analysis of estuarine degradations within the Pensacola Bay system and their relationship to land management practices

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

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An Analysis of Estuarine Degradations
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1986 Florida Department of Community Affairs
Tom Lewis., Jr., Architect., Secretary
November 1986

An Analysis of Estuarine Degradations within the
Pensacola Bay System and their Relationship to Land
Management Practices

Florida Department of Community Affairs
Tom Lewis, Jr., AIA, Secretary
November, 1986

US Department of Connnerce
NOAA Coastal Services Center Library
2234 South Robson Avenue
Charlestong SC 29405-2413

-A Financial assistance for this report was provided by the Coastal
4A Zone Management Act of 1972, as amended, administered by the
Office of ocean and Coastal Resource Management, National oceanic
and Atmospheric Administration.

TABLE OF CONTENTS

?Age

Acknowledgements ................................... ii

Executive Summary .................................. iii

List of Figures .................................... vi

List of Tables ..................................... vii

Section 1. Marine Research Data Base
1.1 Introduction ....................................... 1
1.2 Description of System .............................. 1
1.3 Documented Problems ................................ 12
1.4 Aquatic Vegetation Declines ........................ 12
1.5 Shellfish/Finfish Declines ......................... 25
1.6 Water Quality Degradations ......................... 32
1.7 Estuarine Sediment Contamination ................... 47
1.8 Bayou-specific Problems ............................ 53
1.9 Shoreline Erosion/Alterations ...................... 56

Section 2. Jurisdictional and Regulatory Framework During
Study Period
2.1 Introduction ....................................... 60
2.2 Land Use Practices Since the 1950s-A Summary ....... 63

Section 3. Estuarine Degradations and Land Management
Relationships
3.1 Introduction ....................................... 88
3.2 Methodology ........................................ 90
3.3 General Trends and Relationships ................... 94

section 4. Recommendations for Corrective Action ............... 96

Section 5. Applicability to Other Estuarine Systems ........... 101

Section 6. Comprehensive Bibliography ......................... 103

Appendix A. Glossary ............................................ 128

Appendix B. Abbreviations ....................................... 131

ACKNOWLEDGEMENTS

This report was prepared by Jeff Reidenauer and Claudia
Shambaugh in the Bureau of State Resource Planning. We would
like to note the assistance of a number of individuals who
provided information which greatly enhanced the report. They
include: J.D. Brown, Bream. Fisherman's Association; Walter
Burdin, Army Corps of Engineers; Charles Futch, DNR; Ken Haddad,
DNR; Ron McAfee, ECUA; Dick Radford, Sierra Club; Joe Ryan, DER,
and Terry Sandifer, SRIA. Bill Young from the Northwest District
office of DER supplied us with interdepartmental memos and
personal observations which added significantly to our
understanding of the system. Several agencies supplied
information to us: U.S. Environmental Protection Agency, U.S.
Fish and Wildlife Service, U.S. Geological Survey; Florida
Department of Environmental Regulation, and Florida Department of
Natural Resources. Dr. Graham Lewis, DER, and James L. Quinn,
Chief, Bureau"of State Resource Planning supplied comments on
earlier versions of the report which significantly improved it.
Sonya Ellis prepared the graphics for the document and aided in
the production of the final report. Ethel Woodruff and Deborah
Walden helped type the document.

EXECUTIVE SUMMARY

This study was in direct support of the efforts of the
Escambia/Santa Rosa Coast Resource Planning and Management
Committee established pursuant to Section 380.45, Florida
Statutes and more specifically the Bay Area Resource Inventory
Program. A critical issue addressed in the Resource Management
Plan adopted by the committee was "The adequacy of environmental
resource protection, particularly for coastal dunes, wetlands,
and estuarine systems in the study area." Three primary
objectives were outlined in the plan that relate to this issue:
(1) the protection of estuarine systems, wetlands, and marsh
areas from ill-advised development to ensure that their
productivity is not impaired; (2) the protection of the unique
environmental features of barrier islands, including the beach
and dune system, and; (3) the development of existing and future
wastewater and stormwater management systems in a way which will
minimize environmental impacts. The recognition of recurring
degradations within the system and their relationships to
management practices for the surrounding uplands provides a focus
for recommended changes in the system's regulation.

The primary purpose of this study was to perform an
interdisciplinary (i.e., scientific and regulatory) analysis of
the Pensacola Bay system in order to: 1) evaluate the
relationship of previous land management practices to
degradations documented in the estuarine system, and; 2)
recommend specific management practices for the upland regions
surrounding the system. The steps taken in this process were:
1) identification of historical problems and affected regions in
the bay; 2) identification of jurisdictional and regulatory
agencies and local governments with responsibilities in the
system; (3) outline of past land management and land use
practices; (4) development of relationships between estuarine
problems and land management practices, and; 5) development of
recommendations for corrective action. The report provides the
Bay Area Resource Inventory program within the Resource
Management Plan an initial starting point in their efforts,to
compile historical data on the bay system.

The Pensacola Bay system presents unique problems for
management because it is comprised of five separate main water
bodies (i.e., Blackwater Bay, East Bay, Escambia Bay, Pensacola
Bay, and Santa Rosa Sound) and numerous small bayous and inlets
that circumscribe the system. in addition, approximately
90 percent of the watershed of the major freshwater input, the
Escambia River, lies outside the state in Alabama to the north,
which creates an additional level of management problems...

As the estuarine system is comprised of numerous components,

iii

the management of the surrounding uplands is fragmented amongst a
multitude of federal, state, and regional regulatory agencies, as
well as numerous local governments bordering the system.
Present-day management is accomplished through the uncoordinated
implementation of various monitoring, permitting, and regulatory
programs. In addition, many of these programs are reactive
rather than proactive in nature, a critical situation given the
growth pressure that this region has been experiencing and will
experience in the future.

Under the existing management framework, jurisdictions may
overlap, interests often conflict, policies are inconsistent such
that environmental safeguards made in one area of a watershed are
not uniformily applied throughout the entire watershed, and no
single agency has overview authority for the bay or manages it
as a complete natural resource. There is a need to establish
management boundaries and clearly define regulatory mechanisms
for the estuary because the system can never be comprehensively
managed without determining and controlling the impacts of those
activities occurring upstream from, or adjacent to, the estuary.
An overall goal of this study is to guide the development of a
consistent set of planning policies and performance standards
common to the local governments that are present in the system.

The format of this report is set up as follows. First, a
general description of the bay and surrounding uplands (e.g.,,
geology and physiography) is given. Second, a discussion of the
major problem areas (e.g., habitat and water quality declines)
within the system is presented together with possible causes
suggested by various investigators. Third, the existing
regulatory and jurisdictional framework for the system are
presented. Fourth, these two are discussed together and
relationships drawn. Finally, recommendations are made such as
necessary revisions to comprehensive plans and ordinances and
intergovernmental coordination to help correct the documented
problems. The report also includes a comprehensive bibliography
of reports and research conducted within the Pensacola Bay
system.

Six major problem categories are delineated in the Pensacola
Bay system: (1) aquatic vegetation declines; (2) shellfish and
finfish declines; (3) water quality degradations; (4) estuarine
sediment contamination; (5) bayou-specific problems, and;
(6) shoreline erosion. These are tied to alterations in
environmental conditions such as increased turbidity or
sedimentation. Relationships are presented between land
management practices, such as stormwater regulation, and
environmental conditions that are affected by them based upon
work conducted within the Pensacola system as well as other
systems. In this manner, management practices are then tied to
actual estuarine resource declines.

The recommendations presented are mindful of the guidelines
and requirements of Chapter 163, Florida Statutes and the
Resource Management Plan. The measures include zoning-throughout
both counties; mapping exisiting and future land uses;
establishing a sensitive area buffer along the bays, bayous and
rivers; coordination between the utility boards and authorities
and the Department of Health and Rehabilitative Services;
establishing an adequate facilities ordinance; establishing a
watershed management district program; preparing an adequate
vegetation ordinance; establishing a marina siting procedure; and
reconsidering how the policies of the comprehensive plans could
address the need for a higher level of performance in existing
ordinances suggested for revision.

One of the objectives of this study is to create a process
whereby the regulations and activities carried out in estuarine
areas throughout Florida could be evaluated in a similar fashion.
Subsequently, the regulatory mechanisms in place within these
systems could'be modified so that they could be administered in a
more efficient and uniform manner. The results of this report
will be of direct benefit to the local governments in the system
that are required to comply with s. 163.3177 (9) (d) Florida
Statutes, which states that "certain bays, estuaries, and harbors
that fall under the jurisdiction of more than one local
government are (to be) managed in a consistent and coordinated
manner in the case of local governments required to include a
coastal management element in their comprehensive plans pursuant
to s. 163. 3177 (6) (g) it

The application of this process, moreover, can reveal data
gaps in estuarine and upland resources. This could lead to more
efficient and directed sampling programs and the recognition of
jurisdictional conflicts or lack of regulatory mechanisms which
could be modified to improve policy implementation.

LIST OF FIGURES

Page

1.1 Pensacola Bay system watershed (i.e., drainage basin)
w/ inset of location on state map .................... 2
1.2 Net current flow in Escambia Bay - flood tide ........ 6
1.3 Net current flow in Escambia Bay - ebb tide .......... 8
1.4 Soil types surrounding the system .......... 0 ......... 10
1.5 Submerged macrophyte distributions (1950-1979).o ..... 15-18
1.6 Recent shellfish harvesting classification areas ... o. 27
1.7 Major point-source discharges... ........... o... o..o.. 42
2.1 Political divisions (jurisdictions) ........ o... o_o. 62-A

LIST OF TABLES
1.1 Surface area, volume, and depth of subsystems. Page 4
1.2 Common waterfowl that winter in Pensacola Bay s it
marshes ........................................ : ..... 23
1.3 Oysters landed in Escambia and Santa Rosa Counties ... 25
1.4 Fish kills within the Pensacola Bay system from
1970-1974 ............................................ 31
1.5 Total nitrogen in Escambia Bay 1974-1985 ............. 36
1.6 Annual loadings to Escambia Bay by Air Products ...... 44
1.7 Annual loadings to Escambia Bay by American Cyanamid. 44
1.8 Annual loadings to Escambia Bay by Monsanto .......... 46
1.9 Average nonpoint source pollutant composition ........ 46

vii

VIA

INS

Section 1. Marine Research Data Base

1.1 Introduction

The information for this section of the report was gathered
from a variety of sources: published and unpublished reports,
interdepartmental memos from state agencies, and personal
communications with various individuals.

The format of this section of the report is set up as
follows. First, a general description of the region is given.
Second, the major problem categories are outlined and discussed.
Historical trends are noted as well as the most likely causative
factors as identified by previous investigators. We supply an
extensive bibliography at the end of the report which includes
all the reports and citations we encountered during the research
of this report relating to the bay system.

1.2 System Description

The Pensacola Bay system is located within Escambia and
Santa Rosa counties in the northwest Florida Panhandle and is
comprised of 5 main subsystems: 1) Blackwater Bay; 2) East Bay;
3) Escambia Bay; 4) Pensacola Bay, and; 5) Santa Rosa Sound. It
is the fourth largest estuary in Florida (Figure 1.1). Its
surface area covers approximately 126,000 total acres.

We defined our study area as the Pensacola "estuarine
system" which includes the 5 subsystems noted above and their
watersheds. The estuary is defined as all or part of the
mouths of the rivers, streams, and semi-enclosed body of water
(such as a bay, sound, or lagoon) that is connected with the sea
and undergoes continuous or periodic dilution with freshwater
runoff from the land.

The estuary (or 5 subsystems) extends 20 miles inland and comprises
approximately 550 linear miles of coastline and 270 miles of
inland waterways.

Three major rivers flow into the system: the Escambia,
Blackwater, and Yellow Rivers. The Escambia River is the largest
in the system and the fifth largest in Florida. It enters the
upper northwest area qf Escambia Bay. It is 240 mi long and its
basin covers 4,233 mi . The Yellow River is the second largest
in the system and enters the northeast end ol Blackwater Bay. It
is 110 mi long and its basin covers 1,365 mi . The Blackwater
River enters the north @ip of Blackwater Bay and is 62 mi long.
Its basin covers 860 mi Freshwater inputs are critically
important to the estuary both for the nutrients they inttbduce

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Figure 1.1 Pensacola Bay system watershed

and for the pollutants they flush out. Generally, March and April
have the highest mean monthly discharges, while September, October,
and November exhibit the lowest mean monthly discharges.

a. Geology and Physiography

The system was created during the past 11,000 years when the
surface drainage basin was "drowned" by rising sea levels (Marsh,
1966). The bay system and surrounding lands lie in the Coastal
Plain physiographic province that consists chiefly of
unconsolidated sands, limestones, silts, and clays of Cretaceous
to recent age. The most distinctive topographic features in the
region are the Pleistocene marine terraces (Marsh, 1966).
Remnants of the terraces are evidenced in Escambia and Santa Rosa
Counties by upland plateau, flat-topped hills, low coastal
plains, and benches along the rivers and bays.

