beach access. "Tne purpose Is nc: to expand existing peaks, b.ut to
provio-e access where none preserntL exists.
FubliS: parking or eass transporoa-ion mts be available Zz the site within C
reasonable walking distance to % aximize VopportOity for pubsli uiltatior..
E.. A winimau cotribi.onen of 25- from an approprtine "os=e povernmen stonscr
W e. De. erred fIor each purchase. Tnis will increase the nuamer of pcp -
e=as .th r an be purchased by extendingp tne.uncs. Alts, since the site
will be primarily of local rather mhan statewide sipgn'fiance, same tocal
-txpayer support is an appropriate policy.
S. S hete 0 nfunes will be applied zo nhe purchrse of land only. An, per, of
"mte cost .atributab'e to erssin$ structures 11will borne by tnhe ical
povemrnment sponsor, in aoition ct hne required 254 minimnum corr .ioriot .

^' a-icor: because local povermnentrs w11 Tlikely subirt wore parcels for
consioeration than can be purchased with availtate funcs, projects will be prior
tized t. thne besis of beach recreation neecs ioer.t:fiec ir. ^tne S=tae toorethet
sive Dutcoc, Recrea:ion P7an. Additional objective criteria, su:h as percetape of
"lTael contribution, mai e)lso ze considered.

S .ocessin:: For the most prc,, mechanisms already establishedt fcr the -S ve Dur
Lot: propBram wilI be applicable e ztc he betch a:ess ir.it:ive. Acouired
properties ri'1 be transferred to lol povemnnmer.t sponsors throupn ptfLSthrofgh

I Approved by the Governor and
CLtainf- t on May S, 19E7

Procedures for Implementation of
beach Access Initiative
Under Save Our Coast

1. Introduction
On May 1S, 1987, the governorr and Cabinet approved the *Save Our Coast Beach

Access Initiative", proposed by the Department of tiatural Resources. The objective

of the initiative is to increase opportunities for public beach access in areas that

have a high population density and lack available purchasable beachfront land of

suitable quality for redevelopment of parks. The initiative concentrates on bringing

into public ownership private beachfront lands of limited width to create access

corridors which will guarantee perpetual public access to major stretches of recre-

ational beach. The Department of Natural Resources is responsible for selecting and

prioritizing the sites that will be recommended for purchase to the governor and


1I. Funding
The initiative sets aside 25% of the proceeds from future Save Our Coast (SOC)

bond sales for the purchase of access parcels. Local governments must fund at least

25& pf the actua-cost, plus the costs of title search, boundary mapping, appraisal,
any needed development and management. The State's maximum expenditure for each

property acquired exceeding $250,000, in either total estimated value or actual cost,

is 75S of $250,000. Unless otherwise arranged with the Department, local money

contributions will be required at the time of purchase.
III. Program Guidance
The initiative is a supplement to the already existing SOC program. Therefore,

it is governed by. Chapters 253 and 375, Florida Statutes, the SO' Procedures for

Implementing a Board-Financed Coastal Land Acquisition Program under Chapter 375,

Florida Statutes, the State Comprehensive Outdoor Recreation Plan, and Chapters

16D-10 and 18-1, Florida Administrative Code. The primary purpose of each property
acquired must be for recreation. All hearings, records, and proposals are available

to the public as provided by Florida Law.
IV. Eligibility Criteria
All parcels must be privately owned *nd front the open water of, the Atlantic

,Ocean or Sulf of Mexico. Alsc;
(1) Beach access points are limited to 100 feet width or single indivisible
ownerships. By definition, access points are narrow corridors to allow

pedestrian ingress and egress,.

(2) Property proposed for acquisition can not be contiguous to other public

--- -- -- ---- --*' ----- --- ----

properties capable of providing beach access. Projects must provide access

where none currently exists.

(3) Public parking or mess transportation must be avuib)e to tne site within

a reasonable walking distance.
(4) A minimum contribution of 25S from an appropriate local government sponsor

is required for each purchase.
(5) State SOC funds can be applied only to the purchase of unimproved land.

Any improvements or structures which contribute to costs of a parcel must

be deducted from the amount against which the State share is calculated.

