West Florida
STRATEGIC
REGIONAL
POLICY
PLAN
Prepared by
The West Florida Regional Planning Council
P.O. Box 486 32593-0486 ! 3435 N 12th Avenue 32503
Pensacola, Florida
(850) 595-8910 ! 1-800-226-8914 ! FAX (850) 595-8967
Adopted July 15, 1996
Amended September 8, 1997
Strategic Regional Policy Plan
1. Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part 1-1
2. Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part 2-1
3. Regional Description . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part 3-1
4. Strategic Regional Subject Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part 4-1
5.
6.
7.
8.
I.
Affordable Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Sect. I-1
Trends and Conditions Statements
Regionally Significant Resources and Facilities
Goals and Policies
II.
Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Sect. II-1
Trends and Conditions Statements
Regionally Significant Resources and Facilities
Goals and Policies
III.
Emergency Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . Sect. III-1
Trends and Conditions Statements
Regionally Significant Resources and Facilities
Goals and Policies
IV.
Natural Resources of Regional Significance . . . . . . . . . . . . Sect. IV-1
Trends and Conditions Statements
Regionally Significant Resources and Facilities
Goals and Policies
V.
Regional Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Sect. V-1
Trends and Conditions Statements
Regionally Significant Resources and Facilities
Goals and Policies
Coordination Outline . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Glossary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Regionally Significant Resources and Facilities . . . . . . . . . . . . . . . . . . . .
Executive Office of the Governor Findings & Recommendations . . . . . .
MAP 1:
MAP 2:
MAP 3:
MAP 4:
MAP 5 & 6:
MAP 7:
Water Resources:
Planning and Management Areas:
Wetlands:
Significant Transportation Facilities:
FNAI Natural Systems
Strategic Habitat Conservation Areas
West Florida SRPP ! Contents ! Adopted July 15, 1996 ! Amended September 8, 1997
West Florida Regional Planning Council ! 3435 N 12th Ave. ! Pensacola, Florida 32503
Telephone (850) 595-8910
Part 5-1
Part 6-1
Part 7-1
Part 8-1
1. Purpose
I.
Purpose
Chapter 93-206, Laws of Florida, requires Florida's eleven (11) Regional
Planning Councils to prepare and adopt by rule Strategic Regional Policy Plans
(SRPP). The SRPP's are intended to provide long-range guidance for the
physical, economic, and social development of the region.
This will be
accomplished through the identification of regional goals and policies for
affordable housing, economic development, emergency preparedness, natural
resources of regional significance and regional transportation. Further, the
SRPP's will identify regional resources and facilities. The SRPP replaces the
existing Comprehensive Regional Policy Plan.
Rule 27E-5 establishes minimum criteria and a uniform format for the SRPPs.
These plans shall be developed through a collaborative process that emphasizes
consensus and coordination between local governments, regional entities, state
and federal agencies, other appropriate organizations, and the public. Thus, the
plan is a plan for the region, not merely for the regional planning council.
Regional goals and policies shall be used to develop a coordinated program of
regional actions directed at resolving identified problems and needs.
West Florida SRPP ! Purpose ! Adopted 7/15/96
Part 1-1
2. Executive
Summary
Contents ! Executive Summary
Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Strategic Regional Subject Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Affordable Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Emergency Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Regional Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Natural Resources of Regional Significance . . . . . . . . . . . . . . 4
West Florida SRPP ! Executive Summary ! Part 2
Executive Summary
The West Florida Region, located in the western most portion of the
Panhandle, is approximately 6,026 square miles in size with 8.4 percent of
these square miles being water. The Region has both urbanized and rural
development. Approximately 75 percent of the population lives in an
urbanized area on about 5 percent of the Region's total land surface.
The Region has seven counties, three MSAs and 35 municipalities. The
seven counties are Escambia, Bay, Okaloosa, Santa Rosa, Walton,
Washington, and Holmes. The largest municipalities are Pensacola in
Escambia County, Fort Walton Beach in Okaloosa County, and Panama City
in Bay County. All three of these cities are part of an MSA and are densely
populated.
Five of the Region's seven counties-Bay, Escambia, Okaloosa, Santa Rosa
and Walton-are bordered with coastlines on the Gulf of Mexico. They also
border on at least one of the several bay systems in the Region. The three
MSA's are all located in coastal vicinities. The Region is spread across seven
river basins, five of which are shared with the northern neighbor Alabama.
In order for the Region to maintain the qualities that make West Florida an
attractive place to live and visit, a strategy for managing growth and change
is necessary. The Strategic Regional Policy Plan (SRPP) is a document to
provide overall guidelines for the Region's growth and development.
Use of strategic planning and management allows us to comprehensively
"scan" West Florida and determine its strengths and weaknesses. Once
issues are defined, we can develop goals and policies for each issue.
Planners like to point out that planning is a process. By that they
mean it is naive to assume that you can publish a single document
that answers all the questions or solves all the problems. Conditions
change, resources are shifted, and goals are altered, making it
necessary to revise, adapt, and update the plan. The point of a plan
is to focus attention on the process-to create a basis for debate,
discussion, and conflict resolution. Planning must be a continuous
and continuing activity designed to produce the best possible
decisions about the future of the Region. The Plan represents a
periodic bringing together of the activities of planning. The essence
of a plan is that it is a statement of policy, an expression of
community intentions and aspirations. When recognized as a
statement of policy, the can have tremendous influence, but that
influence is only realized within the context of a total planning
program. (Beal and Hollander from The Practice of Local
Government Planning, 1979.)
West Florida SRPP ! Executive Summary ! Adopted 7/15/96
Part 2-1
Strategic Regional Subject Areas
Strategic Regional subject areas and selected goals and policies of specific
concern to the Region are described below.
Affordable Housing. Affordable housing is a situation whereby monthly
rents or monthly mortgage payments including taxes, insurance and utilities
do not exceed thirty percent (30%) of the median gross annual income for a
household.
!
Include in local comprehensive plans, policies which provide
for adequate and affordable housing for the existing
populations, anticipated population growth and households
with special housing needs.
!
Develop and maintain land uses and land development
regulations that maximize the opportunities for low and
moderate income households.
Economic Development. Economic Development includes considerations
of trends such as migration, taxable sales, population breakdowns, labor
force status, per capita income and tourist development.
!
!
Expand existing and attract new business and industry to the
Region.
!
Increase coordination and information exchange
of various public and private economic
development programs.
!
Increase efforts to expand the export-base of the
economy.
Increase total earnings generated by tourism.
!
!
Transportation and public facilities improvement
plans shall be developed to accommodate the
impact of the Region's tourists.
Maintain the presence of the military missions in the Region.
West Florida SRPP ! Executive Summary ! Adopted 7/15/96
Part 2-2
Emergency Preparedness. Emergency preparedness addresses natural
and man-made hazards and develops planning standards to reduce the risks
from natural and technical hazards.
!
Develop a new hurricane evacuation, shelter and behavioral
analysis study for the Region.
!
!
Reduce high-density residential development within the
Coastal High Hazard Areas.
!
!
Coordinate planning efforts with county emergency
management directors and Division of Emergency
Management State officials.
Encourage public acquisition of hurricane vulnerable
land.
Reduce risk of injury or death from release of chemical
hazards.
Regional Transportation. Regional transportation addresses each mode of
transportation, transportation costs, the transportation—land use issue and
transportation conditions in West Florida.
!
!
Provide an economical and efficient transportation system that
maximizes the mobility of people and goods.
!
Give highest priority to transportation improvements
that will relieve existing traffic congestion.
!
Mitigate impact of new development on emergency
evacuation routes.
Relieve financial constraints on improvements to the
transportation system.
!
Minimize the need for new construction through
development of a Congestion Management System.
West Florida SRPP ! Executive Summary ! Adopted 7/15/96
Part 2-3
Natural Resources of Regional Significance. A regionally significant
natural resource means a natural resource or system of interrelated natural
resources that due to its function, size, rarity, or endangerment retains or
provides benefit of regional significance to the natural or human
environment, regardless of ownership.
!
!
Implement conservation plans to protect the Region's surface
and ground water resources.
!
Establish area-wide stormwater management systems.
!
Protect wetlands from unnatural degradation.
!
Protect water recharge areas and existing and future
well sites.
Reestablish a functioning dune system.
!
!
Restrict development in the Coastal High Hazard Area.
!
!
Assist landowners to take measures to restore and
stabilize beach and dune systems.
Limit development in coastal areas to that which can be
safely evacuated in emergencies.
Continue to appropriately use and protect the Region's
functioning natural systems.
!
Establish buffer zones around estuarine systems,
wetlands, and unique uplands.
!
Direct land acquisition efforts toward protection of
important habitats, wildlife, and natural systems.
!
The development review process should evaluate the
impact of proposed development on environmentally,
historically, or culturally significant land.
Regional goals and policies will be used to develop a coordinated program of
regional actions directed at resolving identified problems and needs. The
Plan will serve as a basis for decisions by the West Florida Regional
Planning Council.
West Florida SRPP ! Executive Summary ! Adopted 7/15/96
Part 2-4
3. Regional
Description
Contents ! Regional Description
Table 1: Person Per Square Mile of Land . . . . . . . . . . . . . . . . . . . . . . 1
Population Trends and Social Characteristics . . . . . . . . . . . . . . . . . . . . . . . . 2
Table 2: Area Population 1930 - 2000 . . . . . . . . . . . . . . . . . . . . . . . . . 2
Table 3: Total New Registration of Out-of-State Vehicles . . . . . . . . 3
Table 4: Residential Housing Starts . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Table 5: Population by Sex and Age . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Table 6: County Regional Rank in Population and Density . . . . . . . 5
Natural Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Climate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Surface Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Groundwater . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Regional Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
West Florida SRPP ! Regional Description ! Part 3
Regional Description
The West Florida Region, located in the western most portion of the
panhandle, is approximately 6,026 square miles in size with 8.4
percent of these square miles being water. The Region has both
urbanized and rural development. Approximately 75 percent of the
population lives in the urbanized area on about 5 percent of the
region's total land surface.
The Region has seven counties, three MSA's and 35 municipalities.
The seven counties are Escambia, Bay, Okaloosa, Santa Rosa, Walton,
Washington and Holmes. The largest municipalities are Pensacola in
Escambia County, Fort Walton Beach in Okaloosa County and
Panama City in Bay County. All three of these cities are part of an
MSA and are densely populated.
Table 1
Person per Square Mile of Land
County
Persons per Square of Land
Square Miles of
1970
1980
1990
Land
Water
311
354
398
660.44
92.00
Bay
99
129
168
757.59
123.78
Okaloosa
94
117
154
935.81
59.57
Santa Rosa
37
55
80
1023.52
120.20
Walton
15
20
26
1065.75
82.50
Washington
19
25
29
589.73
25.70
Holmes
22
30
32
487.50
2.20
Escambia
Note: Counties are arranged from most urbanized to least urbanized.
Five of the Region's seven counties, Bay, Escambia, Okaloosa, Santa Rosa
and Walton, are bordered with coastlines on the Gulf of Mexico. They
also border on at least one of the several bay systems in the Region. The
three MSA's are all located in coastal vicinities. The Region is spread
across seven river basins, five of which are shared with the northern
neighbor Alabama.
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-1
Population Trends and Social Characteristics
The Region's population is now more than two and one half times what
it was in 1950. At the end of this decade the population is expected to be
just under three and one half times the 1950 population.
Table 2
Area Population 1930 through 2000
Year
Population
Years
Numerical
Change
% Natural
Increase
% Net
Migration
1930
129,345
1940
166,333
1930-40
36,988
1950
242,083
1940-50
75,750
1960
369,351
1950-60
127,268
60.7
39.3
1970
444,805
1960-70
75,454
93.1
6.9
1980
547,974
1970-80
103,169
48.8
51.2
1990
675,633
1980-90
127,659
30.1
69.9
2000
815,001
In the last ten years, the West Florida Region has had an influx of people
to the area. People continue to move to Florida seeking relief from colder
climates. Because Florida is a year round employment State, people also
move here to find jobs. Table 3 shows that nearly 161,992 new vehicles
have been registered from out of state since 1988. Table 4 shows the
Residential Housing Starts for 1993-95 with projections for 2000 and
2005. Housing starts are general indicators used to show how the
economy effects buying power. The Region's current population is
732,388 and projected to increase 7.6% by 1997 and 6.5% by 2002. Most
people in the Region are between the ages of 25 and 44. There is an ever
increasing population of 65+, approximately 91,270 as of July 1, 1995
(Table 5).
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-2
Table 3
Total New Registration of Out-of-State Vehicles - Migration Indicator
County
1988
1989
1991
1992
1993
Totals
Bay
5,674
6,360
5,679
6,343
7,072
31,128
Escambia
11,492
13,774
11,761
13,362
13,392
63,781
603
663
590
616
668
3,140
Okaloosa
7,834
8,532
7,244
8,922
9,261
41,793
Santa Rosa
2,711
3,112
2,782
3,528
3,879
16,012
Walton
854
930
598
707
775
3,864
Washington
445
503
382
454
490
2,274
% of State
8.3
7.9
8.7
9.4
9.3
Florida
335,317
431,403
335,649
359,198
382,452
Region
29,613
33,874
29,036
33,932
35,537
Holmes
161,992
Source: Florida Trend, 1993 and 1994
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-3
Table 4
Residential Housing Starts
1993
1995
2000
2005
Bay
1.221
1.03
0.919
1.298
Escambia-Santa Rosa
2.888
2.744
2.851
2.512
Okaloosa
1.783
1.805
1.252
1.79
Holmes
0.056
0.06
0.023
0.065
Walton
0.661
1.034
0.203
0.439
Washington
0.097
0.122
0.091
0.093
Source: Florida Long-Term Economic Forecast, June 1995, Bureau of Economic and Business Research
Table 5
Population by Sex and Age
Sex
Age
County
Total
Male
Female
0-14
15-24
25-44
45-64
65 and
over
18 and
over
Median
*
Bay
136,289
67,066
69,223
29,547
18,263
42,449
28,163
17,867
101,436
34.5
Escambia
277,067
136,411
140,656
59,235
43,997
82,978
55,582
35,275
207,039
33.6
16,926
8,795
8,131
3,115
2,761
4,709
3,625
2,716
13,028
36.0
158,318
79,925
78,393
35,417
20,840
53,467
32,115
16,479
116,877
33.2
Santa Rosa
93,813
46,731
47,082
20,956
12,791
29,778
20,226
10,062
68,840
34.1
Walton
31,860
16,125
15,735
5,893
4,132
8,892
7,282
5,661
24,665
38.4
Washington
18,115
9,100
9,015
3,458
2,660
4,910
3,877
3,210
13,828
36.7
Florida
13,878,905
6,722,768
7,156,137
2,703,719
1,682,382
4,074,102
2,825,985
2,592,717
10,716,950
37.5
Region
732,388
364,153
368,235
157,621
105,444
227,183
150,870
91,270
545,713
35.2
Holmes
Okaloosa
Source: Florida Statistical Abstract 1995
* Estimates based on Bureau of the Census modified age, race, and sex data.
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-4
Four of the Region's many cities and towns have been ranked in the top 110
cities of the State by the size of their populations. These cities are Pensacola
(27), Panama City (47), Fort Walton Beach (70), and Callaway (100) (Florida
Trend, April 1993). Table 6 represents the sizes of the counties and how they
compare and rank with the other Florida counties. In addition, it shows the
number of residents living within the counties.
Table 6
County Regional Rank in Population and Density
Population Estimates
Density
County
Number
Rank
% of
State
Land
Area
(Sq.Mi.)*
Persons
Rank
(Sq.Mi.)
Bay
136,289
24
0.98
763.7
178
26
Escambia
277,067
15
2.00
663.6
418
12
16,926
55
0.12
482.6
35
49
158,318
23
1.14
935.8
169
28
Santa Rosa
93,813
33
0.68
1,015.8
92
33
Walton
31,860
44
0.23
1,057.7
30
53
Washington
18,115
52
0.13
579.9
31
52
Holmes
Okaloosa
Source: Florida Statistical Abstract, 1995
* Land area figures represent the total area in the counties in 1990 and are not
adjusted for lands which cannot be developed (government-owned parks or reserves) or
are uninhabitable (swamps and marshes).
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-5
Natural Resources
The major physiographic divisions in the Region are the Northern Highlands
(includes the Western Highlands and the New Hope Ridge), the Marianna
Lowlands (in Holmes and Washington Counties), and the Coastal Lowlands.
Topographic relief is relatively great when compared to Peninsular Florida,
ranging from sea level to elevations of 350 feet. The total land area in the
Region is 5,523 square miles, or over 3.5 million acres.
The land area of Northwest Florida is forested with hardwoods in the river
floodplains, and pines mixed with a variety of other tree species, shrubs, and
ground covers in the uplands. Wetlands and depressional areas are found in
association with the river floodplains, the bay systems, and coastal marshes.
The coastal lowlands include unique dune and estuarine environments.
Significant coastal and inland natural resources exist within the Region.
The Gulf beaches, barrier islands, bays and estuaries are a major attraction
to the Region and an important economic asset. The Region contains one of
the largest unbroken stretches of beach in the Eastern Gulf, Santa Rosa
Island, a barrier island which parallels the coastline of Escambia, Santa
Rosa, and Okaloosa Counties. Inland, forestry and other agricultural
activities utilize the resources of large amounts of undeveloped land.
The Region contains extensive wildlife management areas and state parks.
The aquatic resources are managed and protected in the marine aquatic
preserves and fish management areas. These areas have been designated
under the Outstanding Florida Waters program to provide additional water
quality protection.
The total percentage of conservation lands in the West Florida Region is
slightly greater than the statewide average. However, Bay, Washington,
Holmes, and Escambia counties are well below the statewide average for
individual counties (15.6%) (Closing the Gaps, 185). Residential and urban
development of fragile coastal areas threatens many important biological
resources remaining in this Region. Many important coastal areas of the
West Florida Region are found in the conservation areas. There are ten (10)
Conservation Areas in our Region.
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-6
Area 1: Eglin Air Force Base (formerly Choctawhatchee National Forest).
Although this area is the largest publicly owned tract of sandhill land cover
in Florida, it is not in the geographic range of several vertebrate species
dependent on sandhill communities. Important vertebrate species recorded
here includes Florida black bear, fox squirrel, red-cockaded woodpecker,
southeastern American kestrel, eastern indigo snake, Florida pine snake,
gopher tortoise, American alligator, Florida bog frog, gopher frog, pine
barrens treefrog, one-toed amphiuma, four-toed salamander, Atlantic
sturgeon, river goby, and Okaloosa darter (Closing the Gaps, 185). Rare
plants include white-top pitcher-plant, sweet pitcher-plant, West's flax,
Chapman's butterwort, Curtiss' sandgrass, panhandle lily, spoon-leaved
sundew, Drummond's yellow-eyed grass, west Florida cowlily, pineland
hoary-pea, hairy wild indigo, gulf coast lupine, orange azalea, Baltzell's
sedge, silky camellia, Ashe's magnolia, panhandle meadowbeauty, karst
pond xyris, southern three-awned grass, Colville's rush, spoon-flower,
Arkansas oak, pondspice, pyramid magnolia, mountain laurel, hairypreduncled beak-rush, toothed savory, large-leaved jointweed, bog-button,
naked-stemmed panic grass, heartleaf, Harper's yellow-eyed grass, violetflowered butterwort, smooth-barked St. John's-wort, and Florida anise (Ibid.,
185). This conservation area has the capacity to sustain viable populations
of most of these species, but management activities need to be improved.
Hardwood encroachment has occurred in many areas and affected
populations of rare species (Closing the Gaps, 185).
Area 2: Patches of sandhill in Washington, Jackson (not in our Region) and
Bay counties. Portions of this area include a Strategic Habitat Conservation
Area for sandhill communities in Florida. Rare species are listed by more
precise geographic areas. Sweetwater, Buckhorn, and Econfina Creek:
gopher tortoise, limpkin, southeastern American kestrel, American swallowtailed kite, hairy woodpecker, pyramid magnolia, mountain laurel, smoothbarked St. John's-wort, toothed savory (Closing the Gaps, 186). Porter,
Gap, and Deadening Lakes (east of State Road 77, north of State Road
20): gopher tortoise, eastern indigo snake, Florida pine snake, gopher frog,
toothed savory, white-topped pitcher plant, Harper's yellow-eyed grass,
panhandle meadowbeauty, smooth barked St. John's-wort, and Gulf Coast
lupine (Ibid., 186). Hicks, Lucas, and Big Blue Lakes (west of State Road
77, east of State Road 79, north of State Road 20): eastern indigo snake
(several records), gopher tortoise (several records), smooth-barked St. John'swort, panhandle meadowbeauty, silky camellia, karst pond xyris, Piedmont
water-milfoil, pyramid magnolia, heartleaf, and mountain laurel (Ibid., 186).
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-7
Court Martial and White Western Lakes (east of State Road 79 and
south of State Road 20): Cooper's Hawk, hairy woodpecker, gopher tortoise,
eastern indigo snake, white-topped pitcher plant, smooth-barked St. John'swort, Cruise's golden aster, gulf coast lupine, panhandle meadowbeauty, and
karst pond xyris (Closing the Gaps, 186).
Area 3: Patches of sandhill and xeric pinelands west and southwest of
Blackwater River State Forest (east and west of U.S. 191). Rare species are
listed by precise geographic regions. South of Springhill (surrounding
East Fork and Big Coldwater Creeks): fox squirrel, southeastern American
kestrel, hairy woodpecker, Cooper's hawk, gopher tortoise, hairy-peduncled
beak-rush, and panhandle lily. South of Berrydale (surrounding East
Fork and Manning Creeks): southeastern American Kestrel, gopher tortoise,
flatwoods salamander, hairy-peduncled beak-rush, and serviceberry holly
(Ibid., 186).
Area 4: Blackwater River State Forest. Important conservation area that
supports several rare species. Species recorded for the area include eastern
chipmunk, red-cockaded woodpecker, gopher tortoise, Florida pine snake,
eastern indigo snake, tiger salamander, pine barrens treefrog, black-tip
shiner, panhandle lily, white-topped pitcher-plant, Say's spike-tail dragonfly,
Harper's yellow-eyed grass, bog button, Chapman's butterwort, yellow-eyed
grass, and meadowbeauty (Ibid., 186).
Area 5: Upper Choctawhatchee River and Holmes Creek. Wetlands areas
associated with these rivers, and the isolated wetlands that lie between these
rivers, are important foraging areas for nearby wading bird rookeries
consisting of great egret, snowy egret, little blue heron, and white ibis
(Closing the Gaps, 186). Other species are reported by major drainages.
Choctawhatchee River (north of Caryville): eastern chipmunk, shorttailed hawk, Cooper's hawk, black-tip shiner, cypress dart, Florida logperch,
Florida chub, Clench's elimia, and wild indigo. Holmes Creek North
(Interstate 10 south to Vernon): bluenose shiner, dusky shiner, Clench's
elimia, Washington thorn, and variable-leaved Indian-plantain (Ibid., 186).
Holmes Creek and Choctawhatchee River South (confluence south of
Vernon and Baker Store): American swallow-tailed kite, limpkin, goldstripe
darter, Florida logperch, orange azalea, yellow cowlily, variable-leaved
Indian-plantain, and Ashe's magnolia (Ibid., 186). Lands Between
Choctawhatchee River and Holmes Creek (Washington County): white
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-8
ibis (rookery), great egret (rookery), anhinga (rookery), flatwoods
salamander, and serviceberry holly. Wright's and Tenmile Creek: blacktip shiner, fuzzy pigtoe, variable-leaved Indian-plantain, and southern
sandshell (Ibid., 186).
Area 6: Lower Choctawhatchee River. Portions of the area are included in
a Strategic Habitat Conservation Area for Florida black bear. Other species
are listed by precise geographic areas. South of State Road 20 (including
Black Creek and nearby Pine Log State Forest): round-tailed muskrat, little
blue heron (rookery), white ibis (rookery), American swallow-tailed kite,
hairy woodpecker, gopher tortoise, coal skink, flatwoods salamander, onetoed amphiuma, Florida logperch, orange azalea, white-topped pitcher-plant,
Apalachicola dragon-head, Curtiss' sandgrass, and Chapman's crownbeard
(Ibid., 186). North of State Road 20: Cooper's hawk, hairy woodpecker,
Florida logperch, orange azalea, variable-leaved Indian-plantain, fluted
elephant-ear, smooth-barked St. John's-wort, and southern sandshell (Ibid.,
186).
Area 7: Weaver, Garnier, Julian Mill, and Burnt Grocery creeks. Strategic
Habitat Conservation Area for the Florida bog frog and Florida black bear.
Other rare species recorded along the creeks include American swallowtailed kite, Florida pine snake, flatwoods salamander, black-mouth shiner,
panhandle lily, hairy wild indigo, and sweet pitcher-plant (Ibid., 186).
Area 8: Large area of sandhill land cover northeast of Eglin Air Force Base
(north of I-10, east of Dorcas). Rare species recorded for this area include
southeastern American kestrel, gopher tortoise, pine barrens treefrog,
eastern indigo snake, Florida pine snake, Florida panhandle lily, and yellow
fringeless orchid (Closing the Gaps, 186).
Area 9: Yellow River, east of Blackwater River State Forest (north and
south of State Road 2). Rare species recorded for this area include eastern
chipmunk, gopher tortoise, pine barrens treefrog, eastern indigo snake,
Florida pine snake, Florida panhandle lily, and Coville's rush (Ibid., 186).
Area 10: The floodplain forests of the Escambia River and its tributaries.
Rare species are listed by specific geographic areas. North Escambia
River and Escambia Creek (north of Chumuckla Springs): eastern
chipmunk, American swallow-tailed kite, Alabama map turtle, Gulf coast
smooth softshell, alligator gar, cypress darter, Florida chub, black tip shiner,
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-9
cypress minnow, crystal darter, saddle-back darter, orange azalea, heartleaf,
southern pocketbook, flat floater, and narrow pigtoe (Ibid., 186). Canoe
Creek: American swallow-tailed kite, copperhead, seal salamander, rough
shiner, bluenose shiner, striped shiner, harlequin darter, and saddle-back
darter (Closing the Gaps, 186). South Escambia River (south of
Chumuckla Springs): American swallow-tailed kite, Cooper's hawk, indigo
snake, river redhorse, starhead topminnow, cypress darter, cypress minnow,
Florida chub, Florida logperch, panhandle lily, mountain laurel, Florida
anise, and narrow pigtoe (Ibid., 186)
Climate
The humid subtropical climate in Northwest Florida is both cooler and
wetter in the winter months than peninsular Florida. Average temperatures
are 81 degrees Fahrenheit in the summer and 54 degrees Fahrenheit in the
winter. Average annual rainfall is 60 inches in the Panhandle, with two
peak rainfall periods; one in the summer, and a secondary period in the late
winter to early spring. The area experiences severe weather in the form of
thunderstorm activity in the summer months, tornados, and hurricanes in
the late summer and early fall.
Surface Water
The major bay and estuarine systems in the Region are Pensacola, Perdido,
Choctawhatchee, and St. Andrew's Bays, connected by the Intracoastal
Waterway. Two of Florida's five major deepwater ports are located in
Pensacola and Panama City. The bay systems are a major regional resource,
as a basis for commerce, recreation, marine and fisheries, recreation, and
environmental protection.
Two of the five largest rivers in Florida are located within the Region; the
Choctawhatchee and the Escambia Rivers. Other major rivers include the
Perdido River, the Blackwater River, the Yellow River, and the Shoal River
(tributary). All the major streams have some portion of their drainage
basins outside of Florida and include more than one county. The Region is
characterized by high stream density and most streams are natural flowing
with few man made alterations. There are relatively few lakes of significant
size. One large man-made impoundment, Deer Point Lake, provides water
supply to the Panama City area.
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-10
Groundwater
Groundwater supply in the Region is obtained from two principle aquifers:
the Floridan and the Sand and Gravel. Northern Okaloosa, Washington,
Holmes and parts of Bay County derive their water supply from the Floridan
Aquifer. Escambia, Santa Rosa, and southern Okaloosa counties derive their
water supply from the Sand and Gravel Aquifer. The Panama City Area gets
water from Deer Point Lake. Groundwater quality and availability vary by
location. The long term availability of groundwater supplies in the Region
is of concern, particularly in the coastal areas, due to the problems of
wellfield depletion and salt water intrusion. Due to these concerns, the
careful management of the groundwater supply and areas of aquifer recharge
are considered to be of regional importance.
The long term use and management of the Region's natural resources is
considered to be a major issue in the Region. The competitive uses of the
various elements of the natural system, water in particular, will impact the
long term development of the Region. The effects of development upon the
natural resources are of major concern. Possible effects of development
include the deterioration of water quality and resulting loss of marine life,
deterioration of air quality, replacement and loss of agricultural lands and
locally important and unique soils, the loss of wilderness and animal habitat,
reduced public access to the beaches and other recreational amenities, and
public safety concerns due to development in coastal hazard areas and
floodplains.
Regional Economy
There are natural resources and physical characteristics of the Region which
have helped to distinguish this physical economic environment from others.
The Region's natural resources as well as its physical and locational
characteristics have affected its economic growth. Resources and geography
will continue to effect economic growth but changes will occur as to which
resources and specific characteristics are supportive of the structural
changes which the national economy is undergoing.
The presence of military operations, covering land in five of the regions seven
counties, is beyond question an important influence on the past, present and
future economy of the Region. The geographical location has made it
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-11
strategically critical to the Nation's defense interests. Eglin AFB covers
464,645 acres of land. This base covers 40.9 percent of Okaloosa's County
total land area, 22.6 percent of Walton County's and 10.0 percent of Santa
Rosa County's. In addition to this base, Tyndall AFB is located in Bay
County and Pensacola Naval Air Station in Escambia County as well as
many outlying but smaller fields.
The Gulf of Mexico is an especially important regional resource. It provides
the recreational resources fueling tourism and the services industry as well
as retail trade in the Region. The Gulf also supports the fish and shellfish
yields of the Region and is linked to complex estuarine systems. It is also
vital to trade and, again, to defense interests.
Inexpensive and abundant water resources have been important
considerations in attracting industry to the Region. The paper mills within
the Region, for example, use large quantities of surface and underground
water. Other industries, as well, located here because of the region's water
resources vital to their operations.
Physical Amenities
Interstate-10 passes through six of the seven counties in the Region in an
east-west direction. Coastal east-west roadways are predominantly rural
two-lane and four-lane corridors. (Florida Department of Transportation
uses the "rural" classification to identify the absence of curbs and gutters.)
The primary east-west and north-south corridors are listed below.
Corridor
Interstate - 10
U.S. Highway 98
State Road 90
State Road 20
U.S. Highway 29
State Road 87
State Road 85
U.S. Highway 331
U.S. Highway 231
State Road 77
State Road 79
Orientation
East - West
East - West
East - West
East - West
North - South
North - South
North - South
North - South
North - South
North - South
North - South
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-12
Metropolitan Planning Organizations facilitate the transportation planning
process in the three urbanized areas of the Region: Pensacola, Fort Walton
and Panama City. Long-range transportation planning outside the urban
area is provided by the Florida Department of Transportation and local
jurisdictions.
Major airport and airways systems are located in Pensacola, Fort Walton
and Panama City and six community airports serve the Milton, Crestview,
Destin, DeFuniak Springs, Bonifay and Chipley areas. Major active military
airfields include Pensacola Naval Air Station, NAS Whiting Field, Hurlburt
Field, Eglin Air Force Base and Tyndall Air Force Base.
The intracoastal waterway is a major water corridor through the southern
portion of the coastal counties. Two major ports contributing to the economy
of the Region are the Port of Pensacola and the Port of Panama City.
Economic Sectors
Federal, state and local government employment (more than 25% of the
Region's labor force) is heavily relied upon in the West Florida Region.
Deviations within this employment sector have substantial effects on the
area's economy. Tourism and a growing service industry are other mainstays
of the Region's economy.
Because government sector employment is
vulnerable to federal and state budgetary considerations, and because
tourism and related services are vulnerable to natural weather events,
diversification of the Region's economy is a primary concern for ensuring a
healthy regional economy.
West Florida SRPP ! Regional Description ! Adopted 7/15/96
Part 3-13
4. Subject Areas
I. AFFORDABLE HOUSING
Acronyms
CDBG
Community Development Block Grant
DCA
Department of Community Affairs
DRI
Development of Regional Impact
FHA/RDA
Farmers Home Administration/Rural Development Administration
FHFA
Florida Housing Finance Agency
HAMFI
Household Average Median Family Income
HOME
Home Investment Partnerships Program
HUD
U.S. Department of Housing and Urban Development
NIMBY
"Not in My Back Yard"
RECD
Rural Economic and Community Development
SHIP
State Housing Initiatives Partnership Program
Contents ! Affordable Housing
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Housing Affordability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Family Income . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Table 1: Families Below the Povery Level . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Regional Housing Conditions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Table 2: Owner & Renter Households with Cost Burden Exceeding 30% . . 4
Table 3: Age of Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Tanle 4: Mobile Home Tenure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Impact of Hurricanes Erin and Opal on Housing Stock . . . . . . . . . . . . . . . . . . . . . . . 6
Regional Development Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Table 5: Hurricane Erin's Impact to Structures . . . . . . . . . . . . . . . . . . . . . . . 7
Table 6: Hurricane Opal's Impact to Structures . . . . . . . . . . . . . . . . . . . . . . . 7
Federal and State Housing Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Rural Economic & Community Development . . . . . . . . . . . . . . . . . . . . . . . . . 8
Community Development Block Grant (CDBG) . . . . . . . . . . . . . . . . . . . . . . . 8
HOME Investment Partnerships Program . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
William E. Sadowski Affordable Housing Act . . . . . . . . . . . . . . . . . . . . . . . . . 8
Regional Housing Program Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Community Development Block Grant . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
RECD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
HOME . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
SHIP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Special Housing Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Disabled . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Elderly Population . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Homeless . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Sheltered Homeless; Unsheltered Homeless . . . . . . . . . . . . . . . . . . . . . . . . . 11
Large-family Households . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Female-headed Households . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Housing as an Issue of Regional Concern . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Land Use Issues: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Location of Housing in Close Proximity to Shopping & Services . . . . . . . . . 13
Accessibility to Places of Employment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Cost, Availability and Suitability of Land for Development . . . . . . . . . . . . 13
Availability of Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
West Florida SRPP ! Affordable Housing ! Section I
NIMBYism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Impact of Land Development Regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Housing Market Factors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Regional Efforts to Meet Housing Need . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Goals and Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Sources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
West Florida SRPP ! Affordable Housing ! Section I
TRENDS & CONDITIONS STATEMENT ! GOALS & POLICIES
AFFORDABLE HOUSING
Introduction
Housing is one of the most basic necessities of life. Americans
spend the largest portion of their budget on housing. Persons
of low-income and those just entering the work force have
always experienced difficulty with the affordability of housing.
During the last twenty years, a combination of events has
occurred causing a rift between the market price of housing
and the purchase power of Americans. These events have
occurred because our economy as a nation is expanding.
Americans have experienced rising land costs, construction
and finance costs, a trend of reduced federal funding for
affordable housing production, strict credit underwriting
criteria, increased land use restrictions and decreased real
wages.
These events have been particularly troublesome for those
with low income. Many of these citizens with low income are
renters, and rents have risen faster than incomes. There is a
large growing gap between the cost of decent housing and
household income, especially for those renter households. In
fact, a 1990 survey of the West Florida Region found that sixty
percent (60%) of all poor rental households spend more than
thirty percent (30%) of their Household Average Median
Family Income (HAMFI) on housing costs, leaving little money
for other essential needs. For the very poor, this has resulted
in overcrowded and substandard shelter conditions or in
homelessness.
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I-1
HOUSING AFFORDABILITY
The definitions of affordable housing and the income groups of concern are
based on standards used by the Florida Housing Finance Agency.
Accordingly...
"affordable" means a situation whereby monthly rents or
monthly mortgage payments including taxes, insurance
and utilities, do not exceed thirty percent (30%) of the
median gross annual income for a household.
Under the HOME Investment Partnerships Program, very-low income
families are defined as those whose annual incomes do not exceed fifty
percent (50%) of the median family income for the area; low-income families
are those whose incomes do not exceed eighty percent (80%) of the median
income for the area; and moderate-income families are those whose incomes
are between eighty percent (80%) and ninety-five percent (95%) of the
median income for the area.
Based on these definitions, affordable housing determination depends on two
major factors: income of the residents and the cost of the housing unit.
Because housing that costs less than thirty percent (30%) of the area's
median income (adjusted for very-low, low-, and moderate-income families) may also be
substandard, affordable housing also depends on quality as well as income
and cost.
Family Income. Median family income in the West Florida Region is
considerably lower than the State's average. As indicated in Table 1, this is
a continuing condition. In 1980 and 1990, the median family income in every
county of the Region was below the State's median income. In 1990, the
range varied from a high of ninety-eight percent (98.3%) of the State level for
Okaloosa County to a low of sixty-five percent (65%) of the State level for
Holmes County. Coincidentally, the percent of families below poverty level
favors this same trend. Table 1 indicates that Okaloosa County experienced
only eight percent (7.8%) of families below poverty level, which is below the
State's average of nine percent (9%). However, Holmes County experienced
nineteen percent (19.4%) of the State level. With the median family income
being below the state average and the poverty level for families being higher
than the state average, it is obvious that persons of low-income will
experience difficulty finding affordable housing in the West Florida Region.
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I-2
Table 1
Families Below the Poverty Level
Median Family
Income
County
Percent of Families below
Poverty
Level
1990
1980
Bay
28,217
15,374
11.2%
Escambia
29,490
16,586
13.3%
Holmes
20,923
12,051
19.4%
Okaloosa
31,662
16,955
7.8%
Santa Rosa
31,033
16,774
11.5%
Walton
25,222
12,748
15.1%
Washington
22,226
12,140
15.6%
State
32,212
17,280
9.0%
Sources
1990 and 1980 Census
1990 Census
Regional Housing Conditions
The nature of housing problems within the West Florida Region relates
primarily to families overburdened with the cost of housing and to a lesser
degree to substandard housing conditions.
Owner and renter households with cost burdens that exceed thirty percent
(30%) are depicted in Table 2. While the Region is generally below the state
level for both homeowner and renter, an affordable housing problem still
exists for over eighteen percent (18.2%) of homeowners and a higher rate of
thirty-five percent (35.2%) for renters. The high number of low income
households (both homeowners and renters) paying beyond what is defined as
"affordable" illustrates the problem created by unemployment, low-wage
jobs, and a shortage of inexpensive housing.
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I-3
Table 2
Owner & Renter Households with Cost Burden Exceeding 30% - 1990
County
Owners
Renters
Total
# over
30%
Percent
Total
# over
30%
Percent
Bay
23,735
4,103
17.3
16,830
5,500
32.7
Escambia
52,512
9,271
17.7
34,458
13,285
38.6
Holmes
2,287
475
20.8
979
392
40.0
Okaloosa
26,921
5,205
19.3
19,951
6,654
33.4
Santa Rosa
16,121
2,928
18.2
7,244
2,268
31.3
Walton
5,042
975
19.3
2,153
667
31.0
Washington
2,777
566
20.4
1,160
405
34.9
Region
129,395
23,523
18.2
82,775
29,171
35.2
State
3,505,316
774,734
22.1
1,632,844
682,548
41.8
Source: U.S. Census, 1990
According to the 1990 Census, the total population of the West Florida
Region was 675,633 with a total of 254,296 occupied housing units.
Approximately two-thirds of all housing units are owner occupied while
approximately one-third are renter occupied. Holmes and Washington
Counties have the highest percentage of owner occupied units while
Escambia and Okaloosa Counties have the highest percentage of renter
occupied units. Average household size has continued to decrease steadily
since 1980.
Within the Region, 57,625 housing units or almost twenty-three percent
(23%) of the total housing stock are over thirty years old or older, the age at
which most homes are in need of substantial renovation or demolition. Three
percent (3%) of total occupied housing units within the Region are classified
as overcrowded. Distinctions in the age and quality of the housing stock also
exist between rural and urban areas.
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I-4
Table 3:
Age of Housing
Building Dates of
Housing Units
Bay
Escambia
Holmes
Okaloosa
Santa
Rosa
Walton
Washington
Region
1759
2123
170
1885
1599
532
345
8413
1985 to 1988
13017
13598
916
10076
5908
3737
883
48135
1980 to 1984
13319
17188
848
12721
6532
4486
989
56083
1970 to 1979
17140
28425
1963
17169
8875
4766
2116
80454
1960 to 1969
8220
20165
1040
11268
4592
1789
1202
48276
1950 to 1959
6899
15538
621
6497
3189
1480
816
35040
1940 to 1949
3609
8283
545
1987
1095
915
624
17058
1939 or earlier
2036
6910
682
966
1041
1023
728
13386
65999
112230
6785
62569
32831
18728
7703
306845
1989 to March
1990
TOTAL UNITS
Source: 1990 Census
There are a total of 42,341 mobile homes within the Region. Mobile homes
comprise approximately fourteen percent (14%) of total housing units within
the Region. In Holmes County alone, over twenty-seven percent (27.7%) of
the total housing stock is composed of mobile homes. Since unemployment
levels are high and wages tend to be low in the rural counties of the Region,
mobile homes are an affordable alternative to stick-built housing units.
Table 4:
Mobile Home Tenure
Mobile home or
Trailer Units
Bay
Escambia
Holmes
Okaloosa
Owner
occupied
Renter
occupied
Santa
Rosa
5984
5806
1078
3246
4077
2093
3087
349
2060
1289
Walton
Washington
Region
2133
1178
23502
492
331
9701
Source: 1990 Census
In general, the private sector provides for the housing needs of the upperincome households in the Region and even most moderate-income
households. However, housing types and styles to meet the preferences of
the very-low, low, and even some moderate-income households, are limited.
Data from the 1990 Census confirms that a substantial number of
households cannot find adequate housing within the price range they can
afford.
West Florida SRPP ! Affordable Housing ! Adopted 7/15/96
I-5
Impact of Hurricanes Erin & Opal on Housing Stock
Hurricanes Erin and Opal caused a negative impact on housing in the
Region. According to the final damage assessment summaries of housing
units, mobile homes, and apartment units, a total of 3,733 units were
completely destroyed or incurred either major or minor damage by Hurricane
Erin when it struck the Florida Panhandle in August 1995. Hurricane Erin
incurred the most damage in Escambia and Santa Rosa County, respectively.
A total of 1,660 housing units sustained hurricane damage in Escambia
County, and 1,004 housing units were damaged in Santa Rosa County.
The eye of Erin made landfall at Santa Rosa Island between Navarre Beach
and Pensacola Beach. Maximum sustained winds were 101 MPH with
higher gusts. Four to eight inches of rain fell across the area. Erin caused
extensive damage to signs, trees, fences, and aerial infrastructure (power,
phone, traffic signals, television lines). Metal buildings were often the most
damaged structures due strictly to wind. Home and business damage was
mostly caused by tree and branch collapse.
The amount of dwelling unit destruction and damage should not be
underestimated. All of the single family dwelling units destroyed in the
State by Erin occurred in the West Florida Region. In all, 89.2% of the
housing damage in all of Florida occurred in four of the five declared counties
of West Florida.
Approximately two months after Hurricane Erin struck the West Florida
Panhandle, Hurricane Opal moved northeastward from its position near the
Yucatan Peninsula of Mexico towards the West Florida Panhandle. The
storm rapidly intensified to near Category Five strength (Saffir-Simpson
Scale), causing immediate evacuation orders to be issued. While Hurricane
Opal's sustained winds were 115 MPH, the most serious losses were from the
storm surge which measured from 7 to 18 feet along the coastline. A total of
19,693 housing units, mobile homes, and apartments were either completely
destroyed or damaged within the Region.
Table 5 provides a summary of housing units, by county, damaged by
Hurricane Erin while Table 6 provides a summary of housing units, by
county, damaged by Hurricane Opal.
Regional Redevelopment Efforts
After the State of Florida was declared a disaster area, the Florida Housing
Finance Agency offered the opportunity for those counties impacted by
Hurricane Opal, to apply for U.S. Department of Housing and Urban
Development, HOME Investment Partnerships Program funds for housing
rehabilitation. Within the West Florida Region, all seven counties were
awarded HOME Program funds to assist with housing repairs for those low
and moderate income persons.
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With the extensive housing structural damage caused by both Hurricanes
Erin and Opal, the need for replacement and rehabilitation of the Region's
housing stock is critical. While local governments must identify and take
advantage of mitigation opportunities while reestablishing their
communities for the short-term, the implementation of long-term solutions to
reduce repetitive disaster damages must be designed in order to promote
sustainable communities.
Table 5
Hurricane Erin's Impact to Structures in the West Florida Region
Single Family
Mobile Homes
Apartments
Destroyed
Major
Minor
Destroyed
Major
Minor
Destroyed
Major
Minor
Total
0
0
0
0
0
0
0
0
0
0
Escambia
14
139
1,037
32
11
43
17
37
330
1,660
Okaloosa
3
27
686
4
12
55
2
32
138
959
Santa Rosa
3
94
595
26
42
80
0
10
154
1,004
Walton
1
1
9
0
0
0
0
44
55
110
21
261
2,327
62
65
178
19
123
677
3,733
County
Bay
REGIONAL
TOTALS
Source: American Red Cross, Final Damage Assessment Summary Sheet, August 12, 1995.
Table 6
Hurricane Opal's Impact to Structures in the West Florida Region
Single Family
Mobile Homes
Apartments
Total
Destroyed
Major
Minor
Destroyed
Major
Minor
Destroyed
Major
Minor
Bay
164
971
3,062
92
319
500
125
511
1,878
7,622
Escambia
118
220
710
0
6
8
72
31
1,190
2,355
1
3
44
4
2
10
0
0
0
64
Okaloosa
96
539
3,560
13
38
107
588
603
1,692
7,236
Santa Rosa
59
227
102
3
7
11
56
132
332
929
Walton
57
117
632
10
15
43
31
118
464
1,487
495
2,077
8,110
122
387
679
872
1,395
5,556
19,693
County
Holmes
REGIONAL
TOTALS
Source: American Red Cross, Final Damage Assessment Summary Sheet, October 17, 1995.
Federal and State Housing Initiatives
At the present time there are four housing initiatives that have provided
numerous opportunities for local governments within the Region to address the
affordable housing issue. Three of the housing initiatives are at the federal
level and one is at the State level.
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Rural Economic and Community Development (RECD): At the Federal
level, the RECD's mission is to provide safe, sanitary, and affordable housing to
very low-, low-, and moderate-income individuals. This program was formerly
known as Farmers Home Administration/RDA and is a part of the United
States Department of Agriculture. For a home to qualify under this program,
it must be located in a rural community or a small incorporated town/city with
a population under 20,000 based on the decennial population census of the
United States.
Community Development Block Grant (CDBG)
The U.S. Department of Housing and Urban Development implements the
CDBG Program for those entitlement jurisdictions, while the Florida
Department of Community Affairs administers the Small Citites CDBG
Program. CDBG funds are used for housing and neighborhood revitalization
projects, commercial revitalization and economic development activities, and
public work projects. All CDBG funds must benefit low and moderate income
persons.
HOME Investment Partnerships Program (HOME): The HOME Program
is also at the Federal level and was created under Title II of the National
Affordable Housing Act of 1990. The purpose of the HOME Program is to
expand the supply of decent and affordable housing; to strengthen the abilities
of local governments to design and implement strategies for achieving adequate
supplies of decent, affordable housing; and to extend and strengthen
partnerships among all levels of government and the private sector, including
for-profit and non-profit organizations, in the production and operation of
affordable housing.
The HOME Program establishes a partnership between States, local
governments and non-profits to help low-income families gain access to decent
housing and experience the pride of ownership. The Florida Legislature
provided the opportunity for the State to receive federal HOME Program funds
through passage of the William E. Sadowski Affordable Housing Act of 1992.
The passage of this Act created the opportunity for the State of Florida to
garner access to numerous federal housing programs and housing funds.
William E. Sadowski Affordable Housing Act: On the State level, the
William E. Sadowski Affordable Housing Act not only provided the State access
to federal HOME Program funds, but also provided a dedicated funding source
for all counties within the State to address affordable housing issues. The State
Housing Initiatives Partnership Program (SHIP) was created in order to
combine available public and private resources to conserve and improve existing
housing and provide new housing for very low, low, and moderate-income
persons. The SHIP Program allows each participating local government the
greatest degree of flexibility in meeting its communities' housing needs.
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Regional Housing Program Participation
Community Development Block Grant: Within the West Florida Region,
four local jurisdictions receive direct Community Development Block Grant
funding from the U.S. Department of Housing and Urban Development. These
four entitlement jurisdictions include Escambia County, the City of Pensacola,
the City of Fort Walton Beach, and the City of Panama City.
RECD: All counties in the Region participate in the RECD Program. Funding
is distributed through four area RECD offices located in the respective county
or centrally located between two or more counties.
HOME: In 1992, Escambia County was declared eligible by HUD to receive
direct HOME Program funds. During that same time period, the City of
Pensacola executed an interlocal agreement with Escambia County to form the
Escambia/Pensacola HOME Consortium. In 1994, Santa Rosa County joined
the Consortium.
On the State level, the Town of Century, located in Escambia County, and
Okaloosa, Holmes, and Walton Counties have received HOME Program funds
through the Florida Housing Finance Agency.
SHIP: All counties within the West Florida Region participate in the SHIP
Program. Since SHIP funding is distributed only to counties, some counties
have entered into interlocal agreements to share funds with those
municipalities located within the respective counties.
All other local jurisdictions within the Region are eligible to receive federal
funds through the State of Florida Small Cities Community Development Block
Grant Program and other federal housing programs administered by either the
Florida Department of Community Affairs or the Florida Housing Finance
Agency.
The West Florida Region is very diverse in that the Region contains both urban
and rural counties. The three major urban areas (Escambia/Pensacola, Fort
Walton Beach, and Panama City) receive direct funding from the U.S.
Department of Housing and Urban Development to address community
development needs. Each county in the Region receives State Housing
Initiatives Partnership (SHIP) funds in order to address affordable housing
needs. However, inconsistencies between State and Federal affordable housing
policies and implementation of the various housing programs accessible to the
Region have created frustration for local governments.
Special Housing Needs
Certain sub-groups of the population have special housing needs. These groups
include the disabled, elderly, homeless, and large-family households. Each
group needs affordable housing options that have the facilities or services
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required for their situation. Female-headed households and displaced
homemakers are additional at-risk populations due to their reduced earning
power, conflicts with child care and adequate support services, and
transportation needs.
Disabled: Due to limited census data available to determine the number and
severity of the disabled population within the Region, it is extremely difficult to
determine the types of services or housing retrofitting necessary to
accommodate this group. The 1990 Census defines disabled as a person with a
mobility or self-care limitation and a work disability preventing employment.
Using the above definition to determine the number of disabled persons within
the Region, the 1990 Census figures indicate that 46,839 persons aged 16 to 64
have a disability. Approximately 22,300 persons age 65 and older have a
disability.
Elderly Population: Although elderly is defined differently by various groups,
in this context it will include those persons aged 65 and older. In 1990, the
elderly comprised approximately eleven percent (11%) of the Region's total
population compared to 8.8% in 1980.
The housing concerns of the elderly involve affordability (for those on fixed
incomes) and the presence of specialized services or assistance. The provision of
these services allows elderly persons to age-in-place, or remain in their own
homes. When in-house services are no longer sufficient, some elderly persons
are forced to move to nursing homes or assisted care facilities where they can
receive additional care and assistance.
As advances in health care continue, people are living longer. This trend is
expected to continue. Due to this age group's increased need for service and
assistance, the demand for specialized services and assisted care facilities will
increase as well.
Homeless: Though the data collection processes have markedly improved over
the past few years, unfortunately, the level of reliability of data concerning the
homeless population in the Region is limited due to the difficulty of accessing
the homeless, obtaining background information from the homeless, and the
very high probability of double counting when information is based upon
monthly or annual reports provided by agencies serving the homeless.
Two basic groups of people find themselves homeless. The first category
comprises those persons or families who simply cannot afford housing. This
may be due to a situation such as losing one's job or an illness in the family.
For this group, an increase in the supply of affordable housing along with
homelessness prevention measures such as temporary assistance with rent and
utility payments may prevent them from becoming homeless.
People in the second group often have severe problems other than affordability.
Their problems often involve addictions to drugs or alcohol and/or mental or
physical health problems which make it difficult for them to hold jobs to pay for
adequate housing. Thus the needs of this group extend beyond shelter. This
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group also requires assistance in locating and enrolling in treatment, education,
and job-training programs.
Within the Region, homeless facilities and services are concentrated in the
Escambia/Pensacola area; Okaloosa/Fort Walton Beach area; and Bay/City of
Panama City area.
The State of Florida 1994 Comprehensive Homeless Assistance Plan estimated a
total of 1,825 homeless persons within HRS District I (Escambia, Santa Rosa,
Okaloosa and Walton Counties). According to the Fifth Annual Report to the
Governor and Legislature regarding Homeless Conditions in Florida, dated
February 1, 1994, Bay County has estimated the daily homeless population at
448.
Sheltered Homeless. Within the Region, the sheltered homeless are
primarily families or non-traditional homeless individuals. As stated in the
1995-2000 Consolidated Plan for the Escambia County Consortium, the
identified needs of the sheltered homeless include the continued availability of
emergency short-term shelter for individuals and families; the expanded
availability of long-term transitional and permanent housing with priority for
families; increased health care services; childcare, job training and placement,
counseling and related services for all homeless; expanded availability of
outpatient and residential drug and alcohol treatment services for the indigent
and uninsured; the continued availability and expansion of facilities providing
secure shelter for victims of domestic violence and child abuse; support services
and health care targeting the needs of sheltered homeless afflicted with AIDS;
and increased availability of low-cost housing, especially rental, primarily for
homeless families. Other homeless needs, as identified from the City of Fort
Walton Beach Consolidated Plan for 1995-2000 and the City of Panama City
Five-Year Consolidated Plan include the need for case management to help
homeless persons obtain a range of essential services, including shelter, food,
clothing, housing, employment and job training, health care, substance abuse
and mental health treatment, transportation, child care, and emergency
financial assistance.
The Panama City Homeless Coalition also identifies supported housing
assistance to include funds for rent subsidies, rent supplements, security
deposits, utility connections, mortgage assistance, transitional housing and
housing for special needs populations.
Unsheltered Homeless. Alcohol and/or drug addiction, moderate to severe
mental illness, poor health resulting in susceptibility to various illnesses, below
poverty-level income, and an extreme level of independence are commonplace
with the unsheltered homeless. As a result of the trend toward reduced
services and deinstitutionalization of the mentally ill, the severe mentally ill
are heavily represented within the unsheltered population.
The Florida Department of health and Rehabilitative Services continues to
develop the community-based resources required for the unsheltered homeless
to live independently. The chronic homeless require a significant level of effort
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to enable their movement to normal living arrangements. Unsheltered
homeless needs include the continued availability of emergency or other shortterm (1-30 day) shelter; accessibility to drug and alcohol counseling and
treatment facilities and services; supportive housing and transitional (halfway
house) living arrangements for homeless persons suffering from mental illness;
counseling and outreach services for unsheltered homeless youth (runaways
and abuse victims); and access to health care screening, non-emergency
treatment and related services.
Needs of Persons Threatened with Homelessness. Many of the families on
the verge of homelessness include those on Section 8 Rental Assistance and
Public Housing waiting lists, due to interim, non-permanent housing
arrangements while waiting for long-term assistance. These families are
characteristically found to be living with friends or family (creating
overcrowded conditions), in temporary shelters, or in severely substandard
housing units.
Those persons threatened with homelessness often may require only one time
assistance while others may access various community resources and agencies
for more long-term assistance. This category is more often a single-parent,
female headed family or a two-parent family with children who are living on
poverty level or otherwise unstable income, and who are generally paying more
than thirty percent (30%) of monthly income for housing. Community resources
to assist these families include rental payments and utility assistance to avoid
impending eviction and/or loss of utility service.
Due to the extremely limited income of such families, it is common for an
emergency situation to arise merely as a result of a child or parent sickness, an
unanticipated car repair, or job injury or loss. These families are in need of
affordable housing, primarily in the rental category. Needs of these families
threatened with homelessness include emergency assistance for rent and
utilities; increased availability of subsidized or below market rental units, and
housing rehabilitation assistance to eliminate substandard housing units.
Large-family households: Large-family households are defined as those
households with five or more people. The housing concern for this group is
finding units that are large enough to accommodate the household while also
remaining affordable. The 1990 Census reports that a total of 22,828 or nine
percent (9%) of the total occupied housing units in the Region are occupied by
large-family households. Unfortunately, data on the number of large-family
households falling below the poverty level are not provided in the Census.
Female-headed households: Affordability is an important issue for this
group due to the reduced earning power of female-headed households. Of the
29,206 total female-headed households with children, 11,313 or approximately
thirty-nine percent (39%) have incomes below the poverty level. The Region's
percentage of female-headed households is expected to steadily increase.
Housing as an Issue of Regional Concern
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The number of persons on the Region's housing assistance waiting lists
demonstrates the acute need for housing rehabilitation/reconstruction
activities. Also, based upon many of the counties within the Region providing
First-time Homebuyer opportunities, there is an acute shortage of affordable
housing units for those persons/families falling within the very-low, low, and
moderate-income levels. The only affordable housing units for first-time
homebuyers are existing, older homes within established neighborhoods.
Unfortunately, with inspection of these homes, many of these older homes
contain numerous building code violations and may even be deemed
substandard.
As more and more development occurs, available land for affordable housing
development diminishes. Within the coastal counties of the Region, affordable
housing development can only occur in the rural portions of Escambia, Santa
Rosa, Okaloosa, Walton, and Bay Counties. Very little development is
occurring within Holmes and Washington Counties. With the only alternative
being the provision of affordable housing outside of the Census designated
urban areas, local governments face the possibility of inconsistency with
adopted Comprehensive Plans which do not allow for "urban sprawl" or "leapfrog development."
Land Use Issues
The Local Government Comprehensive Planning and Land Development
Regulation Act (Chapter 163, Part II, Florida Statutes) requires local
governments to ensure the provision of adequate and affordable housing for
existing residents and anticipated population growth. A number of other issues
need to be considered beyond ensuring that land is available for all income
groups within the Region.
Location of Housing in Close Proximity to Shopping and Services:
Accessibility to shopping, schools and recreational facilities is a critical issue,
particularly for individuals with mobility limitations due to age, income or
disability.
Accessibility to Places of Employment: A problem faced by many working
persons is the inaccessibility of affordable housing to their place of employment.
This can occur when a jurisdiction's housing market fails to supply its fair share
of housing affordable to those persons living or working in the community. An
imbalance in the location of jobs and housing generates higher transportation
costs in terms of time and money for workers facing long commutes, isolates
inner city residents and others without automobiles from new employment
opportunities, increases traffic congestion, and artificially inflates the value of
housing located near employment centers. The failure to conduct land use
planning that is sensitive to affordable housing in the areas of density, jobshousing balance, and urban mobility is directly contributing to the growing
affordable housing problem within the Region.
Cost, Availability and Suitability of Land for Development: The
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suitability of land for development involves both the physical aspects of land
and fiscal aspects of development. Physical aspects of land include soil type,
slope, flora/fauna and the presence or absence of wetlands and floodplains. The
fiscal aspects of development relate to suitability in the sense that affordable
housing located in certain areas, such as coastal areas, is more apt to be
damaged or destroyed due to natural disasters.
Hurricane Erin and Opal demonstrated vulnerability of development on the
southern areas of coastal barriers. Santa Rosa Island, Holiday Isle, and coastal
areas of Walton and Bay counties received extensive damage to the built
environment. As redevelopment occurs in these areas, more stringent building
requirements should be enforced in order to minimize damage caused by future
Gulf storms.
Availability of Infrastructure: The availability of infrastructure, such as
potable water, sewage treatment, and roads is a major factor affecting the cost,
feasibility and safety of housing in the long or short range. Infill areas with
existing infrastructure can represent an opportunity to develop affordable
housing at lower costs than areas without available infrastructure.
NIMBYism: (Not In My Back Yard) Even in locations where most citizens and
officials agree that more affordable housing is needed, development efforts may
be unpopular due to the "Not In My Back Yard" syndrome. Existing residents
and sometimes businesses may perceive that affordable housing will result in
lower property values, increased crime, increased traffic congestion, and a need
for increased infrastructure. This misperception is usually caused by confusing
affordable housing with public housing or tenements. Affordable housing is the
provision of a variety of units geared toward a mix of income levels. However,
means of distinguishing legitimate concerns from NIMBY claims are needed.
One strategy that may reduce NIMBY concerns is the redevelopment of existing
neighborhoods. In many cases, the neighborhoods are already located in close
proximity to existing shopping, services and employment centers; the land is
suitable for development; infrastructure is available; and development is
compatible with existing neighborhoods.
According to the Department of State (Draft SRPP Review Guidelines, 1/24/95),
demolition of residential units and relocation of occupants in lieu of
rehabilitation of older housing stock disrupts families' sense of place and pride
in ownership. Redevelopment of existing neighborhoods would preserve and
enhance a sense of place and pride while promoting historic preservation.
Impact of Land Development Regulations
Local government regulations limiting densities, types of housing permitted
(accessory units, restrictions of manufactured housing and mobile homes, single
room occupancy, transitional housing, etc.), distribution of affordable housing
(scattered site, inclusionary housing), and the design and construction of
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buildings (e.g., building codes) can dramatically affect the cost of housing.
Housing Market Factors
Another critical issue is housing market factors which affect both the location of
affordable housing across jurisdictions and the ability of affordable housing
programs to succeed.
Regional Efforts to Meet Housing Need
The shortage of affordable housing can be attributed in part to rising land costs,
construction and financing costs, a trend of reduced federal funding for
affordable housing production, strict credit underwriting criteria, and more
restrictive land use regulations. Ensuring the existence of adequate stocks of
affordable, sanitary and safe housing to accommodate the Region's population is
a major challenge. The housing problems facing the Region include the need for
continued housing production for both rental and homeownership to keep pace
with the growing population, the need to replace or rehabilitate physically
substandard housing, the need to produce housing at affordable levels, and the
need to address the special problems of sub-groups of the population, including
the homeless, disabled, large-family households, and female-headed households
with children.
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GOALS AND POLICIES
PRIORITY 1:
Providing Affordable Housing
GOAL 1: Provide for adequate and affordable housing for the existing population,
anticipated population growth and households with special housing needs,
including low and moderate income households, the elderly, the handicapped and
rural households.
Indicators:
! Change in percentage of very low and low income households spending more than 30% of
their income on housing.
! Change in number of substandard housing units in the Region.
! Change in numbers of households on housing assistance waiting lists.
Policy 1.1: Provide technical assistance to assist the public and private sector
to recycle older housing stock through rehabilitation and community
redevelopment of existing residential neighborhoods and rural dwellings.
Policy 1.2: Pursue federal and/or state funds to use for rehabilitation of
substandard housing units.
Policy 1.3: Public and private redevelopment projects in the region should
develop procedures for the relocation of residents displaced by such projects.
The procedure shall require the following:
! Replacement housing which would be defined as "standard" and
"affordable" to the displaced.
! Locations not less desirable than the neighborhoods from which
displacement occurred.
! Development of strategies for mitigating displacement.
Policy 1.4: Rather than destroying and clearing homes that could provide
affordable housing, sites for relocating such homes should be designated in local
comprehensive plans and DRI assessments as part of overall project reviews.
Policy 1.5: Development and maintenance of local land uses and land
development regulations that maximize the opportunities for low and moderate
income housing.
Policy 1.6: Adoption and enforcement of minimum housing safety codes.
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Policy 1.7: Provision of incentives to developers to construct housing units for
very-low, low- and moderate-income groups and the elderly.
Policy 1.8: Use public and private housing counseling services to aid families
in finding affordable housing, educate persons in home maintenance, and assist
homeowners in maintaining their homes.