The Coastal Plain Province is divided into two distinct
topographic subdivisions: 1) the Coastal Lowlands, and; 2) the
Western Highlands. The Coastal Lowlands are characterized by
poorly drained, nearly level plains lying less than 100 ft above
sea level. The Western Highlands consist of a southward sloping
plateau with elevations over 200 ft whose surface has been cut by
numerous streams (Marsh, 1966). The Coastal Lowlands occupy the
floodplains of the Escambia, Blackwater, Yellow, and East Rivers,
which are meandering slow-moving streams, with only a slight
gradient in their lower regions. The Western Highlands are found
in the upland regions where the deeply cut tributaries of the
Escambia, Blackwater, and Yellow Rivers originate.

The subsurface geology of Escambia and Santa Rosa Counties
has more in common with the central Gulf coast of Alabama,
Mississippi, and Louisiana to the west than it does with the
geology of peninsular Florida to the east. Only two peninsular
Florida units are present: the Tampa formation and Ocala group.

b. Bathymetry'

The bay system has depths greater than those usually
associated with bar-built estuaries. Maximum depths in Pensacola Bay
range from 14 m near the opening to the Gulf and 7 m near East and
Escambia Bays. Approximately 37% of the system has a MLW depth
between 1.8 and 3.7 m, 37% is greater and 26% less than this
range (Ketchen, 1979).

Table 1.1 Surface area, volume, and depths from specific regions
in the Pensacola Bay System (after Olinger et al., 1975).

Subsystem
Surfac2 Area voiumi Mean Depth
(km (10 m (m)
Pensacola Bay
Pensacola Bay 133.6 793.8 5.9
Bayou Grande 3.8 10.3 1.7
Bayou Chico 1.1 2.0 1.8
Bayou Texar 1.5- 2.8 1.9
Escambia Bay
Escambia Bay 92.6 225.7 2.4
Mulatto Bayou 0.9 1.4 1.5
Blackwater Bay
Blackwater Bay 24.6 47.1 1.9
Catfish Basin 0.9 1.1 1.2
East Bay
East Bay 109.4 259.3 2.4
East Bay Bayou 4.5 5.3 1.2

c. Hydrodynamics

It is generally acknowledged that in order to properly
manage a bay, there must be an understanding of the physical
processes responsible for the dispersion and flushing of
pollutants that are introduced into the system. Several
investigators have reported on various aspects of the hydrodynamics
of the Pensacola Bay system (Escambia Bay - Olinger et al.,
1975; Edwards, 1976, and; Pensacola Bay - Ketchen, 1'979T.
The mean water temperature in th 8 system has a 0normal
seasonal0 range of approximately 16 .5 C (from 13.5 C in January
to 30.0 C in July and August). Temperatures show the presence
of two layers in the bay, separated by an occasional, very- ' I
intense pycnocline (or density gradient). During the late summer
and early fall, the system is nearly thermally homogeneous.

The system has diurnal tides predominately with a single
high and low stage occurring each cycle. The average tidal range
is 1.3 ft. Weather events can modify the tidal range in the
system. Tropical storms can increase the tidal amplitude,
while strong northern winds can suppress the tidal range. The
diurnal nature of the tides, along with the low tidal amplitude,
limit the flushing capabilities of the system. An estimated.18.8%
of the system's volume is exchanged during each tidal cyale and
flushing of the entire system takes approximately 18 days (Little
and Quick, 1976). Olinger et al. (1975) suggested that the

normal flushing time for Escambia Bay is 34 days but that
variations of tidal mixing and river inflow can raise this value
to 200 days.

The Pensacola Bay system is situated along a coastal region
that has perhaps the least amount of tidal energy present to
drive circulation of almost any coastal location in the Gulf of
Mexico (Olinger et al., 1975). The low tidal energy results
from the low mean tidal range and the diurnal frequency of the
tides.

Individual Bay Discussion.

The hydrodynamics of two individual bays in the system, the
Escambia and Pensacola, have been examined. A discussion of them
follows:

Escambia Bay..

The cross-sectional area of the bay increases approximately
5 times from the upper portion to the entrance of the bay into
Pensacola Bay. Escambia Bay is a partially mixed estuary
(Edwards, 1976).

Tidal fluctuations primarily determine the currents and
salinity distribution in the bay. The veltical salinity gradient
is greatel during the ebb tide (11 ppt m ) than on flood tide
(5 ppt ra ). Surface-wind stress has a dominant effect on mixing the
upper layer and on surface currents, particularly when the winds are
frim the southeast and southwest. Under windy conditions (> 7 m
s ), the halocl Ine (or vertical salinity gradient) is much
weaker (6_Rpt z ) and deeper (3 m) than under calm conditions
(20 ppt m at 1 m) especially in the central and lower bay portions.
The bridges crossing Escambia Bay (i.e., US 90, 1-10, and the L&N RR)
provide wind barriers to the upper region from southerly winds.

Stratification intensity decreases as river discharge
decreases. River discharge affects circulation and salinity
distribution in the surface water layers.

The geography of the basin causes a clockwise surface
circulation and couterclockwise bottom circulation. The
freshwater stream flows east-southeast from the Escambia River
mouth and turns clockwise, while weakening as it moves down the
bay. The flood tidal stream flows through the deep portion of
the bay mouth in a northeasterly direction and turns
counterclockwise as it moves up the channel (Figure 1.2). South
of the I-10 bridge, the outflow generally has south and west'
components, whereas inflow components are north and east.-...

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Figure 1.2 Floodfide currents within Escambia Bay.

Mean horizontal salinity gradients decrease from 1 ppt km-l
at the head to 0.5 ppt at the mouth of the bay. From thl west
side to the east, the mean gradient is abou@ 1 0 ppt km . A
sharp vertical salinity gradient (18 ppt m ) @arying in depth
from 1 to 3 m generally occurs under high river discharge and ebb
tidal conditions. Ebb tidal current patterns are shown in Figure
1.3.

Circulation is generally related to the salinity
distribution but stratification does not necessarily reflect
circulation patterns. Inflow is generally at its maximum within
or below the halocline. Outflow is at a maximum above the halocline
but not necessarily at the surface due to varying wind
conditiois., The largest instantaneous volume transport
(1,520 m s ) occurs during a spring ebb tide with a
northerly wind.

Pensacola Bay'.

Pensacola Bay is a drowned river valley/bar-built estuary.
The primary hydrologic link between the bay (as well as the entire
system) and the Gulf of Mexico is restricted to a break in Santa Rosa
Island. The opening is only 800 m wide with a cross-sectional
MLW area of 8,750 m at the narrowest point and a mean depth of
10.9 m.

Vertical mixing in the bay is generally restricted by the
unusually intense stratification. The bay is nearly always
stratified (with respect to salinity) from near salt-wedge
conditions (i.e., strong vertical stratification) to weak
stratification. Severe stratification can occur: surface
salinities as low as 0.6 ppt have been recorded off Pensacola's
Municipal Pier with bottom salinities near 25 ppt (McNulty et
al. 1972). Bottom salinities generally vary over a small range
Tapproximately 5 ppt) while surface salinities are subject to
wide variations (up to 25 ppt) during the year.
General' circulation in the bay tends to keep to the right or
follow the primary channel. Water entering the system from the
Gulf on the flood tide tends to keep to the south side of the
bay, and during ebb tide the strongest seaward flows in the
bottom layer appear to move toward the north side of the bay.
Wind greatly affects or can completely reverse the flow pattern.
The wind has a major role in establishing the bay's circulation,
not only in the surface layer but it has a dominant effect on
circulation at all depths.

Olinger et al. (1975) noted that: "A pollutant havihq a
high density, between freshwater and Gulf water, discharged under
.1normall environmental conditions in the central or upper reaches

Gulf Poweir Air Products
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Figure 1.3 Ebb tide currents within Escambia Bay.

of Pensacola Bay can be expected to be flushed from the system
within 20-30 days." However, the effects that strong
meterological perturbations have on the flushing of the bay
should also be taken into consideration. These factors are
generally more significant in estuarine water exchange than any
routine processes or average conditions.

d. Uplands

Barnett and Gunter (1985) reported that six general soil
types are present in the regions immediately adjacent to the
estuary (Florida Department of Administration, 1975) (Figure 1.4):

1) The Lakeland - Eustis association are upland soils not
affected by groundwater. They are characterized by sandy and
loamy, sandy soils more than 40 inches in depth covering finer
textured subsoils. These soils have a low moisture capacity and
rapid permeability. The association is located along the western
shore of Escambia Bay and has only slight limitations for septic
tank drainfields and severe limitations for sewage evaporation
percolation ponds.

2) The Lakeland - Troup association is characterized by nearly
level to steep, excessively drained soils which are sandy
throughout and well-drained soils with very thick sandy layers
over a loamy subsoil. This association is found in the upland
areas of the eastern shore of East Bay and north of the Yellow
River. Slight limitations for septic tank drainfields but
limitations for sewage evaporation-percolation ponds are severe.

3) The Lakeland - Paola association is characterized by level
to steep, excessively drained soils that are sandy throughout.
This association is found on the southern shore of East Bay and
on the extreme western end of the Gulf Breeze Peninsula. It has
slight limitations for septic tank drainfields and severe
limitations for evaporation-percolation ponds.

4) The Chipley - Scranton association is nearly level to
gently sloping, moderately well to somewhat poorly drained sandy
soils. This association is located along the Gulf Breeze
Peninsula and throughout the upland portions of the Garcon
Peninsula. Limitations are moderate for septic tank drainfields
and severe for evaporation-percolation ponds.

5) The Doravan - Pamlico association soils are nearly level
very, poorly drained organic soils that are underlain by sand.
This association is found throughout the floodplain of the Yellow
River and along the eastern shore of East Bay. Septic tank
restrictions and evaporation-percolation ponds are moderate.

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6) A salt marsh association is characterized by level, very
poorly drained soils subject to frequent flooding by tidal water.
This association is located along the entire shoreline of the
Garcon Peninsula and in the mouths of area rivers. Severe
limitations exist for septic tanks and evaporation-percolation
ponds in these regions.

1.3 Documented Problems

six major categories of degradations were delineated in the
Pensacola Bay system:
1) aquatic vegetation declines - submerged (i.e., seagrasses
and brackish/freshwater vegetation) and emergent macrophytes
(i.e., saltmarsh grasses) are focused upon;
2) shellfish/finfish declines - catch declines;
3) water quality degradations - nutrient loading, DO
(dissolved oxygen) declines, and toxic inputs, including
hydrodynamic alterations;
4) estuarine sediment contamination - trace metals,
nutrients, and benthic community changes;
5) bayou-specific problems - low flushing capabilities and
seasonal anoxic conditions, and;
6) estuarine erosion/shoreline alterations - especially the
north shore of Santa Rosa Island.

Each of these categories are discussed in detail below.
These, in turn, were correlated to past and current land
management practices in the areas that surround the bay system.

1.4 Aquatic Vegetation Declines

a. Submerged Macrophytes

Introduction.
This category includes the true seagrasses (i.e., submerged
halophytes that require saltwater to survive) and fresh- and
brackish-water species. The Pensacola Bay system contains three
species of seagrasses: Thalassia testudinum (turtle
grass),,Syringodium filiforme (manatee grass), and Halodule
wrightii (shoal grass). There are two common brackish-water
species encountered: Vallisneria americana (tape grass)
and Ruppia maritima (widgeon grass).

Submerged macrophytes have a number of important functions
in estuarine and marine ecosystems (Zieman, 1982). These
include:
a) providing high organic productivity with a rapid growth
rate;
b) acting as a direct food resource for some organisms but
more importantly supplying a bulk of the detritus for the entire
estuary;
c) providing habitat surfaces (the leaves offer a substrate
for epiphytic organisms that are themselves important prey for
many organisms);
d) playing an important role in estuarine geochemical cycling;

e) reducing current velocities and promoting the sedimentation
of organic and inorganic particles;
f) binding the sediments with roots and rhizomes and
hindering the erosion of the sediment surface, and;
g) acting as nursery areas for important commercial and
recreational fish and invertebrate species.

overall, the density and diversity of organisms are
significantly higher within vegetated patches than in unvegetated
sediments (Zieman, 1982). Faunal densities may be three times
greater in the vegetated areas than barren sand flats. Olinger
et al. (1975) reported that the total number of species present
could be reduced by one-half if Vallisneria was lost from Escambia
Bay and over 60% of the species could be lost if Halodule were
lost from East Bay. The latter condition presently exists,
however no studies have been conducted to examine the decline in
species diversity. Together with seagrass disappearance there
is a simultaneous disappearance of all the animals that are
epiphytic (i.e., grow on the blades) on the grasses and of
organisms that feed upon these forms.

Livingston (Environmental Analysts of Florida, Inc., 1979a)
reported on fish associated with grassbeds in Santa Rosa Sound.
The dominants included the pigfish Orthopristis chrysoptera,
pinfish Lacfodon rhomboides, lizardfish Synodus foetens, and
others. _Z@ommerclal species such as flounder, blue crabs, and
penaeid shrimp juveniles also use the grassbeds (Hoese and Jones,
1963).