Increases in cost or total value caused by improvements or structures must

be borne by the local government sponsor,
V. Project Nomination

The Department of Natural Resources, Division of Recreation and Parks, will
solicit formal project proposals from local governments. The Division will announce

the availability of the program by sending notices to all County and Municipal

governments whose jurisdiction borders on either the Atlantic Ocean or Gulf of

Mexico. An appropriate announcement will be submitted to the Florida Administrative

Weekly for publication.-

Local governments which choose to participate in the program must comply with
the following:

(1) Provide a resolution of the local governing body which pledges

sufficient money to cover its share of the purchase, commits to the

survey, title starch an" appraisal costs, and agrees to provide for

day-to-day management and any development costs. Site improvements

will be in accordance with Division of Recreation and Parks standards.
(2) Provide pertinent project Information, including an aerial photograph,

site location map, legal description, tax records, ownership docu-

ments, resources description, description of mass transit system

in the immediate locale, if available, and the availability, amount,

and proximity of public parking.

(3) Agree to handle direct owner contact for coordination and
negotiation, if requested.
Nominations received after a designated due date are subject to rejection,
'holding, or-a renomination requirement.

VI. Project Review and Prioritization

The Department of Natural Resources, Division of Recreation and Parks, will
select and prioritize a list of sites to be funded upon successful negotiation. The

--~~ ~ ~ ~ :-- ,---- -------- ------------ --- ---

priority list of nominated sites will be maintained and upcatec throughout the period

of funding, and will be available to all interested parties.

In order to select the priority list of sites in the inaugural screening of

nominations, and any subsequent reviews which may be warranted, the Department will

apply the Saltwater Beach needs identified in the State Comprehensive Outdoor Recre-
ation Plan. The criteria to be used are:
(1) saltwater beach needs;

(2) the proportional amount of the sponsor's purchase-money

(3) the distribution of local beach-access points to be achieved and
general suitability of the parcel for recreation.

(4) endangerment and vulnerability of the proposed site;
(5) any early pledges of favorable terms by the property


VII. Acquisition
The local government sponsor must provide a boundary map for each nominated

site. This information will be reviewed by the Department of Natural Resources,
Division of State Lands, to insure that it satisfys the requirements of law.
Complete title information will also be required and submitted to the Division of

State Lands for review and acceptance.
When a site is sufficiently high on the priority list and the Division of

Recreation and.Parks is able to authorize material steps toward purchase, the sponsor

must pay for a market value appraisal, or appraisals, accreditable by the Department.

Independent appraisers on the Department's approved list will be used. These appraisers
will have to comply with the applicable requirements of Chapter 253, Florida

Statutes. Appraiser selection and review andcapproval of all appraisals will be

handled by the Division of State Lands, Bureau of Appraisal, in cooperation with the

local sponsor.

In most instances, it is planned that the local government will conduct the

negotiations for purchase with the private property owner, which process can not

begin under law until after the appraisals) is accepted by the Department. The
terms and conditions of the purchase will be entered on contract forms provided by
the Department. The appropriate Department staff will provide detailed guidance
S'throughout the process.
Terms of purchase for- each site will be reached in accordance with the applicable

requirements of Chapter 253, florida Statutes. The State will not pay any share of

that part of a purchase price exceeding the maximum allowed under provisions of the
statute. Final approval of the Governor and Cabinet, upon the recommendation of the
Department, will be prerequisite to purchase in all cases.

Prior to its recommending purchase of a site tc the governorr and Cabine:, the

Department will require a binding commitment from the local government sponsor for

fulfl, ment of the sponsor's obligations. The commitment will address necessary

arrangements for purchase-money payment, any needed site development, and long term

site management.

Title to all properties purchased with tnh use of SOC funcs will bt taken by the

State of Florida Boarc of Trustees of the Internal Improvement Trust: Fund. The

Division of recreation and Parks will request a long-term "pass-through" leasehold in

each property from the Board of Trustees upon acquisition. When it acquires the

leasehold, the Division will pass management responsibility to the sponsoring local

government by sublease.