Policy 1.9: Local governments, areawide housing authorities, developers, and
all agencies addressing housing needs in the region, should adopt and
implement the concept of dispersal in the development of future low and
moderate-income housing units and in redevelopment of existing residential
neighborhoods.
Policy 1.10: Support economic development activities which could increase
median family income in the Region.
Policy 1.11: Local housing programs should address the rehabilitation of
owner occupied substandard housing.
Policy 1.12: Consider the provision of downpayment and closing cost
assistance to qualified applicants seeking home ownership.
Policy 1.13: The WFRPC should provide information to local governments
regarding public/private processes for leveraging dollars available for housing
programs.
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PRIORITY 2:
Location of Affordable Housing
GOAL 1: Provide locations for affordable housing within areas assessible to
employment and infrastructure.
Indicators:
! Change in acreage designated for residential development near employment centers.
Policy 1.1: Local comprehensive plans and development reviews should
include criteria for determining jobs- housing- mobility-balance.
Policy 1.2: Local government comprehensive plans shall provide for a variety
of housing types and a range of densities.
Policy 1.3: Local government comprehensive plans should address the
provision of group homes to ensure zoning ordinances do not exclude these
group homes from establishment within residential neighborhoods.
Policy 1.4: Local governments shall revise their zoning ordinances in
compliance with Chapter 419, Florida Statutes.
Policy 1.5: Local governments and private housing industry should work with
lending institutions to explore the use of various financing strategies that can
help to provide funds for affordable housing and development.
Policy 1.6: Provide incentives for affordable housing to locate in close
proximity to central employment areas through land use designations, densities
and/or through the establishment of urban service and transitional boundaries.
Reviews of Developments of Regional Impact and Florida Quality Development
projects shall consider provisions for affordable housing opportunities.
Policy 1.7: Adequate infrastructure shall be provided and maintained to
accommodate various affordable settings. Capital improvement expenditures
shall provide for services that maintain and expand affordable housing in a
planned and compact manner, avoiding urban sprawl.
Policy 1.8: Local governments should review and determine the impact on low
and moderate income housing needs in all land development decisions.
Policy 1.9: Local governments should explore zero-lot line and multi-story
development where residential land acreage is already limited in order to
provide housing opportunities for low and moderate income groups.
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PRIORITY 3:
Removal of Unnecessary Regulations
GOAL 1: Streamline regulatory practices to reduce the cost of housing without
destabilizing neighborhoods or the structural quality of housing.
Indicators:
! Change in local practices for review and permitting of new development and
redevelopment.
! Change in state and federal agency review time.
Policy 1.1: Local governments, through the land development regulation
process, shall revise existing land development codes or adopt new land
development codes which eliminate unnecessary regulatory practices that add
to the cost of housing.
Policy 1.2: When requested, the West Florida Regional Planning Council shall
provide technical assistance to local governments in the preparation of the land
development regulations which expedite administrative and processing
procedures.
Policy 1.3: Local governments should provide incentives for in-fill housing
development through re-evaluation of zoning, land-use and development
practices.
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Sources
1990 Census of Population and Housing; Summary Tape File 3A; U.S. Dept. of
Commerce; Bureau of the Census; CD90-3A-12
1990 Census of Housing; General Housing Characteristics; Florida
1990 Census of Housing; Detailed Housing Characteristics; Florida
1990 Census of Population; Social and Economic Characteristics; Florida
1980 Census of General Social and Economic Characteristics; Florida
Department of State; Draft SRPP Guidelines, 1/24/95
Florida Housing Finance Agency; Chapter 9I-37; Florida Administrative Code;
State Housing Initiatives Partnership Program
Department of Community Affairs; "Catalyst Program"; Special Run of 1990
Census of West Florida Region for U.S. Department of Housing and Urban
Development.
1995-2000 Consolidated Plan for the Escambia County, Florida Consortium,
April 1995.
The City of Fort Walton Beach Consolidated Plan for 1995-2000, August 1995.
The City of Panama City Consolidated Plan for 1995-2000.
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II. ECONOMIC DEVELOPMENT
Acronyms
FIRE
Finance, Insurance, Real Estate
BEBR
Bureau of Economic and Business Research
MSA
Metropolitan Statistical Areas
NAS
Naval Air Station
CSS
Coastal Systems Station
IFAS
Institute of Food and Agricultural Service
Contents ! Economic Development
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Labor Force . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Table 1: Labor Force Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
2
Table 2: Non-Agricultural Employment . . . . . . . . . . . . . . . . . . . . . . . 3
Regional Growth Projection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Table 3: County & Regional Employment Forecasts . . . . . . . . . . . . . 4
Table 4: County & Regional Forecasts Annual Percentage Change . 5
Major Economic Sectors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Development and Recruiting Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . .
8
Construction Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
9
Per Capita Income & Taxable Sales . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Table 5: Per Capita Income . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Table 6: Taxable Sales Per County . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Table 7: State Parks & Recreation Area Attendance . . . . . . . . . . . . 13
Table 8: Visits to Gulf Island National Seashore . . . . . . . . . . . . . . . 14
Table 9: Visits to National Museum of Naval Aviation . . . . . . . . . . 14
Table 10: Annual Change in Gross Sales, Taxable Sales
and Uses Tax and Transient Rentals . . . . . . . . . . . . . . . . . . 15
Table 11: Tourism/Recreation Taxable Sales . . . . . . . . . . . . . . . . . . 21
Agribusiness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Table 12: Cash Receipts for Agricultural Marketing (1992) . . . . . . . 23
Table 13: Farms & Farm Land in the West Florida Region . . . . . . . 23
Military Influence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Goals and Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Sources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
SRPP ! Economic Development ! Section II
TRENDS & CONDITIONS STATEMENT ! GOALS & POLICIES
ECONOMIC DEVELOPMENT
Introduction
The quality of the West Florida Region's future will, in great part, depend on
the ability to maintain a healthy economy. Recently, there has been a shift
from military dependent businesses to clean, high-tech manufacturing. But,
with slow growth of high-tech industries due to the location and proximity to
technological areas and populations, attention is turning to foreign markets.
Through an annual trade show and other planned activities, the World Trade
Council of Northwest Florida is encouraging expanded exporting from the
Region. Tourism is a key industry for the five counties in the Region (Bay,
Walton, Okaloosa, Santa Rosa, Escambia). The demand for health care and
related industries rises annually with the increase in older residents (65+).
The West Florida Region is in transition. It is emerging from a primarily
rural setting to an urban one. Similar to the rest of the State, the majority of
the Region's population is on the coastline. The beautiful powder white
sands and crystal blue water draw visitors by the hundreds of thousands
annually. But, the slower pace of living makes the Region unique. Although
the Region's population is growing, there is still a small town atmosphere to
the area. Just north of the major urban centers (Panama City, Fort Walton
Beach, and Pensacola) are small towns and villages that give a uniquie
character to this part of Florida. The advantages of living in the West
Florida Region are intrinsic: the way of life, the cost of living, and the
atmosphere.
The military is an integral part of the economy of the Region. From Panama
City to Pensacola, the presence of the United States Armed Services is
apparent. The military personnel contribute greatly to the community both
economically and through their volunteerism. Nowhere else in Florida will
one find such a concentration of military involvement.
The Region's Labor Force
Employment and unemployment rates are excellent measurements for
economic trends within a specific area. Seasonal employment, companies
moving to foreign countries, government downsizing, and low tourism are a
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-1
few of the factors that effect employment in West Florida. The average
unemployment rate for the Region in 1995 was 5.6%. This was down from
the previous year's 6.3% average. This means that roughly six (6) out of one
hundred (100) people actively seeking employment in the Region were
without a job at one time. Table 1 shows the Civilian Labor Force for the
West Florida Region. The table shows the unemployment rates for the
individual counties within the Region. These rates vary from 5.0% in Santa
Rosa County to 7.6% in Bay and Washington counties. These rate
fluctuations account for jobs being lost or created within the counties. The
rates are excellent indicators for measuring trends in economic development.
Table 1
Labor Force Status: 1995
County
Labor
Force
Employed
Jobless
Jobless Rate
Bay
65,531
60,551
4,890
7.6%
Escambia
125,443
118,637
6,806
5.4%
Holmes
6,936
6,453
483
7.0%
Okaloosa
72,926
69,039
3,887
5.3%
Santa Rosa
43,241
41.064
2,117
5.0%
Walton
15,247
14,425
822
5.4%
Wash-ington
8,931
8,255
676
7.6%
Region
388,255
318,424
19,831
5.6%
% of State
4.8%
4.9%
4.7%
N/M
Florida
6,978,327
6,569,555
418,772
6.0%
Source: Florida Trend: Florida Trend Economic Yearbook, April 1996
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-2
Table 2
Non-Agricultural Employment
County
(in thousands)
1993
1995
2000
2005
Bay
55.5897
58.8
65.706
72.136
Escambia-Santa
Rosa
136.139
144.481
162.185
178.555
Okaloosa
59.705
66.896
75.391
86.064
Holmes
3.09057
3.334
3.8493
3.59235
Walton
8.47188
9.202
9.99911
11.127
Washington
4.54081
5.436
5.79801
6.04114
5,567.360
5,967.80
6,787.840
7,589.360
Florida
Source: Florida Long-Term Economic Forecast, June 1995, Bureau of Economic and Business
Research, Gainesville, Florida
Labor Force Status can be broken down into job classifications such as
agricultural and non-agricultural (or non-farm) jobs. Table 2 shows the
number of available non-agricultural jobs in the West Florida Region. It also
shows projections for five (5) and ten (10) years into the future. Nonagricultural employment includes such industries as manufacturing, mining,
construction, wholesale trade, retail trade, finance, insurance, and real
estate (F.I.R.E), transportation/ communications and public utilities,
services, and other private industries. These account for the majority of
positions available in the Region except for military. These positions could
be seasonal (retail trade) or dependent upon availability (mining). The
majority of positions found in the West Florida Region are retail and service
related.
Regional Industrial and Commercial Growth Projection
Tables 3 and 4 show civilian nonagricultural employment growth for the
seven (7) counties in the Region and the Region as a whole. The year 1990 is
included in order to show trends.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-3
Table 3
County and Regional Employment Forecasts 1990-2005 (In thousands of jobs)
Construc
tion
Manufact
uring
Transportation
/Public
Utilities
Whole
sale
Trade
Retail
Trade
FIRE*
Services
Govern
ment
1990
3.0
3.6
2.3
1.8
14.4
2.7
12.9
11.4
1995
3.4
3.0
2.4
2.2
16.0
3.2
16.1
12.8
2000
3.8
2.9
2.7
2.3
19.5
3.6
19.4
14.1
2005
4.0
2.9
2.9
2.4
20.9
4.0
22.6
15.1
1990
6.6
9.6
5.8
4.6
23.2
5.0
30.2
26.8
1995
7.9
8.8
5.3
5.2
24.8
5.1
38.7
25.6
2000
8.9
8.3
6.0
5.5
29.2
5.4
46.4
24.3
2005
9.4
7.5
6.6
5.9
32.0
5.7
54.3
25.7
1990
0.1
0.8
0.0
0.0
0.5
0.1
0.6
1.1
1995
0.1
0.6
0.1
0.1
0.5
0.1
0.7
1.5
2000
0.1
0.4
0.0
0.1
0.6
0.1
0.8
1.5
2005
0.1
0.3
0.0
0.1
0.7
0.1
1.0
1.5
1990
3.1
4.9
1.9
1.0
13.7
2.7
14.4
13.6
1995
3.7
3.8
1.9
1.1
16.0
3.4
19.3
14.3
2000
4.3
3.6
2.1
1.4
18.0
4.0
23.0
16.3
2005
4.6
4.2
2.4
1.6
19.7
4.3
27.2
17.5
1990
1.2
2.3
0.9
0.4
3.8
0.6
4.4
4.3
1995
1.5
2.4
1.0
0.5
4.5
0.7
6.8
4.4
2000
1.7
2.7
1.1
0.6
5.1
0.8
7.9
5.7
2005
1.9
3.0
1.2
0.7
6.2
0.9
8.9
6.5
1990
0.3
1.3
0.4
0.1
1.7
0.3
2.1
1.6
1995
0.3
1.3
0.4
0.2
2.4
0.3
2.6
2.2
2000
0.4
1.3
0.5
0.2
2.9
0.4
3.2
2.3
2005
0.4
1.6
0.5
0.2
3.3
0.4
3.8
2.5
1990
ND
ND
0.2
0.1
0.6
0.0
0.7
1.6
1995
ND
ND
0.3
0.1
0.7
0.1
0.8
2.1
2000
ND
ND
0.3
0.1
0.7
0.1
1.0
2.2
2005
ND
ND
0.3
0.1
0.7
0.1
1.1
2.4
1990
ND
ND
11.6
8.2
57.9
11.3
65.3
60.4
1995
ND
ND
11.3
9.4
64.9
12.8
85.1
62.8
2000
ND
ND
12.8
10.2
76.0
14.3
101.7
66.3
2005
ND
ND
13.9
11.0
83.5
15.4
118.8
71.1
Bay
Escambia
Holmes
Okaloosa
Santa Rosa
Walton
Washington
Region
ND= Not Disclosable *Finance, Insurance, and Real Estate (FIRE)
Source: Bureau of Economic and Business Research, University of Florida Florida Long-Term Forecast: Counties
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-4
Table 4
County and Regional Forecasts Annual Percentage Change 1990-2005
Average
Annual %
Change
Construction
Manufact
uring
Transpor
tation/
Public
Utilities
Wholesale
Trade
Retail
Trade
FIRE
*
Services
Govern
ment
1990-1995
2.3
-3.4
1.1
3.7
2.1
3.4
4.6
2.3
1995-2000
2.4
-1.1
2.1
1.7
4.0
2.4
3.8
2.1
2000-2005
1.3
-0.1
1.4
0.7
1.4
2.2
3.1
1.3
1990-1995
3.6
-1.7
-1.8
2.4
1.3
0.4
5.1
-0.9
1995-2000
2.4
-1.2
2.6
1.3
3.3
1.5
3.7
-1.0
2000-2005
1.1
-2.1
2.0
1.3
1.9
0.8
3.2
1.1
6.0
Bay
Escambia
Holmes
1990-1995
-3.6
-6.2
7.7
6.4
0.9
-0.3
3.2
1995-2000
0.1
-5.1
-5.3
1.2
2.1
0.7
4.2
0.0
2000-2005
-0.3
-4.7
-2.7
2.2
2.0
0.3
3.1
0.9
1990-1995
3.9
-4.8
-0.4
2.7
3.1
4.9
6.1
1.1
1995-2000
2.7
-1.1
2.7
3.7
2.4
3.1
3.5
2.6
2000-2005
1.5
2.8
2.1
2.4
1.8
1.4
3.4
1.5
1990-1995
4.8
0.6
1.1
4.1
3.4
3.2
9.2
0.6
1995-2000
3.0
2.4
2.7
3.4
2.9
3.4
2.9
5.1
2000-2005
2.3
2.2
0.3
3.0
3.8
2.7
2.5
2.7
Okaloosa
Santa Rosa
Walton
1990-1995
4.6
0.3
-1.0
2.0
7.8
3.6
4.0
5.9
1995-2000
1.0
0.8
2.6
1.4
3.8
3.2
4.4
0.8
2000-2005
2.1
3.5
2.4
0.9
2.0
1.0
3.2
2.0
1990-1995
ND
ND
4.0
-2.4
2.1
8.3
4.3
5.8
1995-2000
ND
ND
2.5
-1.0
0.0
0.3
3.5
1.4
2000-2005
ND
ND
1.4
-2.0
1.2
-0.5
2.7
1.4
Washington
Region
1990-1995
ND
ND
-0.6
2.8
2.3
2.5
5.4
0.8
1995-2000
ND
ND
2.5
1.8
3.2
2.3
3.6
1.1
2000-2005
ND
ND
1.7
1.4
1.9
1.4
3.1
1.4
ND= Not Disclosable
*Finance, Insurance, and Real Estate (FIRE)
Source: Bureau of Economic and Business Research, University of Florida, Florida Long-Tern Forecast: Counties
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-5
It seems that the predictions for the state can be applied to the course of the Region.
Tables 3 and 4 show that the Trade and Service sectors will show steady growth over the
10 year projection period. In Okaloosa, Santa Rosa and Walton counties, there are
forecasts for increases in such sectors as construction and manufacturing, whereas in the
other counties these sectors show deficits [Bay, Escambia, Holmes, Okaloosa
(manufacturing only), and Washington]. Government and Finance, Insurance and Real
Estate (FIRE) show steady increases throughout the Region.
Major Economic Sectors
1.
Construction showed progressive increases in each county for the
ten year period. The greatest increases were in Bay, Escambia,
Okaloosa, Santa Rosa counties. There was decline in Holmes and
Washington counties. The predictions for the state are that
construction will slow down due to decreases in population growth
and the decline of household formations. The actual regional growth
figures are non disclosable because of their affect on individual
businesses.
2.
Manufacturing showed little increase for the region. Currently,
manufacturing makes up 6% (1993) of the total working population of
full-time and part-time employment. According to state predictions it
will be the second slowest growing industry. The larger counties
(Bay, Escambia, Okaloosa, and Santa Rosa) show significant decline
in the amount of their workforce that is involved in manufacturing.
3.
Transportation/ Public Utilities accounts for 4% (1993) of the total
full-time and part-time employment in the region. In individual
counties it makes up between 2% (Okaloosa) and 6% (Washington).
Slow growth is shown in this sector because of the advent of labor
saving technology. It is speculated that the greatest growth in this
sector will be in the transportation industry (4 out of 5 jobs).
4.
Wholesale Trade provides for 3% of the total employment in the
Region and contributes about $282,816,000 (1993) in personal income
to the Region. This sector has remained the same (3%) from 1990 to
1993. Not much growth has been predicted for this sector from 1990
to 2005. The introduction of computer ordering and reordering will
account for the reduction in labor force over the next ten years.
5.
Retail Trade is an industry driven by tourism. It is second only to
Services in annual growth. It accounts for 20% of the full-time and
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-6
part-time jobs in the Region (1990-1993). Retail Trade accounts for
8% of the Regional personal income (1990-1993). In 1993, it
contributed $960,265,000 in personal income to the Region. Most of
the employment is at eating and drinking establishments and the
tourist oriented souvenir shops. It is projected to increase in number
of employees over the next ten years. More than 83 percent of new
jobs in trade will be in retail trade.
6.
Finance, Insurance, and Real Estate (FIRE) sector accounted for
6% of the total Regional employment in 1993 tying with
manufacturing. FIRE accounted for 3% of the total personal income
from 1990 to 1993. In 1993, it contributed $325,385,000 in total
personal income to the Region. According to the Regional Economic
Impact Study (1969-1993) the sector provided 20,387 jobs in 1993. It
is predicted for the state that this sector will have slow growth
because of consolidation and competition. Assuming the trend is the
same all around the state, the sector will probably have a sluggish
growth rate in the Region as well.
7.
Services continues to be the largest employer in the Region as well
as the state. It accounted for 101,508 jobs (28%) in West Florida and
$2,076,129,000 (17%) in personal income in 1993 (REIS, 1969-1993).
Tourism and inmigration have contributed to the success of the
service industries in the Region and throughout the state. Services
provide a wide variety of employment and are particularly appealing
to students and youth desiring part-time and entry level positions. In
addition, service industries provide numerous jobs and supplemental
income for retirees. Business services, medical and health services
are among the rapidly growing industries within this sector.
According to the Bureau of Economic and Business Research (BEBR),
this sector in our Region will increase by 15,000-20,000 jobs every five
(5) years (Table 3).
8.
Government and governmental services-This sector includes local,
state, and federal (civilian) government and military employment.
Government provides over 90,000 (22%) jobs in the Region (1993)
(BEBR). The personal income from this sector went from roughly $2.4
million in 1990 to roughly $2.7 million in 1993 in this Region.
Government is the second largest West Florida employer. In a Region
that has experienced tremendous population growth in the past two
decades, government has become a major employment sector. To
meet the greater demands of a rapidly growing population, more
personnel are needed to administer increased services such as
infrastructure, law enforcement, fire, health, solid waste and
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-7
associated services. The county with the largest government
employment is Escambia followed in order by Okaloosa, Bay, Santa
Rosa, Walton, Washington, and Holmes. The forecast for the
government sector shows steady growth over the next decade. The
prediction for the state is that government jobs in the counties will be
at the non-federal level with many in the field of education.
Development and Recruiting Activities
In Pensacola, Network USA, a nationwide paging company, moved into the
long-empty Theisen building, an 80 year-old landmark. Network USA's
growth from 13 people five years ago to more than 200 today ranks the
company as one of the city's most dynamic (Florida Trend, April 1994). In
February of 1994, another telecommunications company, New Jersey-based
First Data Corporation located a 1,000-employee expansion of its
Teleservices subsidiary, a long-distance provider for MCI, in Pensacola. This
may be ranked as the biggest new business addition in 40-years. In Lynn
Haven (Bay County), the Student Loan Marketing Association became the
largest private employer when it expanded to 632 employees. In Washington
County, a Wal-Mart supercenter was built mid-year in Chipley. The 200employee store is one of the two new large employers to open this year in
Washington County; the other is the 350-employee state prison. Together
these two employers will increase county jobs by 6.7% (Florida Trend, April
1994). Holmes County is also expecting two new industries that may provide
as many as 150 jobs. Holmes has announced plans to manufacture truckmounted log-loading machinery, and Wolf Systems has signaled its intention
to locate a sawmill in the county (Ibid).
For the Western Panhandle, 1990 marked a change. A turn around occurred
when the Bay County Chamber of Commerce reported that in 1988 and 1989
the county recorded its best two years ever in new industrial jobs: 360. The
Chamber officials said that once the new companies reached their optimum
size they would provide an additional 790 jobs. Previously, Bay County
recorded unemployment rates ranging from 8.9% to 9.4%, frequently the
highest in the state. Pensacola, in Escambia County, offered tax
inducements to lure two new job providers.
Starting in 1990, a different type of industry was recruited by the counties in
the Region. Business leaders aggressively pursued Florida's prison system
for new jobs. The Town of Century, in Escambia County, gained a $12
million 900 bed facility that provided 275 jobs. DeFuniak Springs in Walton
County was chosen for a similar facility in 1988. Bonifay, in Holmes County,
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-8
had a new facility operational by 1990. Despite this new growth, Pensacola
was the only metropolitan area in the Region to create more new jobs at a
faster rate than the previous year, according to the Florida Labor
Department. The job growth increased 2.1%, up from a 1.1% improvement in
1988, which was the state's lowest growth rate (Florida Trend, April 1990).
Bay County netted a 1% gain, slightly below its 1.5% gain in 1988. In
Okaloosa County, job growth slowed from previous year's 3.6% to a 3% in
1989. This was the strongest in the Region. Service sector jobs accounted for
most of the gains in the Region (Ibid).
Construction Activities
Construction represented 8% of the Region's workforce in 1990. Between
1970 and 1990, the number of persons employed in the construction sector
increased 92.9% although total employment declined 0.7 percent.
Industries in this sector include building construction, heavy construction,
and special trade contractors. Building construction offers above-average
wages, but declined by 25% during the 1980s. Special trade contractors,
including plumbers, painters, and carpenters offer below-average wages, but
increased 43%.
Construction is usually strongly affected by current national economic
climate such as monetary policy, interest rate, economic outlook and tax
policy. During the last ten years, increasing construction employment was
due to the tourist boom. Inventories of overbuilt housing have declined and
an upturn is now noticeable.
In 1993, construction turned out to be one of the year's strongest indicators
of a strengthening economy. Building permit values doubled in Panama City
Beach to $23 million. A housing boom in Santa Rosa County boosted permit
values 97%, while Escambia County experienced a 38% surge, taking
momentum from the new $16 million Pensacola Christian School, the
county's largest construction project in five years (Ibid). In spite of military
downsizing, military construction is boosting area construction. In 1991,
construction totaled $43.4 million; $41.5 million in 1992; $16.6 million in
1993; and a projected $58.2 million in 1994.
This is in comparison to 1990 when construction was weak at the beginning
of this new decade. Construction was mainly sustained by school and local
government projects, plus sparse industrial expansion. Housing construction
had been weak for three (3) years, but began to turn the corner in Escambia
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-9
County, where 1989 building permit figures were 6% above 1988 levels.
Housing was stronger in some rural counties; for example, Santa Rosa's new
construction grew 11% in 1989, partly because of its ability to offer lowercost home sites (Florida Trend, April 1990).
Per Capita Income and Taxable Sales
The personal per capita income in the Region shows incremental
improvement and is forecasted to grow even higher. Table 5 shows the per
capita income for the counties within the Region ad compared to the State
from 1993 to 1995 with projections for 2000 and 2005. BEBR combines
Escambia and Santa Rosa to reflect the counties as an MSA.
Table 5
Per Capita Income ($)
2000
2005
18,612
23,046
29,197
17,378
18,175
22,991
29,567
18,425
19,032
20,036
25,023
31,802
Holmes
12,435
12,934
13,668
17,466
23,028
Walton
13,902
14,424
15,074
18,919
24,267
Washington
13,370
13,825
15,326
18,884
24,166
Florida
20,802
Not Available
22,534
28,823
36,882
County
1993
1994
1995
Bay
17,164
17,799
Escambia-Santa Rosa
16,839
Okaloosa
Source: Florida Long-Term Economic Forecast, June 1995, Bureau of Economic
and Business Research, Gainesville, Florida
On average, the counties within the Region have been below the State
average per capita income and are projected to remain the same. The larger
counties such as Bay, Okaloosa, and Escambia-Santa Rosa stay close in
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-10
comparison to the State averages. The smaller counties, such as Washington
in 1993, are nearly 64% below the State average. This may be because the
smaller counties are more rural and agricultural compared to counties such
as Orange, Dade, and Broward in south and central Florida.
Another indicator of economic trends in the Region is the increase in taxable
sales. The sales tax comes from purchases by residents and tourists that
visit the Region. According to Florida Trend magazine the taxable sales per
county are as follows:
Table 6
Taxable Sales Per County
County (in
millions)
1992
1993*
Percent
Change
'92-'93
Percent
Avg. Change
'88-'93
Projections
1998
Bay
2003
$1,327.5
$1,413.9
6.5
5.2
$1,796.5
$2,325.5
2,237.4
2,386.1
6.7
4.4
2,907.7
3,642.4
48.8
43.5
-10.8
1.2
67.1
84.6
1,291.3
1,431.3
10.8
7.7
1,898.2
2,541.6
Santa Rosa
363.7
391.6
7.7
8.3
512.4
686.9
Walton
247.0
277.7
12.4
13.7
356.9
476.3
50.4
46.3
-8.1
4.4
63.2
82.3
5,566.2
5,990.5
7.6
5.9
7,601.9
9,839.6
4.3
4.3
4.2
4.1
$129,092
$138,407
$181,910
$237,431
Escambia
Holmes
Okaloosa
Washington
REGION
% OF STATE
FLORIDA
7.2
4.3
Source: Florida Trend, April 1994
* Estimated from partial-year data.
During Hurricane season 1995, two major storm events struck the Region.
Hurricane Erin knocked down trees and power lines and halted business
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-11
when it struck Pensacola, Florida, on August 3, 1995. Hurricane Opal
destroyed Pensacola Beach and Navarre Beach when it struck the Region on
October 4, 1995. Pensacola Beach has recovered slightly. Damage is still
present on the roadway that connects Pensacola Beach and Navarre Beach.
Fort Pickens did not reopen until Memorial Day weekend 1996. Navarre
Beach suffered the greatest damage, and it will be quite a while before
recovery efforts are complete. Accounts of the damage by the two storm
events are shown in the Affordable Housing and the Emergency
Preparedness Elements. The turn out for the 1996 Memorial Day tourist
season kick-off was down because people believed that the beaches were
closed due to the storms.
Tourism
Bringing in millions of dollars annually, tourism and tourism-related service
jobs are the predominant employers of the Region's coastal counties.
Employment in the tourism sector is primarily concentrated in the trade and
service categories. The industry contributes jobs, income and government
revenues. A recent economic report stated that tourism means over $300
million to the Region's economy annually.
The four major areas of employment affected by tourism are: air
transportation; hotel and lodging; eating and drinking establishments; and
amusement and recreation services.
Five of the Region's counties border the Gulf of Mexico and the beaches are
an annual tourist attraction. Traditionally, the Region's tourist season
begins with Memorial Day weekend and extends through the Labor Day
weekend. Recent damage to the Region's coastal area caused by Hurricanes
Erin (August 1995) and Opal (October 1995) will have a significant negative
impact on tourism-related businesses.
Tables 7-9 shows the attendance at State Parks and recreation areas from
1990-1991 to 1993-1994. Table 7 shows the recreational visits to National
Park Service areas in the West Florida Region, 1990 through 1993. Table 8
shows visits to the National Museum of Naval Aviation in Pensacola from
1989 to 1994.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
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Table 7: State Parks and Recreation Area Attendance
Property Designation
County
1990-91
1991-92
1992-93
1993-94
Blackwater River
Santa Rosa
45,599
29,581
26,712
31,541
Eden
Walton
62,581
59,178
47,387
47,320
Grayton Beach
Walton
40,299
63,133
57,957
68,193
Ponce De Leon Springs
Walton/Holmes
53,057
31,239
17,329
17,601
Falling Waters
Washington
31,949
30,830
29,270
27,393
Henderson Beach
Okaloosa
45,489
36,390
46,414
70,459
Rocky Bayou
Okaloosa
30,965
26,995
25,100
27,388
Perdido Key
Escambia
20,050
15,339
13,857
16,137
Big Lagoon
Escambia
68,901
60,737
61,884
74,381
St. Andrews**
Bay
427,375
424,375
396,227
445,796
Shell Island
Bay
141,388
120,562
141,412
*
Source: Florida Statistical Abstract, 1994
* Included with St. Andrews.
** Beginning in 1993-94, included Shell Island.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
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Table 8
Visits to Gulf Island National Seashore
Park, Monument,
or Memorial
County
1990
1991
1992
1993
1994
Gulf Island
National Seashore
Escambia,
Santa
Rosa,
Okaloosa
4,873.7
4,988.0
5,427.7
5,456.3
5,069.5
Source: Florida Statistical Abstract, 1994
Table 9
Visits to National Museum of Naval Aviation
Museum
1989
1990
1991
1992
1993
1994
National Museum
of Naval Aviation
415,851
473,959
551,610
539,433
497,753
580,002*
Source: Information provided by the National Museum of Naval Aviation. (by Deej Keily)
*Includes miscellaneous events with attendance of 48,239.
Tourism within the Region fluctuates with the national economy and
weather forecasts. The Region is visited annually by millions of people. The
Western Panhandle has become a tourist haven for college students during
Spring Break and an escape for families in the summer time who would
rather not venture to the more populous regions of Florida. In recent years,
Panama City, in Bay County, has become the destination for college students
during the Spring Break months of March and April. Table 10 shows the
increase in sales tax and taxable transient rentals during February, March
and April 1990-95. These figures show the increase in money spent during
the crucial months of Spring Break. More attention is now given to the
Panhandle, particularly Panama City Beach, Pensacola Beach, and Fort
Walton Beach, as destinations for Spring Break. According to the Tourist
Development Center, in 1996 MTV-Music Television drew 500,000+ people to
Panama City Beach during Spring Break to be part of the nationallytelevised events. During the winter months visitors from the north and
Canada come to stay for six (6) month periods to enjoy the warmer climate.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-14
Table 10
Annual Change in Gross Sales, Taxable Sales, State Sales and Uses Tax, and
Transient Rentals
Annual Change
County
Month
Year
State Sales Taxes
Gross Sales
Taxable
Sales
State Sales &
Uses Taxes
Taxable
Transient
Rentals
BAY
February
1990-91
17.90%
-2.32%
3.41%
7.72%
1991-92
-3.99%
14.74%
10.79%
-3.23%
1992-93
-3.24%
8.60%
8.83%
2.73%
1993-94
24.30%
18.44%
26.51%
10.62%
1994-95
-1.42%
-3.38%
-6.31%
-3.98%
1990-91
6.92%
2.88%
5.75%
8.61%
1991-92
2.00%
7.64%
7.05%
-3.23%
1992-93
4.17%
6.61%
7.05%
2.73%
1993-94
19.50%
32.66%
25.82%
10.62%
1994-95
1.10%
-8.55%
-4.75%
-3.98%
1990-91
7.55%
7.56%
7.30%
36.18%
1991-92
6.98%
10.39%
10.98%
5.68%
1992-93
2.03%
6.47%
9.30%
7.30%
1993-94
1.20%
21.17%
19.50%
4.92%
1994-95
4.28%
2.44%
-1.34%
16.73%
1990-91
-1.52%
-9.52%
-8.40%
18.69%
1991-92
10.69%
12.55%
10.24%
-15.22%
1992-93
6.15%
8.08%
10.57%
20.58%
1993-94
-1.94%
5.48%
6.89%
3.14%
1994-95
11.29%
7.76%
22.47%
-6.29%
1990-91
-2.31%
-2.51%
-2.27%
-13.00%
1991-92
11.01%
10.02%
4.29%
0.68%
March
April
ESCAMBIA
February
March
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-15
Table 10
Annual Change in Gross Sales, Taxable Sales, State Sales and Uses Tax, and
Transient Rentals
Annual Change
County
Month
Year
State Sales Taxes
Gross Sales
Taxable
Sales
State Sales &
Uses Taxes
Taxable
Transient
Rentals
1992-93
2.08%
4.85%
14.90%
8.56%
1993-94
66.16%
14.84%
10.02%
10.16%
1994-95
-26.02%
7.99%
10.10%
11.92%
1990-91
4.88%
3.17%
1.76%
8.16%
1991-92
-0.68%
3.54%
4.90%
-27.14%
1992-93
7.47%
5.54%
9.72%
17.10%
1993-94
13.82%
16.99%
14.05%
14.14%
1994-95
5.05%
2.48%
0.85%
3.91%
1990-91
-64.96%
-3.86%
-5.63%
258.69%
1991-92
12.68%
18.37%
34.55%
0.00%
1992-93
1.76%
15.01%
4.06%
0.00%
1993-94
-0.20%
-13.18%
2.21%
84.13%
1994-95
11.28%
29.03%
17.59%
14.45%
1990-91
-8.49%
-7.57%
-4.57%
3218.38%
1991-92
0.72%
1.25%
4.74%
0.00%
1992-93
1.79%
-2.95%
-0.99%
0.00%
1993-94
7.17%
4.42%
-5.76%
67.70%
1994-95
18.66%
30.23%
62.41%
9.49%
1990-91
1.06%
-5.51%
-5.81%
979.00%
1991-92
12.35%
11.96%
14.77%
-979.00%
1992-93
-1.67%
-33.61%
-4.19%
0.00%
1993-94
26.21%
42.36%
6.68%
43.10%
1994-95
4.61%
20.27%
34.24%
-24.62%
April
HOLMES
February
March
April
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-16
Table 10
Annual Change in Gross Sales, Taxable Sales, State Sales and Uses Tax, and
Transient Rentals
Annual Change
County
Month
Year
State Sales Taxes
Gross Sales
Taxable
Sales
State Sales &
Uses Taxes
Taxable
Transient
Rentals
OKALOOSA
February
1990-91
-2.34%
-8.98%
-1.04%
-36.13%
1991-92
20.08%
24.16%
20.30%
82.94%
1992-93
3.18%
10.00%
10.54%
-10.16%
1993-94
13.09%
8.75%
8.20%
2.60%
1994-95
5.77%
8.52%
11.58%
-3.63%
1990-91
12.49%
-4.00%
3.97%
-2.58%
1991-92
-0.35%
11.86%
11.71%
14.61%
1992-93
10.09%
9.58%
11.89%
-17.30%
1993-94
14.05%
19.54%
11.95%
55.18%
1994-95
10.66%
6.25%
11.65%
-13.02%
1990-91
16.51%
2.97%
3.94%
34.35%
1991-92
-0.51%
7.75%
13.93%
-15.99%
1992-93
13.93%
14.06%
10.02%
-9.45%
1993-94
8.21%
9.56%
9.76%
-22.18%
1994-95
17.30%
11.02%
7.75%
53.94%
1990-91
5.49%
-8.28%
-2.22%
13.04%
1991-92
17.99%
24.69%
21.30%
71.15%
1992-93
10.82%
22.81%
29.03%
98.07%
1993-94
4.62%
-2.71%
-11.72%
3.67%
1994-95
-8.22%
5.45%
14.92%
-27.02%
1990-91
6.91%
3.58%
4.04%
41.61%
1991-92
22.70%
30.51%
27.41%
62.74%
March
April
SANTA ROSA
February
March
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-17
Table 10
Annual Change in Gross Sales, Taxable Sales, State Sales and Uses Tax, and
Transient Rentals
Annual Change
County
Month
Year
State Sales Taxes
Gross Sales
Taxable
Sales
State Sales &
Uses Taxes
Taxable
Transient
Rentals
1992-93
-5.55%
-75.92%
5.26%
78.91%
1993-94
8.84%
17.02%
13.03%
6.85%
1994-95
11.95%
1.63%
5.97%
-2.74%
1990-91
11.06%
-2.62%
0.71%
85.61%
1991-92
16.34%
15.70%
14.43%
-32.40%
1992-93
2.06%
16.35%
12.66%
221.74%
1993-94
14.00%
6.06%
14.40%
10.99%
1994-95
24.14%
13.70%
2.25%
-5.30%
1990-91
17.75%
24.82%
35.72%
150.60%
1991-92
5.78%
10.34%
6.13%
-34.96%
1992-93
-0.93%
9.58%
9.38%
-18.33%
1993-94
12.73%
7.48%
24.52%
32.95%
1994-95
1.66%
6.22%
2.16%
-43.58%
1990-91
20.10%
6.62%
15.08%
21.71%
1991-92
-8.54%
13.71%
15.45%
-14.62%
1992-93
1.46%
3.36%
12.99%
-23.94%
1993-94
19.16%
23.55%
10.08%
222.51%
1994-95
10.37%
4.54%
9.62%
-50.21%
1990-91
9.87%
15.25%
18.75%
16.45%
1991-92
0.41%
6.42%
5.04%
-30.45%
1992-93
7.50%
9.59%
12.38%
18.51%
1993-94
16.33%
18.26%
16.38%
6.75%
1994-95
10.64%
14.48%
14.36%
27.23%
April
WALTON
February
March
April
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-18
Table 10
Annual Change in Gross Sales, Taxable Sales, State Sales and Uses Tax, and
Transient Rentals
Annual Change
State Sales Taxes
County
Month
Year
Gross Sales
Taxable
Sales
State Sales &
Uses Taxes
Taxable
Transient
Rentals
WASHINGTON
February
1990-91
-6.96%
8.38%
27.26%
-84.40%
1991-92
12.17%
17.61%
7.15%
31.35%
1992-93
20.14%
20.73%
21.85%
318.66%
1993-94
-1.82%
-0.13%
-6.37%
59.87%
1994-95
11.63%
22.86%
30.00%
-29.18%
1990-91
-0.06%
-14.48%
2.56%
164.93%
1991-92
9.75%
14.51%
9.06%
-8.49%
1992-93
-11.80%
-6.55%
1.59%
346.77%
1993-94
22.84%
8.90%
4.38%
0.85%
1994-95
18.84%
51.32%
58.02%
8.20%
1990-91
-0.23%
18.65%
13.61%
261.58%
1991-92
7.61%
10.55%
9.93%
-25.34%
1992-93
-9.61%
-30.31%
-2.95%
238.27%
1993-94
22.22%
50.85%
13.28%
-60.94%
1994-95
29.13%
45.80%
33.41%
158.30%
March
April
Source: Florida Department of Revenue, June 1996.
In 1989, tourism turned in an unremarkable year, partly because of
extraordinary events: the bay bridge connecting Pensacola to Gulf Breeze
was closed most of the year, and summer rains fell in Panama City (Florida
Trend, April 1990). But, convention business was on an upswing in
Pensacola, up 28% from 1988.
In 1993, tourism across the Region was increasing. The Sandestin Resort of
south Walton County, which filed Chapter 11 in 1989 in order to reorganize,
reported a 14% increase in tourism spending. Sime Darby, the Malaysian
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-19
company that owns the Sandestin Resort, has begun spending $12 million a
year to improve the Resort's infrastructure and plans include building an 18story beach-front condominium and another golf course. Okaloosa County
reported an increase of 9.5% in visitors last year. Convention centers bring
in large business meetings and allow for the participants to experience the
amenities of the surrounding communities while conducting business.
Thanks to recent expansion, Panama City, in Bay County, now has the
largest amount of meeting space between New Orleans and Tampa. Sales
were up 12% in 1992 and 1993 at the largest gathering place, the Bay Point
Marriott. Bay Point completed a $4 million expansion, increasing its
meeting space to 40,000 square feet. Panama City/Bay County International
Airport is also preparing to have $9 million worth of expansion (to be
completed in 1995) which is intended to direct more business to the area.
West Florida has begun to increase in popularity as a destination area. Bay
County has held the rank of number two (2) destination in the state
according to the Top Ten Destinations of Auto Visitors Surveyed from
1991 to 1994. Okaloosa County was number six (6) in 1994. According to the
Top Ten Destinations of Air Visitors Surveyed, Bay County was ranked
number ten (10) in 1994. Panama City/Bay County International Airport has
shown a +4.8% change in visits to the from 1993 to 1994. Pensacola Regional
Airport increased by +25.5% from 1993 to 1994. The five counties within the
Region that collect a "bed tax" collected $7.5 million in 1994. This rate was
up 4.3% from 1993. Table 11 shows the "Tourism/Recreation" taxable sales
for the metropolitan statistical areas (MSA) in our Region from 1990 to 1994.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-20
Table 11
"Tourism/Recreation" Taxable Sales
Metropolitan Statistical Areas (MSA), 1990-1994
(In $ Million)
MSA
1990
1991
1992
1993
1994
Fort Walton
296.9
307.4
336.6
362.8
391.0
Panama City
359.4
374.1
404.7
448.9
438.9
Pensacola
451.4
467.3
504.2
531.9
574.2
TOTAL
1080.7
1148.8
1245.5
1343.6
1404.5
Note:
According to the U.S. Census Bureau, a Metropolitan Statistical Area (MSA) is defined in one of two ways: a
city of at least 50,000 population; or a Census Bureau-defined urbanized area of at least 50,000 with a total
metropolitan population of at least 100,000 (75,000 in New England).
Source:
Division of Economic and Demographic Research, Joint Legislative Management Committee, Florida
Legislature-Florida Visitor Study/1994
Table 11 shows the amount of taxes collected for "Tourism/Recreation" in a
given four year period in the three Metropolitan Statistical Areas (MSA) in
our Region. The average annual change for the three MSAs is: Fort Walton
(+6.5%), Panama City (+5.25%), and Pensacola (+6.25%). The Region has
seven (7) hotels, 378 motels, and 1741 restaurants (Florida Visitor Study,
1994, 60).
Many of the factors that attract tourists to the Region also attract retirees.
Florida lost ground from 1980 to 1990 in the number of retirees choosing
Florida from 26.3% in 1980 to 23.8% in 1990. Attracting retirees is
important to the Region as well as to the State because of the "mailbox
economy" benefits of monthly checks from pensions and investments that
many retirees receive.
Agribusiness
There are 3,653,440 acres of land in our Region. According to the Florida
Statistical Abstract 1994, 2,660,020 acres (10% of the state) is farm land
(Florida Statistical Abstract 1994, 334). But, only 430,0938 acres of this land
is actually reported as used for farming (IBID,326). The largest area of farm
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-21
land is in Walton County (96,730 acres) and the smallest amount of acreage
is in Bay County (9,135 acres) (IBID, 326).
Farming is a profitable business for the Region. Unfortunately, urbanization
and dwindling crop prices pose threats to the continuation of agricultural
land use. Our Region's farm land is used for peanuts, soybeans, cotton, corn
for grain or seed, wheat for grain, apples, pears and many other fruits,
vegetables, grains, and nuts. Escambia County, in 1994, was third in the
state for production of corn with 608,000 bushels. This accounted for 8.9% of
the total harvest. Santa Rosa County, in 1994, was second in the state for
production of peanuts with 39,695,000 pounds. This accounted for 19% of the
total state harvest. Escambia County, in 1994, was second in the production
of soybeans for the state with 219,000 bushels. This accounted for 17% of the
total state harvest. Santa Rosa County reported a yield of 792 pounds of
cotton or 38,200 bales (Florida Agriculture Statistics, "Field Crop Summary
1994," 8-18).
Santa Rosa County, until 1995, has been the number one (1) producer of
cotton in the state. Jackson County has surpassed the county by planting
±4,000 more acres. Holmes and Washington counties are the major
producers of watermelons in our Region. Holmes County harvested 500
acres of watermelons per season from 1992-1994. Washington County
harvested between 800 to 900 acres in the same time period (Florida
Agriculture Statistics, "Vegetable Summary 1994," 55). Escambia County
was reported as second in the state for acres of wheat for grain in 1992
followed by Santa Rosa (4), Holmes (6), Washington (7), and Walton (8)
counties. There is small acreage of grain sorghum in all counties except
Bay. Pecans are produced in Santa Rosa and Bay counties on a small scale.
Bay County has fruit crops, blueberries, and grapes. There are small farms
throughout the Region that grow vegetables and horticulture for sale to
market. The exact acreage of these farms is not reported so as to protect the
smaller farms from heavy competition. Table 12 shows the ranking of the
counties for cash receipts for agricultural markets.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-22
Table 12
Cash Receipts for Agricultural Marketing (1992)
County
($000)
Rank
Bay
1,875
62
Escambia
13,054
52
Holmes
31,810
32
Okaloosa
5,103
59
Santa Rosa
28,022
36
Walton
20,155
47
Washington
12,492
54
TOTAL
112,511
Source: Florida County Comparisons 1994, Florida Department of Commerce, Division
of Economic Development, Table C-12, Page C-45
Over recent years, the number of actual operating farms has decreased.
Table 13 shows the number of farms and farm land in our Region from 1982
to 1992.
Table 13
Farms and Farm Land in the West Florida Region 1982-1992
County
1982
1987
1992
93
85
63
18,676
11,448
9,135
522
502
454
Bay
Farms (number)
Farm Land (acres)
Escambia
Farms (number)
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-23
Table 13
Farms and Farm Land in the West Florida Region 1982-1992
County
1982
1987
1992
78,533
65,426
57,179
579
572
523
106,128
86,701
86,706
371
322
315
70,612
62,662
56,704
479
435
430
92,066
81,667
79,270
470
430
383
115,353
104,239
96,730
424
318
274
79,647
61,647
45,214
Bay
Farm Land (acres)
Holmes
Farms (number)
Farm Land (acres)
Okaloosa
Farms (number)
Farm Land (acres)
Santa Rosa
Farms (number)
Farm Land (acres)
Walton
Farms (number)
Farm Land (acres)
Washington
Farms (number)
Farm Land (acres)
Source: 1992 Census of Agriculture. U.S. Department of Commerce, Bureau of Census. State
and County Data.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-24
The State of Florida predictions estimate that the total number of farms will
decrease. The reduction will be in farm size. Smaller farms have given way
to larger and more technologically advanced farms. These farms have 500 or
more acres.
Silviculture is another dominant industry in our Region. The seven-county
area's 2.7 million acre forest is one of the Region's most valuable and
renewable natural resource. This forest is a substantial economic asset, and
its many uses should receive careful consideration in future planning. The
forest in the Region can be classified into four broad major physiographic
forest types as follows: Swamp - 500,00 acres; Pine Flatwoods - 550,000
acres; Rolling Uplands - 950,00 acres; and Sand Hills - 700,000 acres.
In general, much of the production forests occur on the rolling uplands in the
northern sector of the Region. The forest industry lands comprise nearly
1,000,000 acres of the 2.7 million-acre forest in the seven-county area. These
lands owned principally by pulp and paper companies are intensively
managed for the production of fiber for paper. Although the Region's forests
produce outdoor recreation, watershed protection, and forage and range for
both wildlife and domestic stock, its dominant use in terms of economic
impact and job opportunities is in the production of forest products.
This production yields a total value to the community of approximately $150
million in terms of stumpage and value added by manufacturing and creates
over 5,000 jobs accounting for over $45.5 million in annual payroll value. It
is to be noted that the Region produces 14.1% of the total State volume of
forestry products.
The two major companies that have large holdings of land are Champion
International and St. Joe Paper Company. Champion International Paper
Company owns approximately 290,000 acres of planted and unplanted
timber land in our Region. Champion's territory includes Escambia, Santa
Rosa, Okaloosa, Walton, Holmes, and Washington counties. St. Joseph
Paper Company owns approximately 190,000 acres of planted and unplanted
timber land in our Region. St. Joe's territory includes Bay, Washington and
Walton counties.
Military Influence
The impact of the military community on the economic development of the
West Florida Region is tremendous; employing 11.3 percent of the civilian
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-25
nonagriculture employment. The civilian and federal military employment
represents 25.5 percent of all wage and salary employment. This total
government employment (federal, state, local and military personnel)
comprises approximately 40 percent of all employment.
Stretching from the Naval Air Station (NAS) in Pensacola to the Naval
Coastal Systems Station (CSS) in Panama City and Hurlburt Air Force Base
in Okaloosa County to Tyndall Air Force Base in Bay County, military
installations span the breadth of the Region. From Pensacola to Panama
City, defense is the economic lifeblood of Northwest Florida. With a labor
force of just over 300,000 in the five county region, direct employment of over
48,000 means some 16% of the area's labor force is dependent upon the
military for jobs. When the multiplier effect is considered, nearly a third of
the Region's jobs result from the military presence. The earnings impact
throughout the region is slightly under $3 billion--nearly half of all military
earnings in the state. Additionally, the nearly 100,000 military retirees
living in the Region pour well over a billion dollars in retirement pay into the
economy (FL Department of Commerce).
The military influence is felt throughout all aspects of daily life in the West
Florida Region. Military personnel supplement local populations and provide
a unique dimension to the community. Effect on local communities results
from the military employment in the community, civilian employment,
payroll, Department of Defense contracts and retirees. Figures that reflect
the total number of retirees receiving retirement pay and benefits (i.e.,
insurance, education, compensation and pension, construction) from the U.S.
government within this area are based on the number of military retirees in
the communities. The Florida Department of Veteran Affairs states that
compensation and pension best represent the income that enters the local
economy. The actual amount of money entering the communities is difficult
to determine, but it is reasonable to assume that a large portion of the
monthly income does so.
Generations of naval aviators have trained at NAS Pensacola and NAS
Whiting Field. Together with Corry Station Naval Technical Training
Center and the Naval Education and Training Program Management
Support Program at Saufley Field, these facilities have become a Center of
Excellence for Aviation Training. They form a cost-effective and efficient
training team for military services while adding more than 20,000 jobs and
well over three quarters of a billion dollars in direct military payroll (FL
Department of Commerce).
Eglin AFB, in Okaloosa, Santa Rosa, and Walton counties, houses the
Department of Defense's largest and most efficient Weapons and Electronic
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-26
Combat Test and Evaluation Ranges, its only climatic test facility and
several of the most advanced "hardware in the loop" facilities in the world.
Okaloosa County's economy relies heavily on the nearly $1.3 billion of
indirect and direct earnings as well as the $473 million in contracts and
other expenditures generated by Eglin, while the county's high tech
manufacturing is increasingly dependent upon the missions at the base (FL
Department of Commerce).
The Bay County/Panama City area boasts of the Coastal Systems Station
(CSS) and Tyndall Air Force Base. Exceptional water and undersea resources
for research, training, and other operations (such as proximity to over water
ranges) are found at Tyndall Air Force Base and the Navy Coastal Systems
Station. Ranked as its first and third largest employers, these installations
employ 18.6% of the Panama City/Bay County workforce. Counting
earnings, contracts, and local expenditures, these two bases contribute a
direct economic impact of $600 million to the area (FL Department of
Commerce).
Washington and Holmes Counties do not have any military bases. They do,
however, have reserve units. There are no active duty personnel living in
their communities. According to the Counties' Chambers of Commerce,
Washington and Homes Counties do, however, have a substantial military
retiree population. There are 2,332 veterans in Washington County and
1,888 in Holmes County. The compensation and pension package received
from the U.S. Department of Veterans Affairs (FY 93) was $3,402,714 in
Washington County and $3,649,322 in Holmes County. According to the U.S.
Department of Veteran Affairs this amount best accounts for economic
impact in the communities by the U.S. military. This money goes directly to
the veterans and enters the community through spending for goods and
services.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-27
The total military impact on the local economic development in this Region is
substantial. According to the Florida Department of Commerce and
assuming the military personnel follow typical personal spending patterns
nationwide, the following is an estimate of what 1,000 military personnel
would annually contribute to the local economy:
!
Buy 58 new cars a year.
!
Spend enough on major appliances to buy the equivalent of one
new washer-drier set every three days.
!
!
Buy more than 500 paperback books a week.
Take the family to the movie—complete with soft drinks and
popcorn--once every couple of weeks (FL Department of
Commerce).
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West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-32
GOALS AND POLICIES
PRIORITY 1:
Economic Stability and Expansion
GOAL 1: Expand existing and attract new business and industry to the Region.
Indicators
!
Change in the number of existing business expansions and new businesses in the
Region as a percentage of population.
Policy 1.1: Provide means to increase coordination and information exchange of various
public and private economic development programs.
Policy 1.2: Provide incentives for small and medium-size commercial developments to
locate in urban core areas.
Policy 1.3: Assist in the designations of Enterprise Zones.
Policy 1.4: Preserve and expand the development of cultural and historical resources to
attract business and tourism.
Policy 1.5: Identify potential industrial parks and business/commercial locations.
Policy 1.6: Increase small business and industry expansion, aggressive industry
recruitment and foreign investment.
Policy 1.7: Increase efforts to expand the export-base of the economy.
Policy 1.8: Expand deep water trade at the Region's two ports.
Policy 1.9: Develop partnerships between business, education, non-profit, and public
entities to enhance the Region's economy, job training, and education.
GOAL 2: By 2005, achieve a 10% increase in employment over 1995 levels.
Indicators:
!
Percentage increase in employment.
!
Change in per capita income.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-33
Policy 2.1: Attract new job growth industries, distribution and service
centers, and regional offices to the Region.
Policy 2.2: Identify and attract industries with growth potential.
Policy 2.3: Utilize economic enhancement programs with private business
to develop job opportunities.
Policy 2.4: Expand downtown revitalization, rural redevelopment, and
other redevelopment programs for job creation and retention.
Policy 2.5: Expand industry involvement in planning and designing
training programs and vocational curricula.
PRIORITY 2:
Expand and Diversify Tourism Industry Potential.
Ensure Proper Support to the Tourism Industry.
GOAL 1: Expansion and development of tourism in West Florida to increase total
earnings generated by tourism by 15 percent over 1994 levels.
Indicators:
!
Change in total earnings generated by tourism.
!
Change in number of tourists visiting the area.
Policy 1.1: Expand public and private sector promotional efforts for the
purpose of enhancing the tourism industry.
Policy 1.2: Protect and enhance facilities and activities which attract
tourists including beach access, parks, and historic and cultural facilities and
sporting events.
Policy 1.3: Pursue joint public and private ventures to provide financial and
other resources necessary for the provision of recreation areas, facilities, and
other programs geared towards development of the tourism industry.
Policy 1.4: Improve coordination among land use and environmental
planning and management programs of all units of government and the
private sector which could affect the natural environment and recreation and
tourism resources.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-34
Policy 1.5: Transportation and public facilities improvement plans shall be
developed to accommodate the impact of the Region's tourists.
Policy 1.6: Where feasible, counties should utilize the tourist development
tax.
Policy 1.7: Attract more convention activity to West Florida.
PRIORITY 3:
Encourage Stability within the Agriculture Industry.
GOAL 1: Identify and address agricultural planning needs.
Indicators:
!
Change in total agricultural acreage in the Region.
!
Change in agricultural activities in the Region.
Policy 1.1: Improve communications between regional agricultural and
silvicultural entities, including county extension services, the Soil and Water
Conservation Districts, the Florida Department of Agriculture and Consumer
Services, the Conservation and Development Councils, Rural Economic
Development Cooperatives, and other related agencies.
Policy 1.2: The RPC shall continue to provide technical assistance in rural
municipalities and unincorporated areas to improve planning techniques and
improve communications between rural/small town citizens, local
governments, and regional planners.
GOAL 2: Define and maintain the rural/agricultural/silvicultural qualities of the
Region.
Indicators:
!
Change in development patterns in rural areas of the Region.
!
Change in total acres designated for agriculture and silviculture in the Region.
Policy 2.1: Local governments shall identify areas of existing agricultural
land uses and shall designate the proposed distribution, extent, and location
of future agricultural land use. Conversion of agricultural and silvicultural
lands to other uses, especially urban and transitional uses, will occur in a
timely and orderly manner.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-35
Policy 2.2: The RPC will support innovative and creative
agricultural/silvicultural density designations that result in compact
development and infill while eliminating urban sprawl.
Policy 2.3: Local government plans shall include policies that protect soil
and water resources from erosion, contamination, and man-induced
sedimentation. Local governments shall coordinate with soil conservation
districts to achieve area-wide erosion reduction and water protection on
public and private property.
Policy 2.4: Local governments shall include policies that protect watersheds
and existing fresh and salt water wetlands from sedimentation, pollution,
and development. The purpose of such policies is to reduce flooding and
provide a healthy environment for fishing and agricultural industries.
GOAL 3: Minimize the undesirable side-effects associated with the agricultural
and silvicultural industry.
Indicators:
!
Change in water quality within the Region's rural surface waters.
Policy 3.1: Use Conservation Plans approved by the local Soil and Water
Conservation District to minimize degradation of water quality caused by
agriculture.
Policy 3.2: Minimize or eliminate the transport of sediment into surface
waters.
Policy 3.3: Coordinate land use plans with prescribed burning needs of
forestry lands.
GOAL 4: Maintain or increase the amount of agricultural land in production
(excluding highly erodible land) over 1995 acreages through increased
diversification of crops and increased regional demand of agricultural products
and marketing strategies.
Indicators:
!
Change in total amount of agricultural land in production.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-36
!
Increase in local educational programs for agricultural and silvicultural production
and marketing.
Policy 4.1: Local governments and the RPC shall support the research
projects of the Institute of Food and Agricultural Services (IFAS) that
benefit West Florida agricultural production.
Policy 4.2: Local governments, along with agricultural and industrial
development commissions, should develop industries dependent on regional
agricultural and silvicultural products. An emphasis shall be placed on food
processing and other industries that add "finished value" to regionally
produced products.
Policy 4.3: Local educational programs should enhance the knowledge of
agricultural/silvicultural production and marketing. Such programs shall
include, but not be limited to, county canning programs, school clubs and
functions, college agricultural programs, and 4H Clubs.
PRIORITY 4:
Military Influence
GOAL 1: Maintain the presence of the military missions in the Region.
Indicators:
!
Change in number of civilian and federal military employment.
!
Change in percentage of military retirees in the Region.
Policy 1.1: Facilitate military missions within the Region to maintain the
economic balance consistent with their presence.
Policy 1.2: Support existing and new military and military-related
businesses to maintain and increase their operations in the Region.
Policy 1.3: Recruit industries that can utilize military retirees.
Policy 1.4: Coordinate with military installations to review proposed
developments which could have an impact on the military's mission.
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-37
Sources
Florida Agricultural Statistics "Field Crop Summary" 1994. Orlando. Florida
Agricultural Statistics Service. 1994
Florida Department of Commerce Facsimile. Tallahassee, Florida. 1994
Florida County Comparison 1994. Florida Department of Commerce; Division of
Economic Development. Tallahassee. 1994
Florida Industry and Occupational Employment Projections 1992-2005. Tallahassee:
Florida Department of Labor and Employment Security; Division of Labor,
Employment and Training; Bureau of Labor Marketing Information.
December 1994. For Service Delivery Areas I, II, III
Florida Long-Term Forecast: State and MSAs. Volume 1. Gainesville: Bureau of
Economic and Business Research; University of Florida. March 1995
Florida Long-Term Economic Forecast. June 1995, Bureau of Economic and Business
Research, Gainesville, Florida.
Florida Long-Term Forecast: State and Counties. Volume 2. Gainesville: Bureau of
Economic and Business Research; University of Florida. March 1995
Florida Statistical Abstract 1994. University Press of Florida. Gainesville. Twentyy
Eighth Edition. 1994
Florida Statistical Abstract 1995. University Press of Florida. Gainesville. TwentyEighth Edition. 1994
Florida Trend: The Magazine of Florida Business. Economic Yearbook. Trend
Magazine, Inc. St. Petersburg. April 1993
Florida Trend: The Magazine of Florida Business. Economic Yearbook. Trend
Magazine, Inc. April 1994
Florida Trend: The Magazine of Florida Business. Economic Yearbook. Trend
Magazine, Inc. April 1996
Florida Visitors Study 1994. Tallahassee. Florida Department of Commerce,
Bureau of Economic Analysis. 1994
1992 Census of Agriculture CD-ROM. Geographic Area Series 1A and 1B.
Washington D.C. U.S. Department of Commerce; Economics and Statistics
Administration; Bureau of the Census. 1992
1992 Economic Census CD-ROM. Report Series. Washington D.C. Bureau of the
Census. 1992
West Florida SRPP ! Economic Development ! Adopted 7/15/96
II-38
III.
EMERGENCY PREPAREDNESS
Acronyms
EPCRA
Emergency Planning and Community Right-to-Know
Act
NFIP
National Flood Insurance Program
LEPC
Local Emergency Planning Committee
CAN
Community Alert Network
Contents ! Emergency Preparedness
Trends & Conditions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Natural Hazards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Hurricanes & Tropical Storms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Table 1: Hurricane Erin's Impact . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Table 2: Hurricane Opal's Impact . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Thunderstorms, Tornadoes & Lightning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Flooding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Wildfire . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Technological Hazards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Hazardous Materials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Analysis of Evacuation & Sheltering Capacities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Emergency Evacuation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Emergency Sheltering and Public Shelter Facilities . . . . . . . . . . . . . . . . . . . . . . . . . 8
Table 3: Mobile Home Occupancy - Number Residents . . . . . . . . . . . . . . . . 12
Special Needs Evacuees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Table 4: Population of Residents Aged 65+ . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Table 5: Special Needs Evacuees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Preparing the Region's Population . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Educating the Public . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Mitigation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Land Use Planning & Growth Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Emergency Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Effective Building Codes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Development Management Techniques . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
15
15
16
17
17
19
Mitigation Measures for Hazardous Materials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Shelter-in-place . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Evacuation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Warning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Response . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
20
20
21
21
21
22
Goals and Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Sources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Figures 1 - 7: County Evacuation Maps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32-38
West Florida SRPP ! Emergency Preparedness ! Section III
TRENDS & CONDITIONS STATEMENT ! GOALS & POLICIES
EMERGENCY PREPAREDNESS
Introduction
The West Florida Region is susceptible to a variety of natural and man made
hazards. Tornados, severe thunderstorms, fire, and hurricanes and tropical
storms threaten the Region at different times throughout the year.
Technical hazards also threaten the Region. The storage and transportation
of hazardous materials exposes a large segment of the population to potential
injury or loss of life from an accidental spill or release. The emergency
preparedness element within the Strategic Regional Policy Plan (SRPP)
addresses these hazards and develops planning standards to reduce the risks
from natural and technical hazards.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-1
Natural Hazards
Hurricanes and Tropical Storms: Florida is the most vulnerable state in
the union to the impacts of hurricanes. A hurricane is a big cyclonic storm
that may have a diameter of more than 400 miles and wind speeds of over 74
miles per hour. Winds are the primary component associated with a
hurricane. However, wind is not the most dangerous aspect of a hurricane.
