Florida's coastal future an agenda for the 1980s and 1990s : a report of the Governor's Coastal Resources Citizens Advisory Committee

[From the U.S. Government Printing Office, www.gpo.gov]

0
rt a s oasta ulure
An Agenda for the 1980s' and 1990s

-Y

-7t@ @-4

U@
w"

r4;
7

A REPORT OF THE GOVERNOR'S COASTAL RESOURCES CITIZENS ADVISORY COMMITTEE

COASTAL ZONE
NOVEMBER 1986 INFORMATION CENTER

HT Office of Coastal Management
393 Department of Environmental Regulation
F6 2600 Blair Stone Road, Tallahassee, Florida 32399-2400
d
= I YO% I
C Fi

F68
1986

OFFICE OF COASTAL MANAGEMENT STAFF

2600 Blair Stone Road
Tallahassee, FL 32301
(904) 488-4805

David Worley, Coastal Program Manager
Karen Wenzel, Regional, Local &CAC coordinator

Jim Stoutamire, Grants and Budget Administrator
Jim Eggert, Grants Coordination and Public Information
Cindy Cosper, State Agency Coordination
Ted Hoehn, Federal Agency Coordination

Fred Calder, Estuarine Research Manager
Lou Burney, Estuarine Specialist
Joe Ryan, Estuarine Analyst
Graham Lewis, Estuarine Analyst
Kevin Carman, Estuarine Statistician
Steve Schrop, Estuarine Biologist/ Computer Scientist

Wayne Ashemore, Cartographer
Barbara Huston, Administrative Secretary
Cheryl Garcia, Secretary

Tina Bern'd-Cohen'CAC Consultant
1068 Jackpine Street
West Palm Beach, FL 33414
(305) 793-4954

COASTAL ZONE

YNFORMATION CENTER

FLORIDA COASTAL RESOURCES
CITIZENS ADVISORY COMMITTEE

Alison Fahrer, Chair Jerry Sanson, Executive Dir.
Monroe County Commissioner organized Fishermen of
Islamorada, FL Florida
Melborne; FL

Peter Baljet, Vice-Chair Sam Shannon
Director, Water & Sewer Dept. Asst. County Administrator
City of Hialeah Gardens, FL Palm Beach County
Diane Barile West Palm Beach, FL
Director, Marine Resources Douglas Shelby
Council of East Central Fla Executive Director
Melbournel FL Florida Petroleum Council
Tallahassee, FL
Wayne Daltry
Executive Director Nancy Stroud
SWFRPC Burke, Bosselman &
Fort Myers, FL Weaver, P.A.
Boca Raton', FL

William Fehring, PhD Shirley Taylor, PhD
Greiner Engineering Services Institute of Molecular
Tampa, FL 33630 Biophysics, FSU
Tallahassee, FL
Porter Goss
Lee County Commissioner Muriel W. Wagner
Ft. Myers, FL' County Commissioner
Pensacola, FL
Julie Morris
New College, USF Ex Officio Members
Sarasota, FL
Kathleen Shea Abrams
George Musson FIU/FAU Joint Center
Mayor, New Smyrna Beach North.Miami, FL
.New Smyrna Beach, FL
Wade Hopping
Peter A. Quincy Hopping, Boyd, Green, P.A.
Environmental Affairs and Sams
Florida Power and Light Tallahassee, FL
Juno Beach, FL
Nathaniel Reed
James Rester,** SFWMD Board
President Hobe Sound, FL
Amelia Island Company,
Amelia Islani, FL

elected chair 'Ll'or 1987 elected vice-chair for 1987

TABLE OF

Page
EXECUTIVE SUMMARY ......................... o....... 1
INTRODUCTION o .................... o........... 7

COASTAL PROGRAM OBJECTIVES AND ACCOMPLISHMENTS 9

RECENT INITIATIVES AND THE FL,0RIDA COASTAL
MANAGEMENT PROGRAM ..,.o .................... 15

COASTAL MANAGEMENT CHALLENGES AND
91, RECOMMENDED ACTIONS ............................ 18

List of References ........... o........ .... 54

APPENDICES

A.Summary of the Florida Coas-:a!
Management Program ... .................... A-1

B Coastal Management InteragencY Management
Committee Membership Lis-:@ .....I.......... o B-1

C Coastal Management Interagency Advisory
Committee Membership Lis . ................ C-1

EXECUTIVE SUMMARY

The Governor's Coastal Resources Citizens Advisory
Committee was appointed to advise the Governor and Cabinet,
state agencies, and the Legislature on ways to improve
coastal management in Florida. To meet this objective, the
Committee has identified major coastal issues facing
Florida in the 1980s and 1990s and is proposing a series of
recommended actions to strengthen the state's ability to
meet these challenges.

Many improvements have occurred in coastal management
since the 1970s. This report summarizes objectives and
accomplishments of the Florida Coastal Management Program,
identifying where the program has improved the capabilities
of state and local agencies to address a variety of coastal
resource issues.

Recent federal, state, and local coastal management
initiatives and directives are changing the context within
whic'h the Florida Coastal Management Program operates. The
Congressionally reauthorized Coastal Zone Management Act, a
National Estuary Program, and Florida's new comprehensive
planning and management process are examples of such
initiatives. This report outlines a coastal agenda for
Florida recognizing the impact of these initiatives on the
state coastal program.
The Coastal Resources Citizens Advisor'y Committee is
recommending state action in thirteen coastal.issue areas.
First priority agenda items for 1987 should include
improving cocrdination among state level coastal management
agencies; increasing protection of our estuaries; and
addressing tlie crisis of our eroding coast line.

Beaches, coastal storms, public access, habitat
protection,,ocean and fisheries resources, environmental
education, citizens participation, funding for coastal
resource protection, and effective local coastal programs
are identified as critical long-term coastal management
challenges facing Florida.

This report will be forwarded to the Governor and
people interested in Florida"s coastal future. Many of the
recommendations were discussed at a coastal management
conference held on Miami Beach September 29 through October
1, 1111, entitled "Florida's Coastal,Fut-ure: The Challenge
Remains." In the coming years, Florida must continue Its
strong commitment to sound coastal management.

PAGE 1

Summary of Recommendations

The Coastal Resources Citizens Advisory Committee
will continue to promote sound coastal management and
actively participate in accomplishing those improvements
needed to meet the challenges of protecting Florida's
coastal heritage. This report contains recommended actions
formalizing the Florida Coastal Management Program, as
part of the new growth management system, and for
addressing several coastal issues in coming years. The
recommendations of the Governor's Coastal Resources
Citizens Advisory Committee are summarized below.

1. IMPROVE COORDINATION AMONG STATE LEVEL COASTAL
MANAGEMENT AGENCIES.

* As a priority in 1987, establish by statute the
Interagency Management Committee to coordinate state
agency implementation of the coastal goals and
policies of the State Comprehensive Plan and the
Florida Coastal Management Program network;

* designate the Governor, Lt. Governor, or Chief
of Staff to chair the Interagency Management
Committee;

* update the role of the Florida Coastal Management
Program in a new Environmental Impact Statement,
defining the role of the coastal program and the
Interagency Management Committee in the new state
planning and management process.

* use the Coastal Resources Citizens Advisory Committee
to review agency functional plans for pressing
coastal issues which should be addressed.

2. INCREASE PROTECTION OF FLORIDA'S ESTUARINE SYSTEMS.

* as a priority in 1987, the Interagency Management
Committee establish a working Group to develop a
comprehensive basin-wide approach to estuarine
protection to manage the input of freshwater flow and
point and non-point pollution into our estuaries.

* for selected priority estuaries, develop and
implement cooperative basin-wide management
programs to monitor and address estuarine problems.

* explore user fees and other funding sources
for estuarine research and management.

PAGE 2

3. SUPPORT COMPREHENSIVE BEACH PLANNING AND MANAGEMENT.

� develop and implement a Comprehensive Beach Management
Plan to address the diverse problems affecting
Florida's eroding and changing shoreline, employing a
combination of appropriate measures: renourishment,
inlet sand transfer, feeder beaches, armoring,
building setbacks, retreat, abandonment and
acquisition.

� incorporate the comprehensive beach management plan
findings and requirements into the coastal management
element of local comprehensive plans.

� as a priority for 1987, initiate state actions to
address our coastal erosion crisis.

the Legislature establish and fund a program to reset
and update the Coastal Construction Control Lines
and the 30-year Erosion Zone Projections, at -the
same time every five years or after a major storm
event. Resetting the 13 CCCLs by 1988 should receive
priority funding and staffing.

4. CONTINUE WITH RESPONSIBLE HAZARDS MANAGEMENT.

* implement coastal hazard management solutions
identified in the Interagency Management Committee's
Hurricane Post-Disaster Case Studies Report.

* establish creative mechanisms for selective
procurement of threatened or damaged coastal
high-hazard properties and structures, including
special tax assessments for beachfront development
to pay for post-disaster acquisitions.

urge Congress, the Federal Emergency Management
Agency, and the State Legislature to maintain federal
c*ommitment to natural disaster planning and
disaster assistance.

5. MANAGE OUR OCEAN AND NEAR-SHORE RESOURCES.

establish a ComDrehensive Ocean Resources Pol'icv Plan.

PAGE 3

6. PROTECT OUR FISHERIES RESOURCES FOR THE LONG-TERM
PUBLIC BENEFIT.

protect and restore quality fish and shellfish habitat
and manage freshwater flow into estuaries
to support both commercial and recreational resources.

examine and establish user fees, where appropriate,,
(such as a Saltwater Fishing License Fee), to
pay for fisheries research, enforcement and
management.

provide adequate funding for comprehensive and
integrated fisheries research and management.

7. ACQUIRE NEEDED LANDS FOR COASTAL RECREATION AND
ENVIRONMENTAL PROTECTION.

maintain, at increased funding levels, the state fee
simple land acquisition programs.

aggressively employ all tools available to acquire
and manage lands, especially 'Less than fee simple
acquisitions techniques.

finalize and implement the Department of
Environmental Regulation tracking system for wetlands
acquired through mitigation permitting.

8. FACILITATE PUBLIC/PRIVATE PARTNERSHIPS IN LAND
ACQUISITION AND MANAGEMENT FOR ENVIRONMENTAL
PROTECTION.

create a State Land Trust with flexible authority
and funding to facilitate public/private
partnerships in land stewardship,

9. ENSURE PUBLIC ACCESS TO BEACHES AND COASTAL WATERS.
*'require public access dedications as a condition
of beachfront development.

*aggressively pursue donations from major land holders
and innovative acquisition techniques.

*esta@,lish policies, regulations and programs to
assure long-term public.access to beaches and
.coastal waters.

PAGE 4

10. EDUCATE CITIZENS ABOUT OUR ENVIRONMENTAL ISSUES.

� establish by legislation a statewide environmental
education program to teach our children and adults
about our natural resources and ways to participate
in protecting Florida's environmental future.

* feature the natural resource base of Florida's
tourist and recreational economy in the State
Department of Commerce advertising campaigns.

� support the recommendations of the Council on
Comprehensive Environmental Education.

11. PROVIDE FOR MEANINGFUL CITIZENS PARTICIPATION IN THE
FLORIDA COASTAL MANAGEMENT PROGRAM.

* establish a meaningful citizens standing process on
coastal management and environmental issues.

* provide assistance to local governments to facilitate
-citizen involvement in the local planning and land
development regulation process,

* utilize the Florida Coastal Management
Program and the Coastal Re-sources Citizens Advisory
Committee*to maintain coastal communications with
the public.

12. STRENGTHENCOASTAL RESOURCE PROTECTION PROGRAMS
AND FUND COASTAL MANAGEMENT OBJECTIVES.

Require the Interagency Management Committee to
rev_'Lew and rank,natural coastal resource protection
programs which warrant priority state financial
support.

a,,D
propria-l-e $20 million per year over the next five
years, for state, regional and local planning,
giving priority funding, to local coastal elements.

appropriate funds to 'Lill major state and regional
planning data gaps and technical assistance needs.

seek major,new funding sources and local option
taxing powers to pay for implementation of the
coastal objectives of the State Comprehensive
Plan.

appropriate'adequate funds for res.eting the Coastal
Construction Control Lines and establishing the
30-Year Erosion Zone Projections in a timely manner.

PAGE 5

t
13. SUPPORT THE ROLE OF LOCAL GOVERNMENT IN
COASTAL MANAGEMENT.

� fund local planning and management requirements,
fill data gaps, and establish new local option
taxing powers to pay for local implementation of
coastal objectives.

� the state develop technical expertise to assist
local government planning.

� the state pursue creative techniques for
intergovermental planning and management of
critical coastal ecosystems.