Evidence exists from other estuaries (e.g., Chesapeake Bay
(EPA, 1982)) that the decline of seagrasses can be attributed to
water quality conditions and dredge/fill activities. Long-term
trends indicate increasing amounts of suspended sediments,
detritus, and phytoplankton in the Pensacola system which reduce
downwelling light. Despite a lot of water quality data, complete
analyses have not been done to attempt to document long-term
trends in all.these factors as they relate to downwelling light
in the Pensacola Bay system. Physiological studies (e.g.,
Williams and McRoy, 1982) have shown that light-dependent
productivity peaks at approximately 65 - 70% SI (surface
irradiance) and that the half-saturation constant (half maximum
photosynthesis) ranges around 50% SI. Management of light levels
to support healthy seagrasses should target this half-saturation
value, not a compensation value. There are serious implications
for the seagrasses in terms of reproductive success and growth if
only minimum light levels are available.

The Pensacola system was the focus of a historical submerged
macrophyte study and inventory by Rogers and Bisterfield-.-(1975).
They reported that the entire system experienced an overall
recession and disappearance of grassbeds from 1949 - 1974.

Recent LANDSAT surveys indicate present coverage is
approximately the same as in 1974 indicating little if any
recovery has taken place (Haddad, personal communication). Santa
Rosa Sound seagrasses were investigated by Winter (1978) with
damage noted in several beds. The EPA conducted an overflight
assessment of seagrass distributions primarily in the Santa Rosa
Sound in October, 1980, as part of a survey along the
Panhandle (Williams, 1981).

Individual Bay Discussion.
See Figure 1.5 (pp. 15-18) for an historical perspective on
submerged macrophyte distributions.
(a) Escambia Bay - The Escambia River delta primarily contains
Vallisneria americana. The region appeared the least degraded of
Th-e---e-n-tirre Bay in the mid 1970's (Rogers and Bisterfield, 1975).
Vallisneria was reported to be even be more abundant (as of 1974)
than it had been early in the records.

Along the western shore, Vallisneria americana was present
in the McKay Bay area north of Laura Point. In 1974, only one
small bed approximately 1 mi north of the point existed
in four discontinuous patches. Historically, the area has
undergone recession.

The northeastern corner of the bay (i.e., Floridatown
shoreline) had extensive submerged macrophytes (with Vallisneria
dominant) in 1949. The greatest extent was from Basshole Cove
south to Fisherman's Point and small patches near Mulatto Bayou.
The next record in 1963 indicated that the grasses were gone.
Coincidently, industries started operations on the bay during
this time period: along the northeast corner of the bay Air
Products began in 1955 and American Cyanamid began in 1958; up
the Escambia River Monsanto began in December 1953, and; further up
the watershed Container Corporation in Brewton, Alabama began in
1957.

In the'bay below the I-10 bridge, the seagrasses were
probably comprised of Halodule wrightii due to the higher
salinities present (Rogers ana Rsterfield, 1975). Sparse,growth
was recorded in 1965 along the southwest Magnolia Bluff area.
This extended for a length of 1.6 km and a width of 0.64 km (Van
Breedveld, 1966). A dense bed existed north of Magnolia Bluff
where the Northeast Pensacola STP outfall pipe was laid.
Halodule grew best along the lower southeast shore above
Hernandez Point. It extended in discontinuous areas from the
point up to I-10. In 1974, no grasses were present. A gradual
loss of seagrass was noted over a 17-yr period from 1949 - 1966.
By 1970, all of the seagrass had disappeared. Examination.in
1973 - 1974 revealed no vegetation along the shoreline (]Rogers
and Bisterfield, 1975).

1-49

1-63

4-70
11-74 3-68

11-74

lot

SAY

1-74
io-61 10762 2-64
11-56
1-51

10-62
4-

11-14 4,70
2-66

1-49
1-51 1-5810-61 10-67 11-74

Figure 1.5 Submerged macrophyte distributions (1950-1979).

IASI

lom Cog
*Ala*

1-49 2-66 10-70 10-72 11-74

Tom Kirg

Iscribano Point

1-49

11-74

EAST BRY

7-79

1-51

-58

layov Texar

10-61

moscogat
Wbarf say
11-74 Brifte

Fort
of
Pensacola
PENSACOLA SAY 300 m

The Northwest office of FL DER reported that revegetation by
Halodule wrightii had been observed in eastern Escambia Bay near
Indian Eayou (Interdepartmental Memo, April, 1985). So it
appears that at least in some portions of the system seagrass may
be beginning to recover.

In conclusion, Escambia Bay had extensive seagrass beds
along all shores in 1949 except for sparsely vegetated areas
along the southwest shore. By 1974, all were gone except stands
of Vallisneria americana along the upper western shore where
there is a significant freshwater influence from the Escambia
River.

(b) Pensacola and East Bay - Several small grassbeds near the
north side of the Pensacola Bay Bridge were first recorded in
1951 in addition to other beds adjacent to the Bay Bridge and
Bayou Texar. In 1960, the enlargement of the Port of Pensacola
(Phase I) involved extensive dredging and filling. Additional
work was done-in 1967. All the nearby grass beds were gone by
October, 1961, and have not reappeared.

The south shore of Pensacola Bay west of the Bay Bridge had
not been historically mapped. East of the bridge a nearly
continuous 22.5 km grassbed extended to Tom King Bayou. Ground
truthing in 1966 (Van Breedveld, 1966) indicated Thalassia
testudinum was the dominant species beginning in Butcherpen Cove
and extending eastward 1 mile. At some point east toward Tom
King Bayou, Halodule probably replaced Thalassia as the dominant
species (Rogers and Bisterfield, 1975). SWIInity at a nearby
station (during 1974) ranged from 4-20 ppt. The salinity values
ranged too low for Thalassia to exist. From 1949 - 1966, the
seagrass coverage decreased by approximately one-half. From 1966
- 1974 (in 2-year intervals), the record showed an accelerated
loss. Between 1966 and 1968 seagrass density decreased by over
one-half. It appears that the loss may have been primarily
Halodule and that Thalassia was reduced only slightly. However,
over the next two intervals, Thalassia continued to diminish
until 1974 when none was present.

Two records (January, 1949, and November, 1974) existed for
the northeast area of East Bay (Olinger et al., 1975). They
revealed a decline in lateral extension BY i-he bed, however the
width of the central area appeared to have remained relatively
constant. Two years later this bed had also disappeared (J.D.
Brown, personal communication). A study by Environmental
Analysts of Florida, Inc. in June, 1979, also reported the
absence of seagrass between Escribano and Miller Points.

(c) Blackwater Bay - Blackwater Bay has a lower salinit y than
the other bays, therefore the grassbeds are comprised primarily
of Vallisneria americana with some Ruppia maritima

interspersed. Historical records show the beds occupied the same
areas in 1974 as in the early 1950's (Rogers and Bisterfield, 1975).
A DER memo (1983) noted substantial beds of tape grass Vallisneria
americana and widgeon grass Ruppia raritima were found he
Yellow River delta area. The shoal area between the Yellow and
Broad River was vegetated by Vallisneria covered with heavy
epiphytic growth indicating over nutrTf-ication. Areas closer to
the bay were apparently buffered from over nutrification by better
water quality in the Weaver River as evidenced by the lack of
epiphytes growing on Vallisneria and Ruppia.

(d) Santa Rosa Sound - Three species of seagrasses are present
in the Sound: Halodule wrightii, Thalassia testudinum, and
Syringodium filiforme. Historical records extend only back into
the 1970's. Viable seagrass beds are generally found between the
1 and 3 m depths on sandy substrates and more frequently in areas
lacking development on the adjacent shoreline (Winter, 1978).

Grassbeds are present in a nearly continuous bed along the
northern shore of the Sound. The most concentrated and extensive
beds along the southern shore of the Sound were located in the
vicinity of Range Point (approximately 32.6 acres). Beds (2 near
Range Point) containing dead seagrass were noted at the 4 - 5 m
depth range. Turbidity was postulated as the probable cause.

The most recent account of seagrass bed coverage in the
Sound was published by Williams (1981). There were extensive,
nearly continuous beds present along the north shore of the
Sound.

(e) Summary - There has been a history of extensive submerged
macrophyte loss in the entire Pensacola Bay system. At the
present time, seagrasses (i.e., Thalassia and Halodule) are
nearly absent from the system wiih the exception of Santa Rosa
Sound and the Big Lagoon. Excluding these two areas, the only
abundant, persistent species are Vallisneria americana and Ruppia
maritima, essentially brackishwater species, that are doing well
in Blackwater Bay, but which have diminished in upper Escambia
Bay.

Factors 'Contributing to Macrophyte Decline.
Olinger et al. (1975) reported -that in the Pensacola Bay
system artificlal-factors - sewage and industrial waste
discharges, dredging and filling, beachfront alterations, and
changing watershed characteristics - appeared to have
synergistically affected the entire system. Additionally,
certain factors had increased the impacts of local effects. For
example, the loss of vegetation around the Northeast STP*.,was
caused by laying the discharge pipe directly through a bed and
later by sewage effluents. Along the southern shore of East Bay,
bulkheads and groins likely caused changes in nearshore water

movements and led to the erosion of the seagrass beds.
industrial discharges, "no doubt" (Olinger et al., 1975), caused
the loss of vegetation in the northeast secE11_oT_of Escambia Bay
because these effluents generally remain near the shore due to
the hydrography of the region. Dredging and filling of the Port
of Pensacola high caused turbidity that affected the vegetation,
in addition to the actual physical removal of the grassbeds in
some instances.

Winter (1978) noted that viable seagrass beds in Santa Rosa
Sound were found more frequently in areas lacking housing on the
adjacent shoreline. In addition, the beds that were located near
developed shorelines were "immature" (i.e., in terms of species
composition). She proposed that the water remained turbid in the
study region from various projects preventing sufficient light
penetration for seagrass growth. She listed the following as the
primary sources of turbidity in the region: street and land
runoff from areas surrounding the estuaries; agricultural runoff
that included'soil as well as fertilizer and provided a
substantial contribution considering much of the eastern half of
Alabama drains through Pensacola Bay; industrial wastes;
municipal wastes; watershed runoff that has increased because
forests in the Florida and Alabama watersheds have been cut, and;
increased phytoplankton populations from the increased nutrients
available from the above sources.

The turbidity explanation has some support based upon the
viability noted in the deeper grassbeds off the north shore of
Santa Rosa Island. Winter (1978) noted that beds in 12-15 ft of
water were dead, especially in the regions just adjacent to shore
areas that had extensive development. The same depth regions off
undeveloped areas such as the National Seashore and Fort Pickens
harbored live beds.

Some recent studies have calculated the euphotic depth for
seagrasses, assuming that the plants can survive to a depth where
1% of surfate'irradiance (SI) is present. However, existing
scientific literature indicates that seagrasses really need 10 -
50% SI to survive (Williams and McRoy, 1982; Rice et al., 1983).
These intensities only occur in shallow water withl-n :Eh-e estuary.
It would appear that seagrass beds are light-limited and that
some substances in the water column have increased in recent
years and are responsible for reducing the amount of light that
historically supported seagrasses in deeper water. Therefore,
light attenuation may have played a major role in the demise of
Pensacola Bay seagrass beds. A number of substances including
suspended sediment, detritus, tannins, and chlorophyll pigments
in the phytoplankton can reduce downwelling light (i.e.,..the
amount of sunlight that passes through the water column and is
absorbed by plants or reflected by unvegetated bay bottoms).

In summary, the studies performed in the system have
concluded that increased turbidity from several possible sources
has contributed to the decline of grasses in the system. As
the reports indicate, many factors have probably synergistically
contributed to the general increased turbidity. Subsequently, it
is probably impossible to attribute the condition to only one
source.

Previous Recommendations.
Olinger et al. (1975) - The only area where seagrasses have
remained relaUrv-ely stable is in Santa Rosa Sound. This area
should be considered as endangered and every effort should be
made to preserve the integrity of these seagrass beds.

Winter (1978) - Turbidity will be an important problem in
the future success of beds in Santa Rosa Sound. Any increase in
turbidity will result in additional seagrass death and those
covered by fill will also be destroyed. Regrowth of seagrasses
in the developed area seems possible and since they stabilize
sediments, seagrass could probably retard the curent rate of
erosion along the shoreline.

b. Emergent Macrophytes and Tidal Areas

Introduction.
Intertidal salt marshes and other natural shoreline features
such as intertidal mud flats perform critical functions in the
overall estuarine ecosystem. They supply a large portion of the
detritus and primary productivity to the immediate areas. They
act as a nursery ground for many important commercial and
recreational species. They also act as a filter and sediment
trap for upland runoff and buffer immediate inshore lands from
storm effects. Generally, reports on the distribution and areal
coverage of salt marshes in the Pensacola system have been
lacking.

Discussion.-
In 1973, Hopkins reported that over 20% of the Pensacola Bay
shoreline was comprised of salt marsh (14.4% in Escambia county
and 31.2% in Santa Rosa County). More recently (1982), the USFWS
published maps that depicted wetland distributions around the
system. The steep mainland bluffs along the western shore of
Escambia Bay do not support broad salt marshes; these are
restricted to the shorelines of the Pensacola, Escambia, and East
Bays (Stout, 1984). The principal component grasses in the
marshes are black needlerush Juncus roemerianus and smooth
cordgrass Spartina alterniflora. Hopkins (1973) espoused the
need for urgent basic research in Juncus marshes to esta)?Iish
their role in the food chain of the Pensacola system.