Storm surge is responsible for far more damage and loss of life in a hurricane
than either wind or rain. The West Florida Region's low lying coastal
counties are extremely vulnerable to flooding from the storm surge
associated with hurricanes and tropical storms. (Department of Community
Affairs-Division of Emergency Management 1994, 27-28) (Kaufman and
Pilkey 1993, 131-132)
On August 3, 1995, Hurricane Erin, a category 1 storm with sustained winds
of 101 mph and higher gusts, hit the northwest Florida panhandle. Erin
Caused extensive damage to signs, trees, fences, and aerial infrastructure
(power, phone, traffic signals, television lines). Metal buildings were often
the most damaged structures due strictly to wind. Home and business
damage was often caused by tree and branch collapse. Numerous roads and
streets were blocked for up to three days. Debris removal took two months,
and was then followed by Hurricane Opal.
On October 4, 1995, Hurricane Opal struck the western panhandle with the
storm's eye passing over Hurlburt Field in Okaloosa County. Opal, a
category 3 storm, hit the panhandle with wind gusts up to 140 mph.
However, much of this storm's damage resulted from storm surge. A storm
surge, up to 16 feet in some coastal areas, spread from Fort Pickens, near
Pensacola Beach, to Saint Joseph Bay in Gulf County. The storm surge was
responsible for numerous destroyed structures, eroded coastline, washed out
roadways and the destruction of miles of protective dunes. Tables 1 and 2
show the amount of damage caused by hurricanes Erin and Opal.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-2
Table 1: Hurricane Erin's Impact to Structures in the West Florida Region (8/95)
County
Single Family
Mobile Homes
Apartments
Total
Destroyed
Major
Minor
Destroyed
Major
Minor
Destroyed
Major
Minor
Bay
0
0
0
0
0
0
0
0
0
0
Escambia
14
139
1,037
32
11
43
17
37
330
1,660
Okaloosa
3
27
686
4
12
55
2
32
138
959
Santa Rosa
3
94
595
26
42
80
0
10
154
1,004
Walton
1
1
9
0
0
0
0
44
55
110
Total
21
261
2,327
62
65
178
19
123
677
3,733
100%
93.9%
88.2%
88.6%
86.7%
79.8%
82.6%
72.4%
98.3%
89.2%
*% in West
Fla.
Source: American Red Cross, Sept. 1995
Note:
*Percentage in West Florida indicates number of affected dwelling units as compared to all areas of Florida impacted by
Erin (according to American Red Cross figures).
Table 2: Hurricane Opal's Impact to Structures in the West Florida Region
County
Single Family
Mobile Homes
Apartments
Total
Destroyed
Major
Minor
Destroyed
Major
Minor
Destroyed
Major
Minor
Bay
164
971
3,062
92
319
500
125
511
1,878
7,622
Escambia
118
220
710
0
6
8
72
31
1,190
2,355
Holmes
1
3
44
4
2
10
0
0
0
64
Okaloosa
96
539
3,560
13
38
107
588
603
1,692
7,236
Santa Rosa
59
227
102
3
7
11
56
132
332
929
Walton
57
117
632
10
15
43
31
118
464
1,487
Washington
1
3
48
4
4
15
0
0
13
88
496
2,080
8,158
126
391
694
872
1,395
5,569
19,782
Total
Source: American Red Cross, Oct. 1995
Thunderstorms, Tornados and Lightning: Thunderstorms can occur
during any month of the year. They are normally related to frontal passage
or afternoon heating in the atmosphere. Thunderstorms deliver most of the
state's rainfall. Their winds help invigorate sluggish environments in ponds,
lakes and estuaries, and break apart oil spills. However, these winds can
also cause damage to structures and vegetation. Once structures and objects
are broken and in motion, additional damage can occur.
Between 1980 and 1992 there have been 133 severe thunderstorms in the
West Florida Region. A thunderstorm is classified as severe when one or
more of the following hazardous conditions occur: winds 58 mph or higher,
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hail 3/4 inch or greater in diameter, or a tornado develops. Heavy winds and
rain accompany thunderstorms, but an additional dangerous component is
lightning. Between 1959 and 1992 there have been 31 persons killed and 93
persons injured by lightning in the West Florida Region. The first lightning
strikes from a thunderstorm may be the most dangerous, not in terms of
impact, but because of the element of surprise. Lightning can strike up to
fifteen miles from an actual thunderstorm. These strikes, sometimes
referred to as "Bolts from the Blue," may occur with or without falling rain.
The electrical charge can be distributed through fences, trees, water pipes,
poles and numerous other objects.
A tornado is a violent windstorm characterized by a twisting, funnel shaped
cloud. Between 1959 and 1992 there have been 229 tornados impact the
West Florida Region. Tornados develop under three scenarios: (1) along a
squall line ahead of an advancing cold front moving in from the north; (2) in
connection with thunderstorm squall lines during hot, humid weather; and
(3) in the outer portion of a tropical cyclone. Within the vortex, wind speeds
have been known to exceed 300 mph which are higher than any hurricane on
record. Tornados are visible in daylight because of condensed moisture (like
a cloud or fog) and because of dust, water and debris they may lift from the
ground. Tornados can appear as long, twisting, rope-shaped columns
extending from the base of clouds. However, many are embedded within the
rain of thunderstorms and are therefore not easily seen. At night, there is no
visible warning of an approaching tornado other than the signs of high
winds. The rapidly whirling air has often been described to sound like a
moving freight train.(Florida Department of Community Affairs-Division of
Emergency Management 1994, 35)
Tornados are difficult weather phenomena to predict. Although technological
advances (such as Doppler Radar) are assisting weather forecasters in
"looking" into thunderstorms for rotating wind patterns, tornados can occur
quickly and without warning. Mobile Homes and trailers are especially
susceptible to the destructive forces of tornados and the limited amount of
warning time given before impact makes it very difficult for residents to
safely evacuate.
Flooding: Flood, or flooding, refers to the general or temporary condition of
partial or complete inundation of normally dry land areas from the overflow
of tidal or inland waters or the unusual and rapid accumulation of surface
water runoff from any source. A floodplain is defined as any land area
susceptible to being inundated by water from any flooding source. In
general, flooding can be divided into two major categories: coastal and
riverine. Coastal flooding is usually the result of a severe weather system
such as a tropical cyclone, hurricane, or tropical storm. The damaging effects
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of coastal floods are caused by a combination of higher water levels of the
storm surge, the winds, rains, erosion, and battering by debris. Loss of life
and property damage are often more severe since it involves more velocity
wave action and accompanying winds. The velocity and range of coastal
floods vary in part with the severity of the storm that induces them.(Florida
Department of Community Affairs-Division of Emergency Management 1994,
47)
Riverine or inland flooding is associated with a rivers watershed, which is
the natural drainage basin that conveys water runoff from rain. Riverine
flooding occurs when the flow of runoff is greater than the carrying capacities
of the natural drainage systems. Generally, floods can be slow or fast rising,
depending on the size of the river or stream. The rivers in north Florida
drain portions of Alabama and Georgia, and excessive rainfall in those states
often cause flood conditions in Florida. Such was the case in 1994 and
Tropical Storm Alberto which produced extensive rainfall in Georgia and
Alabama causing severe riverine flooding in the Florida Panhandle.
Flooding is a natural process which replenishes the floodplain with nutrient
rich soils and sediment. Riverine floods can be seasonal resulting from
spring and summer rains. Other "flash floods" are caused by the fast
accumulation of heavy rains in a relatively short period of time. Due to the
amount of flooding in some areas of the Region the best way to avoid loss of
property and loss of life is to avoid building in the floodplain.(Ibid.)
Wildfire: Much of the West Florida Region is heavily forested, especially
the interior, and a high probability of wildfire exists. A wildfire is any fire
occurring in wildlands (i.e., grassland, forest, brush land) except a fire under
prescription. Prescription burning is the process of igniting fires under
selected conditions, in accordance with strict parameters. Wildfires have
burned across Florida's woodlands for centuries and are part of the natural
management of much of Florida's ecosystems. Forest fires from natural
causes such as lightning account for only a very small percentage of Florida's
wildfires, whereas man is by far the leading cause of wildfires.(Florida
Department of Community Affairs-Division of Emergency Management 1994,
57-58)
Forest land is continuously susceptible to destruction by wildfires. There are
three types of forest fires: surface, ground and crown. A surface fire is the
most common type and burns along the floor of the forest, moving slowly
while killing or damaging trees. Ground fires (muck fires), which are usually
started by carelessness, burn on or below the forest floor. These fires are
hard to detect, and even harder to extinguish. Crown fires are spread
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rapidly by the wind and move the fastest of all types of fires by jumping
along the tops of trees.
Each wildfire, especially near settled areas, can threaten human life,
structures and resource values. Urban development has moved into wildland
areas (pine plantations, drained swamps and coastal plains) where the
hazard is more severe and fire control is difficult. Many individual homes
and cabins, sub-divisions, resorts, recreational areas, organizational camps,
businesses and industries are located within high fire hazard areas. The
increasing demand for outdoor recreation means great numbers of people are
in the wildlands during holidays, weekends and vacation periods. Crowded
conditions in the forests and along the waterways result in dual exposure,
increased risk to the wildland resource and increased threat to life and
property from wildfires. Unfortunately, wildland residents are rarely
prepared for the inferno that can sweep through the brush and timber and
destroy their homes in minutes. Firefighters frequently find themselves
protecting lives and structures while the wildfire perimeter spreads rapidly
out of control threatening many additional structures.(Florida Department of
Community Affairs-Division of Emergency Management 1994, 57-59)
Technological Hazards
Hazardous Materials: The transportation and storage of hazardous
materials is a primary concern to emergency management directors and
personnel within the West Florida Region. A hazardous substance is any
substance which is toxic, in a liquid form, gas or a solid form, alone or in
combination with other substances, that has the potential to pose a hazard to
human health or to the environment when improperly released or handled.
Hazardous waste is distinct from hazardous materials in that hazardous
waste is considered a byproduct of hazardous materials. Examples of
hazardous materials include such items as pesticides, chlorine, ammonia and
sulfuric acid.
The major industries reporting under the Emergency Planning and
Community Right-To-Know Act (EPCRA) in Florida are chemical processors,
agriculture, phosphate mining and timber/paper production. Facilities
common to all of Florida are gas stations, water and wastewater treatment
plants, swimming pools and hospitals. (State Emergency Response
Commission, 6)
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Analysis of Evacuation and Sheltering Capacities
What is the present condition of the Region's evacuation, and sheltering capacities?
Emergency Evacuation: The Region's estimated 1993 population is
715,366 residents with most of the population living in one of the five coastal
counties: Bay; Escambia; Okaloosa; Santa Rosa; or Walton. In the event of a
hurricane evacuation, evacuating residents will drive into the northern areas
of these counties or into Alabama and Georgia or Holmes and Washington
counties. An evacuation tends to occur on a multi-county, multi-regional, or
multi-state level. As more vehicles enter the evacuation network, the longer
it will take to clear that evacuation traffic. Evacuation routes for counties
within the Region are shown on Figures 1-7 located at the end of this section.
Recent disasters in the State and Region have shown that evacuation plans
and scenarios are out of date and do not provide accurate clearance times for
the Region's population.
Recent events have shown that evacuation routes may be flooded due to the
low base roadway elevation and inadequate water flow capacity of existing
culverts and bridges. A mass evacuation places significant stress on
transportation networks. Portable signs may be used to direct evacuees to
high ground and the less congested roadways.
On October 3, 1995, Hurricane Opal was centered in the Gulf of Mexico east
of the Texas Coastline and expected to hit the southeast Louisiana coast near
New Orleans. However, in the early morning hours of October 4, the storm
took a more easterly course and intensified in not only strength, but speed,
thus catching the northwest panhandle area of Florida by surprise.
Residents awoke to find a storm moving 23 mph with wind speeds
approaching 150 mph, making Opal a powerful category 4 storm. Emergency
management officials ordered an evacuation of the low lying coastal areas
the previous day. Many residents in upland areas away from the coastal
flood zones decided to leave in the early morning hours of October 4. This
mass evacuation overwhelmed the roadway networks leading into Alabama
and Georgia. Evacuating vehicles were reduced to speeds of 5 mph, while
Opal was moving toward the coast at 23 mph. Eventually, law enforcement
agencies issued releases saying not to leave, and if an evacuee was in the
open it was recommended he seek shelter immediately.
An evacuation during the tourist season, which coincides with the hurricane
season, can double the number of evacuees. Many of these evacuees will
seek refuge in the states of Georgia and Alabama. It is therefore essential
that Emergency Management Directors coordinate evacuation strategies
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with Emergency Management directors from these two states.
Communication in and between counties in the Region, as well as
communication with Alabama and Georgia officials, is necessary to ensure
the evacuee's safety.
Emergency Sheltering: The identification of shelters is a local
responsibility. A disaster in the Region demands a large number of
adequately equipped, designed and managed shelters. Local schools, because
of size and space, are often chosen as designated shelters. Design criteria for
the use of schools as shelters are not consistent. Building codes for public
schools, community colleges, and universities do not include specific criteria
to enhance their use as shelters. Private investors need additional incentives
to include shelter provisions in the design and construction of commercial
buildings.(Ibid.) Public Shelter facilities are identified on the following list.
Public Shelter Facilities
Shelter Name
Shelter Address
City
Shelter
Capacity
Shelter
Category
Bay County
Callaway
7115 SR22
Callaway
300
5
Hiland Park
2507 E. Baldwin Rd.
Panama City
100
5
Merritt Brown
5601 Merritt Brown Rd.
Panama City
850
5
Mosley
3418 Mosely Dr.
Lynn Haven
1,350
5
Waller
State Road 388
Youngstown
100
5
Category 4 Shelter Capacity 2,700
Category 5 Shelter Capacity 2,700
Escambia County Primary Shelters
Beulah Elem
6201 Helms Rd.
Pensacola
500
5
Bratt Elem
5721 N. Hwy. 99
Century
200
5
Century H.S.
Hecker Rd.
Century
750
5
Ernest Ward H.S.
SR97
Walnut Hill
500
5
Northview High
4100 W. Hwy. 4
Century
2,000
5
Oakcrest Elem
1820 Hollywood Blvd.
Pensacola
300
5
Pine Meadow Elem
1001 Omar Ave.
Pensacola
300
5
Scenic Heights
Elem
3801 Cherry Laurel Dr.
Pensacola
750
5
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Washington H.S.
6000 College Blvd.
Pensacola
2,000
5
Wedgewood M.S.
3420 Pinestead Rd.
Pensacola
750
5
Escambia County Secondary Shelters
AA Dixon Elem
1201 N. H Street
Pensacola
500
5
Barrineau Park
Elem
Barrineau Pk. School Rd.
Molino
100
5
Bellview Elem
4425 Bellview Ave.
Pensacola
500
5
Bellview M.S.
6201 Mobile Hwy
Pensacola
1,000
5
Brownsville M.S.
1800 N. Kirk St.
Pensacola
1,000
5
Century Elem
Hecker Rd.
Century
250
5
Cordova Park Elem
2250 Semur Rd.
Pensacola
200
5
Ensley Elem
501 E. Johnson Ave.
Pensacola
200
5
Ferry Pass Elem
8310 N. Davis Hwy.
Pensacola
250
5
Ferry Pass M.S.
8455 Yancy Ave.
Pensacola
1,000
5
Holm Elem
6101 Lanier Dr.
Pensacola
200
5
Jim Allen Elem
Hwy 95A
Cantonment
500
5
Lipscomb Elem
10200 Ashton Brosnaham
Dr.
Pensacola
1,000
5
Montclair Elem
820 Massachusetts Ave.
Pensacola
200
5
Myrtle Grove Elem
6116 Lillian Hwy.
Pensacola
200
5
Ransom M.S.
W. Kingsfield
Cantonment
1,500
5
Semmes Elem
1250 Texar Dr.
Pensacola
200
5
Sherwood Elem
501 Cherokee Tr.
Pensacola
750
5
Spencer Bibbs
Elem
2005 N. 6th Ave.
Pensacola
300
5
Warrington M.S.
450 S. Old Corry Field Rd.
Pensacola
400
5
West Pensacola
Elem
801 N. 49th Ave.
Pensacola
500
5
Woodham H.S.
150 E. Burgess Rd.
Pensacola
917
5
Workman M.S.
6299 Lanier Dr.
Pensaola
750
5
Category 4 Shelter Capacity 20,467
Category 5 Shelter Capacity 20,467
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Holmes County
Bethleham H.S.
Hwy 177
Bonifay
287
5
Council on Aging
W. Kansas Ave.
Bonifay
25
5
Esto Town Hall
Hwy 79 N
Esto
80
5
Holmes Co. Ag.
Center
Hwy 90
Bonifay
200
5
Holmes H.S.
825 W. Hwy 90
Bonifay
30
5
Ponce de Leon H.S.
N Hwy 81
Ponce de Leon
287
5
Westville Town
Hall
Hwy 179-A
Westville
90
5
Choctawhatchee
H.S.
110 Race Track Road,
N.W.
Fort Walton
Beach
+-800
N/A
Lewis Middle
School
281 Mississippi Ave.
Valparaiso
N/A
N/A
Longwood
Elementary
50 Hollywood Ave.
Shalimar
N/A
N/A
Niceville H.S.
800 E John Sims Parkway
Niceville
N/A
N/A
First Baptist
Church
444 Hwy 190
Valparaiso
500
4
M. Bruner Jr. H.S.
322 Holmes Blvd.
Ft. Walton
2,500
4
Shalimar Elem
1350 Elgin Pkwy
Shalimar
500
4
Baker H.S.
1369 14th St
Baker
2,500
5
Crestview H.S.
1300 N. Ferdon Blvd.
Crestview
3,500
5
Laurel Hills H.S.
4th St
Laurel Hills
500
5
Okaloosa County
Category 4 Shelter Capacity 10,000
Category 5 Shelter Capacity 6,500
Santa Rosa County
Berryhill Elem
4900 Berryhill Rd.
Milton
1,000
5
Central H.S.
6180 Central School Rd.
Allentown
1,000
5
Chumuckla Elem
2312 Hwy 182
Jay
500
5
Hobbs M.S.
309 Glover Lane, S.W.
Milton
500
5
Jay H.S.
4955 Alabama St.
Jay
1,000
5
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King M.S.
2400 Steward St.
Milton
1,000
5
Locklin Vo-Tech
5330 Berryhill Rd.
Milton
600
5
Milton H.S.
103 N.E. Steward St.
Milton
350
5
Munson M.S.
11550 Munson
Milton
350
5
Pace H.S.
4065 Norris Rd.
Pace
950
5
Pea Ridge Elem
4775 School St.
Pace
600
5
DeFuniak Spr.
200
5
Freeport
200
5
1,150
5
300
5
Category 4 Shelter Capacity 7,850
Category 5 Shelter Capacity 7,850
Walton County
Defuniak Springs
Civic Center
361 N 10th St.
Freeport H.S.
Maude Saunders
Elem
John Baldwin
Paxton H.S.
DeFuniak Spr
Paxton
Walton H.S.
Walton Rd.
DeFuniak Spr.
1,340
5
Walton M.S.
Park Ave.
DeFuniak Spr.
1,700
5
West DeFuniak
Elem
Lincoln St.
DeFuniak Spr.
730
5
Category 4 Shelter Capacity 5,620
Category 5 Shelter Capacity 5,620
Washington County
Agriculture Center
Hwy 90 West
Chipley
20
5
Chipley H.S.
200 N. 2nd St.
Chipley
15
5
First Baptist
Church
200 S. Blvd.
Chipley
20
5
Vernon H.S.
1 Yellow Jacket Dr.
Vernon
15
5
Wash Co. Council
on Aging
408 South Blvd. West
Chipley
30
5
Category 4 Shelter Capacity 100
Category 5 Shelter Capacity 100
Note: N/A = Not Available
Source: Statewide Emergency Sheltering Plan, January 1996
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Manufactured homes and recreational vehicles (RVs), many of which are
used as primary residences, are extremely vulnerable to wind and water
damage. Many manufactured home sites are densely populated and do not
have shelters or facilities suitable for such use within the immediate
community (Table 3). Residents; therefore, must be evacuated to safe
shelters elsewhere.(Florida Department of Community Affairs-Division of
Emergency Management 1994, 170-180)
Table 3
Mobile Home Occupancy and Number Residents
County
Occupied
Mobile Homes
Estimated Residents*
Bay
8103
20,582
Escambia
8982
23,083
Holmes
1493
3,822
Okaloosa
5191
13,497
Santa Rosa
5639
15,113
Walton
2787
6,800
Washington
1652
4,213
*Estimated residents is the average number of residents per structure multiplied by the number of occupied mobile homes per county.
Source: Census of Population and Housing, 1990
The dynamic growth within the Region has outpaced the development of new
shelters. The number of needed shelter spaces in the Region is not precisely
known. The latest shelter analysis was performed in 1986 for the Tri-State
Hurricane Evacuation Study which showed a surplus of shelters for a
majority of the Region. In a behavioral analysis performed for the Tri-State
study it was determined that most evacuees would stay with family or
friends in upland areas or in a hotel/motel.(Hazards Management Group,
Inc. 1986, 53-61)
In planning for sheltering evacuees attention needs to be focused on
sheltering those evacuees who, because of lack of warning or ability, are not
able to leave the hazard area. Shelter in place for homes in high hazard
areas and for mobile homes and RVs is an important consideration in new
developments and mobile home parks.
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Special Needs Evacuees
Special needs evacuees are those persons who require assistance in
evacuating and special care in a shelter facility. This group includes the
elderly, handicapped, the hospitalized and nursing home patients. The
Region's percentage of elderly, an estimated 11%, creates an additional
burden on the counties sheltering and evacuating capabilities.
Ensuring the safe evacuation and sheltering of persons with special needs
has been a long-standing concern in the West Florida Region. Several issues,
such as transporting special needs evacuees, and providing medical care and
medical staff at shelters for special needs evacuees, create logistical and
planning concerns. Local emergency management directors anticipate that
special needs units/shelters may have to accommodate a significantly higher
number of people than are currently registered. Adding to this concern is the
recognition that the number of county medical personnel falls short of the
number needed to staff special needs units/shelters.
All nursing home facilities in the Region are required to have evacuation
plans for their patients. These plans must include means for transport and
care of the evacuees. Although many with special needs have a dependable
support network (spouse, family, friends, etc.) that would provide for their
needs, others do not. Through time the numbers of these persons in the flood
zone have been increasing, and there is no reason to expect that this will not
continue. Fortunately, programs such as the Transportation Disadvantaged
program have enabled public agencies to target and plan for the evacuation
and sheltering of great portions of these persons. However, the reality of the
ability to transport and shelter special needs evacuees is as serious for this
segment as it is for the overall population. The number of elderly residents
in each county in the region is shown in the following table.
Table 4
Population of Residents Aged 65+
County
# of Elderly
% of Total Population
Bay
16,883
12.6%
Escambia
33,052
12.1%
Holmes
2,652
16.2%
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
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Okaloosa
14,826
9.6%
Santa Rosa
9,108
10.1%
Walton
5,205
17.0%
Washington
3,216
18.3%
Region
84,942
11.9%
Source: Florida Statistical Abstract, 1994
The number of residents in each county registered with County Departments of Emergency
Management as requiring assistance in evacuation and/or requiring special care shelters is
shown in the table below.
Table 5
Special Needs Evacuees
County
# of Special
Needs
Special Needs Facilities
750
1
1,638
1
Holmes
N/A
N/A
Okaloosa
502
1
Santa Rosa
193
1
Walton
50
1
Washington
N/A
N/A
Region
N/A
N/A
Bay
Escambia
Source: 1995, County Emergency Management Agencies
Preparing the Region's Population
Are residents informed of the hazards of living in the Region?
Educating the Public: Although the compliance level to an evacuation
order within the Region is high, a crucial concern is whether or not the
citizens know how to properly evacuate. A move to educate the population is
underway. Education of the population includes what to do when an
evacuation order is given, what to take, and how to secure what is left behind
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
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when a family evacuates. Between 1990 and 1993 the State has seen a
population increase of 670,556, with 493,060, or 73.5 %, of this increase
coming from migration. An influx of new residents from areas outside of
Florida contributes to the increase in the coastal population. Most of these
residents have never lived in an area with a high susceptibility to natural
disasters, especially hurricanes and tropical storms. Many of these residents
may not be aware that they live in a flood zone or coastal high hazard area.(
University of Florida 1994, 44-45)
Pre-disaster education programs increase the public's awareness of
emergency management programs, educate the public on ways to protect life
and property, and inform the public on the availability of further assistance
and information. When the Region's citizens are prepared for, and
undertake appropriate protective actions, the demand for public resources
such as search and rescue, medical care, and evacuation equipment will be
reduced.
Mitigation
What hazard mitigation measures are implemented to reduce loss of life and property from
natural disasters?
The increased migration to the Region's coastal areas brings an increased
monetary cost to prepare for and recover from a hurricane or tropical storm.
State and local governments must take actions that are designed to avoid
hazards or to reduce the consequences of hazards prior to their
occurrence.(Smith and Deyle 1994, 16) Mitigation involves many different
processes to avoid or reduce the damage from a storm. Regulation of
construction and site development, planning mandates, acquisition of
property within the high hazard areas, economic incentives and education of
the public are policy instruments used in "mitigating" the cost, in both lives
and property, of natural disasters. The above policies are effective
mitigation tools, yet they represent policies which are not acceptable to
property rights advocates. Mitigation tools also raise legal and economic
questions, making implementation a complicated and uncertain process.
Following are mitigation measures implemented to lessen the effects of a
natural disaster.
Land Use Planning and Growth Management: Implementation and
enforcement of stringent local land use regulations, such as zoning
ordinances and subdivision requirements to reduce residential and
structural densities and associated infrastructure along the coasts and on
the barrier islands, can effectively mitigate damage to structures and loss of
life. Restrictions on land development and post-disaster redevelopment
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
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within hazard areas must be enforced by local governments. Policy
instruments implemented by the state to influence local government
compliance include:
1)
Legislative mandates designed to influence local
comprehensive planning and land use regulation;
2)
state acquisition of coastal property, thereby removing it from
the development market and;
3)
withholding state financial support for development
infrastructure such as water systems and sewer systems,
roads, and bridges. (Smith and others 1994, 19)
The Florida Legislature recognizes the hazards of development within the
State's coastal zone. Local coastal hazard mitigation planning requirements
are contained in state local comprehensive planning legislation. F.S.
163.3178 states that "...it is the intent of the Legislature that local
government comprehensive plans restrict development activities where such
activities would damage or destroy coastal resources, and that such plans
protect human life and limit public expenditures in areas that are subject to
destruction by natural disaster."(F.S.163.3178 1) However, local
governments are reluctant to implement policies which may reduce coastal
development, thereby reducing property tax revenue. In reviewing the
comprehensive plans of nine coastal counties, selected on the basis of storm
frequency and extent of development and coastal erosion, Richard A. Smith
and Robert E. Deyle assessed compliance with the specific "storm hazard
planning mandates in the State's 9J-5, F.A.C. regulations". None of the
plans were found to be in compliance.
According to Beatley, Brower and Schwab in their book An Introduction to
Coastal Zone Management many reasons exist for the inability of local
governments to enforce land use measures which would prevent development
in hazard areas. One possible explanation is the political influence on local
governments by constituents. As what seems to be the case in Florida, "local
political influences...do not take into account greater than local concerns.
Economic development and the pressure to create jobs and increase the tax
base may take precedence over other wider community goals".(Beatley and
others 1994, 132) Other mitigation instruments will have minimal effects
without strong commitment by local governments to implement and enforce
land use requirements which prevent development in the high hazard areas.
Emergency Management: Emergency management measures are those
measures which are implemented to respond to and recover from the effects
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
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of natural disasters. Effective emergency management measures mitigating
the destruction of critical facilities such as electric power, communications,
water, sewer and transportation will reduce loss of life and suffering in the
post-disaster period. Extended disruption of these facilities can have
devastating consequences for elderly, disabled, and infirm individuals.
Critical facilities should be retrofitted or relocated in order to withstand a
hurricane's effects. Essential equipment must be elevated above potential
flood levels. Furthermore, local governments should be prepared to provide
critical care assistance to those individuals requiring special assistance in
evacuation or sheltering until state response teams can enter the affected
areas and restore facilities damaged by the storm.(Florida Department of
Community Affairs-Division of Emergency Management 1994, 175-177)
Effective Building Codes: Another important tool for mitigating property
loses in high hazard areas is the "development, adoption, implementation,
and enforcement of effective building codes."(Department of Community
Affairs 1995, 157) All areas of Florida face windstorm threats. Any
structure that sustains destruction greater than or equal to 50% of the
market value of the building must be brought into compliance with current
Florida building codes. Many local governments do not adopt or enforce land
use requirements to curtail damage from natural disasters, nor do they
enforce current building codes. Furthermore, disaster assistance
compensation is usually not enough to cover the costs of compliance with the
code when replacing a structure that sustained more than 50 percent market
value damage.(Department of Community Affairs 1995, 203)
The recent experience with Hurricane Andrew highlights the damage done
due to the lack of, or inadequate, building codes. Many structures have
received substantial damage caused by the failure of the building "envelope".
Inadequate window, roof and door protection can result in the destruction of
the entire structure from either wind pressure or wind borne debris.
Elements which maintain the structural integrity of the envelope can be
engineered without requiring engineering for the entire structure.
Reenforcement of windows and doors can be accomplished with minimal
effort and cost.(Southern Building Code Congress International 1993, 1)
As is the case with wind load requirements, floodplain restrictions and
ordinances are loosely enforced. Development within the floodplain occurs in
many counties without the proper elevation above the base flood elevation. A
statewide standardization of the building codes and minimum construction
requirements coupled with adequate implementation and enforcement are
fundamental mitigation measures to reduce the structural damage from
natural disasters.(Department of Community Affairs-Division of Emergency
Management 1994, 203-206)
Development Management Techniques: Mitigation strategies, as they
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-17
relate to land use, are the most effective means to combat a storm's
destructive impacts. These impacts can best be minimized by directing
growth away from vulnerable areas. Development management techniques
such as property acquisition zoning and setback requirements are effective
tools to mitigate future loses from coastal storms in the hazard areas.
Many policy instruments are available to local planning agencies for the
control of development within the hazard zones in their communities.
"Zoning ordinances can be very useful...in accomplishing a variety of local
goals...to prohibit or reduce development in...high-risk hazard zones, thus
reducing exposure of people and property to hurricanes, riverine flooding,
and other coastal hazards."(Beatley and others 1994, 155)
Setback requirements for development in the coastal zone are an effective
means to limit development in the hazard areas by concentrating the
development in less-hazardous areas. Setback requirements have been used
in urban areas to provide land area for expanding infrastructure. Setbacks
can be used to create a buffer between development and the effects of
flooding and storm surge from hurricanes. Setback requirements will also
provide some protection from the effects of sea level rise.
Redevelopment of coastal structures after a storm should be constrained by
local governments to ensure damaged structures are not rebuilt and
damaged again. Alternatives to reconstruction include relocation, structural
modification, and public acquisition. The first step in determining which
method to use is taken after a storm hits. Local government decisions are
usually based on the threshold of destruction as a percentage of total value.
A common figure used to make this determination is a threshold of damage
in excess of 50% of total value.(Escambia County Comprehensive Plan 1993,
7-38) This figure is used in the National Flood Insurance Program (NFIP) to
determine when a structure is considered a total loss. Those structures
which are considered threatened need to be assessed to determine whether
relocation, modification, or acquisition of the structure is necessary to ensure
structural integrity before a storm hits.(Escambia County Comprehensive
Plan 1993, 7-39)
Relocation includes either physically moving a threatened or damaged
structure inland or to a less vulnerable site, or moving the contents or
services of the structure thereby discontinuing the use of the damaged
structure. Structural modification is the most commonly used
redevelopment tool to reduce damage done by successive storms. "When a
structure is damaged, insurance funds are used to reconstruct or repair the
structure. Often this involves modifications which make the structure more
resistant to storm damage. The concept of a threshold of damage would be
useful here to determine whether a structure will be repaired or
rebuilt."(Escambia County Comprehensive Plan 1993, 7-39) Structural
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-18
modification includes reenforcement and/or elevation. Some structures, such
as foundation graded houses or aged and dilapidated structures cannot be
modified by elevation or repair and have to be moved.
Public acquisition is the most effective mitigation tool. The local
governments can limit property development by acquiring property in a
hazard area. Vulnerable or damaged property may be acquired fee simple or
by easement, thereby restricting development by limiting use to recreation,
open space, or other public purpose.(Escambia County Comprehensive Plan
1993, 7-40) However, acquisition is very expensive especially in the coastal
areas where land prices are higher than inland areas due to the aesthetic
qualities of living on the shore. Furthermore, development of many coastal
areas is encouraged in order to increase tax revenue and support Florida's
tourist industry. Substantial investment in infrastructure has increased
access to these areas, making property acquisition more difficult.
Conclusion: The efforts to protect the Region's growing population within
the coastal zone from the devastating effects of hurricanes and tropical
storms is an expensive process involving numerous federal, state and local
agencies. Emergency preparedness plans and the resources needed to
implement these plans consume an enormous amount of revenue. The loss of
life from these storms and the potential loss from future storms is
staggering. However, Florida's tourism industry depends upon access to the
coast and the entertainment facilities located on the coast. A careful balance
needs to be reached between the economic aspects of living on the coast and
the survivability of coastal structures and their residents.
The creation of the State Comprehensive Emergency Management Plan
assigns responsibilities for response and recovery functions to different state
agencies. Sixteen emergency support functions are implemented by the
Governor and administered by different state agencies to help local entities
recover from a natural or manmade disaster. Stricter building codes and, in
the wake of Hurricane Andrew, wind load requirements have been
implemented throughout the state. However, individual county compliance
with the new standards is difficult to measure until after a disaster strikes
at which time enforcement is too late.
Mitigation techniques such as land use restrictions provide protection from
loss of life and damage to existing structures. Regulating development
through the implementation of coastal construction control lines, zoning
ordinances and setback requirements, thereby reserving hazard areas for
open space and recreation uses, provides the surest means of protecting lives
and property. However, these policies must be balanced with economic
development in order to be successful.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-19
Mitigation Measures for Hazardous Materials
Use of materials which are hazardous to health and safety are a necessary
part of our modern lifestyles. Industry, utilities, commercial services and
governments use hazardous materials daily. The types and quantities of
hazardous materials used vary, depending on products or services being
produced.
Hazardous materials emergencies may involve the potential for fire,
explosion, and/or escape into air or water. All of these scenarios have the
potential to directly affect the surrounding population. Confronting, or being
exposed to a hazardous materials emergency, puts people at risk of being
killed or seriously injured. Emergency responders trained in hazardous
materials emergencies are the only people who should approach a hazardous
materials incident.
The most effective means for preventing loss of life and/or injury from a
hazardous materials spill is to keep people away from hazardous materials
storage facilities and transportation networks. It is impossible to keep
everyone away from these sites; however, land use regulations which prevent
the location of a school or a child care facility next to a hazardous materials
facility should be enacted. The location of hazardous materials storage
facilities in floodplains or coastal high hazard areas should not be permitted.
More transportation accidents involving hazardous materials occur each year
in West Florida than accidents occurring at fixed facilities. Transportation
accidents are of great concern to the Local Emergency Planning Committee
(LEPC) members and regional emergency management directors, as well as
each county and community as a whole. Such incidents can happen on any
roadway, railway or pipeline, as well as rivers, the intracoastal waterway
and in the Gulf of Mexico. This risk is more geographically widespread than
that of the fixed facilities which are required to report under
EPCRA.(District I Local Emergency Planning Committee 1994, XV-I)
Shelter-in-Place: Two protective procedures could be enacted by
emergency management officials in a hazardous materials emergency. They
are "shelter-in-place" and "evacuation". Once emergency management
officials determine the severity of a hazardous materials incident, they will
advise the public on appropriate procedures to take. In any hazardous
materials emergency, all people in the immediate area should be directed to
shelter-in-place until further information is received from emergency
management officials.
Shelter-in-place involves getting and keeping people indoors away from
exposure to hazardous materials. By sheltering indoors, people are less
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-20
likely to be exposed to concentrated plumes of hazardous vapors being
released or from potential fires or explosions.
Evacuation: Evacuation includes leaving the premises of the affected area
for safer areas. Orders and directions for evacuation will be issued through
county emergency management officials, based on the situation at that time.
All facilities storing extremely hazardous substances have vulnerable zones
which include heavily populated areas throughout the Region. Vulnerable
zones have been established by county emergency management and District I
Local Emergency Planning Committee computer models.(District I Local
Emergency Planning Committee 1994, I-7/I-10)
Warning: In Escambia and Santa Rosa counties a private sector operated
"ring down" system called the "Community Alert Network," or CAN has been
contracted to provide a computerized calling system to residential and
business areas affected by an emergency. County Emergency Management
offices can activate the CAN system when a given area is determined to be at
risk in an emergency, including a hazardous materials emergency. A
computer system will call all telephone numbers in an affected area and
allow the recipient of the call to respond to the request made by the
computer call on behalf of emergency management. The CAN system was
successfully tested in the District I LEPC's regional exercise in 1993. CAN is
provided to Escambia and Santa Rosa Counties from the private
contributions of local industries and businesses.
Response: The Region's counties have formed mutual aid agreements with
surrounding counties and with municipalities. These agreements include:
conditions; rules and standards governing any mutual aid; provisions for
immunity from liability; waiver of claims and indemnification from third
party claims; notification of persons authorized to request or invoke mutual
aid; compensation consideration; and procedures for the direction of
personnel and units rendering aid.
Escambia County may receive mutual aid assistance from adjoining and
neighboring counties. The 17 volunteer Fire Departments presently operate
under a 24 hour mutual aid system supporting any department as needed.
Additional assistance can be requested from Monsanto's Hazardous
Materials Team, fire departments in Santa Rosa and Okaloosa Counties in
Florida and Baldwin and Escambia County in Alabama. The County
Volunteer Fire Departments also have mutual aid assistance available from
the U.S. Navy. The county volunteer fire departments will provide mutual
aid assistance to the City of Pensacola Fire Department as requested. The
City of Pensacola Fire Department entered into a mutual aid agreement with
Escambia County to provide fire service outside of the City as warranted.
Okaloosa County has a written Mutual Aid Agreement with Eglin Air Force
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-21
Base and Hurlburt Field. Hazardous materials teams in Okaloosa County
include: Okaloosa Special Hazardous Incident Team, Eglin AFB Hazardous
Materials Team, and Hurlburt Field Hazardous Materials Team.
All hazardous materials teams in Okaloosa County will respond to any
incident in Okaloosa County. All three teams were trained by the same
instructors, and have an identical command system. The Okaloosa Special
Hazardous Incident Team will respond to any chemical incident in the
Florida Panhandle Region.
In Santa Rosa County there is a definite lack of equipment and properly
trained personnel to respond to and contain releases or spills of hazardous
materials throughout the County. Because of this problem and for other
obvious reasons the volunteer fire departments have entered into a mutual
aid agreement with the local chemical industries, Air Products and American
Cyanamid, and the fire departments at Whiting Field Naval Air Station, all
of which have trained personnel and equipment to handle hazardous
materials problems. Until such time as funding and educational programs
are completed by the volunteer organizations, there will be heavy reliance on
private industry and the military.
Walton and Washington Counties have mutual aid agreements between their
two counties and surrounding counties and municipalities. Mutual Aid
Agreements exist between Holmes County and Bay, Calhoun, Gulf, Jackson,
Walton, and Washington counties.
Bay County's hazardous materials response team will respond to requests
from adjoining Counties if they are not needed in Bay County. Bay County's
team and another county hazardous materials response team in Okaloosa
County are the only county teams in the Region. It is strongly recommended
that another team be established in the west end of the Region that can
quickly respond to a release of hazardous materials in this area.(District I
Local Emergency Planning Committee 1994, I-13)
Conclusion: The transport and storage of hazardous materials throughout
the Region is a necessary process for the industries, utilities, and commercial
businesses which use these materials in their operations. The most effective
way to prevent loss of life and injury from a release of chemicals is to keep
people out of the areas were these chemicals are stored and transported.
However, the amount of chemicals in the area, coupled with the Region's
population invalidates this option. Nearly all residents of the West Florida
Region are exposed to the presence of hazardous chemicals from the
transportation or storage of these materials.
A hazardous chemical release requires a quick response and an effective
warning system. A combination of highly trained emergency response
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-22
personnel, along with mitigation techniques such as proper siting of new
facilities, provides the next best form of protection against an accidental
release. An education program focusing on the civilian population, teaching
them how to respond to and survive a release will also help to save lives.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-23
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West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-24
GOALS AND POLICIES
PRIORITY 1:
Regional Hurricane Evacuation Study
GOAL 1: Develop a new hurricane evacuation, shelter and behavioral analysis
study, replacing the Tri-State Study, to provide state and local emergency
management agencies with realistic, quantitative data pertaining to the major
factors affecting decision making under hurricane threats.
Indicators:
!
New or updated hurricane evacuation study.
Policy 1.1: The West Florida Region's county Emergency Management
Directors shall coordinate planning efforts with the Department of
Community Affairs-Division of Emergency Management officials in
developing the new study.
Policy 1.2: Emergency Management Directors from Alabama and Georgia
shall be consulted in any hurricane evacuation and shelter plans.
Policy 1.3: Annual conferences with Emergency Management Directors and
planners from Alabama, Georgia and Florida shall continue with emphasis
placed on the development of the new plan.
Policy 1.4: Once completed, this plan shall be distributed and circulated to
schools, universities, libraries and other public institutions.
Policy 1.5: The Emergency Preparedness element, SRPP Priority 1, shall
serve as a request by the West Florida Region for State monetary and
technical assistance in the preparation of a region-wide hurricane study.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-25
PRIORITY 2:
Coastal Development
GOAL 1: Reduce high-density residential development within Coastal High
Hazard Areas and restrict the reconstruction of damaged and destroyed
structures within Coastal High Hazard Areas.
Indicators:
!
Change in residential development in Coastal High Hazard Areas (CHHA)
!
Change in total population residing in CHHA
!
Change in evacuation clearance times.
Policy 1.1: Local governments shall limit public expenditures for future
development in coastal high hazard areas that increase residential density.
Policy 1.2: New and post-disaster non-water dependent development should
be located outside of Coastal High Hazard Areas.
Policy 1.3: Coastal counties within the West Florida Region should insure
that those developments within the Coastal High Hazard Areas will
withstand a category two (2) hurricane.
Policy 1.4: Property that has been destroyed or damaged as the result of a
hurricane or storm wave or tidal action should be acquired whenever
financially feasible.
Policy 1.5: Acquire hurricane vulnerable land, including channels, low-lying
areas, and shoreline whenever financially feasible.
Policy 1.6: Discourage high density residential development from locating
in areas most vulnerable to hurricanes.
Policy 1.7: Require that deeds in hurricane vulnerable areas be
accompanied by a disclosure statement describing the potential hurricane
hazards for that property.
Policy 1.8: Allow no new construction or redevelopment that threatens the
stability of dunes or the beach itself. All new construction should be
restricted to areas landward of the primary dune line or Coastal
Construction Control Line.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-26
Policy 1.9: Long-term erosion rates should be among the review criteria for
proposed construction of beach structures.
Policy 1.10: Support effective enforcement of National Flood Insurance
Program regulations for floodplain development as well as local government
participation in the Community Rating System.
PRIORITY 3:
Evacuation Shelters
GOAL 1: Local public facilities shall provide for the sheltering of residents
forced to evacuate because of a natural or technological disaster.
Indicators:
!
Change in amount of shelter space designated to house evacuees.
Policy 1.1: Local Governments shall identify shelter needs and capacities
and keep a listing of public facilities suitable for use as evacuation shelters.
Policy 1.2: Public school, community college and university design criteria
must be consistent and include specific criteria enhancing their use as
evacuation shelters.
Policy 1.3: Provide additional incentives for private investors to include
shelter provisions in the design and construction of commercial buildings in
coastal high hazard areas or floodprone areas.
Policy 1.4: Local and state regulations should require condominium, mobile
home park, or recreational vehicle park developments located outside of
surge impact areas to identify where sheltering can be provided in a safe,
efficient manner.
Policy 1.5: Local and state regulations should require mobile home
developments to have storm evacuation centers on-site with sufficient
structural characteristics, warning systems, and evacuation procedures for
the resident population in the event of wind conditions.
Policy 1.6: Establish a procedure for prioritizing, retrofitting and
mitigating projects to effectively increase shelter capacity and occupant
safety.
Policy 1.7: Through intergovernmental coordination, maximize the
planning and utilization of existing shelter capacity at the local, regional and
state level.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-27
Policy 1.8: Ensure all residential health care facilities have the capability
to evacuate and/or shelter residents.
Policy 1.9: Restrict development through density limitations from resource
limited areas, such as barrier islands, where analyses clearly indicate that
additional development would overburden shelter capacities.
PRIORITY 4:
Special Needs Evacuees
GOAL 1: Identify those with special evacuation needs, and have in place
planning standards for the evacuation of those residents with special needs as
well as the safe transportation and sheltering for these residents.
Indicators:
!
Change in local emergency management plans for evacuating special needs residents.
Policy 1.1: Include additional disaster preparedness requirements for
existing and new developments whose future residents, including the elderly,
might have limited mobility or demand specialized attention.
Policy 1.2: Provide for special shelter needs for frail, elderly, handicapped,
persons with special medical/support conditions, and people with other
conditions requiring specialized attention, not within a regular shelter.
Policy 1.3: Require all nursing homes and care facilities to provide
adequate transport for evacuees, and staff on hand to care for evacuees, in
the case of an emergency evacuation.
PRIORITY 5:
Hazardous Materials
GOAL 1: Reduce the risk of injury and/or death from the release of chemical
hazards at storage facilities and along transportation networks and increase the
Region's readiness to respond to and contain a toxic release by improved training
and increased funding.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-28
Indicators:
!
Change in numbers of reported injuries from chemical hazards.
!
Change in funding and training for emergency response.
Policy 1.1: By 2005, create an additional Hazardous Response Team, with
proper training and funding (private and public), in the metropolitan area of
Escambia County.
Policy 1.2: Continue and expand the Bay County Hazardous Materials
Team's funding and training.
Policy 1.3: Continue and expand the Okaloosa County Special Hazardous
Incident Team's funding and training.
Policy 1.4: Develop, and annually update a resource list which details to
the extent possible the availability of resources which could be used during a
hazardous materials release or spill.
Policy 1.5: The (LEPC) in cooperation with county Emergency Management
Directors and State Emergency Response Commission (SERC) should assist
all responders, including volunteers and professionals, in receiving
hazardous materials response training at the lowest possible cost.
Policy 1.6: Interagency and interdepartmental communication and
coordination should be improved. This includes consistent language,
frequency management and usage, and information sharing on the scene and
at critical locations such as Emergency Operations Centers, hospitals and
Emergency Communications Centers.
Policy 1.7: Emergency communication procedures should be specified
through intergovernmental/interagency agreements. Testing and review of
agreements and equipment should occur on a regular basis.
Policy 1.8: Training should be provided to emergency responders and
medical personnel to accommodate the physical health needs of victims of a
hazardous materials incident.
Policy 1.9: Each agency in cooperation with county Emergency
Management Directors and the Local Emergency Management Committee
(LEPC) should ensure that all responders, including volunteers and
professionals receive updated information regarding treatment of victims
contaminated with the common chemicals found in the Region.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-29
Policy 1.10: Ensure hospital emergency room staff are prepared to properly
assist contaminated patients and are knowledgeable of proper protection
and decontamination techniques.
Policy 1.11: The LEPC should continue and enhance its efforts to include
agencies, departments, and individuals necessary and desirable for effective
emergency planning activities.
Policy 1.12: State offered training courses should be offered in subregions
of the West Florida Region at times that facilitate participation by Volunteer
Fire Department personnel. These training courses should not exclude any
professional responders.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-30
SOURCES
Beatley, Timothy, David J. Brower, and Anna K. Schwab. An Introduction to
Coastal Zone Management. Washington, D.C.: Island Press, 1994.
Deyle, Robert E. and Richard A. Smith. "Storm Hazard Mitigation
Policies for Florida." Governing Florida 4:2 (Spring/Summer 1994):
15-21.
Doyle, Larry J. et al. Living with the West Florida Shore. Durham, North
Carolina: Duke University Press, 1984.
Federal Emergency Management Agency. "Answers to Questions About the
National Flood Insurance Program." 1994.
Florida Department of Community Affairs 1995 Florida Land Plan: the State
Land Development Plan Public Workshop Draft. Tallahassee, Florida,
1995.
Florida Department of Community Affairs-Division of Emergency
Management, State of Florida Comprehensive Emergency
Management Plan. Tallahassee, Florida, 1994.
Florida Department of Community Affairs-Division of Emergency
Management, State of Florida Hazard Mitigation Plan. Tallahassee,
Florida, 1994.
J.E. Dorman & Associates, Inc. Foundation Document for the Revised
Escambia County Comprehensive Plan. Volume III, 1993.
Kaufman, Wallace and Orrin H. Pilkey, Jr. The Beaches are Moving: The
Drowning of America's Shoreline. Durham, North Carolina: Duke
University Press, 1983.
Southern Building Code Congress International Inc. Standard for Hurricane
Resistant Residential Construction. Birmingham, AL. 1993.
West Publishing Company. Selected Environmental Law Statutes. 19931994 Educational Edition.
West Florida SRPP ! Emergency Preparedness ! Adopted 7/15/96
III-31
IV.
NATURAL RESOURCES OF
REGIONAL SIGNIFICANCE
Acronyms
CARL-Conservation and Recreational Land
COBRA-Coastal Barrier Resource Act
CSS-Coastal Systems Station
DEP-Department of Environmental Protection (State of Florida)
DNR-Department of Natural Resources (State of Florida-now apart of DEP)
DOI-United States Department of Interior
EPA-United States Environmental Protection Agency
FCREPA-Florida Committee on Rare and Endangered Plants and Animals
FGFWFC-Florida Game and Fresh Water Fish Commission
FNAI-Florida Natural Areas Inventory
GICWW-Gulf Intra Coastal Water Way
NAS-Naval Air Station
NOLF-Naval Outlying Field
NWFWMD-Northwest Florida Water Management District
OFW-Outstanding Florida Water
REW-Regional Ecological Workshops
SOR-Save Our Rivers Program
SSC-Species of Special Concern
SWIM-Surface Water Improvement and Management Program
TNC-The Nature Conservancy
USFWS-United States Fish and Wildlife Service
Contents ! Natural Resources of Regional Significance
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Surface Water, Save Our River, Ground Water, and Coastal and Marine Resources (Map 1)
Surface Water Resources (Map 1)
River Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Substate Designated Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Table 1:Save Our Rivers & Preservation 2000 Program (Map 1) . . . . . 19
Water Management District's Management Areas . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Table 2: WMD's Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Planning and Management Areas (Map 2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
National Designated Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
State Designated Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 0
Table 3: State Recreation Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 1
Table 4: State Wildlife Management Areas . . . . . . . . . . . . . . . . . . . . . . . . 33
State Forests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
Table 5: State Forests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
Outstanding Florida Waters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56
Table 6: Outstanding Florida Waters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56
Conservation and Recreational Lands (CARL) Program Acquisitions . . . . . . . . . . 58
Table 7: CARL in West Florida . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
Privately Owned Conservation Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
Table 8: Privately Owned Conservation Areas . . . . . . . . . . . . . . . . . . . . . . 6 0
SWIM Waterbodies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 0
Table 9: SWIM Waterbodies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 1
Class I and Class II Waters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 1
Table 10: Class I and Class II Waters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 1
Open Waters Sources (Map 1 and 2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 3
Ground Water (Map 1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 4
Coastal and Marine Resources (Map 1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 6
Wetlands (Map 3) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 1
Table 11: West Florida Estuaries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 3
*Natural Systems (FNAI) (Map 5 and 6) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 77
*Florida Game & Fresh Water Fish Commission Strategic Habitat
*Conservation Areas (Map 7) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 3
*Resources by Geographic Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
Goals and Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89
Sources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 0 2
MAPS:
1
2
3
5
6
7
Surface Water, Save Our River, Ground Water, and Coastal and Marine Resources
Planning and Management Areas
Wetlands
*FNAI Natural Systems
*FNAI Natural Systems
*Strategic Habitat Conservation Areas
* Adopted Amendment 9/8/97
West Florida SRPP ! Natural Resources of Regional Significance ! Section IV
TRENDS & CONDITIONS STATEMENT ! GOALS & POLICIES
NATURAL RESOURCES OF REGIONAL SIGNIFICANCE
Introduction
The Natural Resources of Regional Significance element is a combination of State Goals
8 through 10 of the Comprehensive Regional Policy Plan (CRPP). The Strategic
Regional Policy Plan (SRPP) covers these State Goals in more depth.
"Natural Resources of Regional Significance" means a natural resource or system of
interrelated natural resources that due to its function, size, rarity, or endangerment retains
or provides benefit of regional significance to the natural or human environment,
regardless of ownership. Each council shall address natural resources of regional
significance through the development of goals and policies. Using the best and most
recent information available, these resources will be identified by specific geographic
location rather than solely by generic type.
There are three categories of resources:
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!
!
Surface Water, Save Our River (SOR), Ground Water, and Coastal and
Marine Resources;
Planning and Management Areas; and
Wetlands.
Significant Regional Resources are identified on regional maps which will be revised as
new areas are identified or when new data becomes available.
The maps should be used for planning purposes only. Resolution of these graphic
products will only support regional planning purposes and should not be substituted for onsite surveys required for environmental assessments.
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Surface Water, Ground Water, Coastal and Marine Resources, and Save Our River (Map 1)
Surface Water
Surface water is plentiful throughout the West Florida Region, with major uses including
cooling and processing, recreation, and the support of natural systems. Only Bay County
(Panama City metropolitan area) uses surface water for public supply. The physical,
chemical, and biological characteristics of surface waters in the Region are variable and
complex (District Water Management Plan, 11). Generally, however, the streams can be
divided into two main types: streams that receive most of their flow from direct runoff
from rainfall or from the Sand-and-Gravel Aquifer, and streams that receive most of their
flow from the Floridan Aquifer (Ibid., 11). The streams that receive their flow from
rainfall, and the Sand-and-Gravel Aquifer, have waters that are acidic and low in
dissolved minerals (Ibid., 11). In contrast, the streams that receive heavy contributions
from the Floridan Aquifer have high mineral concentrations and an almost neutral pH
level. The Floridan Aquifer feeds on rivers located in the central and eastern portions of
the Region (Ibid., 11).
Rivers, lakes, and estuaries in the Region continue to have good water quality, and
several are near pristine water bodies. Major pollution sources in the Region include
runoff from urbanized areas, agriculture, silviculture, and construction activities. Several
low volume wastewater treatment plants located in rural areas are overloaded and/or
operating poorly (Ibid., 11). Rapid coastal development in the Region threatens several
bays and lagoon waters. Finally, high volume point source discharges from pulp and
paper mills greatly affect local water quality (District Water Management Plan, 11). The
river systems and their major tributaries in our Region are shown on Map 1 and described
below.
River Systems
Perdido River and Bay Watershed: Perdido Bay, the Perdido River and its environs
(925 square miles) form the western boundary of the State of Florida. Because of the
interstate characteristics of the political boundary, protective efforts for the Perdido Bay
System require coordination between many governmental agencies. As a result, state
and county agencies have been reluctant to invest in protecting the basin through property
acquisition or land use controls. This reluctance is also prevalent in neighboring Alabama.
Industrial discharge from a nearby paper mill and impacts to the bay from residential
septic systems and stormwater outfalls have contributed to declining quality in the bay.
Because of its size and miles of shoreline, the Perdido Bay System exhibits
characteristics of regional environmental significance. Tremendous interstate
coordination will be required to retain and rebuild quality in the system. Private
sector/public sector cooperation needs to be nurtured (Identification, 1-1).
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Originating at the confluence of Fletcher and Perdido creeks near Bay Minette, Alabama,
the Perdido River serves as the state line separating Florida from Alabama. The Perdido
River enters Perdido Bay about fifteen (15) miles west of Pensacola, Florida. Perdido is
a Spanish name that means "lost"; this name relates to the hidden nature of Perdido Bay.
The basin of the Perdido River encompasses 913 square miles. Ninety-six (96) out of a
total of 220 river miles (25%) of the River are located in Florida. Many small streams
run into the Perdido River, but the major tributary is the River Styx, originating in
Alabama (Florida Rivers Assessment, 217).
The Perdido River flows from Escambia County, Alabama to Perdido Bay. The state
classifies a twenty-four (24) mile length of the River as a state canoe trail (Map 2). It is
very popular with canoeists and swimmers, and is a popular fishing area. Unlike many
other rivers in West Florida, Perdido River is located close to a major urban center
(Pensacola). Impacts on its banks in both states threaten the future quality of the River
(Identification, 1-1).
Once, public discussion centered on having the Perdido River designated as a National
Scenic River. This effort was made because of the necessary interstate coordination for
total basin protection. Discussions of a National Scenic River designation have fallen
short of expectations. Other problems include Escambia County (Florida) government's
attempt to prevent a hazardous waste transfer station from locating in the Perdido River
Basin (Identification, 1-1).
Other than the Perdido River State Canoe Trail, Perdido Key State Recreation Area
(administered by DEP/DNR) provides a large publicly owned access to waters of the
bay. This park preserves a habitat for the Perdido Key Beach Mouse (an endangered
species) and coastal barrier dunes and vegetation.
There are no ports located on Perdido Bay or in the River. The Gulf Intracoastal
Waterway (GICWW) skirts the southern boundary of the bay. Private docks and
marinas are common, especially in the lower bay near the Gulf of Mexico and the
Perdido Pass (Identification, 1-1).
The water quality of the upper basin of the Perdido River is good. However, the lower
region, which is tidally affected, has fair to poor water quality. The Florida Department
of Environmental Protection (DEP) gave the River a Class III designation. The River's
intended use is for recreation, propagation and maintenance of a healthy, well-balanced
population of fish and wildlife (Florida Rivers Assessment, 271).
The upper portion of the Perdido River has both straight sections with modest banks,
three to five feet high, and long curves with large gravel and sandbars on most bends. In
the lower portion of the River, above the bay, the Perdido cuts through a series of
hardpans, sandy soils partly cemented with minerals. These cuts form low but steep
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bluffs and escarpments around the bay and lower parts of the River. As the Perdido
River becomes tidal, sloughs and bayous are formed (Ibid., 271).
Perdido Bay is threatened by point and non-point sources of pollution. Elevenmile and
Bayou Marcus creeks are the major water quality problem areas in the basin (District
Water Management Plan, 11). Dioxin contamination is a concern because Champion
Paper Company discharges into Elevenmile Creek. Fish taken from the creek have had
tissue levels of dioxin ranging from 8.1 to 25.7 parts-per-trillion (the Environmental
Protection Agency (EPA) recommended maximum level is seven (7) parts-per-trillion)
(Ibid., 12). Bayou Marcus Creek receives urban runoff and discharge from a
wastewater treatment facility. Perdido River has good water quality except for the area
at the mouth of the River that is affected by poorer quality bay water.
The upper Perdido River runs through forests with banks lined with Red Cedar, White
Cedar, cypress trees and other upland hardwoods. Being in a remote portion of Florida,
the Perdido has many biological values. For most of its length, except a certain segment,
the Perdido is classified as a blackwater stream by the Florida Natural Areas Inventory
(FNAI). Pristine examples of these streams are becoming increasingly hard to find. The
FNAI database also has a record for a seepage slope along one of the River's segments.
The Perdido River corridor is a concentration area for songbirds, warblers, shorebirds,
waterfowl, Peregrine Falcons, diving ducks, raptors, Stoddard's Yellow-throated
Warblers, and dabbling ducks. Striped Bass also migrate through all the segments of the
Perdido (Florida Rivers Assessment, 271).
The range of several botanical species includes the Perdido River drainage, although the
FNAI database has no listings for any plant species from within the corridor itself. The
expected endangered species include the Panhandle Lily, Orange Azalea, and White-top
Pitcherplant. Threatened botanical species could include the Water Sundew, Mountain
Laurel, and the Large-leaved Jointweed (Ibid., 271).
Three rare fish species may be found in Perdido River. The Saltmarsh Topminnow, a
species of special concern, is known only from a few collected specimens. The Florida
Game and Fresh Water Fish Commission has also collected the Crystal Darter and the
Goldstripe Darter from the Perdido River, both species listed as threatened by the Florida
Committee on Rare and Endangered Plants and Animals (FCREPA) (Florida Rivers
Assessment, 271).
Expected with the study corridor of the Perdido are species such as the endangered
Wood Stork, the threatened Florida Black Bear, the threatened Beach Mouse, Bald
Eagle, and Southeastern American Kestrel. Species of special concern likely to be found
in the Perdido River basin include the Gopher Tortoise and the Alligator Snapping Turtle.
Exotic species such as the Torpedograss, Elephant-ear and Alligator-weed have also
invaded the River corridor (Ibid., 271).
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Pensacola Bay System: The Pensacola Bay System (approximately 7,000 square
miles) is an estuarine water body of state submerged lands. Surrounding lands include a
mixed variety of privately and publicly owned properties. The Pensacola Bay System
includes Pensacola Bay, Escambia Bay, East Bay, Blackwater Bay, and Santa Rosa
Sound east to the City of Mary Esther in Okaloosa County. Significant rivers entering
these bays include the Escambia, Yellow and Blackwater Rivers. Smaller tributaries and
bayous associated with this bay system include Grand Lagoon, Bayou Grande, Bayou
Chico, Bayou Texar, Indian Bayou, Trout Bayou, Mullato Bayou, East Bay Bayou and
East Bay River. Open surface water areas cover 144 square miles. The entire drainage
basin, or watershed, covers some 7,000 square miles, including sizable portions of south
central Alabama (Identification, 2-1).
The Department of Environmental Protection designates the waters in the bay as Class II
Shellfishing Waters and Class III Waters. Recreational and commercial fishing is
commonplace in these waters. Swimming, snorkeling, and boating are extremely popular
(Identification, 2-1).
Two major ports, including the Port of Pensacola and Naval Air Station Pensacola are
dependent on the bay for shipping and safe harbor. The Gulf Intracoastal Waterway
passes through Pensacola Bay proper and through Santa Rosa Sound. Industries on the
Escambia River are dependent on barge shipments through the bays. The bay bottom
has many archaeological sites from shipwrecks dating from the 1500's. A great portion
of the quality of life of Santa Rosa, Escambia and Okaloosa Counties is directly
dependent on the quality and availability of natural resources in the Pensacola Bay
System (Ibid., 2-1).
The Escambia, Blackwater, and Yellow rivers all drain into the Pensacola Bay system, a
SWIM priority waterbody. These rivers generally have good water quality except for
localized downstream point source pollution. The Escambia River is affected by domestic
discharge in the northern reach and industrial discharge in the south (District Water
Management Plan, 12). Trammel Creek in the Yellow River Basin shows degraded
conditions due to domestic discharges and a wastewater treatment plant that has a history
of discharge violations. Although the water quality of the Escambia, Blackwater, Yellow,
and Perdido rivers is good, all four rivers have a mercury problem. Limited fish
consumption advisories have been issued due to the high concentrations of mercury found
in the tissue of largemouth bass in these rivers (District Water Management Plan, 12).
Water quality problems in the Pensacola Bay basin are associated with urbanization
around the City of Pensacola. The western bay receives the bulk of treated wastewater
and urban runoff while Escambia Bay receives mostly industrial discharges (Ibid., 12).
Some urban bayous in Pensacola have severe water quality problems that are a result of
current and historical industrial discharges and stormwater runoff (Ibid., 12).
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Escambia River: The Escambia River begins at the confluence of the Conecuh River
and Escambia Creek above the Florida-Alabama border. The River forms the boundary
for Santa Rosa and Escambia counties, Florida. The Escambia River flows
approximately 54 miles south from the stateline to Escambia Bay. Its drainage basin
encompasses a total of 4,200 square miles of which ten (10) percent are in Florida. In
the upper reaches of the Escambia River, the soil is sandy and well-drained. As the
River flows through the lower segments, it creates sloughs and backwaters as it travels
into the low swampy area below Molino, Florida, before entering Escambia Bay (Florida
Rivers Assessment, 139).