PAGE 6

INTRODUCTION

Florida's leading attraction is its coast: its ocean
and gulf breezes, outstanding sandy beaches, sunlit blue
waters and diverse aquatic biology. People place a high
value on living near or on the water's edge. Eight out of
ten of Florida's 10.9 million residents live in the 37
coastal counties bordering Florida's 11,000 mile long
shoreline. Each year, more than 40 million tourists visit
Florida to enjoy our tropical paradise and over 5..2 million
anglers engage in recreational saltwater fishing.

Almost everybody wants a piece of coastal Florida. By
the year 2000, we will be the third most populated state in
the country, and 82% of the state's growth will be in
coastal areas. Of the 6,000 new residents we gain each
week, almost 5,000 will settle in the coastal area.

Coastal management has evolved as a governmental
response to strong public sentiment that the continued
destruction of our nationis coastal habitat must stop.

No longer is it acceptable or sensible to destroy
dunes, mangroves, wetlands, seagrasses, scallop beds,
hardwood hammocks- those very natural features which
attracted people to the coast in the first place.

With mozt of our barrier islands already urbanized,
development pressures are intensifying around our
estuaries. It is critical that we stop further pollution
of our estuaries.

We are just beginning to understand the complexity of
our marine and estuarine systems and man's impact on those
systems. We know, for example, that commercial and'
recreational overfishing., stormwater runoff, dredging,
habitat destruction and increased turbidity each contribute
tc the decline of our estuaries,and the near-collapse of
many fisheries in Florida.

Along with protecting the coastal resources that still
remain, we must provide public access and balanced use of
these resources. For those who choose to live near the
water@s edge, hurricane -evacuation and restrictions.on
building in the coastal high-hazard areas are essential.

Balancing the c 'ompeting demands placed -L*.n our limited
and unique coastal resources is what coastal management in
Florida is,all about. Through greater understanding,
coordination and management of development impacts on our

PAGE 7*

marine and estuarine systems, we can prevdnt their further
pollution and degradation and aid in their restoration.

It is imperative that we protect our natural coastal
resources for the long-term health of our living marine
resources and to maintain the quality of life we know as
Florida.

Focus

While the coast 'al management program will remain
active in addressing diverse problems, the Coastal
Resources Citizens Advisory Committee recognizes a need to
emphasize priority issues for 1987-1988. Among the major
areas of emphasis are improving coordination among state
level coastal management agencies; increasing protection of
Florida's estuarine systems; and addressing Florida's
severe coastal erosion problems.

PAGE 8

COASTAL PROGRAM OBJECTIVES AND ACCOMPLISHMENTS

The Florida Coastal Management Program is operated
under the authority of the Florida Coastal Management Act
of 1978 and the Federal Coastal Zone Management Act of
1972, as amended. The state coastal program was approved
by the federal,government in 1981 as being consistent with
federal law; at the same time, it was deemed consistent
with state law.

Federal program approval has been important to
Florida, since it makes Florida eligible for federal
coastal grant monies and gives the state authority to
review federal activities for consistency with our state
coastal management program.
In-the five years between 1981 and 1986, Florida
received $9.35 million in federal coastal grants, which
were matched by 20% in state and local funds. The program
has funded over 125 coastal projects to benefit Florida's
coastal area. For FY'86-87, $1.9 million in federal funds
will provide seed money for an additional 29 outstanding
projects on specific coastal.resource and environmental
'issues.

Since 1981, the Florida Coastal Management Program has
provided the framework for the state's coastal management
efforts. It has focused attention and federal funding on
the coast and coastal-related issues. The program's unique
purpose and function is to improve the state's coastal
resources management through more effective coordination
between state agencies and local government. Through the
state Interagency Management Committee, it has coordinated
the 27 'coastal laws and 16 separate agencies which comprise
the Florida coastal network. (See Appendix A for a
descriptive Sum mary of the Florida,Coastal Management
Program)

The purpose of the Florida Coastal Management Program
is .1to,pror-ect, maintain and develop coastal resources
through coordinated management.' F4ve major objectives of
the Florida Coastal Management,,Program have been:

(1) to improve protection of our coastal resources;
(2) to mitigate storm hazards;
(3) to make the federal consistency process work;
(4) to distribute federal grant funds consistent
with the "issues of special focus"; and
(5) to improve coordination of state agencies
involved in coastal management.

PAGE 9

The Florida Coastal Program has made substantial
progress in accomplishing these objectives for the public
benefit. Highlights of coastal program activities and
accomplishments are provided below:

Coastal Program Accomplishments 1981-1986

The Florida Coastal Management Program has assisted state
agencies and local governments in addressing coastal
problems and opportunities.

COASTAL RESOURCE PROTECTION has been a
major focus of the coastal program:

Apalachicola Bay Protection Act. This 1985 Act culminates
years of cooperative coastal funded studies to address
water quality, fisheries and estuarine issues along the
Bay. The Act establishes a unique state and local
partnership to manage the bay through state funding of
sewage treatment facilities and local regulation of
.density, population and pollutants.

Indian River Lagoon Initiative. This interagency
Management Committee (IMC) sponsored activity has brought
over 'DO state, regional and local governments together to
address the unique problems and needs of the lagoon area.
Based on IMC recommendations,the 1986- legislature
established a new branch office for DER in Melborne to be
jointly staffed by DNR personnel for on-site response to
lagoon problems; and provided.funding for staff to manage
tlie 7 aquatic preserves in the lagoon area.

Tampa Bay Management Plan. With coastal funds, the state
and Tampa have.investigated the loss of seagrass beds in
the Bay, the level,of pollution in sediment samples, and
.initiated plans for the future of Tampa Bay. The Tampa Bay
Management Committee is working on implementation
strategies.

Coastal Lands Acquired. Through the Save-Our Coasts
program, Florida has acquired thousands of acres of
valuable coastal properties. For example: over 10,000 acres
a
on the.Guana River in St. Johns County;,208 acres for,
I g -
Henderson Beach in Okaloosa County; 434,acres for Lovers
Key in Lee County; and 37 acres-for an addition to Bahia
Honda'State park in the Keys.

PAGE 10

MAW

Floodplains Protected. Through the Save Our Rivers
program, thousands of acres of floodplain areas have been
acquired.to maintain the detrital flow into our estaries.
For example, most of the Apalachicola River floodplain has
been acquired through Save Our Rivers and earlier state
acquisition programs.

Shellfish Beds Protected. The Interagency Management
Committee has just begun work to address the increasingly
common problem of shellfish bed closings around the.state.

HAZARDS MANAGEMENT is a major concern in Florida,
as demonstrated by $140 million in damages
caused by 1985 Hurricanes Elena and Kate:

State Gets Ready For Hurricanes. The coastal program has
provided $845,000 for hurricane evacuation planning and
hazards mitigation. For example, during Hurricanes Kate
and Elena, Pinellas and West Florida counties evacuated
their people fast and safely. Well marked evacuation
routes, good communication systems and a defined chain of
command all prevented the loss of life during these storms.

Tampa Bay Hurricane Loss Analysis. The Tampa Bay Regional
P anning Council used coastal tunds to evaluate the
economic risk to the region posed'by hurricanes. The study
projects that the structural loss from a "worse case" major,
storm will cost over $9.6 billion. This information is
critical for publ.ic officials concerned with disaster
relief funding.
Post-'Disaster Redevelopment Policy. The state has
struggled with the policy issues of post-disaster
redevelopment and ways to prevent the recurring damage and
rebuilding when Florida coasts are struck by violent
storms. To facilitate state and local decisions, the IMC
developed a "Reconstruction Evaluation Matrix". It
identifies the economic, environmental and social factors
affecting the decision to rebuild, relocate or abandon
coastal buildings and infrastructure destroyed by coastal
storms. ln@addition, the Department of Community Affairs
adopted a "Post-Disast-er Redevelopment Rule" (9G-13) which
requires that local governments anticipate damage.-@--o public
inirastructure and redevelopment options. Florida can save
billions of doll.ars in future public investments through
sound development and redevelopment policies. for coastal
high-hazard areas.

PAGE 11

I I
e Limits Development in Coastal High-Hazard Areas.
l
considerable study and discussion through the coastal
am, 1985 Legislation prohibits construction of major
@lopment seaward of the 30-year erosion zone and
bits subsidies for public infrastructure in locally
nated coastal high-hazard areas. A barrier island
Itive order limits state expenditures in undeveloped
al high-hazard areas..

FEDERAL CONSISTENCY has provided a--significant
federal-state coordination process to head-off
conflicts regarding federal activities
affecting Florida's coastal zone:

ompanies Modify Plans. Through the federal
stency review process, several oil companies have
ied their plans for exploration in the Gulf of Mexico,
comodate the state's environmental concerns.

:e Gets Surplus Federal Beaches. Through federal
stency, Florida acquired an environmentally sensitive
I (Grayton Dunes) from the Federal Deposit Insurance
)oration (FDIC). Instead of selling the.property to the
st bidder, Florida pursuaded the FDIC to offer the
rty to the State.

rage Grounds Not Designated. The U.S. Coast.Guard
ded,-by rule, to designate offshore anchorage grounds
e Panhandle. Due to Florida's environmental concerns
i proposed anchorages in sensitive water areas, the
Guard decided not to desi gnate these anchorag e areas.

A123TAL GRANT FUNDS have provided "seed money" for 125
utstanding projects to address habitat protection,
port dredging, hazards response, beach access and
mpreliensive.planning. The program has just begun.to
mpact on how Florida manages its coastal resources:

ieries Habitat Mapped. The coastal program has spent $1
on to identify fisheries habit .at and loss due to'
lopment. Using the baseline habitat data, the state is
@ssi.ng critical fisheries habitat with an eye toward
cing and restoring critical habi-.a-:: and to boost,fish

@.;ic Pres erve Management Plans. Coastal funds have been
to develop managsment plans for over 30 of the
1-designated aquatic preserves.

PAGE 12

I
st
Alf
I pr
dE
pr
I dE
e)(
I cc
I
I oi
FE

mc
I tc
S t

cc
I -be
Cc
@hi
I pi
Ar
Ur
I ir
wi
I Cc
I
I
Fj
ml
I . dE
aE

er
I st
I Ac
U!

s *1
I

I
0

Deepwater Ports Helped With Maintenance Dredging and
b1sposal. Using a new approach which considers sealiment
chemistry in addition to water quality, the state is
facilitating permit decisions related to deepwater port
maintenance dredging and spoil disposal projects. This
approach better meets the needs of the port industry while
also protecting water quality for the public.

Sanibel Adopted Code To Protect Life and Property. The
City of Sanibel Island used a coastal grant to develop a
hurricane resistance construction code to-protect life and
property on the barrier island in the event of a major
storm. Millions of dollars in storm damage will be
prevented if a hurricane hits Sanibel, through
implementation of the code.

Martin County Acquired Ocean Beachfront For Public Access.
The County used coastal seed monies to study beach access
and parking needs on Hutchinion Island which led to passage
of a $5 million local bond issue to acquire prime
beachfront. property.

Naples Accelerated Construction of Public Beach Access.
Coastal funds were used to design public parking facilities
to improve access. The city subsequently funded the
construction o-L" these facilities.

Barrier Island Documentaries. The Sarasota County School
Board used coastal fu-n-d-s-7-or a barrier island documentary
and a coastal inlet.documentary which have received
state-wide acclaim and provided needed coastal education.

Pensacola Invested in the Redevelopment of its Urban
Waterfront. Pensacola mapped property ownership ar3und the
harbor a studied the feasibility for a marine and
waterfront walkway using coastal funds. This seed money
resulted in a $2.1 million city financing of bulkheads,
breakwaters, a small boat harbor'. and.a waterfront
walkway. The city also leased.6 acres for a $20 million
private waterfront condo investment.

IMPROVED COORDINATION of,state coastal agencies has been
achieved. Through the Interagency Management Committee
Florida has developed good working relationships
to.assist in solving coastal problems:

Monro'e County Comprehensive Plan. The IMC has effectively
coordinated state review of environmentally sensitive
aspects of the Monroe County Plan.

PAGE 13

State Consensus on Hazards Management. Th fe IMC has
developed consensus among state agencies and provided
guidance to the Governor, cabinet and Legislature on
responsible hazard management measures, including
infrastructure investments on high-hazard coastal barriers
and post-disaster redevelopment policies.
IMC Regularly Deals With An Arrayof Coastal Issues. Major
Issues such as federal consistency controversies, the
handling of environmentally sensitive areas, and
recommendations for coastal funding have,been routinely
handled by the Interagency Management Committee.

The COASTAL ADVISORY COMMITTEE has brought the
citizens views to bear upon the coastal program.

Congress and Federal Agencies heard from Citizens. The
Committee supported Reauthorization of the CZMA and the
Coastal Barrier Resources Act before Congress and federal
agencies, and voiced concerns about OCS Oil and Gas Leases
in sensitive coastal waters 'Like the Florida Keys.
Governor-and Legislature Advised. The Committee supported
coastal and growth management legislation, particularly
barrier island legislation, local coastal planning
requirements, and state funding for coastal program work.
.Most of thexecommendations contained in a Coasta]. Program
Initiatives report which the Committee subm-itted to _tTe-
Governor in 1983 have been acted on by the Legislature.

