§ 6.3. Environmental Characteristics

6.3.1 Topography

Santa Rosa County lies within the Coastal Plain, a broad belt consisting primarily of unconsolidated sands, silts and clay. The County is divided into two physiographic divisions, the Western Highlands and the Gulf Coastal Lowlands. Most of the County is located in the Western Highlands, which is a southwardly sloping plateau whose surface has been cut by numerous streams. The three principal streams that drain this area are the Escambia, Blackwater and Yellow Rivers. The many smaller streams that feed these rivers have a trellis drainage pattern and commonly head in small steep sided box canyons known as steepheads.

Steepheads form where undermining by springs create steep slopes at the head of smaller streams. Several faults in the northern part of the County, where elevation ranges from 100 to 290 feet above sea level, form steep hills.

The Gulf Coastal Lowlands is the low-lying area of southern Santa Rosa County. The Lowlands are a series of parallel terraces consisting of relatively un-dissected, nearly level plains rising from the coast in successively higher levels. They formed during the Pleistocene Epoch (Great Ice Age) when fluctuating sea levels were associated with the growth and melting of ice caps. Dunes, barrier islands, beach ridges, and other topographical features were stranded inland as seas receded. The highest terrace has an elevation of about 100 feet. At least 50 miles of shoreline scarps carved by the Penholoway Sea are preserved along the valleys of the Escambia, Blackwater, Yellow and East Bay Rivers. The largest unbroken terrace area in westernmost Florida is the peninsula that extends southward between the mouths of the Escambia and Yellow Rivers, separating Escambia Bay from East Bay. This area covers approximately 27 square miles and elevations range from sea level to 30 feet above sea level.

The southern boundary of the Gulf Coastal Lowlands is formed by Santa Rosa Island, which is approximately 50 miles long and varying between approximately 1,000—1,500 feet wide (Otvos, 1982; cited in Morang, 1992). The island is made up of Holocene quartz sands, between 15 and 30 feet thick, overlying a Pleistocene core.

6.3.2 Geology

Santa Rosa County is underlain by a veneer of Pleistocene terrace deposits overlying Tertiary beds of sand, silt, and limestone which dip southwestward at 30 to 40 feet per mile (Marsh, 1966). Stratigraphically, these sediments are referred to as undifferentiated alluvium and terrace deposits underlain by the Citronelle Formation. The uppermost part of this sequence forms the Sand-and-Gravel Aquifer. Major tributaries of the system are incised into the Sand-and-Gravel Aquifer. Groundwater flow from this aquifer discharges to these tributaries and to the bays. Marsh (1966) also suggests that three marine surfaces of Pleistocene age can be recognized in the area; the Pamlico terrace at 30 feet, the Penholoway terrace at 70 feet, and a seaward sloping upland surface whose altitude ranges from about 60 to 200 feet. Remnants of these terraces are preserved as upland plateaus, flat-topped hills, and low coastal plains.

Santa Rosa Island is considered a classic example of bay barrier bar with a straight seaward margin. The island is about half a mile wide and has sand dunes as high as 50 feet above sea level. Two backshore terraces can be observed, one slightly above the other. Martens (1931) considered them to have been generated by storms.

The sand and mud sediments of the Pensacola Bay system were deposited as a result of erosion throughout the watershed that has taken place since the Pleistocene Epoch. During the Pleistocene, the Citronelle deposits were reworked and intermixed with marine terrace deposits (Marsh, 1966). These marine deposits, as well as Miocene and Pleistocene terrace deposits, are now eroding and, therefore, control the mineralogy of the bay sediments. Because each of the streams passes largely through Neogene Coastal Plain formations, the bay's sediments consist almost entirely of sand, silt, and clay eroded from these older units (George, 1988). The annual sediment load estimated by the National Ocean Service (1987) is 1.08 million tons/year, and its sediment inflow is 154.5 tons/year/square mile of drainage area.

The mineral suite for the Pensacola Bay system is made up of largely reworked, stable, heavy minerals dominated by zircon, tourmaline, staurolite, and kyanite. Unstable heavy minerals, such as hornblende, garnet, pyroxene, and epidote are essentially lacking. Clay mineral analyses indicate that the Escambia River carries mainly kaolinite, with lesser amounts of montmorillonite, vermiculite, illite, and gibbsite (Isphording et al., 1989). The deposition of sediments in the Pensacola Bay system has significantly changed over recent time. This change is partially described from borings made by the Florida Department of Transportation during construction of local bridges (Horvath, 1968). Borings were taken at the Santa Rosa Bridge near Navarre (17 borings to 65 feet), Pensacola Bay Bridge (6 borings from 100 to 108 feet), Escambia Bay Bridge (27 borings from 100 to 130 feet), and Blackwater Bay Bridge (12 borings to 65 feet). Borings generally indicate a vegetative, "muck" layer as deep as 60 feet with cleaner fine to coarse sands below. These deposits are vegetative evidence of plant growth at a lower stand of sea level (approximately 6,000 years ago). All contain intermittent layers of silt and clay. The changes in the sedimentary regime of the system are primarily due to the geologically recent rise in the sea level. The presence of silty clays, similar to the central bay floor sediment today (in bore holes from Santa Rosa Sound), suggests that the present sediments were deposited on bay lagoon deposits behind late Pleistocene barrier islands further off shore. The transition from probable bay sediments below, to barrier island lagoon sediments above (muck), occurs at about 55 feet below sea level.

6.3.3 General Soils and Soil Resources

The term, soil, is typically applied to weathered surface layer of sediment materials. The General Soils Map of Santa Rosa County shows 48 soil types arranged in 36 soil series. Soils are depicted on Map 6-1 by relative drainage ability. Map 4-1 found within the supporting documentation for the Infrastructure Element provides general soil suitability for septic tanks or on-site sewage disposal systems. This map coincides with Map 6-1 , with well drained soils being more appropriate, and is an important parameter for gaging development related environmental impacts.

6.3.3.1 Soil Erosion Problem Areas

Water related soil erosion is not a major problem in Santa Rosa County due to the predominance of fine silica sand and loamy soils and gently to moderately sloping topography. The Troup soil series has a slope of 0-35 percent, the steepest slope in the County; the Lakeland soil series has a 0-30 percent slope; and the Dothan soil series has a 0-12 percent slope. All the other soil series in the County have slopes that range from 0-8 percent. The location of these soil series is depicted on the Future Land Use Map Series entitled Soils Map.

Soil erosion from rapid run-off can occur on sloping locations where natural vegetation cover has been removed during a land development action. Improper grading of a land development can also result in soil erosion following unusually heavy rainfalls. Water related soil erosion results in the transportation of sediment fines into stream courses and receiving water bodies. When receiving water bodies are upland depressions, the eventual effect is a filling and gradual build-up of the bottom of the depressional area. The potential significance of this type of occurrence must be evaluated on a case-by-case basis.

When water related soil erosion occurs, excessive amounts of sediments can be transported to receiving water bodies. While the transport of sediments to receiving waters is a primary source of nutrients necessary to sustain water area biological productivity, excessive amounts of sediments have detrimental effects upon the receiving water body.

6.3.3.2 Soil Resource Protection

The County manages potential development-related soil erosion problems through the Land Development Code, which regulates stormwater from development. These potential problems are manageable.

Temporary soil containment measures are now required in areas susceptible to water related erosion during project construction. Permanent drainage facilities designed to reduce the rate and volume of run-off provide for sediment containment and can control potential soil erosion from developments.

The County's standard to retain the first 1-inch of stormwater on site is twice the amount required by the Water Management District. In addition, the County requires grassing and mulching to protect the receiving body of water against erosion, siltation, and rivulets caused by surface run-off. Soil erosion techniques are also incorporated by the Water Management District in their review of developments under their management and storage of surface water and stormwater rules.

The small sand mining and oil and natural gas operations are subject to County land development regulations and permitting requirements. County policy provides for these regulations in its policy to allow extraction of minerals only in areas where it is compatible with adjacent land uses and minimal degradation will occur. Extraction is also prohibited in environmentally sensitive areas that cannot be restored. Mining and excavation are also prohibited in Conservation/Recreation areas.