The Escambia River meanders through a broad river valley with cutoffs and oxbow
lakes. Islands are frequent. According to DEP the average flow is 6,500 cubic feet per
second, although the flow rate is highly variable. The Escambia River is mostly fed by
rain, but there are a few springs along the River (i.e., Chumuckla mineral springs)
(Florida Rivers Assessment, 139).
The River corridor contains a rich diversity of biological species and biological
communities. The Escambia River is a concentration area for songbirds, warblers,
shorebirds, waterfowl, diving ducks, Peregrine Falcons, and raptors. There have been
several imperiled biological communities listed on the Escambia River: seepage slope,
slope forest, and alluvial stream. Ravine and steephead communities occur along the
Escambia River as well (Ibid., 139).
According to FNAI, the endangered Pyramid Magnolia occurs in the Escambia River
corridor. Other endangered botanical species that probably occur within the larger
Escambia River basin are the Panhandle Lily, Orange Azalea, White-top Pitcherplant,
and Trailing Arbutus.
The Escambia River contains several species of rare fishes. On the State list are the
threatened Crystal Darter and four species of special concern, the Atlantic Sturgeon,
Harlequin Darter, Saltmarsh Topminnow, and Bluenose Shiner; other rare fishes include
the Goldstripe Darter, Cypress Darter, Speckled Chub, Cypress Minnow, River
Redhorse, and Saddleback Darter, all of which are classified as threatened by the Florida
Committee on Rare and Endangered Plants and Animals (FCREPA). The exotic Grass
Carp has also been caught from the Escambia River (Florida Rivers Assessment, 139).
The Alligator Snapping Turtle is the only State-designated wildlife species in the FNAI
database within the Escambia River corridor. Other designated wildlife species that are
undoubtedly in the Escambia River drainage area include the threatened Florida Black
Bear, Southeastern American Kestrel, and Bald Eagle and species of special concern
such as the Gopher Tortoise, Osprey, and the expected herons and egrets. The
Escambia River is also one of the few rivers in the State that has records of the Smokey
Shadowfly, a threatened species according to the Florida Committee on Rare and
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Endangered Plants and Animals (FCREPA). The American Redstart and the Louisiana
Waterthrush, both are classified as rare by the Florida Committee on Rare and
Endangered Plants and Animals (FCREPA), and are found in the northern portions of the
Escambia River as well. The Eastern Chipmunk, a species of special concern, can be
found on the western banks of the Escambia River. Several exotic botanical species
grow along the River, including Parrot Feather, Torpedograss, Eurasian Watermilfoil, and
Alligator-Weed (Florida Rivers Assessment, 140).
Yellow River: The Yellow River has its headwater in Covington County, Alabama, in
the Conecuh National Forest, at the confluence of Hog Foot and Limestone Creeks. The
River enters Florida near Laurel Hill and flows southwesterly through Okaloosa County.
The Yellow is joined by its major tributary, the Shoal River, five miles below Crestview.
The Yellow River empties into Blackwater Bay along the boundaries of Eglin Air Force
Base (Ibid., 433).
The Yellow River Basin drains approximately 1210 square miles near Holt, Florida. The
River has a length of about 92 miles in Florida. Milligan and Crestview, Florida, are the
largest towns in the basin. It is a narrow river with clear tan water and a sand bottom
resulting in a "yellow" appearance. In the upper areas, the Yellow River is swift and
shallow, but in the lower areas, it is deeper and sluggish as it flows through the low marsh
areas of the coastal region (Florida Rivers Assessment, 433).
The Yellow River exhibits some of the most pristine water quality in the State of Florida.
All areas have good water quality. The Yellow River is classified as Class III by the
Department of Environmental Protection (DEP). The River's intended use is for
recreation, propagation and maintenance of a healthy population of fish and wildlife (Ibid.,
433).
Like its neighboring rivers to the west, the Blackwater and Big Coldwater rivers, the
Yellow River drains the western highlands. Unlike those rivers, it does not flow through
a wide valley, but cuts into the highlands in several places that produces several areas of
high bluffs. The Yellow River's drainage basin is the highest in Florida and subsequently
flows swifter than other rivers in Florida. The Shoal discharges an average of 1,100
cubic feet per second of water into the Yellow River. The rate of flow for the Yellow
River averages 2,200 cubic feet per second near Holt, Florida. The River carries more
sediment than other rivers resulting in cloudier water (Ibid., 433).
The Yellow River's extensive wetlands provide a habitat for several designated plant and
animal species. Because of its northern location and origins, the Yellow River also
supports several species of wildlife normally found in northern areas as well. There is
more aquatic vegetation in the Yellow River than in many rivers to the west (Florida
Rivers Assessment, 433). The FNAI database contains several occurrences of seepage
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slopes along the River. This naturally-rare biological community is the home for two
designated frog species in Florida.
The Yellow River corridor encompasses the range of several endangered botanical
species but the FNAI database has only one of these species documented, the Sweet
Pitcher-plant. Other state-designated endangered species that may occur along the
Yellow River include the Panhandle Lily, Orange Azalea, Ashe's Magnolia, and the
White-top Pitcher Plant (Ibid., 433).
The Yellow River is the home of four state-designated fish species. The endangered
Blackmouth Shiner has been documented from the Yellow River. The Saltmarsh
Topminnow, Atlantic Sturgeon, the Bluenose Shiner, are three documented species that
are species of special concern. The Blackmouth Shiner is known at a few localities in
Florida. Other species that occur in the Yellow River drainage include the Speckled
Chub and the Goldstripe Darter, both threatened species according to The Florida
Committee on Rare and Endangered Plants and Animals (FCREPA). The only exotic
fish species documented from the Yellow River is the Grass Carp (Ibid., 433).
Besides the fishes, there are several species of special concern recorded from the
Yellow River and are in the FNAI database. These species include the Pine Barrens
Tree Frog, Florida Bog Frog, Alligator Snapping Turtle, Gopher Tortoise, and the Eastern
Chipmunk.
The Yellow River is unusual biologically in having several species of invertebrates that
are virtually endemic to the Yellow River area. There are three species of mayflies
along the River listed by the Fish and Wildlife Services. Another dragonfly species is
known in Florida only from the Yellow River drainage and is listed as threatened by The
Florida Committee on Rare and Endangered Plants and Animals (FCREPA) (Florida
Rivers Assessment, 434).
Blackwater River. The Blackwater River originates north of Bradley, Alabama, and
flows down to Blackwater Bay in Northwestern Florida. The River flows through the
Conecuh National Forest in Alabama, then across the Alabama-Florida border. Before
reaching Blackwater Bay, it passes closely by Whiting U.S. Naval Field and then the
town of Milton, Florida. The River flows through portions of Santa Rosa and Okaloosa
counties draining about 860 square miles, according to the Department of Environmental
Protection (DEP). Most of the Blackwater River in Florida is contained in the
Blackwater River State Forest and State Park (Florida Rivers Assessment, 95).
The Blackwater River's major tributaries are Juniper Creek, Big Coldwater Creek, and
Pond Creek. The Blackwater River's current is swift and shallow. It should be noted
that blackwater rivers do not have black water. Instead, the water is red-colored due to
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the water's high concentrations of tannic and organic acids from nearby swamps and
forests according to Carter and Pearce (1985) (Florida Rivers Assessment, 95).
Overall water quality of the Blackwater River basin is good, and it's designated as an
Outstanding Florida Water. The River is classified as Class III by the Department of
Environmental Protection (DEP), meaning that its intended use is for recreation,
propagation and maintenance of a healthy, well-balanced population of fish and wildlife
(Florida Rivers Assessment, 95).
The Blackwater River has a fine sandy bottom and wide sandbars on the inside meander
bends. The outside of the bends have steep banks cut into yellow clay. The River ends,
via Blackwater Bay, in East Bay, which is an eastern extension of Escambia Bay.
Big Coldwater Creek and East Fork. This river originates in Santa Rosa County and
is the most western stream of the Blackwater River State Forest. The upper section of
the Big Coldwater and East Fork runs through the dense Calloway Swamp. The River is
characterized by a very narrow width, and swift, shallow water. The Big Coldwater is a
major tributary of the Blackwater River. The drainage area of this river is approximately
237 square miles near Milton, Florida (Florida Rivers Assessment, 83).
The water quality of the Big Coldwater and East Fork is good. It is classified by the
Department of Environmental Protection (DEP) as a Class III water body. The intended
use is for recreation, propagation and maintenance of a healthy, well-balanced population
of fish and wildlife. The Big Coldwater Creek and East Fork, like most streams in
northwest Florida, receive large and uniform discharges of ground water from the sand
and gravel aquifer that moderate the annual variation in stream flow (Florida Rivers
Assessment, 83).
The Big Coldwater and East Fork has been specially designated as the Coldwater Creek
Canoe Trail by the Department of Natural Resources (DNR). Florida's natural beauty
and unique environment beckon to residents and visitors alike. Recognizing the incredible
appeal of Florida to outdoor enthusiasts of all kinds, the Florida Recreational Trails Act of
1979 authorized the establishment of a network of recreation, scenic, and historic trails.
The Department of Natural Resources (DNR) has officially designated 36 canoe trails
under this Act (Florida Recreational Trail System). The canoe trails in our Region are
identified in Map 2 and are listed below:
CANOE TRAIL
COUNTY
Blackwater River
Okaloosa
Coldwater Creek
Santa Rosa
Econfina Creek
Bay and Washington
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CANOE TRAIL
COUNTY
Holmes Creek
Holmes
Perdido River
Escambia
Shoal River
Okaloosa and Walton
Sweetwater/Juniper Creeks
Okaloosa
Yellow River
Okaloosa and Santa Rosa
Source: "Florida Recreational Trail System," Department of Natural Resources
The Blackwater River State Forest is on part of the Big Coldwater Creek and East Fork
River. The Blackwater River State Forest is a recreation and conservation land that
allows multiple uses. The forest, managed by the Florida Department of Agriculture and
Consumer Services and the Division of Forestry, also serves as the Blackwater Wildlife
Management Area. Florida Game and Fresh Water Fish Commission manages the
wildlife management area. The wildlife management area harbors deer, turkey, and small
game for hunting (Florida Rivers Assessment, 83).
Shoal River: The Shoal River is 27 miles in length and is located in central Okaloosa
and Walton Counties. This blackwater river is locally popular for canoeing and
swimming. The Shoal River flows into the Yellow River to the southwest of Crestview.
Lower portions of the canoe trail are next to Eglin Air Force Base (Identification, 2-8).
The Shoal River originates in Walton County, Florida, north of DeFuniak Springs. This
river is the only major tributary of the Yellow River. The Shoal River is fed by Gum,
Turkey, Long and Titi creeks as it drains some of the highest land in Florida. The Shoal
River basin encompasses 478 square miles. The River flows west for fifteen miles
across Walton County then turns southwesterly in Okaloosa County until its confluence
with the Yellow River five miles south of Crestview, Florida, near the boundary of Eglin
Air Force Base. The Shoal River is a classic, sand-bottom creek with clear, tan waters.
The River's narrow waterway is shallow, usually only a few feet deep (Florida Rivers
Assessment, 335).
The Shoal River has good overall water quality. The River has been declared an
Outstanding Florida Water (OFW). It is a Class III water body intended for recreation,
propagation and maintenance of a healthy, well-balanced population of fish and wildlife.
The Shoal River discharges an average of 1,100 cubic feet per second into the Yellow
River, according to DEP. The River drains western highlands, and flows very swiftly
during times of high water. Above the Shoal River's crossing by Interstate 10, the River
has cut a deep and narrow valley into the highlands. Below Interstate 10, the valley
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begins to widen before the Shoal River joins the Yellow River (Florida Rivers
Assessment, 335).
Several biological communities classified as rare (i.e., either S1 or S2) within the State of
Florida by FNAI occur along the Shoal River. These are seepage slopes and shrub bogs
communities, which are often habitats for rare amphibians, and the slope forest, which
has one of the highest species diversities in Florida. In addition, special wildlife areas
occur along the Shoal River. The Shoal River is a concentration area for warblers,
shorebirds, waterfowl and accipiters during appropriate seasons (Florida Rivers
Assessment, 335).
Two designated botanical species are found within the Shoal River corridor: the
endangered Panhandle Lily and threatened Yellow Fringeless Orchid. With its northern
Panhandle location, several other endangered plants may be expected as well, including
the White-top Pitcher Plant, Orange Azalea, Silky Camellia, Trailing Arbutus, and
Wiregrass Gentian (Ibid., 335).
The endangered Blackmouth Shiner fish species occurs in the Shoal River. This species
is one of only three species in the State of Florida to receive this designation. Two other
species on the Official State List are the Bluenose Shiner and the Atlantic Sturgeon, both
species of special concern. Other fish species found in the Shoal River are the Goldstripe
Darter and the Speckled Chub. These species are listed as threatened by the Florida
Committee on Rare and Endangered Plants and Animals (FCREPA). An exotic fish
species, the Grass Carp, occurs in the Shoal River. However, it is fairly rare because
there is little natural, submergent aquatic vegetation in the Shoal River for this fish (Ibid.,
335).
The FNAI database documents the threatened Red-cockaded Woodpecker and the
Florida Pine Snake, Gopher Tortoise, and Pine Barrens Tree Frog, all three being species
of special concern, as occurring in the Shoal River corridor. The Florida Bog Frog, a
species of special concern, is known to occur in the Titi Creek drainage of the Shoal
River. Other species that probably occur in the basin at least on occasions include the
endangered Wood Stork, the threatened Florida Black Bear, Eastern Indigo Snake, Bald
Eagle, and Southern American Kestrel (Florida Rivers Assessment, 335).
Being part of the larger Yellow River drainage basin, the Shoal River, like the Yellow and
Blackwater River, has three species of mayflies that burrow into the sand, a rare
adaption for this type of insect. These three species of mayflies occur nowhere else in
the world other than these three river basins (Ibid., 335).
Choctawhatchee River: (4,748 square miles) The Choctawhatchee River originates in
Alabama and flows into the Choctawhatchee Bay. The River drains roughly 3,300
square miles of northwest Florida and is the second largest floodplain in Florida.
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According to Carter and Pearce (1985), the River is over 170 miles long from its
headwaters in Alabama to the Choctawhatchee Bay. In Florida, tributaries such as
Wright Creek and Holmes Creek and springs such as Blue Spring and Morrison Spring
feed the River (Florida Rivers Assessment, 113).
The River traverses Holmes, Washington and Walton Counties in the Florida panhandle.
An alluvial stream, the Choctawhatchee is broad, shallow, and usually yellow in color.
Within Florida, the River is calm and remote, with huge sandbars up to fifteen acres in
size. The Choctawhatchee River has a variety of terrain features including both
floodplain and upland forests, marshes, and swamps (Ibid., 113).
Eleven principal vegetation communities have been identified from within the floodplain of
the Choctawhatchee, with the two dominant ones being Tupelo-Cypress swamp and
bottomland hardwoods. A variety of wildlife is plentiful along the Choctawhatchee.
Much of the River corridor is undeveloped and provides a habitat for many native
species, including endangered plants and animals. The River is a breeding and migratory
area for both the Gar and the Atlantic Sturgeon. The Northwest Florida Water
Management District owns 51,228 acres along the River, which are dedicated to the
protection of water resources and ecosystems (Ibid., 114).
Florida Natural Areas Inventory (FNAI) lists the River as an alluvial stream. Alluvial
streams have turbid water with silt, clay, and sand particles. These streams have
sediment-derived floodplain with natural levees just inland from their banks. Alluvial
streams are restricted to the Panhandle of Florida and are naturally rare in the State
(Ibid., 114).
The FNAI database contains records for several designated botanical species along the
Choctawhatchee River corridor. Endangered plant species include Ashe's Magnolia and
the Orange Azalea. The threatened Heartleaf is also within the quarter mile corridor, as
is Cooley's Meadowrue, a species under consideration for listing by the Fish and Wildlife
Service. Other designated plant species, with range encompassing the Choctawhatchee
River, are the endangered Panhandle Lily and Wiregrass Gentian. The Panhandle Lily
grows in bogs and mucky soils along creeks, and has become endangered due to drainage
of its natural habitat and to over collection. The Wiregrass Gentian is also endangered
due to destruction of its habitat, the long-leaf pine forests. The Orange Azalea is
endangered due to over collection by home gardeners. No major exotic botanical species
has been documented from this river (Florida Rivers Assessment, 114).
Two designated fish species inhabit the Choctawhatchee River, the Bluenose Shiner and
the Atlantic Sturgeon, both species of special concern. The Atlantic Sturgeon lives in the
ocean, but spawns in freshwater, and takes a long time to achieve sexual maturity. Fish
species listed by The Florida Committee on Rare and Endangered Plants and Animals
(FCREPA) documented from the Choctawhatchee include the Dusky Shiner, Goldstripe
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-12
Darter, Cypress Darter, and Speckled Chub. Two exotic fish species have been caught
on the River, the Grass Carp and Blackchin Tilapia. The Grass Carp can eliminate some
native vegetation if the carp population grows too large and the Blackchin Tilapia may
compete excessively with some species of native fishes (Ibid., 114).
The only designated wildlife species within the one-quarter mile corridor of the
Choctawhatchee River corridor in the FNAI database are the Florida Pine Snake and the
Pine Barrens Tree Frog, both species of special concern. Athearn's Villosa, a freshwater
clam, is also found there and is currently under review for designation by the U.S. Fish
and Wildlife Service. However, the Choctawhatchee River basin includes the ranges of
many more designated species that may be expected to be found near the River. These
include the threatened Eastern Indigo Snake and Florida Black Bear; and several species
of special concern such as the Gopher Tortoise, Florida Gopher Frog, and Osprey (Florida
Rivers Assessment, 114).
Besides Athearn's Villosa, the Choctawhatchee has three other species of mollusks
restricted to the Choctawhatchee River basin. These are the Clench's Elimia, a snail, and
two species of clams, Jones' Lampsilid Clam and Haddleton's Lampsilid Clam. Although
these three are not designated by either the State of Florida or the U.S. Fish and Wildlife
Services, all three are considered imperiled by the Florida Committee on Rare and
Endangered Plants and Animals (FCREPA) as species of special concern (Ibid., 114).
A large part of the Choctawhatchee River is protected by the Northwest Florida Water
Management District. The Water Management District owns 51,228 acres extending
from just west of the mouth of the river to near the Alabama state line (Map 2). The
area surrounding the mouth of the River is protected by the Nature Conservancy (TNC).
The Nature Conservancy (TNC) owns 2,760 acres next to the Choctawhatchee Bay.
The Choctawhatchee Bay System's watershed provides the backdrop for the Fort Walton
Beach metropolitan area. Thirty-four (34) percent of the watershed is located in Florida.
The other 66% of the watershed is located in Alabama. A major estuarine body, this bay
provides extensive recreation, fisheries, and nursery grounds for invertebrates and fish.
The Choctawhatchee Bay and its environs are the backbone for the Fort Walton
Beach/Destin tourist industry. Extensive wetlands area surrounds the bay (Map 3).
Submerged grassbeds are common in many areas. The greatest wetlands concentration
is in the eastern end of the bay at the mouths of the Choctawhatchee River. Destin
Harbor, Cinco Bayou (also known as Five Mile Bayou), Garnier Bayou, Boggy Bayou,
Rocky Bayou, and Jolly Bay are significant backwaters in the bay (Identification, 3-2).
Significant development surrounds the bay. However, extensive undeveloped areas
remain in many areas. Fort Walton Beach, Destin, Niceville and Freeport are the major
communities near the bay. Unincorporated areas include the vast majority of
Developments of Regional Impact (DRI) in the Regional Planning Council District. DRIs
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-13
include Sandestin, Bluewater Bay, and Emerald Bay. Coastal development on Moreno
Point (which includes the City of Destin) is occurring rapidly. Fort Walton Beach
development, on the other hand, has already occurred and is built out. Eglin Air Force
Base, although predominantly in its natural state, also has extensive developments for
housing and defense purposes. Pollution from sources such as stormwater runoff and
non-point sources is probably the greatest threat to bay quality. Marinas have contributed
to higher than normal heavy metal counts in some areas. The most recent major
development was the construction of the Mid-Bay Bridge, extending from near Niceville
to Destin (Identification, 3-2).
Although the Choctawhatchee River has generally good water quality, it has been
moderately affected by agricultural runoff (turbidity, nutrients, pesticides, etc.) (District
Water Management Plan, 12). Several tributary systems within the basin have problems
caused by domestic and industrial discharge. Most of the small treatment plants in the
area have been recently upgraded or are in the process of being upgraded under consent
orders. Choctawhatchee Bay's water quality is threatened by the development of its
watershed. Of major concern are an effluent disposal spray field and urban runoff from
the developed areas of Ft. Walton Beach and Destin (District Water Management Plan,
12).
A wide array of recreational activities occurs in the bay system. Boating, swimming,
waterskiing and jet skiing are the most common recreation forms. Portions of the bay are
classified as Class II Shellfishing Waters. Commercial fishing, a common occupation, is
based out of wharves in the Niceville, Fort Walton Beach, and Freeport areas. East Pass
at Destin is the primary outlet for boats into the Gulf of Mexico. The Gulf Intracoastal
Waterway passes through the middle of the bay and it connects on the west with Santa
Rosa Sound at The Narrows. The Intracoastal Waterway enters a man-made canal at
the east end of the bay en route to Panama City. Port facilities are at Niceville and
Freeport (Identification, 3-2). Degradation to the environmental quality of
Choctawhatchee Bay would have regional implications.
Holmes Creek: The Holmes Creek serves as the boundary between Holmes and
Jackson counties. Just above Vernon in Washington County, Holmes Creek receives
waters from Becton and Cypress Springs with a drainage area of approximately 386
square miles. Below Vernon, Holmes Creek flows southwest approximately twentythree miles to its confluence with the Choctawhatchee River. Holmes Creek is the
largest tributary of the Choctawhatchee. The River mainly traverses low, swampy
terrain, but has areas of high banks. Holmes Creek is a beautiful river, with a variety of
oaks, magnolia, cypress, maples, and black gums reflecting in clear green (Florida Rivers
Assessment, 171). The Northwest Florida Water Management District owns a
considerable portion of the Holmes Creek floodplain below Vernon, Florida.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-14
Holmes Creek begins in the Crystal River formation of the Eocene series, crosses to
Marianna Limestone of the Oligocene series, moves to Duncan Church beds, then flows
across the Chattahoochee and Chipola formations of the Miocene series and finally joins
the Choctawhatchee River on lower marine and estuarine terrace deposits of recent and
Pleistocene series. There are several springs along Holmes Creek, including Blue Spring,
Cypress Springs and Becton Springs. Holmes Creek discharges an average of 1,050
cubic feet of water per second into the Choctawhatchee River (Ibid., 171).
Holmes Creek and associated corridor provide a habitat for a variety of fish and wildlife.
Holmes Creek is a popular stream with fishermen. The endangered Ashe's Magnolia has
been documented within the Holmes Creek corridor. Because of its northern Florida
panhandle location, several other state-designated endangered plant species may grow in
the Holmes Creek watershed including the Wild Columbine, Smooth Barked St. John's
Wort, Orange Azalea, Silky Camellia, and the White-top Pitcherplant. The threatened
Apalachicola Wild Indigo and Water Sundew are found in the Holmes Creek drainage
basin, as well. The Bureau of Aquatic Plant Management reports no exotic plant species
from Holmes Creek (Florida Rivers Assessment, 171).
The Bluenose Shiner, a species of special concern on the State list, has been collected
from Holmes Creek. The Dusky Shiner and the Goldstripe Darter, both listed by the
Florida Committee on Rare and Endangered Plants and Animals (FCREPA), are also
known from Holmes Creek. This waterway is also unusual in being a northern stream
with an exotic tilapia in it, the Blackchin Tilapia. This fish competes with native fishes
and may displace some species (Ibid., 171).
There are no element occurrences in the FNAI database in the Holmes Creek corridor
for state-designated species. FNAI does have records for two species of special
concern that are the Clench's Elimia and the Dougherty Plain Cave Crayfish (Ibid., 171).
Both invertebrates have an extremely restricted distribution. In the large Holmes Creek
drainage basin, state-designated wildlife that may be found includes the threatened
Eastern Indigo Snake, Southeastern American Kestrel, and the Bald Eagle. Species of
special concern as the Gopher Tortoise, Florida Gopher Frog, and the herons and egrets
such as the Tricolored Heron are found here, too.
St. Andrew Bay System: (1,351 square miles) This bay system is located in Bay
County. These submerged lands are within one county. The watershed for the bay
system, however, extends into other counties in the central west Florida panhandle. The
recreational, ecological, and commercial impacts of this system on West Florida make this
a regionally significant environmental resource (Identification, 4-1).
The Bay is made up of four distinct bays: North Bay, West Bay, East Bay and St.
Andrews Bay. Two passes enter from the Gulf of Mexico. The natural and historical
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-15
pass lies at the eastern terminus of Shell Island, while the modern ship channel is at the
western end of that island (Identification, 4-1).
Several areas of the bay system are designated as Class II Shellfish Waters. Deer Point
Lake Dam, in the northern end of North Bay, is the source for potable water in Bay
County. Deer Point Lake is designated as Class I Potable Waters (Identification, 4-1).
Bay County's economy is greatly dependent on the bay system. The Intracoastal
Waterway passes through each bay, serving several major industries and the Port of
Panama City. Recreational boating and fishing are popular pastimes and a feature for
tourist brochures. Large areas of salt marshes and seagrass beds provide nursery
grounds for small fish and invertebrates (Identification, 4-1).
Urban and natural areas occur along the Bay system's shoreline. Tyndall Air Force Base
lines the shore in much of East Bay (much of this area is natural). The Cities of Panama
City, Springfield, Parker, and Lynn Haven are located on most of the shorelines of North
and St. Andrew Bays. Development in the unincorporated area is found in the Grand
Lagoon area near the west side of St. Andrew Bay. The Bay Point Development of
Regional Impact has substantial frontage and marina facilities in the Grand Lagoon area.
The shoreline of West Bay is largely undeveloped (Identification, 4-1).
Recreational overuse, shoreline development, stormwater, and industrial discharge and
accidents are probably the greatest threats to the bay's water quality. St. Andrew Bay
has good circulation to the Gulf. Other bays, however, have poorer circulation,
threatening oxygen levels and natural biological activity. Endangered birds, turtles, fish
and occasionally manatees use the bay. Loss of bay resources in an immediate sense or
over the long term threaten the quality of life in Bay County and the regional planning
district. Salt marshes and beaches of various types and quality surround the bay system.
Large areas of seagrass beds cover the bay bottoms. Shell Island and Bird Island serve
as nesting sites for marine bird species. The bay system serves as a nursery ground for
small fish and invertebrates that ultimately contribute to the fishing and recreational
industries (Identification, 4-1).
St. Andrews Bay has generally good water quality except the areas around paper mill
discharges. Watson and Beatty bayous, in the Panama City area, are degraded by urban
stormwater and wastewater treatment plant discharges (District Water Management
Plan, 12). High concentrations of lead, mercury, DDT, chlordane, PCBs, and other
polycyclic aromatic hydrocarbons have been found in the sediment of Watson Bayou
(Ibid., 12). Deer Point Lake, a SWIM priority waterbody within St. Andrews watershed,
is the primary drinking water source for Bay County. The water quality of the lake and
its tributaries is quite good; however, localized pollution problems exist, and development
in the watershed may cause water problems in the future (Ibid., 12). Both Deer Point
Lake and Econfina Creek, have largemouth bass limited consumption advisories.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Econfina State Canoe Trail: (22 miles in length) This canoe trail begins in extreme
northern Bay County, enters the southwestern portion of Washington County, and
reenters Bay County north of County Road 388. The River is popular with canoeists. It
is the primary tributary of Deer Point Lake, a primary source of potable water in Bay
County. Several first magnitude springs feed the creek. High limestone bluffs line the
creek in its upper reaches. Water is clear and swift flowing. Unique plant communities
surround the banks, with some areas being of magnificent beauty. The stream cuts
through the sandhills region of Washington County, a primary aquifer recharge area.
Quality of water in Econfina Creek is vital to Deer Point Lake (Identification, 4-3).
Econfina Creek: Econfina Creek, which flows through Jackson, Washington, and Bay
counties, is a favorite run for experienced canoeists. The creek is a major tributary to
Deer Point Lake and has a drainage area of 129 square miles. Econfina Creek is best
known for its superb scenery and its various geological and hydrological features (Florida
Rivers Assessment, 121). Econfina Creek has, according to DEP, good water quality.
Deer Point Lake is the major potable water supply for Bay County. The Lake, along
with its tributaries, is classified as Class I waters intended as potable water supplies.
The Econfina originates in a region of the Northern Highlands called New Hope Ridge.
Its spectacular cascades of water, yellow sand bluffs and beautiful limestone walls make
up a superb scenery cherished by experienced canoeists. Upstream from Mitchell Mill
Creek there are high-walled flumes interspersed with more shallow water. Near Mitchell
Mill Creek an unnamed spring flows into the Econfina from the east bank. Another small
spring, Walsingham Spring, flows from the west bank about a quarter mile below Mitchell
Mill Creek (Ibid., 121). A few miles downstream, the Blue Springs runs into the Econfina
from the east.
Below Blue Springs there are high limestone banks. The limestone walls are graced with
fern and Oak-Leaf Hydrangea. Above State Route 20 there are several small springs
entering from the west bank, such as Wilford and Pitt Springs. Gainer Springs is one mile
south of State Route 20 and is one of Florida's twenty-seven first magnitude springs.
Emerald Springs discharge from under a twenty-foot limestone bank (Ibid., 121).
The many springs along the Econfina generate a constant discharge. According to the
Northwest Florida Water Management District, this constant discharge generates a large
base flow in the Econfina. The large base flow creates an unusual condition in that the
minimum flow (2.5 cubic feet per square mile) of the Econfina is larger than the average
flow of any of the large streams in north Florida. The average flow is about 500 cubic
feet per second 11 miles upstream of the creek's mouth (Ibid., 121). NWFWMD owns
7,271 acres along the Econfina Creek including all of the springs mentioned above except
for the western part of Gainer Springs.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-17
There are many tree and shrub species along the Econfina River's pristine corridor
including dogwoods, redbuds, Mountain laurel, wild azalea, Red Maple, and Carolina
Silver Bell, pine, and oak. Animals use the creek corridor as well. The area around
County Road 167 and U.S. 231 is a warbler concentration area. The Florida Natural
Areas Inventory has listed many spring-run streams along the Econfina, an imperiled
biological community in Florida because of human disturbances. Spring-run streams have
clear water, circumneutral pH and often, a limestone bottom. The FNAI also has
element occurrences for the imperiled slope forest community that occurs on the slopes in
a bluff or sheltered ravines. The slope forest community contains the highest species
diversity in the State. The Econfina Creek drainage basin also contains sandhill
communities (Florida Rivers Assessment, 121).
The FNAI database has three botanical species recorded along the Econfina Creek
corridor. These are the endangered Pyramid Magnolia, the threatened Florida Anise, and
the Toothed Savory, a species being considered for listing by the U.S. Fish and Wildlife
Services. The Pyramid Magnolia is endangered by the development of the slope forest
community. At least three other endangered species could be found in the larger
Econfina River basin. These are the Orange Azalea, Ash's Magnolia, and the White-top
Pitcherplant. The endangered Smooth-Barked St. John's Wort is known primarily from
Lake Merial, a few miles west of Econfina Creek and probably does not occur within the
Econfina Creek corridor. It should still be looked for in any botanical survey of the basin.
Except the Eurasian Watermilifoil that can impede water flow and boat traffic, exotic
botanical species do not present a problem along the River (Florida Rivers Assessment,
121).
There are no records of any state-designated fish species along Econfina Creek. The
Spotted Bullhead, has a limited Florida distribution and is listed as rare by the Florida
Committee on Rare and Endangered Plants and Animals (FCREPA), can be found in the
Creek. There are no exotic fish species in the Econfina at this time.
The endangered West Indian Manatee has been recorded from the Econfina Creek and
documented in the FNAI database. Other designated species recorded from the
Econfina include the threatened Eastern Indigo Snake and the Limpkin and Gopher
Tortoise, both species of special concern. Species that undoubtedly occur or use the
larger Econfina Creek basin include the endangered Wood Stork, the threatened
Southeastern American Kestrel, Florida Black Bear, Bald Eagle, and the Osprey, a
species of special concern (Florida Rivers Assessment).
Substate Designated Areas :
"Save Our Rivers" Program Acquisitions (existing and proposed):
In 1981, the Florida Legislature established a new program known as the "Save Our
Rivers" that provided funds to the state's five water management districts to acquire land
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-18
for water management purposes. The legislation actually created Section 373.59, Florida
Statutes, that is known as the Water Management Lands Trust Fund. It allows the
District to acquire the fee or other "less than fee" interests for:
! Water Management,
! Water Supply or
! Conservation or Protection of Water Resources (Five Year Plan, 3).
Revenue for the Water Management Lands Trust Fund comes from a statewide
documentary stamp tax on real estate sales. Northwest Florida Water Management
District annually receives up to 10% of this fund from the State for acquisition and
management activities (Five Year Plan, 3). The "Save Our Rivers" projects in our
Region are found in Table 1.
Preservation 2000 Lands (existing and proposed): In 1990, the Florida Legislature
began the Preservation 2000 program. Intended specifically to preserve as many as
possible of the unspoiled lands needed to maintain the state's quality of life, the program is
projected to be funded for ten years through the sale of bonds that annually total $300
million. The five water management districts receive 30 percent of this fund, and the
Northwest Florida Water Management District receives 10 percent of that total, or
between $8 million and $9 million annually. This important source of funding has helped
to accelerate acquisitions under the Save Our Rivers (SOR) program.
Preservation 2000 acquisitions by the District must meet at least one of the following
criteria besides those established for the Save Our Rivers program:
!
Project is in imminent danger of development;
!
A significant portion of the land is in imminent danger of subdivision;
!
Land value is appreciating rapidly,
!
Project serves to protect or recharge ground water, valuable natural
resources or provides space for resource-based recreation;
!
Project can be purchased at 80 percent of appraised value or less; or
!
Project protects habitat for endangered/threatened species or natural
communities (Five Year Plan, 5).
As of November 30, 1995, the District has acquired some 54,208 acres of valuable
wetlands with Preservation 2000 funds.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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The 1992 Legislature made it possible for the District to make payments to compensate
qualifying counties for ad valorem tax losses that resulted from acquisition of land under
either the Save Our Rivers or Preservation 2000 programs (Ibid., 5).
In the first three years of this program, more than $68,000 of total payments were
reimbursed to Holmes, Jackson, Liberty, and Washington counties (Five Year Plan, 5).
Existing and proposed purchases of the Preservation 2000 programs are shown in Table
1.
Table 1
Water Management District Lands (Map 1) and
Preservation 2000 Lands (Map 2)
"Save Our Rivers" Acquisitions
Land/Date Acquired
Acres
County (Acres)
Previous Owner
Escambia (12/19/84)
17,998
Escambia-4,794
Santa Rosa-13,204
The Nature Conservancy,
the St. Regis Paper
Company
Garcon Point (12/6/91)
1,864
Santa Rosa
F.D.I.C.
Choctawhatchee River/Holmes
Creek (12/2/85)
35,253
Bay-999
Holmes-2,371
Walton-18,267
Washington-13,616
Econfina Creek
(4/2/93)
(6/1/93)
189(4/2/93)
5.5(6/1/93)
Bay
Garcon Point (9/1/93)
78*
Santa Rosa
Various
*District has acquired an undivided one-half interest in this 78-acre tract.
Table 1
Acres
County
(Acres)
Previous Owner
14,094
Escambia-7,201
Santa Rosa-6,893
Champion International
Preservation 2000
Land/Date Acquired
Additions (4/26/94)
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Table 1
Acres
County
(Acres)
Previous Owner
Additions: Escambia River
(8/19/94)
1,144
Santa Rosa
Boley
Additions: Escambia River
(4/28/95)
478
Escambia
Gillmore
Additions: Escambia River
(7/18/95)
106
Escambia
Premier Bank
Donations-Robinson Estate:
Escambia River (10/15/92)
138
Escambia/ Santa Rosa
Robinson Estate
Donations-Department of
Transportation: Escambia River
(9/6/94)
209
Escambia/ Santa Rosa
Florida Department of
Transportation
Addition: Yellow River (8/23/95)
132.5
Santa Rosa
Wernicke
Donation: Yellow River (12/22/92)
57
Acquisition-Yellow River (4/26/94)
7,972
Okaloosa-2,586
Santa Rosa-5,386
Champion International
Additions-Choctawhatchee River
(9/14/92)
41
Walton
Freeman
Additions-Choctawhatchee River
(3/31/93)
86
Washington
Harris
Additions-Choctawhatchee River*
127
Washington
Various
Econfina Creek (7/31/92)
1,482
Washington-224
Jackson-1,258
Mutual Insurance
Company of New York
Additions-Econfina Creek
(11/18/93)
19.6
Bay
Atkinson
Additions-Econfina Creek (5/24/94)
43
Bay
Hallmon
Additions-Econfina Creek (3/24/95)
339
Bay/Washington
Urquhart/Perry
Additions-Econfina Creek (4/2/93)
189
Bay
Harder Holding Company
Additions-Econfina Creek (5/24/94)
43
Bay
Hallmon
Preservation 2000
Land/Date Acquired
R and R (Tract Name)
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Table 1
Acres
County
(Acres)
Previous Owner
Additions-Econfina Creek (6/1/93)
5.5
Bay
Deer Park Springs Water
Additions-Econfina Creek
(11/30/94)
3,752
Washington/Bay
St. Joe Land and
Development
Additions-Econfina Creek
(11/18/93)
19.6
Bay
Atkinson Family
Additions-Econfina Creek
(11/30/94)
1,401
Washington/ Bay
Rosewood
Donation- Econfina Creek Kammer
(9/7/94)
40
Priority Project:
Garcon Point
Perdido-Escambia, BlackwaterYellow Rivers
2,270
Santa Rosa
F.D.I.C.-1,864 acres
Fifteen Owners-406 acres
Priority Project: First Magnitude
Spring Choctawhatchee- (Gainer
Springs)
1,258
Bay/Washington
Petronis (958 acres),
Harders (197 acres), Five
Owners (103 acres)
Priority Project: Econfina Creek
Floodplain
Choctawhatchee Basin
7,000
Calhoun
Bay
Washington
St. Joseph Land and
Development, ant others
Priority Project: Blackwater River
19,360
Santa Rosa
E.F. Hutton, Estes, Elliot,
Miller Mill Company,
numerous small holdings
Priority Project: Escribano Point
4,830
Santa Rosa
F.D.I.C.-(1,470 acres)
Various Owners-(3,360
acres)
Priority Project: Yellow/Shoal River
Basin
20,000
Santa Rosa
Okaloosa
Haisel Timber Company(6,750 acres), Container
Corporation-(4,050 acres),
Champion International(2,150 acres), Multiple
additional owners-(7,000
acres)
Preservation 2000
Land/Date Acquired
Kammer
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-22
Table 1
Acres
County
(Acres)
Previous Owner
Combination "Save Our Rivers"
and Preservation 2000
Acquisitions
Acres
County (Acres)
Previous Owner
Additions-Choctawhatchee River
(6/31/92)
6,733
Holmes-1,047
Walton-3,586
Washington-2,103
Mutual Life Insurance
Company of New York
Additions-Choctawhatchee River
(5/24/94)
8,725
Holmes
Champion International
Additions-Choctawhatchee River
(5/24/94)
348
Washington
Gould
Preservation 2000
Land/Date Acquired
Source: Save Our Rivers/ Preservation 2000 Five Year Plan 1995; 1996 (Draft). Northwest Florida Water
Management District.
According to Section 259.101 (3), F.S., the Department of Environmental Protection receives ten
percent of the proceeds of any bond issued. This money is distributed by DEP for the purchase
by South Florida Water Management District of lands in Dade, Broward, and Palm Beach Counties.
This distribution shall apply for any bond issue for the 1995-96 fiscal year. The remaining
proceeds are distributed by DEP in the following manner:
1)
50% to DEP for the purchase of public lands as described in Section 259.032. Of this 50%,
at least one-fifth shall be used for the acquisition of coastal lands.
2)
30% to DEP for the purchase of water management lands pursuant to Section 373.59, to be
distributed among the water management districts as provided in that section. Funds
received by each district may also be used for acquisition of lands necessary to
implement surface water improvement and management plans approved in accordance
with Section 373.456 or for acquisition of lands necessary to implement the Everglades
Construction Project authorized by Section 373.4592.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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3)
10% to the Department of Community Affairs (DCA) to provide land acquisition grants
and loans to local governments through Florida Communities Trust pursuant to part III of
chapter 380.
4)
Two and nine-tenths percent to DEP for the purchase inholdings and additions to state
parks.
5)
Two and nine-tenths percent to the Division of Forestry of the Department of Agriculture
and Consumer Services to fund the acquisition of state forest inholdings and additions
pursuant to Section 589.07.
6)
Two and nine-tenths percent to the Game and Fresh Water Fish Commission to fund the
acquisition of inholdings and additions to lands managed by the commission which are
important to the conservation of fish and wildlife.
7)
One and three-tenths percent to DEP for the Florida Rails to Trails Program, to acquire
abandoned railroad rights-of-way and to assist in the acquisition of the Florida National
Scenic Trail for use as public recreational trails (259.101, F.S., pp. 385-386).
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-24
Water Management District's Management Areas
The Water Management District has five Management Areas within our Region. These Areas are
shown in Table 2.
Table 2
WMD's Management Areas in the West Florida Region
Water Management Area
Acreage
County
Escambia River
33,573
Escambia, Santa Rosa
Garcon Point
1,942
Santa Rosa
Yellow River
7,972
Okaloosa, Santa Rosa
Choctawhatchee River
51,189
Bay, Holmes, Walton, Washington
Econfina River
6,762
Bay, Jackson, Washington
TOTAL
101,438
Source: NWF Water Management District
Escambia River Water Management Area: (34,231 acres)- This management area is
composed of an extensive river bottom area that includes a broad, mature flood plain.
This River provides the greatest amount of fresh water inflow into Escambia Bay (part of
the Pensacola Bay System). The River is important to recreational and commercial
fishing interests, hunting, boating, canoeing, and industrial transportation. Industry also
uses river water for evaporative cooling purposes. The Escambia River begins as the
Conecuh River in south central Alabama. Only 10% of total river volume originates in
Florida. Roughly 85% of the River floodplain in Florida is publicly owned at this time.
Endangered and threatened species inhabit the watershed and river. Lower portion salt
marshes are highly productive nurseries for invertebrates and fishes. The River corridor
is important for migrating birds. The River swamps abound with wildlife and plant
species. The River provides a broad area for flooding with virtually no impact to
development (Identification, 2-5).
Garcon Point Water Management Area: (1,942 acres)- Situated between Pensacola
and East Bays, the Garcon Point property was purchased in 1991 by the Northwest
Florida Water Management District. The area is an important source of organic nutrients
for the Pensacola Bay System. It serves as a nursery ground for fish and invertebrate
species found in Pensacola Bay. Stormwater filtration and wave energy absorption
features of this area protect the bay and uplands, respectively. The natural biological
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communities on the site, including estuarine tidal marsh, wet prairie, scrubby flatwoods
and wet flatwoods, are excellent remnant examples of once wide-spread types that have
largely been lost through conversion to other land uses. At least 13 endangered or
threatened species occur on the property (Identification, 2-7).
Yellow River Water Management Area: (8,162 Acres)- The Yellow River drains the
highest elevations in the State of Florida. Upper portions of the River pass numerous
bluffs, while lower portions enter deep hardwood swamps. Water from the River enters
Blackwater Bay and the pristine Yellow River State Aquatic Preserve. Yellow River is
classified as an "Outstanding Florida Water." The Northwest Florida Water Management
District has purchased substantial portions of the floodplain under the "Save Our Rivers"
program. The Yellow River originates in Alabama. Several endangered and threatened
species of flora and fauna exist along the canoe trail. The Yellow River is a popular
fishing and boating resource for area residents. The NWFWMD and Eglin AFB
properties currently place the majority of lands along the remainder of the Yellow River
as targeted for future acquisitions by the NWFWMD. The Yellow River Marsh is
classified as an "Outstanding Florida Water (Identification, 2-11)."
This state aquatic preserve is a vital component in the Pensacola Bay System. It has
been affected little by development and pollution. The unspoiled forested wetlands, the
over 2,000 acre marsh, and the submerged grassbeds provide excellent habitat for fish
and wildlife. As a result, recreational and commercial fishing are major activities in the
aquatic preserve. Endangered and threatened species inhabit the waterways. Salt
marshes and grassbeds are highly productive nurseries for invertebrates and fishes
(Identification, 2-11).
Choctawhatchee River Water Management Area: (51,228 acres)- This extensive
area (approximately 85%) of the Choctawhatchee River floodplain is owned by the
Northwest Florida Water Management District. Because of the extent of acreage,
diversity of habitat, springs, contribution to the local economies, flood control importance,
and water quality provided to Choctawhatchee Bay, this area is one of the most important
regional environmental systems. Little development is located along the banks of the
River, causing an increase in water quality as the River enters from Alabama. Most of
the NWFWMD lands lie between the mouths of the Choctawhatchee River in Walton
County north to the state line. NWFWMD holdings extend north to near the
unincorporated communities of Pittman and New Hope in Holmes County. The general
continuity of these properties would create one of the largest greenbelts in Florida. Home
to numerous endangered species and increasingly rare habitats, almost the entire acreage
is in wetlands or the river floodplain (Identification, 3-2).
Econfina Creek Water Management Area: (7,272 acres)- This River begins in
southern Jackson County, enters the southwestern portion of Washington County, and
reenters Bay County north of County Road 388. The River is popular with canoeists. It
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is the primary tributary of Deer Point Lake, the primary source of potable water in Bay
County. Several first magnitude springs feed the creek. High limestone bluffs line the
creek in its upper reaches. Water is clear and swift flowing. Unique plant communities
surround the banks, with some areas being of magnificent beauty. The stream cuts
through a sandhills region of Washington County, a primary aquifer recharge area.
Quality of water in Econfina Creek is vital to Deer Point Lake (Identification, 4-3).
Planning and Management Areas (Map 2)
These are areas designated by public or private agency/organizations as environmentally
significant and whose natural values and functions should be protected or preserved.
National Designated Areas :
National Seashores: Gulf Island is the only National Seashore located in our Region. It
covers 150 miles of barrier island beaches stretching from Destin, Florida, to Ship Island
off Gulfport, Mississippi. The entire seashore encompasses an area of 135,000 acres.
The Florida portion of the seashore includes part of the Perdido Key and all of Santa
Rosa Island. The National Seashore is maintained by the U.S. Park Service. The
National Seashore was created by Congress to preserve the unique natural coastal
barrier island strip located in Escambia, Santa Rosa, and Okaloosa Counties of the Florida
Panhandle. The clean, white quartz sand beaches and coastal dunes form a unique
natural barrier island strip in this Region (Northwestern Florida Ecological
Characterization: An Ecological Atlas, 86).
Military Lands : Four (4) large military bases are located in our Region: Tyndall Air
Force Base, Eglin Air Force Base, Pensacola Naval Air Station (including Whiting Field,
Corry Station, Bronson Field, and Saufley Field) and Coastal Systems Station. Tyndall
Air Force Base is located on 28,000 acres of land in Bay County. Eglin Air Force Base
is located on 463,360 acres of land in Santa Rosa, Okaloosa, and Walton Counties.
Pensacola Naval Air Station and surrounding fields are located on ±17,391 acres of land
in Escambia and Santa Rosa counties. Coastal Systems Station is located on ±665 acres
of land in Bay County.
Tyndall Air Force Base: (28,667 acres) Located in southeastern Bay County, this
active military base contains large tracts of virtually undisturbed land. This land stretches
parallel to the coast. Beaches, woodlands, wetlands, salt marsh, and swamps abound in
the area. Extensive natural areas provide cover and breeding areas for wildlife and
protect inland waters connected to St. Andrew Bay and the Intracoastal Waterway.
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Tyndall also provides habitat for many endangered species. Beaches fronting the Gulf of
Mexico are, to a great degree, undeveloped. The Base is also important to the watershed
and water quality for St. Andrew State Park Aquatic Preserve and St. Joseph Peninsula
Aquatic Preserve (Identification, 4-5).
Eglin Air Force Base: (approximately 250,000 acres) Eglin Air Force Base (EAFB) is
the largest Department of Defense installation in the eastern U.S. Although there is
substantial military development and bombing ranges on the base, many areas are
managed by the Eglin Natural Resources Division as natural lands. Surprisingly large
portions of the base lands are open to the public for hunting, fishing, camping, firewood
cutting, bicycling, and nature study. Substantial areas of wetlands, longleaf pine forest,
turkey oak scrub, and other environments unique to West Florida can be found.
Approximately one half of the floodplain of the Shoal and Yellow Rivers and more than
half of the East Bay River floodplain lie within base boundaries. Eglin AFB is so large
that much of its area is located within the Choctawhatchee Bay watershed. EAFB
cooperates closely with the Florida Game and Fresh Water Fish Commission to provide
numerous hunting opportunities during season. Groundwater resources under EAFB
property may be critical toward meeting the future water needs of the coastal areas.
Eglin is rich in biological resources, numerous endangered and threatened fauna, flora,
and unique ecological communities. Some virgin timber remains. Red Cockaded
Woodpecker colonies are numerous. The area's groundwater resources are near pristine
(Identification, 3-4).
Naval Air Station (NAS) Pensacola Complex: NAS Pensacola is located in both
Escambia and Santa Rosa counties. NAS Pensacola includes the main station in
Pensacola, NTTC Corry Station, NETPMSA Saufley Field, NAS Whiting Field and
numerous outlying fields (OLF). NAS Pensacola is located on the shores of Pensacola
Bay, Bayou Grande, and Perdido Bay. It is also located along the Gulf Intracoastal
Waterway (GICWW). It is on the sand-and-gravel aquifer. NAS Pensacola has 15
miles of continuous shoreline. It encompasses 7,038 acres of land. This acreage includes
±5,280 acres of unimproved natural resource acreage and 928 acres of wetlands. These
figures also include Bronson Field. The state and federally listed protected (endangered,
threatened, and rare) species that are found on NAS Pensacola are white-top pitcher
plants, water sundew plants, large-leaved jointweed, Chapman's butterwort, sea oats,
American alligator, gopher tortoise, southeast snowy plover, little blue heron, redish egret,
snowy egret, tri-colored heron, southeastern kestrel, osprey, brown pelican, and least tern.
The types of trees that can be found on NAS Pensacola and Bronson Field are loblolly
pine, sand pine, slash pine, ball cypress water tupelo, magnolia, and live oak. NAS
Pensacola and Bronson Field are federally owned. Bronson Field has a recreation area
for public use. There are four (4) nature trails on NAS Pensacola for public use. There
is no hunting allowed on the federal property. There are three Historic forts in the NAS
Pensacola area. Fort Barrancas is located on NAS Pensacola, Ft. Pickens is located on
Santa Rosa Island, and Ft. McCray is located on Perdido Key.
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NAS Corry Station: NAS Corry Station is located within the NAS Pensacola Complex
in Escambia County. NAS Corry Station has ±475 acres of land. There are ±125 acres
of undeveloped land on the Station. There are no reported wetlands. There are no
protected (endangered, threatened, or rare) species on the Station. Corry Station is
located in the Bayou Chico drainage basin and is home to Naval Technical Training
Center-Corry Station (NTTC), the Navy Exchange and Commissary, and the Naval
Hospital.
Saufley Field: Saufley Field is located in the NAS Pensacola Complex in Escambia
County. The Field is comprised of ±878 acres of land. It has ±300 acres of unimproved
natural lands and ±82 acres of wetlands. The wetlands are palustrine and estuarine.
Saufley Field is home to the Naval Education and Training Program Management Support
Activity (NETPMSA), the Defense Finance and Accounting Services-Field Service
Activity (DEFAS-FSA), Federal Prison Facility-Saufley Field, Defense Activity for NonTraditional Education Support (DANTES), and Navy Outlying Field (NOLF-Saufley).
Saufley Field is also inhabitated by a variety of federal and state protected species
(endangered, threatened, and rare). The protected species on Saufley are the white-top
pitcher plant, water sundew plants, panhandle lilly, parrot-bill pitcher plant, yellow
fringeless orchid, American alligator, gopher tortoise, snowy egret, southeastern kestrel,
osprey, and brown pelican. Saufley Field has slash pine, loblolly pine, longleaf pine, ball
cypress, and water tupelo trees in its natural and wetland areas. The Field is in the flood
plain of Eleven (11) Mile and Eight (8) Mile creeks. Saufley Field has one nature trail for
public use.
NAS Whiting Field: Whiting Field is located in Santa Rosa County. It resides on
±9000 acres of land. The Field has ±3500 acres of natural resource acreage and ±450
acres of wetlands. There are about 2,000 acres of land that are still unimproved on the
installation. NAS Whiting Field is located near the Cold and Clearwater Creeks. Both
creeks receive storm water runoff from the installation. Boat Dock Recreation Area is
located on the Blackwater River. The wetlands acreage for NAS Whiting Field and the
outlying fields (OLFs) is: NAS Whiting Field (65), NOLF Santa Rosa (1), NOLF Holley
(40), NOLF Site 8 (45), NOLF Spencer (5), and the Boat Dock Recreation Area (8).
The wetlands are palustrine and estuarine. The acreage for Whiting Field also includes
fourteen (14) different or outlying fields (OLF). Seven (7) of these OLFs are in the State
of Florida, the rest reside in Alabama. These OLFs and their acreage () are: NOLF
Santa Rosa (690), NOLF Spencer (640), NOLF Pace (206), NOLF Harold (573), NOLF
Site 8 (640), NOLF Holley (662). The soils found on these facilities is sandy loam. NAS
Whiting is a superfund site. Aquifer and ground water quality is being investigated as
part of the Installation Restoration Program (IRP). There are State threatened and
endangered species such as: White-top Pitcher plant, Florida Anise tree, Curtiss' Sand
grass, Hairy wild indigo, and Water sundew. There is a 1.5 mile nature trail that is open
to the community.
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Coastal Systems Station (CSS)-Dahlgren Division: The Coastal Systems StationDahlgren Division, or the Station, resides on 664.76 acres in the southern portion of Bay
County, Florida. The Least Tern is the only recorded endangered, threatened, or rare
species on the Station. The Least Tern is classified as "threatened" by the State. It is the
only confirmed breeder on the Station.
The Station has zero (0) acres of natural habitat on the facility. The Station has many
types of trees on the facility. These tree types are: Dogwood, Bald Cypress, Live Oak,
Sabal Palmetto, Sand and Long Leaf Pine, Way Myrtle Yaupon, Bay, Maple, Ti-Ti, Black
Gum, and Slash Pine. There are no officially designated wetlands on the Station. But,
there are fifteen (15) acres with potential of being identified as wetlands.
There is one active well and two inactive wells on the Station. The Station is on St.
Andrews Bay, Alligator Bayou, and it has two unnamed creeks on it. There has been no
recorded affect to any of these waterbodies. According to the Resource Conservation
and Recovery Act (RCRA), the Station does not have an affect on the ground water in
this area.
According to the Public Affairs Office, there are no natural resources of regional
significance on the facility. There are 143 acres of unimproved lands (mostly restricted
land). The soil of the Station is sand. There are no public nature trails. There are no
public activities (i.e., hunting or fishing) allowed on the Station due to its mission.
State Designated Areas :
State Parks and Preserves: Florida's State park system was created by the Florida
Legislature to preserve and maintain a natural environment with a full program of
compatible recreational activities. Blackwater River State Park (360 acres) in Santa
Rosa County is the only state park located in our Region.
Areas of Critical State Concern: There are no areas of critical state concern in our
Region.
State Recreation Areas : Six State recreation areas are located in our Region. State
recreation areas provide more active recreation facilities than State parks do. They need
not be of any special size or location and must be located convenient to population
centers. The State Recreation Areas in our Region are listed in Table 3.
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Table 3
State Recreation Areas in the West Florida Region
Name
County
Acreage
Big Lagoon
Escambia
699
Fred Gannon Rocky Bayou
Okaloosa
357
Walton
350
Okaloosa
208
Bay
1,063
Grayton Beach
Henderson Beach
Saint Andrews
Source: Northwestern Florida Ecological Characterization: An Ecological Atlas, U.S. Department of Interior. 1984,
page 88
Big Lagoon State Recreation Area: (698 acres) Big Lagoon preserves salt marshes,
sand pine scrub, and the rare coastal strand plant communities. The park serves as a
significant slice of public open space in a rapidly growing area of Escambia County. The
park is located adjacent to Perdido Key's beaches and therefore provides recreational
opportunities for tourists. Beaches along Big Lagoon are tranquil. The park is
handicapped accessible. Pristine vegetative communities and proximity to the Gulf of
Mexico provide songbird resting areas during migration. The Big Lagoon State
Recreation Area protects salt marshes, coastal strand, and sand pine forests
(Identification, 2-3).
Fred Gannon Rocky Bayou State Recreation Area: (357 acres) This Recreation
Area is located just east of Niceville on the north side of Choctawhatchee Bay, this park
is an essential element in protecting the watershed of Rocky Bayou Aquatic Preserve.
The park is a popular location for picnickers, campers and boaters and provides critical
publicly available open space in a compact and rapidly developing community. Upland
flora provide extended habitat for animals found on the adjacent Eglin Wildlife
Management Area and Eglin Air Force Base. Endangered fish and plants can be found
in the park. The Park provides a natural environment for surface water flow into Rocky
Bayou Aquatic Preserve (Identification, 3-6).
Grayton Beach State Recreation Area: (276 acres) This Area has been chosen by
national publication as one of the prettiest and best beaches in the United States and the
world. Beautiful white sand beaches, high dunes, and an inland lake provide a beautiful
setting along the Gulf of Mexico. At this time, the community of Grayton Beach is far
away from the more intensely developed areas to the east and west. This park's value to
the public will increase as more development occurs in adjacent areas. The park has a
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pristine beach and dune system with an unusual freshwater inland lake is located in the
park behind the primary dune line. Several endangered plants and animals inhabit or
utilize the park for breeding, including beach mice and sea turtles (Identification, 3-7).
Henderson Beach State Recreation Area: (208 acres) Henderson Beach Recreation
Area is located in the City of Destin, this state park provides protection for endangered
ecological plant associations in a rapidly developing area. The park is a major destination
for beach goers and is important to the tourist industry. Sugar white sand forms high
dunes, a natural barrier against coastal storm surges. The park fronts only on the Gulf of
Mexico, not Choctawhatchee Bay proper. It protects a sizeable area of the disappearing
West Florida Coastal Strand habitat and the sand pine scrub and dune systems. It
provides habitat to endangered species of birds, reptiles and mammals.
St. Andrews State Recreation Area: (1,265 acres) This Area is situated at the St.
Andrew Bay pass into the Gulf of Mexico, this SRA provides significant coastal barrier
resources that protect urbanized areas of Panama City and vicinity. The park is highly
popular with beach goers. Shell Island (a part of the park) is accessible only by boat.
The island is known for sunbathing, camping and wildlife observation areas. It is also a
nesting ground for sea birds and sea turtles. The Recreation Area also provides habitat
for fifteen (15) endangered animal species. Significant dune size protects the mainland
from storm surges. Areas of sea grass beds cover nearby St. Andrew Bay as a part of
St. Andrews State Park Aquatic Preserve. Marine mammals, especially porpoises,
frequent waters around the park in the aquatic preserve (Identification, 4-4).
State Wilderness Areas : The Florida State Wilderness System Act (Section 258.17,
Florida Statutes) established one State Wilderness Area in our Region. Audubon Island is
a small wilderness area located west of Panama City in St. Andrew Bay and was
approved on June 17, 1975 (Northwestern Florida Ecological Characterization: An
Ecological Atlas, 87).
State Wildlife Management Areas : The Florida Game and Fresh Water Fish
Commission manages four (4) state wildlife management areas in our Region. An active
habitat improvement program, including controlled burning, water fowl impoundments, and
hardwood tree planting, is maintained by the Commission (Ibid., 89). These management
areas are shown in Table 4.
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Table 4
State Wildlife Management Areas in the West Florida Region
Wildlife Management
Areas
County
Acreage
Champion International
Escambia
21,000
Least tern Snowy
Plover
Santa Rosa
Okaloosa
183,000
No data
Santa Rosa
Okaloosa Walton
463,360
Walton
Bay
165,000
Blackwater
Eglin
Point Washington
Total Acreage
Endangered or
Threatened Wildlife
Okaloosa darter
Nesting Bird
Colonies
No data
No data
832,360
Source: Northwestern Florida Ecological Characterization: An Ecological Atlas, page 89
State Aquatic Preserves: Thirty-one aquatic preserves were established by the Florida
Aquatic Preserve Act of 1975 (Section 258.35, Florida Statutes) in the coastal waters of
Florida (Florida Department of Natural Resources 1981). Four others were established
under separate acts (Sections 258.16, 258.165, 258.391, and 258.392, Florida Statutes).
Four aquatic preserves are located within the west Florida study region.
Florida's aquatic preserve system is regulated by the Florida Department of
Environmental Protection. Private submerged lands located within aquatic preserve
areas are managed as part of the preserve. The private landowner must contract with
the State of Florida for the donation or lease of his property to the State. Aquatic
preserves have been established to preserve State-owned submerged lands in areas
having exceptional biological, aesthetic, and scientific value (U.S. DOI, 91). Some
examples of aquatic preserves are:
Fort Pickens Aquatic Preserve: (34,000 submerged acres) Fort Pickens Preserve is
located on either side of the Pensacola Pass, envelopes Perdido Key and Santa Rosa
Island. Both portions of those islands are a part of Gulf Islands National Seashore. The
submerged lands are shallow and have numerous seagrass beds and salt marshes.
Wildlife, fish and invertebrates are dependent on the preserve. The preserve serves as a
nursery ground for the above, and is important to commercial and recreational fishermen.
Many area residents and tourists visit the Preserve regularly. Endangered and threatened
species inhabit the waters. Salt marshes and grassbeds are highly productive nurseries
for invertebrates and fishes. Habitat is typical of that surrounding coastal barrier islands
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in northern Gulf waters. Waters of the preserve enhance the environmental quality of
adjacent Gulf Islands National Seashore and the Pensacola Bay System (Identification, 26).
The Fort Pickens Aquatic Preserve lies in the physiographic region known as the Gulf
Coastal Lowlands. The Gulf coastal lowlands extending across the southern half of the
panhandle consists generally of flat plains sloping to the coast. In the western end of the
panhandle the coastal lowlands rise to form a high, sandy plateau which is characterized
by coastal terraces, separated by scarps which are carved between them (Ft. Pickens
Aquatic Preserve Management Plan,16).
Silver Bluff Terrace, rising 0 to 10 feet above sea level, characterizes the geomorphology
of the preserve. It is believed to have been formed near the end of the Pleistocene
around 10,000 years ago. The recent sedimentology of the area is a result of watershed
erosion since the Pleistocene epoch. During this period, Citronelle deposits were
reworked and intermixed with marine terrace sediments (Ibid., 16).
The preserve area is also characterized by Mississippi-Alabama Shelf depositional system
and the Western Florida barrier spit depositional system. The Mississippi-Alabama Shelf
extends offshore from DeSoto Canyon on the east to the Mississippi River Delta on the
west and from the barrier islands to the 200 meter contour line. The shelf surface is
relatively smooth in the western portion; however, south of Pensacola it becomes highly
irregular. As the sand sheet thins to the east, the limestone karst topography of the West
Florida shelf predominates (Ibid., 16).
The Florida barrier spit and island systems were formed during the submergence of dune
beach ridges in the Holocene period. This system is composed of long narrow islands
with sandy beaches and it forms the northern boundary of the Mississippi-Alabama Shelf
of Florida (Ibid., 16).
Approximately 8 miles of Santa Rosa Island are surrounded by the preserve. Santa Rosa
Island is a narrow barrier island, ranging 600 to 3,500 feet in width and averaging 2,000.