A typical salt marsh in the Pensacola system was described

by Green and Edmisten (1974). Generally, the outer (i.e.,
seaward-most) margin is comprised of Spartina alterniflora
approximately 1 to 2 m high. These grasses are usually covered
with salt water. The plant bases are the only portions entirely
exposed during very low tides. Above approximately the mean low
tide line, Spartina is replaced by Juncus roemerianus which makes
up the majority of the remaining jarsh system. WithIn the Juncus
zone, there are openings (1 - 2 m , commonly called barrens) that
are comprised of small vascular plants dominated by Lilaeops s
chinensis. In the late summer, two composites (i.e., a family of
dicotyledonous herbs, shrubs, and trees) bloom in those areas:
solidago mexicana and Pulchea canphorata. Also within the Juncus
zone patches of Rostel-etzkya inica grow. Beyond the Juncus
zone is a somewhat higher and narrower zone of mixed grasses that
include: Pancium virgatum (switch grass), Distchilis spicata,
Spartina patens, and Sporobolus virginicus.

Along the northeast shores of Escambia Bay, freshwater and
"transitional*freshwater" species dominate. Common species
include the giant reed Phragmites communis. Young and Donelan
(DER Interdepartmental Memo, 1983) reported that it covered
approximately 95% of sections of the shoreline along Escambia Bay
from Floridatown to below Mulat Bayou. The freshwater bulrush
Scirpus americanus (bulrush) grew bayward of Phragmites.
Spartina patens (a transitional marine species) grew inshore of
gm s scattered areas.

Associated Fauna.
Salt marshes support a very diverse wildlife population.
Racoon, fiddler crabs, shrimp, killifish, and mullet are
abundant. In addition, extensive waterfowl and shorebirds such
as pelicans, seagulls, terns, heron, and egrets are found
throughout the area's salt marshes (Table 1.2).

Table 1.2. Partial list of commom waterfowl that winter in Pensacola Ba
salt marshes.

Common Name Scientific Name

Bufflehead Bucephala albeola
American goldeneye Bucephala clangula
Piping plover Charadrius melodus
old-squaw Clangular Lilemalis
Dunlin Erola alpina
Harlequin duck Histrinninug histrionicus
Bonaparte's duck Larus Rhiladelphia
White-winged scoter Melan tta eglandi...
Surf scoter Melanitta e spicil.,lata
Common scoter Oidemia niger
Red phalarope Phalarop-z fillicarius

Sora Porzana carolina
Greater yellowlegs Totanus melanoleucus

The saltmarsh topminnow is a species of special concern in
Florida and is only found in Escambia, East, and Blackwater Bays
in the entire State. It has been recorded only a few times and these
areas may represent the easternmost occurrence of the species in
North America.

1.5 Shellfish/Finfish Declines

a. Shellfish

Oysters.

The most recent survey of the oyster populations in the
Pensacola Bay system was conducted by the Department of Natural
Resources, Shellfish Environmental Assessment Section from April,
1980, to January, 1985 (Barnett and Gunter, 1985). The primary
oyster species harvested in the Pensacola system is the eastern
oyster (Crassostrea virginica). Oysters are filter feeders
and tend to concentrite @(1.e., bioaccumulate) pollutants that are
present in the water column, such as heavy metals, petroleum
hydrocarbons, pesticides, and fecal coliform (i.e., pathogens)
and are therefore sensitive to degradations in water quality.

The Pensacola Bay system can be a very productive oyster
harvest area tBarnett and Gunter, 1985) (Table 1.3). The
estuary, however, has experienced a history of massive oyster
kills that have seriously hurt the oyster industry. In
September, 1971, over 90% of the commercially harvestable oysters
in Escambia Bay were found to be dead (Little and Quick, 1976).
The mortality was caused by the fungus Perkinsus marina (Mackdin,
Owen, and Collier) (also called I'dermo disease" and previously
named Labyrinthomyxa marina). Because of degraded water quality
condit ns in the system, the susceptibility of the oysters to
the disease may have been increased (Quick, 1971; Walsh, 1972).
Over $300,000 in losses were projected in potential oyster
harvests over the following three years.

Table 1.3. Oysters landed (lbs. of meat) in Escambia and Santa
Rosa Counties.

'Escambia County Santa Rosa County

1965 22,554 12,207
1966 34,467 44,049
1967 62,172 16,229
1968 16,038 34,166
1969 71,372 49,335
1970 126,520 126,035
1971 50,380 62,370
1972 9,253 23,688
1973 7,287 25,695
1974 36,536 27,862
1975 5,739 13,699

1976 0 71443
1977 0 900
1978 12,198 656
1979 0 0
1980 0 0
1981 587 0
1982 35,093 12,000
1983 78,000 41,000

Since the original survey by the Florida State Board of
Health in 1951, the waters of the Pensacola Bay system that lie
within Escambia County have not been open for shellfishing. one
resurvey was performed by the State of Florida Department of
Health and Rehabilitative Services in 1970. The report concluded
that "the presently Approved areas are valid with the possible
exception of extreme northern portions of the Escambia Bay area
and the extreme eastern restricted end of East Bay" and
recommended the closure of the area north of the 1-10 bridge in
Escambia Bay and east of Miller Point in East Bay. The legal
description for the originally approved area was: "That portion
of Escambia Bay south of Interstate 10 bridge and east of a line
along the navigational channel from the I-p bridge southwest8rly
to Flashing Light Marker Number 2 (Lat. 30 280 0011, Long. 87
061 26"), thence southerly to Butherpen Point; and all of East
Bay south of an east-west line through Escribano Point and west
of the mouth of East River (Miller Point)" (Tisdale, 1972).

Presently the "Approved" shellfish harvesting area is
located entirely within the waters of Santa Rosa County. The
1985 DKR report recommended revising the shellfish harvesting
area to the one shown in Figure 1.6 (Barnett and Gunter, 1985).

The shellfish growing waters of Escambia Bay are buffered
from direct stormwater runoff from the City of Pensacola because the
high bluff on the west shore of Escambia Bay prevents most urban
runoff from.entering directly into the bay. Primarily, runoff
enters the system through Bayou Texar. Boat traffic may '. I
contribute various metals including copper and lead, petroleum
hydrocarbons from fueling and usage, as well as occasional
discharges of raw or partially treated sewage. Commercial and
recreational boat usage is high in the summer. There is a high
amount of boat traffic through Approved waters because the area
north of the I-10 bridge is heavily industrialized.

Agricultural activities are limited within the immediate
region of the bay, but land use within the watershed of the
Escambia River is approximately 16% agricultural (NWFWMDI*._1977).
Cropland and pastureland are the predominant agricultural ' land
uses and are concentrated in the middle and upper portions of the

SANTA ROSA
to

INILTON

ESCAMBIA

do
I-so

40'.
ob
d.
pV6A=A_ do .
40 d.
6: -1.- . " 49.
b...
do

.. .99 0.6
4d.
64"& 46
a 49
.-400
bd"

P&GACCLA KOft
"t AMI 3mm ROSA Sam m" ""m
.'7;4NrA
------ 1.440
pq C
MEXICO Ujz"fl
Pa. my GULF OF Lj F

Figure 1.6 Shellfish harvesting areas within study area (Barnett and Gunter, 1985).

basin. Olinger et al. (1975) calculated average annual
quantitie2 of stormwater runoff (expressed in unit values
kg/day/km ) to be 7.7 BOD, 3.7 Total Nitrogen, and 0.6 Total
Phosphorus into the Pensacola Bay system.

Barnett and Gunter (1985) reported that there were
significant associations between rainfall events and fecal
coliform levels and between the Escambia River stage and fecal
coliform. levels at most stations examined. Mathematical modeling
showed that 2.1 in of rainfall over a 72-hour period and/or 14.0
ft of Escambia River stage resulted in predicted fecal coliform
densities equal to 14.0 MPN (most probable number)/100 ml (the
upper acceptable coliform. limit for human consumption). The
findings indicated that portions of the system previously
designated Approved met standards for Conditionally Approved
harvesting areas after significant rainfall events. In addition,
3,053 acres of Prohibited waters of western Escambia Bay also
met standards-for Conditionally Approved waters when the heavy
rainfall events were deleted from analyses.

The report defined a new Conditionally Approved area with
the following stipulations: 1) the region (as outlined) will be
closed to shellfishing when local rainfall recorded at the
Pensacola Regional Airport for any 72-hour period exceeds 2.1 in
and/or an Escambia River stage greater than 14.0 ft is recorded
at Century, FL, and 2) the area will be reopened to harvesting
when fecal coliform. densities meet the Interstate Shellfish
Sanitation Program (ISSP) standards and sufficient depuration has
taken place.

It is important to note that the county of landing does not
necessarily reflect the county in which the catch was made. In
fact, this is most apparent in the Escambia County data because
it has not had Approved harvesting areas since 1951. However,
the data do show fluctuations in oyster abundances within the
system as whole through time.

Scallops.

The bay scallop (Argopecten irradians) is generally abundant
among seagrass beds in the coastal waters of the Florida
Panhandle. Hopkins (1973) reported that scallops were seasonally
abundant in Santa Rosa Sound. Data on commercial harvests since
1965 reveal peaks in abundance in 1968 - 1969 but a virtually
nonexistent commercial fishery since that time. Their declines
can be attributed most likely to the demise of the seagrass beds.
Scallops have planktonic larvae that attach to Thalassia.blades in
the winter. Without that substrate present, populWt-ions.naturally
decline. Seagrass may also provide scallops with protection from

visual predators.

Shrimp.

Three shrimp species have been reported from the Pensacola
system (in order of abundance): brown shrimp (Penaeus aztecus),
white shrimp (j!. setiferous), and pink shrimp (j!. duorarum). The
brown and white shrimp are the dominant species, c3m'prising
approximately 80% of the shrimp fauna.

The penaeid shrimp fishery in Escambia Bay declined from a
high of 62,000 lbs (heads-off wt) in 1968 to its eventual collapse in
1972 when no shrimp were harvested from the bay (Olinger et al.,
1975). Commercial shrimp landings in Pensacola Bay declined from
over 902,000 lbs in 1968 to 17,000 lbs in 1971 (USNMFS, 1964 -
1973).

The disappearance of the shrimp fishery coincided with the
initial discovery in 1969 of high concentrations of a PCB
(Polychlorinated Biphenyl) (trade name Aroclor 1254). The
synergistic effect of an artificial and a natural stressor was
postulated to cause the mortality. PCB stress in brown shrimp
(Penaeus aztecus) and the additional stress of low-salinity water
produced death (Nimmo and Bahner, 1974). PCBs probably were not
the sole cause of death.

There has been a recent recovery of the shrimping industry
in the system that has been linked to the general improvements
made in water quality (various DER memos).

The overall decline in the shrimping industry may be linked
with the demise of the seagrass beds. Tampa Bay experienced marked
declines in bait shrimp landings during the time period of
seagrass loss (Tampa Bay Management Study Commission, 1985).

b. Finfish

The most abundant species in the system are: the bay
anchovy (Anchoa pitchilli), Gulf menhaden (Brevoortia patronus),
spot (Leiostomus xanthurus), Atlantic croaker (Micropogonias
undulatus), striped anchovy (Anchoa hepsetus), sand seatrout
(CynosciZn arenarius), tidewater silverside (Menidia beryllina),
and the Atlantic bumper (Chloroscombrus chrysurus) (Cooley,
1978).

In February, postlarval and juvenile Gulf menhaden 6nd
resident bay anchovy dominate the catch. In June, juvenile spot
and Atlantic croaker are the most abundant fish in the system.
Gulf menhaden are dominant in the bayou and delta tributary areas

from February through June. Juvenile menhaden are common in low
salinity waters (0.0 - 0.5 ppt). The primary migration of
offshore larval fishes from their spawning grounds in the Gulf of
Mexico to Escambia Bay generally begins in November with the
largest influx occurring from January to March (Olinger et al.,
1975).

Fish kills have occurred in the bays, bayous, and rivers in
the system since the late 1950's and reached their peak in the
late 1960's and early 1970's (e.g., Hopkins, 1973). In a 5-year
period from 1970 - 1974, 166 individual kills were recorded mainly
from estuarine waters. Of this total, 81 (49%) occurred in the
Escambia Bay subsystem, 15 (9%) in the East Bay subsystem, and 70
(42%) in the Pensacola Bay subsystem (Olinger et al., 1975).
Since 1974, the number of fish kills has decli-ned-markedly.

Typically, fish kills have taken place in the eutrophic
bayous. From 1970 - 1974, more than half of the fish kills
occurred during the summer months and nearly two-thirds of these
occurred from July to September. Pollution-caused fish kills have
been attributed to excessive levels of nutrients, toxic metals,
sewage, pesticides, and other industrial by-products.
Eutrophication and subsequent low DO levels have been implicated
in other kills. Low DO levels were the probable cause of
mortality particularly among menhaden. Other kills have been
attributed to the isolated.or synergistic effects of industrial
chemicals, pesticides, and other toxic substances (Olinger et al.,
1975). Fish kills in Bayou Chico had been linked to the presence
of phenols, oils, heavy metals, and resins (Glassen, 1977). Kills
in Bayou Texar were possibly caused by domestic sewage overflow
and runoff from lawns and shopping centers.