Coastal Information Communicated. The Committee held
meetings throughout the state with public attendance and
media coverager sponsored "Coastweek 185 and '86,
participated in two major state coastal conferences,
distributed The Water's Edge,.Color the Coast, "Coastal
Update" Newsletter, Recommendations for Saving Our Beaches,
and Other coastal information handouts.

PAGE 14

RECENT INITIATIVES AND THE
FLORIDA COASTAL MANAGEMENT PROGRAM

Reauthorization of the CZMA

In March 1986, Congress renewed its commitment to
coastal management by reauthorizing the Coastal Zone
Management Act for five years. This legislation makes
coastal states eligible for $30-$40 million in federal
funds annually to run the Coastal Management Programs.
Florida will receive $1.9 million in federal funds for
fiscal year 1986, with similar sums expected annually
through 1990.

Florida and other coastal states rely heavily on funds
from the Coastal Zone'Management Act to implement their
individual programs. Without it, efforts to manage the
coast nationwide would have been severely restricted and in
many cases eliminated. Florida, through the Governor, the
Coastal Advisory Committee, and the Congressional
Delegation strongly supported the reauthorization and
continued national interest in protecting our coastal
resources.

Under the new law, coastal states and territories must
assume a progressively greater share of the program costs
needed to manage and protect 95,000 miles of U.S. shoreline
and coastal resources. By 1990 individual states will be
expected to provide 50% of total program costs.

However, the reauthorization is not a "phase-out".
The-current legislation actually allows a modest increase
in the total federal funding each year for the next five
years. Combined with increased financial responsibility
for the individual states, this will encourage,the national
Coastal Zone Management Program to grow.
For-Florida, reauthorization of the CZMA'means that.
the 'state.coaszal program will be in a position to continue
@o address the even more challenging problems of marine and
estuarine pollution,,fi,sheries decline, overdevelopment and
inappropriate.development of coastal areas, hazards from
coastal storms, continued loss of public access, and the
need for integrated planning.

National Estuary Procram

In .1984 the Environmental Protection Agency created

PAGE 15

the Office of Marine and Estuarine Protection, as a way to
consolidate their management responsibilities related to
marine and estuarine pollution abatement under the Clean
Water Act and the Ocean Dumping Act. Under this new
office, the Environmental Protection Agency began a
National Estuary Program" (better known as the Near
Coastal Waters Initiative) to focus attention on our
estuaries and their need for protection, maintenance and
restoration.

This federal initiative has provided interest, focus,
attention and funding for joint federal/state estuarine
management programs. Chesapeake Bay and the Great Lakes
are mature federal/state programs which have benefit-ted
from this partnership. Narraganse-'Ctee Bay and Long Island
sound are more recent participants in this integrated
multi-agency management program.

The Environmental Protection Agency is encouraging
states, like Florida, who have nationally significant
estuaries to participate in the National Estuary Program.
This program offers Florida a major opportunity to work
with EPA and NOAA to focus federal and state funding on
monitoring and managing priority estuarine systems in
Florida.

Through the coastal program, Florida has already
identified deficiencies in our estuarine management
approaches. Estuaries which are polluted or under stress
are being studied. However, by pIrticipating in the
National Estuary Program, Florida can more rapidly develop
comprehensive management programs to protect and restore
the health of selected priority estuaries.

Growth Management Legislation

In 198.5, the Legislature set in motion a comcrehensive
tive ado
and integrated planning system. Legisla p@-ion of a
State Comprenensive Plan provides broad goals and policies
(including-coas.al and marine goals and policies) to guide.
-Florida into the 21st Century. The state agency functional
plans, regional policy plans, and local comprehensive clans,
will chart our course in reaching our growth management and
coastal,management- objectives.

The state agency functional plans will identify the
agencies' strategies and budget needs for,addressing
statewide coastal and estuarine protection issues. The
comprehensive regional policy plans will guide plann'Lng for
regional.issues such as hurricane evacuation. Expanded

PAGE 16

local planning requirements mandate that local governments
update their plans and regulations to address coastal
issues such as development in coastal high-hazard areas.
All of these planning programs must be completed in a
coordinated and consistent manner.

The Florida Coastal Management Program must perform a
central role in coordinating state -agency implementation of
the coastal and marine policies and objectives of the State
Comprehensive Plan. The Interagency Management Committee
should serve as a standing committee to help coordinate and
integrate implementation of the Comprehensive Plan, the
agency functional plans, and the state requirements
associated with local plans and regulations.

In addition to establishing the integrated planning
system, the 1985 Legislature addressed some nagging coastal
problems by limiting public investments on barrier islands,
requiring shoreline setbacks for major new developments
from high erosion areas, and strengthening wetland and
mangrove protection. The 1986 legislation provided for
comprehensive beach restoration and renourishment planning.

The Florida Coastal Management Program has provided
the catalyst for much of the coastal legislation enacted in
recent years. Coastal issues will continue to dominate
Florida's growth management agenda and the coastal program
will assist Florida in meeting our coastal challenges
head-on.

PAGE 17

COASTAL MANAGEMENT CHALLENGES
AND RECOMMENDED ACTIONS

Florida's coastal future faces many opportunities and
challenges. In the years to come, Florida must maintain
its strong commitment to sound coastal management.

Florida needs leaders who support implementation of
the comprehensive planning process and the State Coastal
Management Program. State commitment must include adequate
funding. State and regional agencies and local governments
need a Governor, Cabinet and Legislature to lead, inspire
and work with them to achieve the objectives of the State
Plan.

The "coastal and marine resource" goals and policies
contained in the State Comprehensive Plan provide clear
guidance. For example, policies to guide development away
from coastal high-hazard areas and to eliminate state
funding for infrastructure to barrier islands should be
kept intact and implemented. Preventive strategies to
protect priority bays and-estuarine areas are also
critical.

This report contains several recommended actions for
,.mprcving the Florida Coastal management Program and for
strengthening the.state's ability to address the major
coastal issues it faces in the 1980s and 1990s.

Although the Coastal Resources Citizens Advisory
Committee is recommending state action in thirteen coastal
ssue areas, the Committee recommends that first priority
agenda items for 1987 be to:

improve coordination among state level coastal
management agencies;

increase protection of our estuaries; and

address the crisis.of our eroding coastline.

The issues and recommendations'of the Coastal Advisory
Committee are discussed on the following pages.

PAGE 18

1. Improve Coordination Among State Level Coastal
Management Agencies.

The Office of Coastal Management in the Department of
Environmental Regulation is the designated lead agency for
the federally approved Florida Coastal Management Program.
The state Interagency Management Committee serves as the
institutional mechanism for coordinating state agency
activities and resolving multi-jurisdictional conflicts
related to the implementation of coastal laws and-programs.

Integrating, coordinating and guiding the everyday
agency implementation of the new State Comprehensive Plan's
coastal goals and policies through the network of state
coastal programs and activities is critical. The Office of
Planning and Budgeting (OPB) has the responsibility for
reviewing all state agency functional plans for consistency
with the State Comprehensive Plan, including agency budget
requests.

The 'Interagency Management Committee should be
mandated to help coordinate agency implementation of the
coastal goals and policies, as a standing committee for the
State Comprehensive Plan. The committee is needed to
assist key interagency efforts to address growth and
development issues in special management areas, to
coordinate state agency review of local coastal plans and
regulatory efforts, and to coordinate implementation of
agency functional plans.

It is paramount that the Governor or his
representative serve a major role on the Interagency
Management Committee and provide direct leadership in
guiding state agency policy. In turn, the IMC can keep the
Governor in 'the mainstream.of the issues vital to the
economy and health of the state.

As.sta-te laws which affect theFlorida Coastal
Management Program are amended, the program i's updated to
reflect these improvements. To 'date, the changes have
constit'uted "routine program implementation"'. However,
Legislative adoption of the State Comprehensive Plan and
mandated state agency,functional plans cons--tute major
changes to coastal management in Florida. The purpose,
scope and role of t-he Florida Coastal Management Program
needs to be updated in a new "-.nvi.ronmen'tal Impact
Statement" to ref.le@7t its role and new Driorities under the
new planning system. By revis,ing the EIS, Florida can more.
appropriately direct federal funding and federal

PAGE i9

consistency to accomplish state objectives.

ACTION ITEMS

In order to use the Florida Coastal Management Program
network to coordinate state agency actions in the coast and
to implement the state coastal goals and policies, the
Committee recommends:

As a priority in 1987, establish by statute the
Interagency Management Committee to coordinate state
agency implementation of the coastal goals and
policies of the State Comprehensive Plan and the
Florida Coastal Management Program network.

Designate the Governor, Lt. Governor or Chief
of Staff as permanent chair to the Interagency
Management Committee, with the IMC coordinating
actions on coastal issues affecting state agencies.

Update the role of the Florida Coastal Management
Program in a new Environmental Impact Statement,
defining the role of the program and the IMC in
the new state planning and management process.

Use the Coastal Advisory Committee to periodically
review agency functional plans to assure that
pressing coastal management issues are addressed.

PAGE 20

2. Increase Protection of Florida's Estuarine Systems.

Estuaries are areas where freshwater from the land
mixes with sea water. Their importance stems from the fact
that the vast majority of our recreationally and
commercially important salt water species depend on
estuaries for their survival.

Florida is blessed with thirty major estuaries of at
least three different biogeographic typ-es: marsh-systems of
Northeast Florida; mangroves/seagrass systems of South
Florida; and the riverine/hardwood swamp systems of the
Panhandle.

The sheer size and diversity of estuarine systems to
be protected in Florida makes us a unique state. These
characteristics, coupled with our rapid growth and social
diversity, presents formidable challenges to ensuring the
future viability of our estuarine resources. However, it
is critical that Flor-L-da actively and agressively plan,
regulate and manage our estuarine systems to protect our.
quality of life for future generations.

Florida has been the leader in providing comprehensive
planning, growth management and environmental protection
programs. Through a variety of legislative and
administrative actions, numerous estuarine areas around the
state have been selected for special management and .
regulations (e.g., Aquatic Preserves, Areas of Critical
State Concern, Resource Planning and Management Areas,
Outstanding Florida Waters, State Parks and Preserves,
Estuarine Sanctuaries, Federal Parks and Wildlife
Refuges).

Restrictions cn dredging and filling of state-owned
submerged lands, protection of certain wetlands,,and
improvements in-industrial and municipal wastewater
treatment have reduced estuarine pollution.

The battery of laws and programs instituted over the
past 20 years have helped stave,off degredation of our
estuaries to some extent. Most large industrial discharges
of chemical pollutants have been removed, and in some
areas, such'as Escambia Bay, major improvements in
estuarine health have occurred. Florida has greatly
improved the levels of municipal waste treatment and is
continuing to improve waste streams of such facilities.
The state has essentially halted the types of dredge and
fill projects responsible for-phyically destroying major
parts of Boca Ciega Bay, Bi.scayne Bay and other maJor

PAGE 21

estuaries.

However, in spite of Florida's successes, continued
loss of seagrass beds, shellfish harvesting area closures,
unexplained declines in snook and other fish populations,
diseased fish episodes and periodic fish kills indicate
that our natural systems are under stress.

There is growing concern that some of Florida's
estuaries may be on the verge of experiencing drastic
declines in health, similar to those experienced by several
major estuaries in other parts of the U.S. (e.g.,
Chesapeake Bay, Long Island Sound, and Narragansettee Bay).

Coastal development has intensified to the extent that
non-point discharges from stormwater, agriculture and other
sources, as well as, overtaxed treatment systems are
jeopardizing the earlier gains in estuarine pollution
control and could ultimately require expensive remedial
actions.

Recent studies indicate that, in some estuaries,
stormwater runoff from urban development and agriculture is
a more serious source of estuarine pollution than
point-source discharges.' Toxic loadings are contaminating
our bay bottoms and living marine resources. Nutrient
enrichment and other non-point discharges into saltwater
and freshwater systems are adversely affecting our seagrass
beds.

Recent investigations by Florida's Department of
Environmental Regulation and others indicate that several
of Florida's estuaries (Hillsborough Bay, Miami River,
Biscayne Bay, Pensacola Bay, Indian River, and St. John's
River) are experiencing stress from physical modification,
over-harvesting of fish and shellfish, and chemical
loadings from stormwater runoff and point'-source
discharges.

These investigations also indicate that traditional
estuarine regulatory approaches have s'everal fundamental
deficiencies in terms. of providing adequate protection of
living resources. For example, regulations and technical
guidance.of=en do not clearly reflect distinctions between
fresh and saltwater systems, even though their differences
are significanZ.