This island is characterized by a well-defined secondary dune system. A narrow tidal
marsh borders the northern shoreline. At its western end, the landward side of the island
fronts on Pensacola Bay. The remainder of the island is separated from the mainland
peninsula by Santa Rosa Sound (Fort Pickens Aquatic Preserve Management Plan, 16).
The beaches on the gulf side of Santa Rosa Island average 100-125 feet in width, and are
backed by dunes averaging 16 feet in height. Some dunes attain heights of up to 40 feet
and are usually associated with old gun emplacements and are not natural features (Ibid.,
16).
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Dunes on Perdido Key only average about 20 feet in elevation with elevation decreasing
toward the ends of the island. Approximately 7 miles of the eastern end of Perdido Key
are surrounded by the aquatic preserve. Prior to the Perdido Key Beach Renourishment
Project in August 1990, Perdido Key was a narrow barrier island ranging in width from
500 to 3,500 feet. As a result of renourishment the width of 5 miles of the eastern end of
Perdido Key beach was increased approximately 400 feet at an elevation sloping +5 feet
nautical ground vertical distance on the landward side to +4 feet at the seaward edge
(Ibid., 16).
The narrow width of the two islands make them subject to local storm tide washover
during major storms. . .A number of washover fans are evident from aerial photographs
on both islands prior to beach renourishment. The foreshore slope of Santa Rosa Island
still remains relatively steep, especially towards the east, and hence, the area has
recorded some of the highest waves in the northeast Gulf of Mexico (Ibid., 17).
The fundamental unit of surface hydrology is the drainage basin. A drainage basin
consists of that area which drains surface runoff to a given point. The Escambia Bay
and coastal area drainage basin is the major hydrologic system affecting the aquatic
preserve area. This basin drains approximately 1,410 km². The system receives flow
from a watershed including Yellow, Blackwater, and Escambia Rivers and totaling some
18,130 km², of which 6,525 km² is located in Florida and 11,605 km² in Alabama (Ibid.,
17).
The water cycle of the aquatic preserve area is also influenced by tidal fluctuations of the
Gulf of Mexico. The Pensacola area exhibits predominantly diurnal tides with a single
high and low stage occurring each tidal cycle. The average tidal range is 1.3 feet. The
diurnal nature of the tides along with the low tidal amplitude limits the flushing capabilities
of the bay system. The interaction of freshwater discharges from the drainage basin with
the gulf tides influences the circulation patterns, sedimentation, nutrient loading, and
pollution levels of the system. In order to maintain the integrity of the aquatic preserve
environment these factors need to be considered during the planning of dredge and fill
operations, sewer systems, stormwater runoff drains, pumping stations, etc. (Fort Pickens
Aquatic Preserve Management Plan, 17).
Another factor which must be taken into consideration is that the aquatic preserve is
located in a coastal region which is subject to salt-water encroachment if large wells are
closely spaced and heavily pumped. The intrusion of saline ground water into the potable
aquifer may become a future problem. The increasing consumption of ground-water
supplies by a growing population will cause salt-water intrusion to be increasingly
common (Ibid., 17).
The coastal waters in the preserve area are also affected by several forces that have
little impact on the freshwaters of upland areas. In shallow inshore areas such as those
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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along the Panhandle coast and in estuaries, wind is the major factor driving water
circulation. The result of this circulation is the net long-term movement of water and
sand west along the coast during late spring, early summer, and early fall, and east along
the coast during the winter months (Ibid., 18).
Fort Pickens Aquatic Preserve was designated as an "Outstanding Florida Water"
(OFW) on March 1, 1979. Because of their natural attributes, these water bodies are
assigned additional protection through the Department of Environmental Protection.
Chapter 17-3, F.A.C., addresses the water quality standards by which OFWs are
managed. An OFW designation places more stringent standards on the issuance of DEP
permits. Permit applications for activities that lower ambient water quality within a
designated OFW are normally denied (Ibid., 19).
Pensacola Bay, Big Lagoon, Santa Rosa Sound and the Gulf of Mexico are the four
water bodies which have a direct impact on the water quality of Fort Pickens Aquatic
Preserve. Pensacola Bay receives runoff and discharges from the City of Pensacola,
Pensacola Naval Air Station, Bayou Grande, Bayou Chico, and Bayou Texar (Ibid., 19).
The waters of the bay system are classified by use in accordance with the rules of the
Department of Environmental Protection. Class I waters have the most stringent water
quality criteria and Class V the least. However, Classes I, II, and III surface waters
share water quality criteria established to protect recreation and the propagation and
maintenance of a healthy, well-balanced population of fish and wildlife. Most of the
tributaries, and a portion of the bays within the Pensacola Bay System are classified by
the state as Class III waters, and are used for recreational purposes (i.e., swimming,
skiing, etc.) and for the maintenance of well-balanced fish and wildlife populations.
These Class III waters are directly associated with the Fort Pickens Aquatic Preserve
areas and they are prohibited from shellfish propagation and harvesting (Fort Pickens
Aquatic Preserve Management Plan, 19).
Santa Rosa Sound has good water quality, but it is threatened by development of Santa
Rosa Island, ditching and stormwater runoff. There are also a few waste water
treatment plants that have some seasonal problems during summer tourist months. The
waters of the sound which have a direct effect on the aquatic preserve area are Class III
waters (Ibid., 20).
Water quality in Big Lagoon is regularly tested by the Escambia County Health
Department. Big Lagoon, in the area affecting the aquatic preserve, has a designation of
Class III waters also.
The predominant habitat types of the Fort Pickens Aquatic Preserve are subtidal and
intertidal vegetation communities, the subtidal communities consist primarily of seagrass
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and aquatic algae. The intertidal communities are salt marshes, one of the most valuable
natural resources of the northwest gulf coast (Ibid., 20).
The subtidal vegetation in the Fort Pickens Aquatic Preserve is composed mostly of
turtle-grass (Thalassia testudium), shoal-grass (Halodule wrightii), and manatee-grass
(Syringonium filiforme). These are flowering plants that produce oxygen, stabilize
sediments, produce organic carbon, provide nursery habitat, and provide foraging and
resting habitat for marine animals and sea birds. In the shallowest areas (often in the
intertidal zone) the dominant species is shoal-grass. Below the low-tide mark, down to
the maximum depths of approximately ten feet, beds of turtle-grass dominate. Mixed in
with the turtle-grass (or sometimes growing alone in pure strands) is the manatee-grass.
Although not as abundant as the turtle-grass, manatee-grass is very important to the
preserve system (Ibid., 20).
Since seagrasses rely on clear water for photosynthesis, they are very susceptible to
disturbances and impacts by man. Human induced increases in turbidity associated with
dredging and erosion of adjacent uplands can decrease the photic zone of these plants or
physically smother them with silts. Increased nutrient levels can cause a proliferation of
epiphytic algaes to grow on seagrass leaves, causing reduction in photosynthetic
capabilities and unnatural rates of defoliation. Industrial pollution and discharges which
cause changes in seagrass productivity and distribution can seriously impair
macroinvertebrate and fish populations in the affected areas. Detailed studies of
submerged aquatic vegetation indicate that selective removal of dominant vegetation
types by changes in water quality and light transmission characteristics is associated with
alteration of the entire trophic organization of a particular system. Implications are that,
although generalized food web relationships are generally stable in a given seagrass bed
from year to year, relatively minor changes in water quality can lead to sharp reductions
in productivity and broad habitat alteration (Fort Pickens Aquatic Preserve Management
Plan, 20).
Tidal marshes are a major component of Fort Pickens Aquatic Preserve. At least six
functions of salt marshes in estuarine ecosystems have been proposed:
1.
2.
3.
4.
5.
6.
Detrital export
Nutrient export
Sediment trapping
Pollution removal
Critical habitat for juvenile fish and shellfish
Wildlife habitat
Marshes usually have distinct vegetation zonation. Smooth cordgrass (Sparina
alterniflora) forms a border along the open water within the intertidal zone. This fringe
may extend above mean high water (MHW). Landward of the cordgrass is the black
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needle rush (Juncus roemerianus), usually compromising the largest vegetated zone and
the bulk of the standing plants.
Tidal fluctuation is the most important physical factor in salt marsh communities. The
frequency and physical action of tides attributes to the fragmentation of vegetation and
the rate of decomposition. The additional nutrients, sediments and detritus from the
adjacent uplands filter into the marsh contributing to this highly productive environment.
Tidal exchanges allow for cycling of these nutrients and give marine and estuarine fauna
access to the marsh. This exchange or flushing action helps to make salt marshes one of
the most biologically productive natural communities in the world, even to the degree of
surpassing the most intensive agricultural practices.
More than 100 families of finfish and a wide variety of shellfish have been reported from
the marshes, estuaries and coastal waters of Fort Pickens Aquatic Preserve. More than
200 species have been reported in the waters of the Pensacola Bay system alone. The
open water habitats contain numerous species of commercial and recreational importance
and the estuarine and marsh areas serve as "nursery grounds" for many of the juvenile
and larval forms of marine organisms. These include brown and pink shrimp, ladyfish,
spotted seatrout, red drum, silver perch, Atlantic croaker, spot, southern kingfish, gulf
menhaden, striped mullet, and sheepshead (Fort Pickens Aquatic Preserve Management
Plan, 28).
Though many marsh species have little commercial importance, their diverse feeding
habits and intense utilization of marsh resources makes them especially important in
transferring energy from the marsh to the estuary and coastal waters and thus to
commercially valuable species. Nursery species and marsh foraging species consume
detritus, larval organisms, and plankton at the base of the food web in the marsh and then
introduce this energy to the estuarine and nearshore food webs when they leave the
marsh. Foraging carnivores also provide a trophic link between the marsh and adjacent
ecosystems.
Fish species found in the Fort Pickens Aquatic Preserve include a variety of habitats.
Pompano, blue runner, whiting and other forage and juvenile species can be found in the
sandy surf-zone. Unvegetated, sand bottom habitats are inhabited by burrowing types
such as flounder, stingrays, jawfishes, and inshore lizard fishes. Non-burrowing types
consist of the sand perch, pigfish, and spot. Mud bottom habitats are preferred by mullet,
croaker, silver perch and catfish. Anchovies and silverides are important forage species
and can be seen in the shallow bay waters at the surface where they feed. The seagrass
beds have a diverse assemblage of fish populations including mullet, pinfish, needlefish,
mojarra, seahorses, pipefish, blennies and gobies. "Hard" habitats such as piers, docks,
artificial reefs and jetties contain many of the "pretty" tropical species such as cocoa
damsels, angelfishes, parrotfishes, spadefishes, and butterfly fishes. These tropical
species are seasonal, arriving by currents in the warmer months, and dying off in the
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colder months. Wrasses, groupers and snappers are also found along these hard
substrates (Ibid., 29).
In Florida, the number of species actually harvested either entirely or principally in the
estuaries is surprisingly limited. But estuaries play a significant role in the production of
many shellfishes and finfishes that ultimately are harvested mainly at sea. About 50
commercial and 65 recreational species caught in the Gulf of Mexico spend at least some
portion of their lives in estuarine systems such as those found in the Fort Pickens Aquatic
Preserve. Seabasses, jacks, snappers, sheepshead, spot, mackerel, and flounders are a
few examples of estuarine dependent species which may be taken either offshore in the
gulf or in the estuary (Ibid., 29).
The coastal strand, saltmarsh, estuarine, and marine environments within the aquatic
preserve exhibit severely stressful conditions. Arid conditions and extremes in
temperature and salinity limit the types of organisms which can inhabit this area. In order
to inhabit these areas the preserve organisms must have a tolerance for these conditions.
The upland dune community adjacent to the aquatic preserve is hot and dry; few
amphibians can tolerate the extreme conditions. The southern toad occasionally takes
refuge in burrows and forages at night at the base of the dunes. Toads can be abundant
in coastal strand environments as can the southern leopard frog because both breed in
temporary ponds of the interdune flats (Fort Pickens Aquatic Management Plan, 30).
The various habitats found adjacent to the aquatic preserve may be well-endowed with
reptile species because these species are best adapted for dry terrestrial environments.
Several types of snakes and land turtles are abundant in the coastal strands. Reptiles
such as sea turtles are better adapted to the salinity ranges of the gulf and estuarine
waters (Ibid., 30).
The Atlantic loggerhead sea turtle (Caretta caretta) may be found in and around Fort
Pickens Aquatic Preserve. The frequency of reported sightings of loggerheads in this
area has increased over the past five years. Whether this increase is due to the presence
of more loggerheads or more "loggerhead watchers" has yet to be determined. The
loggerhead is listed by the U.S. Fish and Wildlife Service as a threatened species (Ibid.,
30).
Other sea turtles such as the green sea turtle (Chelonia midas), and the leatherback sea
turtle (Dermochelys coriacea) have been reported in the area but these are rare
sightings. The leatherback turtle is listed as threatened and the green turtle is listed as
endangered by the U.S. Fish and Wildlife Service (Ibid., 31).
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Another species of sea turtle, the Kemp Ridley (Lepidochelys kempii), is an occasional
visitor to this area. Several strandings of Kemps Ridley sea turtles have been
documented within the Florida district of Gulf Islands National Seashore (Ibid., 31).
Over 280 species of birds have been identified in the aquatic preserve and its adjacent
upland areas. Fort Pickens Aquatic Preserve and the adjacent area comprise several
diverse ecological communities which attract a variety of bird life. Gulf beaches, dunes,
fresh and saltwater marshes, and nearby wooded areas provide a wide range of wildlife
habitats.
Many of these species are area transients, using this area as a resting place on their way
to summer or wintering grounds. Others are accidental visitors, far from their natural
home ranges. The majority of the species found within the preserve are summer, winter,
and/or annual residents. Many of the species are dependent on the marine/estuarine
environment. Species such as the double crested cormorant, red breasted merganser,
brown pelican and black skimmer depend on the gulf for food, and its environs for shelter.
(Fort Pickens Aquatic Preserve Management Plan, 32.)
Within the marsh community, birds comprise one of the large herbivore groups and they
also play a significant role in both the immediate marsh and estuarine food webs. Marsh
areas within the aquatic preserve support year round residents (clapper rail and great blue
heron), summer nesting species (least bittern), migrants (American widgeon), casual
feeders (great egrets), and summer visitors (white ibis). Many coastal birds use the
marsh habitats as secondary breeding and dispersal areas. The marsh provides an ideal
environment for breeding birds. The dense vegetation and the isolated nature of many
marsh tracts restrict access by predators, especially the raccoon. Small fish, as well as
an abundant invertebrate population, provide food for both adults and young fledglings
(Ibid., 32).
The mammals which are found within or adjacent to Fort Pickens Aquatic Preserve must
also be able to survive the extreme conditions of the varying habitats. Coastal scrub
communities of Santa Rosa Island and Perdido Key have populations of light colored
beach rodents (cotton rats and rice rats) that burrow in the sand of the dune habitats as
well as marsh areas. The marsh rice rat is the most abundant of all coastal marsh
mammals. This rat is a good swimmer and may be observed feeding in the lower marsh.
The hispid cotton rat is more terrestrial and prefers the higher, less frequently flooded
marsh/upland interface (Ibid., 36).
Santa Rosa Island and Perdido Key are also home to the Santa Rosa beach mouse and
the Perdido Key beach mouse, respectively. The light colored mice are restricted to the
primary dune habitats and do not generally frequent nor construct burrows in marsh
areas. The Perdido Key beach mouse, a federally listed endangered species, suffered a
major population decline following Hurricane Fredrick in 1979. The species appears to
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have undergone a dramatic increase and is making a successful comeback due to the
joint efforts of the Florida Game and Fresh Water Fish Commission, the National Park
Service, and the U.S. Fish and Wildlife Service (Ibid., 36).
A few mammalian species may be found in the tidal marsh habitats but resident mammals
are few; nutria, round tailed muskrat and marsh rabbits make up this group.
Predator species include the raccoon, mink and the long-tailed weasel who generally
feeds on grubs and insects at the marsh/upland interface. All other predators have mixed
diets of small mammals, birds, benthic invertebrates, and fish.
Marine mammals such as the bottle-nosed dolphins travel the waters of Fort Pickens
Aquatic Preserve. Bottle-nosed dolphins are regular visitors to the preserve, often
feeding on the smaller fish inhabiting the preserve waters (Ibid., 36).
The following animals are assumed to be found at or in the vicinity of Fort Pickens
Aquatic Preserve. These species have been given legal protection pursuant to the U.S.
Fish and Wildlife Service (USFWS) Endangered Species Act of 1973, and/or the Florida
Game and Fresh Water Fish Commission (FGFWFC) regulations. They are listed as
endangered (E), threatened (T), of special concern (SSC) or under review (UR) for such
listing (UR2: Under review for federal listing, but substantial evidence of biological
vulnerability and/or threat is lacking).
(FGFWFC ranking, USFWS ranking)
Southern Snowy Plover (T, UR2); Piping Plover (T, T); Little Blue Heron (SSC); Snowy
Egret (SSC); Tricolored Heron (SSC); Peregrine Falcon (E, T); Southeastern American
Kestrel (T, UR2); American Oystercatcher (SSC); Wood Stork (E, E); Osprey (SSC);
Brown Pelican (SSC); Least Tern (T); Santa Rosa Beach Mouse (UR2, UR2); Perdido
Beach Mouse (E, E); American Alligator (SSC, T); Loggerhead Turtle (T, T); Green
Turtle (E, E); Leatherback Turtle (E, E); Kemps Ridley (E, E); Alligator Snapping Turtle
(SSC, UR2); Saltmarsh Topminnow (SSC) (Ibid., 38)
Yellow River Marsh Aquatic Preserve: (16,435 acres) This Preserve is a vital
component in the Pensacola Bay System. Development and pollution have had little
affect on the Preserve. The unspoiled forested wetlands, the over 2,000 acre marsh, and
the submerged grassbeds provide excellent habitat for fish and wildlife. As a result,
recreational and commercial fishing are major activities in the aquatic preserve
(Identification, 2-10).
The Yellow River Marsh Aquatic Preserve is located in southern Santa Rosa County.
The preserve includes the Yellow River from Highway 87, southwesterly to Blackwater
Bay, and Blackwater and East Bays south to White Point at East Bay.
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There are two major population centers near the preserve: the incorporated municipality
of Milton, with a 1990 population of 7,216; and an unincorporated area called Bagdad.
Milton is also the county seat of Santa Rosa County.
The two largest land holdings adjacent to the preserve are those of Eglin Air Force Base
and Champion International Corporation. Eglin AFB manages much of its lands,
especially the low-lying wetlands, as the Eglin Wildlife Management Area. Champion
International Corporation, a paper company, owns extensive timberlands adjacent to the
preserve. Due to equipment limitations, the company has not at this time expressed an
interest in logging the boggy lands that support bottomland hardwoods. The remaining
uplands are generally rural and residential, comprised mainly of farmland, rangeland,
forested land, and single-family homes. Golden Bay Properties, Inc. owns much of the
wetlands adjacent to White Point, the southern tip of the preserve (Yellow River Marsh
Aquatic Preserve Management Plan, 13).
Blackwater and East Bay are part of the Pensacola Bay System. Pensacola Bay has
been designated as a top S.W.I.M. priority, mainly due to declines in water and sediment
quality, and loss of habitat. The Yellow River exhibits some of the most pristine water
quality in the State of Florida. All segments of the river have good overall water quality.
The Yellow River is classified as a Class III by the Department of Environmental
Protection. Class III waters intended use is for recreation, propagation and maintenance
of a healthy population of fish and wildlife (Ibid., 17).
The Yellow River was designated on March 1, 1979, by the Department of
Environmental Protection as an Outstanding Florida Water (OFW) body. The statutory
requirement for an OFW is that the water body must have "natural attributes worthy of
special protection" (Section 403.061(28), F.S.). In OFW bodies, the primary water quality
standard used in regulation is the actual ambient water quality of each individual OFW,
rather than the general numerical limits of the water quality classification system. The
importance of this system is that all OFWs receive special protection against water
pollution (Ibid, 17).
The Yellow River Marsh Aquatic Preserve includes not only submerged grassbed
communities, but also other types of wetland communities such as marshes, swamps and
forested wetlands. These wetlands are a valuable resource to the residents of Santa
Rosa County for many reasons (Yellow River Marsh Aquatic Preserve Management
Plan, 22).
Wetlands of the preserve receive floodwaters after heavy rains and function as natural
flood control. Pollutants, excess nutrients, and sediments enter the wetlands and are
filtered out of stormwater, thereby improving water quality. The preserve wetlands
recycle nutrients which are essential for wildlife. These wetlands provide safe, sheltered
habitats for juvenile members of numerous species of marine and estuarine organisms.
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Many of these species are important to commercial and recreational fishermen of Santa
Rosa County. The wetlands also provide habitat for many other types of wildlife, such as
migratory birds, waterfowl, and mammals. As a result, the wetlands are productive
hunting areas, especially for deer and ducks. Wetlands recharge groundwater supplies
and supply drinking water. Timber and other natural resources are harvested from
wetlands. And finally, wetlands are important for educational and aesthetic reasons
(Ibid., 22).
There are several different types of forested wetlands which occur within the Yellow
River Marsh Aquatic Preserve. Forested wetlands are commonly known by a variety of
names such as river swamp, shrub bog, bayhead, cypress swamp, titi bog, floodplain
forest, swamp forest, and bottomland hardwood forest.
These forested wetlands are characterized by a wide variety of plant life including trees,
shrubs, vines, grasses, and herbaceous plants. The moisture regime is the most
significant factor in maintaining these communities; only flood tolerant species of plants
and animals can survive. Forested wetlands are present along the Yellow River and its
tributaries until reaching the marshes at Blackwater Bay (Ibid., 23).
Trees found in the forested wetlands include: water hickory, sweetgum, blackgum,
tupelo, red maple, sweetbay, redbay, loblolly bay, ash, elm, American hornbeam, river
birch, cypress, red and white cedar, black willow, titi, pond pine, slash pine, sycamore and
several species of oaks.
Woody understory species include buttonbush, yaupon holly, dahoon holly, titi, St. John'swort, dog hobble, fetterbush, large gallberry, myrtle-leaved holly, swamp azalea, Florida
anise, Virginia willow and sweet pepperbush (Ibid., 23).
Plant life in the forested interior floodplain is often characterized by herbaceous vines
such as greenbriar, wild grape, peppervine, poison ivy, trumpet creeper, and crossvine.
Other herbaceous species include cinnamon fern, royal fern, chain fern, lizard's tail,
orchids and other flowering plants, and mosses and liverworts (Yellow River Marsh
Aquatic Preserve Management Plan, 23).
Forested wetlands host a variety of wildlife such as deer, bobcats, bear, wild hog, beaver,
fox, otters, raccoons, swamp rabbits, squirrel (flying, red, gray), opposum, and mink. Wild
turkey, waterfowl, wading birds, migratory birds, song birds, and birds of prey, especially
ospreys, hawks, and owls are found in the preserve. Turtles, snakes, frogs, salamanders,
and even alligators may be found in the preserve. All of these species utilize the forested
wetlands for food, shelter, and breeding/nesting habitat, and are dependent on the
wetlands for their continued survival (Ibid., 23).
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In addition to providing food and habitat for animals, forested wetlands receive
floodwaters, recycle nutrients, filter stormwater runoff and serve as a sink for sediments
and other types of pollutants.
Marshes of the preserve fall into two categories: tidal marsh and floodplain marsh.
Tidal marshes are expansive intertidal or supertidal areas occupied primarily by rooted,
emergent vascular macrophytes such as cordgrass, needlerush, sawgrass, saltwort,
saltgrass, and glasswort. Additionally, species such as sea ox-eye daisy and sedges also
occur. These species are tolerant of the higher salinities and harsher wind and wave
conditions characteristic of tidal marshes. The largest expanse of tidal marsh in the
preserve is found along the west shore of East Bay near White Point (Ibid., 24).
Floodplain marsh occurs in the river floodplain. These marshes are seasonally inundated
and are dominated by maidencane, pickerelweed, sagittaria, buttonbush, wax myrtle, and
mixed emergents. Other species which occur in the floodplain marsh include giant
cutgrass, cattail, spadderdock, beak rush, bulrush, sedges, spike rush, and sawgrass (Ibid.,
24).
The floodplain marsh covers approximately 2400 acres at the mouth of the Yellow River.
In addition to the marsh species, patchy stands of hardwoods and water tolerant pine
trees have become established on small "islands" of higher elevation in the marsh.
Marsh communities are among the most productive ecosystems in the world; three times
more productive than cultivated farmland. In addition to being highly productive, marsh
communities also recycle nutrients and function as natural filtration systems for runoff.
Marshes provide food, shelter, and habitat for deer, otters, marsh rabbits, raccoons, coots,
egrets, gulls, terns, herons, bitterns, rails, gallinules, red-winged blackbirds, ospreys,
hawks, ducks, alligators, snakes, turtles, and salamanders. Marshes are utilized as nesting
habitat by a number of species and serve as protected nursery areas for juvenile fish and
invertebrates (Yellow River Marsh Aquatic Preserve Management Plan, 24).
Grassbeds are expansive subtidal or intertidal areas, occupied primarily by rooted
submerged vascular macrophytes. Grassbeds of the Yellow River Marsh Aquatic
Preserve extend well into Blackwater Bay from the mouth of the Yellow River and its
distributaries. Grassbeds are also present in patches along the western shoreline. The
grassbeds are dominated by tapegrasses (Vallisneria americana), which grow in the bay
at depths of one to three feet. Associated with tapegrass are aquatic species such as
lemon bacopa, southern naiad, widgeon grass, and bladderwort (Ibid., 29).
Submerged grasses such as tapegrass perform many valuable functions within the
estuarine system. They stabilize sediments, recycle nutrients, provide shelter and habitat
for aquatic fauna, and serve as spawning and nursery areas for many species of fish and
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shellfish. Many commercially important fish spend at least part of their lives in these
beds.
The Yellow River Marsh is part of the Pensacola Bay System. This system is the most
impacted by human activity of all the watersheds of the panhandle. East Bay, just outside
the preserve boundaries, once contained expansive stretches of grassbeds, especially
between Escribano Point and Miller Point. These beds disappeared by 1977. Grassbed
disappearance has been noted in the Pensacola Bay System since 1951. Disappearance
of grassbeds in the preserve has been less extensive than in other areas of the Pensacola
Bay System (Ibid., 29).
At least 101 species of fish occur in the Florida portion of the river system, including
Blackwater Bay. Of the species recorded, 33 are marine or brackish water forms. An
additional five are diadromous (Alabama shad, skipjack, herring, hogchocker, Atlantic
sturgeon, American eel). Freshwater species entering the bay are derived from the
Blackwater and Yellow Rivers. Marine species originate from the Gulf of Mexico or are
permanent residents of the estuary (Ibid., 29).
The minnow family, Cyprinidae, contributes the largest number of species to the system,
with a total of 17. The sunfish (Centrarchidae) are the second best represented with 14
species. Other families contributing five or more species are Ictaluridae (freshwater
catfish), Cyprinodontidae (killifish), Sciaenidae (drums), and Percidae (perches).
Bass, et al., (1979) surveyed the Yellow River system and set up sampling stations
throughout the area, including two stations in the river portion of the preserve. Station 1,
in the tidal delta at the mouth of the Yellow River, yielded 23 species, all of which are
freshwater forms. The most abundant was bluegill, which contributed 31.3% of the catch
by number. Next in abundance was the longnose gar, comprising 19.4% of the number.
Third most abundant was the redear sunfish (12.4%). Commercial or sport fish made up
58.2% by number (Yellow River Marsh Aquatic Preserve Management Plan, 30).
Station 2, up the river away from the delta, yielded 24 species, all but one of which were
freshwater. The southern flounder, a common invader of Florida streams, was the only
marine representative. Bluegill was again the most abundant, comprising 22.4% by
number. The longear sunfish was second (12.0%) and was followed by spotted sucker
(7.7%). Commercial or sport fish comprised 66.1% of the collection (Ibid., 30).
The river swamp/backwaters amid the bottomland hardwoods and associated vegetation
are an important habitat for fish production. Fish of the main river channel depend
greatly upon these "quiet water" areas for spawning and growth.
Marine species which are abundant in the lower bay include Gulf menhaden, tidewater
silverside, sliver perch,, sand seatrout, spot croaker, and striped mullet. Other common
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species are speckled worm eel, sea catfish, needlefish, spotted seatrout, and hogchocker
(Yellow River Marsh Aquatic Preserve Management Plan, 30).
Both marine and freshwater fish inhabit the upper bay adjacent the outlets of the two
rivers. The river/bay interface is highly valuable as a producer of fish, providing primary
nursery grounds. Abundant fish of the upper bay are speckled worm eel, bay anchovy,
Gulf pipefish, bluegill, redear sunfish, and naked goby. Other common species are
longnose gar, coastal shiner, spot, striped mullet, and clown goby. Freshwater species
found occasionally include spotted gar, bowfin, chain pickerel, spotter sucker, tadpole
madtom, brook silverside, warmouth, longear sunfish, spotted sunfish, and bluespotted
sunfish (Ibid., 30).
Marine species caught by anglers at the mouth of the Yellow River include spotted
seatrout, red drum, flounder, croaker, spot, sting ray, bull shark, gafftopsail catfish, and
sea catfish.
Overall, the Yellow River System is high in numbers of fish species, but production of
sport fish is relatively low in comparison to other Florida streams (Ibid., 30).
The marsh and bottomland hardwood communities provide habitat for numerous
mammalian species. White-tailed deer, a popular game animal, frequents both areas,
mainly because of the common hardwood forest and wetland inhabitants occur here,
including squirrel, armadillo, raccoon, bobcat, coyote, wild hog, beaver, fox, swamp rabbit,
opposum, mink, and river otter. The Florida black bear, a threatened species, also
inhabits the area (Yellow River Marsh Aquatic Preserve Management Plan, 31).
The continuum of uplands to forested wetlands to marsh habitat offers these and smaller
mammals excellent home range, foraging opportunities, and escape cover from excessive
human activity and predators. The two primary factors contributing to this are the rural
nature of northern adjacent uplands and the forested lands of Eglin Air Force Base
abutting the south and eastern preserve boundaries of the aquatic preserve (Ibid., 31).
A variety and abundance of reptiles and amphibians occur in the preserve. The
American alligator, which is listed as a species of special concern by the Florida Game
and Fresh Water Fish Commission, is a common inhabitant of the marsh and bottomlands.
Numerous salamanders, frogs, and turtles occur throughout the floodplain. Water snakes,
including the poisonous cottonmouth, are also common to both bottomland and marsh
communities (Ibid., 31).
Wading birds, raptors, songbirds and waterfowl frequent all habitat types within the
preserve.
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Some of the more conspicuous wading birds found loafing or foraging in the marsh or
emergent vegetation include: great blue heron, least bittern, and snowy egret. Raptos
such as the osprey, hawks, and the endangered bald eagle utilize all communities, nesting
in larger trees in the inner marsh and swamp forest and feeding in the estuary and
floodplain. While ospreys are very common in the preserve, bald eagles are quite rare.
Songbirds are ubiquitous among the arboreal habitats of the bottomlands. Various species
of ducks are found throughout the preserve. Wood ducks normally inhabit the swamp
forest, nesting in tree cavities and consuming acorns as a primary food. They are usually
year-round residents in this area. Migratory ducks such as scaup, and pintail may
temporarily stop at the river or bay during winter (Ibid., 31).
The benthic macroinvertebrates found in the bay and the shoreline include both
oligochaete and polychaete worms, clams, snails, midge larvae, mysid shrimp, and
amphipods and isopods (small flattened crustaceans such as beach fleas). The
amphipods and isopods are abundant in the grassbeds and sandy areas of the preserve.
Benthos found in the river include polychaete and oligochaete worms, leeches, copepods,
mysid shrimp, amphipods, isopods, midge larvae, mayfly nymphs, crayfish, caddisfly
larvae, dragonfly and damselfly larvae, dobsonfly, aquatic beetles, culicidae, snails,
mussels, and clams (Yellow River Marsh Aquatic Preserve Management Plan, 32).
Some designated animal and plant species which have legal protection pursuant to the
Endangered Species Act of 1973, are assumed to be found within the vicinity of the
preserve. These species are: Southeastern kestrel, little blue heron, snowy egret,
tricolored heron, bald eagle, least tern, brown pelican, osprey, peregrine falcon, Florida
mink, round-tailed muskrat, eastern chipmunk, eastern chipmunk, Florida black bear,
American alligator, Alabama map turtle, Florida bog frog, gulf saltmarsh snake, pine
barrens tree frog, alligator snapping turtle, Atlantic sturgeon, blackmouth shiner, bluenose
shiner, American sand-burrowing mayfly, blackwater sandfiltering mayfly, gulf clubtail,
meridion mayfly, panhandle lily, orange azalea, Ashe's magnolia, white-top pitcher plant
Ibid., 47).
Rocky Bayou Aquatic Preserve: Rocky Bayou Preserve is located in Okaloosa
County. It was designated as an aquatic preserve on November 2, 1970. It covers 480
acres and is the smallest of the 42 Florida aquatic preserves. The preserve encompasses
all of the sovereignty submerged lands bordered on the north, east, and south by "mean
high water" line of Rocky Bayou, and bordered on the west by the easterly right-of-way
line of State Road 20.
Located along the northern edge of Choctawhatchee Bay, Rocky Bayou is a fresh to
brackish water system, which receives freshwater input from two creeks, Rocky Creek
and Turkey Creek, and several smaller steephead streams. Rocky Creek, which flows
directly into the bayou, represents on of the only known habitats for the Okaloosa darter
(Etheostoma okaloosae) (Rocky Bayou Aquatic Preserve Management Plan, 1).
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Another designated species, the osprey (Pandion haliaetus), occurs in and around the
preserve. Two ospreys, possibly a mated pair, have been observed in the area by the
aquatic preserve area (in 1991). In addition, several osprey nests were located by
rangers from Fred Gannon Rocky Bayou State Recreation Area just south of the
preserve.
Other noteworthy features of the area are the three "steephead" ravines within the
recreation area. One steephead has been impounded to create Puddin Head Lake. The
second steephead has undergone little or no disturbance other than a paved road that
crosses it via a culvert near the ravine's mouth. A residential subdivision (Parkwood
Estates) and an elementary school have been constructed on the eastern boundary of the
third steephead. Disruption of the stream's ecology has occurred because of clearing and
untreated stormwater runoff from the subdivision and the school's stormwater retention
pond that is located upgradient of the spring source of the steephead stream. Other
steephead ravines around the bayou have been impacted by human activity (Ibid., 1).
Rocky Bayou supports many aquatic activities such as water skiing, boating, jet skiing,
fishing and swimming.
The upland area to the northeast of the preserve is mostly undeveloped military property
on Eglin Air Force Base. The area northwest of the preserve is experiencing an increase
in residential development as the City of Niceville expands (Ibid., 1).
Habitat loss, increased impacts from recreational use, increased development, and water
quality degradation have become major threats to this beautiful estuarine environment.
The construction of the Choctawhatchee Bay bridge brings concerns of increased
development pressure. An integrated management program by state, regional, and local
governments, will be necessary to accomplish the goal of long term resource protection
for the preserve and for the adjacent lands that have a direct impact on it (Ibid., 2).
The Rocky Bayou Aquatic Preserve has numerous endangered (E), threatened (T), and
species of special concern (SSC) that are likely to occur. These species are: Osprey
(Pandion haliaetus) (SSC), Clapper Rail (Rallus longirostris scottii) (under review),
Least Tern (Sterna antillarum) (T), Florida Black Bear (Ursus americanus floridanus)
(T), American Alligator (Alligator Mississippiensis) (SSC), Bog Frog (Rana
okaloosae) (SSC), Atlantic Sturgeon (Acipenser Oxyrhynchus) (SSC), Okaloosa
Darter (Etheostoma okaloosae) (E), Mountain Laurel (Kalmia latifolia)(under review),
Needle Palm (Rhaphidophyllum hystrix) (under review), Orange Azalea
(Rhododendron austrinum) (under review), Whitetop Pitcher Plant (Sarracenia
leucophylla) (under review) (Rocky Bayou Aquatic Preserve Management Plan, 33).
Under review means that they are under review for federal listing, but substantial
evidence of biological vulnerability and/or threat is lacking.
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St. Andrews State Park Aquatic Preserve: (25,000 acres) The St. Andrews State
Park Aquatic Preserve is located in northwest Florida, south of Panama City and east of
Panama City Beach. The preserve covers the entire inlet to St. Andrews Bay. The
northern boundary is an east-west oriented line that runs from Courtney Point to just
south of Redfish Point. The southern boundary runs west from the southwest point of the
St. Andrews Recreation Area for approximately two miles and extends approximately
three miles out into the Gulf of Mexico. The eastern boundary is located approximately
one-half mile east of Shell Island and extends from Tyndall Air Force Base to three miles
offshore (St. Andrews State Park Aquatic Preserve Management Plan, 15).
Boundaries of the St. Andrews State Park Aquatic Preserve include only state-owned
(sovereignty) submerged lands that occur below the mean high water line (MHWL).
Uplands and artificial canals are excluded from the preserve.
The St. Andrews State Park Aquatic Preserve is located in the coastal plain province.
The coastal region occupies a physiographic division known as the Coastal Lowlands,
which are low in elevation and poorly drained (Ibid., 15).
The general topography of this area was formed during the Pleistocene epoch and is
composed of ancient marine terraces that run parallel to the Gulf of Mexico shoreline.
There are eight marine terraces in Florida, formed by waves, current, and varying sea
levels. When the sea level remained stationary for long periods, the waves and currents
would erode the sea floor to form a fairly level surface. When the sea level dropped, the
sea floor became a level plain or terrace. The Silver Bluff terrace is present within the
preserve boundaries at an altitude between sea level and ten feet above sea level, the
Pamlico terrace rises from five to twenty-five feet above sea level (Ibid., 15).
The St. Andrews State Park Aquatic Preserve lies wholly within the geographical division
known as the West Florida Coast Strip, which extends from the mouth of the
Ocklockonee River west to the Mississippi River. This strip consists primarily of coastal
islands and narrow peninsulas along the coast. The preserve is typical of the West Coast
Strip. Much of the area is occupied by beach sands and active dunes, with definite
indications that scrub areas are being or have been invaded by these migrating dunes
(Ibid., 16).
The general soil type within the aquatic preserve is made up of the Kureb-ResotaMandarin series. These soils are nearly level to gently sloping, with areas that are
excessively, moderately, and somewhat poorly drained. They are sandy, with a depth of
80 inches or more. Some have organic stained layers. The soil is not suitable for
cultivated field crops, improved pasture, or trees, Permiability is rapid with the water
table below 80 inches throughout the year. Equipment limitations and crop mortality are
the main agricultural concerns (Ibid., 16).
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In the upland communities surrounding the St. Andrews State Park Aquatic Preserve,
there are eleven distinct natural communities that are present: beach dune, maritime
hammock, mesic flatwoods, scrub, scrubby flatwoods, basin marsh and marsh lake, wet
flatwoods, coastal dune lake, estuarine tidal marsh, and marine unconsolidated substrate
(St. Andrews State Park Aquatic Preserve Management Plan, 16).
St. Andrews Bay is the receiving waterbody for the largest drainage basin in Bay
County. The area drained is from the Apalachicola River west to the Choctawhatchee
River. There are nine major streams that flow into St. Andrews Bay. The streams
draining the largest area are the Econfina and Bear Creek. The flow into St. Andrews
Bay is approximately 620 cubic feet per second (cfs) (Ibid., 16).
St. Andrews Bay is central in the St. Andrews Bay System. The bay opens directly to
the Gulf of Mexico through East and West Passes. Connecting embayments include
North, West, and East Bays, as well as Grand Lagoon and St. Andrews Sound. Though
the bay system may be classified as a positive estuary, the preserve waters, owing to
their proximity to the sea, rarely drop below 30 parts per thousand (ppt) in salinity (Ibid.,
16).
St. Andrews State Park Aquatic Preserve was designated as an "Outstanding Florida
Water" (OFW) body, on March 1, 1979. Because of the natural attributes, this
waterbody is assigned additional protection through the Department of Environmental
Protection. Chapter 17-3, F.A.C., addresses the water quality standards by which OFW
are managed. Permit applications for activities that lower ambient water quality
standards within designated OFW are normally denied (Ibid., 17).
Although limited data exists on the quality of water in the aquatic preserve, the
Department of Environmental Protection, 1986 Florida Water Quality Assessment
classifies the water quality in St. Andrews Bay as "good." Water quality in the adjoining
bay waters is classified as "good" except for Watson Bayou which is classified as "fair"
(Ibid., 17).
Relatively clear water is one of the characteristic features of St. Andrews State Aquatic
Preserve. Several factors contribute to the bay's clarity. First, incoming tidal water is
clear and major tributaries are spring fed. Second, the surrounding upland is mostly
forested, and local soils consist of porous sand that contain little of the silt-clay that is
often responsible for turbidity in coastal waters. Third, tidal marshes and seagrasses act
as natural filters within the bay that collect and stabilize suspended sediments and
particulate detritus (Ibid., 17).
The dominant biological communities of St. Andrews State Park Aquatic Preserve are
seagrasses and saltmarsh, although in some small areas and at certain seasons algae is of
importance. The subtidal zone consists primarily of seagrasses. The intertidal zone
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consists of saltmarshes, one of the most valuable natural resources of the Gulf Coast
(Ibid., 17).
The subtidal vegetation is St. Andrews State Park Aquatic Preserve is composed mostly
of turtle grass (Thalassia testudinum), shoal grass (Halodule wrightii), and Manatee
grass (Syringodium filiforme). These are flowering plants that produce oxygen, stabilize
sediments, produce organic carbon, provide nursery habitat, and provide foraging and
resting habitat for marine animals and sea birds. In the shallowest areas (often in the
intertidal zone) the dominant species is shoal grass. Below the low-tide mark, down to
maximum depths of approximately ten feet, beds of turtle grass dominate. Interspersed
with the turtle grass (or sometimes growing along in pure strands) is the manatee grass.
Although not as abundant as the turtle grass, manatee grass is very important to the bay
system (St. Andrews State Park Aquatic Preserve Management Plan, 18).
Although algae make up only a small portion of the subtidal vegetation, they are often
important where they occur. Most algal growth will be found attached to hard-bottoms,
either natural or man-made, and also attached to other plants, such as seagrasses. Manmade sites such as the dockage in St. Andrew Sound and the piers on Shell Island
provide hard materials upon which algae can attach. While alive, the algae beds provide
oxygen to the water column. As the algae beds die back each summer, they make a
contribution to the organic carbon load that gets recycled through the bay system in the
form of detritus. In addition to the attached algal species, there are several freeswimming species that drift over the shallows, particularly in the early spring. This is the
time of year when the rooted seagrasses have reduced above seafloor growth and the
algal provides cover for the juvenile fishes utilizing the bay shallows (Ibid., 21).
Salt marshes are a major component of St. Andrews State Park Aquatic Preserve. At
least five functions of salt marshes in estuarine ecosystems have been identified:
1.
2.
3.
4.
5.
Detrital export
Nutrient export
Sediment trapping
Pollutant removal
Critical habitat for juvenile fish and shellfish
Marshes usually have distinct vegetation zonations. Smooth cordgrass (Spartina
alterniflora) forms a border along the open water within the intertidal zone. This fringe
may extend above mean high water (MHW). Landward of the cordgrass is the black
needle rush (Juncus roemerianus), usually comprising the largest vegetated zone and the
bulk of the standing plant (St. Andrews State Park Aquatic Preserve Management Plan,
22).
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The wildlife value associated with highly productive salt marsh communities is extremely
important. The linking of estuarine with freshwater environments forms a necessary
habitat for the feeding and breeding of many species. Ranging from protozoa to
mammals, the animal populations are of considerable variety. Some species are
restricted to this semiaquatic semiterrestrial habitat, while others can be found in the
upland communities surrounding the preserve.
The fish found in the coastal waters of St. Andrews State Park Aquatic Preserve include
but are not limited to: Spanish mackerel, king mackerel, redfish, mullet, ling, sheepshead,
speckled trout, bluefish, catfish, bluerunner, whiting, grouper, pompano, flounder, and
pinfish. These waters are characterized by high salinity and low turbidity similar to the
open waters of the Gulf of Mexico (Ibid., 24).
The ichthyofauna in St. Andrews State Park Aquatic Preserve, as in most estuaries, can
be considered as transient or resident species. Transient species are ocean-spawned
species that utilize estuaries temporarily as a nursery ground before migrating back to the
sea as adults; species that move regularly from one habitat to another within an estuary;
and stenohaline species that forage and/or spawn occasionally in the lower reaches of
estuaries. Residents include those species that spend their entire life cycle within the
confines of the estuary (St. Andrews State Park Aquatic Preserve Management Plan,
24).
True resident species are usually restricted to one type of habitat. The number of
resident species is not as great as the number of transient forms.
Fish species found in St. Andrews State Park Aquatic Preserve inhabit a variety of
habitats. Pompano, bluerunner, and whiting and other forage and juvenile species can be
found in the sandy surf-zone. Unvegetated, sand bottom habitats are inhabited by
burrowing types such as flounder, stingrays, jawfishes, and inshore lizard-fishes. Nonburrowing types consist of the sand perch, pigfish, and spot. Mud bottom habitats are
preferred by mullet, croaker, silver perch, and catfish. Anchovies and silversides are
important forage species and can be seen in the bay's shallowest waters or at the surface
where they feed. The seagrass beds have a diverse assemblage of fish populations
including mullet, pinfish, blennies and gobies. "Hard" habitats such as piers, docks,
seawalls, and rock jetties contain many of the "pretty" tropical species such as cocoa
damsels, angelfish, parrotfish, spadefish, and butterfly fish. Wrasses, groupers, and
snappers are also found along these hard substrates (Ibid., 24).
In Florida, the number of species actually harvested in the estuary is surprisingly low, but
the estuary plays a significant role in production of many shellfish and finfish that
ultimately are harvested at sea. In fact, about 50 commercial and 30-65 recreational
species caught in the Gulf of Mexico spend at least some portion of their life cycle in
estuarine waters such as St. Andrews State Park Aquatic Preserve. Many popular
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estuarine-dependent species may be taken either offshore or in both the estuary and the
Gulf (seabasses, jacks, snappers, sheepshead, spot, mackerel, and flounders are
examples). Gulf menhaden, penaeid shrimp, blue crabs, and mullet comprise about 86
percent of the estuarine dependent commercial landings, while spotted seatrout, red drum,
sand seatrout, tarpon, and black drum make up approximately 80 percent of the
recreational landings (Ibid., 25).
Only a few reptile species are adapted to the conditions of the tidal juncus marsh.
Marsh reptile species have very limited geographic distributions, except for the American
alligator. The American alligator inhabits river systems, bayous and coastal marshes.
The alligator's tolerance for salinity varies with age; tolerance is high for adults but
salinities much greater than five parts per thousand may be harmful for the newly
hatched young. The alligator would be rare or occasional visitor to the tidal marshes of
St. Andrews State Park Aquatic Preserve, preferring to stay in the freshwater habitats
(Ibid., 25).
Another reptile that may be a rare sight in the salt marsh is the diamond-back terrapin.
This turtle inhabits the marshes and adjacent estuaries, nesting along sandy edges of the
marsh. A host of various snake and frog species occur in the inland wetlands bordering
the preserve.
Sea turtles (Atlantic loggerhead, green, leatherback, hawksbill, ridley) may be found in
and around St. Andrews State Park Aquatic Preserve. Loggerhead turtles are listed by
the U.S. Fish and Wildlife Service as threatened, all other sea turtles are listed as
endangered (Ibid., 25).
In and around St. Andrews State Park Aquatic Preserve, a large number of bird species
occur throughout a wide variety of habitats. Many of these species are area transients,
using this area as a resting place on their way to summer or winter grounds. Others are
accidental visitors, far from their natural home ranges. The majority of the species found
within the aquatic preserve are summer, winter, and/or annual residents. Approximately
one-fifth of these species are dependent on the marine/estuarine environment. These
include the least tern, snowy plover, American oystercatcher, and several species of
herons, egrets, gulls and terns. Species such as the American white pelican, brown
pelican, and black skimmer depend on the Gulf for food, and its environs for shelter.
Numerous other species depend on marine and estuarine wetlands to fulfill life history
requirements. Predators such as the peregrine falcon, the bald eagle and the osprey
depend on large tracts of upland and wetland areas for food and shelter (Ibid., 25).
Birds play a significant role in the marsh and estuarine food web. The juncus marsh
supports year-round residents (e.g., clapper rail and great blue heron), summer-nesting
species (e.g., least bittern), migrants (e.g., short-billed marsh wren, sedge wren, and
American widgeon), casual feeders (e.g., great egrets) and summer visitors (e.g., white
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ibis). No species of bird is endemic to the marshes of the northeastern Gulf area.
However, five subspecies of marsh birds are restricted to marshes of the Gulf of Mexico:
the seaside sparrow, Ammodranus martimun juncicola, is found from Taylor County to
St. Andrews Bay, Florida and one marsh wren, Cistothorus palustris mariane, from
Charlotte Harbor, Florida to Mobile, Alabama (Ibid., 26).
Many coastal birds nest in freshwater deltas and use the Juncus marsh habitats as
secondary breeding and dispersal areas. The marsh provides an ideal environment for
breeding birds. The dense vegetation and the isolated nature of many marsh tracts
restrict access by predators, especially the raccoon. Small fish, as well as an abundant
invertebrate population, provide food for both adults and young fledglings (St. Andrews
State Park Aquatic Preserve Management Plan, 26).
Mammals of the Juncus tidal marsh may be categorized into three groups: (1) marsh
residents, (2) inhabitants of the marsh/upland interface, and (3) upland mammals entering
the marsh to feed.
Resident mammals are few; nutria, round-tailed muskrat and marsh rabbits make up this
group. The marsh rabbit is the largest mammal to be commonly found and though quite
nocturnal, tidal variations may require them to move to some extent during the day (Ibid.,
26).
The marsh rice rat is the most abundant of all coastal marsh mammals. This rat is a good
swimmer and may be observed feeding in the lower marsh. The Hispid cotton rat is
more terrestrial and prefers the higher, less frequently flooded marsh/upland interface.
Predator species include the raccoon, mink, long-tailed weasel, and river otter who only
visit the marsh for feeding. All of the predators have mixed diets of small mammals, such
as the rats, birds, benthic invertebrates, and fish found in the tidal creeks (Ibid., 26).
Marine mammals such as the bottle-nosed dolphin and West Indian manatee travel the
waters of St. Andrews State Park Aquatic Preserve. Bottle-nosed dolphins are regular
visitors to the preserve, often feeding on smaller fish inhabiting the preserve waters.
Manatees have been seen within the aquatic preserve by personnel from the St. Andrews
State Recreation Area (Ibid., 26).
The endangered, threatened, and species of special concern found in the aquatic preserve
are:
American oystercatcher, Arctic peregrine falcon, Bald eagle, Brown Pelican, Least tern,
Piping Plover, Southeastern snowy plover, Choctawhatchee beach mouse, West Indian
manatee, American alligator, Atlantic green turtle, Atlantic loggerhead turtle, Atlantic
ridley turtle, Gulf of Mexico sturgeon, and Saltmarsh topminnow (Ibid., 28).
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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State Forests: There are nine state forests in our Region. The two larger state forests
are highlighted below and mapped. The seven smaller state forests are listed in Table 5,
but are not mapped due to their size.
Table 5
State Forests
Forest
County
Acreage
Blackwater
Santa Rosa/Okaloosa
183,670
Bruner Bay*
Washington
40
Choctawhatchee River*
Washington
235
Gillis Road*
Santa Rosa
20
Holmes Creek*
Washington
40
Loblolly*
Washington
40
Pine Log
Bay/Washington
6,911
Point Washington*
Walton
15,181
Porter Pond*
Washington
80
Tupelo*
Washington
40
*Not mapped due to size
Blackwater River State Forest: (183,670 acres) This State Forest is located in
northern Santa Rosa and Okaloosa Counties and provides a variety of multiple uses.
Timber production is a primary goal of the forest. As a part of growing timber, land
management programs have allowed for extensive recreational opportunities. Hunting,
fishing, lake boating, canoeing, hiking and camping are popular activities. The value of
this area to the Pensacola Bay Basin is in the quality of land management that protects
the total watershed. Habitats include upland mixed forest, turkey oak scrub, forested
wetlands, three state canoe trails, and near pristine rivers. There are numerous
endangered and threatened species that inhabit the forest. Part of the Florida Trail
(locally called the Jackson Trail) traverses the forest. Blackwater River State Park is
totally surrounded by state forest lands in the south portion of the forest. The park
contributes to the forest being an area of regional environmental significance. There are
numerous endangered and threatened flora and fauna found in the forest. It has
numerous high bluffs (up to 30 feet) on rivers. Watershed is important to shell fisheries,
recreation, and local tourist industry (Identification, 2-4).
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Pine Log State Forest: (6,911 acres) Located along the lower reaches of the
Choctawhatchee River, this State Forest provides multiple use activities including timber
production, camping, hiking, fishing, boating, and swimming. Pine Log Creek is a small
tributary to the Choctawhatchee River and its lower marshes in Walton County.
Endangered bird, mammal and plant species can be found in the forest. Numerous
wetlands connect to the Choctawhatchee River and Bay. Wet pine flatwoods and
hardwood swamps are found along streams and the Pine Log Creek (Identification, 3-8).
Resource Management Areas : There are no Resource Management Areas (RMA) in
our Region. There are, however, two Resource Management Plans in our Region.
These plans set guidelines for the protection and control of resources. The two plans are
for Escambia/Santa Rosa (12/11/85) and Okaloosa/Walton (3/27/85) Counties.
"Outstanding Florida Waters": Outstanding Florida Waters (OFW) are waters
designated by the Environmental Regulation Commission as worthy of special protection
because of their natural attributes. Outstanding Florida Waters generally include surface
waters in National Parks, Preserves, Wildlife Refuges, Seashores, Marine Sanctuaries,
Estuarine Research Reserves, certain National Monuments, and certain waters in
National Forests. Waters in the State Park system, Wilderness areas, and waters in
areas acquired through donation, trade, or purchase under the Environmental Endangered
Lands Bond Program (EEL), Conservation and Recreation Land Program (CARL), Land
Acquisition Trust Fund Programs (LATF), and Save our Coast program (SOC), wild and
scenic rivers, and State Aquatic Preserves are also generally included.
Waters that are found to have exceptional recreational or ecological significance that are
not protected as above may also be designated as OFWs. Such "special waters" OFWs
include 30 of Florida's 1700 rivers, plus several lakes and lake chains, several estuarine
areas, and the Florida Keys. (It should be noted that some OFWs overlap geographically)
(Listing of Outstanding Florida Waters by County, FLDER). The Outstanding Florida
Waters in our Region are shown in Table 6.
Table 6
Outstanding Florida Waters in the West Florida Region
"Outstanding Florida Water"
Location
Category
St. Andrews State Recreation Area
Bay
State Parks, Wildlife Parks, &
Recreation Areas
St. Andrews State Park
Bay
State Aquatic Preserves
Choctawhatchee River
Holmes/Washington
Bay/Walton
Special Waters
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Table 6
Outstanding Florida Waters in the West Florida Region
"Outstanding Florida Water"
Location
Category
Bay/Walton
Special Waters
Big Lagoon State Recreation Area
Escambia
State Park, Wildlife Parks, &
Recreation Areas
Perdido Key State Recreation Area
Escambia
State Parks, Wildlife Parks, &
Recreation Areas
Santa Rosa/Escambia
State Aquatic Preserves
Perdido River
Escambia
Special Waters
Escambia Bay Bluffs
Escambia
EEL; CARL; LATF; SOC
Escambia/Santa Rosa/Okaloosa
National Seashore
Holmes/Washington
State Parks, Wildlife Parks, &
Recreation Areas
Fred Gannon Rocky Bayou State
Recreation Area
Okaloosa
State Parks, Wildlife Parks, &
Recreation Areas
Henderson Beach State Recreation Area
Okaloosa
State Parks, Wildlife Parks, &
Recreation Areas
Rocky Bayou State Park
Okaloosa
State Aquatic Preserves
Okaloosa/ Santa Rosa
Special Waters
Okaloosa/Walton
Special Waters
Blackwater River State Park
Santa Rosa
State Parks, Wildlife Parks, &
Recreation Areas
Yellow River Marsh
Santa Rosa
State Aquatic Preserves
Walton
State Parks, Wildlife Parks, &
Recreation Areas
Walton/Holmes
State Parks, Wildlife Parks, &
Recreation Areas
Walton
State Ornamental Gardens,
Botanical Sites, Historic Sites,
Geologic Sites
Lake Powell
Ft. Pickens State Park
Gulf Island National Seashore
Ponce De Leon State Recreation Area
Blackwater River
Shoal River
Grayton Beach State Recreation Area
Ponce De Leon Springs State Recreation
Area
Eden State Gardens
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Table 6
Outstanding Florida Waters in the West Florida Region
"Outstanding Florida Water"
Falling Waters State Recreation Area
Location
Category
Washington
State Parks, Wildlife
Source: Florida Department of Environmental Protection.
Mitigation Banks: There are no mitigation banks in our Region. There are proposals
for the future development of mitigation banks. Currently, this is primarily a practice of
south Florida.
CARL Program Acquisitions (existing and proposed): In 1979, the Florida
Legislature established the Conservation and Recreation Lands (CARL) Trust Fund
(Section 253.023, Florida Statutes) to provide a means of acquiring and managing
environmentally endangered lands and other lands for recreation, water management, and
preservation of significant archaeological and historical sites. The fund combines $27
million remaining from the $240 million authorized by the Land Conservation Act of 1972
with part of the annual revenues obtained from severance taxes on solid minerals and
liquid fuels. From 1982 to 1984, $20 million of the revenues was allocated each year for
land acquisition. The areas to be purchased are selected by a committee. The Governor
and Cabinet, acting as the Board of Trustees of the Internal Trust Fund, then select
specific parcels for actual purchase from the list. The program is administered by the
Florida Department of Natural Resources.
The CARL projects must meet at least one of the following public purposes established
by the Legislature [§253.023(3), F.S.]:
1)
To conserve and protect environmentally unique and irreplaceable lands
that contain native, relatively unaltered flora and fauna representing a
natural area unique to, or scarce within, a region of Florida or a larger
geographic area.
2)
To conserve and protect lands within designated areas of critical state
concern, if the proposed acquisition relates to the natural resource
protection purposes of the designation.
3)
To conserve and protect native species habitat or endangered or
threatened species.
4)
To conserve, protect, manage, or restore important ecosystems,
landscapes, and forests, if the protection and conservation of such lands
are necessary to enhance or protect significant surface water, ground
water, coastal, recreational, timber, or fish or wildlife resources that
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cannot otherwise be accomplished through local and state regulatory
programs.
5)
To provide areas, including recreational trails, for natural resource-based
recreation.
6)
To preserve significant archaeological or historic sites.
Source: Florida Natural Areas Inventory facsimile from Lance Peterson.
The CARL projects for our Region are shown in Table 7.
Table 7
Conservation and Recreation Lands (CARL) in the West Florida Region
Rank
Project Name
County
1
Topsail Hill
Walton
13
Blackwater River
Santa Rosa
25
Lake Powell
Walton/Bay
27
Garcon Ecosystem*
Santa Rosa
28
Perdido Pitcher Plant
Escambia
37
Escribano Point
Santa Rosa
39
St. Michael's Landing
Bay
Source: Florida Department of Environmental Protection, Division of State Lands
*Combined Projects Garcon Point & Prairies of Garcon to create Garcon Ecosystem
Privately Owned Conservation Areas : In our Region there are two private
organizations that own conservation areas. These organizations are The Nature
Conservancy and The Florida Audubon Society. The property, designated as preserves
or conservation areas, owned by these organizations is found in Table 8.
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Table 8
Privately Owned Conservation Areas in the West Florida Region
Property
Organization
Acres
County
Rockhill Preserve
The Nature Conservancy
373
Washington
Choctawhatchee River
Preserve
The Nature Conservancy
2760
Walton
Sophia Smith Lands
Florida Audubon Society
0.14
Walton
Laidlaw Land
Florida Audubon Society
±280
Washington
Source: The Nature Conservancy and The Florida Audubon Society
"SWIM" Waterbodies: The Surface Water Improvement and Management Act
(SWIM) established a process and criteria for the Water Management Districts (WMD)
to develop and implement plans, including appropriate programs or projects, for restoring
and protecting priority water bodies of regional or statewide significance. Each WMD is
to develop a plan for each specific priority water body in the order in which they appear
on the WMD's priority list. Each Plan is to contain written strategies (programs and
projects), including activities and expenditures, for restoring or preserving that water body
based upon the requirement of Chapter 62-43, Florida Administrative Code. The
approved Plans must be updated every three years (Environmental Permitting & Growth
Management Handbook, 92).
The Department of Environmental Protection has the central oversight authority for
reviewing and approving the waterbody priority lists, reviewing and commenting on
restoration and protection plans and administering the release of funds from the SWIM
Trust Fund to the Water Management Districts. The Game and Fresh Water Fish
Commission, Department of Community Affairs, Department of Agriculture and
Consumer Services and local governments are mandatory review agencies for the SWIM
Plans. Each of the five Water Management Districts are responsible for the
implementation of the SWIM Plans in their District (Environmental Permitting & Growth
Management Handbook, 92). The SWIM waterbodies in the West Florida Region are
shown in Table 9.
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Table 9
"SWIM" Waterbodies in the West Florida Region
Swim Waterbody
County
Deerpoint Lake
Bay
Pensacola Bay Area
Escambia, Santa Rosa, Okaloosa
Santa Rosa Sound
Escambia, Santa Rosa, Okaloosa
Choctawhatchee Bay
Sand Hill Lakes
Okaloosa, Walton
Holmes, Washington
Choctawhatchee River
Bay, Holmes, Walton, Washington
St. Andrews Bay
Bay
Escambia River
Escambia, Santa Rosa
Blackwater River
Santa Rosa, Okaloosa
Shoal River
Okaloosa, Walton
Yellow River
Santa Rosa
Pensacola Bay
Escambia
Source: Environmental Permitting & Growth Management Handbook, 1993
Class I and II Waters : The designation of Class I and Class II refers to the use of the
water. These classifications are made by the Florida Department of Environmental
Protection. Class I waters are potable waters. Class II waters are for shell fishing.
Class II waters are broken down into Approved, Conditionally Approved and Prohibited.
The Florida Department of Environmental Protection tests the waters to find out the level
of waste material (fecal coliform) and sewage treatment that is present in the water.
The Class I and Class II waters in our Region are listed in Table 10.
Table 10
Class I and Class II Waterbodies in the West Florida Region
Water Body
Deer Point Lake
Escambia Bay
County
Class
Bay
I
Escambia
II
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Table 10
Class I and Class II Waterbodies in the West Florida Region
Water Body
County
Class
East Bay
Santa Rosa
II
Blackwater Bay
Santa Rosa
II
Escambia/Santa Rosa/Okaloosa
II
Okaloosa/Walton
II
West Bay
Bay
II
North Bay
Bay
II
East Bay
Bay
II
Okaloosa
II
Santa Rosa Sound
Choctawhatchee Bay
Rocky Bayou
Source: Florida Department of Environmental Protection
The only Class I waterbody in our Region is described below.
Deer Point Lake Watershed: (278,718 acres in watershed) Unique in the Region,
Deer Point Lake is the only surface water body in West Florida to be used as a public
potable water source. Through the Surface Water Improvement and Management
Program (S.W.I.M.), the Northwest Florida Water Management District has developed a
series of reports containing conclusions and recommendations calling for ways to protect
the watershed of Deer Point Lake. Degradation of water quality could be caused by
inappropriate land uses and/or development in aquifer recharge areas in the watershed's
northwest quadrant, wetlands loss, increased stormwater runoff, accidental pollutant spills
and the use of on-site sewage disposal systems. In an effort to protect Bay County's
potable water source, the NWFWMD has purchased over 7,000 acres of wetlands,
floodplain, springs and frontage along Econfina Creek, the largest tributary to the Deer
Point Lake reservoir.
