§ 4.3. Stormwater

The purpose of this section is to describe the existing stormwater systems and drainage problems and to set forth the basic policies to ensure that the County will be able to meet the existing and anticipated stormwater management needs. The analysis of the existing conditions and future needs serves as a basis for formulating suitable recommendations concerning the Stormwater Management needs in addition to formulating the Goals, Objectives, and Policies (GOP's).

4.3.1 Existing Systems and Watersheds

4.3.1.1. The Pensacola Bay System

The Pensacola Bay system (also, PBS or "system") includes five interconnected estuarine embayments, including Escambia Bay, Pensacola Bay, Blackwater Bay, East Bay, and Santa Rosa Sound, and three major river systems: the Escambia, Blackwater, and Yellow rivers. The system also includes smaller tributaries of these embayments and rivers, as well as its entire watershed. The watershed covers nearly 7,000 square miles, about one-third of which is in Florida. This includes the majority of Escambia, Santa Rosa and Okaloosa counties, the northwest quadrant of Walton County, and a substantial portion of southern Alabama. The entire system discharges into the Gulf of Mexico, primarily through a narrow pass at the mouth of Pensacola Bay.

4.3.1.2. The Blackwater River Watershed

The Blackwater River watershed is one of the last remaining shifting white sand bottom river systems in its natural state in the world. With sections of the river designated as an Outstanding Florida Water (O.F.W.) and as a Florida Canoe Trail, the Blackwater River watershed provides an opportunity to protect a valuable natural resource for the benefit of society and ecology alike. The Blackwater River watershed is located in the southeastern United States, with its geographic boundaries crossing two states and four counties. The watershed encompasses parts of Alabama's south central region and Florida's northwestern panhandle and is encompassed by the larger Pensacola Bay watershed. The headwaters of the watershed are located in Alabama's Escambia and Covington counties, however the majority of its approximate 719 square mile area occupies Florida's Santa Rosa and Okaloosa counties (F.G.D.L. 2009).

4.3.2 Stormwater Management in General

Climate, soils, geology, topography, vegetative cover and land use all have an effect on stormwater runoff and drainage. Land use impacts the natural hydrology in four interrelated, but separable ways as stated further below:

1.

Changes in peak flow,

2.

Changes in total runoff,

3.

Changes in water quality, and

4.

Changes in hydrologic amenities or the appearance of a river, stream or bay.

Land use urbanization has the most significant impact affecting the hydrology of an area. The majority of pollution problems arise from the associated land uses such as residential, commercial, industrial and agricultural.

In undeveloped areas, stormwater runoff is managed by nature through the hydrologic cycle. As rainfall accommodates on the ground or in standing water bodies, the water either returns to the atmosphere through evaporation or it can percolate into the ground to be assimilated by trees and vegetation, eventually to be returned to the atmosphere by transpiration. Percolation water that is not used by vegetation is percolated deep into soils increasing groundwater supply. In the presence of saturated ground conditions the remainder of rainfall collects into rivulets, increasing the speed and quantity as it flows to the receiving body of water. Then the cycle begins again through evaporation.

Nature's inability to accommodate severe rainfalls without damage is apparent even in undeveloped areas. Nature's stormwater management designs are constantly changing. Streams change course and meander, banks erode, and lakes lose volume as they are filled with sediment.

Historically, urbanization has resulted in new or highly modified drainage systems which dealt with only the quantitative effects of runoff. Today, stormwater management is more comprehensive. An effective program involves the development of methods to control water while providing surface drainage, flood control, a reduction in erosion and sedimentation and a reduction in pollutants. Stormwater management applies to both rural and urban areas.

To accomplish an effective stormwater management system, it is necessary to ensure that volume, rate, timing and pollutant load runoff is similar to what occurred before development. The approach used in this comprehensive plan is to minimize the adverse impacts through a coordinated system of source controls. Source controls emphasize the prevention and reduction of non-point source pollution and excess stormwater flow before it reaches a collection system or receiving water.

4.3.3 Stormwater Management Problems in Santa Rosa County

Stormwater management practices within Santa Rosa County must deal with two problems. The first problem is drainage and flooding. The second problem is the water quality of the stormwater runoff. Recent studies conducted nationwide have indicated that environmental impacts are caused by pollutants carried in stormwater. These pollutants include bacteria, fertilizers, heavy metals, and pesticides as indicated in previous sections of this sub-element. Stormwater management must provide provisions to settle or filter out these pollutants in order to preserve the quality of the groundwater and surface water into which the stormwater is to be discharged. Chapter 62-25, F.A.C., provides the guidelines that are relevant to stormwater management facilities and the practices that are to be employed to help ensure adequate treatment and protection to protect the citizens within the County.