Map 6-1 Soils Map by Drainage Classification
Santa Rosa County, Florida

6.3.4 Natural Habitat/Wildlife Resources

Santa Rosa County shares with the rest of northwest Florida a number of different habitat areas suitable for wildlife. Wildlife habitats correspond to vegetated communities. Formerly, all of Santa Rosa County was open to the easy movement of wildlife requiring large foraging areas. As these areas have declined with development, wildlife populations have been reduced. The availability of wildlife corridors, either as constructed travel routes or preserved natural areas, will permit some reduced level of persistence of adaptable wildlife species.

6.3.4.1 Conservation Lands in Santa Rosa County

Goal 9 of the Florida State Comprehensive Plan states that Florida "shall protect and acquire unique natural habitats and ecological systems, such as wetlands, tropical hardwood hammocks, palm hammocks, and virgin longleaf pine forests, and restore degraded natural systems to a functional condition". Achieving this goal requires the cooperation of the County with other agencies in the identification and preservations of unique areas. This may include conservation easements, land grants from private citizens, a land trust, or the purchase of land through public organizations such as Florida Forever. Florida Forever is Florida's premier conservation and recreation lands acquisition program, a blueprint for conserving natural resources and renewing Florida's commitment to conserve the state's natural and cultural heritage. Florida Forever replaced the Preservation 2000 (P2000), the largest public land acquisition program of its kind in the United States.

Substantial areas of floodplain and wetland in the watershed, were acquired and protected in Santa Rosa County via the Save Our Rivers and Preservation 2000 programs. In particular, the NWFWMD has purchased 56,780 acres of land along the Escambia and Yellow Rivers, in Escribano Point and within the Garcon Point peninsula. Map 6-2 shows all publicly owned lands in Santa Rosa County and includes those lands that are designated as Conservation/Recreation on the Future Land Use Map and as well as privately held conservation lands within Santa Rosa County. The following summarizes the amount of conservation land within Santa Rosa County. In total, approximately 39% of the County land area is comprised of either military or conservation land uses.

• 177,767 acres of land designated as Conservation Recreation on the Future Land Use Map (FLUM) which is 27% of total County land area;

• 184,554 acres of publicly owned lands (State, Federal, Santa Rosa County & City) which is 28% of total County Land Area and includes those lands designated as Conservation on the FLUM above;

• 1,523.86 acres of private conservation lands (Garcon Point Mitigation Bank, LLC, Westervelt) which is not included in those lands designated Conservation on the FLUM above; and

• 72,460 acres of Department of Defense owned lands (Eglin, NAS Whiting Field) which are designated as Military on the FLUM but include the Eglin Preserve. Eglin AFB covers 464,000 acres in Santa Rosa, Okaloosa, and Walton counties and includes the Eglin Wildlife Management Area. An Eglin permit is required to access the 250,000 acres of the Eglin reservation conditionally open to public recreation.

Map 6-2 Publicly Owned Lands
Santa Rosa County, Florida

6.3.4.2 Closing the Gaps

In 1994, researchers from the Florida Fish and Wildlife Conservation Commission (FWC) completed a report, entitled Closing the Gaps in Florida's Wildlife Habitat Conservation System (Cox et al., 1994), assessing the security of rare and imperiled species on existing conservation lands in Florida. The biologists that authored this report used species occurrence data, habitat data, and the analytical capabilities of Geographic Information Systems (GIS) to assess the protection afforded to 62 focal species on lands managed for conservation and to identify important habitat areas in Florida that have no conservation protection. These areas, known as Strategic Habitat Conservation Areas (SHCA), depict areas needed for protection and serve as a foundation for conservation planning in Florida. Since 1994, landscape-level habitat changes, transfer of land from private to public ownership, and changes in land use have reduced the appropriateness of using Cox et al.'s (1994) findings to accurately assess Florida's current biodiversity and wildlife conservation status. In 2009, the Fish and Wildlife Research Institute completed and update titled, "Wildlife Habitat Conservation Needs in Florida: Updated Recommendations for Strategic Habitat Conservation Areas".

The GAP report identified several large concentrated Strategic Habitat Areas in Santa Rosa County. Please refer to Map 6-3 for these locations as updated by the 2009 report mentioned above. The established Strategic Habitat Areas are particularly important to the County as natural resources which not only attract tourists, but also creates an environment that is consistent with a sustainable community atmosphere. Eco-tourism should be considered an economic resource that communities must pay more attention to in the future.

In addition, the GAP report also identified Biodiversity Hot Spots in the County. Please refer to Map 6-4 for these locations. These maps are utilized for environmental analysis of large scale amendments to the Comprehensive Plan's Future Land Use Map.

Map 6-3 Strategic Habitat Areas
Santa Rosa County, Florida

Map 6-4 Biodiversity Hot Spots
Santa Rosa County, Florida

6.3.4.4 Gulf Coastal Plain Ecosystem Partnership

Santa Rosa County has benefited from the development of the Gulf Coastal Plain Ecosystem Partnership (GCPEP). The (GCPEP), formed in 1996 via a Memorandum of Understanding, launched a joint planning process to identify conservation goals and actions, and to provide buffers for military lands. Non-government partners such as the Nature Conservancy have contributed funds and office space, and have provided volunteers, public outreach, and other services.

The Gulf Coastal Plain Ecosystem Partnership recently expanded, and now covers more than one million acres ( Map 6-5 ). It is working to increase buffers around military reservations, improve biodiversity management, and assure green space and recreation opportunities for the region. Its activities include:

• Participating in the "Florida Greenways Project," a multi-agency/organization initiative that is working to create a greenway from the Gulf of Mexico south of Tallahassee through Eglin AFB, NAS Pensacola, and NAS Whiting Field to Ocala National Forest further south.

• Completed land deals that have protected tens of thousands of acres immediately adjacent to the three DoD installations.

• Supported scientific workshops to develop a regional strategic conservation plan.

• Created an Ecosystem Support Team for on-the-ground management. The team conducts ecological monitoring of key natural communities, has assisted with more than 39,000 acres of prescribed burning on GCPEP lands, and helped the partners with Hurricane Ivan relief.

6.3.5 Surface Water Resources

The County's water resources are vital to its population and future economic success. There are two main categories of water resources, surface water and ground water resources. Examples of surface water include creeks, lakes and rivers. Surface water is found above the earth's surface and can be contaminated by rainwater runoff from homes, businesses, roads and parking lots. Fertilizer and pesticide from lawns and farms as well as fluids that leak from autos can all get washed into surface water supplies from rainwater runoff. Santa Rosa County's surface water resources are described below in general.

6.3.5.1 Escambia River

Originating in Alabama as the Conecuh River, the Escambia River travels south approximately 240 miles before discharging into Escambia Bay. The river flows approximately 54 miles south from the state line to Escambia Bay. The river basin drains a total of 4,223 square miles, 425 of which are within Florida. The Escambia River is the fourth largest in the state in terms of discharge. The Northwest Florida Water Management District currently owns The District currently owns 35,413 acres in fee and nearly 19 acres in less than fee along the Escambia River. The Escambia River Water Management Area contains a high diversity of plants and animals. Land coverage types include large acreages of hardwood forests, pine flatwoods, and estuary marshlands.

6.3.5.2 Blackwater River

Originating in Bradely, Alabama, the Blackwater River travels south approximately 62 miles prior to discharging into Escambia Bay. The river drains approximately 860 square miles, approximately 700 of which are within Florida, and has an average annual discharge of approximately 342 cfs (Fernald and Patton, 1984). Average depths are between two and 15 feet, and widths tend to vary between 110-300 feet (Bass and Hitt, 1977). The major source of flow is groundwater discharge, with a smaller contribution from surface runoff (Livingston et al., 1988).

The Blackwater River is designated an Outstanding Florida Water (OFW), and is among the most popular waterbodies in the state for canoeing and other recreational activities. The aptly named Blackwater River and its tributaries drain acidic flatwoods and other wetlands, as well as being influenced by discharge from the Sand and Gravel Aquifer (Hand et al., 1996). The river tends to exhibit a reddish color, due primarily to the presence of tannic and organic acids (FREAC, 1989). The upper Blackwater River and its tributaries Big Juniper Creek, Sweetwater Creek, and Big Coldwater Creek are swift, relatively shallow, and sand-bottomed (Bass and Hitt, 1977). Aquatic vegetation is sparse, some habitat cover is provided by snags, fallen trees, and undercuts. In the 1970s, only the upper reaches of this system were assessed as having adequate cover for fish habitat (Bass and Hitt, 1977). The lower Blackwater River is tidally influenced with moderate currents. Substrates are more fine and organic, and emergent and submergent species of vegetation are more common. Pond Creek is similar to the lower Blackwater River, with lower reaches tidally influenced. Currents are moderate, substrates range from sand to mud, and emergent and submergent species of vegetation are common. Bass and Hitt (1977) further describe a series of lake-like freshwater and brackish basins along the lower river. Aquatic vegetation is abundant in these basins, substrates tend to be rich and organic with sand along some shorelines, and currents are nonexistent except when associated with tidal fluctuation.