!~~~~ i



PurpD- P : to acquire private lands of limited width that will

guarantee public access to major stretches of recreational beach.




Fund ing: The Initiative received some $5,516,480 from the last

SDC bond sale and is to receive 251 of the proceeds of any future

Save Our Coast Bond sales. Projects are limited to a maximum

State contribution of s187,500 or 75% of actual land cost,

whichever is less. They are subject to direct approval of the

Governor and Cabinet, rather than processed through the Land

Acquisition Selection Committee, which, by law, reviews

acquisitions valued at more than 5250,000. Local governments

must fund at least 25% of the actual land cost, plus the costs of

title search, boundary mapping, appraisal and any needed

development and management.


May 29, 1987 Governor and Cabinet approve the Beach Access


January, 1989 First Save Our Coast bonds applicable to the

Initiative are sold.

January 27, 1988 The Division of Recreation and Parks solicits

nominations from local governments.

Information packages and applications are sent

to all coastal county commissions and all

municipalities fronting the open waters of the

Bulf of Mexico and the Atlantic Ocean.

3une 1A, 199BB governor and Cabinet approve first list of RO


Dctobrr E7, 298B Second call for nominations sent to aoplicable

local governments with a deadline of November

27, 1988.

December 5, 2988 Deadline for receipt of applications extended

to February 24, 2989, to allow additional

response time.

Summary of Activity: The first list of 20 nominations approved

by the Governor and Cabinet consisted of one project from the

City of Atlantic Beach (Duval County), ten from Brevard County,

eight from Lee County (the County committed to purchase two sites

with the remaining sip submitted as alternatives) and one from

Monroe County. Discounting Lee County's six alternatives, this

left 14 projects. Following approval of the list, Brevard County

notified the Division that one of its sites had been developed

and should, therefore, be withdrawn from further consideration.

At present, the remaining 13 projects with a total estimated

value of nearly s5.7 million (anticipated State contribution is

S1.3 million) are being processed toward acquisition If all 13

projects are acquired, approximately s4 million will remain in

the Beach Access fund. One additional application was received

from Sarasota County after the Governor and Cabinet approved the

initial list, but prior to the second call for nominations. It

will be processed with second-round applications received by the

deadline. The anticipated State contribution for this project,

if acquired, is. 187,500. As of November 27, 3989, no

applications were received as a result of the second call for


Status of Projiets: No projects have been acquired to date. The

Monroe County and City of Atlantic Beach projects have satisfied

all preappraisal requirements and are being processed toward

appraisal. The vBrevard and Lee County projects have not yet

satisfied the preappraisal requirements.

' {


Status Report of Acquisitions Under Save Our Coast Program
as of January 31, 1989

Date of Amount of
Nap Initial Cu f/Ocean Amount State Land Local
No Project County Authorisation Acrease Frontage Authorized Costs to Date Participation Comments

1 Itenderson Beach Okaloosa 10/22/82 208.535 6,645'-C $ 13,100,000.00 $ 13,100,000.00 $ Closed 2/4/83; Leased to DRP

2 martin County artin 02/15/83 29.34 3,708-A 8,321,995.00 8,321,995.00 1,840,586.00 Eleven parcels cloned various dates 1983
Tr.ctx Martin County's acquisition of another 6-ecre tract
(Bathtub Pearh) for $2,439,393 related to program
To be leased to DRP for sublease to Martin County

3 North Beach Broward 03/15/03 59.88 4,283'*A 35,522,600.00 35,522,600.00 7,000,000.00 Parcels closed from 6/15/83 6/14/85l
Leased to DRP/subleased to Brovard County )

4 Lighthouse Point Volusti 05/18/83 136.03 1,662'-A 3,729,800.00 2,834,200.00 1,072,450.00 Closed 6/24/83"
Litigation for additional 37 acres approved 3/3/87;
state cost for settlement was $1,200,650 addingt sa 37
A acres of upland and some 40.59 acres of submerged leads
Under interim management by DRP pending release of
sublease and direct leasing free Trustees

5 South End of Amelia Nassau 06/21/83 228.71 4,580'*A 8,775,000.00 8,775,000.00 Optionse through 4 closed from 7/15/83 6/28/85
Island Leased to DRP