Enforcement of stringent water Quality standards has
been shown -,:o be inadequate for pro,tecting.estuarine livinc,
resources from the effects of chemical contamination.
Chemical water quality of the, Miami River and Little River

PAGE 22

(Biscayne Bay) meets state standards, but the bottom
sediments are badly contaminated, demonstrating the need
for better ways to define and measure estuarine pollution.

There is growing evidence that the overall health of
estuaries is governed at least as much by the health of
bacteria and benthic organisms, as it is by the normally
emphasized marine grassbeds, mangroves and marshes. Recent
studies show that the microbiota account for a significant
proportion of an estuary's total biomass, and together with
benthic invertebrates, serve critical functions in
regulating nutrient fluxes.

Excessive nutrient loadings now appear as a much
larger threat to the health of Florida's estuaries than
previously thought. Excessive nutrient loadings could
result in rapid conversion of South Florida's clear-water,
grassbed dominated systems into turbid, phytoplankton
dominated systems- with devastating results to existing
fisheries.

Past pollution controls have been aimed pr.-Lmarily at
point-source discharges. However, harder to ccntrol
nori-point sources account for 5 0% to 90% of the heavy
metals found in state waters. They may also contribute as
much as 500 times the oxygen-demanding substance as
secondarily treated sewage.

Traditionally, uniform statewide standards have been
applied to pollution control. It 'is now known that
different types of estuaries vary markedly in their ability
to assimilate chemical pollution, implying a need for
estuary-specific criteria.

An especially cr--tical deficiency is that traditional
approaches are not capable of, reliably assessing estuarine.
pollution t-rends,'measuring the effectiveness of overall
pcllution abatement--efforts, or providing "early.warning"
of declines in estuarine health.

Interrelated with these technical limitations are
programmazic.deficiencies. Mos;t of Florida's programs lack
a'sta'tewide perspective within which they can be
effectively applied -.o address priority needs. Persistent
difficulties include: a lack of integrated, basin-wide
planning; inadequate basic data on systems; overlapping
agency jurisdictions; and an inability to focus 'on
problems. -The r.esult is ineffective allocation of manpower
and funding, as well as programs -,hat sometimes work at
cross-purposes.

PAGE 23

overcoming these technical and programmatic
limitations must be a high priority of the Florida Coastal
Management Program. The office of Coastal Management in
DER has begun an initiative to improve our understanding of
the health of Florida's estuaries and to develop
intergovernmental and interdepartmental strategies for
dealing with the problems in a timely and effective manner.

A formal mechanism exists for addressing complex
interagency problems in coastal areas- the Interagency
Management Committee. This executive.;-level committee has
been successfully used to address barrier island and
hurricane disaster issues, and is beginning to be used to
address estuarine management problems and opportunities for
improving management in specific estuarine systems such as
the Indian River Lagoon System and the Apalachicola Bay and
River System.

The Resource Planning and Management Committee process
(Section 380.045, F.S.) was established in 1979 to provide
a means for voluntary, intergovernmental cooperation to
investigate problems in specific areas and recommend
solutions. This process is also used to determine the need
for Area of Critial State Concern designation in certain
regions. Since 1979, ten-resource planning and management
committees have been established. The Charlotte Harbor,
Hutchinson Island, Northwest Florida Coast, and
Escambia/Santa Rosa Coast committees have addressed several
issues including coastal estuarine and bay protection. The
cooperative local, regional and state forum offered by this
approach, could be used in developing and implementing
basin-wide management strategies for Florida"s priority
estuaries.

For selected estuaries, like the Indian River Lagoon
and the Choctawhatchee Bay, water management districts are
providing technical resource information to address
resource protection in these'high growth areas.. In
addition, water manag .ement districts reaulate water qual4ty
and quantity and are working with local,governments to
manaae water and land resources.

At the state and federal level, there is a growing
recognition of the need to focus attent.-;.on and resources on
protecting living resources, improving the technical
foundations of regulatory programs, cleaning up past abuses
and preventing their reoccurance, managing the environment
by ecological units (basins'), and devel.oping'long-range
plans and programs to manage our estuaries Florida needs
statewide understanding abou-E-our major estuarine problems
and should develop s-atewide. approaches for 'preventive'

PAGE 24

actions, with increased emphasis on aligning estuarine
program goals, performance objectives, research, estuarine
regulations, and resource management actions. Building
technical competence is also critical. Due to the
complexity and differences between estuarine systems,
Florida should target priority estuarine areas for
basin-wide management strategies.

If Florida's estuaries are to survive the impacts of
projected population growth, major innovative actions are
needed through a joint federal-state-local estuarine
initiatives to better manage all land and water impacts
affecting our estuarine systems. Florida needs a "team
approach" to basin-wide estuarine management. To meet this
challenge, the interagency Management Committee should
establish an Estuarine Basin Working Group, composed of
state agencies, water management districts, regional
planning councils, local governments, affected parties, and F
the public, to prepare options and recommendations to the
Governor and Legislature for an integrated basin-wide
approach.

Critical to the success of an estuarine initiative is
adequate funding. Florida should explore user fees and
other stable long-term funding sources to pay for estuarine
research and management.

ACTION ITEMS

In order to protect the state's interest in our
complex, environmentally fragile and economically valuable
estuarine systems, we recommend:

* as a priority in 1987, the Interagency Management
Committee establish a working Group to.develop a
comprehens'ive basin-wide approach to estuarine
protection to manage the input of freshwater*flow
and point and non-point pollution into our
es6.uaries.

* F'or selected priority estuaries, develop and
implement cooperative 'interagency basin-wide
estuarine management programs.

*,explore user fees and other funding sources for
estuarine research and management.

PAGE 25

3. Comprehensive Beach Management Plan. '

over the years, the state has addressed beach
protection and coastal erosion problems through a variety
of piecemeal programs. For example, the Erosion Control
Trust Fund has provided state assistance for beach
renourishment and dunes protection projects and the Coastal
Construction Control Line Program has regulated development
on high energy beaches.

Severe erosion along many of our developed sandy
beaches prompted requests in 1985 for a major ($460
million) beach renourishment initiative. The initiative
was outlined in a Department of Natural Resources Report
entitled "Beach Restoration: A State Initiative". The
initiative was deferred until 1986, when the Department
submitted to the Governor and Cabinet and Legislature in
March 1986, "A Proposed Comprehensive Beach Management
Program For The State Of Florida."

The 1986 Legislature passed a bill (CS/CS/SB 432 and
CS/HB 281) mandating that the Department of Natural
Resources "develop and maintain a comprehensive long.-t-erm
management plan for the restoration of the state's
critically eroding beaches. The plan must be submitted to
the Legislature by March of 1987, and $500,000 was
appropriated to assist the Department in preparing the
plan..

Erosion is a serious pr oblem for much of Florida's
sandy beach coastline. According to Environmental
Protection Agency researchers, one quarter of the erosion
today is caused by rising sea level. But a predicted rise
in sea level,of one foot within the next 30 to 40 years
will drive much of the Atlantic and Gulf shoreline inward
by a hundred feet and some of it by more than a thousand
feet, according to EPA geologists.

Rising sea level and the gradual sinking of the United
States as the ocean rises, will become overriding factorE
in coastal erosion. In addition--tC--o eroding the shoreline,
a rise in sea level can boost-the frequency and extent of
coastal flooding and storm damage. Saltwater will intrude
in aquifers that provide drinking water for some
communities. Saline water will reach farther up rivers',
change flood patterns, and along with saltwater intrusion,
convert certain freshwater wetlands to saltwater species.
Coastal wetlands which are Presently situated between
developed uplands and the rising waters will be'unable to
migrate landward, and will be lost.

PAGE 26

The State of Florida and coastal communities should
incorporate rising sea level predictions into their
long-term coastal management plans. The economic
consequences of rising sea level must be anticipated and
managed to reduce eventual public costs. Better designed
drainage systems, greater shoreline setbacks, shoreline
retreat, beach renourishment, and other erosion responses
-must be considered in managing future coastal development.

The beach plan mandated by 1986 legislation falls
short in addressing the diversity of issues affecting
Florida's sandy beaches. Some of Florida's beaches are
accreting, and some are eroding so fast that beach
renourishment would be waste of public expenditures.
Rising sea level will make certain beach management
approaches obsolete in just thirty years from now. It is
critical that Florida develop a comprehensive plan for
managing all our beaches for the long-term public benefit.
Such a plan must contain a combination of appropriate
solutions to our long-term erosion problems including:

* stringent shoreline setbacks along undeveloped
and accreting beaches;

* beach renourishment for some highly developed
beachfronts;

* armoring, as an interim measures, for
certain developed high-erosion areas where
renourishment is not [email protected];
* inlet sand tran'sfer for some jettied inlets;

* gradual relocation, retreat or abandonment along
low-density high erosion beaches;

* land acquisition and limitations on public subsidies
to avoid inappropriate development and
redevelopment in coastal high-hazard;areas;

* transfer of certain risks from the public to tne
private sector.

The Comprehensive Beach Management Plan should be
developed by geomorphic districts which identify the
critical needs-of each major beach and dune system and-the
district should plans be,used as the basis for the
statewide plan. The plan should be prepared in phases over
a 'three-year period,, with a target completion date of-April
1990.

PAGE 27

-It is critical that the Beach Plan be developed in
consultation with other key state coastal agencies, through
the Interagency Management Committee.

The Coastal Construction Control Line Program provides
the cornerstone of Florida's current program for protecting
beaches and dunes and managing development along our high
energy beaches. The Division of Beaches and Shores issues
permits for development seaward of the Coastal Construction
Control Line, conditioning permits to protect beaches and
dunes and adjacent properties from advers@e impactsi
Structures are required to meet design standards for the
100-year storm event.

There are twenty-four program counties in the CCCL
Program. Nine county lines have been set since 1980; two
are pending. Thirteen county lines need to be reset. Rapid
development and redevelopment of our beachfronts warrants a
major state effort to reset out-of-date control lines. The
landward boundaries of the CCCL is the 100-year storm
event. However, shoreline erosion and major storm events
invalidate these lines at least every five Years. I'"- is
critical that developmenL along all.our sandy shoreline
areas be subject to the CCCL permit program,

In 1985, the Legislature amended Chapter 161, granting
the Department of Natural Resources authority to establish
.long-term (30-year) coastal erosion rates and.prohibit
construction of major units, such as condominiums and
hotels, in coastal locations that are predicted to erode
away in 30 years. The Department must decide on a
permit-by-permit basis what portion of an applicant's
property would be seaward of the seasonal high water line
in 30 years.
It was the'iegislative intent that*long-term erosion@
trends be used to regulate, coastal development activities.
However, the 30-year erosion projections 'and setback
statutes need refinement, particularly the seasonal high
water line requirements. The data, program objectives and
permit requirements of the 30-Year Erosion Program and the
CCCL Program should be reviewed and compared for possible
merger into one program.

ACTION 1-TEMS

In order to protect and manage our beach res.ources for
the long-term public benefit, we recommend:

develop and implement a Comprehensive Beach
Management Plan to address the diverse problems

PAGE 28

affecting Florida's eroding and changing shoreline,
employing a combination of approrpiate measures:
renourishment, inlet sand transfer, feeder
beaches, armoring, building setbacks, retreat,
abandonment and acquisition.

� incorporate the comprehensive beach management plan
findings and requirements into the coastal
management element of local comprehensive plans.

� As a priority for 1987, initiate state actions to
address our coastal erosion crisis.

� the Legislature establish and fund a program
to reset and update the Coastal Construction Control
Lines and the 30-Year Erosion Lines, at the same
time every five years or after a major storm event.
Resetting of the 13 CCCL's by 1988 should receive
funding priority.

PAGE 29

4. Coasta'I Hazards Management.

The state has made great strides in recognizing the
risky nature of beachfront development. We must move
@_orward to implement the state policies and programs to
manage activities in hazarous coastal areas, including
implementation of the Post-Disaster Redevelopment Rule
(9j-13).

In addition to eliminating public fundi *ng for further
development in coastal high-hazard areas, the state needs
to encourage property owners in high-risk areas to forego
building on these high-risk lands and perhaps to assist
owners of structures in high-hazard areas with relocation
or abandonment in the event of major storm destruction.

Creative funding mechanisms are needed, such as
special tax assessments" for beachfront development, to
help pay for post-disaster acquisition of damaged
properties and selective public procurement of high risk
properties. Forward-looking state and local coastal hazard
management programs could save government billions of
dollars in hurricane disaster relief assistance in coming
years.

In the spring of 1986, the Interagency Management
.Committee met with the Governor and Cabinet to discuss
recommendations for state action following the 1985
hurricanes Elena and Kate. State recommendations are
contained in the "Hurricane Post-Disaster'Case Stud.-Les For
Franklin County, Cedar Key and Indian Rocks Beach."