4.3.3.1 Flooding Problems

The major sources of flooding within Santa Rosa County are storm surge generated by a tropical storm or hurricane and riverine flooding. Storm surge can be expected along the Gulf of Mexico, Santa Rosa Sound, Escambia Bay, East Bay and Blackwater Bay. The wave action associated with the storm surge can be more damaging than the actual high water. The second major source of flooding is riverine flooding where heavy rainfall occurs on many water courses including the Escambia River, Blackwater River, Yellow River, East River, Pond Creek, Big Juniper Creek, Sweetwater Creek, Big Coldwater Creek and East Fork. Not all storms passing close to the County produce high storm surge or flooding conditions. Similarly, storms that produce flooding in one area of the County may not necessarily flood another part of the County. Presently, the County's drainage problems fall into six categories:

1.

Traffic hazards from standing water;

2.

Damaging sheet flow on and off of rural roads;

3.

Potential flooding associated with hurricanes and other above average storms damaging structures;

4.

Long term water quality problems due to runoff;

5.

Failure of on-site sewage disposal systems and damage to other infrastructure caused by flooding.

The current Santa Rosa County Land Development Code contains provisions related to currently identified Stormwater Problem Areas ( Map 4-4 ). These areas include the Special Flood Hazard Areas of the County as well as additional areas that have been identified by the County as areas experiencing frequent flooding. Special considerations are required when developing within one of these designated areas. In addition, the County has developed a Local Mitigation Strategy (LMS) that is incorporated herein by reference.

Additional information on this document is found within the Coastal Management Element Supporting Documentation.

Map 4-4 Stormwater Problem Areas of Santa Rosa County

4.3.3.2 Water Quality

Different types of land use affect the water quality in an area. For example, in an undeveloped area, many biological, physical and chemical processes interact to recycle most of the materials that are found in stormwater runoff. As land use in these areas intensifies, this process is disrupted. Increased activities add materials to the land surface such as fertilizers, pesticides, oils, grease, heavy metals and animal wastes, which are then washed off by the rainfall and runoff. In turn, this runoff then increases the pollutant loading which is carried to a nearby surface water body.

Water Body Classifications and Water Quality Monitoring

Surface water bodies are classified by the Florida Department of Environmental Protection (DEP) based upon the intended uses of these bodies. All waters of the state fall into one of five surface water classifications (62-302.400 F.A.C.) with specific criteria applicable to each class of water. In addition to its surface water classification, a water may be designated as an Outstanding Florida Water, (62-302.700 F.A.C.). An Outstanding Florida Water, (OFW), is a water designated worthy of special protection because of its natural attributes. This special designation is applied to certain waters, and is intended to protect existing good water quality. Most OFWs are areas managed by the state or federal government as parks, including wildlife refuges, preserves, marine sanctuaries, estuarine research reserves, certain waters within state or national forests, scenic and wild rivers, or aquatic preserves. Generally, the waters within these managed areas are OFWs because the managing agency has requested this special protection. In Santa Rosa County portions of the Blackwater River are designated as an OWF.

The DEP undertakes water quality assessments of water bodies in response to Section 305 (b) of the Federal Clean Water Act. There are nine DEP water quality monitoring sites within Santa Rosa County monitored on a weekly basis along with some nearby Santa Rosa Island water quality stations monitored by the Escambia County Health Department under the auspices of the Florida Healthy Beaches Program that was established in August 2000.

Total Maximum Daily Loads (TMDLs) in Santa Rosa County

The Pensacola Bay Watershed and the Blackwater Watershed have both been designated as Priority Watersheds by the U.S. Environmental Protection Agency (EPA). Priority watersheds are those where the US EPA Region 4 and State of Florida agency partners have agreed to focus mutual resources to protect and restore waters.

A TMDL is a scientific determination of the maximum amount of a given pollutant that a surface water can absorb and still meet the water quality standards that protect human health and aquatic life. Water bodies that do not meet water quality standards are identified as "impaired" for the particular pollutants of concern—nutrients, bacteria, mercury, etc.—and TMDLs must be developed, adopted and implemented for those pollutants to reduce pollutants and clean up the water body. The threshold limits on pollutants in surface waters—Florida's surface water quality standards on which TMDLs are based—are set forth primarily in rule 62-302, Florida Administrative Code, and the associated table of water quality criteria.

The basic steps in the TMDL program are as follows:

1.

Assess the quality of surface waters—are they meeting water quality standards? (Surface Water Quality Standards—Chapter 62-302, F.A.C.)

2.

Determine which waters are impaired—that is, which ones are not meeting water quality standards for a particular pollutant or pollutants. (Impaired Waters Rule (IWR)—Chapter 62-303, F.A.C.)

3.

Establish and adopt, by rule, a TMDL for each impaired water for the pollutants of concern—the ones causing the water quality problems. (TMDLs—Chapter 62-304, F.A.C.)

4.

Develop, with extensive local stakeholder input, Basin Management Action Plans (BMAPs) that:

5.