Because of the combination of public and private lands in the watershed, comprehensive
methods of watershed protection need to be adopted. The watershed includes portions of
two regional planning districts and four counties. Primary significance is the ability of the
area to produce high quality potable water. Most of the area is privately owned, but is
very important to the economy of Bay County and the Region. A variety of habitats are
found throughout the watershed, including endangered and threatened ecosystems and
their associated species.
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Open Water Sources (Map 1 and 2)
Open water is a community comprising the open water areas of inland freshwater lakes,
ponds, rivers and creeks, and the brackish and saline waters of estuaries, bays, tidal
creeks, the Gulf of Mexico, and the Atlantic Ocean.
Lakes: A lake is a considerable body of inland standing water.
Floodplain/Floodway: A floodplain is level land submerged by floodwater such as the
banks of rivers, lakes, bays, and gulfs. Flooding occurs primarily after unusually heavy
rainfall. A floodplain is also an area built up by stream deposits. A floodway is a channel
used for diverting floodwater.
Springs: Florida is underlain by a thick sequence of limestone and dolomite. These
sedimentary rocks were deposited in shallow seas that, at various times in the geologic
past, inundated the State. In many places these rocks contain many large interconnected
cavities or caverns that have resulted from solution and removal of limestone by
circulating fresh ground water. The fresh water derived from rainfall infiltrated the rocks
after the sea level declined and left the surface of Florida above sea level. Most of
Florida's springs emerge from cavities where the rocks open at the land surface. Some
springs seep from permeable sands or shell beds deposited over the limestone. These
springs are generally small compared to springs that flow from limestone, and they also
are more likely to go dry during long periods of little or no rainfall (Florida Atlas, Map
Series #63).
A spring is overflow or leakage from an underground reservoir (aquifer). The source of
Florida ground water is rainfall that seeps into the ground and recharges the aquifers in
northern and central Florida and southern Alabama and Georgia, where rocks of the
aquifers are at or near land surface. Most springs in Florida are permanent, that is they
flow year round (Ibid., Map Series #63).
The water of most Florida springs is of excellent quality. It is low in salinity and of
moderate hardness depending, at least in part, on how long the water has been in storage
in the aquifer. Dissolved solids are generally less than 250 milligrams per liter (mg/L).
Spring temperatures range between 68E and 77E Fahrenheit (20E to 25E Celsius).
Springs located in the southern part of the State are warmest (Ibid., Map Series #63).
Florida springs represent natural overflow from the State's vast ground water storage and
circulation system . . . Springs vary in flow daily, seasonally, and from year to year. The
flow is related to variations in rainfall, although man's use of ground water affects the
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flow of some springs. During periods of little rainfall, spring flow, streamflow, and ground
water levels all decline, just as they increase during wet periods. The springs of Florida
are used to a limited degree as a source of water supply by agriculture and industry;
however, their primary use is recreational. For this they are well suited because of the
natural beauty of their surroundings, their normal clarity and consistently moderate
temperature, and the seemingly subtle mystery of water upwelling from the earth (Florida
Atlas, Map series #63).
Springs are classified into categories according to the volume of water they produce in a
given amount of time. Their flow rates are averages of several measurements described
in terms of cubic feet per second (ft³/sec) or million gallons per day (mgd) (The Springs
of Florida, 17). First magnitude springs are the largest springs. These springs have a
flow rate that meet or exceeds 100 ft³/sec or 64.6 mgd. Seventy-five first magnitude
springs are known to exist in the United States. Florida has more than one-third of these
with 27 first magnitude springs having a combined flow rate of over six (6) billion gallons
per day. The smaller second magnitude springs have an average flow rate between 10
and 100 ft³/sec and account for about 70 of Florida's springs (Ibid., 17).
Listed below by location are the First and Second Magnitude springs in our Region.
First Magnitude:
Gainer Springs (Bay)
Second Magnitude:
Ponce De Leon Springs State Park (Holmes)
Morrison Springs (Walton)
Beckton Springs (Washington)
Blue Spring (Washington)
Cypress Springs (Washington)
Blue Springs (Washington)
Williford Springs (Washington)
Ground Water (Map 1)
The hydrology of the West Florida Region consists of four major aquifers: the Surficial
Aquifer System, which includes the Sand-and-Gravel Aquifer, and the Floridan Aquifer,
Sub-Floridan System, and the Intermediate System. The composition of the Floridan
System and Surficial Aquifer System allows for the storing and transmitting of ground
water to, from, and throughout the respective aquifer. Each of these Systems is different,
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however, in that each has different water yielding properties due to variations in
composition and thickness.
The thickness of the Surficial Aquifer System is variable. Its thickness ranges from a
few feet to as much as 300 feet in the western part of the Region. In most of Santa
Rosa County and in all of Escambia County, the Surficial Aquifer System is the primary
source of potable water and is commonly called the Sand-and-Gravel Aquifer. The
primary components of this aquifer are sand, clays, and gravel, with sands being the
primary component. East of the Choctawhatchee River the aquifer is thin and is a minor
water-bearing layer.
The Floridan Aquifer System is the most productive water-bearing unit in northwest
Florida (District Water Management Plan, 17). The aquifer supplies 90 percent of the
water needs in the area and it is utilized in all counties except Escambia and Santa Rosa
(Ibid., 17). Limestone is the primary component of the aquifer. The layers range in
thickness of 100 to 1,000 feet within northwest Florida (Ibid., 17).
The Intermediate and Sub-Floridan Aquifer Systems function as groups of sediment that
hamper the vertical movement of ground water. The Intermediate System limits the
exchange of water between the Surficial Aquifer System and the Floridan Aquifer
System. The Sub-Floridan System forms the base of the Floridan Aquifer ground water
flows (District Water Management Plan, 19).
There are four principal hydrogeologic systems in northwest Florida. The principal
sources of water are the Floridan Aquifer and the Sand-and-Gravel System. The
subsurface characteristics of each system vary both geographically and in depth. The
nature of this variability will determine the ground water availability or the degree of
confinement for the respective system at any given location within the Region.
Ground water in the Region is influenced largely by local recharge with minimal out of
state contributions. The Surficial Aquifer has the most localized characteristics. For
example, rain falling on a hill top recharges the Surficial Aquifer and the ground water
flows down-gradient to discharge at the foot of the hill into a stream that dissects the
aquifer. The entire area overlying the Sand-and-Gravel Aquifer is a recharge area and
discharge areas are usually close to areas being recharged (District Water Management
Plan, 19).
The recharge of aquifers happens either directly or indirectly. The direct process occurs
where the sediments comprising the aquifer lie at or near the land surface or where
overlying sediments are breached by karstic features that allow rainfall to move directly
to the aquifer. The indirect process occurs when rainfall infiltrates the aquifer from
overlying sediments as leakage. Both processes are important because they replenish the
ground water resources, though at very different rates.
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Defined sections with lower recharge rates to the Floridan Aquifer are important areas
from the perspective of water supply and demand. Typically, aquifer recharge in these
delineated areas occurs indirectly, via leakage from "source" beds (i.e., Surficial Aquifer
System) which overlie the aquifer. Due to the confinement of the Floridan Aquifer, the
leakage is quite low, which translates into limited replenishment of the ground water
resources in these areas (District Water Management Plan, 24).
In Okaloosa and Walton Counties, the source bed that replenishes the Floridan Aquifer is
the Surficial Aquifer System. Extremely low recharge rates are caused by the tight
confinement of the Floridan Aquifer (Ibid., 24). The water availability from the aquifer is
quite limited in this area. Because of the potentiometric surface the water levels in the
Floridan Aquifer historically have been declining in the coastal areas (Ibid., 24). The
potentiometric surface of the coastal counties and a regional hydraulic depression is
evident from significant pumping in the vicinity. This result is attributed to the low, but
important, recharge characteristics of the local hydrogeology. Consequently, the
hydraulic impact to the salt water boundary and subsequent saline water encroachment in
this area is a major concern. In this perspective, areas delineated with low recharge
characteristics are important in managing a ground water aquifer with limited quantity
relative to demand (District Water Management Plan, 24).
The areas of higher recharge of the Floridan Aquifer are in Washington County, the
northern part of Bay County, ¾ of Holmes County, and the northeast quarter of Walton
County. These areas coincide where the aquifer is at or near land surface and where
karst processes have breached the overlying confining unit. The high recharge
characteristics allow for an abundant ground water resource. However, these
characteristics also potentially limit the use of this resource, due to the relative ease of
ground water contamination. Therefore, the delineated areas are important in terms of
managing the integrity of the ground water quality (District Water Management Plan, 24).
Coastal and Marine Resources (Map 1)
Beaches and Dunes: The beach and dune coastal strand vegetative associations are
restricted to high energy shorelines along the seaward boundary of the spits and barrier
islands of Panhandle Florida. The only barrier islands in our Region are the Santa Rosa
and Shell Islands. A large spit in our Region is Crooked Island. Coastal marshes and salt
flats found along low-energy coastlines are not considered components of the strand
community, nor are the upland communities, such as pine flatwoods found inland of the
dune system and along shorelines being eroded by the sea.
Soils of the coastal strand, as the beach and dune systems are often called, are sandy,
grading from unsorted, mixed grain sizes and shells thrown up as berms by storms to
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finely graded and sorted grain sizes on aeolian dunes. These latter dunes occur perched
on the interdune flats or are developed on top of the berms thrown up by storms.
Though variable from site to site, dune and beach vegetation can have three
distinguishable zones: (1) the shifting beach sands; (2) the produne vegetation; and (3)
the scrub zone (An Ecological Characterization of the Florida Panhandle, 138).
The shifting beach sand zone is, by definition, devoid of living, rooted vegetation. The
primary energy sources for the often numerous consumers that frequent this zone are
imported by wind and wave action or brought down from more inland areas (An
Ecological Characterization of the Florida Panhandle, 138). Seagrass washed onto the
shoreline by storm tides and waves, drifting plant debris, shells, and carcasses of fish and
other marine life, collectively called seawrack, serve as food for the primary consumers
that include many insects and their larvae, amphipods, ghost crabs, and other burrowing
invertebrate species (Ibid., 138). These, in turn, provide food for gulls, terns, and probing
shorebirds.
Inland from the shifting beach sand zone, the produne is the first large dune. Produne
vegetation is characterized by pioneer plants that can establish themselves in the shifting,
arid sands and tolerate salt spray and intense heat. Examples include sea oats (Uniola
paniculata), railroad vine (Ipomoea pes-caprae), beach morning glory (I. stolonifera),
evening primrose (Oenothera humifusa), sand spur (Cenchrus tribuloides), grasses
(Paspalum vaginatum, Schizachyrium martitimum, Panicum amarum), sand cocograss
(Cyperus lecontei), and sea purslane (Sesuvium portulacastrum) (Ibid., 138).
The produne provides limited protection to the interior dune system from wind and salt
spray and is crucial for the establishment of subsequent plant communities. On the
backsides of these dunes Spanish bayonet (Yucca aloiflia), myrtle oak (Quercus
myrifolia), green brier (Smilax auriculata), saw palmetto (Serenoa repens), and other
plants characteristic of the interior dunes may grow (Ibid., 138).
Farther inland from the foredunes is the "scrub" zone, characterized by stunted, wind and
salt spray pruned scrubby oaks and other evergreen, small leaved shrubs. This area is
referred to as the "scrub" zone by Kurz (1942), because of its similarity to scrub oak
growing on relict sand dunes of interior Florida (Ibid., 138). The scrubby, gnarled, thickleaved evergreen oaks that are characteristic of the scrub community include sand-live
oak (Q. chapmanii), fetterbush (Lyonia lucida), and very rarely in the Panhandle,
myrtle oak (Quercus myrtifolia). Other common shrubs include different types of
rosemary (Ceratiola ericoides, Conradina canescens) and gopher apple (Licania
michauxii). Ground cover is usually sparse, leaving large patches of bare white sand
with reindeer moss (Cladonia rangifera) and other lichens. The scrub community is
typically two layered, with slash or sand pine in the canopy and the scrub oaks and shrubs
in the understory (Ibid., 138).
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Scrub communities are quite variable. The coastal scrub forest is dominated by a mixture
of sand and slash pine in most locations. Sand pines are less tolerant of salt spray than
slash pine. Thus, it is common to find sand pine on the interior dunes or bayside beach
ridges and dunes on the Panhandle's barrier islands. Across the lagoon, where sand pine
is better sheltered from heavy winds and salt spray, it occurs in dense stands on relict
dunes and beach ridges along the continental margin. Eglin Air Force Base is noted for a
variety of sand pine having open, rather than serotinous cones, such as the sand pine has
in central Florida.
Open areas of the scrub zone are sometimes occupied by lichens, St. John wort
(Hypericum reductum), nettles (Cnidoscolus stimulosus), stunted sea oats, and
Jointweed (Polygonella polygama) (An Ecological Characterization of the Florida
Panhandle, 139). Swales between dunes may occasionally retain water after heavy
rains. These shallow interdunal depressions may be distinguished from sloughs in that
they drain runoff vertically into the soil, whereas sloughs hold surface runoff or carry it
into the bay (Ibid., 139).
The vegetation of the coastal community is subjected to harsh conditions. High winds,
shifting sands, intense heat, and salt spray are chronic stress factors that define not only
species composition, but growth forms as well. Many plants found in the coastal region
appear to be gnarled and stunted, perhaps as adaption to or consequences of
environmental stress (Ibid., 139).
The dunes are so arid and hot that few amphibians can tolerate the severely stressful
conditions. Southern toads (Bufo terrestris) occasionally take refuge in burrows and
forage at night at the base of dunes, especially in the interdune flats. Toads can be
abundant in coastal strand environments as can the southern leopard frog (Rana
sphenocephala) because both breed in temporary ponds of the interdune flats (Ibid.,
140).
Coastal strand environments have a bounty of reptiles. Reptiles are the vertebrates best
adapted for this environment. Their food source (insects, small vertebrates) are very
abundant in the highly productive coastal habitats. The garter snake (Thamnophis
sirtalis), black racer (Clouber constrictor), coachwip (Masticophis flagellum),
cottonmouth (Agkistrodon piscivorus), and pygmy rattlesnake (Sistrurus miliarus) are
also exceedingly abundant along strands. Mammals of the coastal strand include the
eastern mole (Scalopus aquaticus), shrews, beach mice (Peromyscus polionotus
sbspp.), rice rat (Oryzomys palustris), cotton rat (Sigmodon hispidus), cottontail
(Sylvilagus floridanus), and marsh rabbit (S. palustris) (Ibid., 140).
Coastal scrub communities from Santa Rosa Island to St. Joe Spit have populations of
light colored beach mice that burrow in the sand. These, cotton rats, and rice rats
probably are eaten by the coachwip and black racer, common snakes in the scrub that
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actively hunt their prey. They also eat the six-lined racerunner (Cnemidophorus
sexlineatus), a common scrub vertebrate. Southern toads are the most common frog, but
the southern leopard toad is also abundant. Many animals encountered in scrubs are
visitors from adjacent wetlands, forests, or grassland vegetation. Two federally listed
endangered subspecies, the Choctawhatchee beach mouse (Peromyscus polionotus
allophnys) and Perdido Key beach mouse (P. polionotus trissyllepsis) are found on
some of these barrier islands (Ibid., 140).
Unbridged Coastal Islands : The only unbridged coastal island in the Region is Shell
Island in Bay County.
Estuaries: Estuaries are deepwater tidal habitats and adjacent tidal wetlands that are
usually semi-enclosed by land but have open, partially obstructed, or sporadic access to
the ocean and in which ocean water is at least occasionally diluted by freshwater runoff
from the land (Wetlands, 630).
Marine and Estuarine Beaches: The marine sandy beaches in the Panhandle are
located on the gulfward-facing shores of the barrier islands (Shell and Santa Rosa
Islands) and on the mainland shores from Cape San Blas to Pensacola. These intertidal
habitats experience the highest wave energy of any habit type in the Panhandle saltwater
environment. This beach habitat includes the swash zone (the sloping surface of the
beach face created by the runnup of water) down to the mean low water mark (MLW)
(An Ecological Characterization of the Florida Panhandle, 228).
Panhandle beach sediments are composed almost exclusively of fine quartz grains with a
median diameter of 0.1 to 0.2 mm (Ibid., 228). Their extreme white color makes them
attractive to residents and tourists. The aerobic zone (i.e., depth of oxygenated sediment)
in beach sediments is very deep because of tidal flushing and the relatively large
interstitial pore spaces (Ibid., 228). This allows organisms to live far down within the
sediment and escape the pounding waves. Most beach organisms are suspension
feeders, using the rushing water to constantly carry food in and waste material away
(Ibid., 228).
Estuarine beaches are the areas that border sounds, bays, lagoons, and bayous.
Basically, they are the areas that are inland from open water such as the Gulf of Mexico.
As the above definition for estuary states, they have a mixture of salt and fresh water
and very little actual "beach." Very little sand will be seen on these beaches. Grasses
and other aquatic plant life covers the "beach" area. Estuarine beaches are the next area
in from a marine beach. They are between aquatic and inland areas.
Estuarine Bays : Pensacola Bay, Escambia Bay, East Bay (Santa Rosa),
Choctawhatchee Bay, West Bay, Saint Andrew Bay, East Bay (Bay), Santa Rosa Sound
are all estuarine bays within the West Florida Region.
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Primary Dune Line : Dunes form by wind blowing sand in shore from the beach. The
Primary Dune Line is the first row of dunes. These dunes are the most important and
should be protected at all costs. These dunes block or reduce the impact of storm waves.
They increase the elevation of homesites. In a big storm they furnish a reservoir of sand
without which the beach can flatten. Unfortunately, many if not most primary dunes
have disappeared on West Florida's developed islands (Living, 48). On a map, it is nearly
impossible to locate a "primary dune line."
COBRA Islands : The U.S. shoreline bordering the Atlantic Ocean and Gulf of Mexico
contains one of the longest and best defined chains of coastal barriers in the world. The
chain contains over 400 barriers and total about 2,700 miles of shoreline. These coastal
barriers contain and protect resources of extraordinary scenic, scientific, recreational,
natural, historic, and economic value that can be damaged by development on them or
adjacent to them (Report to Congress, 1). In recognition of this fact, the Coastal Barrier
Resource Act (COBRA) (16 U.S.C. 3501 et seq.) was enacted in October 1982. This
Act established the Coastal Barrier Resource System (CBRS) consisting of 186 coastal
barrier units along 670 miles if shoreline on the Atlantic and Gulf of Mexico coasts (Ibid.,
1). These units represent areas that were undeveloped and unprotected in 1982. Most
Federal revenues that promote economic growth or developments are no longer available
for use in the CBRS (Report to Congress, 1).
The philosophy behind COBRA is that risk associated with new development in these
areas should be borne by those who choose to live and work along the coast, and not by
all American taxpayers. By restricting Federal expenditures and financial assistance on
specific undeveloped coastal barriers, the Federal Government can minimize the loss of
human life, reduce the unnecessary expenditure of Federal revenues, and reduce the
damage to fish and wildlife and other natural resources that can accompany development
of these fragile areas. These are the stated purposes of the Coastal Barrier Resource
Act (Section 2(b)). Section 10 of COBRA directs the Department of the Interior to
study the CBRS and prepare for Congress a report that includes recommendations for
changes in the CBRS based on an evaluation of management alternatives that would
foster conservation of the natural resources of the CBRS (Ibid., 1).
Section 9 of the Coastal Barrier Resource Act (CBRA) amended section 1321 of the
National Flood Insurance Act of 1968 (Insurance Act), 42 U.S.C. 4028, to prohibit the
sale of new flood insurance coverage by the National Flood Insurance Program (NFIP)
on or after October 1, 1983, for any new construction or substantial improvements of
structures located within the Coastal Barrier System established by section 4 of the
CBRA. Additionally, Section 9 of the 1990 amended section of 1321 of the Insurance
Act by redesignating the existing provisions as subsection (a). The result of this
amendment was to continue the ban on new flood insurance in areas already within the
System and to make the ban effective upon enactment of the 1990 Act in areas added to
the System by the 1990 Act. As of November 16, 1991, one year after enactment of the
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1990 Act, Federal Flood insurance will no longer be available for new structures or
substantial improvements of existing structures in any areas identified on the map as an
"otherwise protected area" (Florida Coastal Management Program Facsimile, 1).
According to the United States Fish and Wildlife Service (USFWS), the following areas
in the Region are protected by the COBRA Act: St. Andrews Complex (Bay), Deer
Lake Complex (Walton), Draper Lake (Walton), Four-Mile Village (Walton), Moreno
Point (Walton, Okaloosa), Santa Rosa Island (Escambia, Santa Rosa), Gulf Islands
(Escambia), Tom King (Santa Rosa), Town Point (Santa Rosa), Garcon Point (Santa
Rosa), and Basin Bayou (Santa Rosa). The otherwise protected areas as defined by
Section 9 are St. Andrews Complex (Bay), Grayton Beach (Walton), Perdido Key
(Escambia), and Phillips Inlet (Bay). These are areas that are determined to be state
owned.
Estuarine Lagoon, Bays, Marshes: A lagoon is a relatively shallow estuary with very
restricted exchange with the sea and no significant fresh water inflow. A bay is a large
estuary with a relatively high degree of flushing. Flushing is the rate at which the water
of an estuary is replaced (usually expressed as the time for one complete replacement)
(Coastal Ecosystems, 171). Tidal salt marshes are found along the Gulf coast of Florida.
Beeftink (1977a) defined a salt marsh as a "natural or semi-natural halophytic grassland
and dwarf brushwood on the alluvial sediments bordering saline water bodies whose
water level fluctuates either tidally or non-tidally (Wetlands, 220)."
Grassbeds : Seagrasses represent one of the most important habitats in the nearshore
coastal zones of Florida. Of the approximately 12,000 km² of seagrass present in the
Gulf of Mexico, over 9,100 km² lie in Florida gulf coast waters (An Ecological
Characterization of the Florida Panhandle, 211). Seagrasses are marine angiosperms that
possess all the structures of their terrestrial counterparts (i.e., a root system, a vascular
system, and vegetative and sexual reproduction). Seagrasses are obligate hydrophytes,
living fully submerged and carrying out their entire life cycle in seawater (Ibid., 211).
Seagrass meadows are highly productive and rich in organisms. Total productivity of
dense beds (which may consist of more than 4,000 individual plant shoots per square
meter) including the plants themselves and the attached flora, can reach 20 g C/m² per
day, making them more productive on a per unit basis than either tropical coral reef
systems (10 g C/m² per day) or the upwelling regions off Peru (11 g C/m² per day) (An
Ecological Characterization of the Florida Panhandle, 211).
Wetlands (Map 3)
Wetlands are lands transitional between terrestrial and aquatic systems where the water
table is usually at or near the surface or the land is covered by shallow water. For
purposes of classification wetlands must have one or more of the following three
attributes: (1) at least periodically, the land supports predominantly hydrophytes; (2) the
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substrate is predominantly undrained hydric soil; and (3) the substrate is nonsoil and is
saturated with water or covered by shallow water at some time during the growing
season of each year (Classification of Wetlands . . . , 3).
The term wetlands include a variety of areas that fall into one of five categories: (1)
areas with hydrophytes and hydric soils, such as those commonly known as marshes,
swamps, and bogs; (2) areas without hydrophytes but with hydric soils-for example, flats
where drastic fluctuation in water level, wave action, turbidity, or high concentration of
salts may prevent the growth of hydrophytes; (3) areas with hydrophytes but nonhydric
soils, such as margins of impoundments or excavations where hydrophytes have become
established but hydric soils have not yet developed; (4) areas without soils but with
hydrophytes, such as the seaweed-covered portion of rocky shores; and (5) wetlands
without soils and without hydrophytes, such as gravel beaches or rocky shores without
vegetation (Classification of Wetlands . . ., 3).
Drained hydric soils that are now incapable of supporting hydrophytes because of a
change in water regime are not considered wetlands by the definition of the U.S.
Department of Interior. These drained hydric soils furnish a valuable record of historic
wetlands, and an indication of areas that may be suitable for restoration (Classification of
Wetlands. . ., 3). In our Region the types of wetlands that can be found are: coastal
strand, coastal saltmarsh, freshwater marsh, cypress swamp, hardwood swamp, bay
swamp, shrub swamp, and open water.
Coastal strand is actually an upland but it is worth mentioning because it is an occurrence
within our Region. Coastal strand occurs on well drained sandy soils and includes the
typical zoned vegetation of the upper beach, nearby dunes and coastal rock formations
(Closing the Gaps in Florida's Wildlife Habitat Conservation System, 218). A Coastal
strand generally occurs in a narrow band parallel to open waters of the Atlantic Ocean
and the Gulf of Mexico, and along south shores of some saline bays or sounds in both
north and south Florida. This community occupies areas formed along high energy
shorelines, and is influenced by wind, waves, and salt spray. Vegetation within this
community consists of low growing vines, grasses, and herbaceous plants with very few
small trees or large shrubs. Pioneer or early successional herbaceous vegetation
characterizes the foredune and upper beach, while a gradual change to woody plant
species occurs in more protected areas landward (Ibid., 218). Typical plant species
includes beach morning glory, railroad vine, sea oats, saw palmetto, Spanish bayonet,
yaupon holly, and wax myrtle. The coastal strand community only includes the zone of
early successional vegetation that lies between upper beach, and more highly developed
communities landward (Ibid., 218).
Wetlands in our Region, such as coastal saltmarsh or tidal marshes are found throughout
the world along protected coastlines in the middle and high latitudes. These herbaceous
and shrubby wetlands communities occur statewide in brackish waters along protected
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low energy estuarine shorelines of the Atlantic and Gulf Coasts (Closing the Gaps In
Florida's Wildlife Habitat Conservation System, 218). Saltmarshes are often dominated
by the grass Spartina in the low intertidal zone and the rush Juncus in the upper
intertidal zone. Plants and animals in these systems have adapted to the stresses of
salinity, periodic inundation, and extremes in temperature (Ibid., 218). Below, Table 11
lists the total amount of tidal marshes in our Region.
Table 11
West Florida Estuaries
Estuary
County
Tidal Marshes (Acres)
St. Andrews Sound
Bay
576
East Bay (St. Andrew)
Bay
4,597
St. Andrew Bay
Bay
875
West Bay
Bay
3,349
North Bay
Bay
1,664
Okaloosa, Walton
2,816
Santa Rosa, Escambia
309
Santa Rosa
3,307
Escambia Bay
Santa Rosa, Escambia
5,152
Pensacola Bay
Escambia
213
Perdido Bay
Escambia
1,408
Choctawhatchee Bay
Santa Rosa Sound
East Bay (Pensacola)
Source: Northwestern Florida Ecological Characterization: An Ecological Atlas, United States
Department of Interior, 4.
TOTAL 24,266
Inland from the Saltmarshes but still close enough to the coast to experience tidal effects,
are freshwater marshes. These wetlands are dominated by a variety of grasses, and
annual and perennial broad-leaved aquatic plants. These wetlands communities are
dominated by a variety of herbaceous plant species growing on sand, clay, marl, and
organic soils in areas of variable water depths and inundation regimes (Closing the Gaps
In Florida's Wildlife Habitat Conservation System, 219). These types of marshes occur in
deeper, more strongly inundated situations and are characterized by tall emergent and
floating-leaved species. Freshwater marshes occur within depressions, along broad,
shallow lake and river shorelines, and are scattered in open areas within hardwood and
cypress swamps (Closing the Gaps In Florida's Wildlife Habitat Conservation System,
219).
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Cypress swamps are regularly inundated wetlands that form a forested border along
rivers, creeks, lakes, or occur in depressions as circular domes or linear strands (Ibid.,
219). These communities are strongly dominated by either bald cypress or pond cypress,
with very low numbers of scattered black gum, red maple, and Sweetbay. The
understory and ground cover are usually sparse because of frequent flooding but
sometimes includes such species as buttonbush, lizard's tail and various ferns (Ibid., 219).
Hardwood swamps are composed of either pure stands of hardwoods, or occur as
mixtures of hardwood and cypress. This association of wetlands adapted trees occurs
throughout the state on organic soils and forms the forested floodplain of non-alluvial
rivers, creeks, and broad lake basins (Closing the Gaps In Florida's Wildlife Habitat
Conservation System, 219). Tree species that are found include a mixed overstory of
black gum, water tupelo, bald cypress, dahoon holly, red maple, swamp ash, cabbage
palm, and sweetbay (Ibid., 219).
Bay swamp is a type of hardwood swamp that contains broadleaf evergreen trees.
These trees occur in shallow, stagnant drainage or depressions often found within pine
flatwoods, or at the base of sandy ridges where seepage maintains constantly wet soils
(Ibid., 219). The soils, which are usually covered by an abundant layer of leaf litter, are
mostly acidic peat or muck that remains saturated for long periods but over which little
water level fluctuation occurs (Closing the Gaps In Florida's Wildlife Habitat
Conservation System, 220). Overstory trees within bayheads are dominated by
sweetbay, swamp bay, and loblolly bay. Depending on the location within the state, other
species including pond pine, slash pine, blackgum, cypress, and Atlantic white cedar can
occur as scattered individuals, but bay trees dominate the canopy and characterize the
community. Understory and ground cover species may include dahoon holly, wax myrtle,
fetterbush, greenbriar, royal fern, cinnamon fern, and sphagnum moss (Closing the Gaps
In Florida's Wildlife Habitat Conservation System, 220).
Shrub swamps are wetlands communities dominated by dense, low-growing, woody
shrubs or small trees. Shrub swamps are usually characteristic of wetlands areas that
are experiencing environmental change, and are early to mid-successional in species
complement and structure. These changes are a result of natural or man-made agitations
due to increased or decreased hydroperiod, fire, clear cutting or land clearing, and
siltation. One species may dominate Shrub swamps, such as willow, or any variety of
opportunistic plants may create a dense, low canopy. Common species include willow,
wax myrtle, primrose willow, buttonbush, and saplings of red maple, sweetbay, black gum,
and other hydric tree species indicative of wooded wetlands (Closing the Gaps in Florida's
Wildlife Habitat Conservation System, 220).
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AMENDMENT TO THE SRPP - SEPTEMBER 8, 1997
The following sections are adopted amendments to Part IV:
!
Natural Systems including the Florida Natural Areas Inventory (FNAI) and MAP 5
!
Specific locations of endangered, threatened, special concern, and rare species of plant and
animals and MAP 6.
!
Florida Game and Fresh Water Fish Commission Strategic Habitat Conservation Areas
and Map 7.
!
Important resources listed by specific geographic areas.
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West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Natural Systems
Florida Natural Areas Inventory (FNAI) (Map 5):
The Florida Natural Areas Inventory (FNAI) identifies natural communities and assigns
them a State Element Rank of S1, S2, or S3 and ranks their occurrences as High Quality,
Highest Quality, or Rarest communities.
FNAI has provided data layers on significant natural resources for use by the Regional
Planning Council (RPC) in preparing the West Florida Strategic Regional Policy Plan.
These natural resources are considered by FNAI to be important components of Florida's
natural diversity that should be protected to maintain the richness and integrity of Florida's
natural heritage. The seven data layers are listed and explained below.
1.
Highest quality FNAI natural communities occurrences (those ranked 'A' or 'B')
regardless of natural community state rank (Map 5);
2.
Rarest FNAI natural communities (i.e., assigned a state rank of S1, critically
imperilled; S2, imperilled; or S3, very rare) (Map 5);
3.
Natural areas of potential acquisition interest based on FNAI statewide aerial
photographic interpretation and regional workshops within each RPC;
4.
Natural areas of conservation interest based in FNAI statewide aerial
photographic interpretation and regional workshops within each RPC;
5.
Specific locations of endangered, threatened, special concern and rare species of
plants and animals (Map 6);
6.
Priority acquisition sites defined by FNAI species and natural community
occurrence data;
7.
Significant wildlife aggregation areas (Map 6).
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The data set used to compile the information for these maps was last updated by the
Florida Natural Areas Inventory (FNAI) on March 22, 1995. FNAI continually revises
data set, so for critical decisions relying upon these data it is recommended to directly
contact FNAI for up-to-date information (FNAI, 1).
The quantity and quality of data collected by the Florida Natural Areas Inventory (FNAI)
are dependent on the research and observations of many individuals and organizations. In
most cases, species and natural community occurrences are not the result of
comprehensive or site-specific field surveys; many natural areas in Florida have never
been thoroughly surveyed. The FNAI data base represents a compilation of information
extracted from published and unpublished literature, museums and herbaria, field surveys,
personal communications, and other sources. Records for new occurrences of plants and
animals are continuously being added to the database, and older occurrence records may
change as new information is gathered (FNAI, 1). For these reasons, FNAI cannot
provide a definitive statement on the presence, absence, or condition of biological
elements or areas being considered, nor should they be substituted for on-site surveys
required for environmental assessments (FNAI, 1).
Highest quality FNAI natural communities occurrences (those ranked 'A' or 'B')
regardless of natural community state rank (Map 5): Natural community
occurrences ranked 'A' or 'B' represent the highest quality occurrences of the
communities tracked by FNAI. A high-quality example of a natural community is
generally one that is not significantly impacted by recent human activities, including
notable disturbance to the herbaceous groundcover components, and that possesses a
species composition characteristic of that natural community type (i.e., contains the more
common species and perhaps some rarer species), while not having substantial numbers
of exotic species. Conservation of these areas is necessary for the preservation of the
biodiversity represented by each community type (FNAI, 2).
Rarest FNAI natural communities (i.e., assigned state rank of S1, S2, or S3)
(Map 5): Natural Communities with these ranks represent the rarest communities in the
state based on the following criteria:
S1=
Critically imperiled statewide because of extreme rarity- 5 or fewer occurrences
or very few remaining acres- or because of some factor making it especially
vulnerable to extirpation or extinction.
S2=
Imperiled statewide because of rarity- 6 to 20 occurrences or few remaining
acres- or because of other factors making it vulnerable to extirpation or
extinction.
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S3=
Either very rare or local throughout the state- 21 to 100 occurrences- or found
locally in a restricted range.
Occurrences of these communities should be preserved based on their relative rarity
statewide and for their contributions to Florida's biodiversity.
Natural Areas of Potential Acquisition or Conservation Interest based on FNAI
statewide aerial photographic interpretation and regional workshops within each
RPC.
Natural Areas of Acquisition Interest and Natural Areas of Conservation Interest were
delineated based on information received during the Regional Ecological Workshops held
in each Regional Planning Council and initial FNAI review of Florida Department of
Transportation black and white aerial photographs (1:2083). This project was sponsored
by the Florida Department of Environmental Protection through the Conservation and
Recreation Lands (CARL) Trust Fund (FNAI, 3). The purpose of the initial screening of
the aerial photography was to identify high-quality Potential Natural Areas (PNAs) and to
transcribe coarse boundaries for the identified PNAs onto county highway maps (1" = 2
miles) for digitization. The local workshop for the West Florida Region was held
November 17, 1993, in Shalimar, Florida.
The Regional Ecological Workshops (REW) were held to solicit information on PNAs
from individuals knowledgeable about natural resources within each Planning Council.
Potential participants for each REW were compiled by developing mailing lists that
included but were not limited to the following: county planning and parks offices,
Department of Environmental Protection (DEP) regional offices, DEP district biologists,
county Soil Conservation Service employees, Game and Fish Commission regional
biologists, local chapters of the Sierra Club, federal agencies involved in natural resources
issues, Nature 2000 symposium participants, P2000 map charette attendees, CARL
liaison staff members, academic researchers, and other local environmental groups. Staff
from the Regional Planning Councils were asked to provide additional information about
locally knowledgeable persons (FNAI, 3). Participants were asked to identify rare and
threatened natural communities, endangered species habitats, endangered plant
communities, outstanding natural areas, and other outstanding natural features within the
RPC area and to mark sites that they wished to nominate for consideration as potential
natural areas.
Preliminary Ranking of Sites
The Natural Areas of Acquisition Interest and Natural Areas of Conservation Interest
are preliminary; rankings resulting from additional criteria and fully incorporating
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information from the FNAI data base and further review by FNAI scientific staff will be
done as the regional ecological analyses continue. Although reliable information was
obtained from aerial photographic interpretation and regional workshops, most of these
sites have not been field-surveyed, and information from the FNAI data base and Florida
Game and Fresh Water Fish Commission priority wildlife habitat analysis have not been
fully incorporated. Potential Natural Areas were classified as Natural Areas of
Acquisition Interest and Natural Areas of Conservation Interest based on the following
criteria:
Natural Areas of Acquisition Interest: sites that contain high-quality examples of
natural communities or assemblages of rare, threatened or endangered plants and
animals. For a site to be considered a Natural Area of Acquisition Interest for the
preliminary ranking (which focused on natural communities), it must be at least 500 acres
(except as noted below), and based upon recent aerial photographic interpretation, must
contain at least one of the following (FNAI FAX, 3):
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1) One or more high-quality examples of the following natural communities:
Basin Beach
Beach Dune
Bog
Bluff
Coastal Interdunal Swale
Coastal Berm
Depression Marsh
Coastal Grassland
Dome Swamp
Coastal Strand
Floodplain Forest
Maritime Hammock
Floodplain Marsh
Scrubby Flatwoods
Freshwater Tidal Swamp
Shell Mound
Seepage Slope
Sinkhole
Swale
Slope Forest
Upland Hardwood Forest
Upland Pine Forest
Alluvial Stream
Xeric Hammock
Estuarine Tidal Marsh
Estuarine Tidal Swamp
Clastic Upland Lake
Flatwoods/prairie Lake
River Flood Lake
Sandhill Upland Lake
Sinkhole Lake
Swamp Lake
Aquatic Cave
Marine Grass Bed
Marine Tidal Marsh
Marine Tidal Swamp
Estuarine Grass Bed
Blackwater Stream
Seepage Stream
2) An outstanding example of any FNAI natural community.
Exceptions to the 500-acre minimum size criterion may include:
1) any site containing at least:
20 acres of Pine Rockland,
20 acres of Rockland Hammock,
80 acres of Scrub,
320 acres of Sandhill, or
320 acres of Dry Prairie.
2) any example of:
Coastal Dune Lake,
Coastal Rock Barren,
Coastal Rockland Lake,
Upland Glade,
Terrestrial Cave, or
Spring-Run Stream if part of a larger system or contiguous with a spring head
(FNAI FAX, 4).
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
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A high-quality example of a natural community is generally one that is not significantly
influenced by recent human activities, including notable disturbance to the herbaceous
groundcover, components, and that possesses a species composition characteristic of that
natural community (i.e., contains the more common species and perhaps some rarer
species), while not having a substantial number of exotic species. Not all these
characteristics can be determined by aerial photograph interpretation (Ibid., 4).
These sites represent core areas that encompass some of the remaining highest-quality
natural areas in Florida. Preserve/project design has not been done for these areas; often
additional surrounding areas of lower quality may need to be added for long-term
protection of the resources. Core areas are in need of protection and management aimed
at perpetuation of the key natural features found on site. Preliminary Natural Areas of
Acquisition Interest are subject to boundary modifications and will require additional aerial
photographic interpretation, data base analyses, and field verification before they can be
considered final (FNAI FAX, 4).
Natural Areas of Conservation Interest: Sites that may not contain high-quality
examples of natural communities or rare species but are ecologically viable and
defensible tracts of land representative of a natural ecosystem. These areas do not
include urban, agricultural, or silvicultural land use unless there is strongly compelling
evidence that such existing land use does not sufficiently influence the ecosystem values
of the site. Occasionally, Natural Areas of Conservation Interest might include landscape
that allow ecosystems to sustain an adequate level of functional stability and provide
landscape linkages for the maintenance of biological diversity (FNAI FAX, 4).
Additional ranking criteria or modifications to these criteria may result from further FNAI
scientific staff review as the regional ecological analyses continue. Ongoing
augmentation of the FNAI data base, including element ranking activities, may also
change the ranks of individual sites (Ibid., 4).
Rare, Threatened, and Endangered Species Occurrences :
Throughout our Region there are many occurrences of rare, endangered and threatened
species. Due to the effects of nature, man, and genetics, species that once flourished are
now endangered, rare, or threatened. This has become a serious concern of the Florida
Committee on Rare and Endangered Plants and Animals (FCREPA). This group of
scientists, conservationists, and concerned citizens meet to discuss and evaluate the status
of Florida's wildlife and to determine which species should be considered for special
classification and concern.
The classifications are endangered, threatened and rare. Endangered means a species
that is in danger of extinction or extirpation of the deleterious factors affecting their
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
IV-82
populations continue to operate. These are forms whose numbers have already declined
to such a critically low level or whose habitats have been so seriously reduced or
degraded that without active assistance their survival in Florida is questionable (Rare and
Endangered Biota of Florida, Vol. 1, xv).
Threatened species are those that are likely to become endangered in the state within the
foreseeable future if current trends continue. This category includes (1) species in which
most or all populations are decreasing because of overexploitation, habitat loss, or other
factors; (2) species whose populations have already been heavily depleted by deleterious
conditions and, while not actually endangered, are nevertheless in a critical state; and (3)
species that may still be abundant but are being subjected to serious adverse pressures
throughout their range (Ibid., xv).
Rare species are those that, although not presently endangered or threatened as defined
above, are potentially at risk because they are found only within a restricted geographic
area or habitat in the state or are sparsely distributed over a more extensive range (Ibid.,
xv).
Specific locations of endangered, threatened, special concern, and rare species
of plant and animals. (Map 6)
This data layer identified the occurrences of endangered, threatened, special concern, and
rare species with FNAI assigned state ranks of S1, S2, or S3. The occurrences
represented the locational records of endangered, threatened, or rare species and ideally
represented tracts of land or water needed to sustain or otherwise contribute to the
survival of populations of species (FNAI FAX, 5).
Significant wildlife aggregation areas. (Map 6)
The Florida Natural Areas Inventory (FNAI) tracks wading bird rookeries, manatee
aggregation areas, and migratory bird concentration areas. This data layer represents the
location of these areas based on information provided to FNAI, principally by the Florida
Game and Fresh Water Fish Commission and Department of Environmental Protection.
These areas merit protection because they provide habitat for concentrations of protected
species or provide important foraging or nesting habitat for species (FNAI FAX, 5).
Information contained on Maps 5, 6 and 7 is insufficient for permitting purposes and is
intended for use as a general planning guideline.
Florida Game and Fresh Water Fish Commission Strategic Habitat Conservation
Areas (Map .7):
The total percentage of conservation lands in the West Florida Region is slightly greater
than the statewide average. However, Bay, Washington, Holmes, and Escambia counties
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
IV-83
are well below the statewide average for individual counties (15.6%) (Closing the Gaps,
185). Residential and urban development of fragile coastal areas threatens many
important biological resources remaining in this Region. Many important coastal areas of
the West Florida Region are found in the conservation areas. There are ten (10)
Conservation Areas in our Region.
Area 1: Eglin Air Force Base (formerly Choctawhatchee National Forest). Although
this area is the largest publicly owned tract of sandhill land cover in Florida, it is not in the
geographic range of several vertebrate species dependent on sandhill communities.
Important vertebrate species recorded here includes Florida black bear, fox squirrel, redcockaded woodpecker, southeastern American kestrel, eastern indigo snake, Florida pine
snake, gopher tortoise, American alligator, Florida bog frog, gopher frog, pine barrens
treefrog, one-toed amphiuma, four-toed salamander, Atlantic sturgeon, river goby, and
Okaloosa darter (Closing the Gaps, 185). Rare plants include white-top pitcher-plant,
sweet pitcher-plant, West's flax, Chapman's butterwort, Curtiss' sandgrass, panhandle lily,
spoon-leaved sundew, Drummond's yellow-eyed grass, west Florida cowlily, pineland
hoary-pea, hairy wild indigo, gulf coast lupine, orange azalea, Baltzell's sedge, silky
camellia, Ashe's magnolia, panhandle meadowbeauty, karst pond xyris, southern threeawned grass, Colville's rush, spoon-flower, Arkansas oak, pondspice, pyramid magnolia,
mountain laurel, hairy-preduncled beak-rush, toothed savory, large-leaved jointweed, bogbutton, naked-stemmed panic grass, heartleaf, Harper's yellow-eyed grass, violetflowered butterwort, smooth-barked St. John's-wort, and Florida anise (Ibid., 185). This
conservation area has the capacity to sustain viable populations of most of these species,
but management activities need to be improved. Hardwood encroachment has occurred
in many areas and affected populations of rare species (Closing the Gaps, 185).
Area 2: Patches of sandhill in Washington, Jackson (not in our Region) and Bay
counties. Portions of this area include a Strategic Habitat Conservation Area for sandhill
communities in Florida. Rare species are listed by more precise geographic areas.
Sweetwater, Buckhorn, and Econfina Creek: gopher tortoise, limpkin, southeastern
American kestrel, American swallow-tailed kite, hairy woodpecker, pyramid magnolia,
mountain laurel, smooth-barked St. John's-wort, toothed savory (Closing the Gaps, 186).
Porter, Gap, and Deadening Lakes (east of State Road 77, north of State Road 20):
gopher tortoise, eastern indigo snake, Florida pine snake, gopher frog, toothed savory,
white-topped pitcher plant, Harper's yellow-eyed grass, panhandle meadowbeauty,
smooth barked St. John's-wort, and Gulf Coast lupine (Ibid., 186). Hicks, Lucas, and
Big Blue Lakes (west of State Road 77, east of State Road 79, north of State Road 20):
eastern indigo snake (several records), gopher tortoise (several records), smooth-barked
St. John's-wort, panhandle meadowbeauty, silky camellia, karst pond xyris, Piedmont
water-milfoil, pyramid magnolia, heartleaf, and mountain laurel (Ibid., 186). Court
Martial and White Western Lakes (east of State Road 79 and south of State Road
20): Cooper's Hawk, hairy woodpecker, gopher tortoise, eastern indigo snake, whitetopped pitcher plant, smooth-barked St. John's-wort, Cruise's golden aster, gulf coast
lupine, panhandle meadowbeauty, and karst pond xyris (Closing the Gaps, 186).
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
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Area 3: Patches of sandhill and xeric pinelands west and southwest of Blackwater
River State Forest (east and west of U.S. 191). Rare species are listed by precise
geographic regions. South of Springhill (surrounding East Fork and Big Coldwater
Creeks): fox squirrel, southeastern American kestrel, hairy woodpecker, Cooper's hawk,
gopher tortoise, hairy-peduncled beak-rush, and panhandle lily. South of Berrydale
(surrounding East Fork and Manning Creeks): southeastern American Kestrel, gopher
tortoise, flatwoods salamander, hairy-peduncled beak-rush, and serviceberry holly (Ibid.,
186).
Area 4: Blackwater River State Forest. Important conservation area that supports
several rare species. Species recorded for the area include eastern chipmunk, redcockaded woodpecker, gopher tortoise, Florida pine snake, eastern indigo snake, tiger
salamander, pine barrens treefrog, black-tip shiner, panhandle lily, white-topped pitcherplant, Say's spike-tail dragonfly, Harper's yellow-eyed grass, bog button, Chapman's
butterwort, yellow-eyed grass, and meadowbeauty (Ibid., 186).
Area 5: Upper Choctawhatchee River and Holmes Creek. Wetlands areas associated
with these rivers, and the isolated wetlands that lie between these rivers, are important
foraging areas for nearby wading bird rookeries consisting of great egret, snowy egret,
little blue heron, and white ibis (Closing the Gaps, 186). Other species are reported by
major drainages.
Choctawhatchee River (north of Caryville): eastern chipmunk, short-tailed hawk,
Cooper's hawk, black-tip shiner, cypress dart, Florida logperch, Florida chub, Clench's
elimia, and wild indigo. Holmes Creek North (Interstate 10 south to Vernon):
bluenose shiner, dusky shiner, Clench's elimia, Washington thorn, and variable-leaved
Indian-plantain (Ibid., 186). Holmes Creek and Choctawhatchee River South
(confluence south of Vernon and Baker Store): American swallow-tailed kite, limpkin,
goldstripe darter, Florida logperch, orange azalea, yellow cowlily, variable-leaved Indianplantain, and Ashe's magnolia (Ibid., 186). Lands Between Choctawhatchee River
and Holmes Creek (Washington County): white ibis (rookery), great egret (rookery),
anhinga (rookery), flatwoods salamander, and serviceberry holly. Wright's and
Tenmile Creek: black-tip shiner, fuzzy pigtoe, variable-leaved Indian-plantain, and
southern sandshell (Ibid., 186).
Area 6: Lower Choctawhatchee River. Portions of the area are included in a Strategic
Habitat Conservation Area for Florida black bear. Other species are listed by precise
geographic areas. South of State Road 20 (including Black Creek and nearby Pine Log
State Forest): round-tailed muskrat, little blue heron (rookery), white ibis (rookery),
American swallow-tailed kite, hairy woodpecker, gopher tortoise, coal skink, flatwoods
salamander, one-toed amphiuma, Florida logperch, orange azalea, white-topped pitcherplant, Apalachicola dragon-head, Curtiss' sandgrass, and Chapman's crownbeard (Ibid.,
186). North of State Road 20: Cooper's hawk, hairy woodpecker, Florida logperch,
orange azalea, variable-leaved Indian-plantain, fluted elephant-ear, smooth-barked St.
John's-wort, and southern sandshell (Ibid., 186).
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
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Area 7: Weaver, Garnier, Julian Mill, and Burnt Grocery creeks. Strategic Habitat
Conservation Area for the Florida bog frog and Florida black bear. Other rare species
recorded along the creeks include American swallow-tailed kite, Florida pine snake,
flatwoods salamander, black-mouth shiner, panhandle lily, hairy wild indigo, and sweet
pitcher-plant (Ibid., 186).
Area 8: Large area of sandhill land cover northeast of Eglin Air Force Base (north of I10, east of Dorcas). Rare species recorded for this area include southeastern American
kestrel, gopher tortoise, pine barrens treefrog, eastern indigo snake, Florida pine snake,
Florida panhandle lily, and yellow fringeless orchid (Closing the Gaps, 186).
Area 9: Yellow River, east of Blackwater River State Forest (north and south of State
Road 2). Rare species recorded for this area include eastern chipmunk, gopher tortoise,
pine barrens treefrog, eastern indigo snake, Florida pine snake, Florida panhandle lily, and
Coville's rush (Ibid., 186).
Area 10: The floodplain forests of the Escambia River and its tributaries. Rare species
are listed by specific geographic areas. North Escambia River and Escambia Creek
(north of Chumuckla Springs): eastern chipmunk, American swallow-tailed kite, Alabama
map turtle, Gulf coast smooth softshell, alligator gar, cypress darter, Florida chub, black
tip shiner, cypress minnow, crystal darter, saddle-back darter, orange azalea, heartleaf,
southern pocketbook, flat floater, and narrow pigtoe (Ibid., 186). Canoe Creek:
American swallow-tailed kite, copperhead, seal salamander, rough shiner, bluenose
shiner, striped shiner, harlequin darter, and saddle-back darter (Closing the Gaps, 186).
South Escambia River (south of Chumuckla Springs): American swallow-tailed kite,
Cooper's hawk, indigo snake, river redhorse, starhead topminnow, cypress darter, cypress
minnow, Florida chub, Florida logperch, panhandle lily, mountain laurel, Florida anise, and
narrow pigtoe (Ibid., 186)
Coastal Areas of Escambia County.
Important resources are listed by specific geographic areas.
Perdido Key State Preserve and Private Lands to West: least tern
(nesting), Godfrey's golden aster; patches of scrub and coastal strand on private
lands west of Perdido Key State Recreation Area support Godfrey's golden aster
and are important to migratory birds (Closing the Gaps, 186).
Big Lagoon State Recreation Area: Cruise's golden aster, black skimmer
(nesting), Godfrey's golden aster, and saltmarsh topminnow (Ibid., 186).
Pensacola Naval Air Station: Wilson's plover, spoon-flower sundew, whitetopped pitcher plant, Godfrey's golden aster, large-leaved jointweed, Gulf
rockrose, and Carolina lilaeopsis (Ibid., 187).
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
IV-86
Gulf Island National Seashore (Perdido Key portion): least tern (nesting),
Wilson's plover, Cuban snowy plover, Godfrey's golden aster, and Gulf rockrose;
coastal scrub and grasslands important to migratory birds (Ibid., 187).
Ft. Pickens State Park (Santa Rosa Island): Santa Rosa Island beach mouse,
Cuban snowy plover, piping plover, gopher tortoise; coastal grasslands, scrub, and
mesic and scrubby flatwoods of value to coastal migrants; least tern (nesting) at
Pensacola Beach (Ibid., 187).
Gulf Island National Seashore (Pensacola Beach to Navarre Beach): Santa
Rosa Island beach mouse, American oystercatcher (rare in western panhandle),
Cuban snowy plover, piping plover, least tern (nesting), black skimmer (nesting;
east of Langdon Beach), shorebird aggregation areas, Cruise's golden aster, and
Godfrey's golden aster; coastal grasslands and maritime hammocks important to
migratory birds (Ibid., 187).
Coastal Areas of Santa Rosa, Okaloosa and Walton Counties.
Important resources are listed by more specific geographic areas.
Santa Rosa Island National Seashore and Eglin Air Force Base (Navarre
Beach to Destin): Santa Rosa beach mouse, Cuban snowy plover, piping plover,
least tern (nesting colonies), black skimmer (Ocean City), shorebird aggregation
areas, green turtle, Cruise's golden aster, Godfrey's golden aster, perforate
reindeer lichen, Gulf rockrose; coastal grasslands, scrub, and mesic flatwoods
that are important to migratory birds (Closing the Gaps, 187).
Moreno Point: indigo snake, Curtiss's sandgrass, large-leaved jointweed, and
Gulf coast lupine.
Henderson Beach State Recreation Area: gopher tortoise, large-leaved
jointweed, Gulf coast lupine; coastal grasslands important to migratory birds.
Four Prong Lake (and private lands to east): panhandle meadowbeauty and
Curtiss's sandgrass.
Topsail Hill (mix of private and recently acquired public lands):
Choctawhatchee beach mouse, Cuban snowy plover, piping plover, red-cockaded
woodpecker, gopher tortoise, Curtiss's sandgrass, spoon-leaved sundew, Gulf
coast lupine; coastal strand, grasslands, and mesic flatwoods important to
migratory birds (Ibid., 187).
Four Mile Point (private lands): gopher tortoise, red-cockaded woodpecker,
southern red lily.
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
IV-87
Point Washington (mix of private and public lands, includes Blue Mountain
Beach): round-tailed muskrat, red-cockaded woodpecker, Strategic Habitat
Conservation Area for western seaside sparrows (also at Fluffy Landing across
Choctawhatchee Bay), gopher tortoise, southern red lily, Gulf coast lupine,
coastal scrub and scrubby pinelands important to migratory birds (Ibid., 187).
Grayton Beach State Recreation Area: Strategic Habitat Conservation Area
for Chocawhatchee beach mouse (includes private lands), least tern, gopher
tortoise, large-leaved jointweed, Godfrey's golden aster, Cruise's golden aster,
Gulf coast lupine; coastal scrub, maritime hammock, and beach dune habitats
important to migratory birds (Closing the Gaps, 187).
Seagrove Beach: private tract of coastal strand and scrub to the east
constitutes critical habitat for the Choctawhatchee beach mouse.
Deer Lake (private lands): least tern (nesting), Cuban snowy plover, piping
plover, shorebird aggregation area, large-leaved jointweed, Godfrey's golden
aster, Gulf coat lupine, southern red lily; coastal grassland, scrub, and maritime
hammock important to migratory birds (Ibid., 187).
Coastal Areas of Bay County.
Important resources are listed by more precise geographic areas.
Powell Lake: Strategic Habitat Conservation Area for Cuban snowy plover;
other species include Godfrey's golden aster, Gulf coast lupine, and large-leaved
jointweed (Closing the Gaps, 187).
Panama City Beach (private lands north of U.S. Highway 98): historic record
of red-cockaded woodpecker, Chapman's crownbeard, and southern red lily.
St. Andrews Bay: black skimmer, Strategic Habitat Conservation Areas for
western seaside sparrows (coastal marshes along East Bay); other species
include Wilson's plover (West Bay Point, North Bay Point, and Goose Point),
southern bald eagle, and shorebird aggregation areas (Ibid., 187).
Tyndall Air Force Base/ St. Andrews State Recreation Area: Strategic
Habitat Conservation Area for St. Andrews beach mouse; piping plover, Cuban
snowy plover, Wilson's plover, loggerhead turtle, southern red lily, Harper's
yellow-eyed grass, Drummond's yellow-eyed grass, Gulf coast lupine, Godfrey's
golden aster, Gulf rockrose, Chapman's butterwort, Chapman's crownbeard, giant
water-dropwort, and southern milkweed; coastal habitats also important to
migratory birds (Closing the Gaps, 187).
West Florida SRPP ! Natural Resources of Regional Significance ! Amendment Adopted 9/8/97
IV-88
GOALS AND POLICIES
PRIORITY 1:
Protection of the Region's Surface Water Resources.
GOAL 1: Protect the surface water resources within the Region.
Indicators:
!
Increase in the number of water management plans adopted and
implemented.
!
Improved quality of the Region's surface waters.
Policy 1.1: Prevent the introduction of hazardous toxins and chemicals into the Region's
surface water system by business, industrial, and private interests.
Policy 1.2: Prohibit development activities that structurally impair or reduce the flow of
the Region's rivers, creeks, branches, streams and standing water such as ponds and
lakes.
Policy 1.3: Coordinate local and regional planning Surface Water Improvement and
Management (SWIM) program plans and studies and "Water Management Plans" to
maintain surface water quality and drinking water quality and quantity.
Policy 1.4: Protect all surface waters from pollution and degradation, with particular
emphasis on SWIM priority waterbodies, Class I and II waters, Outstanding Florida
Waters, and State Aquatic Preserves.
Policy 1.5: Protect wetlands from pollution and unnatural degradation due to
development.
Policy 1.6: Restrict the channelization, diversion, and damming of natural riverine
systems to prevent loss of habitat and changes in water velocity and volume that would
adversely impact downstream habitats.
Policy 1.7: Require buffer zones around water bodies, landscaping techniques that
minimize erosion, and proper maintenance of onsite domestic waste treatment facilities so
as to protect water quality.
Policy 1.8: Develop area-wide stormwater management plans to protect the surface
water resources.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-89
Policy 1.9 Implement intergovernmental coordination and interlocal agreements for costsharing in the planning and construction of new area-wide wastewater treatment and
solid waste facilities, where feasible.
Policy 1.10: Utilize agricultural and silviculture Best Management Practices (BMP) to
minimize runoff and protect surface systems.
Policy 1.11: Implement stormwater utilities, special districts and other alternative
programs to finance infrastructure needed to manage stormwater in accordance with
state and federal regulations.
Policy 1.12: Around Deer Point Lake and areas that discharge into DPL, restrict use of
individual household septic tank systems or other alternative individual household domestic
waste treatment systems in areas where potable water supplies have demonstrated
contamination or can be expected to be contaminated by this waste disposal method.
Policy 1.13: Adopt and implement standards for agricultural activities and other
development in areas around Deer Point Lake to protect water quality of the lake.
Policy 1.14: Prohibit all construction, except for piers, docks, and landscaping, within
100 feet of the mean high water mark of Econfina Creek.
PRIORITY 2:
Protection of the Region's Ground Water Resources.
GOAL 1: Manage the Regional water supply to provide for all recognized needs on a sustainable basis
and protect water recharge areas and existing and future well sites.
Indicators:
!
Change in number of regional water authorities.
!
Change in the use of reclaimed water.
!
Change in groundwater supply identified by the Northwest Florida Water Management
District.
!
Change in the number of stormwater management systems.
Policy 1.1: Continue the consumptive use permitting program.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-90
Policy 1.2: Establish regional authorities pursuant to Chapter 373.1962 F.S., and have
interlocal agreements to develop and coordinate water supply.
Policy 1.3: Allow the use of reclaimed wastewater for irrigation.
Policy 1.4: Identify and protect water recharge areas and existing and future well sites
through comprehensive land use planning and land development regulations.
Policy 1.5: Investigate the development and use of alternative sources of water in
areas where currently used sources are steadily declining and develop and implement
strategies for use of alternative water supplies.
Policy 1.6: Protect groundwater supply identified in groundwater basin resource
inventories prepared by the Northwest Florida Water Management District.
Policy 1.7: Prohibit or require mitigation for all developments that have the potential to
cause or increase salt water intrusion, interfere with legal water users or damage
important ecosystems.
Policy 1.8: Develop and annually update a twenty-five year growth and capital
improvement plan for all public ater supply systems.
Policy 1.9: Prevent all development activities that would structurally impair the function
of high volume recharge areas, or reduce the availability and flow of good quality water
to those recharge areas.
Policy 1.10: Adopt and enforce conservation ordinances that call for the installation of
water conservation devices in new structures and retrofitting in renovated structures.
Policy 1.11: In water resource caution areas, public water systems should provide
incentives such as reduced connection fees and service charges for customers who use
effective water and/or wastewater saving devices, and disincentives such as escalating
water rates for those who do not.
Policy 1.12: Coordinate with the Northwest Florida Water Management District to
adopt and implement a regional water shortage plan.
Policy 1.13: Expand the present regional water quantity monitoring network to better
develop detailed estimates for water supply and demands.
Policy 1.14: Expand public awareness regarding the need for management of regional
water resources.
Policy 1.15: Prohibit the mining of water, where use exceeds historical recharge.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-91
Policy 1.16: Prohibit any activities that would introduce wastes or other by-products into
the groundwater system via recharge areas.
Policy 1.17: Continue to disseminate information on proper storage, use and disposal
practices, for users of hazardous substances.
Policy 1.18: Coordinate with HRS public county health units to ensure required
upgrading of defective septic tank systems or tie-in to central sewer to meet state
regulations.
Policy 1.19: Amend septic tank zoning and permitting procedures to prohibit the
construction of septic tanks in 100-year floodplains.
Policy 1.20: Develop criteria for the provision of future landfill sites in the
comprehensive planning process.
Policy 1.21: Where conditions are inadequate to support alternative wastewater
disposal systems require that an adequate sewer system is in place or will be in place by
the time a subdivision is ready for occupancy before subdivision permitting occurs.
Policy 1.22: Identify areas served by septic tanks and develop plans to provide sewer
service within a twenty year period.
Policy 1.23: Expand public awareness regarding the need for the protection of regional
water resources from contamination.
Policy 1.24: Coordinate land use and infrastructure development with watershed
management plans.
PRIORITY 3:
Protection of Coastal and Marine Resources.
GOAL 1: Protect beach and dune systems from the undesirable affects of development.
Indicators:
!
Change in the number of nonwater-dependent uses in the coastal area.
!
Change in the number of dune walkovers on the coast.
Policy 1.1: Require site design standards that preserve the integrity and stability of
beach and dune systems.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-92
Policy 1.2: Land use plans for shoreline areas shall give priority to water-dependent
uses over other uses.
Policy 1.3: Regulate development in unique areas of the coast and areas adjacent to
environmentally sensitive estuarine systems so that the effects of development can be
adequately buffered and mitigated.
Policy 1.4: Provide incentives for the construction of dune walkovers to provide beach
access.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-93
GOAL 2: By the year 2000, 50% of eroded beaches and dunes shall be restored and stabilized
to reestablish a functioning dune system.
Indicators:
!
Increase in amount of dune restoration activity.
Policy 2.1: Prohibit development that accelerates or has the potential to accelerate
erosion of shoreline.
Policy 2.2: Target most severely eroded beach and dune areas first and assist
landowners to take measures to restore and stabilize beach and dune systems.
Policy 2.3: Local governments should prevent any development of structures that are
(1) seaward of the Coastal Construction Control Line (CCCL); or (2) within the Coastal
High Hazard Areathat are not able to meet the most current code for being able to
withstand hurricane wind and storm surge damage.
Policy 2.4: Require building owners to plant native beach plants and use wind breaks to
help establish the plants in areas where erosion of the beaches and/or dunes is occurring
on the property.