The lower Blackwater River system receives discharges from domestic wastewater treatment facilities, and portions of the system are subject to impacts from nonpoint source pollution.

6.3.5.3 Yellow River

The Yellow River originates in Covington County, Alabama and travels 92 miles to Blackwater Bay in Florida. The river travels through the Western Highlands in parts of Alabama and Okaloosa County, Florida, creating bluffs reaching 40 feet in some areas (Livingston et al., 1988). The river drains generally from the east/northeast and has a drainage basin of 1,365 square miles, of which about 860 are within Florida. The river floodplain is generally about two miles wide and has an extensive floodplain forest.

Fluctuations due to tidal effects are noticeable nearly 19 miles upstream.

The Yellow River is described as a sand bottom river and is characterized by shallow clear-tan waters. It has an average annual discharge of approximately 1,500 cfs 40 miles above the mouth (Hand et al., 1996). The principal tributary of the Yellow River is the Shoal River, which originates in northern Walton County and discharges an annual average of 1,104 cfs into the Yellow River south of Crestview (Fernald and Patton, 1984). Titi and Turkey creeks are tributaries of the Shoal River. The lower portion of the Yellow River, as well as portions of Blackwater and East Bays, are managed as the Yellow River Marsh Aquatic Preserve.

6.3.5.4 Big Coldwater Creek and East Fork River

This river originates in Santa Rosa County and is the most western stream in 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 Rivers Assessment, 83).

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 Florida Forest Service, also serves as the Blackwater Wildlife Management Area. The Florida Fish and Wildlife Conservation Commission manages the wildlife management area. The wildlife management area harbors deer, turkey, and small game for hunting (Florida Rivers Assessment, 83).

6.3.5.5 Escambia Bay

Escambia Bay is situated between the City of Pensacola and unincorporated portions of Escambia County to the west, the Garcon Point peninsula to the east, and the Escambia River delta to the northwest. The primary source of water in the bay is the Escambia River. Other sources in upper Escambia Bay include the Pace Mill Creek and Mulatto Bayou drainage basins, among others. Sources of water in lower Escambia Bay include the river via upper bay and the Indian Bayou, Trout Bayou, and Bayou Texar (City of Pensacola) basins.

Tidal flushing in Escambia Bay is considered poor, and sediments are highly organic. Circulation is most strongly influenced by inflow from the Escambia River, as well as from winds, and tides. There is a net southward flow of river water along the western shore, with more saline water intruding along the eastern shore. This tends to produce a generally counterclockwise circulation pattern (Hudson and Wiggins, 1996).

High tides, low river discharge, and strong surface winds (especially southeast and southwest winds) tend to decrease stratification, while the reverse of these conditions increases it. Railroad and highway bridges may inhibit flushing and exchange between the upper and lower bay, and surface wind effects may also influence circulation in upper portions of the bay.

Escambia Bay is among the most anthropogenically stressed components of the Pensacola Bay system. It has historically received substantial industrial and domestic wastewater discharges, and is still affected by surface water discharges and reuse sources in the vicinity of the bay, as well as from the Escambia River basin. The bay also receives non-point source pollution from the City of Pensacola, unincorporated areas of Escambia County, and the river basin.

6.3.5.6 Blackwater and East Bays

Blackwater Bay is at the mouth of the Blackwater River and borders the Garcon Point peninsula to the west. This bay receives discharge from the Blackwater River. East Bay is immediately downstream of Blackwater Bay and receives inflow from Blackwater Bay, the Yellow River, and the East Bay River, which flows from the east. East Bay is bounded to the south by the Gulf Breeze peninsula.

According to Hudson and Wiggins (1996), circulation in Blackwater and East Bays tends to be counterclockwise. Generally, fresh water from the Blackwater and Yellow Rivers flows south along the western shore of East Bay, and more saline waters flow northward along the eastern shore. The importance of winds on circulation and mixing are enhanced during periods of low flows. Vertical stratification of these waterbodies has been noted, as well as mixing of Blackwater, Escambia, and Pensacola bay waters with the waters in East Bay. These bays are shallow, with relatively organic sediments—although composition at specific sites may vary from sand to mud (Collard, 1991a; Bass and Hitt, 1977). Aquatic vegetation varies, with most associated with tidal marshes at mouths of the Blackwater and Yellow Rivers.

Although Blackwater and East Bays were described at one time as the most unaffected estuarine portions of the system from anthropogenic degradation, they were also described as the most vulnerable to future degradation (Collard, 1991a). This, in part, is because these bays are lower in energy and tidal flushing than other estuarine portions of the system. Nonpoint source pollution has increased from residential and commercial development in Santa Rosa County, and the system also receives discharges from several point sources.

6.3.5.7 Santa Rosa Sound

Santa Rosa Sound, a lagoon between the mainland and Santa Rosa Island, connects Pensacola Bay in the west with Choctawhatchee Bay in the east. The Sound extends approximately 57.9 km along an east-west orientation, varying in width between 0.32 and 3.5km (FDEP, 1993). Most waters within the Sound are designated as Class II, and waters within the National Seashore are designated Outstanding Florida Waters. The Intracoastal Waterway (ICW) transects the Sound and supports moderate commercial barge traffic.

According to the Florida Marine Research Institute (FDEP, 1993), the Navarre Bridge Causeway divides the Sound into nearly equal sized eastern and western regions and contributes to a bi-directional tidal flow.

Salinity and depth are fairly uniform throughout the Sound, with mean annual values of 24 ppt and 2.7 m respectively. Santa Rosa Sound receives little fresh water inflow (Hand et al., 1996).

Santa Rosa Sound is notable as being the site of the most diverse and stable seagrass beds within the Pensacola Bay system. Anthropogenic stresses on the lagoon's environment include non-point source pollution and habitat loss resulting from increasing development on Santa Rosa Island and along the U.S. Highway 98 corridor. The Navarre Beach and Pensacola Beach waste water treatment plants discharge to the Sound (Hand et al., 1996). The Sound also receives runoff from several golf courses, including effluent from spray irrigation with treated municipal wastewater.

6.3.5.8 Outstanding Florida Waters

Section 403.061(27), Florida Statutes, grants the Department of Environmental Protection (DEP) the power to establish rules that provide for a special category of waterbodies within the state, to be referred to as "Outstanding Florida Waters," which shall be worthy of special protection because of their natural attributes.

The Department of Environmental Protection has designated waters inside the Yellow River Marsh Aquatic Preserve, the Blackwater River, the Blackwater River State Park and Santa Rosa Sound through the Gulf Islands National Seashore as Outstanding Florida Waters (OFWs). Projects regulated by the Department or a Water Management District (WMD) that are proposed within an OFW must not lower existing ambient water quality, which is defined for purposes of an OFW designation as the water quality at the time of OFW designation or the year before applying for a permit, whichever water quality is better. In general, DEP cannot issue permits for direct discharges to OFWs that would lower ambient (existing) water quality. In most cases, this deters new wastewater discharges directly into an OFW, and requires increased treatment for stormwater discharging directly into an OFW. DEP also may not issue permits for indirect discharges that would significantly degrade a nearby waterbody designated as an OFW.

In addition, activities or discharges within an OFW, or which significantly degrade an OFW, must meet a more stringent public interest test. The activity or discharge must be "clearly in the public interest." For example, activities requiring an Environmental Resource Permit (ERP), such as dredging or filling within a wetland or other surface water or construction/operation of a stormwater system, must be clearly in the public interest instead of not contrary to the public interest.