At the same time, the Interagency Management Committee
recommended changes to Governor Graham's 1981 Executive
.Order Number 81-105 regarding hazardous coastal area
develoomenz. ' These changes reflect new stat-e@policies
embodied in the Coastal Infrastructure Policy Act, the.
State Comprehensive Plan, and the amended Local Government.'
Comprehensive Planning Act.

Much of Florida's funding.,for emergency management,
natural disaster preparedness! and post-disaster
assistance has come from the Federal Emergency Management
Agency (FEMA). Recently,.FEMA has proposed significant
changes in i-:@s programs which would adversely affect the
State of Florida and local governments. FEMA wants a
disproporzionate share o-IL' disaster assistance funds to go
,!--o Nuclear Attack Prepareaness Planning, cutting off mosz
of Florida's Natural Disaster Planning Funds.

PAGE 30

Also, the Federal Emergency Management Agency has
proposed-a rule before Congress which would reduce federal
Disaster Assistance Funds, making states and local
governments pay for more of the public costs of hurricanes
and natural disasters. At present, FEMA pays 75% of all
eligible costs. For example, hurricane Kate caused $7
million in public damages. FEMA paid 75% of the costs.
Under the proposed rule, all damages under the threshold of
$11.1 million would be paid for by state and local
governments. For all eligible public damages between $11.1
million and $111 million, FEMA would pay 75%. Transferring
the multi-million dollar costs of hurricane-damage to ' state
and local government could bankrupt Florida in the event of
several major hurricane. land-falls.

ACTION ITEMS

In order to implement responsible hazard management to
protect life and property, minimize future risks in coastal
high-hazard areas, and privatize the risks and costs of
beachfront development, we recommend:

the Interagency Management Committee continue to
review and implement the solutions identified
in the Hurricane Post-Disaster Case Studies.
Report of March 24, 1986.

the state e.stablish creative mechanisms for
selective procurement of threatened or damaged
lp.coastal high-hazard properties and structures,
including tax incentives for conservation easements.

the state authorize local.governments to establish
"Special Tax Assessments" for all beachfront and
coastal high-hazard area development which
would go into a reserve fund to help.pay for
post-disast--,er acquisition of damaged,properties.

the state urge Congress,*the Federal Emergency
Management Agency, and the Florida Legislature
to maint'ain funding and commitment to Natural
Disaster Planning and to Disaster Assistance.

PAGE 31

5. Ocean Resource Policies Plan and Leasing Program.

In state and federal waters off Florida's coasts are
oil, gas and mineral resources, prompting interest in oil
and gas leasing, and ocean mining of sand and gravel,
phosphate, and heavy metal reserves. our marine waters are
also seen as sites for sewage effluent discharges. EPA has
been considering, but has placed a two year hold on,
allowing ocean incineration off our coasts.

Maritime industry relies on our shipping channels for
moving imports and exports. Coastal waters are used as
spoil disposal sites for dredged materials. Commercial and
recreational fishing industries rely on our highly
productive marine habitat, including offshore coral reefs
and seagrass beds, to support our fisheries.

The ocean and gulf waters of Florida are home to a
rich diversity of fish, shellfish, crustacea, sea turtles,
manatee, seabirds, and other living marine animals. These
living resources depend on the aquatic habitat for their
survival. 'Our marine waters serve many competing
inter ests.

Presently there are 270 active federal Department of
Interior (DOI) Outer Continental Shelf (OCS) leases in the
Eastern Gulf of Mexico, most clustered off the Panhandle
and off southwest Florida. All wells drilled so far have
neen considered "dry holes", but industry interest remains
high. In contract, off the South Atlantic coast, there are
currently no active OCS oil,and gas leases and a planned
November 1986 DOI lease sale may be postponed due to
falling oil prices and low industry interest.

Florida recently received the DOI proposed 5-year OCS
Oil and Gas leasing Program for 1987-1991. Under this
program, millions of acres off Florida will be leased.

Florida's'policy regarding.federa.' OCS oil'and gas
leasing off our coasts has,been not to object- to offshore
oil and gas exploration and dev,elopment, provided our
valuable economic and environmental resources are given
adequate protection. All 1985 drilling activities have met
State environmental daza requirements, biological
stipulations, and oil spill risk analyses prior to drill-'ng
commencement. However, under the 5-year plan DO.I couid
allow drilling despite insufficent oceanographic and
bi-ological resource da,-a, 7-hrear-ening potentially sensitive
environmental areas.

PAGE 32

The basic authority for leasing state-owned lands
(including leases in Florida's territorial waters) is
vested in the Board of Trustees of the Internal Improvement
Trust Fund, under Chapter 253. Nineteen oil and gas leases
have been issued for exploration in Florida's territorial
waters between the early 1940s and 1972. The majority have
been relinquished or modified. Coastal Petroleum in the
Gulf of Mexico (2.3 million acres) and Getty Oil
Corporation (now Texaco, Inc) in East Bay are still active.

Although hydrocarbons have never been produced
commercially from Florida's territorial waters there have
been 29 wildcat exploratory wells drilled since 1945, all
"dry holes". However, the Board of Trustees is presently
considering applications for geophysical seismic testing
and exploration permits in Florida territorial waters, and
leasing of federal lands bordering these waters indicate
high industry interest and probability that state waters
will soon be targeted for exploration.

The Department of Natural Resources, Bureau of
%Jeology, processes permits for this activity persuan-IC to
Administrative Code Chapter 16C-26.07. In addition, the
Division of Submerged Lands is revising Chapter 18-21,
Sovereignty Submerged Lands Management, to incorporate
criteria for fees and use agreements pertaining to offshore
geophysical testing

.Because of the nature of Florida's coastal geography
and dependency on tourism and coastal recreation, the state
has regarded oil, gas and mineral development in state
offshore waters with caution. Under existing statutes and
policies, oil and gas leases on state-owned submerged lands
can be approved only if-deemed to be in the public interest
and the adverse impacts on aquatic resources, sport and
commercial fishing, navigation, and national security are
minim-ized.' However, state policy must also consider the
extensive leases preseft-t-ly held by Coastal Petroleum.
Comp any in Florida Territorial Waters.

At.present, Florida does not have a comprehensive
program for dealing with its of-,fshore-oil, gas and mineral
resources. Since the state's oil and gas operations have
been primarily onshore, leasing procedures, permitting, and
environmen-L-al concerns have been direc-t-ed towards onshore
operations. Environmental circumstances and conditions for
onshore operations differ substantially from,offshore
operations, requiring most states and the federal
government to r@evelop separate and distinct procedures for
each.

PAGE 33

In October 1984, a report entitled "Ol'i and Gas
Leasing in Florida Offshore Waters- A Description of
Florida's Existing Program and Recommendations for Revised
Procedures" was presented by the Department of Natural
Resources to the Governor and Cabinet. To date, the
Governor and Cabinet have chosen to take no action
regarding these recommendations.

It is of paramount importance that Florida establish
proactive ocean resource policies to preserve our fragile
natural marine habitats and tourist econorqy, while
providing economic gains to the state associated with
development of our non-renewable ocean resources. A
Comprehensive Ocean Resources Policy Plan shoud identify,
inventory and assess offshore resources and their use, and
evaluate the environmental sensitivity, productivity and
resource potential of offshore areas. The plan should also
require pre-lease environmental studies in state waters
where there is a potential for oil, gas, sand, gravel and
mineral development. The plan should establish policy for
resource allocations to guide regulatory programs, with
environmental standards for protieczion of marine fisheries
and water quality values.

We should increase our knowledge about the "wet" side
of our coast and address the competing demands placed on
our ocean and near coastal waters by offshore oil and gas
development, ocean mining, ocean dumping, ocean
incineration, ocean outfalls, ocean transportation, and
marine fisheries,,in ways that protect our living marine
resourdes.

ACTION ITEMS

In order to provide a logical framework for informed
decisions regarding the full array of issues facing our
oceans and near-shore waters, we recommend:

the state develop, adopt and implement a
.2omprehensi've Ocean Resources Policy Plan.

PAGE 34

6. Fisheries Management.

Florida's marine fisheries provide commercial,
recreational and biological assets. The total annual value
of commercial and recreational marine fisheries to the
State of Florida is over $6 billion.

Many experts rank the estuarine environment as the
single most important factor that affects the health of our
saltwater fisheries. The near-shore estuarine habitat is a
proven nursery ground. Without this habitat an estimated
75% of the major recreational and commercial fish and
shellfish fisheries would decline or collapse.

Over 2,200 acres of state submerged lands are under
oyster and clam shellfish leases. Over 40 applicants are
petitioning for aquaculture leases. Under the Aquaculture
Policy Act, the Department of Agriculture is developing and
marketing an aquaculture program which covers marine
waters. Research and demonstration projects are needed to
show how the aquaculture technology works in an
environmentally sound and compatible way. The Department
of Agriculture is working with,an Aquaculture Review
Council composed of industry representatives, and an
Aquaculture Inte*ragency Committee composed of state
agencies, to develop an aquaculture program for the state.
The goal of the program is to enhance the nursery functions
of estuaries through aquaculture, and to provide economic
incentives for maintaining "Class II" waters in coastal
areas.

The effects of environmental damage and habitat loss
on fisheries and other marine resources is well
recognized. Regulatory programs exist to prevent damage,
but in many cases they are poorly coordinated. A
tremendous.need exists -for estuarine research to better
understand estuarine systems and better correlate the
decline in fisheries and estuarine habitat with specific
land, water and fisheries management pract-ices..

Through special license fees, the Department of
Natural Resources is working wi,th the commercial fishing
industry on some habitat restoration projects. This work
should be encouraged for,areas suitable for restoration.

In 1983 the Marine Fisheries Commission was created to
provide comprehensive management of Florida's fisheries
resources,., The Commission is responsible for permitting
reasonable fishery harvesting consistent with sustaining
stock. The Commission issues rules to implement this
program in state waters. More research, data collection,

PAGE 35

regulation and enforcement of fisheriesflaws and rules are
needed.

The Gulf of Mexico Fisheries Management Council is an
advisory body to the U.S. Department of Commerce. Composed
of 17 members including the 5 Gulf states from Florida to
Texas and the National Marine Fisheries Service, the
Council develops plans and proposed regulations to manage
the fisheries resources in federal waters along the Gulf of
Mexico. Management plans have been developed for the spiny
lobster, stone crab, shrimp, reef fish, sword fish,
mackerel and coral. Red drum and bill fish plans are in
@rogress. The Council provides.a vehicle for federal and
inter-state coordination and management of fisheries
resources.

Readily available fresh seafood provides an important
amenity to the quality of the Florida coastal experience
and heritage and should be protected.

ACTION ITEM

In order to protect our fisheries resources for the
long-term public benefit, we recommend:

� the state vigorously protect and maintain quality
estuarine and near-shore habitat in,areas where
prime quality habitat exist.

� the state increase its habitat restoration efforts
for selected areas where habitat have been degraded
but could be returned to productive use to
support commercial and recreational resources.

� the state protect and restore adequate flows of
freshwater to estuaries, managing point and
non-point discharges into estuarine systems.

* the Legislature establish user fees, such as a
Saltwater Fishing License Fee, rev'enues f rom which
will' 'Lund estuarine and marine research, law
enforcement and fisherie@s management.

the Legislature provide adequate funding for
L
comprehensive and integrated fisheries research
and management.

PAGE 36

7. State Land Acquisition Programs.

-he most extensive land
Although Florida has one of t
acquisition programs in the nation, the need to acquire
lands for resource protection or recreation outstrips
government's ability to buy such lands. Rapid growth,
particularly in coastal areas, exacerbates the need to set
some lands outside the path of development. Purchase of
coastal lands to preserve their environmental or
recreational values is particularly expensive and will
increase with continuing development pre.ssures.

As more coastal lands are converted from open use to
developed use, scrub pine, coastal hammock, rookery areas
and other common coastal habitat are lost and traditional
Dublic accessways to coastal waters and beaches are blocked
off.

Florida's experience in land acquisition has focused
on fee simple acquisition. Between 1972 and July 1985,
Florida has paid $440 million to acquire 462,300 acres of
lands, through the Environmentally Endangered Lands Program
(using voter-approved bond issues) and the Conservation and
Recreation Lands Program (using receipts from severance
taxes on oil, gas, minerals, and phosphate rock).

Beginning in 1963, the Land Acquisition Trust Fund
(LATF), paid for with documentary stamp tax receipts, has
been used to acquire state parklands. In 1981, a $200
million "Save Our Coasts" bond issue was established within
the LATF, for beach 'acquisition.

Under the Water Management Trust Fund, using
documentary stamp tax receipts, the Water Management,
Districts have had $97.5 million for "Save Our Rivers"
acquisitions. Some Water Management Districts also use 'ad
valorum taXes to acquire lands.