Policy 2.5: Restore the primary dune system where it is damaged, and discourage
activities that would destabilize the system.
Policy 2.6: Publicly owned land should be maintained for the establishment and/or
maintenance of intact dune systems.
Policy 2.7: Replace damaged or deteriorating seawalls with a sloped, vegetated
revetment system.
Policy 2.8: Local governments shall only permit the construction of shore hardening
structures as a last resort for residential and non-urban waterfronts.. All permitted
structures shall be consistent with the Department of Environmental Protection Coastal
Armoring Policy.
GOAL 3: Protect coastal land and water systems from inappropriate development and human
activities determined to be intrusive or damaging to natural resources and/or water quality.
Indicators:
!
Change in development patterns in coastal areas.
!
Change in regulations adopted to protect coastal land and water systems.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-94
Policy 3.1: Pursuant to Chapter 376.071, Florida Statutes, marine operators of regulated
vessels should develop and adopt oil spill contingency plans and have an onboard spill
officer responsible for training and spill response.
Policy 3.2: All ports, waterfront industries, oil companies, and county civil defense
departments should participate in the Florida Spillage Control Association, Inc.
Policy 3.3: All coastal communities should establish siting procedures for marina and
other water dependent land uses that prohibit development in sensitive estuarine areas,
require mitigation of unavoidable habitat losses at a ratio of 4:1 and limit discharge of
waste materials.
Policy 3.4: Coastal communities should adopt and implement regulations that limit
stormwater and wastewater discharges into estuaries.
Policy 3.5: Coastal communities shall avoid public expenditures in coastal high hazard
areas that would accommodate higher density and shall relocate public facilities to
locations outside the coastal high hazard area whenever possible.
Policy 3.6: Activities that would degrade or eliminate any type of approved shellfish
harvesting area classification shall be prohibited.
GOAL 4: Protect and manage marine fisheries habitat.
Indicators:
!
Change in the amount of seagrass beds in the Region.
Policy 4.1: Identify sensitive estuarine environments and develop and implement
management techniques that will preserve the functioning of these systems.
Policy 4.2: Require all developments adjacent to marine, aquatic, and estuarine areas to
include structural and/or nonstructural facilities for treatment of stormwater and domestic
waste that are sufficient to eliminate any chance of degradation of these areas.
GOAL 5: Include specific measures to protect marine resources when issuing offshore drilling
permits
Indicators:
!
Change in permitting requirements for offshore drilling.
Policy 5.1: Review of off-shore exploration permits shall continue to include review of
impacts upon marine resources.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-95
Policy 5.2: Exploration and development of mineral resources shall be prohibited in
unique marine, aquatic, and estuarine areas including waters adjacent to or designated as
Outstanding Florida Waters and Aquatic Preserves.
GOAL 6: By the year 2000, restrict all development in all coastal high hazard areas in order to
provide adequate evacuation of coastal residents in the event of major storms or hurricanes.
Indicators
!
Change in evacuation clearance time in the coastal high hazard area.
Policy 6.1: Limit development in coastal areas to support the population that can be
safely evacuated in times of emergency.
Policy 6.2: Coastal local governments should limit future development in coastal high
hazard areas.
Policy 6.3: The coastal high hazard area shall be defined by 9J5-.003. When areas
have no Coastal Construction Control Line (CCCL), this shall be substituted with the
Coastal Construction Setback Line.
Policy 6.4: Redevelopment of coastal high hazard areas (seaward of the Coastal
Construction Control Line) shall be consistent with the Beach and Shore Preservation
Act (ss. 161.011-161.212).
Policy 6.5: Local governments shall limit public expenditures for future development or
redevelopment in coastal high hazard areas.
Policy 6.6: Local governments should prohibit development permits to developments
that do not have flood insurance or are in an area that is not protected by the National
Flood Insurance Program.
Policy 6.7: Emergency management evacuation procedures should include assistance
for all handicapped or elderly residents of coastal areas who notify the authorities that
they require assistance.
PRIORITY 4:
Protection of Natural Systems.
GOAL 1: Continue to protect the Region's functioning natural systems.
Indicators:
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-96
!
Change in amount of wetlands in the Region.
!
Change in amount of land acquired or designated for conservation.
Policy 1.1: Protect surface water quality and hydrologic and ecologic functions of
regional estuarine systems by restricting development in these areas to compatible land
uses.
Policy 1.2: Require land development applications to establish buffer zones around
estuarine systems, wetlands, and unique uplands that protect these areas from
degradation by adjacent land uses, where feasible.
Policy 1.3: Local governments should strengthen existing land development regulations
to protect and conserve the natural functions of wetlands, unique uplands, flood plains,
bayous and other important wildlife habitats during development and provide incentives
for the restoration of areas where degradation has occurred.
Policy 1.4: Require land development applications to include detailed inventories of the
natural systems present, assessments of impacts of the proposed development, and
method to be used to protect the natural functions of the systems.
Policy 1.5: Direct land acquisition efforts toward the protection of important habitats,
wildlife, and natural systems.
Policy 1.6: Local governments shall protect the biota, hydrology, aesthetics, and other
natural features of state park lands and lands acquired through development impact
mitigation by requiring use of buffers, leash laws, deed restrictions, covenants, easements,
transfer of development rights, and/or regulation of adjacent development.
Policy 1.7: Use mitigation bank funds for resource restoration or management projects
on public lands acquired for resource protection purposes.
Policy 1.8: Local governments should utilize the Department of Environmental
Protection greenline maps to review development plans and permit applications that may
affect state park lands.
PRIORITY 5:
Protection of Endangered, Threatened, and Rare Species.
GOAL 1: Protect native species in the Region that are on the Florida Game and Fresh Water
Fish Commission list of endangered, threatened, and rare species of Florida.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-97
Indicators:
!
Change in the number of endangered, threatened and rare species.
Policy 1.1: Identify habitats of threatened or endangered plant and animal species
throughout the Region.
Policy 1.2: Local land development regulations should mitigate development activities
that adversely affect threatened or endangered species.
Policy 1.3: Adopt landscaping ordinances that use native plants, including threatened or
endangered species and use landscaping to provide habitat for wildlife native to the area.
Policy 1.4: Prohibit the use and introduction into the environment of non-native species
of plants and animals on publicly owned lands.
Policy 1.5: Provide education concerning Florida wildlife and ecology in elementary,
middle and high school curricula.
Policy 1.6: All local government comprehensive plans, land use and development plans,
and land development review processes must address the protection and enhancement of
rare and fragile plant and animal communities native to the Region, particularly those
species that are endangered, threatened, or of special concern.
Policy 1.7: Local governments should coordinate the protection and enhancement of
rare and endangered species and species of special concern critical habitats through the
adoption of interlocal agreements.
Policy 1.8: Use agricultural and existing silvicultural best management practices that
provide habitat for native species of flora and fauna.
Policy 1.9 Provide incentives for the protection of sensitive natural areas within
developments.
Policy 1.10: Provide incentives for landowners to keep unique land in its natural
condition.
Policy 1.11: Require disturbed lands, particularly sites no longer used for sand, gravel,
or clay mines, to be reclaimed and revegetated with native vegetation.
Policy 1.12: Local land development regulations should prohibit destruction of
threatened and endangered species and species of special concern and critical habitat for
these species.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-98
Policy 1.13: All levels of government should establish programs for the acquisition
through purchase and the maintenance of land containing habitats of threatened and
endangered species and species of special concern.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-99
PRIORITY 6:
Land Management and Use.
GOAL 1: By the year 2000, public and private lands will be managed and land resources used
according to comprehensive, economic and environmental principles, especially critical areas
including, but not limited to coastal lands, wetlands, flood plains, margins of estuarine nursery
areas, and locally important agricultural lands.
Indicators:
!
Number of wildlife corridors established.
!
Change in land development regulations to manage the use of environmentally sensitive
land.
Policy 1.1: Purchase for public ownership scenic vistas, natural corridors,
environmentally sensitive lands, land adjacent to rivers, functioning wetlands, inholdings
within or adjacent to state forests and natural wildlife corridors.
Policy 1.2: Conserve and protect the natural functions of soils, wildlife habitat, floral
habitat and wetlands.
Policy 1.3: Provide for the protection of wildlife natural systems in the development
approval process.
Policy 1.4: Protect state or federally owned ecologically sensitive lands from land uses
that would impair or destroy the important habitats and plant and animal species occurring
on those lands.
Policy 1.5: Give priority to water dependent industries and other land uses over nonwater dependent developments proposed for the coasts.
Policy 1.6: Implement "best management practices" techniques on lands used for
agricultural and silvicultural production that integrate good wildlife management practices
with economical agricultural and timber management practices.
Policy 1.7: Prepare and implement multiple-use management plans for publicly owned
lands.
Policy 1.8: Land uses on developed lands adjacent to publicly held conservation areas
should be compatible with wildlife management practices.
Policy 1.9: Local government comprehensive plans should include policies for the
conservation and preservation of natural functions of soils, wildlife habitat and wetlands.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-100
PRIORITY 7:
Parks and Recreation.
GOAL 1: Protect environmentally, historically, and culturally significant land.
Indicators:
!
Change in amount of land designated for passive recreation, conservation or historical
preservation.
Policy 1.1: The development review process should evaluate the impact of the proposed
development on environmentally, historically, or culturally significant land.
Policy 1.2: State and local governments should landscape parks under their jurisdiction
using native plants and employing every energy conservation method practicable for the
particular site.
Policy 1.3: State and regional agencies and local governments should identify unique
historical, cultural, geological, and ecological and environmentally sensitive sites for
protection and use as recreational facilities.
Policy 1.4: Support and participate in the conversion of abandoned railways to
recreation facilities throughout the "Rails to Trails" program.
Policy 1.5: State agencies shall increase the outdoor opportunities, the number of
recreational users visits and compatible, non-consumptive public uses in state forests.
Policy 1.6: All levels of government should minimize the direct land purchase cost by
developing parks as multi-purpose governmental expenditures.
Policy 1.7: Acquisition of outdoor recreation lands, particularly shoreline areas and
seashores, should be given priority over development of new facilities.
Policy 1.8: Expand efforts to provide recreational opportunities to urban areas, including
the development of activity-based parks by local governments.
Policy 1.9: User access should be identified when proposing and developing park sites
by all levels of government.
Policy 1.10: Coordinate public and private resources to meet recreation demands
through joint ventures, tax incentives, and other cooperative relationships.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-101
SOURCES
An Ecological Characterization of the Florida Panhandle . Washington D.C. U.S.
Department of the Interior, Fish and Wildlife Service; New Orleans. Mineral
Management Service. 1988.
Boaden, Patrick J.S. and Seed, Raymond. An Introduction to Coastal Ecology.
York: Chapman & Hall. 1985
New
Clark, John. Coastal Ecosystems: Ecological Considerations for Management of the
Coastal Zone. Washington, D.C.: The Conservation Foundation. 1974
Classification of Wetlands and Deepwater Habitats of the United States. Washington,
D.C. U.S. Department of the Interior, Fish and Wildlife Service. 1979.
Closing the Gaps in Florida's Wildlife Habitat Conservation System. Tallahassee. Florida
Game and Fresh Water Fish Commission. 1994.
Deyrup, Mark and Franz, Richard. Rare and Endangered Biota of Florida. Tallahassee.
University Press of Florida. Volume IV. 1994.
District Water Management Plan: October 1994. NWFWMD: Havanna.
Doyle, Larry J. et al. Living with the West Florida shore. Durham. Duke University
Press. 1984.
Florida Atlas. Map Series #63. Florida Department of Natural Resources, Bureau of
Geology. Tallahassee. 1975.
Florida Rivers Assessment. Tallahassee. Florida Department of Natural Resources.
1989
Florida Statutes Volume 2. Chapters 237-402. 1995: Tallahassee.
Fort Pickens Aquatic Preserve Management Plan. DNR: Tallahassee. 1992.
Gilbert, Carter R. Rare and Endangered Biota of Florida. Tallahassee. University Press
of Florida. Volume II. 1994.
Humphrey, Stephen R. Rare and Endangered Biota of Florida. Tallahassee. University
Press of Florida. Volume I. 1994.
Mitsch, William J. and Gosselink, James G. Wetlands. New York. Van Nostrand
Reinhold. Second Edition. 1993.
Moler, Paul E. Rare and Endangered Biota of Florida. Tallahassee. University Press of
Florida. Volume III. 1994.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-102
Rocky Bayou Aquatic Preserve Management Plan. Tallahassee. Florida Department of
Natural Resources. 1991.
Save Our Rivers Florida Preservation 2000 Five Year Plan 1995. Havana. Northwest
Florida Water Management District. 1994.
St. Andrews State Park Aquatic Preserve Management Plan. DNR: Tallahassee. 1991.
Yellow River Marsh Aquatic Preserve Management Plan. DNR: Tallahassee. 1991.
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-104
Map 1
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Map 2
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Map 3
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Map 5
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Map 6
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
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Map 7
West Florida SRPP ! Natural Resources of Regional Significance ! Adopted 7/15/96
IV-110
V. REGIONAL TRANSPORTATION
Acronyms
FHWA
Federal Highway Administration
ECAT
Escambia County Area Transit
MPO
Metropolitan Planning Organization
CAC
Citizens Advisory Committee
CTC
Community Transportation Coordinator
FDOT
Florida Department of Transportation
ISTEA
Intermodal Surface Transportation Efficiency Act
VMT
Vehicle-Miles-Traveled
NAS
Naval Air Station
USEPA
United States Environmental Protection Agency
TDM
Transportation Demand Management
PD&E
Project Development and Environmental
ROW
Right-of-Way
HOV
High Occupancy Vehicle
Contents ! Regional Transportation
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Significant Features of West Florida's Transportation System . . . . . . . . . . . 2
How We Travel to Work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Table 1:
National Trend in Travel to Work by Mode of Travel,
1960-1990 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Table 2:
Florida Trend in Travel to Work by Mode of Travel,
1980-1990 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Table 3:
National & Regional Averages for Mode of Travel to
Work, 1990 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Table 4:
Deficient Roadway Segments by Urbanized Area, 1991
and 1993 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Table 5:
State Highway Pavement Deficiencies by FDOT
District, 1990 and 1994 . . . . . . . . . . . . . . . . . . . . . . . . 7
Table 6:
State Bridge Backlogs by FDOT District, 1990 and 1994 8
Table 7:
Enplaned Passengers at Commercial Airports, 1991 to
1994 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Table 8:
Tonnage Handled at Deepwater Ports, 1991 and 1993 . 10
Table 9:
Operating Characteristics of the Escambia County Area
Transit System, 1991 to 1994 . . . . . . . . . . . . . . . . . . . 11
Table 10:
Operating Characteristics of the Transportation
Disadvantaged Programs in West Florida, 1992 and
1993 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Transportation Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Table 11:
Motor Vehicle Traffic Statistics in Florida, 1983
through 1993 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Table 12:
Comparison of Highway Traffic Accidents in Florida
and West Florida Counties, 1990 and 1993 . . . . . . . . 16
Table 13:
1993 Pedestrian and Bicyclist Fatalities for the Five
Most Populous States . . . . . . . . . . . . . . . . . . . . . . . . . 17
Table 14:
1993 Pedestrian and Bicyclist Fatalities for Counties in
West Florida . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Land Use, Comprehensive Planning and Transportation Relationship . . . 20
Air Quality and Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Table 15:
Overall Volatile Organic Compound Emissions, 1984
and 1993, and Percentage Change . . . . . . . . . . . . . . . 23
Goals and Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Sources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
MAPS
4
Significant Transportation Facilities.
West Florida SRPP ! Regional Transportation ! Section V
TRENDS & CONDITIONS STATEMENT ! GOALS & POLICIES
REGIONAL TRANSPORTATION
Introduction
The Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA) has established
the process for transportation planning until 1997. ISTEA requires intermodal and
multi-modal transportation planning, which should result in development of all modes of
motorized and non-motorized travel and establishment of seamless connections between
different modes of travel. ISTEA also places emphasis on mobility of people, goods and
services; rather than simply movement of vehicles. The new federal transportation act
identifies the single-occupant vehicle as "public enemy number one"; for reasons of
congestion, mobility and air quality.
Understanding some characteristics of the state and regional population will provide
insight into the transportation picture. Florida's population has doubled since 1970 to
14 million persons, making Florida the 4th largest state in the nation. The ratio of
licensed drivers to total population is the 3rd highest in the nation. About 18 percent of
the state's population, compared to the national average of 12 percent, is over the age of
65. Florida has an aging population which cannot or should not be driving. There are an
estimated 2 million Floridians with disabilities that limit their driving abilities and
mobility. Vehicle occupancy has decreased and total vehicle miles traveled in the state
has increased 170 percent between 1970 and 1990. The automobile accounts for 98
percent of all trips in 1990.
Added to Florida's population are the 40 million people who visit Florida each year.
Visitors arrive about equally by airplane and car. Many visitors stay an extended time
and become temporary residents during the Winter.
By comparison, West Florida's (Region I) population increased almost 52 percent
between 1970 and 1990 to 675,633 persons and by 1993, 11.9 percent of the Region's
population was 65 years and older. Florida's ratio of passenger car tags to total
population was 0.58 and the Region's ratio was 0.55. Florida's ratio of licensed drivers to
total population was 0.86 and the Region's was 0.84.
In almost all respects, the population and transportation picture for West Florida is
identical to the state as a whole. Vehicle miles traveled have increased, tourists visit
during the summer, and the primary means of transportation is the automobile.
The following discussion addresses each mode of transportation, transportation costs,
the transportation-land use issue and transportation conditions in West Florida. Most
topics include specific discussion items and other discussion topics can be added.
Two (2) basic options are available for solving future transportation congestion: (1)
construct the needed road and bridge capacities needed to move vehicles, and (2)
decrease the number of motor vehicles (automobiles) using the transportation network.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-1
Significant Features of West Florida's Transportation System
!
Interstates 10 and 110;
!
Principal arterial network (US routes and major state
highways), including major evacuation routes;
!
Two (2) deepwater ports connected by the Gulf Intracoastal
Waterway;
!
Three (3) commercial airports, and 3 reliever airports;
!
Two (2) major gas pipelines;
!
One (1) fixed-route public transportation system;
!
Seven (7) paratransit systems serving primarily the
transportation disadvantaged population;
!
CSX/Family Lines mainline rail with spurs; and
!
Three (3) Amtrak passenger stations.
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How We Travel to Work
From 1960 to 1990, the trend in the United States has been toward greater
reliance on the single-occupant automobile as the mode of transportation.
This trend is higher in Florida because rapid development of the state is
occurring while the automobile is "king." The following data taken from
"Journey-to-Work Trends in the United States and its Major Metropolitan
Areas, 1960-1990" (FHWA. November 1993) illustrate the commuting trend.
From 1960 to 1990, persons per household decreased over 21 percent (3.33 to
2.63) while vehicles per household increased over 60 percent (1.03 to 1.66)
and persons per vehicle decreased by 50 percent to just 1.63 persons per
vehicle. By 1990, there were 1.32 vehicles per worker, an increase of 56
percent since 1960. Workers per vehicle decreased 36 percent, from 1.18 in
1960 to 0.76 in 1990. Between 1980 and 1990, the average commuting trip
time increased from 21.7 to 22.4 minutes.
Table 1 lists the national trend in travel to work and Table 2 shows similar
data for Florida. Table 3 lists the mode of travel to work for workers in West
Florida in 1990.
Table 1
National Trend in Travel by Mode of Travel
1960 - 1990
Percent by Mode of Travel
Travel Mode
1960
1990
Percent Change
Private Vehicle
69.48
88.02
26.69
Public Transit
12.62
5.12
-59.43
Walking
10.37
3.90
-62.38
Work at Home
7.54
2.96
-60.72
Source: Federal Highway Administration. November 1993.
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Table 2
Florida Trend in Travel to Work by Mode of Travel
1980 - 1990
Percent by Mode
1980
1990
Percent
Change
Drove Alone
69.1
77.1
11.6
Carpooled
20.3
14.1
-30.5
Public Transit
2.6
2.0
-23.1
Other & Work at Home
7.8
6.8
-13.8
Travel Mode
Source: US Census Bureau. 1990.
The national and regional averages for commuting to work in 1990 by mode
of travel are listed in Table 3. Within the Region, Walton and Washington
Counties experienced the highest carpool rates (20 percent) because of longer
trip distances to work sites. Bus ridership includes riding transportation
disadvantaged vehicles and, since Escambia County has the only fixed-route
transit system, Escambia had the highest bus ridership (0.89 percent).
Within the non-motorized modes of travel, Bay led in bicycle commuting
(0.74 percent) while Escambia led in walking to work (4.3 percent). In all
counties, over 72 percent of all workers over the age of 16 drove alone to
work.
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Table 3
National and Regional Averages for Mode of Travel to Work - 1990
Mode of Travel to Work
Percentage of Workers over 16 Years
National Average
Regional Average
Drove Alone
73.19
77.08
Carpool
13.36
15.90
Transit
5.27
0.36
Motorcycle
0.21
0.38
Bicycle
0.41
0.36
Walked
3.90
2.53
Other
0.70
0.89
Work at Home
2.96
2.73
Source: US Census Bureau. 1990.
Condition of West Florida's Transportation Systems
Because West Florida has experienced slower growth than central and
southern portions of the state, congestion is not a big problem today. Table 4
lists the road segments in each urbanized area (Pensacola, Fort Walton
Beach and Panama City) which operate at an unacceptable level of
congestion, or experience a capacity deficiency. These deficiencies are
identified by using the Department of Transportation "Generalized Level of
Service Tables" and annual traffic counts. More detailed analyses may
indicate that these road segments are congested only several hours each day.
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Table 4
Deficient Roadway Segments by Urbanized Area
1991 and 1993
Deficient Road
Segments (mi)
Location
County
Pensacola UZA
Fort Walton Beach UZA
Panama City UZA
Percent
Change
1991
1993
Escambia
14.0
23.8
+70.0
Santa Rosa
3.8
4.3
+13.2
Okaloosa
10.9
17.7
+62.4
Walton
4.0
7.0
+75.0
Bay
3.8
5.4
+42.1
Source: WFRPC. 1995.
Using statewide transportation data, Tables 5 and 6 were developed to show
the comparison of pavement deficiencies and bridge backlogs on the State
Highway System by Department of Transportation District. District 3 is
sixteen (16) counties in West Florida, Escambia County east to Jefferson
County, including the seven (7) counties in Region I. Between 1990 and
1994, the backlog of deficient bridges in District 3 has been reduced from 166
to 111 bridges. The pavement deficiency has fluctuated during the same five
year period, starting at a low of 1,373 deficient lane miles in 1990, increasing
to a high of 2,244 lane miles in 1991, and ending with 2,079 deficient lane
miles in 1994. Also note that District 3 has the third highest number of lane
miles of all districts and the highest percentage of deficient lane miles.
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Table 5
State Highway Pavement Deficiencies by FDOT District
1990 and 1994
30 June 1990
30 June 1994
FDOT
Dist.
Percent
of
District
Lane
Miles
Deficien
t
Percent of
State Lane
Mile
Deficiency
Deficien
t Lane
Miles
Total
Distric
t Lane
Miles
Percent
of
District
Lane Miles
Deficient
Percent of
State Lane
Mile
Deficiency
13.88%
12.69%
855
5,437
15.73%
11.96%
7,251
17.62%
22.18%
1,231
7,336
16.78%
17.22%
1,373
6,185
22.21%
23.84%
2,079
6,178
33.65%
29.09%
4
541
5,221
10.36%
9.39%
612
5,598
10.93%
8.56%
5
851
6,845
12.43%
14.77%
1,399
7,064
19.80%
19.57%
6
296
2,708
10.93%
5.14%
348
2,770
12.56%
4.87%
7
690
3,300
20.91%
11.98%
624
3,397
18.37%
8.73%
5,760
36,775
15.66%
7,148
37,780
18.92%
Deficien
t Lane
Miles
Total
Distric
t Lane
Miles
1
731
5,265
2
1,277
3
TOTAL
Source: Florida Department of Transportation. 1995.
In its 1995 report to the Legislature, the Florida Transportation Commission
notes that the state goal was to achieve only 5,020 deficient lane miles by FY
1996/1997. This backlog is expected to increase to 8,900 lane miles by Year
2000 and the surfacing cost has increased from $114,000 per lane mile in
1994 to $134,000 in 1995.
The bridge backlog for District 3 has been reduced because of the statewide
commitment to improve bridge conditions. District 3 ranked fourth in the
state in 1990 for bridges needing replacing and moved to third in the state by
1994. The Florida Transportation Commission notes that the statewide goal
was to have only 278 structurally deficient bridges by FY 1996/1997. This
backlog is expected to increase to 329 bridges needing replacement by Year
2000.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-7
Table 6
State Bridge Backlogs by FDOT District
1990 and 1994
30 June 1990
FDOT
Dist.
30 June 1994
Bridges
Which
Need
Repair
Percent
of State
Needs
Bridges
Which
Need
Replacin
g
Percent
of State
Needs
Bridges
Which
Need
Repair
Percent
of State
Needs
Bridges
Which
Need
Replacin
g
Percent
of State
Needs
1
173
12%
157
38%
208
18%
105
27%
2
342
23%
34
8%
223
19%
44
11%
3
166
11%
41
10%
111
10%
63
16%
4
110
7%
44
11%
70
6%
35
9%
5
261
18%
62
15%
233
20%
64
16%
6
315
21%
35
9%
198
17%
33
8%
7
101
7%
35
9%
122
10%
49
12%
TOTAL
1,468
408
1,165
393
Source: Florida Department of Transportation. 1995.
The conditions of other modes of transportation are generally much better
than the highway system. Of course, modes of transportation which use the
highway system, i.e. transit and trucking, fare no better than the highway
system itself.
Commercial and reliever airports in the Region are expanding and being
improved. The Pensacola Regional Airport Terminal will soon be expanded
to add more gates and a parking garage is planned to accommodate overflow
parking. Okaloosa County Air Terminal, which is co-located with Eglin AFB,
has been permitted additional daily flights and parking is also being added.
The Panama City-Bay County International Airport has been reconstructed
and the airport authority is updating the Airport Master Plan to consider
extension of the main runway. In the January 4, 1995 meeting of the
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-8
Northwest Florida Steering Committee of the Continuing Florida Aviation
Systems Planning Process, the Region's airport managers concluded that
there was no airspace congestion problem in West Florida. This has been
communicated to the Department of Defense and the Base Realignment and
Closure Commission. The only congestion is temporary in terminals when
several flights land and depart in a short time period. Table 7 shows the
level of passenger activity at each commercial airport in the Region.
Air travel has increased throughout the Region. Significant increases in
passenger traffic is being provided by commuter airlines. There is a need for
more jet service.
Table 7
Enplaned Passengers at Commercial Airports
1991 to 1994
Enplaned Passengers
Airport
1991
1992
1993
1994
Pensacola Regional
377,592
390,369
437,651
580,586
Okaloosa Air Terminal
76,785
79,855
182,866
191,621
Panama City
52,343
65,271
n\a
153,091
Source: Airport Reports and Florida Statistical Abstracts. 1995.
The majority of railroad traffic is for movement of freight. Much of the
CSX/Seaboard Family Lines railroad track has been recently upgraded to
accommodate Amtrak passenger service along the Gulf Coast.
Railroad/highway crossings have also been upgraded to accommodate the
higher speed passenger service. This section of the Sunset Limited connects
New Orleans with Jacksonville and provides, for the first time in history, a
continuous rail connection from the Pacific to Atlantic Coasts. Currently,
there are six (6) passenger trains per week (3 in each direction). Passenger
terminals have been constructed in Pensacola, Crestview, and Chipley.
Ports and waterborne vessels are used for movement of freight. West Florida
has no passenger cruise or passenger ferry/water taxi service. Both
deepwater ports, Panama City and Pensacola, have plenty of berthing and
warehousing capacity and are actively seeking additional business. There
have been improvements at both ports to accommodate additional freight
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-9
arriving and departing by rail. Port activity has been relatively stable at
both ports, as seen in Table 8.
Table 8
Tonnage Handled at Deepwater Ports
1991 and 1993
1991
1993
Tonnage Handled (Short Tons)
Port
Imports
Exports
Total
Imports
Exports
Total
Panama City
146,494
343,099
489,593
11,905
349,393
361,298
Pensacola
226,958
822,787
1,049,745
212,785
840,087
1,052,870
Source: Florida Statistical Abstracts. 1994.
The benefits of public transportation are numerous. As ridership increases,
fewer automobiles use the highway network and congestion decreases. Air
quality improves with the decrease in vehicle congestion and use of singleoccupant automobiles. Commuter productivity increases as the stress of
driving decreases and commuters have time to read or rest on transit
vehicles. The public cost of building more roads and bridges decreases since
the public transit vehicles provide capacity to move people. Finally, a highly
favorable case for public transportation has been stated in the following
report to the American Public Transit Association (October. 1994).
Relative to a baseline path, a program of increased transit
spending of $100 billion over ten years is predicted to raise
productivity at an average rate of about $18.50 a year so that
by Year 2000, the annual increment to productivity peaks at
$185.00. A highway spending program of equal magnitude,
while also lifting productivity, would have a somewhat
smaller impact. In the case of enhanced spending on
highways, productivity would increase at an average rate of
$8.00 per year and would peak a year earlier in 1999 at just
$87.00.
The Escambia County Area Transit (ECAT) System, the only fixed-route
public transportation system in the Region, operates 20 routes Monday
through Friday, with fewer routes on Saturday. The system has purchased
thirteen (13) new buses which are equipped to transport passengers in
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-10
wheelchairs. While some ECAT routes may be filled to capacity during peak
commuting times, there remains excess capacity on the system. Operating
characteristics for the transit system are provided in Table 9.
Table 9
Operating Characteristics of the Escambia County Area Transit System
1991 to 1994
Ridership
Revenue Miles
Passenger Fares
1991
1992
1993
1994
1,112,981
1,118,600
1,260,872
1,121,956
898,632
959,315
1,078,348
999,916
$661,789
$606,054
$621,846
$669,247
Source: ECAT Section 15 Reports, 1991-1994.
The Panama City Metropolitan Planning Organization (MPO) is preparing to
implement fixed-route scheduled transit service in Bay County. Initially,
three routes will be started and the expected startup date is October 1995.
Routes will provide service in the urbanized portion of Bay County and not
extend countywide.
Okaloosa County is discussing the merits of fixed-route public transportation
in response to requests from local citizens and tourists. There is both public
support for and opposition to public transportation. Opposition generally
focuses on the lack of anticipated ridership and resulting public subsidy of
public transportation systems. Support comes from persons unable to afford
personal transportation, those unable to drive because of some disability,
and winter visitors who would like not to drive during their stay in Okaloosa
County.
In 1993, Florida's estimated population was 13.8 million, including an
estimated 5.3 million persons who are disabled, elderly, have low income, or
are otherwise unable to transport themselves. This need caused the Florida
Legislature to enact Chapter 427 of Florida Statutes which provides
transportation for disadvantaged persons.
Each of the seven (7) counties in the Region has a designated Community
Transportation Coordinator (CTC) and transportation providers which
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-11
provide services for transportation disadvantaged persons. Trips are
provided for clients of social service agencies (sponsored trips) and
individuals who request the service (non-sponsored trips). Clients range
from elderly, handicapped and persons with disabilities, to low income and
persons who do not have or cannot obtain personal transportation. The
demand for service greatly exceeds funding available to provide the service.
This gap widens as more disadvantaged persons learn of the existence of the
service. Some of the operating characteristics of the transportation
disadvantaged programs are shown in Table 10.
Table 10
Operating Characteristics of the Transportation Disadvantaged Programs in West Florida
1992 and 1993
Total Passenger
Trips
Revenue Miles
Cost per
Vehicle Mile
Passenger
Trips
Per
Vehicle
Mile
Cost
Per Trip
County
1992
1993
1992
1993
1992
1993
1992
1993
1992
1993
Bay
133,610
159,598
482,062
595,614
$1.39
$1.70
0.27
0.26
$5.12
$6.51
Escambia
180,971
318,336
737,906
1,248,846
$1.45
$1.24
0.17
0.23
$8.59
$5.43
137,121
Holmes,
Walton,
Washington
161,478
1,057,473
1,262,437
$0.91
$0.95
0.13
0.12
$7.07
$7.59
70,886
91,061
499,884
650,678
$1.15
$1.21
0.14
0.14
$8.50
$8.72
62,371
57,377
327,005
372,782
$1.19
$1.16
0.19
0.15
$6.24
$7.61
Okaloosa
Santa Rosa
Source: Florida Transportation Commission Operations Report. January 1994.
The two final modes to be discussed are non-motorized modes of
transportation; bicycling and walking. Both modes are used for short
distance travel, while a link to public transportation can extend nonmotorized trips to longer distances. Both modes are supported by compact
developments of mixed land use, where there are short trips from home to
work to shopping, etc. Typically, the average walking trip distance is up to 2
miles while the average bicycling trip distance is 5 miles.
The dominant development pattern in West Florida is low density residential
where residential subdivisions are segregated from employment and
commercial sites. In addition, the desire for security in subdivisions and
fencing has prevented walking and bicycling easements or access to
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-12
immediately adjacent subdivisions, elementary schools, office parks, and
shopping centers. The current land use and transportation design practices
force individuals to drive automobiles to achieve mobility.
The Federal Highway Administration and Florida Department of
Transportation encourage non-motorized travel and other alternatives to
single-occupant motorized vehicles. The Intermodal Surface Transportation
Efficiency Act of 1991 requires metropolitan planning organizations to
include planning and projects for non-motorized transportation in all
planning activities of the MPO. For bicycle facilities, current roadway design
standards call for either 4-foot bicycle lanes (urban roads) or 5-foot paved
shoulders (rural roads) to be constructed when roads are resurfaced,
reconstructed, or newly constructed. The current standard is construction of
5 to 10 foot sidewalks (depends on amount of pedestrian traffic) for safe
pedestrian facilities. Unfortunately, road improvements are made on widely
scattered road segments, requiring many years before a system of
continuous, interconnected safe bicycle routes, sidewalks, pedestrian
crosswalks and pedestrian-actuated traffic signals are completed.
Sidewalks are most frequently observed and used in downtown areas. They
are typically absent from the arterial and collector roadway system in the
suburbs; outside the older city core. Sidewalks are typically absent along
routes leading to elementary and middle schools.
The advantages of non-motorized travel are very similar to public
transportation (cleaner air, reduced congestion, etc.) with two (2) notable
differences. Walking and bicycling cause almost no deterioration of a
pavement surface; unlike heavy trucks and vehicles leaking petroleum
compounds on asphalt. Also, bicycling and walking have high health benefit.
However, they should not be viewed purely as a form of exercise.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-13
How We Travel to Work ! Issues
!
FDOT District 3 is currently receiving 30 percent of the state
resurfacing budget to maintain existing roads. This is not sufficient,
as the deficiencies are increasing. Additional state funds could be
applied to the resurfacing program, but this would subtract from
funds available to construct major projects.
!
There are roads and bridges in West Florida that become congested
during the peak commuting hours of the day. Some locations near
beaches become highly congested during summer holiday weekends.
In each of the urbanized areas, major projects have been delayed or
removed from transportation plans because of negative impacts to
residents and businesses. How is traffic congestion to be handled?
!
The Transportation Disadvantaged Program does not meet the entire
needs of the communities. Existing revenue for this service includes
service contracts with state agencies, farebox collections, some
advertising, and non-sponsored grants provided by the Florida
Transportation Commission, with the main source of funds being a
$1.50 fee added to motor vehicle tags. Is there a need for additional
funding for this program so that more of the demand can be met?
!
Each metropolitan planning organization has completed a bicycle
transportation plan for the urbanized area. Pedestrian Needs Plans
are being developed as well. In order for plans to be implemented,
each local government needs to incorporate the recommendations into
comprehensive plan policies and land development regulations.
!
People feel unsafe riding a bicycle in traffic adjacent to motor vehicles;
even though Florida Statutes considers the bicycle a legitimate
vehicle. There have been requests for separate bicycle paths with
over/under passes so that cyclists do not mix with motor vehicles.
One drawback is the high cost of building a separate transportation
network. Another is the possibility of increased personal attacks in
isolated areas. Bicycle and pedestrian facilities adjacent to the
roadway are visible and maintenance is easier and less expensive.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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Transportation Safety
In this section, highway safety will be the focus of discussion. During the
past 5 years, there have been no crashes in passenger rail and passenger
airline travel in the Region.
From 1983 to 1993, the total number of motor vehicle accidents resulting in
fatalities, and the motor vehicle death rate have declined, as seen in Table
11.
Table 11
Motor Vehicle Traffic Statistics in Florida
1983 through 1993.
Year
Registered
Vehicles
Miles
Driven
(Millions)
Mileage Death
Rate (Deaths/100
Million Miles)
Accidents
Deaths
1983
9,064,000
81,775
384,614
2,729
3.3
1990
12,465,790
109,997
216,245
2,951
2.7
1993
11,159,938
119,768
199,039
2,719
2.3
Source: Florida Statistical Abstract. 1994.
These results can be attributed to many programs, including lower speed
limits; a safer transportation system resulting from the high priority placed
on safety by federal, state and local transportation agencies; increased
enforcement; and better education, particularly concerning DUI.
In West Florida, traffic-related accident data are shown in Table 12.
Escambia County is ranked 13th in the state for total number of highway
crashes, making the county a candidate for establishing a Community
Transportation Safety Program. These programs are recommended by the
Department of Transportation in the Safety Management System, a required
management system under ISTEA.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-15
Table 12
Comparison of Highway Traffic Accidents in Florida and West Florida Counties, 1990
and 1993.
Total
Accidents
Fatal
Accidents
Alcoholrelated
Accidents
Alcoholrelated
Fatalities
County
Year
Florida
90
216,245
2,643
32,743
1,365
93
199,039
2,454
24,650
944
90
1,958
22
467
15
93
1,718
17
396
7
90
3,893
53
901
30
93
3,448
38
702
20
90
172
6
41
4
93
123
11
37
1
90
1,581
26
420
16
93
1,633
21
313
11
90
844
22
212
15
93
872
23
162
16
90
367
15
121
11
93
412
17
113
6
90
180
7
43
3
93
156
12
28
4
Bay
Escambia
Holmes
Okaloosa
Santa Rosa
Walton
Washington
Source: Florida Statistical Abstract. 1994.
The safety outlook is not nearly as good for pedestrians and bicyclists (Tables
13 and 14). In 1993, Florida had the highest pedestrian fatality rate (3.66
fatals per 100,000 population) and the second highest bicyclist fatality rate
(0.89 fatals per 100,000 population). Alaska had the highest bicyclist fatality
rate of 1.02 fatals per 100,000 population.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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Table 13
1993 Pedestrian and Bicyclist Fatalities for the Five Most Populous States.
Pedestrians
Bicyclists
Population
(Million)
Fatalities
Rate
Fatalities
Rate
California
30.867
850
2.75
129
0.42
New York
18.119
439
2.42
42
0.23
Texas
17.656
451
2.55
52
0.29
Florida
13.488
493
3.66
120
0.89
Pennsylvania
12.009
210
1.75
23
0.19
State
Natl Ave.
2.21
0.32
Source: National Highway Traffic Safety Administration, USDOT. 1994.
Table 14
Pedestrian and Bicyclist Fatalities for Counties in West Florida, 1993.
Pedestrians
County
Bicyclists
Population
Fatalities
Bay
134,059
4
2.98
0
0.0
Escambia
272,083
8
2.94
2
0.74
16,331
0
0.0
0
0.0
154,512
6
3.88
2
1.29
Santa Rosa
90,259
3
3.32
1
1.11
Walton
30,568
2
6.54
0
0.0
Washington
17,554
0
0.0
0
0.0
Holmes
Okaloosa
Rate
Fatalities
Rate
Source: Florida Department of Highway Safety and Motor Vehicles. 1994.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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For West Florida counties, Walton and Okaloosa Counties experienced
pedestrian fatality rates higher than the state average while Okaloosa and
Santa Rosa Counties experienced bicyclist fatality rates higher than the
state average.
Reasons for Florida's pedestrian and bicyclist accidents vary. Rapid growth
in Florida occurred since 1970, when the automobile was about the only
mode of transportation. Older residents had long since put bicycles away in
garages and younger residents became dependent on automobiles. The
highway system has not been designed for pedestrians and bicyclists, as seen
by the scarcity of sidewalks, crosswalks, pedestrian signals and bicycle lanes.
Florida's geography and climate are ideal for walking and cycling and
activity is increasing for exercise as well as for transportation. Engineering,
education and enforcement have lagged behind activity because of higher
priorities.
Since 1984, the West Florida Regional Planning Council and the three
metropolitan planning organizations have been actively involved in bicycle
and pedestrian planning. The metropolitan planning organizations have
placed high priority on sidewalks and bicycle paths for the Transportation
Enhancement Program, which provides only about $2.5 million per year for
the 16 counties in District 3. The Department of Transportation and local
governments are much more aware of the needs of all roadway users. Safety
improvements are gradually being made and safety remains in the top two
priorities for federal and state transportation spending. Bicycle safety
programs have been incorporated into the physical education curriculum of
most elementary schools.
Another aspect of highway safety is the threat of hurricane induced flooding
and wind damage. More people will be threatened with death and injury
over a broader area by a single hurricane than by any other foreseeable
event. Routes that move persons from flood zones have been identified in the
past and some funding priority given to route improvements, but continued
growth requires the constant reassessment of routes and reevaluation of
needs and resources. Current forecasted evacuation times are high, and
future growth will make them higher without comparable systematic road
improvements.
Evacuation is a major criteria in the planning and development of a new
roadway, or improving an existing roadway. As is evident in the evacuation
during hurricane Opal, the region's transportation network is not sufficient
to handle a large scale evacuation within a short time span. Clearance time
for a category 3-5 hurricane is estimated at 17 hours. This estimate comes
from the Tri-State Hurricane Evacuation Study completed in 1986, and is
extremely unreliable due to increased development and a significant rise in
the Region's population.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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Transportation Safety ! Issues
!
Novice cyclists feel that mixing with motor vehicle traffic is unsafe
and have requested separate bicycle facilities designed so cyclists will
not mix with automobiles. If a community is planned and developed
with bicyclists and pedestrians in mind, this is the best approach.
However, retrofitting a community, after it has developed, with a
separate transportation network is very expensive.
!
The education community has responded to the need to educate
cyclists and pedestrians by teaching safety in elementary schools.
These programs can be extended to middle and high schools. Greater
emphasis can be placed on the Drivers Education Program and
incorporate information on the needs of pedestrians and bicyclists in
the driving curriculum. In addition, the Florida Drivers Manual can
be modified to add information on non-motorized transportation.
!
Over 90 percent of bicyclist fatalities occur at night and many
pedestrian fatalities occur at night with involvement of alcohol.
Police agencies could use selective enforcement to educate and
penalize persons riding after dark without proper lighting.
!
Head injuries are a significant cause of fatalities and severely
debilitating injuries among cyclists. The Regions's population and
local governments could support state-wide bicycle helmet legislation.
!
Residents could educate elected officials to the needs of cyclists and
pedestrians and have roadway construction practices changed so that
sidewalks and bicycle lanes are included in every roadway project.
!
As is evident with hurricane Opal, the regional northbound roadways
are not capable of handling a mass evacuation in a short time span.
Attention needs to be focused on coordinating evacuation efforts
between transportation officials in Florida, Alabama and Georgia as
well as with emergency management directors in these three states.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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Land Use, Comprehensive Planning and Transportation Relationship
Transportation's problems come from poor land use decisions and the failure
to recognize that land use and transportation decisions must be made as one.
Low-density, sprawling development patterns place a high burden on local
governments to keep pace with the high cost of providing fire, police,
transportation, education, water and sewer, and other services to the
growing population. A sprawling development pattern significantly
increases the cost of government.
What is sprawl? Previously, it was known as "strip" or "ribbon" development
along high-traffic arterials. High traffic volumes on roads equate to prime
commercial location. Businesses with multiple driveways are built on 100 to
200 foot wide by 200 to 400 foot deep highway frontage lots. Traffic entering
and exiting the roadway at frequent driveways slows traffic and decreases
the roadway's capacity, creating the need to either widen the road or build
another. As soon as the new road opens, it fills up, becomes the next
"commercial strip" and the development pattern repeats itself.
Land is zoned in "exclusionary" parcels. Residential zones exclude
commercial, office and other employment/shopping uses. New subdivisions
with their cul-de-sacs and dead-end streets are developed on the urban fringe
or in the middle of nowhere. The lack of pedestrian and bicyclist easements
between subdivisions and from subdivisions to commercial centers prevents
non-motorized travel for short distance trips to schools, the grocery store,
shopping and visiting friends. Employees live farther from their places of
employment. Trip distances increase and vehicle miles of travel increase
because it is necessary to drive virtually everywhere.
Suburbanization is just as damaging to the ability to provide an efficient
transportation network. New suburbs are created around the urban fringe of
large cities. As jobs are created in suburbs, the suburb-to-suburb travel
pattern increases. Between 1980 and 1990, work trips among suburbs
increased by 5 percent while trips from central city to central city decreased
by 4 percent and other work trips remained stable.
The results of these land development patterns are that the cost to provide
transportation infrastructure increases. Trip distances increase so that
walking and bicycling are pretty much excluded. Low density residential
and commercial development and an increase in suburb-to-suburb trips
reduce the effectiveness of mass transit and ridesharing. Finally, there is
usually a lack of local financial capacity to fund either mass transit or
construction of roads, crosswalks, sidewalks, or bicycle paths.
In West Florida, the results of sprawl are seen during the peak commuting
hours every day. In the Pensacola Urbanized Area, the major employment
center is in Pensacola and southern Escambia County (NAS Pensacola).
However, the residential growth zones are southwest Escambia County,
central Escambia County, Pace/Pea Ridge and Tiger Point areas in Santa
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Rosa County. Commuter trips fill US 98, Interstate 10, US 90, US 29, and
Interstate 10 every morning and afternoon. For the Fort Walton Beach
Urbanized Area, the major employment centers are Eglin AFB, Hurlburt
Field and Fort Walton Beach. The residential growth areas are east of
Destin, Bluewater Bay, southwest Okaloosa County and Crestview area.
Commuters fill US 98, SR 20 and SR 85 to capacity. For the Panama City
Urbanized Area, the major employment areas are Tyndall AFB,
International Paper and in Panama City. The growth zones are Panama
City Beach, Bayou George and north of Lynn Haven to Washington County.
Commuters fill US 98, US 231 and SR 77 to capacity.
A 1992 survey of 60 Florida communities by the University of Florida
indicates that the concurrency requirements of the Growth Management Act
have not limited new development and sprawl. Of over 52,000 building
permit applications submitted, only 170 have been denied, resulting in an
overall approval rate of about 310 to 1. And, in fact, concurrency actually
encourages sprawl because excess transportation capacity is found at urban
fringes and in rural areas. Therefore, developers do not have to pay to
provide transportation capacity for their developments.
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Land Use, Comprehensive Planning and Transportation Relationship ! Issues
!
There are alternative development patterns available to communities desiring
to improve transportation. Substantial improvement for existing urbanized
areas will take many years to be noticed because change occurs through
redevelopment. The first development pattern is status quo: unlimited lowdensity growth. Markets will allocate housing and jobs in accord with local
zoning and building codes. The dominant residential pattern is single-family
detached homes on large lots (one-quarter to one-third acre). Work is in lowrise office buildings and transportation is provided in private automobiles.
This is probably the most acceptable alternative because it requires no change.
However, it results in the most expensive transportation system.
!
Another alternative is the limited-spread mixed-density growth pattern. A
flexible urban growth boundary is established, within which are clusters of
high-density housing mixed with larger areas of low-density housing. Jobs
would be concentrated in designated areas. Mass transit would be encouraged
as a mode of transportation, with increases in walking, bicycling and
ridesharing. Private automobiles would still be a dominant mode of travel.
This alternative would be the most acceptable of the two which follow.
!
A third alternative growth form would be development of communities with
greenbelts, which provide open space, recreation and environmental
mitigation. More rigid growth boundaries would be designated around the
urban area. Residential growth inside the urban boundary would be similar to
the second alternative, while residential growth outside the urban boundary
would be clustered in high-density new communities. Regulations and
incentives would help concentrate jobs in new centers. Mass transit would be
emphasized as the major mode of transportation.
!
A final alternative would be high-density growth within a strongly enforced
growth boundary. Almost all residential growth would occur as increased
densification of the urban core. Regulations would force new jobs into the
urban core. There would be heavy reliance on mass transit, walking and
bicycling.
!
Impact fees, taxes, and other user fees could be used to more effectively
manage growth. The reason for suburban sprawl is that land outside the
urban core is less expensive. The fee structure would increase the farther the
development is located from the urban service area. In effect, this would
mean pricing government services according to the actual cost to deliver them
to specific locations, rather than subsidizing services distant from the urban
service area. Transportation impact fees would be higher in outlying, lowdensity areas and strip malls because of the extra demand they place on
roadway capacity. Utility charges would reflect the actual, unsubsidized cost
of delivery to specific locations rather than averaging the cost among all
locations.
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Air Quality and Transportation
On a national basis, air quality has improved between 1984 and 1993. This
has occurred during a period when highway travel increased by 33.8 percent,
mass transit ridership declined from 6.4 percent to 5.3 percent of commute to
work trips, and the percentage of workers who drive alone increased from 64
percent in 1980 to 73.2 percent in 1990. The 1990 Clean Air Act and 1991
Intermodal Surface Transportation Efficiency Act are intended to continue
this trend toward cleaner air.
As shown in Table 15, pollutant emissions from motor vehicles (highway
component) decreased 35.5 percent while emissions from fixed sources
(factories, power plants, etc.) increased 6.7 percent between 1984 and 1993.
This decrease in highway pollutants was due to smaller, more energyefficient vehicles with cleaner-burning engines and cleaner fuels.
Table 15
Overall Volatile Organic Compound Emissions, 1984 and 1993, and Percentage Change
(millions of short Tons).
1984
Highway
1993
Percent Change
9.4
6.1
-35.5
Non-highway
16.1
17.2
6.7
Total
25.5
23.3
-8.8
Percent Highway
36.9
26.1
Source: The Road Information Program. January 1995.
In its 1992 Air Quality Report, the Florida Department of Environmental
Protection states that tremendous strides have been made in cleaning
Florida's air over the past decade. Significant reductions in carbon monoxide
and lead have been achieved. Lead reductions are due to elimination of
leaded gasoline. Ozone concentrations have been markedly reduced.
Concentrations of particulates, sulfur oxides, and nitrogen oxides have not
been substantially changed. However, these pollutant concentrations are
well below their respective standards and there have been only spot
exceedances of standards.
These improvements in air quality have been achieved when total vehicle
miles traveled in Florida has increased 163 percent since 1970; population
has increased 100 percent; and there is a high tendency for workers to drive
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-23
alone. In addition, more people are driving older vehicles so that 10 percent
of the vehicles on the road account for 50 percent of vehicle-produced air
pollution.
Air quality designations by the US Environmental Protection Agency
(USEPA), from worst to best, are "non-attainment," "maintenance," and
"attainment." Three (3) of Florida's metropolitan areas are designated "nonattainment" for ozone (FDOT. 1994). These are Dade, Broward, Palm Beach
Counties; the Tampa Bay Area; and Jacksonville area. One example of
measures required in "non-attainment" areas to improve air quality is
vehicle emission inspection. All vehicles sold in Dade, Broward and Palm
Beach Counties must pass a tail-pipe emissions test. All of West Florida is
designated "attainment," but there have been spot exceedances of ozone and
sulfur dioxide during the past 4 years.
New air quality rules being drafted by USEPA indicate that urbanized areas
experiencing air quality within 85 percent of the standards for pollutants
will be required to initiate planning and implementation programs to ensure
that standards are not exceeded. When this rule is adopted, Escambia
County and the Pensacola Urbanized Area Metropolitan Planning
Organization will be required to address air quality issues. New
transportation projects which may promote use of single-occupant motor
vehicles will be heavily scrutinized.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-24
Air Quality and Transportation ! Issues
A combination of land use and transportation improvements are required to
substantially affect transportation's impacts on air quality.
!
Provide and require more compact, higher density urban design and
growth and reduce sprawl to improve mass transit efficiencies.
!
Manage transportation demand on roadways by encouraging and
requiring mass transit, carpools, vanpools, flexible work schedules,
trip reduction ordinances, congestion pricing, increased safety for and
use of bicycling and walking.
!
Maximize the capability of the transportation system to move larger
numbers of people and goods rather than vehicles; design multipurpose transportation corridors that utilize median for commuter
rail, designated high-occupancy vehicle lanes, and protected bicycle
lanes.
!
Reduce air pollution through use of cleaner fuels (natural gas and
electricity), improved pollution control devices and cleaner engines.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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GOALS AND POLICIES
PRIORITY 1:
Mobility of People and Goods
GOAL 1:
Provide an economical and efficient transportation system that
maximizes the mobility of people and goods.
Indicators:
!
Percentage change in average trip length.
!
Change in levels of service on the Region's roads.
!
Change in transportation disadvantaged ridership.
Policy 1.1: The Pensacola, Fort Walton Beach, and Panama City MPOs
shall maintain their respective Long Range Transportation Plans identifying
multi-modal and intermodal transportation facilities that will function as an
integrated system, and address the area's mobility needs.
Policy 1.2: Maintain level of service standards on regionally significant
roadways consistent with the latest FDOT policy.
Policy 1.3: Maintain standards for transit service consistent with policies
identified in the Escambia, Okaloosa and Bay County Transit Development
Plans.
Policy 1.4: Give highest priority to transportation improvements that will
relieve existing traffic congestion.
Policy 1.5: Support transportation facilities that provide connectivity to
areas outside the Urbanized Areas and serve important national and
regional functions (i.e. Florida Intrastate System, U.S. interstate System).
Policy 1.6: Maintain and improve access to important regional facilities
including ports, aviation facilities, rail stations, educational facilities, state
and national parks, historical and recreational facilities, military
institutions, etc.
Policy 1.7: Improve and expand existing programs to better serve the
Region's transportation disadvantaged.
Policy 1.8: Develop an information system and marketing tools for
marketing transportation services to agencies, groups, and the general
public.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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Policy 1.9: Incorporate recommendations from the three regional MPO's
bicycle transportation plans for the urbanized areas into their
comprehensive plans.
Policy 1.10: Support and further the objectives and policies set forth in the
2020 Florida Transportation Plan.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-28
PRIORITY 2:
Safety
GOAL 1:
Provide a safe motorized and non-motorized transportation system
and roadway network that reduces vulnerability to disaster for present and
future residents.
Indicators:
!
Change in accident frequency data.
!
Change in evacuation clearance times.
!
Change in percentage of population living in coastal high hazard and flood prone
areas.
Policy 1.1: Minimize accidents, and the cost and effects of accidents by
emphasizing safety features (e.g., roadway speed reduction, warning signs
and pavement markings, engineering improvements.)
Policy 1.2: Minimize automobile/pedestrian/bicycle conflicts by developing
a multi-modal and intermodal transportation system.
Policy 1.3: Emergency management programs of all agencies should
include the identification of evacuation routes, including formal designation
of routes in risk and host communities, and protection of the functional
integrity.
Policy 1.4: Give priority to maintenance or construction projects on
bridges, causeways, and highway facilities designated as major evacuation
routes or critical links.
Policy 1.5: The FDOT should cooperate with State and regional agencies
to develop a public emergency advisory and communications system for
evacuation thoroughfares. Increase the numbers and visibility of signs
designating evacuation routes, utilizing portable electronic message boards,
and providing for a dedicated emergency radio broadcast station evacuees
can monitor for pertinent information.
Policy 1.6: Provide for adequate hurricane evacuation by providing
alternative evacuation routes and adequate highway capacity on evacuation
routes.
Policy 1.7: Development review and approval programs should require
mitigation of the impact of all new development on emergency evacuation
routes.
Policy 1.8: High priority shall be given to creating the transportation
element of the Tri-State Hurricane Evacuation Study.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-29
PRIORITY 3:
Land Use, Comprehensive Planning and Transportation Coordination
GOAL 1:
Provide a transportation system in harmony with environmental,
social, economic and aesthetic features of the area.
Indicators:
!
Change in total miles of sidewalks and bicycle facilities in the Region.
!
Change in transportation disadvantaged ridership.
!
Number of ISTEA Enhancement Projects developed.
Policy 1.1: The FDOT should incorporate sidewalks and bicycle facilities
into the design of all transportation projects not on the Interstate System.
Policy 1.2: Minimize adverse impacts on the environment by balancing
the location, design, construction and operation of the transportation system
with environmental features.
Policy 1.3: Minimize disruption of existing development, such as
residential areas in the design and location of the transportation system.
Policy 1.4: Preserve and protect natural scenic beauty, and historic
buildings and sites while providing a necessary level of transportation
service to such facilities.
Policy 1.5: Facilitate public transportation for the transportation
disadvantaged through coordination of local social service transportation.
Policy 1.6: Enhance the Urban area economic vitality by providing a
transportation system that addresses the needs of the business community
and economic development strategies.
Policy 1.7: Improve the environmental and aesthetic features of the
existing transportation system by developing ISTEA Enhancement Projects,
including, but not limited to, pedestrian and bicycle facilities, scenic
easements, landscaping, historic preservation, mitigation of water pollution
due to highway runoff and control of outdoor advertising.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
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GOAL 2:
Provide improvements to the transportation system and optimize
preservation and efficiency of existing transportation facilities.
Indicators:
!
Change in the number/amount of improvements implemented from the MPO's Cost
Feasible Plans.
!
Increase in amount of transportation improvements funded by development.
!
Development of Congestion Management System.
!
Change in right-of-way acquisition costs.
Policy 2.1: Develop a Financial Resources Plan that identifies sources of
funding that can reasonably be expected to be available to implement the
three MPO's Cost Feasible Plans and recommends additional funding
sources for other needed improvements.
Policy 2.2: Obtain adequate funding for needed transportation
improvements by encouraging greater state and federal participation and
local adoption of measures to augment these revenue sources.
Policy 2.3: Equitably distribute transportation costs by requiring all
developments to make transportation improvements or pay impact fees for
transportation improvements on the public road system required by the
development.
Policy 2.4: Minimize right-of-Way acquisition costs of planned
transportation corridors by advanced purchase of rights-of-way, required
donation of rights-of-way, and regulation requiring development set backs
from proposed rights-of-way.
Policy 2.5: Give priority to transportation projects that have already
received funding commitments for project development & environmental
(PD&E) study, final design and right-of-way (ROW) purchase.
Policy 2.6: Minimize the need for construction of new highways through
development of a Congestion Management System and identification of
strategies to reduce travel demand, increase use of alternate modes of travel
and implement traffic operations improvements.
Policy 2.7: Maintain the safety and efficiency of the existing system by
utilizing the data and information from the six (6) ISTEA Management
Systems to monitor and prioritize transportation maintenance and
improvement projects.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-31
Policy 2.8: Minimize transportation conflicts associated with development
by coordinating development access to the transportation system and
interconnection between adjacent developments (i.e. service roads).
GOAL 3:
Provide an energy efficient transportation system.
Indicators:
!
Change in miles per capita traveled in private vehicle.
!
Change in gasoline used per capita.
!
Change in public and private implementation of Travel Demand Management
strategies.
Policy 3.1: Reduce energy consumption by recommending transportation
system improvements which reduce vehicle idling, a major contributor to air
pollution and wasted fuel.
Policy 3.2: Reduce energy consumption by promoting actions to increase
the occupancy of vehicles (e.g., ridesharing, mass transit, HOV lanes).
Policy 3.3: Reduce energy consumption by promoting measures to
facilitate pedestrian and bicycle transportation.
Policy 3.4: Reduce energy consumption by promoting use of alternative
fuels (e.g., compressed natural gas).
Policy 3.5: Ensure the traffic circulation and future land use elements of
local comprehensive plans are compatible and consistent with the provisions
of the Clean Air Act Amendment of 1990 and the Intermodal Surface
Transportation Efficiency Act of 1991.
Policy 3.6: Implement Travel Demand Management (TDM) strategies,
e.g., parking policies, car and van pooling, staggered work hours, High
Occupancy Vehicle (HOV) lanes, etc.
Policy 3.7: Support the development of programs designed to implement
transportation control measures that reduce vehicle-miles-travelled (VMT).
Policy 3.8: Implement land development regulations which reduce the
overall number of persons and vehicle trips per mile and result in internal
capture within large developments and heavily-developed areas.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-32
GOAL 4:
Achieve a coordinated Region-wide transportation system.
Indicators:
!
Change in the amount of citizen participation in transportation planning.
!
Change in attendance and participation at public meetings related to transportation.
!
Change in the number of reviews of transportation plans as well as traffic impacts of
proposed developments by local governments, regional and state agencies.
Policy 4.1: Provide a cooperative, continuing and comprehensive
transportation planning process through a local, regional, state and national
decision-making partnership.
Policy 4.2: Ensure that the transportation system is supportive and
compatible with growth management goals by coordinating the
transportation plan with local, regional and state comprehensive plans.
Policy 4.3: Develop an intergovernmental coordination process for review
of proposed developments' traffic impacts to achieve consistency with
roadway level of service requirements of all local governments impacted.
Policy 4.4: Ensure the transportation system chosen as the optimum
design is user acceptable by addressing local desires and preferences.
Policy 4.5: Ensure a high level of citizen participation in the
transportation planning process through an active MPO Citizens Advisory
Committee (CAC) and public meetings.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-33
Sources
Bureau of Economic and Business Research. Florida Statistical Abstract 1994Twenty-Eighth edition. Gainesville: University Press of Florida, 1994.
Federal Highway Administration. Journey-to-Work Trends in the United States
and its Major Metropolitan Areas 1960-1990. November, 1993.
U.S. Department of Commerce, Bureau of the Census. The 1990 Census of
Population and Housing.
West Florida Regional Planning Council. Deficient Roadway Segments by
Urbanized Area, 1991 and 1993. November, 1995.
Florida Department of Transportation. State Highway Pavement Deficiencies by
FDOT District 1990 and 1994. Tallahassee: 1995.
Florida Department of Transportation. Operations Report. January, 1994.
Florida Department of Transportation; State Safety Office, Pedestrian/Bicycle
Program. Florida Pedestrian Safety Plan. February, 1992.
Federal Highway Administration; Department of Transportation, Highway Safety
Research Center. The National Bicycling and Walking Study. March, 1994.
Department of Environmental Protection. 1992 Air Quality Report. 1992.
West Florida SRPP ! Regional Transportation ! Adopted 7/15/96
V-34
5. Coordination
Outline
Contents ! Coordination Outline
Cross Acceptance Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Public Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Regional Planning and Coordination Activities . . . . . . . . . . . . . . . . . 2
Program Development &I Technical Assistance . . . . . . . . . . . 2
Plan Review & Technical Assistance . . . . . . . . . . . . . . . . . . . . 2
Development of Regional Impact . . . . . . . . . . . . . . . . . . . . . . . 3
State Housing Initiatives Partnership (SHIP) Program . . . . . 3
Home Investment Partnership Program (HOME) . . . . . . . . . 4
Metropolitan Planning Organization (MPO) . . . . . . . . . . . . . . 4
Federal Transit Administration (FTA) . . . . . . . . . . . . . . . . . . 6
Transportation Disadvantaged Program . . . . . . . . . . . . . . . . . 6
West Florida Commuter Assistance Program . . . . . . . . . . . . . 7
Transportation Mapping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Hazardous Materials Emergency Planning . . . . . . . . . . . . . . . 8
Hazardous Waste Verification . . . . . . . . . . . . . . . . . . . . . . . . . 8
Economic Development - Flood Mitigation . . . . . . . . . . . . . . . 9
Special Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
West Florida SRPP ! Coordination Outline ! Part 5
COORDINATION OUTLINE
The Coordination Outline provides an overview of the Council's cross
acceptance, dispute resolution, public participation and related planning and
coordination activities. The outline describes how local governments and
citizens are involved in developing, implementing and updating the plan and
how the Council helps resolve local, state, and regional plan inconsistencies.