A chronic fish (primarily menhaden) kill in Escambia Bay in
1972 was blamed on a nonhemolytic streptococcus infection (Plumb
et al., 1974). Environmental stresses may have lowered the
resistance of the fish to the disease. Most kills were
multispecies kills, however, menhaden as often the dominant
fish species' affected

There was a gradual reduction in the frequency as well as
the magnitude of kills in the Pensacola system in the early
1970's (Table 1.4). This reduction has followed a general trend of
improved water quality, especially in the DO and nutrient levels.
Fish kills have declined to nearly zero in more recent years.
Some of the ones that have been noted have come as the result of
isolated incidents such as railroad derailments that have dumped
diesel fuel or other toxic material into the water. However,
during the late summer of 1986, two large fish kills were noted:
one in Bayou Chico and one in the northeast corner of Escambia
Bay.

Table 1.4. Fish kills within the Pensacola Bay system from 1970-
1974 (after Olinger et al., 1975).

Escambia Bay East Bay Pensacola Bay Total

1970 35 0 21 56
1971 29 0 13 42
1972 5 13 17 35
1973 7 0 12 19
1974 5 2 7 14

The two kills occurred nearly simultaneously and persisted
for several months. The kills began in the latter portion of July
and continued throughout most of September. DER staff in
Pensacola estimated the kill was greater than one million
individuals in Escambia Bay. Affected species included nearly
all types such as menhaden, pinfish, spot, mullet, striped
mullet, croaker, sheepshead, and eel. Apparently, the proportion
of game fish to commercial species declined with time. In
September, the kill was comprised mainly of menhaden. The kill
in Escambia Bay was attributed to two main factors: (1) low
rainfall amounts which resulted in very low flows in the Escambia
River and (2) nutrient inputs from nearby industries. The low
flow for the year (through September 1986) occurred on July 7 at
900 cfs (cubic feet per second).

The kill reported in Bayou Chico was attributed to different
albeit similar causes. The majority of industrial discharges
have been removed from the water body however the sediments
retain a large amount of nutrients and toxic material.
Nutrients do enter the bayou from urban runoff and one
domestic wastewater discharger. Under low flow conditions, these
inputs are sufficient to cause significant reductions in oxygen
from the water column. DER staff in Pensacola reported that as
of early September 1986, over 68 tons of dead fish had been
collected from the bayou.

Livingston (1977) noted in a study of fish kills in Mulatto
Bayou that without the detailed diurnal and seasonal data that he
collected from an intensive sampling schedule, the causative
factors in the sequence of events would have remained unclear.
The fish kills were part of a timed sequence of interrelated
events that showed considerable variation over short and long
periods of time.

Olinger et al. (1975) stated that the status of finfish
populations i-nd in Escambia Bay were judged to be in an
intermediate stage of recovery. Various biological parameters
indicated that many environmental conditions underwent large
improvements during the five years from 1970 - 1975. Recent fish
kills and declines in crab harvests in the mid 1980's have led
many residents to wonder if the trend has reversed.

The yield of sport and commercial fishes is one of most
tangible expressions of productivity. However, the quality and
applicability of the data are limited. There may be several
reasons for stock declines, but until such time as the biology of
these species is known, no certain evaluations of pollution,
habitat loss or gain, or other management factors can be made.

1.6 Water Quality

Water quality parameters have received the most attention in
monitoring programs and discussions of the "ecological health" of
estuaries for the obvious reason that organisms live within the
medium and are subject to all the fluctuations, both natural and
artificial that occur within the water column. Estuaries, in
general, have a large capacity to absorb and assimilate most of
the pollutants that are introduced into them. However, when
artificially stressful conditions occur simultaneously with
naturally extreme conditions (e.g., low freshwater input and high
temperatures) sometimes the conditions become lethal to the
organisms. The results are expressed as visible fish kills or
grassbed declines. Difficult to assess, however, are the
sublethal effects of perturbations, such as reduced reproductive
output and adult size. In addition, the synergistic effects
produced by the interaction of various artificial inputs are not
well known at present.

a. overview

The interpretation and compilation of the available water
quality data was hampered in many instances by difficulties
encountered with the different sampling techniques and analyses
used by various investigators, in addition to unrecorded
physical conditions at the time of sampling such as tidal state,
winds, and precipitation that are known to cause significant
variation in water quality parameters. Also, sampling
stations were not in the same location in many cases and this
contributed additional variability to the results. Moreover,
there should be a good understanding of normal year-to-year
variations in certain parameters if the eutrophication process
and artificial influences on the system are to be understood.
Ideally, there should be water quality and meteorological
condition data over the last several decades that have been
examined. These do not appear to exist and are known only in
general te=s.*

Florida has a classification scheme for coastal waters that
ranges from Class I through V. Each has general water quality
standards that apply to it (Chapter 17-3, F.A.C.). All of the
waters within the Pensacola system are Class II or Class III
waters. Class II water quality criteria are designed to permit
the harvesting of shellfish for human consumption. Class III
criteria provide satisfactory water quality for the propagation
and maintenance of fish and wildlife and for recreational
activities. There are no mandatory Federal water quality
standards specific to Florida. However, Florida water quality
standards are subject to review and approval by the USEPA

pursuant to Section 303 of the Federal Water Pollution
Control Act Amendments of 1972.

b. Historical Perspective

Water quality characteristics were monitored as early as the
1950's in the Escambia River and Bay. Prior to industrial effects,
the lower Escambia River was reportedly free of pollution
(Academy of Natural Sciences of Philadelphia, 1953). In 1958,
industrial inputs began to adversely affect estuarine organisms
in northeast Escambia Bay (Florida State Board of Health, 1958).
Regular investigations into the water quality of the Pensacola
Bay system began in 1969 (Hopkins, 1969, 1973; Tisdale and Young,
1969). A major study was conducted by the EPA in 1974 (Olinger
,2t al., 1975). In 1979, 1980, 1981, and 1983-1984, studies
were conducted by the Environmental Analysts of Florida, Inc.,
City of Pensacola, and the Escambia County Utilities Authority
(ECUA) respectively. The ECUA (1984) reviewed past records for
comparison to their present work and documented changes in
conditions throughout the past 20 years and "demonstrate(d) that
Pensacola Bay-recovered from a very stressed condition noted in
the 1960's and maintains an environmentally healthy condition
today." The DER has conducted numerous hydrolab (water quality)
surveys of various portions of the system as well as surveys in
response to isolated incidences such as railroad derailments and
fish kills.

The Center for Government Responsibility at the University
of Florida (1976) reported that overemphasis upon industrial
water pollution in the area "would be both unwise and unfair".
The people of the region must bear their fair share of
correcting the increasingly apparent problems of urban expansion;
nonpoint source discharges of unconcentrated but nonetheless
chemical pollutants; stormwater and construction runoff; bayou
sedimentation; beach erosion or discoloration; overloaded sewage
system; adverse effects on upland vegetation, particularly from
septic tanks. Typical regional problems are associated with
unplanned residential development in particular and uncontrolled
coastal growth in general (Center for Government Responsibility,
Univ. Fla., 1976).

c. Water Quality Parameters

Nutrients.

(1) Nitrogen - During 1974, the mean concentration of total
nitrogen in Escambia Bay exceeded the reference standard of 0.360
mg/l. More than half the time the limiting nutrient for,
phytoplankton in the Pensacola Bay system appeared to be.-.-
phosphorus. Mean nitrate-nitrite concentrations in the system

during January - September, 1974, decreased in seaward direction
from Escambia River to lower Pensacola Bay. Nitrate-nitrite was
the only nitrogen parameter that showed this upper to lower bay
pattern.

Some localized elevations in nitrogen concentrations near
waste outfalls in the system have been detected by various
investigators (e.g., McAfee, 1984). These have occurred in
northeast Escambia Bay, near the Main Street outfall, and near
Bayou Texas. Organic nitrogen, ammonia, and nitrate-nitrite
concentrations were generally elevated in these locations.

From January through September, 1974, Pensacola, East, and
Blackwater Bays had virtually identical nitrogen concentrations.
The major portion of nitrogen in the Pensacola system was organic
nitrogen. Total nitrogen concentrations in Escambia. and East
Bays during the August, 1973, low-flow diel (24-hr) water quality
surveys were noticeably higher than concentrations during the
April high-flow surveys. This condition probably reflects higher
biological productivity in the summer, rather than flow conditions.

From 1969 - 1974, nitrogen concentrations decreased and
Olinger et al. (1975) viewed this as an indication that water
quality Trip-roved during the five years.

The first study to present nitrogen information on Pensacola
Bay was the City of Pensacola monitoring report (1979). In this
report, total nitrogen concentrations were in excess of those
found in 1983 - 1984 (McAfee, 1984). organic nitrogen comprises
a major portion of the system, other forms are not very
significant. Mean total nitrogen concentration in Pensacola Bay
was similar to Choctawhatchee Bay which was 0.256 mg/l or 0.104
mg/l below the nutrient index recommended in Water Quality
Criteria (1971). Mean total nitrogen for the 1983 - 1984 ECUA
study exceeded 0.360 mg/l in 2 of 10 stations. Both stations
were at the Main Street WWTP effluent discharge. Eastern outfall
locations had'nitrogen levels that averaged 0.39 mg/1 while the
center boil.of-the effluent averaged 1.14 mg/l.
Young (DER Interdepartmental Memo, 1985) reported the'
average annual total nitrogen levels from an increase in station
(PNS) within Escambia Bay from 1974 to 1985 Table 1.5.

Table 1.5. Total nitrogen measured in Escambia Bay (PNS
station, FL. DER, unpublished data).

Total nitrogen (mg,/l)
1974 0.396
1975
1976 0.456
1977 0.490
1978 0.476
1979 0.568
1980 0.685
1981 0.580
1982 0.520
1983 0.460
1984 0.545
1985 0.754 (4-30-85)
1985 0.640 (7-17-85)

(2) Phosphorus Various reports have indicated that the
Pensacola system is phosphorus limited. Three forms occur
most frequently, orthophosphate, polyphosphate, and organic phosphate.
Phosphorus is usually present in an insoluble form in an estuary
because: (1) much soluble phosphate is taken up into cell mass
and kept out of solution; (2) phosphate is readily adsorbed onto
insoluble residues in the water, and; (3) the pH is in the range
(slightly basic) in which phosphate forms an insoluble
precipitate. The upper acceptable limit for total phosphorus in
the system is approximately 0.05 mg/1 (Olinger et al., 1975).

Young (DER Interdepartmental Memo, 1985) reported that total
phosphorus levels were 0.15 mg/1 in July 1985 samples
which greatly increased the potential for algal blooms.

The concentration of orthophosphorus dropped by 50% between
1969 - 1974, while total phosphorus concentrations decreased
by 75% (Olinger et al., 1975). McAfee (1984) noted that ' I
there was a gradual decrease in phosphorus concentration since
1981 ECUA study.

(3) Carbon (Total Organic Carbon or TOC) - From surveys
conducted in 1974 by Olinger et al. (1975), mean TOC
concentrations in all portions oY-the Pensacola Bay system were
greater than the 2.0 mg/1 standard with only two exceptions.
Therefore, sufficient carbon was usually available in the system
to theoretically cause the DO concentrations in the waters to be
depressed below the concentrations specified in the Florida Water
Quality Standard. Mean TOC during 1974 water quality surveys
were distributed uniformily throughout Escambia Bay. Mean

concentrations throughout the bay were generally lower than those
in the river. Olinger et al. (1975) reported that there
were no obvious increasi-s 1-n TOC concentrations near the waste water
discharges during their 1974 sampling period.

Throughout East and Blackwater Bays, the mean TOC
concentrations were essentially the same during January through
September 1974. In Pensacola Bay, TOC concentrations generally
decreased in a seaward direction with the lowest mean
concentrations occuring at the western end of Santa Rosa Sound.
During 1974, mean TOC concentrations in Escambia Bay were
statistically higher than in Pensacola and East Bays.

(4) Nitrogen to Phosphorus ratio (N:P) - This index uses
total nitrogen and total phosphorous concentrations. It is a
criterion, similar to the Principal Nutrient Index discussed
below, for determining nitrogen balance in a system. A standard
value of 7.25:1 is obtained based on weight. This value applies
to open ocean-waters but generally not for highly productive
estuaries. Olinger et al. (1985) reported the following mean
values for bays within the system from January through September
1974: Escambia Bay - 14.6:1; Pensacola Bay - 10.5:1; East Bay
18.5:1, and; Blackwater Bay - 14.6:1. All these values indicated
that nitrogen was usually available in sufficient amounts and
that phosphorus would be the limiting nutrient for phytoplankton.
McAfee (1984) reported that the total mean N:P ratio for June
1983 through July 1984 in Pensacola Bay was 7.02:1. He
interpreted this to indicate a "drastic improvement" in bay
conditions since Olinger et at.'s (1975) study.

Principal Nutrient Index (PNI).

Olinger et al. (1975) introduced the use of Harkin's (1974)
Principal Nutrie-nt Index (PNI) for the nutrient data present
from the Pensacola Bay system. Total nitrogen, total phosphorus,
and total organic carbon were the three nutrients used in the
calculation-of the PNI. The index is an effective water
management tool because it allows an investigator to combine
three parameters into one, thereby simplifying the evaluation of
nutrient levels in a system. The standard PNI value used for the
Pensacola system was 9.0 based on levels of 0.36 mg/l for total
nitrogen, 0.05 mg/l for total phosphorus, and 2.0 mg/1 for total
organic carbon (Olinger et al., 1975). A sample with a PNI
above 9.0 is considered nutrient enriched.