Implement the strategies and actions in the BMAP.

6.

Measure the effectiveness of the BMAP, both continuously at the local level and through a formal re-evaluation every five years.

7.

Adapt—change the plan and change the actions if things aren't working.

8.

Reassess the quality of surface waters continuously.

The following describes the status of the TMDL process in Santa Rosa County. To date, four final TMDLs have been adopted that affect the County: Blackwater River, East Bay River, Pace Mill Creek and Escambia River. These final TMDL documents are incorporated herein by reference. In addition, TMDLs are pending for all of the verified impaired water bodies shown on the following map ( Map 4-5 ). No Basin Management Action Plans have currently been completed for Santa Rosa County.

Blackwater River (FDEP Final TMDL)

A Total Maximum Daily Load (TMDL) for fecal coliform bacteria for the Blackwater River (tidal) has been established. This waterbody was verified as impaired for fecal coliform, and therefore was included on the Verified List of impaired waters for the Pensacola Bay Basin that was adopted by FDEP Secretarial Order in November 2010. The TMDL establishes the allowable fecal coliform loading to the Blackwater River (tidal) that would restore the waterbody so that it meets its applicable water quality criterion for fecal coliform. The Blackwater River (tidal) is a Class III waterbody, with a designated use of recreation, propagation, and maintenance of a healthy, well-balanced population of fish and wildlife. The criterion applicable to this TMDL is the Class III criterion for fecal coliform. Potential sources listed in the Final TMDL report include agricultural land use run-off, septic tanks, and stormwater run-off from urban land uses.

East Bay River (FDEP Final TMDL)

A Total Maximum Daily Load (TMDL) for fecal coliform bacteria for the East Bay River (marine portion) has been established (2012). This waterbody was verified as impaired for fecal coliform, and therefore was included on the Verified List of impaired waters for the Pensacola Bay Basin that was adopted by FDEP Secretarial Order in November 2010. The TMDL establishes the allowable fecal coliform loading to the East Bay River (marine portion) that would restore the waterbody so that it meets its applicable water quality criterion for fecal coliform. The East Bay River (marine portion) is a Class II waterbody, with a designated use of shellfish propagation or harvesting; this designation includes all Class III uses of recreation, propagation, and the maintenance of a healthy, well-balanced population of fish and wildlife. The criterion applicable to this TMDL is the Class II criterion for fecal coliform. Potential sources listed in the Final TMDL report include septic tanks, pet feces, and sanitary sewer leakage in descending order of contributory magnitude.

Escambia River (FDEP Final TMDL)

Total Maximum Daily Loads (TMDLs) for fecal coliform bacteria for the Escambia River, Texar Bayou, and Carpenter Creek have been developed. These waterbodies were verified as impaired for fecal coliform, and therefore were included on the Verified List of impaired waters for the Pensacola Bay Basin that was adopted by FDEP Secretarial Order in May 2006. The TMDLs establish the allowable fecal coliform loading to these water segments that would restore the waterbodies so that they meet their applicable water quality criterion for fecal coliform.

Pace Mill Creek (Finalized by EPA)

Pace Mill Creek is located east of the Escambia River, in the Pace area. Pace Mill Creek discharges to Escambia Bay through Bass Hole Cove, and eventually drains into Pensacola Bay. The drainage area for the creek is approximately 6.2 square miles (FEMA 2006). The Escambia River is less than three miles to the west. Wetlands are confined mainly to the riparian corridor and at the mouth of the creek, with limited agriculture. There has been rapid urbanization of the region in the past several decades. TMDLs for total nitrogen, total phosphorus, and biochemical oxygen demand have been established.

4.3.4 Stormwater Funding Sources

County-wide stormwater management, although imperative, is quite costly. Capital improvements, operating and maintenance, renewal and replacement of existing structures, water quality monitoring and administrative services are only a few examples of the many stormwater management issues that face Santa Rosa County every year.

In this section the funding sources that are available to financially support these activities will be discussed. Available funding sources include federal grants, state grants, state and local tax assessments, as well as additional federal bond and grant programs, that can be used as stand-alone monetary sources or can be used together to help provide the monetary support needed for some of the larger projects. Several of these options are presented below. Currently stormwater infrastructure in Santa Rosa County is funded primarily by developers with maintenance paid for using general funds. Some maintenance is funded by individual homeowner's associations in the County as well.

4.3.4.1 General Funds

Stormwater management funds in Santa Rosa County have traditionally provided from the General Fund. This source can best be considered as a bank retaining revenues which will fund county stormwater programs in the future. The source of funds for this alternative includes ad-valorem income, as well as other taxes. Other income which can be placed into the General Fund includes revenue sharing income and county-wide ad-valorem taxes (for activities completed for the citizens of the county). This revenue source can provide funding for administration, renewal/replacement, construction, maintenance, and water quality monitoring.

