MB So. Pointe Redv. District
MIAMI-DADE COUNTY, FLORIDA
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99 DEe 22 PMO~~I~~OF COUNTY MANAGER
SUITE 2910
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OFFICE MIAMI, FLORIDA 33128-1994
(305) 375-5311
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December 16, 1999
Mr. Sergio Rodriguez
City Manager
City of Miami Beach
1700 Convention Center Drive, 4th Floor
Miami Beach, Florida 33139
Dear Sergio:
.-
F or your information and review, attached is a copy of our Audit Report of the Miami
Beach South Pointe Redevelopment District dated November 30, 1999.
If you have any questions, please contact me.
,
M. R. Stierheim
County Manager
Attachment
~istina M. Cuervo, Assistant City Manager w/attachment
George Burgess, Executive Assistant to County Manager
Barb~ra Jordan, Senior Assistant to County Manager
~ Rachel Baum, Director, Finance Department
~ Tony E. Crapp, Sr., Director, Office of Community and Economic Development
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MEMORANDUM
TO:
M. R. Stierheim
County Manager
DATE:
November 30, 1999
SUBJECT:
Audit Report - Miami Beach
South Pointe Redevelopment
District
FROM:
~~
Audit and Management Services Department
PURPOSE AND SCOPE
As requested, we audited operations of the Miami Beach Redevelopment Agency (the Agency)
pertaining to South Pointe Redevelopment District (the District) for three years ended September
30, 1996, 1997 and 1998. The purpose of our audit was to determine if ta..'( increment funds
contributed by Miami-Dade County (the County) were properly utilized according to State, Co~nty
and City regulations. We also analyzed the feasibility of utilizing accumulated cash reserves to
extinguish the District's debt. On a test basis, we reviewed documentary evidence supporting actions
taken and expenditures recorded and reported, as well as controls intended to ensure accuracy. We
also observed capital improvements completed and in progress (see Exhibits I and II), interviewed
District personnel and performed other tests we considered necessary.
BACKGROUND
Initial Redevelopment Plan
the southern portion of the City of Miami Beach (the City), known as South Shore (approximately
250 acres south of Sixth Street between Biscayne Bay and the Atlantic Ocean), was first to develop
commercially when a number of small hotels and rooming houses were built to accommodate
tourists. Following World War II, this area declined as larger hotel/resort complexes developed
further north and the population base shifted mainly to lower- and fixed-income residents.
Concerned about widespread physical deterioration within the region and to spur redevelopment, in
1976 the City created the Agency which reported to an independent Board. A redevelopment plan
was prepared, emphasizing predominant clearance of buildings and structures, as well as
construction of an extensive system of canals by a single Master Developer and relocation of
approximately 6,000 residents. The City also declared a building moratoriwn on the entire blighted
area.
On February 1, 1977, the Board of County Commissioners (BCC) delegated redevelopment po\vers
to the City of Miami Beach for the South Shore project under terms of the Community
Redevelopment Act of 1969 (Florida Statutes S 163). This Act requires establishment of a
Redevelopment Trust Fund (the Trust Fund), which is funded annually by 95% of the incremental
increase in County and City property tax revenues (Ta..'( Increment Funds [TIF]) for the District over
a given base year (1976). Monies deposited into the Trust Fund must be used to finance
development activities within the targeted area.
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 2
TIF monies may be expended for debt service, bond issuance costs, real property acquisitions in the
redevelopment area, costs of planning, surveys and financial analysis, clearance and preparation of
land, relocation costs, development of affordable housing and administrative expenses. The monies
may not be used for construction or expansion of administrative or police and fire buildings (unless
approved by both taxing bodies), publicly-owned capital improvements or general government
operating expenses not integral to the plan. At fiscal year-end, monies remaining in the Trust Fund
must be either returned to taxing authorities pro-rata, used to reduce outstanding debt, escrowed to
reduce debt at a later date, or appropriated to a specific project scheduled for completion within three
years, Additionally, the Agency may issue revenue bonds to fund redevelopment activities.
Facing strong public opposition, in 1982 the City abandoned the original redevelopment plan and
disbanded the Agency Board of Directors, replacing it with City of Miami Beach Commissioners
(City Commission). The latter Agency Board appointed the City Manager as Executive Director.