Several trends in PNI values were reported by Olinger et al.
(1975) during their study. Escambia Bay had the highest PNI
values of all bays in the system. PNI values appeared to have
decreased in Escambia Bay from 1969 to 1973. During Sepfember
1969, 91% of the PNI values exceeded 9.0. In Escambia Ba'*y'*in
1974, 50% of the stations had PNI values that exceeded 9.0.

However, in Pensacola and Blackwater Bays, less than 25% of
the stations had PNI values over 9.0. East Bay had the lowest
number of high PNI values in the entire system in 1974.

Mean surface and bottom PNI values in Escambia and East Bays
were higher than values in the Escambia River inflow indicating the
importance of the contribution from sediment resuspension. High PNI
values occurred when Escambia River discharges were high and low values
occurred during low flow periods. Mean PNI values generally followed
the river discharge trend for each bay in the system. In Pensacola
Bay, the highest surface PNI values were present near the Main Street
STP outfall. In general, PNI values decreased in a seaward direction
throughout the system.

McAfee (1984) reported that the mean PNI values in Pensacola
Bay during July 1983 through July 1984 for surface, mid, and
bottom depths were 7.44, 5.91, and 8.65, respectively, with
an overall average of 7.33 (note the 9.0 standard established
by Olinger etal., 1975). The values were influenced
by one stat@ion--iln the center of the Main Street STP discharge.
Since values were lower than the standard even with the high
station considered, McAfee (1984) interpreted this as an
indication that the bay was not in a stressed condition.

Oxygen.

Dissolved oxygen (DO) concentrations in waters are affected
by a number of different factors: (1) inflow of tributaries; (2)
oxidation of organics; (3) inorganic reactions; (4) photosynthesis;
(5) turbulence; (6) temperature, and; (7) salinity. In 1969,
the Florida State Health Department reported readings in the
system ranged from 4.2 - 8.9 ppm. In 1974, DO levels were near
saturation for the surface stations, deeper stations had lower
values. Mean bottom DO concentrations were usually lower in East
Bay than in Escambia from January - May, 1974, and higher after
May, 1974. There was an inverse correlation between DO and
salinity. Olinger et al. (1975) reported that DO concentrations
in Escambia Bay app-ear'gd- to have improved between 1969 and-1973
through 1974.

During the 1974 EPA study, there were two periods of low DO,
one in the early spring and the other in the late summer. This
pattern has also been noted in several other reports (Livingston,
1977; DER various memos). The period in early spring typically
occurs after high river inflows and the one in the summer occurs
when salinities in the system are high due to low freshwaters inputs.
When the system becomes vertically stratified, oxygen is not
transported from the upper layer, which undergoes reaeration, to
the lower layer which must satisfy the BOD (Biochemical Oxygen
Demand).

Based on data from East Bay, low DO concentrations occur
during critical periods (e.g., high temperatures and low river
inflow) even in the bays that do not directly receive point source
waste discharges (Olinger et al. 1975). Consequently,-due
to the naturally poor cir6ula-t1on in the Pensacola Bay system, the
assimilative capacity of the system with respect to oxygen
resources is extremely limited.

During a 1979 bay monitoring program, August - October DO
readings were taken at three depths: bottom Do readings ranged
from 0.5 - 4.7 ppm and surface readings reached as high as 8.5 ppm
(Brown, 1979). In 1981, the ECUA reported that DO concentrations
at mid-depth and subsurface stations overall were good in relation to
temperature and salinity (Shuba, 1981). Some DO concentrations
were below the defined acceptable 2.0 ppm level. Shuba (1981)
reported that the Main Street STP discharge did not affect the
usually low summer DO concentrations. Moshiri et al. (1980)
reported that.the Santa Rosa Sound area had reli-tiVe-ly high Do
concentrat-ions. in 1984, the ECUA reported that DO averages for
bottom depths were 5.1 - 6.5 ppm. The lowest single reading was
3.0 ppm. In a 1983 survey, Young and Butts DER, Interdepart-
mental Memo) stated that DO was generally good for normal aquatic
life for the Pensacola area. The extremes of DO supersaturation
associated with eutrophication were absent, indicating
improvements in the bay. According to the 1983 - 1984 ECUA
survey, DO conditions improved from the 1974 EPA study (McAfee,
1984). Surface DO concentrat-tions were in the same range as
samples taken in 1974, with higher concentrations reported for
the bottom samples taken during the study indicating a healthier
condition for Pensacola Bay.

The water column can be extremely stratified such that
bottom Do concentrations may be below the limit for organisms to
survive. Young, Ray, and Butts (DER, Interdepartmental Memo, 1983)
noted that the Blackwater-East Bay region had a history of
fish, crab, oyster, and clam kills from the mid sixties to the
seventies. -Blue crab fishermen have complained in the past of
crabs dying-in'pots that happen to be placed within low DO.bottom
water. The situation appears to be the result of over
nutrification. Do levels occasionally become very low (0.8 - 1.2
ppm) in water deeper than 6 ft. Young, Ray, and Butts (1983) noted
significant reductions in DO above the Yellow River confluence.
They postulated that the Milton STP was the major source of
nutrients contributing to the low DO levels. The present Do
problems in Blackwater Bay are more acute than Escambia Bay
possibly indicating that the Milton STP needs upgrading (Young, 1981;
Young, Ray, and Butts, 1983).

Biochemical oxygen Demand (BOD).

There are no BOD limits for estuaries with the exception

that in Class II and III waters, BOD shall not be in excess to
cause the DO content to drop below 4.0 ppm. A 1969 report by DER
stated that BOD levels for Pensacola Bay were generally high for
bay waters, however, only 4 out of 42.BOD analyses were above
standards. The only other report to consider BOD information
other than the 1983 - 1984 ECUA study was one by Moshiri (1980)
which stated that high DO's were found in conjunction with high
BOD's in Santa Rosa Sound. BOD concentrations for the 1983 - 1984
ECUA report were all below 2.0 ppm and generally accompanied by
high DO's. According to the Florida DER standards, this is
considered a healthy condition. Results of the 1974 EPA study
indicated no difference or appearance of excessive BOD levels in
Escambia Bay between 1973 and 1974 (Olinger et al., 1975).

Turbidity.

Water turbidity or clarity can be a highly variable
parameter on a daily basis. Measurements are generally made with
a Secchi disc. Turbidity readings have not been historically
collected at fixed stations so comparisons of any data are
tenuous at best.

d. Causative Factors of Water Quality Degradation

Olinger et al. (1975) reported that point source wastewater
discharges were ih-e major cause of poor water quality conditions
in Escambia Bay during the late summer. However, non-point sources
and tributary river inflow also contributed to poor water quality
conditions. Pensacola Bay proper receives the greatest quantity
of BOD material and significant amounts of total nitrogen and
phosphorus from nonpoint sources (Olinger et al., 1975).
Escambia Bay receives the lowest quantitiesi-or each pollutant,
because the bluffs on the west shore of Escambia Bay prevent most
urban storm water runoff from entering the bay. The majority of
this runoff enters the bay system through Bayou Texar which
received 14% of BOD, 10% of total nitrogen, and lit of total
phosphorus discharge to Pensacola Bay system in 1974 (Olinger et
al., 1975).

Because of poor circulation and flushing characteristics,
the assimilative capacity of the Pensacola Bay system is
extremely limited and the bay is barely able to assimilate
natural inputs of nutrients and oxidizing materials (Hopkins,
1973; Olinger et al., 1975). The situation can become critical
during particular7times of the year when natural conditions such
as low river inputs and high temperatures are already at
stressful levels.

Causative Agents.

The following discussion concerns only surface water
contaminants; pollutant discharges from ground water entering
estuarine waters have not been documented in the system.

Point Sources(Ficjure 1.7)

a) Domestic Waste - Major characteristics are high BOD, high
suspended solids, and high coliform bacteria. Municipal wastes
are decomposable organic material, discharged from toilet,.
kitchen, and laundry facilities, and carried in sewer lines.
Material consists of carbohydrates from plants and paper,
proteins from animal and plant matter, and miscellaneous fats and oils.
Organic material as a source of nutrients alone are not necessarily
detrimental. In excess, however, they reduce the level of DO in water
and result in the development of new fauna and flora, particularly
objectionable algae.

Chlorinated effluents - The ecological impact of chlorine
and its by-products on aquatic environments has not been..
adequately measured or evaluated largely because diagnost.ic
techniques for chlorine are undependable. At relatively high

municipal Point Industrial Point
Source Facilities Source Facilities

I-Andalusia A-Container Corporation
North side disposal plant of America
West side treatment plant B-T.R. Miller
South side disposal plant C-Exxon Corporation
2-Brantley WTP D-Alger-Sullivan Tal-ber
3-Brewton WTP Co.
4-East Brewton WTP Z-Gulf Power
S-Evergreen F-Monsanto
Plant 01 G-Air Products Co.
Plant #2 H-American Cyanamid Co.
G-Fort Deposit WTP I-NKS Whiting Field
7-Greenville WTP J-NAS Pensacola
8-Luverne WTP

East side WTP
West side WTP
10-Century WTP
11-University of West Florida
12-Ponsacola, Northeast WTP
13-Pensacolft, Main St. WTP
14-Warrington WTP
15-Pen Haven WTP (D99 TROY
16-Gulf Droste WTP
17-Pensacola beach WTP
18-Milton WTP
19-Crestview WTP

D@ 1A

C A
LABAMA
0 FLOR A

OPA R.

G tin
H

E 111
12
PENSACOL 3 EAS'T

f6 171)f hoesico
GU

Figure 1.7 Major point-Source diSCharges.

chlorine concentrations, the growth of most phytoplankton decreases
and mortality increases largely because of the impairment of
photosynthesis. Chlorine may be a factor in the decline of
large areas of submerged grasses in Mobile Bay and it seems
certain that chlorine is a contributing factor in damaged areas
directly receiving industrial effluents (O'Neil and Mettee, 1982).

Four main WWTP's discharge into the Pensacola Bay system:
1) Main Street WWTP - is operated by ECUA. The plant's operating
design capacity is 20.0 mgd and the average flow is 11.0 mgd. The
service area is primarily southern Escambia County. The effluent
is discharged 6,109 ft out into Pensacola Bay in 23 ft of water.
Approximately 95% of the effluent is domestic, while the
remaining 5% is industrial.
2) Milton WWTP - is operated by the City of Milton. The plant's
design capacity is 2.5 mgd with an average flow of 1.5 mgd. The
plant has had.a history of raw sewage by-passing the plant and
discharging into the Blackwater River during periods of heavy
rainfall. It was renovated in 1984. Effluent is discharged 423
ft out into the Blackwater River.
3) University of West Florida WWTP - UWF operates a 0.5 mgd
plant. It serves approximately 5,000 people. The average flow
from October 1983 to October 1984 was 0.174 mgd.
4) East Milton Elementary WWTP - Santa Rosa County School
Board operates the East Milton Elementary School WWTP. The plant
capacity is 0.005 mgd. It serves 425 people. The average flow from
November 1983 to November 1984 was 0.003 mgd.

Septic Tanks - Septic systems can have a significant
detrimental effect on environmental quality especially in the
forms of water-borne diseases and nutrient loading. However,
little definitive research and documentation is available.
Septic tank systems work well in rural low density areas with
suitable soil and a deep water table. Many areas immediately
surrounding the Pensacola system are rapidly becoming high
density population centers, usually low-lying and subject to
periodic inundation, and comprised of coarse, sandy soil that is
an ineffective filtration medium. Three major potential problems
are associated with septic tanks in coastal areas:
(1) wastes are leached into coastal waters when septic tanks are
located too close to the shore;
(2) tidally-induced high water tables provide direct and rapid
flushing of drainfields into coastal waters;
(3) inadequate drainfield components or soil-absorption
characteristics cause tanks to overflow, particularly during
rainstorms, and pollute coastal waters.
The majority of septic tanks within the Pensacola system.-are not
adjacent to the shoreline (Barnett and Gunter, 1985). Waterfront
septic tank systems account for 26% of the systems within- the
area.

b) Industrial Waste - Four major industries discharge treated
industrial wastes into the surface waters of the Pensacola system:

1) Air Products and Chemicals, Inc. - began operation in 1955 and
produces agricultural chemicals, polyvinyl chloride (PVC)
plastics, industrial organics, and inorganics including chemical
intermediates. It operates a 1.5 mgd wastewater treatment
facility. Table 1.6 gives annual loadings.of the plant to
Escambia Bay.

Table 1.60. Annual loadings (lbs/yr) to Escambia Bay by Air
Products (FL DER, unpublished data).