Map 6-6 Water Body Classification
Santa Rosa County, Florida

6.3.6 Surface Water Quality

6.3.6.1 Nonpoint Source Pollution

Nonpoint source (NPS) pollution consists of pollution that is transported from a variety of sources to a receiving waterbody in a diffuse or dispersed manner. It is generally considered to include most sources of pollution that do not have a point outfall to a receiving waterbody (such as a discharge pipe). This type of pollution contributes a variety of pollutants and impacts the quality of the receiving waterbody in a number of ways. Frequently, nonpoint source pollution results from the interaction between land use practices and surface water hydrology within a watershed. Nonpoint source pollution can affect receiving waters in a number of ways. Stormwater runoff increases turbidity, which, in turn, decreases the amount of sunlight available for submerged vegetation. Other forms of aquatic life are also harmed by increased turbidity and sedimentation. Nonpoint sources of pollution, especially fertilizers and organic wastes, contribute nutrients and other oxygen demanding substances, which lower oxygen levels in receiving waters. Bacteria and viruses from septic tanks, boats, marinas, and urban runoff can contaminate shellfish resources and other organisms, inducing stress and disease.

There are a number of general classifications of nonpoint source pollution, which are typically characterized by the land use practices that result in the pollutant loading. These include urban stormwater runoff, agricultural and silvicultural nonpoint pollution, dredging and filling, septic tank leachate, contaminated groundwater seepage and associated overland flows, marinas, and various unpermitted sources of pollution. Each of these types of nonpoint pollution impacts the Pensacola Bay system.

Stormwater runoff from urbanized areas, including roads, parking lots, construction sites, yards, etc., has a significant impact on the Pensacola Bay system. The traditional emphasis of urban stormwater management has been to deal only with stormwater quantity-related issues at the local level. A consequence of this is that stormwater runoff is frequently routed to a receiving water body with very little effort to improve its quality prior to discharge. Reducing the impacts of urban stormwater runoff would require increasing the amount that is allowed to infiltrate back into the ground water and improving the quality of the discharge. Components of this would include such measures as onsite and regional stormwater treatment, buffer zones, limiting impervious areas, grassed waterways, controlling fertilizer use, and construction site best management practices. Such measures are generally implemented by local governments through the adoption of comprehensive stormwater plans, the implementation of such plans, and the use of stormwater utilities or other means of dedicated funding.

Agricultural runoff is a significant source of sediment, nutrients, and pesticides. Intensive forestry operations can cause severe sedimentation problems and can disrupt the pH of receiving waters. Also, removing trees from close to the edge of a waterbody eliminates the natural shading of the banks and may cause the average water temperature to increase. For both silviculture and agriculture, attempts at pollution abatement have historically been centered on voluntary programs promoting the use of best management practices (BMPs). Recently initiated activities of the Natural Resource Conservation Service (NRCS) and Farm Service Agency (FSA), associated with the implementation of the Food Security Act and 1996 Farm Bill, have the potential to reduce nonpoint loadings from agricultural land uses, depending on the scale of their implementation. Dredge and fill activity creates and exacerbates NPS pollution through a variety of means. Fill dirt and excavated soil frequently runs off into surrounding waterbodies during excavation, filling, and related construction activities.

Wetland conversion creates additional demand for new development, with resulting runoff and non-point source pollution. Losses of wetlands reduces the capacity of the system to store runoff and flood waters and eliminates the filtering and nutrient cycling functions of the lost wetlands. Displacement of wetlands also causes hydrologic disruption within the system. Dredging causes turbidity and deposition within the aquatic system and releases nutrients and contaminants into the water column.

Another source of nonpoint pollution, and one that is often a constituent of urban runoff is septic tank leachate. Installation of septic tanks in soils with limited capacity for this use or inadequate maintenance can result in the contamination of surface waters by leachate. This is of particular importance near bayous and bays due to the susceptibility of shellfish to contamination from bacterial and viral pathogens, as well as public health concerns related to body-contact water sports. Soils bordering bays, rivers, bayous and other flood-prone areas often have severe limitations for use as septic tank absorption fields and sewage lagoon areas. As development continues in these areas, problems with surface water contamination will increase if adequate regulations and controls are not in place.

Holding ponds also affect surface waters via overflows during rain (or excessive inflow) events. Some facilities may have a potential to contaminate waters with hazardous wastes. Some hazardous waste sites have been identified and are regulated by DEP through the Resource Conservation and Recovery Act (RCRA) and underground storage tank programs. The Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) is administered by the U.S. EPA.

Marinas contribute NPS pollution both during construction and operation and are also of concern due to the susceptibility of shellfish and other marine life to contamination by the toxins and pathogens associated with marina-related discharges. Marina construction may result in turbidity and benthic deposition from construction activities and dredging. Chronic impacts which result from marina operations may include the following: 1) oils and greases and other hydrocarbons from fuel boat exhaust, fuel spills, and illegal bilge pumpouts; 2) solid waste from trash, fish carcasses, and solvents associated with boat maintenance (deck washing, hull cleaning, etc.); 3) heavy metal contamination from lead, copper, and other pollutants found in hull paints, anti-fouling chemicals, stormwater runoff, and engine exhausts; and 4) contamination from boat head facilities, which result in increased coliform bacteria, reduced dissolved oxygen, increased nutrients and biological oxygen demand, and general water degradation. Marinas are routinely permitted with provisions to ensure that facilities are maintained—vessels are not allowed to discharge; fish carcasses, food waste, litter, fuel, oil, grease, and other pollutants are not permitted to be disposed of into the water; waste containers are to be located along the docks; fish cleaning stations and restrooms are located on upland property; fuel dispensing facilities are to be equipped with automatic shut-off valves; and emergency cleanup equipment are supposed to be maintained on-site. These permit conditions; however, have failed to eliminate NPS pollution from marinas.

An additional source of NPS pollution is atmospheric deposition. Nitrogen originates from a variety of sources within an airshed that is considerably larger than the watershed. Computer modeling suggests that utility and mobile (such as automobile exhaust) sources are approximately equally responsible for nitrate deposition in the eastern United States (Appleton, 1995). While the Pensacola Bay region may have fewer industrial air pollution sources than are in the vicinity of Tampa Bay, it does have a considerable, and increasing, number of automobiles and may be affected by a number of industrial and utility sources throughout its airshed.

6.3.6.2 Point Source Pollution

The Pensacola Bay system has a long history of cultural impacts from a variety of uses. Point source discharges from domestic and industrial wastewater facilities have been particularly significant in the Pensacola Bay system. Point sources of pollution are those with a distinct, identifiable point of discharge (e.g., a pipe) to a waterbody. Two general categories of point sources are recognized: sewage treatment (domestic waste) and industrial facilities. In Florida, the DEP has statutory responsibility for regulating point sources of discharge.

The impacts of point source pollution on the Pensacola Bay system have been generally known for some time. The Escambia Bay Recovery Program, initiated by the EPA in the early 1970s, concluded that industrial and domestic point source discharges significantly contributed to poor conditions within the system. Subsequently, large point source discharges to the system were improved to meet more stringent permitting criteria. The Pensacola Bay system appears to have improved since that time, as demonstrated by fewer fish kills and noticeable improvements in water quality. The current condition of the system, however, remains far from optimal.

6.3.6.3 Surface Water Body Classification in Santa Rosa County

The Clean Water Act requires that the surface waters of each state be classified according to designated uses. Florida has six classes with associated designated uses, which are arranged in order of degree of protection required:

Class I—Potable Water Supplies

Fourteen general areas throughout the state including: impoundments and associated tributaries, certain lakes, rivers, or portions of rivers, used as a source of potable water.

Class II—Shellfish Propagation or Harvesting

Generally coastal waters where shellfish harvesting occurs.

Class III—Fish Consumption, Recreation, Propagation and Maintenance of a Healthy, Well- Balanced Population of Fish and Wildlife

The surface waters of the state are Class III unless described in rule 62-302.400, F.A.C.

Class III-Limited—Fish Consumption; Recreation or Limited Recreation; and/or Propagation and Maintenance of a Limited Population of Fish and Wildlife

This classification is restricted to waters with human-induced physical or habitat conditions that, because of those conditions, have limited aquatic life support and habitat that prevent attainment of Class III uses.

Class IV—Agricultural Water Supplies

Generally located in agriculture areas around Lake Okeechobee.

Class V—Navigation, Utility and Industrial Use

Currently, there are not any designated Class V bodies of water in Florida. The Fenholloway River was reclassified as Class III in 1998.

Most of the surface waters in Florida fall into Class III by default, however there are several Class II water bodies in Santa Rosa County as shown on Map 6-6 . Escambia Bay, East Bay, Blackwater Bay, and Santa Rosa Sound are classified as Class II waters. The Escambia River, the Yellow River, the Blackwater River, Big Coldwater Creek and East Fork are classified as Class III.