The Department of Agriculture can use proceeds from
the state.fo-?-eszs to acquire lands. The Game and
Freshwater Fish Commission derives its revenues for land
acquisition from selling specia.1 Dermi--s. These funds
generate about $300,000 per year and are placed in the
LATF.

'The Department of Environmental Regulation holds many
conservation easements on wetlands and adjacent uplands,
received through dredge and,fill permitting requ,irements
for wetlands mitigation. 'The Department is developing a
central tracking system to kee,p records on the,easements -Jt-
holds in crder to monitor land conditions and enforce

PAGE 37

easement restrictions. For beach renourishment projects,
the*Department of Natural Resources requires dedication of
public beach accessways. in issuing leases for docking
facilities, DNR also requires conservation easements which
prohibit additional docking facilities along the lesee's
shoreline.

If government is to acquire the coastal lands it needs
for public beach access, recreation and environmental
protection, it must begin agressively to employ all the
tools available to acquire and manage lands. All public
access programs should be coordinated with public parking
and transportation programs. Less than full fee
acquisition techniques should be pursued: I)easements,
2)modified fee simple acquisition involving leases,
resales, or exchanges, 3)purchase of development rights,
4)t-ransfer of development rights, 5)mandatory dedications
through regulation or development requirements, 6)tax
incentive gifts, life estates, and donations, and 7)land
trusts.

ACTION ITEMS

In order to acquire needed lands for beach access,
recreation, and environmental protection, we recommend:

* the state'maintain its fee simple acquisition
programs, but with increased funding levels.

* the state aggressively employ all tools available to
acquire and manage lands, becoming more involved.
with less than full fee acquisition techniques.

the Department of Environmental regulation finalize
and implement its tracking system for wetlands
acquired through the regulatory process.

PAGE 38
7A

S. A State land Trust.

Florida law allows nonprofit organizations to acquire,
hold and manage lands for resource protection. There are
eight nonprofit land conservation organizations in Florida
which collectively protect over 35,000 acres of
environmentally sensitive land.

In addition, three or more national land trust
organizations operate in Florida. The 'Nature Conservancy
acquires lands and works with local land trusts to acquire
and manage environmentally sensitive lands. The Trust for
Public Lands provides technical' assistance to existing land
trusts and assists with specific acquisitions, as a broker,
but does not own or manage lands. These two land trusts
serve as go-betweens in assisting federal, state and
regional agencies with land exchanges and purchases, where
agency acquisition procedures are inflexible.

Lands in need of protection far exceed the state's
ability to acquire and manage such areas. To meet the
resource protection goals of the State Comprehensive Plan,
Florida must augment its approach to land acquition and
management, and create a public/private partnership in land
conservation.

Establishment of a "State Land Trust" in Florida would
greatly facilitate the use of innovative acquisition and
management techniques. Bills were introduced in the 1986
session to create the "Florida Environmental Land Trust"
and the "Florida,Land Conservancy". Although no statewide
land trust legislation was enacted this session, Florida
should seriously consider setting up an.independent agency
(like the nonprofit Florida Housing Finance Agency, the
California Coastal Conservancy, or the Maryland
Environmental Land Trust) with flexible authority to
develcp a comprehensive �uture land acquisition s+-
rategy
for `[_-he entire State of Florida, employing fee simple and
less than fee simple acquisition techniques.

A "State Land Trust" could create a public/private
partnership in natural resource'acquisition and
conservation using federal tax incentives, limited
partnerships, private land trusts, innovative funding
mechanisms, and skilled land negotiations. The Trust
could:

a)provide technical assistance on innovative land
acquisition techniques;

PAGE 39

b)provide grants and staff expertise to irivolve private
land trusts and other nonprofit organizations in coastal
land acquisitions;

c)use local trusts to monitor and manage restricted
property;

d)act as an intermediary between property owners and
government land regulators, using funds to compensate
landowners for their stewardship of important natural
resources;

e)work out creative financing and limited development
approaches and conduct negotiations with landowners for
complex projects;

f)acquire and manage lands for many public purposes such as
wildlife and natural resource protection, public access or
public recreation facilities, wetlands enhancement, lot
consolidation, and urban waterfront development;

g)receive and manage 'environmentally significant lands
donated to the state or held by state agencies through
wetlands mitigation or beach renourishment requi-rements;

h)encourage acqu-A*.siti ons through donations, exchanges, and
less than fee simple interests in land; and

i)provide technical assistance regarding use of existing
state land holdings, disposal of surplus lands, land
regulation, land management. and land acquisition programs
to preserve important natural,ecosystems and resources to
meet State Comprehensive Plan objectives

In-an innovative.move, 1986 Legislation (CS/CS/HB
1405) authorizes creation of county land authorities for
designated Areas of'Critical.State Concern, based on
funding sources including "'tourist'impact taxes" on certain
transient rentals, food and beverage,sales, and admissions,
by local referendum.

The land authorities will have broad powers to acquire
and di.spose of property to protect the natural environment,
provide public access 'and recreation facilities,-preser've
wildlife'habitat, provide affordable housing for moderate
and low-income Persons, and --o provide.access to manage
acquired lands. All forms of acquisition are authorized
including land.exchanges and alternatives to 'Lee interest,
acquisition.

Primarily directed at assisting Monroe County in the

PAGE 40

implementation of its comprehensive land use plan and
development regulations, the tourist impact tax of 1 cent
on the dollar is expected to generate between $2 million
and $4 million annually for Monroe County, half of which
goes to the land authority and half to offset losses of ad
valorem taxes due to the acquisition program.

This legislation also created the Florida Keys
Protection Act which designates the Keys as an Area of
Critical State Concern. In a precedent setting mode, the
Legislature appropriated $1.05 million in general revenues
to assist Monroe County in implementing its plan And
regulations and $6 million to get the Monroe County Land
Authority operating.

The land authority powers created in CS/CS/HB 1405
provide an excellent model for a statewide land authority.
Florida has made a large investment in Monroe County. It
should establish a statewide mechanism to assist all cities
and counties with the implementaiton of their plans.

ACTION ITEMS:

In order to develop and employ a comprehensive land
'cquisi-ion strategy for the State of Florida involving a
public/private partnership in the acquisition and
management of lands to meet State Comprehensive Plan
objectives, we recommend:

the Legislature create a State L'and Trust with
flexible authority and funding to facilitate a
public/private partnership in land stewardship
through the use of innovative land acquisition
and management techniques.

PAGE 41

9. Public Access to and along our Coast.

Florida has a multi-million dollar land acquisition
program for beach access, the "Save Our Coasts" Program.
Other federal, state and local funds are also used to
acquire parking areas, board walks, boat docks, boat ramps,
and piers. In addition, the U.S. Army Corps of Engineers
requires permanent public access at approximately 1/2 mile
intervals, including adequate vehicle parking access, prior
to expenditure of federal funds for beacli restoration. The
State also mandates public access as a condition of state
funded beach restoration and renourishment. However, these
acquisition and required dedication programs fall short of
meeting the public's need for access to Florida's beaches
and coastal waters for coastal recreation.

Florida's sandy beaches and coastal shorelines are
finite resources. Private developments on our barrier
islands and along our intracoastal waterways are reducing
the public's landside access to the coast. In some areas,
the public need for access exceeds available land. With
Florida's projected growth and increase in tourism, the
strain on our already taxed public coastal recreation areas
and facilities will only increase.

Many of Florida's sa ndy beaches are eroding.
Traditional public access stops at mean high water. Where
armoring has been used to protect upland structures, there
is no beach and,.therefore', no public access along the
beach. Given rising sea level and inevitable erosion,
Florida must address.the public right to sovereign beaches
along with the rights of private property owners to protect
upland structures.

On some hard sandy beaches, where vehicular access to
and along,thE beach has been tfaditionally allowed, some
coastal communities are restricting such access. 1985
Legislation allows communities to permit vehicular access
by referendum. Without simultaneously providin@,public,
parking and access at reasonable intervals along the beach,
restrictions on vehicular acces's will significantly
res-arict public beach access.

On September 4, 1986i the Governor and Cabinet 'adopted
a "Public Beach Access Resolution" to address the
increasingly important problems of access to
Publically-owned beaches. The Board of Trustees of the
Internal Improvement TrusIC Fund are responsible for
enforcing the public's right to.sovereign beaches. The

PAGE 42

resolution recognizes that the long-standing use of
Florida's beaches by the public has been unrestricted until
recently and that Florida needs "a state policy which
assures public access to beaches including means of ingress
and egress, safe passage, and public parking areas."

The Department of Natural Resources was directed to
conduct public hearings and prepare a report with
recommendations on means to ensure public access. The
Governor and Cabinet, in turn, will develop rules for beach
access and recommend legislative action in 1987.

Providing public access to Florida beaches and coastal
waters will remain a significant challenge in light of .
existing and projected growth along our coast. Florida's
economy will suffer if state and local governments cannot
provide adequate, safe and attractive visual and physical
nublic access to Florida's sandy beaches and coastal
waters.

Florida must employ a variety of techniques to secure
one of the state's most valuable assets: its ocean breezes,
sandy beaches and sunlit waters. Other than fee simple
acquisition tools should be added, including:

a)access easements to secure quality accessways which are
maintained and controlled;

b)required dedication as a condi.tion of beachfront
development;

c)required permanent dedication and management of high
quality public access a condition of all beach restoration;

d)required permanent, dedication a nd management of all
existing public beach and shorefront areas for,public
access and use; and

e)post-disaster plans that include improved public access
after the next significant storm.

The state must also perfect- title to public accessway .s
which it has' already acquired by prescription, implied
dedication, custom, the public trust doctrine or dedicated
property., Courts in Florida and other coastal states have
recognized the'unique quality of beach property and have
A protected the public's access rights through the use of
these common law doctrines.

In developing state policy,for public access, Florida
must define what public access means.' The definition

PAGE 43

should be construed broadly to include public entrances and
exits to beaches and coastal waters, public parking, and
quality facilities. Access should also be defined in terms
of access to and along Florida's beaches. It is critical
that, when setting standards such as the 1/2 mile interval
requirement for beach access, both short-interval
mini-access areas and major beach
parking-recreation-facility areas be included.

ACTION ITEMS

In order to ensure the public's right to reasonable
access to our sandy beaches and coastal waters, we
recommend:

* the Legislature require public access dedications as
a condition of development within the
coastal construction control line and
establish a State Land Trust to facilitate
implementation of this requirement.

* the state actively pursue donations from major land
holders and use innovative techniques to
acquire beach access.

* the state establish policies, regulations and
programs to assure long-term public access
to beaches.

PAGE 44

10. Environmental Education Program.

Florida needs a comprehensive and integrated statewide
environmental education program to educate our people-
children, adults, developers, local government and state
decision-makers, and tourists- about Florida's unique and
fragile environment. Coastal education must be a key part
of such a program. Florida needs citizens who understand
and can participate in supporting sound coastal management.

Between 1973 and 1985, the Office of Environmental
Education in the Department of Education coordinated
activities under the Environmental Education Act of 1973.
This Act provided for a citizens advisory comittee,
establishment of environmental education contact persons in
each school district and state university, development of
models for environmental education curriculum, and
mini-grants to the school districts and individual schools
for environmental education curriculum preparation and
implementation. Consultants were available to assist with
this program all over the state. The Office of
Environmental Education was disbanded in 1985.

The 1986 Legislature passed an environmental education
bill. The bill does not establish an environmental
eduction program for Florida. Instead, funds were provided
to conduct a comprehensive study of environental education
programs across the nation, both public and private. Based
on the results of the study, the bill further provides that
a new comprehensive environmental education plan for
Florida be prepared and presented for implementation during
the 1987 legislative session. A 15 member advisory
council, the "Council on Comprehensive Environmental
Education", was appointed to conduct the study and advise
the.Comr@issioner of Education and the Legislature on
implementation of the new plan. The study is being
administered through Valencia Community College in
Orlando.
As part of the 198'6 education bill', the Florida
Environmental Education Act (Section 229.8005 F.S.) was
amended. -A new intent section-recognizes that education of
Florida's children and youth is critical and that such
education be done through the public schools and that it
focus on preserving Florida's ecology. The Commissioner of.
Education is responsible for integrating environmental
education programs into the general curriculum of the
public schools.' The Department of Education is required to
provide staff, consultat-ions and technical assistance to
school districts..

PAGE 45

The State can also educate the public about Florida's
environment through advertising. State and local
advertising campaigns to attract new residents, industry
and visitors influence people's perceptions about Florida.
In creating a public image about Florida, state supported
advertising campaigns should focus on the unique natural
amenities and the importance of protecting these assets.