Year Total N T/P04 TSS T/COD

1974 367,765 10.096 97,313 376,814
1975 331,604 11,710 73,964 381,162
1976 314r987 8,340 72,579 314,511
1977 170,371 9,260 60,784 308,505
1978 210,315 91576 68,097 403,736
1979 181,824 9,438 62,045 376,324
1980 124,365 6,314 67,106 332,022
1981 70,385 3,930 46,230 287,948
1982 88,825 5,344 55,017 337,258
1983 91,435 6,411 53,361 311,074
1984 89,234 5,637 63,939 282,569
1985 (Thru 117,697 5,435 48,426 299,634
1986 June) 49,328 3,743 33,410 168,921

2) American Cyanamid - a synthetic fiber manufacturer producing
acrylic polymers from acrylonitrile and methyl-methacrylate
monomers. It operates a 5.0 mgd wastewater treatment system.
Average flow for the period between January - June 1983 was 1.65 mgd.
The effluent pay be disposed of by surface discharge via a
submerged pipeline 5,000 ft into Escambia Bay or 50% of the
effluent is treated by spray irrigations via one or two spray
heads at a time at a rate of 500 gal/min onto an 80 acre site.
Table 1.7 gives annual loadings of the plant to Escambia Bay.

Table 1.7. Annual loadings (lbs/yr) to Escambia Bay by American
Cyanamid (FL DER, unpublished data).

year BOD TSS TN Different
Permit
1976 169,360 144,540 317,915 Limits
1977 35,770 109,500 211,335
1978 73,000 97,090 187,610

1979 51,465 101,105 176,660
1980 27,740 78,110 166,805
1981 20,440 60,955 119,720
1982 21,535 41,610 95,630
1983 26,280 38,325 111,690
1984 30,368 43,800 144,905
1985 (Thru 22,964 55,449 132,738
1986-July) 11,145 32,345 35,373

Both American Cyanamid and Air Products hydrographic
studies indicate that the waste from their outfalls tends to
accumulate near the upper eastern shore of the bay. This tendency
to accumulate industrial waste is significant in regard to public
health. It was recommended by Barnett and Gunter (1985) that any
construction, dredging, or other activities that have the
potential to suspend the sediments of the northern portions of
Escambia Bay be closely reviewed and monitored to provide maximum
public health.protection.

3) Gulf Power - Gulf Power Corporation operates the Crist
Electric Generating Plant located in Escambia County 3.3 miles
upstream from the mouth of the Escambia River. The Crist plant
consists of 7 fossil fuel electric generating units. Condenser
cooling water for five of the units is drawn from Governor's
Bayou, a tributary of the Escambia River, and passed through a
cooling tower before it is discharged via a 5,000 ft canal into
the Escambia River approximately 4.5 mi north of shellfish growing
areas.

4) Monsanto Chemical Company - began manufacturing in December
1953. Nylon production increased 700% from 1953 to 1972 (EPA,
1975). Process-generated wastewater is routed for treatment,
while stormwater is routed into the Escambia River through
permitted discharge points. The overall system is designed to
divert the first inch of rainfall to processing in the waste
treatment system and the remaining clean flow is rerouted into
the river.

Concentrated wastes generated at the plant are collected and
disposed of in 3 deep-injection wells with a total capacity 2,400
gal/day. The wastes are injected into the lower limestone of the
Florida Aquifer at a depth between 1,600 and 1,800 feet. The
plant has 2 river discharges comprised of mainly once through
cooling waters and collected stormwater runoff. Table 1.8 gives
annual loadings of the plant to the Escambia River/Bay.

Table I.B. Annual loadings (lbs/yr) to the Escambia River/Bay by
Monsanto (FL DER, unpublished data).

Year BOD 5 TN Total P

1976 256,595 131,765 8395
1977 260,610 137,240 10585
1978 304,045 129,940 10220
1979 429,970 142,715 7665
1980 209,145 89,060 7665
1981 147,825 49,640 5475
1982 206,225 44,895 2920
1983 141,985 45,265 4745
1984 140,525 55,480 3650
1985 108,618 44,256 3407
1986 (Thru June) 33,334 16,688 1538

Nonpoint sources (Table 1.9)

There are several sources that are considered nonpoint:
1) urban stormwater runoff;
2) agricultural runoff, and;
3) forest and swamp drainage and runoff.
All these are slug-type discharges that occur during a rainstorm.

Surface runoff from agricultural lands contributes to water
pollution by transporting biocides (insecticides and herbicides),
and nutrients (fertilizers) by increasing erosion of disturbed
soil and associated sedimentation, and by pathogenic bacteria and
viruses from excrement in feed lots and pastureland. Usually
individual farms do not substantially contribute to downstream
pollution but collectively they do.

Table 1.9. Average non-point source pollutant discharge into
reaches of the Pensacola Bay System (Olinger et al., 1975).'
2 (kg/day)
Basin Area(km BOD Total N Total P

Escambia Bay 126.9 433 92 29
Pensacola Bay 148.7 1337 202 69
Blackwater Bay 316.2 884 280 73
East Bay 236.7 457 102 37

Potential water contaminants, primarily from the use and storage

of motor vehicles, accumulate on impervious surfaces between
storms. Direct runoff from these surfaces into the bay may have
detrimental effects on estuarine habits. Runoff should be
prevented from entering the bay and directed to infiltation
devices. In areas where a high water table or dense soils do not
allow infiltration, wet ponds or shallow marshes may be
constructed to accept the first half inch of runoff.

The size and complexity of stormwater management problems are
proportional to the amount of impervious surface created by
development. Therefore, an area that limits the amount of
impervious surface in a development will have fewer problems
related to excess runoff than one with large areas of imprevious
surface.

The maximum desirable percentage of impervious surface in a
particular area will vary depending on local conditions.
Important factors related to runoff are infiltration rates of
soils, depth to the water table, and the area available for
infiltration devices, wet ponds, and shallow marshes.

1.7 Sediment Contamination

a. Introduction

Natural forces such as erosion and weathering are constantly
releasing metals, nutrients, and organic matter from upland
regions while rivers and streams eventually transport these
materials downstream to the estuary. In addition, these
substances are introduced into a waterway through artificial
means such as sewage treatment plants, over and above their
natural levels. The majority of pollutants entering estuaries
are bound to sediment particles (particularly clays and hydrated
iron oxides) that rapidly settle and become incorporated into the
bottom. Estuarine sediments essentially act as a sink for many
constituents.. Therefore, sediments are good indicators of the
pollution condition of an estuary. Sediment chemistry may
provide a more comprehensive evaluation of the pollution in an
estuary than water quality which is generally the accepted
standard (Ryan et al., 1984).

Traditionally, regulatory processes in estuarine environments
have placed an overemphasis on water quality considerations as a
basis for decision making, with near disregard for other equally
important factors. Recently, the FL DER has stressed the need to
examine estuarine geochemistry, with a focus on the sediments.
The FL DER states that water quality standards alone fail to
provide an adequate basis for managing estuarine environments and
have recommended that closer attention be paid to the sediments
which are the main repository of pollutants from man's activities.

Seasonal chemical variations in sediments, exclusive of
nutrients (e.g., nitrogen and phosphorus) are not likely to be
appreciable as is often the case with watert column parameters.
In addition, sediment sampling strategies can take into account
the geographical distribution of sediment types. The FL DER uses
metal-to-aluminum ratios to detect potential environmental
problems as opposed to simple concentrations.

Most of the particulate material entering the Pensacola Bay
system from point and nonpoint waste sources and tributary rivers
are retained in the system. However, this material is distributed
throughout the bays before sedimentation occurs. Thus, the
effects of waste discharges are bay wide.

b. Synthetic Organics

Polychlorinated biphenyls (PCBs) - PCBs, in general, are
extremely stable and exhibit little degradation in the estuarine
environment because of their insolubility in water and relative
thermal stability. PCBs are used in formulating plastics, resins
for rubber-based lacquers, varnishes, paints, lubricants, heat-
transfer fluids, and electrical insulators.

Aroclor 1254 (a trade name for a PCB) has been continually
detected in the bay sediments since its release in 1969 when an
accidental leak of heat-exchange fluid from the Monsanto Chemical
Company plant into the Escambia River occurred. Higher
concentrations were generally present in the finer-sized
particles, especially channel sediments near the industrial waste
discharges in the northeast portion of Escambia Bay.

Olinger et al. (1975) reported PCBs from sediments
throughout th-ebay system. concentrations ranged from 0. - 1500
ug/kg (ppb). The highest concentration was located in the Escambia
Bay barge channel. There was a general trend of higher PCBs in
the finer particles throughout the system. PCBs eventually
accumulate deeper into the sediments where they can not readily
affect organisms, etc. This situation has occurred over the past
years til the present when they no longer present a threat to
estuarine life unless dredging or other sediment disruptive
activities uncover them.

c. Pesticides

Olinger et al. (1975) analyzed the sediments for 21
pesticides. Flv-e-were detected. DDE (a derivative of DDT) was
found in the sediments of Blackwater, East, and Pensacola Bays
but not in Escambia Bay. Concentrations ranged from
nondetectable to 1.9 ug/kg. Dieldrin was found only in Escambia
Bay 0.12 - 0.43 ug/kg at 4 of 13 stations. Dieldrin is highly
toxic and probably entered the system through lawn fertilizer and
ant control measures.

d. Metals

In general, all metal concentrations are higher in muddy
sediments than in the coaser-grained sandy sediments within the
bay system. (Note: Joe Ryan or Graham Lewis in DER's office of
Coastal Management should be contracted for sediment chemistry on
numerous metals, synthetic organics, and nutrients in the
Pensacola Bay System. Considerable work has been done and
detailed data are avilable.

Lead.

Higher concentrations are generally present in the mid-
portions of the bays. Olinger et al. (1975) reported that muddy
portions of the system had concentrations 10 - 38 ug/g-except
Bayou Texar and Chico - that were at 54 and 64 ug/g respectively.
Higher concentrations (by a factor of two) were present below the
L & N railroad trestle in comparison to other regions throughout
the bay. Concentrations in East Bay were approximately the same
as lower portions of Escambia Bay. Five stations along the north
margin of Pensacola Bay and in the bayous along the north shore
had concentrations that were highest for the entire bay system.
These stations were influenced by the City of Pensacola's
wastewater discharges. Lead concentrations in Escambia Bay did
not seem excessive (Olinger et al., 1975) and were lower than
Mississippi coastal areas, Cli-e-si-peake Bay, Galveston Bay, and
Mobile Bay.

Zinc.

Concentrations were lower in shallow sand stations in
comparison to deeper muddy stations in the entire system. Upper
Escambia Bay had lower concentrations than the lower bay within
mud stations. Bayou Texar had high concentrations (150 ug/g)
compared to the highest concentration of 85 ug/g in Escambia Bay.
Bayou Chico had a concentration of 1200 ug/g in its mud which is
very high when compared to other systems. Generally, Escambia
Bay had lower concentrations than Pensacola Bay.

Donelan (DER Interdepartmental Memo, 1984) noted zinc
concentrations in a survey of Monsanto outfalls into Escambia
River. Zinc concnetrations were higher than backgroumd levels,
but within permits limits, in South outfall. The North outfall
(also called the North Ditch) was in violation of section 17.3,
FAC (Class III waters) for zinc.

Ryan (personal Communication) noted relatively high zinc-to-
alumium ratios (i.e., in the polluted range) in samples taken at
various locations in the Pensacola Bay in the fall of 1985.

Chromium.L Cadmium, Manganese, Nickel, and Aluminum.

All concentrations of these metals did not exceed background
levels in the system (Olinger et al., 1975). Donelan (DER
Interdepartmental Memo, 1984) iio-tid-- that chromium in North Creek
was elevated high above background levels. Ryan (personal
communication) noted elevated chromium-to-aluminum ratios at
numerous stations in pensacola Bay in fall 1985 samples compared
to background levels.

Copper.

Sandy areas generally had lower concentrations of copper
than muddy stations within the Bay system. Muddy stations in
upper Escambia Bay had lower concentrations than muddy 'stations
in lower Escambia Bay. East Bay copper concentrations were lower
than either upper or lower bay portions of Escambia Bay. Mulatto
Bayou and Bayou Texar concentrations were 10 ug/g, Bayou Chico
had a concentration of 120 ug/g. These values compare to East
Bay - 4.4 ug/g, Escambia Bay system - 8.7 ug/g that were some
what contaminated with copper. Pensacola Bay (19.3 ug/g) had a
higher value than the Escambia system. Concentrations around
discharges of American Cyanamid and Air Products were higher than
other stations in the upper bay. Copper apparently was
accumulating in an area near the discharges.

Iron.

Was not reported in excessive concentrations (Olinger et
al., 1975).

Cobalt.

Accumulations of cobalt in lower portions of Escambia Bay
within deeper water sediments were higher than adjacent bays.

vanadium.

There is a greater accumulation of vanadium in lower Escambia
Bay compared to East and Pensacola Bays.

Titanium.

There was a uniform distribution in Escambia Bay regardless
of depth or sediment type. Similar concentrations in East Bay,
Pensacola Bay was somewhat lower.