In January 1983, a new conceptual Revitalization Strategy Plan (the Plan) outlining major goals and
objectives was developed by consultants and the building moratorium lifted.
On September 18, 1984, the BCC ratified the Plan, retroactively approving TIF to 1982 and
extending the County's obligation to 1987 (Ordinance 84-73). This Ordinance further restricted use
of County TIF to site acquisition, relocation assistance, and capital improvements or the financing
thereof, specifically excluding operating expenses of the Agency.
Subsequently, the City also formed the South Pointe Advisory Board, comprised of a maximum 13
members appointed by the Executive Director and approved by a majority vote of the Agency Board.
Each member must be either a permanent City resident, property or business O\lmer, or have
substantial investment in the District. The Advisory Board's composition is intended to represent
the full spectrum of District interests, from developers to conservationists.
Between October 1, 1987 and September 30, 1998, District revenues aggregated $43.1 million and
expenditures $36.3 million (see Schedule I). For the past three years, one to two full-time City
employees have been assigned District administrative duties. The City annually bills the Agency
a management fee for direct and indirect administrative expenses, necessary or incidental to
implementation of the redevelopment plan.
Developing the Uplands
On February 12, 1979, the Agency designated South Shore Developers, Inc. (SSDI) as Master
Developer, subject to execution of a more definitive contract regarding the initial plan
implementation. Under this agreement and subsequent modifications, SSDI advanced the Agency
$2,650,000 for operating expenses, secured by notes and options to purchase and lease certain
parcels of real estate. On July 17, 1980, after failing to reach consensus, the Agency terminated SSDI
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 3
as the Master Developer. In response, SSDI filed suit, seeking return of advances plus accrued
interest, reasonable attorneys' fees and rights to exercise its options.
In September 1984, the Court ordered the Agency to repay outstanding advances aggregating $3.6
million (including accrued interest of $1.2 million), bearing interest at 12% from July 1984 until
satisfied, and granted SSDI the option to purchase and lease the Marina Uplands parcels. SSDI was
also awarded attorneys' fees of $361,000, together \vith prejudgment interest of $104,513. In
February 1985, SSDI notitled the Agency of its intent to exercise the option to purchase and lease
the Marina Uplands parcels. However, the Agency had already leased a substantial portion of this
land to another developer. resulting in additional litigation (see page 4, }v!arina Development).
In July 1985, because the Agency did not timely satisfy the cash portion of the judgment, and to
resolve controversies stemming from the lawsuit, the parties agreed, among other things, to. cap
settlement costs including interest at $9,215,000. Once the balance reached this amount (which
occurred during fiscal year 1994), title to the Uplands parcels would be transferred to SSDI (based
on a purchase price of $17 per square foot). In 1985, the City conveyed these parcels to the Agency
at a recorded value of $7.849,400 ($9,215,000 less $1,365,600 for the Marina parking obligation [see
page 4, iV/arina Development] according to 1997 audited financial statements).
Portofino Settlement
In April 1994, SSDI's rights were sold and assigned to West Side Partners, Ltd., one of several
entities owned ancIJor controlled by Thomas Kramer (Porto fino). Documentation was not available
to determine the amount Porto fino paid to acquire SSDI's rights. In November 1995, the Agency
and Portofino entered into an agreement for development of two Marina Uplands parcels--SSDI
North and South--that:
o Released the deed for SSDI South to Portofino;
o Transferred ownership of the Goodman Terrace land parcel (\vhich faces Government Cut and
belonged to the Miami Beach Housing Authority) in exchange for seven inland lots within the
District and 211 Collins Avenue, a multi-family structure. The latter parcels became the
property of the Housing Authority.
o Released to Porto fino certain rights and obligations with respect to SSDI North and conveyed
additional property, all predicated upon timely obtaining of various approvals.
Because the Agency did not timely meet certain obligations, Portofino threatened litigation. These
matters were subsequently resolved and resulted in a Settlement Agreement approved April 15, 1998
by the City Commission. The Settlement Agreement required Portofino to file a Concept Plan with
the Agency for development of SSDI properties. \vhich was subsequently approved September 23,
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 4
1998. In addition, the Agency committed to providing Marina parking and other amenities as
follows:
485 parking spaces, laundry & restroom facilities for Marina
Valet service to Marina during SSDl North construction
Baywalk easement
Easements, licenses, etc.