Section 305(b) of the Clean Water Act (CWA) requires States and other jurisdictions to submit biennial water quality reports to the EPA. These reports, referred to as 305(b) reports, describe surface water and ground water quality and trends, the extent to which waters are attaining their designated uses (such as drinking water, recreation, and shellfish harvesting), and major impacts to surface water and ground water. Total Maximum Daily Loads (TMDLs) are developed for waterbodies that are not meeting their designated use for certain water quality parameter(s), such as fecal coliforms. The TMDL is designed to restore the waterbody to fully meet its designated use once the TMDL is implemented (usually through the Basin Management Action Plan (BMAP)). Map 6-7 depicts the basins with currently adopted TMDLs for Santa Rosa County as well as lands managed for conservation purposes. The full pending TMDL map can be found within the Infrastructure Element supporting documentation ( Map 4-5 ).

Under Section 303(d) of the CWA, states are also required to identify waters that are not attaining their designated uses, submit to the EPA a list of these impaired waters (referred to as the 303[d] list), and develop Total Maximum Daily Loads (TMDL) for them. A TMDL represents the maximum amount of a given pollutant that a waterbody can assimilate and still meet its designated uses. The following describes the TMDL process and Santa Rosa County currently does not have any waterbodies that have progressed to the Phase 4 or BMAP level.

• Phase 1: Development of the Planning List

During the first phase of any basin rotation cycle, the Department initially evaluates all readily available water quality and biological data, using the methodology described in the IWR. During this phase, water segments that are identified as potentially not meeting water quality standards are included on a Planning List.

• Phase 2: Development of the Verified List of Impaired Waters

During the second phase of the basin rotation, the Department implements additional sampling and strategic monitoring activities, focusing on those waters that were identified and placed on the Planning List during the first phase of the basin rotation. The goal of these activities is to ensure that sufficient data and/or ancillary information are available to determine (i.e., to "verify")—using the methodology described in the IWR—whether a waterbody segment is impaired and if the impairment is caused by a pollutant. In conjunction with the determination of impairment status, the Department actively solicits stakeholder input, and assessment results are finalized at the end of the second phase based on available data.

To conclude the second phase of the basin rotation, after the assessments have been completed, those waterbody segments identified and verified as impaired are placed on the state's Verified List of impaired waters. Correspondingly, those waterbody segments determined to be no longer impaired or in need of a TMDL are placed on the Delist List. Both the Verified and Delist Lists are adopted by Secretarial Order and submitted to the EPA to update the state's 303(d) list.

Waterbody segments identified as not meeting water quality standards due to a pollutant are prioritized for TMDL development. The priority ranking considers the severity of the impairment and the designated uses of the segment, taking into account the most serious water quality problems, most valuable and threatened resources, and risk to human health and aquatic life.

Segments verified as impaired are initially assigned a medium priority. A high priority is assigned if: (1) the impairment poses a threat to potable water supplies or to human health, or (2) the impairment is due to a pollutant that has contributed to the decline or extirpation of a federally listed threatened or endangered species. Impairments due to exceedances of fecal coliform criteria are assigned a low priority. Waters listed due to fish consumption advisories for mercury are designated high priority. In September 2012, the Department adopted a statewide mercury TMDL that requires an 86% reduction in all emission sources.

The Department intends to address all listings with a high priority within five years after they are added to the Verified List, to address listings with a medium priority within five to 10 years (subject to available resources), and to address listings with a low priority within 10 years.

• Phase 3: TMDL Development

The third phase of the basin rotation cycle consists primarily of TMDL development and is initiated when the Verified List is adopted by Secretarial Order. When TMDLs are completed for segments on the Verified List, they are adopted by rule, and those segments are subsequently removed from the state's Verified List of impaired waters.

• Phases 4 and 5: BMAP Development and Implementation

During the fourth phase of the watershed management cycle, a BMAP aimed at reducing the pollutant loads linked to the verified impairments may be developed, and implementation is initiated in the fifth phase of the basin rotation cycle to achieve the pollutant reduction goals of the TMDL.

Source: Florida Department of Environmental Protection, 2014 Integrated Report

6.3.6.4 Water Quality Monitoring in Santa Rosa County

Santa Rosa County currently relies on the state's water quality monitoring program, including the Florida Healthy Beaches program and FDEPs monitoring program. Florida's integrated approach to water quality monitoring and assessment consists of three tiers: statewide ambient monitoring networks for status and trends, strategic monitoring for verification of impairment and identification of causative pollutants, and specialized, site-specific studies.

The Status Network component of the ambient monitoring program is a probabilistic assessment that is used to develop statistical estimates of water quality across the entire state, based on a stratified random sample design. The use of probability assessments produces an unbiased picture of water quality conditions statewide and provides a cost-effective benchmark of the success of Florida's water quality programs. The results can also provide information on whether it would be useful to target certain waters for further assessment, or if limited resources for water quality assessment can be used more effectively in other ways. The Florida Department of Environmental Protection also implements a Trend Monitoring Network consisting of 76 surface water and 49 ground water stations (several of which are located in or near Santa Rosa County). Trend analyses for surface and ground water resources are used to examine changes in water quality over time. Florida's statewide Status and Trend monitoring networks (the first tier) enable the Department to satisfy some of the reporting requirements for Sections 106 and 305(b) of the CWA.

A variety of basin- and waterbody-specific assessments are conducted as part of the second tier monitoring, or Strategic Monitoring. The primary focus of strategic monitoring is to collect sufficient data to verify whether waters that have limited data indicating they are potentially impaired are in fact impaired and, to the extent possible, determine the causative pollutant for waters listed for dissolved oxygen (DO) or biological assessment (bioassessment) failures. However, the Department also conducts other types of strategic monitoring to better evaluate specific water resources (springs, for example).

Site-specific monitoring (the third tier) includes intensive surveys for TMDLs, monitoring for the development of water quality standards and site-specific alternative criteria (SSAC), and fifth-year inspections for permit renewals for facilities that discharge to surface waters. Special monitoring programs are used to address other program-specific needs, such as monitoring to develop predictive models, including the mercury TMDL being developed for Florida. Ground water arsenic studies address natural versus anthropogenic sources of arsenic in aquifers, and restoration efforts are measured by project-specific studies.

As part of Florida's Healthy Beaches Program, which began in 1998, FDOH monitors the state's coastal beaches for elevated levels of bacteria. In August 2000, the beach water sampling program was extended to all 34 of Florida's coastal counties through state legislation (Senate Bill [SB] 1412 and House Bill [HB] 2145) and funding. With additional funding from the EPA in 2002, the program was expanded to include weekly sampling for fecal coliform and enterococci bacteria at 304 beach locations throughout Florida.

The program underwent changes in 2011 to reflect the current budget situation. These changes have led to a statewide baseline program that consists of biweekly (every two weeks) sampling for enterococci bacteria and the discontinuation of fecal coliform sampling. Also, year-round sampling will continue only in 15 counties, including Volusia County, those counties south of Pasco County on the west coast, and those counties south of Brevard County on the east coast. In the remaining counties, biweekly sampling will occur from March 1 through October 31. In addition, the geometric mean will no longer be used as a water quality indicator in this monitoring program. If local funding is available, some counties may still sample weekly for enterococci and maintain fecal coliform testing and the geometric mean as a standard.

The presence of elevated levels of these bacteria in water is an indication of possible pollution that may come from stormwater runoff, pets, wildlife, or human sewage. While not necessarily pathogenic, their presence in high concentrations in recreational waters indicates that pathogens may be present. If waste pathogens are present and they are ingested while swimming, or if they enter the skin through a cut or sore, the bacteria may cause illness. The most commonly reported ailments are gastrointestinal distress and skin rashes. The rationale for selecting enterococci for analysis and the implications of the sampling results are described in more detail on the FDOH Florida Healthy Beaches Program website.

When a sample exceeds the single sample maximum of 104 colony-forming units per 100 milliliters of water (CFU/100mL) of enterococci, a resample to confirm the exceedance may be taken immediately; upon confirmation of the exceedance a public health advisory is issued. If a resample is not collected, a public health advisory is issued immediately. Local media are alerted and the public is notified by way of the media, the Healthy Beaches Program website, and signs posted at the particular beach under advisory.