ACTION ITEMS

In order to educate our residents and tourist visitors
about coastal and state environmental issues, we recommend:

the Legislature give full consideration to, adopt
and implement an environmental education program
for the State of Florida to educate and train
our children, adults and visitors about our natural
resources and ways to participate in
protecting our environmental future. Special
emphasis should be placed on a mandatory curriculum
Lor environmental education through the public
school system. However, adult and tourist education
should be part of the comprehensive state
environmental education program.

the advertising campaigns of the Florida Department
of Commerce and local tourist development councils
feature the natural resourc6 base of Florida's
tourism and recreation economv.

the Florida Coastal Management Program support the
recommendations of the Council on Comprehensive
Environmental Education.

PAGE 46

11. Public Parti cipation.

The citizens of Florida are the back-bone support for
coastal, environmental and growth management. They support
programs to maintain and upgrade our quality of life and
protect those resources we hold dear, at affordable
prices... Citizens must be provided access to the
decision-making process.

Formal avenues for citizens involvement in Florida
include access to public records (Chapter 119, F.S.),
public notification of agency rule-making (Chapter-120,
F.S.), and access to open government proceedings (Chapter
286, F.S.). In addition, each state coastal agency has
formal and informal procedures for notifying the public of
planned changes in agency operating procedures or policies.

The 1985 Local Government Comprehensive Planning and
Land Development Regulation Act provides for limited
citizens standing to ensure that local plans comply with
the new Act and that local regulations and development
orders are consistent with local plans.

The Florida Coastal Management Program provides
citizens participation through the Coastal.Resources
Citizens Advisory Committee. This committee reviews
coastal activities, reports to the Governor on pressing
coastal issues, and meets every two months to exchange
information with citizens about coastal management issues.
By providing public input and building concensus around
controversial coastal issues, the Committee plays an
important role in coastal management. The committee
advocates sound coastal management and nelps protect the
public interest in the coast.

Beginning in 1985, the Office of Coastal Management
has distributed a "Coastal Update" newsletter to keep the
coastal constituency informed about coastal management
program activities and issues.

ACTION ITEMS

In order to develop and maintain public interest in
coastal matters, to keep groups and individuals advised
about coastal management activities and issues, and to
provide for meaningful citizens participation in coastal
A decision-making, we recommend that:

the Legislature establish a meaningful process by
A wl@ich citizens may have,administrative and judicial
standing on government decisions regarding land and

PAGE 47

water use matters.

the Department of Community Affairs provide
assistance to local governments to facilitate
citizens involvement in the local planning
and land development regulation process.

the Governor and Florida Coastal Management Program
continue to utilize a citizens advisory committee
and maintain communications with the public on
coastal matters.

PAGE 48

12. Strengthen Coastal Resource Protection Programs and
Fund Coastal Management objectives.

Florida has several state regulatory, management and
acquisition programs to protect coastal resources and
manage development. (See Appendix A). However, these
programs lack administrative mechanisms to allow adequate
team work and comprehensive approaches between state,
regional, and local entities. The Committee has
recommended action to address these administrative problems
nder issues 1 and 2. Also, many of these programs have
been under-funded and, as a result, unable to.carry out
u

their resDonsibilities.

The 1986 Legislature established an Environmental
Efficiency Study Commission to look at reorganizing and
streamlining state government. The state must evaluate the
relevancy of these programs in the context of the State
Comprehensive Plan. Sufficient stable funding sources must
be established for those programs which provide the
foundation for protecting coastal resources and managing
development.

Florida's quality of life and future economic
well-being dictate that we stop further degradation of our
natural coastal resources and that we begin selectively to
restore critical habitat of value to our tourist economy.

At a minimum, the state must provide long-term,
adequate and stable.commitment to the state programs which
protect our natural coastal'resources. The state's special
areas management programs must continue to be utilized to
focus state attention and resources on priority coastal
issues and resources.

te funding and administrative support, the
With adequa" k-
Beach Management Plan will address beach erosion problems.
A Comprehensive Estuarine Approach will begin 'to
concentrate our Protection and restoration efforts on
priority estuarine areas. Local comprehensive plans will,
identify and protect remaining land-side natural resource
habitats, as well as other issues. And a proactive ocean,
resources policy program will safeguard our ocean and
near-shore marine resources.

PAGE 49

The state is using a variety of m'echanisms to fund
coastal management programs and activities: general
revenues; severence tax receipts on oil, gas, minerals and
phosphate rock; documentary stamp tax receipts; sale of
special fishing or resource use permits; and federal
coastal zone management, environmental protection,
transportation, emergency management and other federal
grant program funds.

Florida has embarked on an ambitious and comprehensive
approach to growth management, requiring creation and
consistent implementation of state, regional and local
plans to meet state goals and policies. In 1985 the
Legislature appropriated $9.3 million to support this
effort in FY 1985-86, as a down oayment on the new planning
system. In 1986, the Legislature sustained its commitment
with a $10 million approriation.

As state and regional agencles and local governments
implement the State Comprehensive Plan objectives, major
gaps in information critical to sound coastal management
will become apparent and should be filled through state or
regiona2 agencies. For example, sound estuarine management
requires knowledge about conditions and impacts of
development on estuarine sys"ems. Florida needs an ongoing
estuarine research, monitoring and technical assistance
program to implement state estuarine objectives.

As coastal initiatives are proposed, identifying
stable sources of revenue to pay for these initiatives has
been difficult. For example, proposals to fund beach
renourishment with room and meal taxes met with stiff
opposition in the 1986 Legislature.

Innovative methods are needed to create stable sources
of funding for vital state coa.sta I management programs-
research, planning, regulatory, land acquisition and land
management- which must remain intact and.grow in order to
protect Florida's coastal future in the' light: of projected
growth.

Funding the costs of growth and'.environmen-La.'
protection in coastal areas will require major new funding
sources and local option taxing powers and impact fees.
For examp.le, stormwater management facilities to protect
Florida's coastal and.inland waters will cost billions of
dollars. Charging users of our eszuaries and coastal
waters discharge fees could help pay some of the costs.

Funding for coastal management programs must be tied
to coastal revenue generators suc."i as beach-related

PAGE 50

tourism. Florida must also make greater use of user fees
for coastal recreation facilities and navigation, permit
fees for fishing, boating and land development. The costs
for hazard preparedness, hazards management and
post-disaster response should be paid for by developers who
build in coastal high-hazard areas.

ACTION ITEMS

In order to fund coastal management, strengthen
critically important coastal resource protection-pr ograms,
and maintain the state commitment to implement the State
Comprehensive Plan, while making the best use of limited
state financial resourcest we recommend:

require, by statute, that the Interagency Management
Committee, through the Florida Coastal Management
Program, review and rank natural coastal resource
protection programs which warrant priority state
financial support in an annual report to the
Governor, Cabinet and Legislature.

*,the Legislature appropriate $20 million per year for
the next 5 years-for state, regional and local
planning, giving priority to the Coastal
Managemenz Element requirements of local plans and
their implementing land development regulations.

� the Interagency Management Committee identify
and the Legislature appropriate additional funds to
fill major state or regional planning data.gaps
and state technical assistance needs.

� the Legislature establish major new state taxing
sources and local option taxing powers to pay
for implementation o'f the coastal objectives
of the St-ate-Comprehensive Plan.

PAGE 51

13. SUPPORT THE ROLE OF LOCAL GOVERNMENT IN
COASTAL MANAGEMENT.

Local governments play a central role in coastal
management in Florida. On a daily basis, local officials
make land use decisions which directly or indirectly impact
on the short and long-term viability of our coastal
resources.

The Local Government Comprehensive-Planningand Land
Development Regulation Act reflects state level awareness
that Florida's coastal future will be dictated, in large
part, by local planning, regulatory and land use decisions.

The goals and policies of the State Comprehensive Plan
and the minimum criteria for the Local Comprehensive Plans
provide basic guidance to the state and local governments
about the coastal issues which require priority attention
over the coming years. It is critical that the state
provide clear, direct and competent advise to local
governments as they develop, adopt and implement their
plans. Building the state technical expertise required for
@his task is critical to ensure state credibility and
assistance to local governments.

Most coastal management issues cross jurisdictional
boundaries and require inter-local, as well as, joint
state-local efforts. For example, beaches, wetlands,
estuaries and wildlife cross administrative boundaries.
Yet, these resources must be 'manage as systems, not as
parts of cities or counties. Point and non-point source
pollution also demonstrate the futility of managing
freshwater flow into estuaries on a less than system-wide
basis. it is critical that we develop new skills to
coordinate and plan on multi-jurisdictional levels through
cooperative partnerships.

Since so-much of -r-he burden of coastal management will
rest- on the shoulders of local government, it is essential
-liat the Legislature continue to fund local planning and
management and offer local governments optional taxing
authority to address the issues facing our coastal future.

ACTION ITEMS

In'order to support the role of local governments in
coastal ma nagement, we reco mm end:

the Legislature fund local planning and
management requirements and establish new

PAGE 52

local option taxing powers to pay for local
implementation of coastal objectives.

* the Legislature appropriate funds to fill major data
gaps associated with local coastal planning
requirements.

* the state develop technical expertise to
assist local governments with development and
implementation of their plans.

* the state pursue creative techniques for
intergovernmental planning and management of
critical coastal ecosystems.

PAGE 53

LIST OF REFERENCES

Printed Source Material and Resource People by Topic Area.

General Reference Materials

State of Florida (May 1985) State Comprehensive Plan.

Florida Department of Environmental Regulation (May 1986)
State Water Use Plan. -

Florida Department of Community Affairs (May 1986) State
Land Development Plan.

Joint Center for Environmental and Urban Problems (October
1985) Florida Environmental and Urban Issues, Vol. XIII,
No.1

Florida Coastal Management Program and Coordination.
'U.S..Department of Commerce (August 1981) Florida Coest-al
Management Program: Final Environmental Impact_St@Ttement.

Governor's Coastal Resources citizens Advisory Committee
(November 1983) Coastal Program Initiatives Report.

Kolb, Walt (1986) Office of Planning and Budgeting,
Personal Conversations.

Worley, Dave (1986) Office of Coastal Management, DER,
Personal Conversations.

Comprehenisve and Integrated Estuarine Management

Florida Department of Environmental Regulation (1985-1986),
Internal Working Papers.

Calder, Fred (1985-86), O.-Lcfice.oLc Coastal. Management, DER,
Personal Conversations.

Nautilus Press (May 16, 1986) Coastal Zone Management
Newsletter, Vol. 17, Number 19,p.8.

A Speeches by Department of.Env'ironmental Regulation
officials, Dr. Victoria Tschinkel and' Pam McVety, before
Coas-L:al Conference on Miami Beach, September 29-0ctober 1,
1986.

Beach Management

PAGE 54

Florida Department of Natural Resources (April 1985) Beach
Restoration: A State-Initiative.

Florida Department of Natural Resources (March 1986) A
Proposed Comprehenisve Beach Management Program for t-he
State of Florida.

Governor's Coastal Resources Citizens Advisory Committee
(April 1986) Recommendations for Saving Our Beaches.

CS/CS Senate Bill 432 and HB 281 (1986). Passed.

Voigt, Wayne (1986) Senate Natural Resources Committee
Staff Director, Personal Conversations.

Titus, J, Greenhouse Effect and Sea Level Rise: A Challenge
for this Generation. 1984. And personal conversations with
James Titus, EPA Research Director on Rising Sea Level.

Coastal Hazards Management

Interagency Management Committee (March 1986) Hurricane
Post-Disaster Case studies For Franklin County, Cedar Key
and Indian Rocks B_e_a_c_H_-_

Governor's Coastal-Resources Citizens Advisory Committee
(April 1986) Recommendations for Saving Our Beaches.

Copser, Cindy (1986) Office of Coastal Management, DER,
Personal Conversations.

Oceans Policy

Johnston, Paul and Tucker, Debby (May 1986) Office of the
Governor MEMOs and personal correspondence with me.

Ocean Policy Committee of the North Caroline Marine
Sciences Council (November 1984) North Carolina and the
sea: An Ocean Pol'icy Analysis.

Fisheries Management

Florida Sea Grant Program (Spring 1986) Marine Log.

Sanson,.Jerry (June 1986) Personal Phone Conversat-ion.

State Land Acquisition Programs.

PAGE 55

Joint Center for Environmental and Urban Problems (may
1986) Unpublished Report on State Land Acquisition
Programs by Barbara Brumback.

State Land Trust

Land Trust's Exchange (1986) Directory of Local and
Regional Non-Profit Land Trusts and phone conversation with
Caroline Pryor, Associate Director.

Joint Center, Barbara Brumback

Trust for Public Lands (1986) Conversations with Kathleen
Blaha, Project Manager, Southeast Region.

California Coastal Conservancy, Conservancy Legislation
(1982-85) and Newsletters (1983).

Harper, Stephen (Undated) The Role of nonprofits in Coastal
Conservation.

Senate Bill 851, Florida Environmental Lands Trusts (1986).

Senate Bill 986, Florida land Conservancy (1986).

Public Acc ess To Coastal Waters

Joint Center, Barbara Brumback

Swim, Debra (1983) Beach Access- Getting More for less,
Coastal Zone '83 PrUceedings.