Staging Area License Agreement
Pump Station removal, SSDI North
Yacht Club parking (115 spaces), restroom, laundry
Fifth Street lease
Washington A venue extension
Total RDA commitments per Settlement Agreement
S5,525,000
690,000
1,500,000
75,000
50,000
75,000
1,275,000
250,000
1,000,000
$ 1 0,440,000
From October 1, 1991 through September 30, 1998, legal and other costs aggregating $2 million
have been expended in resolving the SSDIlPortofino matter, as detailed below:
Legal costs
Environmental cleanup
Utility relocation
Other
$ 1,137,465
337,028
247,413
261,841
$ 1,983,747
jl;/arina Development
On June 24, 1983, the Agency entered into a 30-year net operating lease (expiring December 31,
2014), with Carner-Mason Associates, Ltd. to construct, develop and operate the Miami Beach
Marina, one of the centerpieces of the proposed Plan, in exchange for reduced rent. Included in the
leased area were certain Marina Uplands parcels that the Agency had already committed to SSDI,
which was claiming and pursuing full rights to the property through litigation. Nonetheless, the
lease required Carner-Mason to pay all operating and maintenance expenses. In 1985, Carner-Mason
sued the Agency for breach of lease, alleging, among other matters, the SSDI settlement had
seriously impaired the lease value and the lender was threatening to \vithdrav/ funding and foreclose.
In November 1989, a $27 million final judgment was issued, which was later appealed and reversed.
On October 23, 1991, the Agency settled and entered into an amended lease with Tallahassee
Building Corporation (a subsidiary of the lender who had foreclosed on Carner-Mason), assuming
responsibility for Baywalk construction, cleanup and removal of underground fuel tanks and other
Marina improvements totaling $2.5 million, plus $1 million for environmental remediation. Under
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 5
the amended lease, the Agency receives the greater of a minimum annual guarantee or percentage
of sales, as well as provides 1,000 parking spaces and a pedestrian overpass. In 1994, a second
amendment obligated the Agency to contribute an additional $400,000 for construction of a surface
parking lot. Third and fourth amendments which involved Miami Beach Marina Associates, Ltd.
(Tallahassee's successor) reduced the number of parking spaces to 715.
Cobb Courts
On March 31, 1989, the Agency entered into a development agreement with Cobb Partners
Development, Inc. (Cobb) to create a Mediterranean village in the South Pointe area.
Simultaneously, the parties executed a purchase and sales contract which granted Cobb the right to
acquire two parcels of land for $4.4 million that the Agency was planning to later purchase primarily
through eminent domain proceedings. According to the contract, Cobb would purchase Parcel 1
located between Alton Road and Meridian Avenue from First Street to Second Street for :~;2.8
million. A firm price of $1.6 million was established for Parcel 2, which included the block bounded
by Meridian Avenue, First Street, Washington Avenue and Second Street. Subsequent modifications
increased the price of Parcel 2 by $538,000 in exchange for Cobb's agreement to fund certain
streetscape improvements. The developer also agreed to provide 5,000 square feet of office space
for use as a library at a cost to the Agency of $275,000.
It is unclear why the Agency agreed to guarantee Cobb a fixed sales price (lower than what the
Agency paid) for land it did not yet own. Ultimately, the Agency paid $9.4 million for land earlier
committed to Cobb for $4.9 million, resulting in a $4.5 million loss, excluding legal and other fees
totaling $6.1 million. A balance of $299,317 (principal and interest) remains due from Cobb.
Agency net expenditures for the Cobb development through September 30, 1998 are summarized
below:
Cobb Partners - sale of land S 4,974,000
Land acquisition 9,444,065
Legal fees and costs 4,060,436
Other 2,078,771
15,583,272
Cobb project loss S (10,609,272)
To date, Cobb has completed 69 units which Property Appraiser records indicate \vill increase the
tax base by $14.3 million. The remainder of the project (200 units) is expected to generate a tax base
of approximately $40 million, exclusive of land, representing approximately $300,000 in new annual
revenues to the City.