Map 6-7 Adopted TMDLs and Managed Areas
Santa Rosa County, Florida

6.3.7 Wetlands

Wetlands are transition zones between water areas and dry land. These lands are dominated by water saturated soils (hydric soils) on a periodic or permanent basis. The extent and persistence of the transition zone is dependent upon the availability of water supplied from surrounding uplands and the surface elevation of adjacent waters. The location, extent, and persistence of wetlands is determined by several factors including: climatic conditions that result in long term reductions of water to adjacent uplands, climatic changes that result in a long-term rise or lowering of the ocean water levels, drainage programs that remove water and reduce infiltration potentials on adjacent uplands and subsequent aquifer recharge areas, and finally infiltration to surface water elevations at the base elevation, or to the receiving water body.

In Santa Rosa County, three distinct conditions provide the basis of local area wetlands. These conditions include: sea level conditions that establish the extent of wetlands in the Escambia, Blackwater, Yellow and East River estuaries; climatically determined rainfall resulting in freshwater discharges that establish the seasonal water elevations in Escambia Bay, East Bay, Blackwater Bay and Santa Rosa Sound; and winter temperatures that essentially determine the maximum annual height of water table conditions or the top of the sand and gravel aquifer and the existence of upland depressions and drainage way wetlands. The County utilizes the National Wetlands Inventory Map and Potential Wetlands by Soil Type (Hydric Soils) Map ( Maps 6-8 and 6-9 ) for identification of potential wetland areas.

6.3.7.1 Wetland Preservation

The County maintains a comprehensive approach to wetlands protection, including the following components:

1)

Preservation: In 2015, approximately 51% of all wetlands within Santa Rosa County were under public ownership and 40% were designated for Conservation/Recreation use on the Future Land Use Map. The County will continue to support the purchase and preservation of wetlands. In addition, wetlands have been preserved as part of private land purchases required for mitigation. The County will work with the FDEP and the USACOE to identify the location of these mitigation wetlands and designate those areas as Conservation/ Recreation on the Future Land Use Map.

2)

Future Land Use Map: The land use categories shown on the Future Land Use Map take into consideration the compatibility of development with wetland resources. Undeveloped areas of the County with the largest concentrations of wetlands have been designated for low density development. Wetlands under public ownership have been designated for Conservation/Recreation use.

3)

Avoidance, Minimization of Impact, and Mitigation: Land development projects in Santa Rosa County must be designed to avoid or minimize impact on jurisdictional wetlands. Where avoidance or minimization is not possible, wetland impacts may be mitigated as required by the agency or agencies having jurisdiction. Where avoidance or minimization is possible, the County will not issue a permit for development within jurisdictional wetlands, except for incidental impacts such as those required for access to the site, internal circulation, infrastructure, boardwalks, etc.

Map 6-8 National Wetlands Inventory
Santa Rosa County, Florida

Map 6-9 Wetlands Classified by Hydric Classification
Santa Rosa County, Florida

6.3.8 Floodplains

Floodplains are areas inundated by a 100-year flood event or identified by the National Flood Insurance Program of the Federal Emergency Management Agency as an "A" zone or a "V" (Velocity) zone on the County's Flood Insurance Rate Maps or Flood Hazard Boundary Maps. Floodplains serve as storage areas for floodwaters caused by overflowing waterways and for stormwater runoff from the upland areas. They protect uplands from the erosion caused by overflowing waterways as well as provide habitat for a number of wildlife and vegetative species.

The 100-year floodplains in the County are located adjacent to the bays, rivers and their tributaries, Santa Rosa Sound, and the freshwater marshes in the interior of the County. Along the bays, the Gulf, and Santa Rosa Sound are the "V" zones. These areas are depicted on the Map 6-10 , this map is a spatial analysis of FEMA designated Special Flood Hazard Areas (SFHAs) as compared to Agricultural, Conservation (including Navarre Beach) and Park (including Navarre Beach) zones. The graphic below shows a river system floodplain.

6.3.8.1 National Flood Insurance Program Base Elevations

The U.S. Congress passed the National Flood Insurance Act of 1968 by Title XIII of the Housing and Urban Development Act of 1968 (Public Law 90-448), as subsequently amended, in an effort to: reduce the increasing costs to taxpayers; reduce the ineffectiveness of flood damage protection measures; and, reduce the number of incidents of flood related damages. This Act established the National Flood Insurance Program administered by the Federal Emergency Management Agency. Santa Rosa County participates in this program.

Section 9 of the Coastal Barrier Resource Act (COBRA) 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 COBRA Act. Additionally, Section 9 amended section 1321 of the Insurance Act by re-designating 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 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."

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).

The Federal Emergency Management Agency (FEMA) completed the Flood Insurance Study (FIS) for the unincorporated areas of Santa Rosa County (Community Number 120274), dated November 1, 1985.

Since this time, the FEMA maps for the southern portion of the County were revised in January 2000 to take into account changes caused by Hurricanes Erin and Opal in 1995. This study includes peak discharges, floodway, and base flood elevations for the applicable floodplain areas within the County. The study includes elevations for the 10-year, 100-year, and 500-year return frequency floods. The 10-year flood elevation provides guidance on the areas of floodplains below which combined ground water seepage areas and surface waters support wetlands. The 100-year flood elevation is the base flood elevation above which the first inhabited floor of structures are to be built in accordance with the requirements of the National Flood Insurance Program and the County's Land Development Regulations, which require one (1) foot above the base flood elevation. The 500-year flood elevation provides guidance on the base elevation used by the Federal Government for the design and construction of hazardous materials storage and hazardous waste facilities.

The Flood Insurance Study for Santa Rosa County also includes information on floodways for the lower courses of selected streams. Regulatory floodway information provides guidance on the cross sectional area of 100-year floodplain required to pass the base flood storm discharge without raising the base floodplain elevation more than 1 foot. The floodplain area not required to pass the 100-year base flood discharge and beyond the limits of the regulatory floodway is termed the regulatory flood-fringe. This portion of the regulatory floodplain usually has shallow and slow moving floodwater under the conditions of the 100-year flood event. Under lesser flood conditions, fringe areas often are not flooded. Flood fringe areas often may be used for development by raising the first floor of structures above the base flood elevation.

6.3.8.2 Floodplain Protection Measures

The purpose of the National Flood Insurance Program is to protect lives and development from flooding; it does not preclude development in the 100-year floodplain. The County had adopted Land Development Regulations, which address building in the floodplain. The Land Development Regulations requires that the first floor of inhabitable living space be built 1 ft. above the designated base elevation as determined by the Flood Insurance Rate Maps.

The fill required by the base elevations reduces the flood storage capacity of the floodplains; however, storage compensation is provided by the storage of stormwater on site as required by the Northwest Florida Water Management District in two rules: 40C-42 and 40C-40 and by the County's Land Development Regulations, which regulates stormwater for development under the District's thresholds.

A majority of the floodplains are protected from development because most of the floodplains are coterminous with freshwater and estuarine wetlands. These wetlands are regulated by dredge and fill rules of the Department of Environmental Protection and the Army Corps of Engineers.

Santa Rosa County has taken steps to further protect floodplains from development using zoning measures. These zoning categories preclude high density private development, in favor of resource conservation or low intensity public use. As the spatial analysis illustrates, significant portions of the Flood Hazard Zones associated with the Escambia River, Blackwater River and Yellow River have been zoned for uses that do not include dense development or highly intensive uses. Portions of Navarre Beach in both Flood Hazard Zone AE (100-year flood plain) and Zone VE (100-year flood plain with wave action) have also been zoned for park or conservation uses. This action reduces the amount of development in high hazard areas and will significantly lower losses from future flood events.

Santa Rosa County also participates in the National Flood Insurance Program's (NFIP's) Community Rating System (CRS). The CRS is a voluntary incentive program that recognizes communities for implementing floodplain management practices that exceed the Federal minimum requirements of the NFIP to provide protection from flooding.

In exchange for a community's proactive efforts to reduce flood risk, policyholders can receive reduced flood insurance premiums for buildings in the community. These reduced premiums reflect the reduced flood risk resulting from community efforts toward achieving the three CRS goals:

1.

Reduce flood damage to insurable property;

2.

Strengthen and support the insurance aspects of the NFIP;

3.

Encourage a comprehensive approach to floodplain management.