Cross Acceptance Activities
Cross Acceptance is
"...a process by which a regional planning council compares
plans to identify inconsistencies. Consistency between plans
may be achieved through a process of negotiation involving the
local governments or regional planning council which prepared
the respective plans.
The intent is to achieve horizontal and vertical consistency. That is, local to
local plan consistency, region to region consistency and local to regional
consistency. Inconsistencies may be addressed through a process of
negotiation between local governments and the Council.
Draft components of the West Florida Strategic Regional Policy Plan were
provided to local governments and the adjacent regional planning council
throughout the planning process. Revisions were prepared to reflect
concerns expressed by local government staff and elected officials.
The Apalachee Regional Planning Council's proposed SRPP will be reviewed
by the Council and comments will be provided to the Executive Office of the
Governor.
Public Participation
Eleven (11) public workshops were conducted to solicit input for preparing
the proposed SRPP. Information pertaining to the plan was widely
disseminated through newsletters and discussion papers. A committee of
five (5) Planning Council members reviewed the draft proposed SRPP
including maps of natural resources, in December 1995, and will make a
recommendation to the full Council membership at the January 1996
meeting.
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Subsequent to the transmittal of the proposed SRPP, three additional public
meetings will be conducted to describe the content of the proposed plan
submitted to the Executive Office of the Governor and to receive public
comment regarding the Plan.
Regional Planning and Coordination Activities
In 1992, the Environmental Land Management Study (ELMS) Committee
recognized regional planning councils as the only multi-purpose regional
entities in the state. The West Florida Regional Planning Council carries out
a variety of responsibilities for state and federal agencies in addition to
representing the regional interests of its local government membership.
Some of these programs are described below.
! Program Development & Technical Assistance
This program provides for the development of new projects for the Council which
would include preparing a scope of work, a budget and a possible grant application.
It also allows Council staff to provide technical assistance to Cities and Counties in
the region. Such technical assistance is provided upon request from the Cities and
Counties and is limited in scope.
! Plan Review & Technical Assistance
Council staff will continue to review proposed and adopted amendments to local
government comprehensive plans to determine consistency with relevant regional
goals and policies. Staff reports will be prepared for each review and presented to
the Council for approval. Council will be asked to adopt an overall recommendation
of consistency or inconsistency of adopted local plan amendments with the Regional
Policy Plan.
Technical assistance will be provided as needed to assist local governments to be
consistent with the State Comprehensive Plan, the West Florida Strategic Regional
Policy Plan and local provisions of Chapter 163, F.S. Council staff will be available
to assist with compliance negotiations between individual local governments and
the Department of Community Affairs.
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! Development of Regional Impact
Council staff performs a variety of tasks for the State including review of County
emergency plans, assistance with emergency planning as required by the Superfund
Amendment and Reorganization Act of 1986, and intergovernmental review and
coordination of federally funded projects. Council staff also reviews environmental
assessments, preferred selected sites of local school boards and the U.S. Postal
Service, and work in State Water applications for coastal zone compliance.
Council staff is responsible for coordination of the review of large-scale development
projects as required by Chapter 380, Florida Statutes. Through the coordination
of the Development of Regional Impact (DRI) program, the Council receives
comments from governmental agencies on all levels and prepares an assessment
with Development Order recommendations for the local government which has
jurisdiction. Staff also coordinates follow-up meetings, when necessary, to assist
the applicant and involved agencies with compliance with proposed
recommendations. Staff maintains an "Annual Status Report" schedule and on
anniversary dates submits a reporting form package to developers with approved
Development Orders. Staff reviews and comments on the status report and
provides copies of comments to the appropriate local government having jurisdiction
and the Florida Department of Community Affairs. The program is funded
primarily by the Florida Department of Community Affairs, however, a fee is
charged to applicants for review of their projects. The fee schedule was legislated
and became effective November 14, 1990.
As revisions are made in approved DRIs, Notices of Proposed Changes (NOPCs) are
filed with the Planning Council. The complexity of the review varies with each
project. Review costs are paid by the applicant.
Staff meets with developers and realtors to explain the DRI process and provides
them with a DRI Review manual which contains information needed by developers
including an application and appropriate regulations.
Staff also conducts workshops for local government planning, zoning and permitting
personnel, and elected officials informing them of the DRI review process. The
program is funded by the Florida Department of Community Affairs.
! State Housing Initiatives Partnership (SHIP) Program
Administrative services are provided to Santa Rosa, Walton and Holmes Counties
to implement the SHIP Program. Staff assistance includes preparation of all
required reports, ordinances, resolutions and advertisements to ensure compliance
with program rules. Staff also provides services to the local affordable housing
advisory committees, monitors the success of the local programs and provides
advice and recommendations for program improvement.
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! Home Investment Partnership Program (HOME)
Staff will provide services to Santa Rosa, Walton and Holmes Counties and the
Town of Century to administer and implement the HOME Program. Each local
jurisdiction has designed an affordable housing strategy to address local needs and
housing conditions. Staff services provided will include preparation of all required
reports; coordination with appropriate local, state and federal agencies, oversight
of first time homebuyer and substantial rehabilitation activities, and provision of
advice and recommendations for program improvement.
! Metropolitan Planning Organization (MPO)
The Council serves as staff to the metropolitan planning organizations (MPO) in
three (3) urbanized areas in West Florida - Pensacola, Fort Walton Beach, and
Panama City.
The Metropolitan Planning Organization is the local
intergovernmental board responsible for transportation policy-making. The federal
and state requirements for MPOs are included in Title 23 CFR 450, Title 23 USC
134, 49 USC 1607, and Section 339.175, Florida Statutes. MPOs are responsible
for providing a continuing, cooperative and comprehensive transportation planning
process as a condition for receiving federal and state transportation funds. The five
(5) major products of the MPO are the Unified Planning Work Program (UPWP),
a description of work tasks and budget; the Transportation Improvement Program
(TIP), a five-year improvement program; a current long range (20 year)
transportation plan; a Transit Development Plan, an annually updated five-year
capital and finance plan for public transportation; and a Coordinated
Transportation Development Plan, an annually updated program for coordinated
transportation for disadvantaged persons. However, the most significant increase
in work for each MPO for FY 1995/1996 will be properly addressing the six (6)
management and one (1) monitoring systems required by federal and state
regulations.
Funding for each MPO is derived from federal, state and local government sources.
The primary budget of each MPO is comprised of PL-112 funds received from the
Federal Highway Administration and passed through the Florida Department of
Transportation. This source provides 45 to 65 percent of an MPO's annual budget
and the federal share is 81%. For FY 1995/96 and FY 1996/97, the Florida
Department of Transportation will provide the entire match as "soft match",
resulting in a significant reduction in the local budget request. The Florida
Department of Transportation also provides limited 100% planning grants for
transportation planning purposes. The MPO budget is approved annually by each
MPO with the Unified Planning Work Program.
The MPOs are developing transportation plans and studies consistent with the
Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA). Except for Fort
Walton Beach, long range transportation plans (20-year plans) must be updated
and adopted by December 1995 before any new, federally-funded projects can be
moved into the third (3rd) year of the Transportation Improvement Program (TIP).
The Pensacola and Panama City MPOs are updating plans to Year 2020 and they
will be completed by December 1995. The Fort Walton Beach 2015 Plan was
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Part 5-4
approved in November 1993 and will satisfy the December 1995 requirement. The
stipulation is that Fort Walton Beach MPO must begin an update to the long range
transportation plan during FY 1995/1996, as is currently scheduled.
The MPO Congestion Management Systems will come online in January 1996, after
the updated long range transportation plans are adopted. Each MPO will conduct
a "corridor and subarea alternatives analysis" on each major project over one mile
in length. The corridor analysis will be completed after plan adoption and before
preliminary engineering is initiated. This involves an analysis of alternative
transportation improvements needed to solve congestion in the corridor and
selection of the alternative that the community wants the Department of
Transportation to design and construct. An extensive public involvement process
will be included to ensure that the majority of affected persons in the corridor have
an opportunity to participate in selection of the improvement to be constructed.
There will be greater consideration for all modes of movement of people and freight,
including transit, bicycling, walking, carpooling, ferries, trucking, rail, and aviation,
and the intermodal connections among the different modes of transportation;
greater consideration for public involvement and the social, environmental, and
economic impacts of transportation projects. This public involvement requirement
will require additional staff time and funding. The Transportation Enhancement
program provides federal and state funding for transportation related
improvements, such as highway beautification and pedestrian and bicycle facilities,
that are not eligible under other programs. Enhancement projects are scheduled
in all three MPO areas. The deadline for Transportation Enhancement Project
Applications to be received by the MPO Staff is May 20, annually.
The Bicycle/Pedestrian planning function has been included within the MPO
Unified Planning Work Program and funded by federal, state and local funds. Over
the past few years this program has focused primarily on bicycle planning activities.
Many of the objectives of the Bicycle Program have been realized and projects have
been implemented. Bicycle Suitability Maps for each urbanized area were
completed in December 1994. The focus has now turned to pedestrian planning
activities. Comprehensive Pedestrian Needs Plans are being written for each
urbanized area. West Florida has a significant pedestrian accident and fatality
rate. There is a need to provide sidewalks and other pedestrian facilities, as well
as education materials, to increase safety and decrease pedestrian accident rates.
The Pedestrian Needs Plans will address accident history, location of existing
pedestrian facilities (sidewalks, crosswalks, pedestrian signals, etc.), and
identification of needed improvements.
The Regional Bicycle/Pedestrian
Coordinator is available to provide technical assistance to local governments
needing to improve and/or expand their respective pedestrian and bicycle
transportation networks.
Management of access to the principal arterial highway system is important for
public safety and to preserve the capacity and efficiency of the arterial network.
Corridor access management studies are being scheduled for portions of US 98,
from Alabama State Line to Gulf County Line, and for SR 77 between Panama City
and Lynn Haven.
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! Federal Transit Administration (FTA)
More emphasis is being placed on public transportation as a way to reduce
congestion. The Federal Transit Administration (FTA) provides additional funds
through the Section 8 Planning Program. These funds comprise a smaller portion
of each MPO's total budget. The federal share is 80% and state and local sources
split the remainder. These funds are budgeted and approved by each MPO
annually.
Section 8 and PL-112 funds are used to perform studies to improve the efficiency
of existing roadways, determine the feasibility of public transportation in small
urbanized areas, and provide assistance to Escambia County Area Transit (ECAT)
with ridership surveys. The five-year Transit Development Plans are updated
regularly and a major update of the Okaloosa County Transit Development Plan is
scheduled for the coming year. Included in this task is management of the Panama
City MPO Section 9 Capital Program; which will result in initiation of fixed-route
transit service in the Panama City Urbanized Area. The Pensacola MPO has
funded an assessment of landside shuttle services needed at each landing site of the
proposed Pensacola Bay passenger ferry system.
! Transportation Disadvantaged Program
This program was initiated in 1990 and allows the Council to perform planning for
the coordinated transportation disadvantaged systems in all seven (7) counties in
Region I. This planning support is provided under one program. The Florida
Transportation Disadvantaged Commission allocates 100 percent state funding for
planning purposes from the Transportation Disadvantaged Trust Fund to a
Designated Planning Agency. The West Florida Regional Planning Council serves
as the Designated Official Planning Agency for Holmes and Washington Counties,
while the Pensacola, Fort Walton Beach, and Panama City Metropolitan Planning
Organizations (MPO's) serve as the Designated Official Planning Agencies for the
remaining five (5) counties located in the respective urbanized areas. Staff is
provided to the MPOs through the Regional Planning Council for these five (5)
counties.
This entails: general administration (agendas, minutes, etc.);
development of funding applications; raising funds for local match; developing
Annual Budget Estimates for all local and direct federal transportation dollars;
evaluation of the designated Community Transportation Coordinator (CTC);
assisting in the development of the CTC's Memorandum of Agreement/Service Plan;
developing needs and service plans for each area contained in a Coordinated
Transportation Development Plan (CTDP); monitoring the service provided;
mediation of conflicts including identification and elimination of barriers to
coordination; and other studies requested by the Local Coordinating Board.
Coordinated transportation costs are continually monitored by the respective local
county Transportation Disadvantaged Coordinating Boards. The planning budget
is approved by the respective local TD Coordinating Boards, MPOs and the Council.
Final determination of work effort will be based on funding available from the
Commission.
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Part 5-6
! West Florida Commuter Assistance Program
The West Florida Commuter Assistance Program has been operated by the West
Florida Regional Planning Council since 1977. The program specializes in helping
commuters transition from driving alone to more efficient modes of travel, such as
carpools, vanpools, or mass transit. The program provides assistance to employers
by establishing ridesharing programs for their employees. The program has a goal
to work with local governments to encourage development of policies and local
ordinances which provide incentives for commuters to rideshare and incentives for
employers to provide less parking. The Rideshare Coordinator is responsible for
marketing the Commuter Assistance Program throughout a ten (10) county area.
The West Florida Commuter Assistance Program focuses marketing efforts toward
targeted groups rather than toward the population at large. This results in more
efficient use of promotional and personnel dollars. The West Florida Commuter
Services Program maintains a ridesharing computer matchlist using a database
program. Within the matchlist are 10 major databases containing contact
information for major employers in the ten county area. The intended result of
these efforts is to reduce traffic volumes by increasing vehicle occupancy.
! Transportation Mapping
The Council continues to provide mapping development and support to the
Department of Transportation using a multi-year grant of $133,127. The Council
has upgraded its CAD system to use Intergraph's Microstation 5.0; the same
program used by the Department. As part of this project, Access Management
maps have been completed and Federal Functional Classification maps are in
progress. Maps depicting the Five-Year Transportation Improvement Projects have
been developed for each urbanized area. Mapping of suitable bicycle routes for
Washington and Holmes Counties has been completed.
The Council has completed the following maps for the Metropolitan Planning
Organizations and the seven regional counties: urban area base maps with street
names, bicycle suitability maps, census tract maps, revised traffic analysis zones
maps and traffic station maps. Other Council mapping activities included the
Statewide Future Land Use and Coastal Mapping project which included
participation of all eleven planning councils and was coordinated by Southwest
Florida RPC.
Existing Land Use maps were designed and digitized for the Walton County
Comprehensive Plan. Base maps were completed for digitizing the Future Land
Use to begin May, 1994. Other land use maps developed or revised by the Council
include: City of Lynn Haven, Holmes County, Century and DeFuniak Springs.
Maps depicting regional archaeological and historic sites were also completed.
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Part 5-7
! Hazardous Materials Emergency Planning
Title III of the Superfund Amendment and Reauthorization Act (SARA) requires
the formation of Local Emergency Planning Committees (LEPCs) to plan emergency
responses for facilities that have hazardous materials present. Council staff serves
as staff to the LEPC for the seven Counties in Region I. The LEPC is responsible
for collecting, managing and disseminating the chemical reports submitted by
facilities in the region; responding to public inquiries; assisting facility
representatives in completing initial and annual report forms; and compiling a
Regional Emergency Management Plan for Hazardous Materials. Staff will review
the seven updated County Hazards Analyses and will add the information in the
Regional Emergency Management Plan Annual Update.
Council staff also serves as staff to various subcommittees formed by the LEPC
including Exercise Design, Training, Transportation and Plan Review. An exercise
of the Regional Plan will be held during 1995. Staff also works closely with the
Florida Department of Transportation in completing Hazardous Materials
Commodity Flow Studies for major roadways in the region.
Staff is responsible for responding to public information requests related to the
Community Right-To-Know section of Title III. Chemical reports for the
approximately one thousand facilities that have reported to date must be organized
and accessible to the public upon request. The program is being funded by the
Florida Department of Community Affairs which charges a fee to reporting
facilities.
The U.S. Department of Transportation has provided funds through DCA pursuant
to the Hazardous Materials Transportation Act (HMTA) for use on planning
projects and training of public sector employees. The LEPC may choose to conduct
a commodity flow transportation survey, enhanced hazards analysis, training needs
survey or exercise as part of the planning grant. Several commodity flow studies
were completed by our region in 1993/1994. Public sector emergency responders are
trained using a Level 1 & 2 training package purchased from On Guard. Levels 3
& 4 training, which is much more involved and expensive, will be taught during the
subsequent years.
! Hazardous Waste Verification
The Council completed a five-year program under contract with Okaloosa, Bay,
Santa Rosa, Holmes and Escambia Counties to verify the hazardous waste
management practices of small quantity generators (SQGs) within the Counties in
1989. Twenty percent of potential SQGs were verified each year in 1991, 1992,
1993 and 1994 for the second five-year program. Information obtained in the
second five years will be stored in a computerized data base. The program is funded
by the Counties under contract with the Council and it is anticipated that three
Counties will request the Council to conduct verifications of 20% of their potential
small quantity hazardous waste generators this year.
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! Economic Development - Flood Mitigation
This program provides technical assistance to counties, municipalities and other
entities affected by Tropical Storm Alberto in July 1994 and Hurricanes Erin and
Opal, 1995. Staff will assess disaster impacts and develop economic recovery
strategies with each affected local government. A variety of State and Federal
funding sources will be explored in an effort to obtain assistance for residents and
local governments. The program is funded by the U.S. Department of Commerce,
Economic Development Administration. The Planning Council may administer
several of the programs if funding is awarded.
! Special Projects
Planning services will be provided on a contractual basis to local governments
requiring staff assistance for an extended period of time. This program provides
professional staff to perform planning activities as directed by local governments.
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Part 5-9
6. Glossary
Contents ! Glossary
General . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Affordable Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Emergency Preparedness . . . . . . . . . . . . . . . . . . . . . . . . 6
Natural Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Regional Transportation . . . . . . . . . . . . . . . . . . . . . . . . 14
West Florida SRPP ! Glossary ! Part 6
1
GENERAL
Trends and Conditions Statements: Background analysis of factors that
describe current conditions and future related trends or projections. The
statements are based on expected growth patterns of the Region and
analyze the problems, needs and opportunities associated with growth
and development of the Region.
Regional Goals: Goals that describe the long-term end toward which programs
and activities are ultimately directed.
Indicators: Indicators may be associated with each goal to measure progress,
specifically to be used in the Region's five-year evaluation and appraisal
report.
Regional Policies: Policies that have regionwide application and describe the
actions needed to achieve the regional goals.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-1
AFFORDABLE HOUSING
Affordable Housing: Housing that the average person can afford. A situation
where monthly rents, or monthly mortgage payments including utilities,
taxes, and insurance do not exceed 30% of that amount which represents
the percentage of the median adjusted gross annual income for very low,
low, and moderate income persons.
Affordable Rents: The average monthly cost for rent and utility charges; or
the average monthly cost for all mortgage payments, real property taxes
and utility charges; or 30% of the gross monthly income of all adult
members of the individual's household including supplemental income
from other public agencies, whichever is less; or the adjusted gross
income pursuant to 24 CFR Section 215.1.
Disabled: A person with a mobility or self-care limitation and a work
disability preventing employment.
Elderly: A person aged 65 or older.
Emergency Shelter: Any facility with overnight sleeping accommodations
with the primary purpose of providing temporary shelter for the
homeless in general or for specific populations of the homeless.
Government Assistance: Direct or indirect assistance from the Federal,
State or local government in the form of loans, grants (including CDBG
grants), guarantees, insurance, payments, rebates, subsidies, credits, tax
benefits, etc.
HOME Housing Program: A program establishing a partnership between
the Federal government and States, units of local government and nonprofit organizations for the purpose of expanding the supply of
affordable, standard housing for low-income families. Each jurisdiction
participating in the HOME Program is required to make contributions
(match) to qualified housing in an amount equal to 25 percent of
appropriated HOME funds drawn for housing projects.
Homeless: An individual (not imprisoned or otherwise detained pursuant to
an Act of Congress or a state law) or family who: (1) lacks a fixed,
regular, and adequate night time residence; and (2) has a primary night
time residence that is: a) a supervised (publicly or privately) shelter
designed to provide temporary living accommodations (including welfare
hotels, congregate shelters, and transitional housing for the mentally
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Part 6-2
ill); b) an institution that provides a temporary residence for individuals
intended to be institutionalized or; c) a public or private place not
designed for ordinary use as a regular sleeping accommodation for
human beings.
Impact Fees: Regulatory fees designed to offset the marginal costs of
operating or expanding public facilities necessitated by new
development. Fees are collected to improve the infrastructure deficits
or inadequacy caused by or being anticipated by the new demand.
Income
Moderate Income: household income between 80 percent and 120
percent of median household income.
Low Income: household income between 50 percent and 80 percent of
median household income.
Very Low Income: household income below 50 percent of median
household income.
1990 Income Levels by County
County
Median Family Income
Median Household Income
Bay
28,217
24,684
Escambia
29,490
25,158
Holmes
20,923
17,241
Okaloosa
31,662
27,941
Santa Rosa
31,033
27,384
Walton
25,222
21,297
Washington
22,226
18,266
Source: 1990 Census
Inclusionary Housing: Multi-income housing within neighborhoods
Infill:
Open space within existing urban areas that may be used for
development.
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Part 6-3
Retrofitting: To go back and make suitable for conformity or agreement with.
Rural Economic and Community Development (RECD): A program
establishing a partnership between the Federal government and states
for the purpose of providing safe, sanitary, and affordable housing to
very low-, low-, and moderate-income individuals. In order to qualify for
the program a home must be located in a rural community or in a small
incorporated town/city with a population under 20,000 based on the
decennial population census of the United States.
SHIP (State Housing Initiative Partnership) Program: The centerpiece
of the 1992 Sadowski Act 1992. The SHIP Program is a block grant
program to local governments to allow them to implement locallydesigned housing programs. Monies are distributed based on population
with a $250,000 minimum per county. Local governments must meet
certain requirements.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-4
ECONOMIC DEVELOPMENT
Agriculture: See Natural Resources
Infrastructure: Facilities and services needed to sustain industrial,
residential, and commercial activities.
Public Facilities: Systems or facilities relating to transportation, sewer
service, solid waste service, drainage service, potable water service,
parks and recreation and public health.
Redevelopment: The process by which cities renew themselves through
private and public investments, i.e., renovation of a blighted area.
Urban Sprawl: Scattered, untimely, poorly planned urban development that
occurs in urban fringe and rural areas and frequently invades land
important for environmental and natural resource protection. Sprawl
is typically manifested by one or more of the following patterns: leapfrog
development; ribbon or strip development; or large expanses of lowdensity, single-dimensional development.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-5
EMERGENCY PREPAREDNESS
Base Flood Elevation: The highest elevation, expressed in feet above sea
level, of the level of flood waters occurring in the regulatory base flood
(i.e. 100-year flood event).
Coastal Area: An area identified by the local government which encompasses
all of the following where they occur within the local government's
jurisdiction. Water and submerged lands of oceanic water bodies or
estuarine water bodies; shorelines adjacent to oceanic waters or
estuaries; coastal barriers; living marine resources; marine wetlands;
water-dependent facilities or water-related facilities on oceanic or
estuarine waters; public access facilities to oceanic beaches or estuarine
beaches or estuarine shorelines; and all lands adjacent to such
occurrences where development activities would impact the integrity or
quality of the above.
Coastal Construction Control Line: Established to define that portion of
the beach-dune system which is subject to severe fluctuations based on
a 100-year storm surge or other predictable weather conditions and to
define the area in which special structural design consideration is
required to ensure the protection of the beach-dune system, any
proposed structure, and adjacent properties, rather than to propose a
seaward limit for upland structures.
Coastal High Hazard Area: The areas, defined by Rule 9J5 F.A.C., identified
in the most current regional hurricane evacuation study as requiring
evacuation during a category one hurricane event.
Evacuation Route: Routes designated by county emergency management
authorities based upon the regional evacuation studies, for the
movement of person to safety, in the event of a natural or technological
disaster. The Department of Community Affairs considers hurricane
evacuation routes as regionally significant roadways (9J-2.0255(4)(d),
F.A.C.).
Flood Plains: Areas inundated during a flood event with a specific probability
of occurrence identified by the National Flood Insurance Program (NFIP)
as an A Zone, B Zone, or V Zones on Flood Insurance Rate Maps or Flood
Hazard Boundary Maps. The 100-year, 500-year and velocity zones are
delineated.
Hurricane Vulnerability Zone:
West Florida SRPP ! Glossary ! Adopted 7/15/96
The areas delineated by the regional
Part 6-6
hurricane evacuation study requiring evacuation in the event of a
Category 3 storm event. (See Saffir-Simpson Hurricane Scale.)
Hurricane: An extreme low pressure tropical storm rotating counterclockwise
around a relatively calm "eye." Hurricane-force winds start at 75 miles
per hour and have been known to exceed 155 miles per hour. Damage
is caused by the wind, storm surge and flooding.
Mitigate: Actions or activities designed to minimize negative impacts
(potential loss of life or property damage) of a natural or technological
disaster and reduce the need to respond.
National Flood Insurance Program: A federal program which authorized
the sale of federally-subsidized flood insurance in communities which
agree to adopt and implement flood mitigation strategies and
regulations.
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Part 6-7
NATURAL RESOURCES
Agriculture: All methods of production and management of livestock, crops,
and soil. This includes, but is not limited to, the related activities of
tillage, fertilization, pest control, harvesting, and marketing. It also
includes the activities of feeding, housing, and maintenance of livestock
and handling their by-products.
Aquatic Preserve: State designated coastal areas of submerged lands and
associated waters, usually having exceptionally high biological,
aesthetic, educational and/or scientific value. The Pinellas County
Aquatic Preserve is an exception to this general description. Aquatic
preserves are established by the State following public hearings at the
local level and set aside to be maintained essentially in their natural or
existing condition.
Aquifer: An underground water-bearing strata through which ground water
moves freely.
Aquifer Recharge Area: A region where water infiltrates the ground surface
and flows to the underlying aquifer.
Barrier Island: A narrow, sandy landform separating open ocean from a
lagoon or embayment. The isolated island consists mainly of quartz
sands, limestone, rock, coral, and other material. Islands created by
artificial channelization are not considered barrier islands.
Beach: Zone of unconsolidated material that extends from the mean low water
line to the line of permanent vegetation or marked change in geologic
form. Coastal beaches front the Gulf of Mexico and constitute the
natural shoreline of almost all of the barrier islands.
Best Management Practices (BMPs): Conservation practices or systems of
practices and management measures that control soil loss and reduce
water quality degradation caused by nutrients, animal waste, toxins,
and sediment. Agricultural BMPs include, but are not limited to, strip
cropping, terracing, contour stripping, grass waterways, animal waste
structures, ponds, minimal tillage, grass and naturally vegetated filter
strips, and proper nutrient application measures. (FDACS Division of
forestry has guidelines applicable during silvicultural operations.) In
addition, BMPs include practices that are technologically and
economically practicable and most beneficial in preventing or reducing
adverse impacts from mining activities.
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Part 6-8
Buffer: A naturally vegetated area or vegetated area established or managed
to protect aquatic, wetland, shoreline, and terrestrial environments from
man-made disturbances. Manufactured objects such as walls or fences,
as well as vegetation that block sight angles, are also considered buffers.
Channel: A watercourse with a definite bed and banks which confine and
conduct the normal continuous or intermittent flow of water. Also, the
deeper path provided for boats or ships to traverse a water body.
Channelization: 1) The straightening and deepening of channels and/or the
cross-section thereof to permit water to move rapidly and/or directly; or
2) Provision of a path, deeper than the surrounding area, through a
water body for boats or ships.
Classes of Waters of the State:
Class I-A:
Surface waters that are used as a potable water source for
public water supplies or withdrawn for treatment as such.
Class I-B:
Groundwaters that are used as potable and agricultural
water supplies and storage.
Class II:
Coastal waters which have the capability to support
shellfish harvesting.
Class III:
All other coastal and inland waters not otherwise
specifically classified by the State Department of
Environmental Regulation. The primary requirement for
these waters is that they be maintained at a quality
sufficient to allow body contact water sports and
propagation of fish and wildlife.
Class IV:
Agricultural and industrial water supplies.
Class V:
Navigation, utility and industrial use.
Coastal Area: An area identified by the local government which encompasses
all of the following where they occur within the local government's
jurisdiction: water and submerged lands of oceanic water bodies or
estuarine water bodies; shorelines adjacent to oceanic waters or
estuaries; coastal barriers; living marine resources; marine wetlands;
water-dependent facilities or water-related facilities on oceanic or
estuarine waters; public access facilities to oceanic beaches or estuarine
shorelines; and all lands adjacent to such occurrences where
development activities would impact the integrity or quality of the
above.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-9
Coastal Marshes and Swamps: Ecologically valuable and highly productive
intertidal areas found bordering low energy marine tidal areas. These
habitat types contain such plant life as mangroves, marsh grasses, and
cabbage palm.
Conservation Areas:
various means.
Designated areas protected from development by
Drainage: Surface water runoff; or the removal of surface water or
groundwater from land by drains, grading or other means.
Dune: Mound or ridge of loose sediments, such as sand, deposited and moved
around by wind and storm action, as well as artificial means. Dune
systems are often stabilized by vegetation (e.g., sea oats). Dunes are
landward of the shoreline and serve as a transition area between the
beach and coastal land.
Dunes, Primary and Secondary: A ridge or hill of sand created by wind
and/or wave action. The primary dune fronts the waters edge with the
secondary system landward of the primary dune system.
Ecosystem: A community of plant and animal species that interact together
along with their physical and chemical environment.
Endangered Species: Any species of fish, wildlife, or plants which have been
designated as such by the appropriate federal or state agency.
Designation occurs when the continued existence of these species as
viable components of the state's resources are determined to be in
jeopardy.
Estuary: The area near the mouth of a river where seawater and freshwater
mix. Estuaries include bays, embayments, lagoons, sounds and tidal
streams.
Extinction: The complete disappearance of a species from earth. Extinction
can occur through destruction of natural habitat, failure to adapt to new
conditions, or severe depletion of numbers.
Flood Plains: Areas inundated during a flood event with a specific probability
of occurrence.
Greenbelt: A belt of parkways, parks, or farmlands that encircles a
community.
Greenway: A corridor of protected open space benefiting sensitive lands and
wildlife and providing people with access to healthful outdoor natural
activities.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-10
Groundwater: Subsurface water.
Groundwater Recharge Area: Areas that are ideal for different methods,
both natural and artificial, of returning large volumes of water back into
the groundwater supply. A recharge area is mostly dependent on the
permeability of soils, with areas having low permeabilities utilizing
artificial techniques.
Habitat: The particular natural community, or communities that typically
supports a population of a particular plant or animal species.
Hydrology: The science which deals with the circulation, distribution, and
properties of water.
Inflow: Signifies discharge into the sewer system through service connections
from such sources as area or foundation drainage, storm waters, street
wash waters, or sewers.
Land Use: The purpose for which land or the structure on the land is being
used.
Landfill: A well-planned, and properly located operation that is based on
engineering methods and techniques that allows the disposal and burial
of vast amounts of refuse in stable land.
Listed Species: An animal or plant species identified as endangered,
threatened, or Species of Special Concern in Chapter 39, FAC; Chapter
531.153, F.S.; and/or in the federal Endangered Species Act, 16 U.S.C.
Section 1531 et seq., as amended, or any other applicable state or federal
statute or rule.
Local Government Comprehensive Plan: A growth management plan
prepared, adopted, and amended by a local government and determined
to be in compliance by the Florida Department of Community Affairs,
pursuant to Chapter 163, Florida Statutes.
Marine: A facility for storing, servicing, fueling, berthing and securing
pleasure boats and which may include eating and retail facilities for
owners, crews and guests.
MGD: Million gallons per day.
Mitigate: To offset or reduce negative impacts through measures such as, but
not limited to, the following: 1) Not taking action or parts of a certain
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-11
action; 2) Limiting the degree or magnitude of the action; 3) Repairing,
rehabilitating, or restoring the affected resource; 4) Preserve and
maintain operations over time during the life of the action; and 5)
Replacing or providing substitute resources or environment.
Nutrients: elements or compounds required by plants and animals for growth
and reproduction including water-soluble nitrogen and phosphorus
compounds (nitrate and phosphate fertilizers) needed by crops for
normal growth.
Open Space:
Undeveloped lands suitable for passive recreation or
conservation uses.
Permitting: Authorization to engage in or conduct any construction,
operation, modification, or expansion of any installation, structure,
equipment, facility, or appurtenances thereto, which will reasonably be
expected to be a source of pollution or a hinderance, or affect the health
and welfare of the population or environment.
Point Source Pollution: Pollution originating at a specific location, such as
a sewage treatment facility, or at stormwater drain outfalls. Point
source pollution tends to occur more or less continuously.
Potable Water: Water that can be used for human consumption.
Preservation Areas: Regionally-significant natural resources as depicted on
the adopted map. Critical natural or man-made systems which cannot
be impacted. Preservation areas include: Intertidal Systems, Estuarine
Systems, Open Water Marine habitat, Lake Systems, Special Habitats,
Beaches, Coastal Strand, Floridan Aquifer, and Water Supply Sources.
Receiving Waters: Rivrrs, lakes, oceans, or other water courses that receive
treated or untreated waste water, or other discharges.
Reservoir: A pond, lake, tank or basin, natural or man-made, used for the
storage, regulation and control of water.
Regionally-significant Natural Resources: A natural resource or system
of interrelated natural resources, that due to its function, size, rarity or
endangerment retains or provides benefit of regional significance to the
human or natural environment, regardless of ownership (27E5.002(4),FAC).
Runoff: The part of the rainfall that travels to surface streams and water
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-12
bodies via surface or subsurface routes.
Saltwater Intrusion: The occurrence of the saltwater/freshwater interface
moving laterally or vertically to occupy space where freshwater once
was.
Sinkhole: A depression in the land surface formed either by the collapse of the
roof of an underground cavern or channel, or by solution of near-surface
limestones or similar rocks.
Surface Water: Water on the earth's surface exposed to the atmosphere as
rivers, lakes, streams and oceans.
Threatened Species: Any species which have been designated as such by the
appropriate federal or state agency. Designation occurs when the
continued existence of these species as viable components of the state's
resources are determined to be in jeopardy. These species appear likely,
within the foreseeable future, to become endangered.
Tidal Marshes: See coastal marshes and swamps.
Turbidity: Deficient in clarity or purity (fowl, muddy).
Upland: Non-wetlands; Non-submerged lands.
Wastewater: Water carrying wastes from homes, businesses and industries
that is a mixture of water and dissolved or suspended solids, or excess
irrigation water that is runoff to adjacent land.
Watershed: The area drained by a river.
Wetland: Land that is inundated or saturated by surface or groundwater at a
frequency and duration sufficient to support, and that under normal
circumstances does support, a prevalence of vegetation typically adapted
for life in saturated soil conditions. Wetlands play irreplaceable
ecological roles by purifying water and providing spawning grounds for
fish and critical habitat for shellfish, shorebirds, and other species.
Wildlife Refuge: Area specifically set aside for the protection of wildlife. Such
areas may be subject to multiple use, like state parks, which are
considered game refuges.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-13
REGIONAL TRANSPORTATION
Bicycle or Pedestrian Facility: Any lane, path or way which is designated
for bicycle travel or foot travel, and excludes motor vehicles. Roadways
which meet certain engineering standards such as wide outside travel
lanes are also considered to be bicycle facilities.
Carpool, Carpooling: A single vehicle, share-the-expense method of
transportation for two or more individuals who regularly travel together
to a common destination.
Clean Air Act: The federal act put forth in 1970 which established national
air quality standards. The original legislation was adopted in 1963.
Commuter: A person who travels back and forth regularly between two
points. It is often used in reference to a suburban resident who travels
daily into the city to work. The term reverse commuting, on the other
hand, is used to refer to someone who lives in the city but travels to a job
in the suburbs.
Corridor: A strip of land between two termini within which traffic,
topography, environment and other characteristics are evaluated.
Congestion Management Systems (CMS): Systematic processes that
provide information on transportation system performance and
alternative strategies to alleviate congestion and enhance the mobility
of persons and goods; a system to monitor and analyze the magnitude
of congestion on the multi-modal transportation system and to plan and
implement actions that reduce congestion and enhance the performance
of the transportation system.
High-Occupancy Vehicle (HOV): A motor vehicle carrying more than one
person.
Level of Service (LOS): An indicator of the extent or degree of service
provided by, or proposed to be provided by a facility based on the
operational characteristics of the facility. A qualitative rating of the
effectiveness of a highway in serving traffic, measured in terms of
operating conditions. Note: The Highway Capacity Manual identifies
operating conditions ranging from "A" for best operation (low volume,
high speed) to "E" for poor operations at possible capacity load.
Mass Transit: Passenger services provided by public, private or non-profit
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-14
entities such as the following surface transit modes: commuter rail,
rapid rail transit, light rail transit, light guideway transit, express bus,
and local fixed-route bus.
Metropolitan Planning Organization (MPO): The organization designated
by the Governor as responsible together with the State for
transportation planning in an urbanized area according to 23 U.S.C.
Section 134. This organization shall be the forum for cooperative
decision-making by principal elected officials of general local
government.
Mixed-Use Development: The development of a tract(s) of land or structure
with two or more uses such as, but not limited to, residential, office,
manufacturing, retail, public, or entertainment, preferably in a compact
urban form.
Modal: Referring to the type of transportation used (bus, train, plane,
automobile, bicycle, pedestrian).
Mode: A means of transportation. Automobile travel, buses, light rail, dial-aride, bicycle, etc., are different modes of travel.
Peak Hour: That time during which the maximum amount of travel occurs in
the peak direction; may be specified as the morning peak hour or the
evening peak hour or as both combined.
Regionally Significant Roadways: A roadway should be considered for the
designation as a regionally significant roadway if it crosses county
boundaries, is a component of the state highway system, provides access
to a regionally significant facility or a regionally significant facility or a
regional activity center, or is a designated hurricane evacuation route.
Right-of-way: Land to which the state, county, or municipality owns the fee
simple title or has an easement dedicated or required for a
transportation or utility use.
Travel Demand Management (TDM): Strategies used to reduce congestion,
improve air quality and reduce energy consumption by increasing vehicle
occupancy, rescheduling trips around peak travel hours, eliminating
unnecessary SOV trips and some trips altogether.
West Florida SRPP ! Glossary ! Adopted 7/15/96
Part 6-15
7. Regionally
Significant
Resources and
Facilities
Contents ! Regional Significant Resources
Natural Resources, Non-Transportation Resources, and Transportation Resources
Natural Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Map 1: Surface Water, Save Our River, Ground Water, and Coastal and
Marine Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Map 2: Planning and Management Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Map 3: Wetlands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Facilities of Regional Significance: Non-Transportation . . . . . . . . . . . . . . . . 7
Bay County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Escambia County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Holmes County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Okaloosa County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Santa Rosa County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Walton County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Washington County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Facilities of Regional Significance: Transportation . . . . . . . . . . . . . . . . . . . . 27
Map 4: Significant Transportation Resources
SRPP ! Regional Significant Resources ! Part 7
REGIONAL SIGNIFICANT NATURAL RESOURCES
MAP 1
SURFACE WATER RESOURCES
River Systems
Bays
Perdido River
Escambia River
Yellow River
Blackwater River
Big Coldwater Creek
East Fork River
Shoal River
Choctawhatchee River
Holmes Creek
Econfina River
Pond Creek
Bear Creek
Wright Creek
Pensacola Bay
Escambia Bay
East Bay (Santa Rosa)
Blackwater Bay
Santa Rosa Sound
Choctawhatchee Bay
St. Andrews Bay
West Bay
North Bay
East Bay (Bay)
Lakes
Bayous
Lake Stone
Bear Lake
Hurricane Lake
Karick Lake
Lake Jackson
Juniper Bay Lake
Lake Stanely
Lake Victor
Pate Lake
Smith Lake
Sand Hill Lakes
Deer Point Lake
Powell Lake
Bayou Texar
Bayou Chico
Grand Lagoon
Big Lagoon
Mulatto Bayou
Indian Bayou
Trout Bayou
Cinco Bayou
Garnier Bayou
Boggy Bayou
Rocky Bayou
Jolly Bayou
Springs
First Magnitude:
Gainer Springs (Bay)
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-1
Second Magnitude:
Ponce de Leon Springs State Park (Holmes)
Morrison Springs (Walton)
Beckton Springs (Washington)
Blue Spring (Washington)
Cypress Springs (Washington)
Blue Springs (Washington)
Williford Springs (Washington)
GROUND WATER RESOURCES
Major Aquifers
Surfical Aquifer System: Sand-and-Gravel
Floridan Aquifer
Sub-Floridan Aquifer
Intermediate Aquifer
COASTAL AND MARINE RESOURCES
Unbridged Coastal Islands: Shell Island
Grassbeds (shown on map)
Estuaries:
St. Andrews Sound
East Bay (St. Andrew)
St. Andrew Bay
West Bay (Bay)
North Bay (Bay)
Choctawhatchee Bay
Santa Rosa Sound
Escambia Bay
Pensacola Bay
Perdido Bay
COBRA Island/Areas:
St. Andrews Complex (Bay), Deer Lake Complex
(Walton), Draper Lake (Walton), Four-Mile
Village (Walton), Moreno Point (Walton,
Okaloosa), Santa Rosa Island (Escambia, Santa
Rosa), Gulf Islands (Escambia), Tom King (Santa
Rosa), Town Point (Santa Rosa), Garcon Point
(Santa Rosa), and Basin Bayou (Santa Rosa).
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-2
The otherwise protected areas as defined by
Section 9 are St. Andrews Complex (Bay), Grayton Beach (Walton), Perdido
Key (Escambia), and Phillips Inlet (Bay). These are areas that are
determined to be state owned.
"Save Our Rivers":
Escambia River (12/19/84)
Garcon Point (12/6/91)
Garcon Point (9/1/93)
MAP 2
PLANNING AND RESOURCE MANAGEMENT AREAS
National Seashores:
Gulf Island National Seashore
Military Lands:
Tyndall Air Force Base, Eglin Air Force Base,
NAS Pensacola Complex, Coastal Systems
Station
State Parks:
Blackwater River State Park
State Recreation Areas:
Big Lagoon, Fred Gannon Rocky Bayou, Grayton
Beach, Henderson Beach, Saint Andrews
State Wilderness Areas:
Audubon Island (Bay)
State Wildlife Management Areas: Blackwater, Eglin, Point Washington
State Aquatic Preserves:
Ft. Pickens, Yellow River Marsh, Rocky Bayou,
St. Andrew State Park
State Forests:
Blackwater River State Forest (Santa
Rosa/Okaloosa), Bruner Bay State Forest*
(Washington), Choctawhatchee River State
Forest* (Washington), Gillis Road State Forest*
(Santa Rosa), Holmes Creek State Forest*
(Washington), Loblolly State Forest*
(Washington), Pine Log State Forest
(Bay/Washington), Point Washington State
Forest (Walton), Porter Pond State*
(Washington), Tupelo State Forest*
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-3
(Washington)
*Not Mapped due to size.
"Outstanding Florida Water":
St. Andrews State Recreation Area
St. Andrews State Park
Choctawhatchee River
Lake Powell
Big Lagoon State Recreation Area
Perdido Key State Recreation Area
Ft. Pickens State Park
Perdido River
Escambia Bay Bluffs
Gulf Island National Seashore
Ponce de Leon State Recreation Area
Fred Gannon Rocky Bayou State Recreation Area
Henderson Beach State Recreation Area
Rocky Bayou State Park
Blackwater River
Shoal River
Blackwater River State Park
Yellow River Marsh
Grayton Beach State Recreation Area
Ponce de Leon Springs State Recreation Area
Eden State Gardens
Falling Waters State Recreation Area
CARL Projects:
Topsail Hill
Blackwater River
Lake Powell
Garcon Ecosystem (Garcon Point and Prairies of Garcon)
Perdido Pitcher Plant
Escribano Point
St. Michael's Landing
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-4
Preservation 2000:
State Wildlife Management Areas in the West Florida Region
Wildlife
Management Areas
County
Acreage
Blackwater
Santa Rosa
Okaloosa
183,000
Eglin
Santa Rosa
Okaloosa
Walton
463,360
Walton
Bay
165,000
Point Washington
Total Acreage
Endangered or
Threatened
Wildlife
Nesting Bird
Colonies
No data
Okaloosa darter
No data
No data
832,360
Source: Northwestern Florida Ecological Characterization: An Ecological Atlas,
page 89
Privately Owned Conservation Areas:
Rockhill Preserve (The Nature Conservancy)
Choctawhatchee River Preserve (The Nature Conservancy)
Sophia Smith Lands (Florida Audubon Society)
Laidlaw Land (Florida Audubon Society)
Water Management District Management and Conservation Areas:
Escambia River
Garcon Point
Yellow River
Choctawhatchee River
Econfina River
Surface Water Improvement and Management Projects (SWIM):
Deer Point Lake
Pensacola Bay Area
Santa Rosa Sound
Choctawhatchee Bay
Sand Hill Lakes
Choctawhatchee River
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-5
St. Andrews Bay
Escambia River
Blackwater River
Shoal River
Yellow River
Class I:
Deer Point Lake
Class II:
Escambia Bay
East Bay (Escambia)
Blackwater Bay
Santa Rosa Sound
Choctawhatchee Bay
West Bay (Bay)
North Bay (Bay)
East Bay (Bay)
Rocky Bayou
MAP 3
Wetlands:
Please see MAP 3.
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-6
Facilities of Regional Significance: Non-Transportation
Bay County
Sanitary Sewer Facilities
Cherry Street Sewage Treatment Plant of the Four Cities Sewage System
(Cedar Grove, Callaway, Parker, Springfield, and Bay County) and the
Military Point Treatment Lagoon
Panama City Sewage System
Tyndall Air Force Base
Stone Container Corporation
City of Lynn Haven
City of Panama City Beach
Private Systems
Baxter
Cypress Apartments
Derby Woods
Douglas Road Mobile Home Park
Latitude 29 Condominium
Naval Coastal Systems Center
Pinnacle Port Condominium
Pride Resorts
Sandy Creek Ranch
Shores
Southport Elementary School
Sunnyside Villas
Venture Out in America
Woodlawn
Solid Waste Facilities
Bay County Resource Recovery Facility/Solid Waste Incinerator
(Westinghouse Corporation)
Panama City Beach Transfer Station
Panama City Transfer Station
Steelfield Road Solid Waste Landfill
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-7
Potable Water Facilities
Bay County Utilities Department operates Bay County Water System, it
provides water to the cities of Callaway, Cedar Grove, Panama City,
Panama City Beach, Parker, Springfield as well as the unincorporated areas
of the county and Tyndall Air Force Base and the Naval Coastal Systems
Station.
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
Bay Medical Center
Gulf Coast Community Hospital
United States Air Force Hospital
Bay Eye and Surgical Center
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
Universities, Colleges and Vocational Schools
Gulf Coast Community College
Haney Vocational - Technical Center
Florida State University (Panama City Branch Campus)
Public Schools
High Schools
A.D. Harris High School
Bay High School
Mosley High School
Rutherford High School
Middle Schools
Everitt
Jinks
Merritt Brown
Mowat
Rosenwald
Surfside
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-8
Elementary Schools
Callaway
Cedar Grove
Cove
Hiland Park
Hutchinson Beach
Lucille Moore
Lynn Haven
Magaret K. Lewis
Merriam Cherry Street
Millville
Northside
Oakland Terrace
Parker
Patronis
St. Andrew School
Southport
Springfield
Tommy Smith
Tyndall
Waller
West Bay
Shaw Adult Center
Tom P. Haney Technical Center
Projected New Schools
Elementary "E"
Middle School "CC"
High School "AAA"
Power Plants and Pipelines
Gulf Power Company
United Gas Pipelines
Five Flags Pipeline
Florida Gas Transmission Company
Florida Power Corporation
Gulf Coast Electrical Cooperation
Greenway Corridors
DEP Ecosystem Management Area
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-9
Escambia County
Sanitary Sewer Facilities
Escambia County Utility Authority (ECUA)
Main Street WWTP; Bayou Marcus WWTP; Cantonment WWTP;
Pensacola Beach WWTP
Wastewater Treatment Facilities
Azalea Trace
Bayou Grande Villas
Beulah Elementary
Bluff Springs Campground
Bratt Elementary
Earnest Ward High School
Grantwood Apartments
I-10 Welcome Station (DOT)
Innerarity Island
Silverlake Mobile Estates
Mariner
McArthur Elementary
Moreno Courts
Needle Rush Point
Pensacola Greyhound Racing
Pine Meadows Elementary
Sandy Key Condo
Saufley Field NAS
Sea Spray Condo
Shipwatch & Surf Yacht Club
Sundown Condo
University of West Florida
Webb's Apartments
Weekly Bayou
Windward Condo
Solid Waste Facilities
Escambia County Solid Waste Department
Perdido Landfill
Oak Grove Landfill
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-10
Camp Five Landfill
Beulah Landfill
Potable Water Facilities
Escambia County Utilities Authority
People's Water Service Company
Naval Air Station
Gonzalez Utilities
Farm Hills Utilities, Inc.
Timberland Utilities, Inc. (ECUA)
Cottage Hill Water Works
Molino Water Works
Century Water System
Bratt-Davisville System, Inc.
Central Water Works
Walnut Hill Water System, Inc.
Santa Rosa Island Authority Water System
Navarre Beach Water System
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
Baptist Hospital, Inc.
Rehabilitation Institute of West Florida
Sacred Heart Hospital of Pensacola
University Hospital and Clinic
West Florida Regional Medical Center
Hospice of Northwest Florida
United States Naval Regional Hospital
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
Universities, Colleges and Vocational Schools
Pensacola Junior College
George Stone Vocational-Technical Center
The University of West Florida
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-11
Public Schools
Elementary Schools
Jim Allen
Barrineau Park
Bellview
Beulah
Spencer Bibbs
Bratt
Brentwood
Byrneville
Hellen Caro
Century
N.B. Cook
Cordova Park
A.A. Dixon
Edgewater
Ensley
Ferry Pass
G.S. Hallmark
Reinhardt Holm
Lincoln Park
R.C. Lipscom
Longleaf
L.D. MacArthur
Molino
Montclair
Myrtle Grove
Navy Point
Oakcrest
Pensacola Beach
Pine Meadow
Pleasant Grove
Scenic Heights
O.J. Semmes
Sherwood
A.K. Sutter
Warrington
C.A. Weis
West Pensacola
Allie Yniestra
Elementary "K"
Elementary "L"
Elementary "M"
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-12
Elementary "N"
Middle Schools
Bellview
Brentwood
Brown Barge
Brownsville
G.W. Carter
Century SR
Ferry Pass
Ransom
Ernest Ward J/SR
Warrington
Wedgewood
J.H. Workman
New Middle "BB"- Bailey
New Middle "CC"
High School
Escambia
Pensacola
Pine Forest
J.M. Tate
Washington
W.J. Woodham
New High "BBB"-Northview
New High "CCC"
Other Schools
Beggs Educational Center
Judy Andrews
Goulding Pre-K
Petree School
McReynolds PATS
George Stone Vo-Tech
Escambia West-Gate
Sidney Nelson
Environmental Center
Power Plants and Pipelines
Gulf Power Company
United Gas Pipeline, Five Flags Pipline
Florida Gas Transmission Company
Escambia River Electrical Cooperative
Greenway Corridors
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-13
DEP Ecosystem Management Area
Holmes County
Sanitary Sewer Facilities
Bonifay Wastewater Treatment Plant
Noma Package Treatment Plant
Ponce De Leon Elementary and High School Treatment Plant
Solid Waste Facilities
Springhill Regional Landfill (Jackson County)
Potable Water Facilities
The Towns of Noma, Westville, Ponce De Leon, Esto and the City of Bonifay
all have their own potable water system. Dogwood Lakes Estates,
Bethlehem High School, Cerro Gordo Estates, Ponce De Leon High and
Elementary Schools, and Prosperity Elementary School also have their own
water systems.
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
Holmes County Hospital
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
Universities, Colleges and Vocational Schools
None
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-14
Public Schools
Bethelehem School
Bonifay Elementary School
Holmes County High School
Bonifay Middle School
Poplar Springs School
Ponce De Leon Elementary School
Ponce De Leon High School
Power Plants and Pipelines
Gulf Power Company
Choctawhatchee Electrical Cooperative
West Florida Electrical Cooperative
United Gas Pipeline
Five Flags Pipeline
Florida Gas Transmission Company
Greenway Corridors
None
DEP Ecosystem Management Area
None
Okaloosa County
Sewer and Wastewater Facilities
City of Fort Walton Beach Wastewater Treatment Plant
Okaloosa County Wastewater Treament System:
Garnier Wastewater Treatment Plan
East Okaloosa County (Blue Water Bay)
West Okaloosa County
Moreno Point
Niceville-County Pump Station
Rocky Bayou Pump Station
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-15
Meige-Seminole Pump Station
Norberg Pump Station
Highland Park Pump Station
Solid Waste Facilities
Okaloosa County Transfer Facility
Baker Landfill
Spring Hill Landfill (Jackson County)
Laurel Hill Landfill (closed 1988)
Okaloosa County Wells (County water system)
Garnier's Service Area
Blue Water Service Area
Mid-County Service Area
Water Storage
Garnier Service Area:
Playground
Casa Tank
Longwood Tank
Annex Tank
Northgate Tank
Island-East Tank
Island-West Tank
Mid-County Service Area:
Antioch Road Tank
Industrail Park
Blue Water Service Area:
Highway 20 Tank
Potable Water in Unincorporated County
Auburn Water System, Inc.
Baker Water System, Inc.
Bluewater Bay-Raintree Development Company
Destin Water Users, Inc.
Holt Water Works
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-16
Milligan Water System, Inc.
Okaloosa Correctional Institute
Seashore Village Water System
Del Cerro Vista Subdivision
Seminole Community Center, Inc.
Sundial Mobile Home Park
Pippin Mobile Home Park
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
HCA North Okaloosa Medical Center
Fort Walton Beach Extended Care Hospital
Humana Hospital of Fort Walton Beach
Twin Cities Hospital
Gulf Coast Hospital
United States Air Force Hospital
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
Universities, Colleges and Vocational Schools
Okaloosa-Walton Junior College
Troy State University (Eglin Air Force Base Campus)
Public Schools
Annette P. Edwins Elementary
Bob Sikes Elementary
Cherokee Elementary
Destin Elementary
Elliot Point Elementary
Florosa Elementary
J.E. Plew Elementary
Kenwood Elementary
Longwood Elementary
Edge Elementary
Mary Esther Elementary
Combs-New Heights Elementary
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-17
Northwood Elementary
Oak Hill Elementary
Ocean City Elementary
Shalimar Elementary
Southside Elementary
Valparaison Elementary
Wright Elementary
Addie R. Lewis Middle
C.W. Ruckle Middle
Clifford Meigs Middle
Richbourg Middle
Max Bruner Middle
W.C. Pryor Middle
Baker High
Choctawhatchee High
Crestview Senior High
Ft. Walton Beach High
Laurel Hill (K-12)
Niceville High
Applied Technical Center
Crestview Vo-Tech
Crestview Middle (New)
Crestview Elementary (New)
Destin Middle (New)
Power Plants and Pipelines
Gulf Power Company
Choctawhatchee Electrical Cooperative
Alabama Power Corporation
Okaloosa County Gas District
United Gas Pipelines
Five Flags Pipeline
Florida Gas Transmission Company
Greenway Corridors
DEP Ecosystem Management Area
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-18
Santa Rosa County
Sanitary Sewer Facilities
Santa Rosa County Utilities
Holley-Navarre System
Navarre Beach Wastewater Treatment Facility
Solid Waste Facilities
Central Landfill
Holley Landfill (closed)
Class III Landfill
Northwest Landfill (closed)
North Landfill (closed)
North Highway 4 (Berrydale)
Domestic Wastewater Facilities
Bayou Grande Villas Sewage Treatment Plant
Bluff Springs Campground Sewage Treatment Plant
Century Sewage Treatment Plant
Crestview Sewage Treatment Plant
DOT, I-10 Rest Area (East) Sewage Treatment Plant
DOT, I-10 Rest Area (West) Sewage Treatment Plant
East Milton Elementary School Sewage Treatment Plant
Gulf Breeze Sewage Treatment Plant
Jay Sewage Treatment Plant
Milton Sewage Treatment Plant
Navarre Beach Sewage Treatment Plant
Pensacola-Main Street Sewage Treatment Plant
Pensacola Beach Sewage Treatment Plant
University of West Florida Sewage Treatment Plant
Warrington Sewage Treatment Plant
Whiting Field, N.A.S. Sewage Treatment Plant
Air Products and Chemicals, Inc.
American Cyanamid
Crist Electric Generating Plant
Monsanto Company
U.S. Navy Public Works Center (Pensacola, N.A.S.)
Puritan Bennett
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-19
Potable Water Facilities
Bagdad-Garcon Water System
Berrydale Water System
Chumuckla Water System
Milton, City of Water System
Colonial Pines Mobile Home Estates
East Milton Water Systems
Gulf Breeze Water Department
Holley-Navarre Water System
Jay, City of Utilities Department
Midway Water Systems, Inc.
Moore, Creek-Mt. Carmel Utilities
NAS Whiting Field (USN)
Navarre Beach Water Department
Point Baker Water Systems, Inc.
Santa Rosa Utilities
Pace Water Systems, Inc.
American Cyanamid Company
Bear Lake Recreation Area
Blackwater Forest Headquarters
Blackwater River State Forest
Camp Paquette Recreation Area
Environmental Center
Coldwater Recreation Area
Krul Recreation Area
I-10 Rest Area East Bound
Chumuckla Springs Fishing Lodge
I-10 Rest Area West Bound
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
Jay Hospital
HCA Santa Rosa Medical Center
West Florida Community Care Center
Gulf Breeze Hospital
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-20
Universities, Colleges and Vocational Schools
Radford Locklin Vocational-Technical Center
Pensacola Junior College - Milton Campus
Public Schools
Bagdad Elementary
Berryhill Elementary
Central High
Chumuckla Elementary
Dixon Primary
Dixon Intermediate
East Milton Elementary
Exceptional Student Education
Gulf Breeze Elementary
Gulf Breeze Middle
Gulf Breeze High
Hobbs Middle
Holley-Navarre Intermediate
Jackson Elementary
Jay Elementary
King Middle
Locklin Vo-Tech Center
Milton High
Munson Elementary
Oriole Beach Elementary
Pace Middle
Pace High
Pea Ridge Elementary
Rhodes Elementary
Santa Rosa Adult
Power Plants and Pipelines
Gulf Power Company, Choctawhatchee Electrical Cooperative,
Escambia River Electrical Cooperative, United Gas Pipeline,
Five Flags Pipeline, Florida Gas Transmission Company
Greenway Corridors
DEP Ecosystem Management Area
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-21
Walton County
Sanitary Sewer Facilities
Regional Utility Systems
DeFuniak Springs Municipal Sanitary Sewer System
Camp Springs
Eglin AFB
Emerald Hills
Freeport Elementary
City of Freeport
Maude Sanders Elementary School
Palms of Dune Allen
Sandcliffs
Sandestin
South Walton Utility
Walton Correction
Walton High School
Point Washington
Solid Waste Facilities
Argyle Dump
Blue Mountain Dump
DeFuniak Springs Dump
Freeport Dump
Mossy Head Dump
New Harmony Dump
North C-2 SLF
Paxton Dump
Red Bay Dump
Walton Bridge Dump
Walton County Central SLF
West Red Bay Dump
Walton County Central SLF
Environmental Waste
Potable Water Facilities
Regional Utility Systems
Private Facilities
Bailey's Restaurant
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-22
Bay Elementary
Beachwood Villas
Beulah Mobile Home Park
Black Creek Lodge
Bob's Restaurant
Bruce's Cafe and Motel
Cano Estates Square
Cano Estates Square II
Chapman's Seaside Restaurant
Donut Hole #2
Eden State Gardens
Eglin AFB
Grayton Beach SRA
Gulf Trace
Holiday Travel Park
Juniper Lake Coorporation
Juniper Lake Pines
King's Lake
Kolomoki
Lake Sharon Estates
Mitchell Industries
Nena's Steak House
Nick's Seafood Restaurant
Quail Run Subdivision
Sandcliffs Condos
Santa Rosa Golf Club
Showell Farms, Inc.
Spanish Trail Reservation
Sun & Sand Motel
Ten Lakes Estates
**All have potable water facilities on premises**
Community Facilities
Argyle Water System
Choctaw Beach Water System
City of DeFuniak Springs
City of Freeport
City of Paxton
Villa Tasso Water System
South Walton County System
Inlet Beach Water System
Facilities Operated by Florida Community Services, Inc.
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-23
Camp Creek Water System
Seagrove Beach
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
Valley Springs Community Hospital
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
Universities, Colleges and Vocational Schools
None
Public Schools
Bay Elementary
Freeport Elementary
Freeport High School
Maude Saunders Elementary
Paxton Comprehensive School
West DeFuniak Elementary
Walton Middle School
Walton Senior High School
Walton County Vo-Tech
Power Plants and Pipelines
Gulf Power Company, Choctawhatchee Electrical Cooperative,
Gulf Coast Electrical Cooperative, United Gas Pipelines,
Five Flags Pipeline, Florida Gas Transmission Company
Greenway Corridors
South Walton County Greenway System
DEP Ecosystem Management Area
South Walton County Ecosystem Management Area
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-24
Washington County
Sanitary Sewer Facilities
City of Chipley Wastewater Treatment Plant
City of Vernon Wastewater Treatment Plant
Sunny Hills Stormwater Treatment Plant
Caryville Vocational Center Package Treament Plant
Washington County Kennel Club Package Treatment Plant
Solid Waste Facilities
Springhill Regional Landfill (Jackson County)
Potable Water Facilities
Town of Caryville Water System
City of Chipley Water System
City of Vernon Water System
Town of Wausau Water System
Sunny Hills Utilities
Falling Waters State Recreation Area
Holmes River Campsites
Washington County Kennel
Paradise Lake Resorts
Emergency Shelters
See Listing in Emergency Preparedness Section, Page III-8.
Public and Private Hospitals
Northwest Florida Community Hospital
Historical and Archaeological Sites
All sites on the Florida Master Site File, maintained by the Florida
Department of State. These sites are listed in the West Florida Regional
Preservation Plan.
Universities, Colleges and Vocational Schools
Washington-Holmes Vocational-Technical Center
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-25
Public Schools
Kate Vernon Elementary
Vernon Elementary
Roulhac Middle
Chipley High
Vernon High
Washington-Holmes Area Vo-Tech
Power Plants and Pipelines
Gulf Power Company
Gulf Coast Electrical Cooperative
West Florida Electrical Cooperative
United Gas Pipelines
Five Flags Pipeline
Florida Gas Transmission Company
Greenway Corridors
DEP Ecosystem Management Area
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-26
Facilities of Regional Significance: Transportation
MAP 4
Ports:
Port of Panama City (Bay), Port of Pensacola (Escambia)
(See map for shallow water terminals.)
Rail Lines: Burlington Northern, Bay Line, CSX, AmTrak
Roadways: US 98, US 90, I-10, US 79, US 231, US 77, SR 85, US 331, SR
20, US 29, SR 87, SR 285, SR 22
Airports and Airways Systems: Pensacola Regional Airport (Escambia),
Okaloosa County Air Terminal, Bob Sikes
Airport (Okaloosa), Destin Airport
(Okaloosa), Panama City-Bay County
International Airport (Bay), Peter Prince
Field (Santa Rosa).
Buses:
Greyhound (and the former Trailways) has terminals in
Pensacola (Escambia), Milton (Santa Rosa), Fort Walton
Beach (Okaloosa), DeFuniak Springs (Walton), Crestview
(Okaloosa), Chipley (Holmes), Panama City (Bay). The buses
travel along US 90, US 98, and I-10.
Transit Bus Systems
Bay Town Trolley, Escambia County Area
Transit (ECUA)
Amtrak Stations
City of Pensacola, Crestview, Chipley
Navigable Waterways
Evacuation Routes
SRPP ! Regional Significant Natural Resources ! Adopted 7/15/96
Part 7-27
8. Executive Office
of the Governor
State Report of
Findings and
Recommendations
! April 1996
! August 1997