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 6
Future Capital Projects
The Agency projects income in excess of $101 million over the next 10 years, of which $41.2
million is derived from County TIF (see Attachment A). Proposed capital improvements total $41.8
million (detailed below), with potential additional capital needs for the District estimated in the
range of $.33 to $43 million, including an intermodal facility estimated to cost $12 to $22 million.
Approximately 25% of the projects below are mandated by the Porto fino settlement, and projections
assume continuation of County TIF through 2008. To date, County TIF total $13 million, with $41
million projected.
Proposed Capital Improvements
Cobb Streetscape
Library acquisition and improvements
Portofino settlement (see page 4)
Seawall and SSDI cleanup
South Pointe Park
South Pointe Streetscape and Park
Washington A venue Streetscape
Completion of Baywalk/Beachwalk
S 700,000
375,000
10,440,000
2,000,000
1,200,000
23,800,000
300,000
3,000,000
S 41,815,000
SUMMARY RESULTS
Nothing came to our attention to indicate expenditures of TIF, including those contributed by the
County, violated provisions of Florida Statutes 9163.387, County Ordinance 84-73 or the Plan.
However, historically the Agency has not formally adopted a capital plan outlining projects to be
completed within three subsequent years, nor notified the County of its planned disposal of excess
TIF. According to Agency staff, excess TIF will be utilized to satisfy legal contingencies
(approximately $10.4 million) and fund planned development activities. In 1998, the Agency
presented a 10-year plan for proposed and future capital projects that was adopted by the City
Commission on July 21, 1999 (see section captioned Future Capital Projects).
As of November 1998, $3.9 million remains outstanding on the $7 million, 9.125% tax increment
bonds maturing serially through December 1,2004. The City's external financial advisor reported
two viable refunding strategies: cash defeasance and taxable refunding. Due to conditions of
issuance, bonds cannot be refunded on a tax-exempt basis before the first call date of December 1,
2000. Taxable refunding would result in a $55,965 loss, and defeasance would require a $4.3
million deposit into an escrow account. Another option to produce savings is retirement of all or any
portion of the bonds after the first call date, which would be at a 2% call premium through
November 30, 2001, and a 1 % call premium through November 30, 2002.
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 7
As of September 30, 1998, internal District financial statements report $6 million in unreserved
general fund cash and investments, and $1.4 million in debt service reserves. According to Agency
representatives, these funds are not available to retire outstanding bonds, as general fund monies will
be used to satisfy contingencies and fund future capital projects described previously. Nonetheless,
as time passes, refunding and defeasance options become less attractive. Hov/ever, early retirement
of all or any portion of the bonds appears to be the best course of action should the County decide
to pursue early extinguishment of debt.
Of greater concern is the financial impact of prior Agency transactions and decisions which
increased legal, land acquisition and other redevelopment costs. A summary' of expenditures by
project from 1988 through 1998 is detailed below.
Summary of Expenditures bv Proiect
Marina ssm Portofino Cobb Courts Total
Land Acquisition $ - $ - $ - $ 9,444,065 S 9,444,065
Construction Costs 1,594,094 22,535 45,000 1,661,629
Miscellaneous Site Improvements 1,124,167 247,413 159,961 1,531,541
Legal Costs/Closing Costs 648,699 112,786 1,024,679 4,060,436 5,846,600
Professional Services 465,736 78,126 886,620 1,430,482
Various Environmental Costs 18,076 337,028 355,104
Submerged Land Lease 1,034,661 1,034,661
Miscellaneous Project Costs 2,252 15,017 146,163 987,190 1,150,622
S 4,887,685 S 150,338 S 1,833,409 $ 15,583,272 $ 22,454,704
Other 679,613
Total S 23,134,317
Since 1988, Agency efforts have been devoted to developing the Marina, as well as acquiring land
for redevelopment (see Schedule I). Consequently, a series of agreements were executed with
developers to either lease or redevelop areas within the District. In most instances, litigation ensued
because the City! Agency either erred or failed to meet its obligations. This in no \vay suggests
developers were not partly to blame; however, the Agency has had to assume financial burdens
resulting from unfavorable court judgments and negotiated settlements.