6 Hashes Sands VLaklle 06/21/83 236.34 4,023'0G 1,295,609.00 1,295,009.00 Parcels closed froe 7/16/83 /24/84
SLeased to DRP/subleased to Vakultl County

7 Lovers Key Lee 08/03/83 434.10 7,650'1C 10,738,780.00 10,738,780.00 Parcels closed fro 8/18/83 8/9/84
Leased to tPR

8 Surfaide Addition St. Luete 06/21/83 2.18 702'-A 105,400.00 105,400.00 234,600.00 Closed 10/7/83
Leased to DRP/subleased to City of Tort Pierce


,:Lattua epaott e oicquiettloii ubiK 5o i>** tout L%,ruat t'ioUn,
as of January 31, 1989

Date of Anount of
HIp Initial CGulflOcean Amownt State Land L.calt
No. Project County Authorization Acreage Frontage Authorized Costs to Date Tarticipation Comments

9 B.ahlia ondsa onroe 06/21/83 37.80 1,675'-A $ 2o,00,010.00 $ ,00,000.00 Options 1 and 2 closed 11/4/83 and 7/5/84, respectively
Addition Leased to DRP

10 North Shore Open Dade 12/13/83 6.03 650'-A 6,661,176.00 6,647,988.11 344,000.00 Parcels closed from 1/6/84 7/15/88
Space Leased to DRP

11 Shell Islatm Bay 03/20/84 207.25 10,658'-C 11,641,162,00 11,659,604.82 178.7-acre holding closed 3/14/86( numerous lots

closed. 2 tots authorized but not closed
Leased to DRP

12 Indian River North Indian 08/21/84 44.5837 2,139'-A 4,310,683.00 4,309,033,00 Parcels t i.tn from 9/24/84 8/14/87*
Beach Complex River Leased to DPr/lublessed to Indian Rtier County )

13 Grayton Dunes Walton 08/21184 315.3116 5,892'-G 18,214,432.00 18,163,256.00 Parcels closed free 1/9/85 7/24/85

Leased to DtRr/ubleased 15 acres to Walton County

14 Conch Island St. Johns 09/06/84 487.41 5,860'-A 10,414,927.92 10,414,927.92 Optlons closed from 10/31/84 5/7/87

Leased o PIP

15 Don Pedro Island Charlotte 11/17/84 131.0 5,750'-C 6,082,550.00 6,082,550.00 Optione closed from 2/1185 12/16/85

Leased to DRtP

16 Avalon Tract St. Lucia 08/08/85 323.53 3,293'-A 13,045,000.00 12,914,000.00 2,540,000.00 Parcels closed from 12/12/85 12/22/86*

Leased to DRP

17 Coral Cove Pale .each 11/19/85 3.5 300'-A 2,160,0 0 ,000.00 ,1,0.0 540,000,00 Closed 2/18/86

Leased to ORr/!blead t to Palm Beach County

"18 No. 11 Corp/Sirk Indian 01/07/86 6.46 565'-A 895,440.00 891,862.00 Closed 4--86 )
Tract River Leased to DRP/rubleased to Indian River County

as of January 31, 1989

Date of Amount of
Hap Inttial Gulf/Ocean Amomnt State Land Local
IHo. Project County Authorization Acreage Frontag Authorized Costs to Date Participation Comments

19 Cuana River St. Johns 01/07/86 10,809.00 24,557*-A $ 22,907,677.00 $ 22,610,143.87 Options closed from 1984 12/19/86
6/26/88 $200,000 authorized for additional 19 acres
Leased to DRP and CFWC, $25,000,000 of CAPL funds appied
to acquisition of project land prior to transfer to SOC

20 Muscara Tract Martin 01/21/86 21,7 850'-A 2,380,000.00 2,378,920.00 Closed 3/7/86; Martin Countys acquisition of another
2.3-scre tract for $600,000 relats to program
To be leased to itR tor sublease to Martin County