Map 6-10 FEMA Analysis
Santa Rosa County, Florida
Selected Zoning Overlap with Special Hazard Zones

6.3.9 Air Resources

Florida's statewide air quality monitoring network is operated by nineteen state, local, and private environmental programs. The air is monitored for carbon monoxide (CO), lead (Pb), nitrogen dioxide (NO2), ozone (O3), particulate matter (or particle pollution [PM10 and PM2.5]), and sulfur dioxide (SO2). The monitors tend to be concentrated in areas with the largest population densities. Not all pollutants are monitored in all areas.

The department's Florida's Air Quality System provides the public and units of local, state, and federal government with measurements of pollutant concentration levels in the ambient air—ambient air being generally defined as that portion of the atmosphere near ground level and external to buildings or other structures.

Ambient air quality standards, defined at levels below health standards, are established by the U.S. Environmental Protection Agency (EPA) and the Florida Department of Environmental Protection (DEP) for six pollutants: carbon monoxide (CO), lead (Pb), nitrogen dioxide (NO2), ozone (O3), particulate matter, and sulfur dioxide (SO2) Since health-based criteria were used to establish the standards, these six pollutants are referred to as "criteria air pollutants".

An essential component of air quality management in the state is the identification of (1) areas where the ambient air quality standards are being violated and plans are needed to reduce pollutant concentration levels to be in attainment with the standards and (2) areas where the ambient standards are being met but plans are needed to ensure maintenance of acceptable levels of air quality in the face of anticipated population or industrial growth.

The end-result of this attainment/maintenance analysis is the development of local and statewide strategies for controlling emissions of criteria air pollutants from stationary and mobile sources. The first step in this process is the annual compilation of the ambient air monitoring results, and the second step is the analysis of the monitoring data for general air quality, exceedances of air quality standards, and pollutant trends.

6.3.9.1 Air Quality Protection

The Clean Air Act, which was last amended in 1990, requires EPA to set National Ambient Air Quality Standards (40 CFR part 50) for pollutants considered harmful to public health and the environment. The Clean Air Act identifies two types of national ambient air quality standards. Primary standards provide public health protection, including protecting the health of "sensitive" populations such as asthmatics, children, and the elderly. Secondary standards provide public welfare protection, including protection against decreased visibility and damage to animals, crops, vegetation, and buildings. EPA has set National Ambient Air Quality Standards (NAAQS) for six principal pollutants, which are called "criteria" pollutants.

The NAAQS applies to counties and cities within a metropolitan region and plays a critical role in shaping regional transportation plans and can influence regional economic vitality. In November of 2014 the EPA proposed strengthening the National Ambient Air Quality Standards (NAAQS) for ground-level ozone, based on extensive scientific evidence about ozone's effects. The recently proposed rule would revise the current NAAQS for ozone of 75 parts per billion (ppb), which was set in 2008, proposing to reduce both the primary and secondary standard to within a range of 65-70 ppb over an 8-hour average. EPA is also accepting comments on setting the standard at a level as low as 60 ppb.

Transportation conformity is required under the CAA2 to ensure that federally-supported transportation activities (including transportation plans, transportation improvement programs, and highway and transit projects) are consistent with state air quality implementation plans. Transportation conformity applies to all areas that are designated non-attainment or ''maintenance areas'' for transportation-related criteria pollutants, including ozone.3 Transportation conformity determinations are required before federal approval or funding is given to transportation planning and highway and transit projects. For non-attainment areas, the federal government can withhold federal highway funds for projects and plans.

Santa Rosa County has one DEP air quality monitoring station, which monitors for ozone and particulate matter. This air quality monitoring station is located at Woodlawn Beach Middle School. For the most part the monitoring station does not report exceedances. However, a change to the NAAQS could have an impact on transportation planning as describe above and therefore would affect Santa Rosa County.

While most heavy industry is concentrated in neighboring Escambia County, two industries, Air Products and Sterling Fibers, are regulated for emitting the precursors to ozone. Adverse air quality impacts also result from auto exhausts in slow moving, congested traffic areas which produce carbon monoxide and contribute to the production of ozone. Climatic conditions during the summer months also contribute to ozone and other pollutants being brought into the County from Escambia County.

Land development decisions have a direct impact on air quality because of the reliance upon automobiles for transportation. Developments with mixed-uses are encouraged since they have the potential to reduce auto trips; development design should minimize traffic congestion. Alternative modes of transportation such as walking and biking, including facilities within developments which link mixed uses need to be encouraged. The County will also need to balance densities with the need to maintain air quality standards.

6.3.10 Groundwater Resources

6.3.10.1 Hydrology of the Northwest Florida Region

The hydrology of the West Florida Region consists of four major aquifers: the Surficial Aquifer System, which includes the Sand-and-Gravel Aquifer, 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, however, in that each has different water yielding properties due to variations in composition and thickness.

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 groundwater flows (District Water Management Plan, 19).

The Floridan Aquifer is recharged by the surficial aquifer system in areas where the water in the surficial aquifer system is higher than the potentiometric surface of the Floridan Aquifer. There are no Floridan Aquifer recharge areas in Santa Rosa County. Discharge from the Floridan Aquifer occurs where the potentiometric surface of the aquifer is higher than the elevation of the water table in the surficial aquifer system. Springs occur where the overlying confining layer is thin or absent and the potentiometric surface is higher than land surface (Huff, 1990).

6.3.10.2 Groundwater Protection

Refer to the Infrastructure Element Support Documentation for more information on groundwater protection, water conservation, and water supply planning.

6.3.11 Hazardous Wastes

Hazardous wastes have not posed a major problem for Santa Rosa County due to the lack of large, hazardous waste-producing industries in the County. However, the County may be affected in future years by a recent increase in regulation of small, as well as large, hazardous waste generators.

Hazardous wastes are identified through its characteristics, for example, corrosivity; by their specific industry sources, for example, wood preservation, bottom sediment sludge from creosote process wastewater treatment; and by nonspecific sources, for example, spent halogenated solvents.

Some materials and wastes which may be detrimental to the environment are not regulated by the above DEP or EPA rules, but may be covered by other agencies at the federal, state, or local level, such as radioactive materials or pesticides. However, in Santa Rosa County, the primary agency responsible for hazardous waste regulation is the DEP.

The State has required an inventory of hazardous waste generators, especially those who produce small quantities of waste, and determine the amount and type of wastes generated. The management and disposal practices were to be inventoried and the need for additional storage, transfer and treatment facilities determined. Potentially suitable sites for storage and transfer were designated by each county and for each region. This study is performed for Santa Rosa County by the West Florida Regional Planning Council (WFRPC) and is included herein by reference.

6.0 Conservation Element Goals, Objectives, and Policies

Goal 6.1: To sustain Santa Rosa County's abundant and vital natural resources for current and future residents, recognizing these resources as invaluable contributors to human health, quality of life, and economic sustainability.

Objective 6.1.A: Conserve, appropriately use, and protect the quality of waters that flow into the bays, bayous, Santa Rosa Sound, and the Gulf of Mexico through appropriate land use planning, environmental regulation, and education.

Policy 6.1.A.1: Wetlands protection in Santa Rosa County will continue to be a cooperative effort between the County, the public, the Florida Department of Environmental Protection (FDEP), the U.S. Army Corps of Engineers (USACOE), and the Northwest Florida Water Management District. For purposes of this Comprehensive Plan, wetlands are defined as those wetlands under the jurisdiction of the FDEP or the USACOE (jurisdictional wetlands). In reviewing applications for development approval (development orders issued by the County), the County shall use the National Wetlands Inventory Map, the Santa Rosa County Soil Survey, and digital ortho-photography as indicators of the potential presence of wetlands. However, it is the responsibility of the applicant to delineate any known jurisdictional wetlands on any site plan submitted for development approval. If a parcel is determined to have wetlands potential, the County will refer the applicant to the Florida Department of Environmental Protection, the Northwest Florida Water Management District, and/or the US Army Corps of Engineers for a site-specific wetlands determination and such determination shall be used to determine the buildable area of the parcel or lot. Protection or mitigation of the wetlands, as determined in the site-specific survey, shall be afforded during and after construction activities. In accordance with the permitting processes of these agencies.

Policy 6.1.A.2: When reviewing proposed amendments to the Future Land Use Map, onsite wetlands will be identified per the National Wetlands Inventory Map, the Santa Rosa County Soil Survey, or digital ortho-photography.