For example, the Agency executed a lease requiring the lessee to constmct, develop and operate the
Marina at reduced rents, although a portion of the property rights had been obligated to another
developer (SSDI). This duplicity contributed to the demise of the original lease, caused the lessee
financial hardship and resulted in a complex and costly $2.5 million settlement to the Agency. In
1984, the Courts mandated repayment of $4.1 million owed SSDI in unpaid obligations and legal
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 8
fees. Failure to timely satisfy the initial judgment triggered a nine-year chain of events which cost
the Agency an additional $5.1 million. Land valued at $9.2 million was eventually conveyed to
SSDI's successor (Porto fino) to satisfy this obligation.
Contemporaneously, the Agency executed an agreement with Portofino in November 1995 to
develop the Uplands. However, because the City! Agency failed to meet certain obligations,
additional legal fees exceeding $1 million \vere incurred. City officials indicated highly specialized
legal experts were necessary to represent public and Agency interests against similarly-qualified
counsel in suits brought against the Agency. Nevertheless, this settlement will cost the Agency
$10.4 million, representing 86% of tax increment revenues estimated for fiscal 1999 and 2000.
Also notable is the magnitude of legal and land acquisition costs incurred for Cobb Courts. Over
a five-year period, the Agency acquired properties at a cost of $9.4 million primarily through
eminent domain for resale and development by Cobb. In 1989, the Agency executed a presale
agreement guaranteeing Cobb a fixed purchase price ($4.9 million) for these properties prior to the
Agency completing necessary land acquisitions two to six years later. The Agency ultimately paid
$9.4 million, resulting in a $4.5 million loss. An additional $4 million was expended in legal fees,
including those of property O\\l1erS, which fees must be borne by the claiming entity in accordance
with Florida Law.
Rationale for past actions was difficult to determine, as many key decision-makers have left the City.
Nonetheless, we estimate lami, legal and other costs (both cash and non-cash outlays) totaling $27
million could have been avoided with better decision-making and more prudent management
(Schedule III).
Absent adequate supporting documentation, the Agency reimbursed $291,373 and $247,413
respectively to Cobb and the Portotino Yacht Club general contractors for improvements. In no
instance did the Agency have an accredited owner's representative on site. In another instance, the
City's Public Works Department installed a water main at Cobb Courts. Rather than billing the
Agency for work performed, $74,069 \vas deducted from the annual TIF allocation. If
documentation was provided to support work performed, it could not be located.
The City annually bills the District a management fee for direct and indirect administrative expenses
and service charges. aggregating $2.2 million over the past five years (see Schedule II). In lieu of
time records, shared payroll costs are allocated based on an estimated percentage of time devoted
to District business. Indirect costs and internal service charges are also estimated. County TIF were
not utilized to reimburse these costs.
The City Manager recommended hiring a consultant to prepare a cost allocation plan supporting the
management fee reimbursement. We concur and urge that this be promptly implemented, with the
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 9
goal of including only supported indirect costs in the next fiscal year budget. Costs for the study
should be borne equally by the City and Agency.
Written Agency policies and procedures permit the Executive Director to authorize purchase of
goods and services up to $10,000; Board approval is required for larger amounts. At least three bids
are mandated unless a sole source has been specifically identified. In 1998, the Agency contracted
. with a New York firm for design review services; however, evidence was lacking to indicate the finn
was a sole source, or that three bids were obtained. Initially, one invoice for more than $10,000 was
paid vlith two checks. These checks were subsequently voided and the vendor asked to submit a
revised invoice in an amount less than $10,000, apparently to avoid the approval limit. Invoices and
purchase orders should not be altered to circumvent controls.
