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Leon County
Board of County Commissioners Agenda Item#13 January 27, 2026 |
| To: | Honorable Chairman and Members of the Board |
| From: | Vincent S. Long, County Administrator |
| Title: | Status Report and Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property |
| Review and Approval: | Vincent S. Long, County Administrator |
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Department/Division Review and Approval: |
Ken Morris, Assistant County Administrator Nawfal Ezzagaghi, Assistant County Administrator Brent Pell, Director, Public Works Maggie Theriot, Director, Office Resource of Stewardship Scott Brockmeier, Director, Development Support & Environmental Management |
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Lead Staff/ Project Team: |
Amanda Heidecker, Director, Parks and Recreation Charles Wu, Director, Engineering Services Emma Smith, Director, Code Compliance Services |
Statement of Issue:
This item seeks Board acceptance of a status report on the Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property as requested by the Board.
Fiscal Impact:
This item has no immediate fiscal impact. Should the Board initiate the acquisition process for this property, staff will evaluate funding options and provide an update to the Board during a future budget development process, if necessary.
Staff Recommendation:
Option #1: Accept the status report on the Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property.
Report and Discussion
Background:
This item seeks Board acceptance of a status report on the Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property.
On June 10, 2025, a status report was provided to the Board on development activity related to the Woodville Aquaculture Facility, an 18-acre property on Woodville Highway initially proposed for an aquaculture operation. At that time, the Board requested an agenda item to determine the feasibility of potential public uses for the subject property and the owner’s interest in the potential sale of the property. This status report provides a Public Use Feasibility Analysis which is a comprehensive evaluation of the property, assessing its potential public purpose and possible applicability for County use. Overall, no immediate or foreseeable transportation, stormwater, utilities, parks, or other County needs were identified for acquisition or use of the property at this time. Further, the owner of the property did not indicate a willingness to sell the parcel and plans to evaluate options for the future use of the property. In addition, the report summarizes the current code-enforcement status of the site following the expiration of its agricultural exemptions, including findings by the Code Enforcement Board that the property is in violation and subject to required corrective action.
The approximately 18.68-acre property located at 7880 Woodville Highway was originally developed beginning in 2019 for use as an aquaculture facility, operating under a Florida Department of Agriculture and Consumer Services (FDACS) Aquaculture Certificate and an agricultural classification issued by the Leon County Property Appraiser (LCPA). These designations provided certain exemptions from local regulation under the Florida Right to Farm Act (§ 823.14, F.S.), limiting the County’s authority to impose local codes, fees, or permitting requirements.
Over time, development activity on the property stalled, and in 2022, the LCPA removed the agricultural classification from the property. At that time, approximately 12 acres of the 18-acre site were reclassified as timberland, which did not include the proposed aquaculture facility. Although the portion of the property with the aquaculture structure was no longer classified as agricultural by the LCPA, the property owner’s Aquaculture Certificate with FDACS was active until July 1, 2025. The property owner submitted a renewal application prior to the July 1st expiration date; however, FDACS denied the request, and the property owner did not file an appeal of that denial.
Although a FDACS Aquaculture Certificate for the property was active through July 1, 2025, progress towards establishing the aquaculture operation ceased, and the structure fell into disrepair. While the agricultural status was in place, the County’s authority to impose ordinances, rules, fees, or permit requirements was preempted by state agricultural protections. However, once the classification was removed, the portion of the property containing the structure was no longer exempt under the Florida Right to Farm Act and became subject to local code enforcement.
In July 2025, following the expiration of the FDACS Aquaculture Certificate for the property, Leon County’s Department of Development Support and Environmental Management (DSEM) issued Notices of Violation for a dilapidated structure and debris accumulation. The debris piles were removed; however, the structure remained noncompliant. This led to proceedings before the Code Enforcement Board (CEB) on October 16, 2025, and an order for the property owner to remove the structure or provide documentation from a licensed engineer that such structure is sound by November 30, 2025. On November 25, 2025, the property owner filed a Request for Extension of Time to comply with the CEB order, and this request was denied at the CEB’s January 15, 2026, meeting. As the case is not automatically stayed by a request for an extension of time, staff sent a Notice of Non-Compliance Letter on January 8, 2026, which provides twenty (20) days from the date of the letter to request a Compliance Review Hearing before the CEB. To date, staff have not received a request for a Compliance Review Hearing, and the deadline to file the request is January 28, 2026. If a Compliance Review Hearing is requested before the deadline, the property owner’s request will be heard by the CEB at the February 19, 2026. At the Compliance Review Hearing, the property owner is limited to challenging the determination of non-compliance in regard to the CEB’s order, the validity of the fine amount, or the imposition of a lien. If the property owner fails to request a Compliance Review Hearing, fines will begin to accrue effective December 1, 2025, consistent with the original compliance deadline.
Separately, and independent of the ongoing code enforcement process, in response to Board direction, staff conducted a comprehensive evaluation of the property, assessing its potential public purpose and possible applicability for County use. The Analysis section details this evaluation and addresses: (1) transportation and road infrastructure considerations; (2) stormwater management and site hydrology; (3) utilities and public works infrastructure; and (4) parks and public amenities. Overall, staff found no immediate or foreseeable future need for County acquisition or use of the property.
