Fernandina Commission Weighs Options to Keep Soccer at Ybor Alvarez, Considers Bond Referendum

By Mike Lednovich/Editor

The future of youth soccer on Amelia Island still remains unsettled, but Fernandina Beach commissioners signaled Tuesday they are not ready to give up on keeping the Ybor Alvarez fields on the island.

At Tuesday's workshop, the City Commission reviewed updated cost estimates, Federal Aviation Administration requirements and construction alternatives for replacing or relocating the existing soccer and softball complex on airport property. By the end of the meeting, commissioners directed staff to further analyze a new proposal that could potentially preserve soccer at its current location — while shifting planned airport hangar development to the opposite side of the property.

The discussion marked the latest chapter in a debate that has stretched back more than a decade and intensified since 2022, when the city began formally exploring the purchase of a portion of the Ybor Alvarez parcel from the airport.

Airport Manager Nathan Coyle told commissioners the core issue is not hangars, but federal compliance tied to airport property.

“Well, what’s important is I think we need to figure out the long-term answer so we’re not in jeopardy with the city’s investment in Ybor Alvarez,” Coyle said. “That’s really what started this discussion.”

In 2013, a complaint to the Federal Aviation Administration alleged the city was not charging fair market value for use of airport land. At the time, the city was transferring about $100,000 annually to the airport fund. That practice stopped in 2014–2015, potentially creating what Coyle described as a compliance problem.

“So now you’ve got a situation where you’ve likely got a grant assurance violation,” he said.

Under FAA rules, airport property must generate fair market value unless it qualifies for a limited “community use” exemption — a designation with significant restrictions.

“The message there is that you can probably expect that it’s a shorter term and there’s a lot of strings attached to that community use provision,” Coyle said.

To permanently protect the fields from potential aeronautical reuse, the city would need to purchase the land at fair market value and secure a federal release. A recent appraisal placed the value at approximately $3.5 million.

Federal rules require two independent appraisals and a third-party review — estimated at roughly $15,000 total — and completion of an Environmental Assessment before the FAA will consider the transaction.

“We think that process would be done in March of 2027,” Coyle said of the assessment, noting it has been underway for several months.

City Parks Director Scott Mickelson outlined four primary options:

• Construct fields (off island) at Nassau county’s yet to be built East Regional Park (off island)

• Purchase and rebuild at Ybor Alvarez where the existing softball fields are now (airport land)

• Develop the city owned property behind Simmons Park behind the airport

• Convert portions of the municipal golf course into use for soccer

Purchasing the Ybor parcel and rebuilding three fields is estimated at roughly $6.6 million.

“So, we’re talking $3.5 million to buy the land and then another $3.5 million to build,” Commissioner Joyce Tuten summarized during the workshop.

The Simmons Park parcel option — city-owned but constrained by wetlands and runway protection zones — is estimated to cost about $4.5 million to construct.

However, city staff did not recommend that option due to environmental impact and public access limitations.

The city golf course conversion would cost an estimated $10 million and require a full redesign of portions of the municipal course. Mickelson said city staff did not recommend that alternative as well.

The least expensive alternative remains moving youth soccer off island to the county’s East Regional Park near State Road 17. Nassau County has committed $1.7 million through an interlocal agreement to build additional fields for the city use.

But that option comes with tradeoffs.

“It doesn’t guarantee use for city purposes,” City Manager Sarah Campbell cautioned, noting the fields would be managed under the county recreation system.

However, a new “flip-flop” proposal to keep the soccer fields at Ybor Alvarez was proposed.

Vice Mayor Darron Ayscue introduced a new concept that reframed the debate.

Instead of relocating soccer, Ayscue suggested keeping the fields where they are and relocating future hangar development to the current softball side of the property.

“If you want to keep soccer on the island, that’s the only way to do it,” Ayscue said. “I’m simply looking at pursuing that option that is the least impactful to us money-wise.”

He acknowledged there are tradeoffs.

“I understand that there is no win here,” he said. “Somewhere we’re going to lose something.”

Airport Manager Coyle said the idea is feasible to explore, but would require a conceptual redesign and informal FAA review.

“I could probably have a site plan done in two to three weeks,” Coyle said.

Restarting the Environmental Assessment to reflect the new configuration would delay completion by approximately three to four months.

While commissioners expressed interest in exploring the “flip-flop” proposal, several emphasized that funding — not preference — will determine the outcome.

“We absolutely do not have $6 million in our budget,” Tuten said, noting the city collects about $21 million annually in property taxes.

Tuten floated the possibility of a general obligation bond referendum, similar to prior voter-approved conservation efforts.

“That means we would borrow a giant chunk of money … and that comes out of a dedicated debt service on your taxes,” she explained.

City Attorney Teresa Prince confirmed a November ballot measure is possible but would require firm construction cost estimates by early summer.

Commissioner Genece Minshew called for more detailed financial modeling before any decision.

“I just need to see a lot more detail on the money and the finances,” Minshew said. “Where is this money going to come from?”

She also suggested examining user fees for non-city residents, noting many youth athletes using the fields live outside city limits.

Mayor James Antun echoed the need for caution.

“I have more questions than answers,” Antun said. “I’d like to hear a lot more before I’m ready to commit.”

City staff was instructed to:

• Develop a conceptual “flip-flop” hangars/soccer field site sketch for FAA review

• Commission required property appraisals

• Prepare a detailed cost and financing analysis, including bond feasibility

Both existing Ybor Alavarez fields together total approximately 23 acres, according to city staff.

For now, youth soccer at Ybor Alvarez will continue at least through the upcoming fall and spring seasons.

But as Coyle reminded commissioners, the goal is long-term certainty.

“We need to figure out the long-term answer,” he said.

And that answer may ultimately rest with voters, who could be asked whether preserving youth soccer on Amelia Island is worth a dedicated tax-backed bond.