Policy 6.1.A.3: Land uses that are consistent with the Future Land Use Map will be allowed so long as they are designed to avoid or minimize impact on jurisdictional wetlands. Where avoidance or minimization is not possible, wetland impacts may be mitigated as required by the agency or agencies having jurisdiction at the time of development application.

Policy 6.1.A.4: New lots in residential or commercial subdivisions reviewed by the County pursuant to the applicable Land Development Code subdivision review requirements shall not be created and/or platted that do not contain sufficient buildable upland areas in order to provide a reasonable use for the lot under the requirements of the Comprehensive Plan.

Policy 6.1.A.5: Vegetated buffers will also be required between development and free-flowing streams, rivers, lakes, bays, basins, and bayous. Such buffers will have a minimum width of 15 feet. Minor encroachments are permitted for such things as docks, piers, or similar structures, and recreational access. Variances to this requirement shall only be granted when strict application of the requirement limits all reasonable use of the property as allowed by the Future Land Use Map. When development is designed to allow untreated stormwater to discharge into wetlands, a vegetated natural buffer shall be required in accordance with DEP standards and shall be designated on the site plan or recorded plat.

Policy 6.1.A.6: For the purposes of protecting the shoreline and/or wetlands, the County may allow (or require) clustering of development upland from wetlands or landward of the shoreline.

Policy 6.1.A.7: Illegal development in wetland areas shall be reported. Consistent with applicable law, it will be required that these areas shall be restored and/or mitigated.

Policy 6.1.A.8: Dredge and fill activities shall be reviewed and permitted by the appropriate agencies to assure that environmental impacts are minimized, and that the requirements of the County are met before final approval is granted.

Policy 6.1.A.9: Reserved.

Policy 6.1.A.10: Septic tanks and their associated drain fields shall be prohibited within wetland areas unless permitted by the Florida Department of Health/County Health Department. The use of septic tanks in Garcon Point and the area South of East River will be further limited as detailed in Policy 4.1.B.7 of the Infrastructure Element.

Policy 6.1.A.11: The County shall discourage the discharge of any new or upgraded public or private sanitary sewer facility into the estuarine waters of the County.

Objective 6.1.B : To conserve, appropriately use, and protect natural groundwater recharge areas and wellhead protection areas.

Policy 6.1.B.1: The County shall protect water quality by restricting or prohibiting activities known to adversely affect the quality or quantity of identified water sources including natural groundwater recharge areas, wellhead protection areas and surface waters used as a source of public water supply. In addition, the County adopts wellhead protection zones of 500-foot radius for Floridan Aquifer and Sand and Gravel Aquifer public supply water wells, measured from the center of the wellhead. Activity within these zones will be limited according to the standards found in Policy 4.4.B.10 of the Infrastructure Element.

Policy 6.1.B.2: In cooperation with the Northwest Florida Water Management District, the County shall implement any emergency water conservation plans necessary to protect water sources during periods of insufficient supply within the Floridan or Sand and Gravel Aquifers.

Objective 6.1.C: To protect air quality in Santa Rosa County in order to maintain a healthy living environment for all residents.

Policy 6.1.C.1: The County shall maintain air quality within its jurisdiction in conformance with state and federal air quality guidelines. The County shall notify the operator of any facility that is believed to be degrading air quality within the County of such degradation. In addition, the County shall notify the appropriate regulatory agency and encourage the agency to investigate the potential violation of air quality standards and guidelines.

Policy 6.1.C.2: New developments with the potential to emit pollutants into the air will be required to obtain the necessary permits from the Florida Department of Environmental Protection or the U.S. Environmental Protection Agency prior to authorization of a development permit by the County.

Policy 6.1.C.3: The County shall continue to require any development with point source emissions which may degrade air quality to comply with all applicable federal and state regulations regarding emission control. These regulations may include the installation of scrubbers, emission treatment facilities and the like.

Policy 6.1.C.4: The County shall continue to cooperate with the Department of Environmental Protection so that minimum air quality levels, established by the Department, are maintained.

Policy 6.1.C.5: The County shall encourage the development of ancillary or neighborhood type commercial development near or adjacent to residential centers for the purposes of decreasing air pollution generated by automobile travel.

Policy 6.1.C.6: The County support alternative transportation choice such as mass transit and bicycle and pedestrian options.

Objective 6.1.D: To conserve, protect, and appropriately use soils, minerals and native vegetative communities including forests.

Policy 6.1.D.1: The County shall continue to enforce regulations in the current building code that limit land uses or construction techniques to those compatible with soil conditions specific to the site. The regulations shall include boring and soils test conducted by testing facilities licensed by the State of Florida, when necessary.

Policy 6.1.D.2: The County shall continue to cooperate with officials of other local governments within Santa Rosa County to conserve, appropriately use, or protect unique vegetative communities located within more than one jurisdiction.

Policy 6.1.D.3: Extraction of minerals or other natural resources shall be permitted only where compatible with adjacent land uses and where minimal resource degradation will occur. Also, resource extraction in environmentally sensitive areas that cannot be restored shall be prohibited. Note: It is not the intent of this policy to impact routine silvicultural or agricultural activities.

Policy 6.1.D.4: The County shall require the protection of certain trees during development or construction activities. The location of protected trees shall be included on site plans submitted for approval so that identification of these resources, and protection for the resources, is accommodated in advance of development approval.

Policy 6.1.D.5: The County shall coordinate with State and Federal agencies on new available vegetative and wildlife data at least once a year.

Policy 6.1.D.6: The County shall require the preservation of native vegetative communities on County owned land to the maximum extent feasible.

Policy 6.1.D.7: Commercial mining and excavation activities shall be prohibited within the Conservation/Recreation areas designated on the Future Land Use Map.

Objective 6.1.E: To conserve and protect environmentally sensitive lands. Environmentally sensitive lands are defined as wetlands under the jurisdiction of the Florida Department of Environmental Protection or the U.S. Army Corps of Engineers; floodplains as identified by the Federal Emergency Management Agency; free-flowing streams, rivers, lakes, bays, basins, and bayous; and wildlife habitat within publicly-owned lands managed for conservation use.

Policy 6.1.E.1: Consistent with Policy 1.1.D.4 of the Future Land Use Element, the County shall require buffers between development and environmentally sensitive lands. The purpose of the buffer is to protect natural resources from the activities and impacts of development.

Policy 6.1.E.2: New public infrastructure shall be planned and designed to be compatible with adjacent land uses, both existing and future, and shall not promote increased development located in environmentally sensitive lands beyond that allowed by the Future Land Use Map.

Objective 6.1.F: Conserve, appropriately use and protect fisheries, fishery habitats, wildlife, wildlife habitats and other marine or wildlife resources in the County.

Policy 6.1.F.1: The County shall cooperate with the Department of Environmental Protection, the Florida Fish and Wildlife Conservation Commission, or other State or Federal agencies so as to provide the fullest protection to marine or wildlife habitats that may be impacted by existing or proposed development within Santa Rosa County. The County shall forward to the regulatory agencies copies of application for development approval anytime such application may impact the resources described in this policy or Objective 6.1.F.

Policy 6.1.F.2: The protection of critical habitat shall be evaluated on a site development basis. For developments on property known to support endangered or threatened species and species of special concern of plants or animals, the developer shall be required to notify the appropriate Federal, State and Regional agencies and must comply with the appropriate guidelines and laws that protect endangered or threatened species and species of special concern.

Policy 6.1.F.3: All species of sea turtles which nest on the sand beaches fronting the Gulf of Mexico shall be protected from human interference including, but not limited to, beach re-nourishment, beach front lighting, coastal construction, armoring, erosion control structures (sandbags, geoweb) and mechanical beach cleaning which could harm sea turtles and their nesting sites during nesting season. This protection shall be afforded during the FDEP coastal construction permitting process.

Policy 6.1.F.4: Development of vacant lands adjacent to Outstanding Florida Waters, Aquatic Preserves, Wildlife Sanctuaries, State Preserves, Sanctuaries and Wildlife Management Areas shall be designed to a scale and intensity which is consistent with the existing adjacent uses; and shall be required, at a minimum, to meet all applicable Federal, State and local drainage and water quality standards.

Policy 6.1.F.5: Seawall and other shoreline modifications shall be discouraged, or at a minimum set landward of, the mean high water line, except as provided by law.

Policy 6.1.F.6: The County shall continue to protect existing natural reservations as identified in the Recreation and Open Space Element of this Plan.

(Ord. No. 2016-25 , § 1, 12-12-16)