In summary, we recommend the following:
o Request annual Agency presentations to City and County officials of three-year capital plans
describing future projects. Reports should also be enhanced to include budget-to-actual results
for projects in progress.
o Appoint a senior official from the County Manager's Office as liaison to increase accountability
and enhance communications.
o If the County's Finance Director deems early retirement or refunding of the outstanding bonds
to be viable retinancing strategies, the economics of these alternatives should be discussed with
City finance officials.
o There appears to be disagreement among City and County officials regarding District
termination. Attorneys for all parties should confer and resolve this matter to avoid future legal
disputes.
o Projected increases in District tax revenues over the next 3-5 years and reduced debt service
requirements present opportunities for City and County officials to explore beneficial options
to use TIF monies for general fund purposes. A regressive rate stmcture phasing out annual City
and County TIF requirements over a five-year period or correlating to annual capital project
requirements would release TIF monies for unrestricted purposes, although Statutory changes
may be necessary to fully implement. Another option would be to prioritize capital projects that
will aid both Agencies in the future. These and other options should be explored by the County
Office of Management and Budget and a recommendation forwarded for consideration.
o The Agency should assign qualified project managers to monitor capital development projects.
Payments should not be authorized without adequate support.
Audit Report - Miami Beach
South Pointe Redevelopment District
Page 10
o The Agency should proceed with hiring a consultant to prepare a cost allocation plan supporting
management fee reimbursement.
We wish to thank City and Agency personnel for their cooperation and assistance during the audit
process. Should you have questions or need further clarification, please contact me at 305-349-6100.
CJ:rmb
Attachments
c: Harvey Ruvin, Clerk of the Courts
Robert Ginsburg, County Attorney
George Burgess, Executive Assistant to County Manager
Rachel Baum, Director, Finance Department
Tony E. Crapp, Sr., Director, Office of Community and Economic Development
David Morris, Director, Office of Management and Budget
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Miami Beach Redevelopment Agency
Management Fee - South Pointe Redevelopment District
For the year ended September 30, 1999
Amount
Direct Costs
Assistant City Manager/Comm.
Economic Devel. Dir.
Redevelopment Coordinator (2)
Administrative Secretary
$ 38,868
75,849
13,703
Total direct costs
128.420
Indirect Costs
Economic Development for Districts
Planning Department
City Manager's Office
Public Works
Engineering Division
Construction Management
Environmental Specialist
City Clerk's Office
City Attorney's Office
Finance Department
OMB Division
Human Resources Department
Total indirect costs
42,064
24,326
35,695
11,134
9,266
15,731
11,829
26,493
30,781
2,657
1,628
211,604
Internal Services Charges
Property Management
Computer/Communications Support
Risk Management
Total internal services charges
39,898
14,613
19,467
73,978
Total 1998/99 charges to South Pointe
$ 414,002
Note; Information contained in this schedule was obtained from the Agency.
Schedule II
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Exhibit II
Marina from SSDI North
SSDI North, toward Causeway
Page 1 of 12
Exhibit II
Marina - on the dock
Marina - toward Lummus Island
Page 2 of 12
Exhibit II
Maintenance Building
Dock Entrance
Page 3 of 12
Exhibit II
Marina Tower
Rebecca Towers, Portofino Yacht Club
Page 4 of 12
Exhibit II
From dock east toward Monty's
Baywalk South
Page 5 of 12
Exhibit II
Monty's Pool (public)
Baywalk
II\"
'/Ii
Page 6 of 12
Exhibit II
Porto fino Yacht Club
construction
SSDI South
Page 7 of 12
Exhibit II
T award Goodman Terrace, Alaska,
Federal Triangle
Portofino from SSDl South
","".~~.:-,: :'- '~. '.c' ," :>:--"""'.'-::-~:;-: 11
';::~':,:,'-".:" .>..-.--.'......:::::~:.'1
,0' .
<::i'>;;'>;""':"~" .
~.c.'...""...~.,.,."~-"" ;;....:. ',', ..'.'- .'. '..
~, <::_'':;'':'~'':_~'::~'',<':;~:'':'::'':>,:.._8:.
:::~~.t1\>>: ,~.::.\.,',:::;' '..?';:,~~/"
:', :;'~':'~ _' :' 0-':,:> .N ~
<:>~:",,'-." ",., -.,'-'-',
::':':~t:'e'
Page 8 of 12
Exhibit II
Portofmo Yacht Club north from southern
SSDI South
Southern Marina
Page 9 of 12
Cobb Courts
Exhibit II
Page 100f 12
Exhibit II
Cobb Courts
Cobb Courts
Page llof 12
Exhibit II
Cobb Courts from north
North on Alton to Core Parcel
Page 120f 12