Staff also evaluated the feasibility of acquisition through eminent domain which, under the Florida Constitution, the exercise of eminent domain is expressly limited to situations in which a clear public purpose and necessity are established. In this case, there is an absence of a current or near-term public purpose.
Consistent with Board direction, staff also contacted the property owner, Mr. Alvin Hines, to assess his level of interest in voluntarily selling the property to the County. During these discussions, Mr. Hines was noncommittal and indicated that he is continuing to evaluate different options for the property’s future use. He mentioned the possibility of resuming agricultural activity, such as small-scale farming or crop production, however he did not express a definitive plan or timeline. At this time, Mr. Hines has not indicated a clear intent to sell the property and appears to be maintaining flexibility while considering potential agricultural or other private uses.
Analysis:
The following summarizes the Public Use Feasibility Analysis conducted by staff and outlines the factors considered in evaluating potential public purpose or County use of the property:
Transportation and Road Infrastructure
The property is located at 7880 Woodville Highway and is bounded by Old Woodville Road, J. Lewis Hall Sr. Lane, and Lutterloh Road. Woodville Highway (State Road 363) is a Florida Department of Transportation (FDOT) maintained minor arterial, carrying approximately 15,500 vehicles per day. County and FDOT project lists show no programmed widening, intersection, or capacity improvements in this segment within the next 10 years.
In 2011, the Capital Region Transportation Planning Agency (CRTPA) completed the Woodville Highway South Corridor Study. The study area extended from U.S. Highway 98 to approximately 1,000 feet south of the intersection of Woodville Highway and Capital Circle. Based on the findings, the study did not recommend widening Woodville Highway within this corridor. A comparison between the study’s traffic counts and the current Annual Average Daily Traffic (AADT) indicates only a modest increase in traffic volume. This segment of Woodville Highway has no funded or planned expansion in the current FDOT Five-Year Work Program or long-range transportation plan. Accordingly, Public Works staff determined that this corridor does not represent an existing or foreseeable need for County right-of-way acquisition or infrastructure investment.
Stormwater Management and Site Hydrology
County GIS data indicates the property sits at an elevation between approximately 18 and 28 feet above sea level, with soils classified as Hydrologic Group A/D. These soils are characterized by a shallow seasonal high-water table, generally between one and two and a half feet below ground surface, which severely limits their capacity for infiltration and long-term storage of runoff. The property is situated within a closed basin, meaning that it has no natural surface outfall to a downstream conveyance, ditch, or waterbody. In closed basins, rainfall and runoff must either infiltrate or pond on-site until evaporated or be slowly absorbed into the groundwater. Because of this condition, stormwater management in the area is highly constrained and designs must rely on storage volume within the property boundaries rather than on conveyance to a regional facility.
These constraints create limited opportunities for effective volume control with the ability to detain or retain additional stormwater to offset runoff generated by impervious surfaces (such as Buildings, paved parking, etc.). The high groundwater table significantly restricts the available storage depth beneath potential retention or infiltration basins. Any meaningful stormwater storage would require engineered fill, underdrains, or other costly modifications to achieve compliance with County and State design standards. As a result, Public Works staff found no current or projected need to acquire the site for regional stormwater management purposes, as it would not perform effectively as a County facility.
Utilities and Public Works Infrastructure
The site lies outside the current service area for the Woodville Rural Community Septic-to-Sewer Project which is under active design and phased construction. The subject property has no identified role in planned or future public utility infrastructure expansions. There are also no planned County sanitary-sewer extensions in the immediate vicinity that would necessitate acquisition of this property to secure easements, rights-of-way, or utility corridors. From an infrastructure-planning perspective, the parcel does not present a current public necessity.
Parks and Public Amenities
The Woodville area includes approximately 39 acres of County parkland serving an estimated 4,170 residents, the number of acres increases to 44 acres per 1,000 residents when State and National lands within the Woodville Census Designated Place (CDP) are included. This is more than three times the County average (13.4 acres per 1,000) and nearly four times the national benchmark (10.2 acres per 1,000). These metrics demonstrate that the Woodville community currently enjoys park and recreation access well above both local and national standards.
The area benefits from several major public amenities that provide a wide range of recreational opportunities. J. Lewis Hall Sr. Park, located immediately adjacent to the subject property, is Leon County’s largest active park, featuring multiple athletic fields, playgrounds, and recent facility upgrades exceeding $800,000 in capital investment. The Woodville Community Center and Library, which ranks as the County’s second most utilized community hub, is scheduled for additional enhancements in FY 2026. Residents also have direct access to the St. Marks Trail and the Munson Hills Trail network within the Apalachicola National Forest, providing extensive opportunities for walking, cycling, and nature-based recreation.
Given these existing resources and utilization levels, the Woodville community is already well served by County parks, community centers, and regional recreation assets. Based on the capacity analysis and investment metrics, staff found no demonstrated public need for additional parkland or recreational acreage at this time.
Summary of Evaluation
The evaluations of transportation, stormwater, utilities, and parks did not identify a defined public need for County acquisition or use of the subject property at this time.