Chapter 161, F.S.

Environmental Education

Stovall, Randall (May 1986) Environmental Education and the
Coastal Zone, (Val4E@ncia Community College,,Department of
Natural Sciences & MemDership Chairman of the League of
Environmental Educators,in Florida. Report prepared for use
by the Governor's Coastal Advisory Committee

LEEF MEMO, July 1986 and personal communications with Dr.
randall Stovall of Valencia Community College, July 1986.

House Bill 413 (1986).

Senate Bill 45 Enrolled, (1986).

Senate Bill 927 (1986)

PAGE 56

@Public Participation
Taylor, Shirley (June 1986) Phone Conversation.

Funding Coastal Managemen-:

Joint Center (October 198-5) Environmental and Urban
Issues, Vol. XIII, No.1

PAGE

APPENDIX A

SUMMARY OF THE FLORIDA COASTAL MANAGEMENT PROGRAM

The purpose of the Florida Coastal Management Program is:

0 to improve the state's management of its coastal resources and-*
development through more effective coordination between state
agencies and between state and local' governments;

0 to improve the administration of existing state resource
management plans and programs;

0 to review federal activities for consistency with the state's
coastal management program;

0 to address critical coastal issues; and

0 to distribute federal coastal grants to state a nd r egional
agencies and coastal communities to better protect coastal
resources and manage development.

The Florida Coastal Management Program is based on

27 existing statutes and theirimplement ing regulations which

are administered by 16 agencies (see Figure 1). In the Department

of Environmental Regulation,' the Office of Coastal Management

provides program administration and coordination. The Governor's

Office of Planning and Budgeting assists the Department of

Environmental Regula-ti.on.with federal consistenc.y reviews.

Most of the day-to-day program implementation rests with

three agencies which administer' key state coastal resource manage-

ment programs the Department of Environmental Regulation; the

Deoartment-of Natural Resources; and the Department of Community

Affairs (see Figure 2). These three agencies operate under a

procedural memorandum o'f unde.rstanding which they signed in 1981

in order to formalize their working relationship and to'ensure a

coordinated state agency approach to coastal management.

A-1

ut-a I . Statutory Authorities of Florida's Coastal Managowent "ran

LEGAL LEGAL AUTHOPITY ADMINISTCRIM1.
AUTHORITY DESCRIPTION ACXHCY*

1. Chapter 23, F.S. State Comprehensive Planning, Opel OCA
Power Plant Site Plans

2. Chapter ug. r.s. Public Records 003

3. Chopeor 120, F.S. Administrative Procedures APC. DOAH

A. Chapter 160, r.S. Regional Planning Councils RPC

5. Chapter 161, F.S. Coastal Constructiop colt

S. Chapter 252. ?.S. Disaster Preparedness VCA

7. Chapter 253. F.S. Salo, Lomas, or Other T11Tr-, DWR
Conveyance and Dredging DER
and Filling in Submerged
Lands and Wetlands

5. Chapter 258, F.S. Outdoor Recreation and VNR
Conservation

9. Chapter 259, F.S. Outdoor Recreation and D"R
Conservation

DHR
.3. Chapter 260. F.S. Outdoor Recre&tion and
Conservation

:1. Chapter 267, F.S. Historic Preservation DOS

DOC. DEr
.2. Chapter 283. F.S. Economic D@,volopment/
Industrial Siting

13.
Chapter 315, F.S. Part racil ties Financing Fort
Authorities

14. Chapter 334. F.S. Public Transportation DOT

15. Chapter 566, r.s. Public Utilities PSC

16. Chapter 370, F.S. Living A*scutces (marine) VNR

17. Chapter 372, r.s. Living Resources (freshwater) CrATC

18. Chapter 373, r.s. Withdrawal. Diversion, DER, WhO
Storage, and Consumption
Of W&ter@ Save Our Rivers

19.
Chapter 375, r.S. Outdoor Recreation aind DNR
Conservation

2:. Chapter 376, F.S. Pollutant Spill P@ovention CHR
and Contrc% Port@ and waterways

Chapter 377, F.S. Oil and Gas Production DNR

22. Chapter 380, F.S. Developments of Fkagional DCA. DER
Impact and Areas of Critical
State Crincorn, Coastal
Managemen't

:3. Chapter 388. F.S. Arthropod Control ORRS

:4. Chapter 403, F..S. Sources of water Pollution; DER
Sources of Air Pollution;
Power Plantzi Dredging and
Filling; Control of Razardous
Wastest Resource Recovery..'poms
and WdLtrwoyi
25. chapter 502, F.S. Soil and'Water Conservation DACS

:i. Chapter 201, F.S. Excise Tax Doc ONR
Cliapter 339, F.S. Public! Transportazion DOT

AP@ j@azimistrative Procedures Cor"ittee DOS -D*Portmtnt of State
0A,t :qVt of Agriculture and Consumer Services DOT -otoartment of Trarlsoonation
:*-,t of Connun,ty Affairs GFWFC -Game A Fresh water Fish Caiviiision
:t.-t of Enviromerital Regulation opo -office of Planning and Budgeting
:i-t of Health I Reh&D' I i E4t)V* Services PSC -PuDlic $@"Ice ccMtssion
A
t2t of Natural Resources RK -Regional Planning Council
TIITF -Trustees of the Internal 1180rove-
:-,@*jon of Administrative "earings
;,to" of cco"'erce m9lit Trust Fund
WMD -water Manav"ent District

A-2

The coordination of state coastal laws, policies and agency

regulation is accomplished through the Interagency Management

Committee (IMC), created by a Joint Resolution of the Governor and

Cabinet in 1980. The Committee provides the institutional

mechanism for coordinating the network of coastal management laws

through a team effort at the state level . It is responsible for

coordinating and integrating state agency policies and activities

in the coast, identifying and resolving multi-jurisdictional

issues and conflicts, and recommending to the Governor and Cabinet

new 'Legislation, memoranda of understanding, and rulemaking to
improve'the implementation of the state''s environmental laws.5

Ten agencies comprise the Interagency Management Committee:

The Secretaries of the The Directors or Executive
Departments of. Directors of:

0 Commerce (DOC) 0 Department of Natural Resources
.".Environmental Regulation (DNR)
(DER) 0 Game and Fresh Water Fish,Comm.
0 Community Affairs (DCA) (D%'"JFWFC)
0 Transportation (DOT) O@Division of Archives & History
0 Health & Rehabilitative Department of@State
Services (DHRS) 0 Division of Forestry, De Ipt. of
Agriculture & Consumer Ser.
0 Governorl.s Of.fice of Planning
and Bu dgeting

Agencies selected.to serve on the committee were chosen

because of the importance and impact of each agency's programs on

state coasta-l',resource management issues. The Joint Resolution

provides for the assistance of other state agencies in

meeting the.Interagency Management'Co.mmittee and State Coastal.

Manageme:.t Program objectives.

A-3

-11-

FIGURE 2

Department of
Environmental Regulation

The Department of Environmental Regula-
tion serves as the lead agency in Florida's
Coastal Management Program. The program
is administered through the agency's Office
of Coastal Management. This office provides
staff support to the Interagency Management
Committee, assists in coordinating state and
local agency programs related to coastal re-
sources, administers grants to various state
and local agencies related to coastal re-
sources, and reviews federal activities in the
coastal area for consistency with the State's
program. The Department of Environmental
Regulation also administers Florida's en-
vironmental permitting programs, including:

air and water pollution sources;

dredging and filling on submerged lands,
waters of the state, and wetlands;

electric power power plant siting, transmission
line siting, and industrial siting;

drinking water (water wells);

solid and hazardous wastes;

public works program.

All dredge and fill activities on submerged lands, waters
of the state, and wetlands must be permitted by the
Department of Environmental Regulation

DER, DNR and DCA Programs and
Responsibilities as part of the
FCMP.

Managing Florida's parks, like St. Joseph State Park, is
one of the responsibilities of the Department of Natural
Resources.

Department of
Natural Resources

The Department of Natural Resources
manages the state's natural resources, includ-
ing the following program areas:

management of all state-owned lands, in-
cluding sovereignty submerged lands ad-
ministered through the Board of Trustees of
the Internal Improvement Management
Trust Fund;

management of recreation and conserva-
tion areas, aquatic preserves, state parks,
wilderness areas, environmentally en-
dangered lands, and recreational trails;

shoreline use and protection, beach
nourishment and erosion control projects,
assurances of adequate beach access, and
establishment of coastal construction con-
trol lines;

conservation and management of marine
fishery resources;

mineral resource management.

Department of
Community Affairs

The Department of Community Affairs
administers the following activities related to
the coastal management program:

coordination of the state's responsibilities
related to Development of Regional Impact
and Areas of Critical State Concern, pro-
grams;

primary agency responsibility for im-
plementation of the Coastal Energy Impact
Program under the federal Coastal Zone
Management Act;

implementation of a state disaster pre-
paredness program to reduce vulnerability
to damage, injury, and loss of life and
property from natural or man-made
hazards;

review of ten-year plans for Florida
electrical utilities.

A-4

Source: The Water's Edge: A Guide to Florida's Coastal Management

I*-
Im

In addition to staff support through the Office of Coastal

Management, the Interagency Management Committee receives input

from the State Interagency Advisory Committee on Coastal Zone
Management(IAC), and the Governor's Coastal Resources Citizens

Advisory Committee.

The Interagency Advisory Committee was established in 1975 as

a formal vehicle for securing state agency input into the

development of the Florida Coastal Management Program. It is made

up of staff representatives from all state agencies with

responsibilities in coastal management. Since program approval in

1981, members of the Interagency Advisory Committee continue to

serve as key contacts and liaison persons in the implementation of

the State Coastal Management Program, particularly regarding

current interagency conflicts and key long-range policy issues.

Advisory Committee members prepare background papers for use by

the Interagency Management Committee in its deliberations.

'T
Figure 3: Framework.for State Agency Coordination Through the IMC

rand Cabine@. Legislative
'Interagency Management Committee (IMC),

T_
Off.ice Of Coastal Tnteragency Advisory Committee (IAO"
Management (OCM)
in DER Coastal Resources Citizens.
Advisory Committee (CAC)

Other 'Etate agencies/committees
I
teragency Mz
n

ist
a
)C,
M)
"I@@A d
"' i

Ot he

A-5

The statewide Governor's Coastal Resources Citizens Advisory

Committee (CAC) assists the Office of Coastal Management with the
implementation of the Florida Coastal Management Progr*am-by

providing one avenue for public participation. The Citizens

Advisory Committee members are chosen to represent a balance among

government, public interest groups (academic, recreational,

environmental), geographic areas of the state, economic interest.

groups and private citizens. The committee advises the Office of

Coastal Management, the Interagency Management Committee, and the

Governor and Legislature on coastal management issues and program
implementation.' it dr aws on experts and interested parties in

making its recommendations.

The program recognizes the role-of the state's five water

management districts and the eleven regional planning councils

under ekisting state statutes (Chapter 373, F.S., Chapter 160,

F.S.). The program al so acknowledges that local agencies are an

,integral part of any coastal management program and provides for

their volun'tary participation as allowed under the Florida Coastal

Management Act of 1978. However, the,Lo'cal Government.Compre-

hensive Planning Act under Chapter 163 is not listed as,one of the

statutory authorities upon which the program is based because the

1978 Act does not require local involvement and Chapter 1,63 does

not mandate state approval of coastal zone protection elements of

local comprehe nsive plans.

A-6

Where the Florida Coastal Management Act of 1978 states th@_

the coast is rich in a variety of natural and man-made coastal

resources, the Florida Coastal Management Program document

describes ten priority coastal "issues of special focus" and how

the coastal management program will assist the state in addressing

these issues. The issues are in three broad areas - resource

protection, coastal development, and coastal storms. Specific

issues within these areas include coral reefs, estuaries, barrier

islands, ports, dredged material disposal, marina siting, water

related energy facilities, fisheries, recreation, and coastal

hazards. The future direction and funding priorities of the

coastal program are based on these issues of special focus which

are subject to revisions during the implementation of the

program.

The entire state is included within the boundaries of the

Florida Coastal Management Program, since the program relies on

existing state statutory authorities which are g enerally enforced

statewide. Two administrative exceptions are provided for in the

Flori,d.a Coastal Management Act: lo cal governments eligible to

receive-coas'tal management funds are limited to the 35 coastal

countie's and the 162 coastal c'ities which,include or are adjacent

tto state waters where marine vegetation species pre,dominate;-

lederal consi'stency reviews,of feclerally licensed or permitted

activit4.es are sirrilarly restricted to these local jurisdictions.

A-7

NOAA COASTAL SERVICES CTR LIBRARY
I
i- 3 6668 14110157 8-
1
1
1
1
1
I
I
I
I
I
I
I
I
I
I
I
I