The principal advantage associated with utilizing the General Fund is that the accounting process is understood. The major disadvantage with using the General Fund is that many governmental services, except the utilities, are funded by the general fund. For this reason, competition for the funds is intense and historically, stormwater management programs have had a low priority. From a point of equitability, ad-valorem taxes are based on property values which are not always related to the property's impact on stormwater. For these reasons, many governmental entities are looking for another source of funding for stormwater.

4.3.4.2. Gas Taxes

These funds may be implemented for capital projects related to roads and can be used to fund road repair or construction. Santa Rosa County is responsible for a number of county-maintained roadways. As some stormwater management improvements can be integrated into road improvements or maintenance projects, the stormwater facilities can be indirectly funded or subsidized by the expenditure of gas tax funds. These funds, however, are generally intended to be limited to the capital improvement appropriations, project administration, design and construction. These funds should not be used to fund annual operation and maintenance activities (i.e., water quality monitoring programs).

4.3.4.3. MSBUs for Stormwater Maintenance

Individual Municipal Service Benefit Units (MSBUs) can be created for the purpose of providing maintenance of stormwater management facilities owned or operated by the County. This can be established for subdivisions or for areas contributing to regionalized facilities (Santa Rosa County currently does not have any regionalized facilities). In the case of regionalized facilities, the individual boundaries for each of the MSBUs are based upon the integrated drainage facility and may not always coincide with subdivision lines. Those properties served by the integrated stormwater management facility are considered part of the MSBU. Residential parcels within each MSBU are assessed the same rate for the services provided by the County. In MSBUs that contain non-residential parcels, an equivalent assessment is calculated based on the median size of the residential parcels within the same MSBU. The non-residential parcels are measured individually and then divided by the residential equivalent unit to determine the number of billing units for each non-residential parcel.

The Maintenance Assessment standardizes the services provided, the level of service received and the collection method for all stormwater facilities. Services covered under this type of assessment could include:

: Mowing (26 or 52 times per year);

: Aquatic weed control (12 times per year);

: Minor maintenance (as needed);

: Structure inspections;

: Contract management and routine inspections.

In some Counties, the MSBU implementing ordinance allows for a separate assessment for capital facility repairs on an as-needed basis by establishing a provision to borrow funds from the County's General Fund. When a capital facility repair is identified, the General Fund will initially fund the repair and the individual MSBU will repay the General Fund for the cost of the repair with interest over an established period of time.

4.3.4.4. Stormwater Utility—Special Assessment

Utilizing revenues from a user charge system to fund stormwater management programs has been successful in Florida. The concept was developed in the western U.S. and has been used for a number of years. The first city in Florida to implement such a program was Tallahassee in October, 1986. Since this time, a number of other cities and counties have adopted ordinances to implement a stormwater utility.

A stormwater utility includes a fee structure whereby the customer pays a fee consistent with the contribution to the need for the stormwater service. The utility could be established County wide or for a sub area of the County. Currently the City of Milton has a stormwater utility. Most stormwater utilities in Florida use impervious area to measure each customers contribution: the greater the impervious area, the greater the fee. The merits of the stormwater utility are that there is a direct connection between the fee and the need for service, and the fee provides a long-term, dedicated funding source.

The stormwater utility can be used to fund administration, operation and maintenance, renewal/replacement, capital improvements, and water quality monitoring. The income can also be used to pay the debt service for a stormwater capital improvement program, thereby leveraging the utility's annual revenue into a major program. Advantages of the program include:

: A stable funding source for all stormwater activities.

: Dedicated funding for the County's stormwater management program, (i.e., operation/maintenance, planning/design;

: The potential to associate the stormwater utility fee with the other utilities administered by the county; and

: A fee schedule based on contribution rather than property valuation (i.e., user fee);

After reviewing the benefits and deficiencies associated with each financial alternative, General Fund and a Stormwater Utility are the only two funding sources capable of addressing a comprehensive stormwater management program on a county-wide basis. The major distinction between the two alternatives is the method of allocating the costs for stormwater management. The General Fund is made up of revenues generated from ad-valorem taxes—income based on property value which does not correlate with the runoff contribution of the property nor to the benefits received from the stormwater management system.

Competition for General Fund revenues from other governmental programs often results in less than adequate funding for the stormwater management program. Funds generated through the implementation of a stormwater utility are dedicated entirely to the stormwater management program similar to other enterprise funds. The costs are allocated to customers of the utility based on the quantity and quality of the stormwater, which is likely to be generated by each property using the correlation between the amount of impervious area and the stormwater runoff quality/quantity. Considering the high level of competition for limited General Fund revenues, and the ability to dedicate revenues from a stormwater utility, the County should consider the implementation of a stormwater utility as a dedicated source of revenues to fund the stormwater management program and capital improvements.