From a transportation standpoint, Woodville Highway currently operates at a good Level of Service (LOS A–C), with traffic volumes well below FDOT thresholds and no planned widening, intersection, or safety improvements anticipated within the next decade. The corridor is stable and unconstrained, providing no warrant for right-of-way acquisition or capacity expansion.
From a stormwater perspective, the property is unsuitable for regional stormwater management. Only very minor compensating volume opportunities could exist to offset small impervious additions at the adjacent J. Lewis Hall Sr. Park, and even those would provide limited benefit within the basin’s hydrologic constraints.
Similarly, the property has no identified function within current or future utility or public-works infrastructure plans. It lies outside the active Woodville Septic-to-Sewer service area, with no sanitary-sewer extensions, easement needs, or corridor improvements requiring County acquisition.
In the area of parks and recreation, the Woodville community remains exceptionally well served, exceeding both County and national park-acreage benchmarks. Ongoing capital investments at J. Lewis Hall Sr. Park, the Woodville Community Center, and the planned dog park further address recreational demand, leaving no demonstrated need for additional parkland or active-use space.
In conclusion, the multidisciplinary analysis did not identify a current public-infrastructure need to support County acquisition or utilization of the property. As a result, eminent domain is not a viable option at this time. In order to validly exercise the power of eminent domain, the County must demonstrate that the proposed taking is reasonably necessary for a project that is for a public purpose. Without a current or reasonably foreseeable project and no necessity to acquire the property for such a project, there is no basis to proceed with eminent domain at this time.
Code Enforcement Process and Next Steps
The property remains under an active Code Enforcement Board (CEB) order which required corrective action by November 30, 2025. The order directed the property owner to either remove the remaining structure or provide documentation from a licensed engineer verifying that the structure is sound. The property owner filed a Request for Extension of Time on November 25, 2025, which was considered and denied at the CEB’s January 15, 2026 meeting. As requests for an extension do not automatically toll the time for compliance, staff sent the property owner a Notice of Non-Compliance on January 8, 2026, which provides the property owner twenty days to request a Compliance Review Hearing. To date, staff have not received a request for a Compliance Hearing, which will expire on January 28, 2026. If a Compliance Review Hearing is requested by the deadline date, the property owner’s request will be heard by the CEB at their February 19, 2026 hearing. Compliance Review Hearings are limited to challenging the determination of non-compliance in regard to the CEB’s order, the validity of the fine amount, or the imposition of a lien. If the property owners fails to request a Compliance Review Hearing, fines will begin to accrue effective December 1, 2025, consistent with the original compliance deadline date. Ultimately, if the property is not brought into compliance and the fines are not paid, the property may be subject to possible foreclosure. In the short term, the case may also be referred to the Nuisance Abatement Board (NAB) for further action. The NAB, composed of the same members as the CEB, has the authority to determine whether a property constitutes a serious and on-going public-safety hazard. The NAB has the authority to order the abatement or demolition of unsafe structures. The burden is on the County to show by a preponderance of the evidence that the building or premises presents a serious and continuing danger to the public and/or occupants.
The abatement process would proceed in accordance with applicable Leon County Code of Laws, specifically, Chapter 14, Article V, of the LCC, which provides the framework for nuisance-abatement actions. Under this process, the County may provide written notice to the property owner to remedy the hazardous condition within a prescribed period. If the owner fails to do so, and the NAB finds that the property constitutes a nuisance, the NAB may direct County staff to abate the nuisance through demolition or other corrective measures. Any abatement costs incurred by the County become a lien on the property, recorded in the public records and enforceable through foreclosure consistent with statutory procedures.
The NAB also retains discretion to grant extensions if the property owner demonstrates good-faith progress toward compliance before the deadline. However, if the violation persists beyond any granted extension, the County may move forward with abatement to remove the public hazard.
Conclusion
Based on the completed public use feasibility analysis, staff determined that there is no current public project that would necessitate acquisition of the Woodville Aquaculture Facility property for a public purpose. Transportation, stormwater, utilities, parks, and other County infrastructure evaluations did not identify an immediate or planned County need for this site. As a result, the legal threshold required to initiate eminent domain proceedings cannot be met at this time.
Separately, the County’s ongoing Code Enforcement actions regarding the property are governed by established due-process requirements and the protection of private property rights. In July 2025, following the expiration of the FDACS Aquaculture Certificate for the property, DSEM issued Notices of Violation for a dilapidated structure and debris accumulation. The debris piles were removed; however, the structure remained noncompliant which led to the CEB proceedings ordering the property owner to remove the structure or provide documentation from a licensed engineer that such structure is sound. The current CEB proceedings provide the legal framework to address site violations while ensuring the property owner’s rights are preserved. In the event these actions lead to foreclosure, the County will evaluate the site for potential public use at that time.
Based on the information and analysis presented above, staff recommends Option #1 to accept the status report of the Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property.
Options:
Accept the status report on the Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property.
Do not accept the status report on the Public Use Feasibility Analysis for the Woodville Aquaculture Facility Property.
Board direction.
Recommendation:
Option #1