21 Juno Reach Palm Beach 03/18/86 13.00 677'1A 2,700,000.00 2,691,488.00 1,000,000,00 Closed 5130/86
(Otean Cay) Leased to DRP/subleaaed to Palm Beach County
Tract )

22 South of Bloving Palm Reach 09/04/86 20.03 1,982'-A 11,120,000.00 11,001,354.00 1,880,000.00 Parcels closed from 12/19/86 /30/87*0
Rocks Club Tract Leased to DRP/sublesed to Palm Beach County

23 Brevard Co, Beaches Brevard 11/06/86 137.24 10,629'-A 15,976,802.50 16,538,027.50 7,755,200.00 Parcels closed from 2/6/87 10/7/88
Leased to MRI/subleased to Brevard County

24 Big Bend Dixie/ 12/16/86 58,834.69 274,000'-CM 21,822,855.00 21,757,755.00 Parels closed from 6/29/87 97/88
Taylor tnder multiple agency Interim management pending direct
leasing from Trustees to DRP and CFVC

25 Ihtchinson Island St. tucie 03/03/87 313.40 6,245'-A 8,000,000.00 8,000,000.00 Opttons closed from 5/30/87 2/19198
(Green Turtle Beach) Leased to DRP/subleased to St. u-te County

TOTALS 73,047.055 74,157'9A* $241,939,889.42 $238,916,494.22 $ 24,216,835.50
274 000>'C*
388,775'*Total Frontage )

*A *- Atlantic Ocean Frontage generally sandy beach
*G Culf of Mexico Frontage generally sendy beach
*GM CGulf of Mexico Frontage generally marsh
Final Proof of Acreage Content Allowd a Cost Iess
Than Authorized Aunt

#I#. Jab*-I> i ui's S u4tUA" *L4 uh6 e b0 v .. 4-4.IA4 4 AL.6

a *N r It

1. Henderson Beach 6 1p s

lenderson each 14
2. Martin Cotnivty Tracts 0 ^ 24 W ^* ^-^S *^Q< l
3. North Deach I '
4. Lighthouse PointW
5. South End of Amelia Island 4
6. ashes Sands **
7. Lovers Key arar"'.
8. Surfside Additions aw
9. nahia Ilonda Addition ', .^o<< .
10. North Shorp Open Space i..... r'" -;
I1. Shell island 23, .
12. Indian River North Beach Complex \ ~ "" 7F 1 *cr
13. Grayton Dunes s r
14. Conch Island
15. Don Pedro Island- -*- 12 & 18
16. Avalon Tract \ .,,. a ...,: U; 9 6 2
17. Coral Cove Addition 8 : 16 25
18. No. 11 Corp/Sirk ..
19. G(;uana River .r .-. 2
20. Muscara Tract i S^7,9*.17 21 22
21. Juno Beach (Ocean Cay) Tract 15
22. South of Blowing Pocks Club Tract .w4r" *** *ACj
23. Ilrevard County Beaches a ^ fr
24. Dig Dend -- 3
25. Hlutchinson Island (Green Turtle each) .1 ^ c .

.. ** -^ r

* V 040


ShRrY or soc "TS 7 rn:D
etbruuay 2, 1989

rl::lC; C..SE : I)\' SSI5 (1a..ance as cf c bectse: 31, 19S): 15

? J",S AA,,HOrW F0M. PU.CH 0:

O. PRJ-0" 0.o'" ON F.Sw '
2 ig ben Coas: :as:(vey .Mtba ) 99,25

7 GCuas vert(kogers) Z.D. 200,000
1 luli6eutll CDst 10.I2,I
S.Shore Ope Space CLOSIN TWK. 86.250
SS.ll llan Opios 2RS2RVD 3,000
7 Sbf2ll ilajm(&rviral U^) C..OS2I5 XW. 57.907

2,180,129 7,

I9 Crec re ^cn(2ia >s T.) 07/21/ff9 ,3S2,000

onm:L-&.coy ncos Ain>sI
*2.PS* ". -F I 2 3 S.V1. '" -tI =

: : a a Si "l ,
IPrfMD Al ms Ac s
Ef~ bn~ tu= Ts rc~~~r tir~h,rrrrrD= -A3 =0

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