Summary.
The channel sediments from the Escambia Bay generally'differ
from those found in the central bay mud plain (Olinger et al.,
1975). High river flows cause periodic scouring of river bottoms
and the suspended fine sedimentary material tends to accumulate
in the channel areas. The channel is generally deeper than the
surrounding bay bottom and acts as a sediment sink for mud
fractions. Channel-accumulated mud sediments contain high PCB's
and heavy metals. These sediments may be periodically
resuspended by high river flows and deep-draft vessels.

e. Benthic Community

As mentioned previously, sediments prove to be a valuable
parameter to examine in terms of metal and nutrient pollution.
In addition, changes in the composition (i.e., species present
and density) of the benthos (or bottom-dwelling organisms) can
reveal much about the pollution state of an estuary. The
majority of the benthos is comprised of small organisms (i.e.,
milimeters in length) such as polychaete worms, various
crustaceans, and bivalves. The benthic community is a critical
component of the estuarine ecosystem for a number of reasons. A
primary one is that many of the organisms are food for important
recreational and commercial fish species. Many benthic organisms
are classified as pollution-sensitive or pollution-tolerant based
upon studies of their natural histories and tolerances for
degraded conditions. Although revealing much about pollution
inputs, benthic analysis are extremely labor intensive to
conduct. Samples must be collected, sieved, and animals sorted
out and indentified.

Typically, unpolluted waters are characterized by a large
number of species with a relatively low number of individuals per
species (i.e., high diversity). In polluted waters, fewer
species are present and a portion of these are dominated by a
large number of individuals (i.e., low diversity). A change in
benthic community structure can result in concomitant alterations
higher in the food chain.

Upland activities may affect the benthos in a number of
ways, for example by: changing the average sediment particle
size, increasing the concentration of toxic substances, and
increasing the amount of nutrients. A change in the particle
size of the sediment is an important factor that results in the
alteration of benthic community structure. In addition,
estuaries can be strongly stratified with respect to DO on a
seasonal basis. Often times the bottom-water layer just above
the sediment becomes anoxic (oxygen depleted). As such, benthic
life is nearly-nonexistent.
y

Several of the aforementioned situations have been observed
in the Pensacola Bay system. One of the earliest accounts comes
from young (FWPCA, Interdepartmental Memo, 1972) who reported
that conditions in the northeastern area of Escambia Bay near the
Air Products and American Cyanamid outfalls declined severely
from 1968 to 1971. Species diversity was greatly reduced. The
area was dominated by "pollution-tolerant" organisms such as
Balanus eburneus (barnacle), Neanthes succinea (polychaete
worm), and Callinectes saMjqjl@lue crab). Normally, abundant
organisms such as amphipods, isopods, cumaceans, mysids shrimp,
xanthid crabs, and molluscs were rare or absent. In adaftion,
the typical vegetation such as Ruppia and Vallisneria was-
replaced by a blue-green algal film and ot-her algal species.

Olinger et al. (1975) and Cooley (1978) represent the major
works repo - Eienthic species present within the system.
rting
Cooley (1978) presented an extensive species list and noted the
habitat and season that each one was caught. Olinger et al.
(1975) worked in Escambia Bay and related benthic distFi-b-utions
to sediment type and pollution discharges. They reported three
distinct benthic assemblages: mud, sand, and transitional. The
sand assemblage represented approximately 25% of the bay bottom;
the mud assemblage represented approximately 70% of the area,
and; the transitional zone assemblage accounted for the remaining
5% of the bottom.

Olinger et al. (1975) noted a shift in the typical dominant
species of mo-iiii-scs and crustaceans to polychaetes in both the
sand and transitional areas near the industrial discharges of
American Cyanamid and Air Products and Chemicals, Inc. This
shift was the-result of alteration in sediment granulometry
(i.e., deposition of finer grained material), higher organic
inputs, and toxic effects.

A more time-effeicient method of assessing benthic community
structure has been developed and recently tested within the
Pensacola Bay system. The system called REMOTS combines sediment
profile photocopy with computer image analysis (Science
Application International Corporation, 1986). The system can
provide information on sediment grain size and other physical
characteristics, as well as biological features of the bottom.
The attractiveness of the system is the rapidity of data
collection data and interpretation over conventional benthic
sampling techniques (weeks vs months). The developers of the
system have devised an index with which to characterized an
area's sediment quality. It can detect artificial perturbations
and recovery from disturbances.

The REMOTS system was used from November 8-10, 1985,
primarily within the Pensacola Bay Proper. The areas
demonstrated pollution effects: the downtown/Port area and
outside Bayou Chico. Anthropogenic organic-loading was suggested
as the cause of the situation.

1.8 Bayou-specific Problems

A number of bayous surround the Pensacola Bay system and
play an important role in the overall functioning of the system.
For instance, many fish species utilize the bayous as nursery
grounds. Bayous are fundamentally different from the open waters
of the bays. Bayous tend to be very shallow and generally
experience a very low tidal range, very low river input, small
fetch (i.e., wind mixing), deep anoxic pockets, and constrictions
at their entrances. All of these factors combine to accentuate
poor water quality conditions and very low flushing capabilities.
The isolated arms of the bayous are even more sensitive to any
artificial inputs or alterations.

Bayous are complex systems that are comprised of a series of
channels, canals, tidal creeks, and marshes. They essentially
represent drowned river valleys whose slopes have been altered by
a rising sea level.

Mixing in bayous is limited. Some mixing occurs during
rainfall events when large amounts of water are discharged into
the bayou from suburban areas immediately surrounding them. In
the absence of rain events, the dominant mixing process is tidal
flux. Because of the narrow mouths, diurnal tides, and a small
vertical variation in tidal range, tidal mixing in the bayous is
not great. With their unique physical conditions and
attractiveness, bayous pose special problems for management.

a. Individual Bayou Discussion

Two bayous have been examined in some detail within the
Pensacola Bay system: Mulatto Bayou and Bayou Chico.

Mulatto Bayou.
Mulatto Bayou was the center of a number of fish kills in
the early 1.970's. Livingston et al. (1972) examined various
parameters todiscover which fi-ctors were responsible for the
kills. They found that dredging activities and physical . I
alterations of the bayou combined with the seasonal effects of
eutrophication to cause massive fish kills (largely menhaden).
Various factors such as temperature, salinity, nutrient
availability, current structure, primary productivity, and the
presence of large populations of planktivorous (i.e., plankton-
eating) fishes, all combined to produce a temporal series of
diurnal oxygen variations that ultimately became lethal to
portions of the fauna.

The environmental conditions in the bayou appeared closely
linked to artificial alterations due to the construction.of I-10

(i.e., channelization, borrow pits, and dredging/filling).
Dredging and filling activities strongly influenced circulation
patterns and water quality within the bayou (Livingston et al.,
1972; Olinger et al., 1975).

The fish kills were the result of a timed sequence of
interrelated events (both diurnal and seasonal) that showed
considerable variation over short and long periods of time.
Diurnally, the DO levels demonstrated supersaturation by day and
low levels at night. Livingston (1977) postulated that the
respiration of the abundant menhaden affected the overall oxygen
budget causing already low concentrations at night to fall below
the critical level for the support of life.

DER (Interdepartmental Memo, 1970) identified 48 fish
species from Mulatto Bayou. Nearly half of these were
represented by larval and juvenile stages. The four most
dominant were Gulf menhaden (Brevoorita patronus), mullet (Mugil
cephalus), spot (Leiostomus xanthurus), and Atlantic croaker
(Micropogonias undulatus). In addition, large numbers of small
(10-20 mm) blue crabs and penaeid shrimp (Penaeus aztecus) (20-40
mm) were present at various times of the year.

Bayou Chico.
Bayou Chico was singled out in the Escambia/Santa Rosa
Counties Resource Management Plan as an integral part of the
Pensacola system and would "occupy a place of special
consideration in the preparation of the Bay Area Resource
Inventory Program."

The drainage pattern within the bayou's watershed has
probably been altered significantly due to the extensive
urbanization in the region. Water depth in the bayou is shallow
with most areas less than 2 m deep. Greater depths are present
in the dredged channel and the maximum depth of 6.7 m was located
west of Barrancas Ave near the north bank. A railroad trestle
and the Barrancas Ave bridge constrict the bayou (to
approximately'50 m wide) about 350 m from its opening into,
Pensacola Bay. Tidal mixing is further reduced inland by the St.
Louis - San Francisco Line RR trestle and highway bridge.

Glassen (1977) reported diverse land uses around the bayou.
Along the upper sections of the bayou, residential use
predominated while in the mid portions, commercial, and
industrial uses existed with oil transfer and storage facilities,
marinas, shipyards, scrap metal yards, and chemical treatment
plants present.

As of 1977, three sewage treatment plants discharge into
the bayou. Warrington STP (2.0 mgd design capacity) and'.Moreno
Courts STP (0.21 mgd) discharged into Jones Swamp Creek just

above the bayou. The Pen Haven STP discharged into the west end
of the bayou's north arm.

Urban stormwater runoff enters the bayou throughout the area
and especially at the culvert in the east portion of the north
arm (Glassen, 1977). In addition, nonpoint source pollution
enters the bayou as runoff from oil terminals, ship repair
facilities, and residential areas. Accidental oil spills
probably occur during the normal course of industrial activities.

Glassen (1977) reported the trace metal concentrations in
the bayou sediments; only iron, zinc, and lead were higher than
normal. Areas where runoff entered the bayou also demonstrated
high levels of nickel and lead. Oil, grease, and hydrocarbons
were found in high concentrations in the upper layers of the
sediment.

The upper portions of the bayou demonstrated high nutrient
levels (Glassein, 1977). These may have resulted from
remineralization of organic matter or inputs of nitrogen and
phosphorus from sewage treatment plants and urban runoff such as
lawn fertilizers. The lower bayou contained lower nutrient
levels and were nitrogen limited relative to phosphorus
concentration. Glassen (1977) reported that the sediments in the
bayou were toxic and that phytoplankton blooms were most likely
caused by exogenous inputs of nutrients from sewage treatment
plants, urban runoff, and other sources. Microbial analyses
revealed spatial variations that were probably the result of
localized effects from point source discharges or local inputs.

Like Mulatto Bayou, Bayou Chico experienced fish kills
during the 1970's (DER, 1979). Contributing factors appeared to
be seasonal increases in water temperature, excess levels of
nutrients, poor water circulation, and algal blooms. Night-time
depletions of DO were also critical.

1.9 Shoreline Erosion and Alteration

Several reports (e.g., University of Florida, 1977;
Olsen, 1984) have noted that the north shore of Santa Rosa Island
has experienced erosional problems, especially during the winter
months when northerly winds drive erosive waves across the Sound.
The situation appears to be the result of a natural rise in sea
level and the presence of man-made structures (e.g., bridges,
docks, and bulkheads) that obstruct the littoral transport along
the shoreline. Along the soundside of Santa Rosa Island at
Pensacola Beach, property owners have used bulkheads, in particular,
as an erosional deterent device. In addition, since the early 1900's
the Intracoastal Waterway has been dredged along the entire length of
the soundside shorelines.

It is important to note that a primary source of sediment
for the sound shorelines comes from the breaching of the barrier
island by storms that transport quantities of sediment to the
shoreline. The presence of large spits, in particular "Sharp
Point" and "Range Point",, may represent washover fans as a result
of storm activity. There are also many small spits that are
present.

Development in some areas of the shoreline dates from the
late 1940's and early 1950's and includes single-family
residences, multi-family dwellings, and some commercial
facilities. However, it was only in 1973 that setbacks from the
MHWL (mean high water line) were required. Olsen (1984) divided
the area into four separate classifications based upon man-made
impacts. He subsequently made recommendations for shoreline
structures for each of the four regions.

Shoreline erosion has been reported for the Gulf beaches of
Santa Rosa Island and Perdido Key. Long-term trends have been
erosional along the area over the past 100 yrs (Stone, 1984c).
Perdido Key-ha-s retreated landward at an average rate of 0.6 m/yr
(1858-1974).' Santa Rosa Island shows approximately the same rate
0.5 m/yr (1856-1965). Exposed peat deposits have been located
along areas in the nearshore, thus implying rollover of both
barriers. Short-term shoreline trends are also erosional. Rates
are extremely variable, averaging 9 n/yr along some sections of
Perdido Key (1974-1981) and 3 m/yr along Santa Rosa Island (1974-
1981) (note: 2 hurricanes affected these statistics). Hurricanes
and accompanying storm wave conditions have caused significant
changes in the morphology of the study area - for this reason
shoreline response must be evaluated and considered in coastal
management (Stone, 1984c).

The position of Pensacola Pass has been determined by the

historical migration of Santa Rosa Island and Perdido Key. In
this sense, the pass formed "naturally" and not as a consequence
of, for example, energy wave breaching or dredging. Continual
dredging is required to ensure navigitable water depths (10.6 M)
and entrance channel widths (152.4 m).

There has been a complex of mechanisms involving periods of
migratory reversals in the two barriers. The sequence of events
was as follows (Stone, 1984c):
1) 1780-1856 - a westward growth of Santa Rosa Island and
eastward migration of Perdido Key (rates not determinable because
of questionable accuracy of maps).
2) 1856-1931 - a westward movement of Santa Rosa Island for a
linear distance of 686 m +/- 4 @ or 9 m/yr; increase in surface
area by approximately 662,000 m . Westward migration of Perdido
Key of 126 m +/- 4 m, i.e., rate of 2 m/yr.
3) 1931-1962 - a linear migration of Santa Rosa Island, from
east to west of 364 m +/- 4 m, i.e., rate of 11 m/yr. Incjease in
surface a5ea of western Santa Rosa Island by ca. 656,000 m
(21,000 m /yr), rate of increase was greater than from 2 1856-1931
because of placement of dredge disposal (ca. 418,000 m ) on
western end of island. Perdido Key migrated east for a distance
of 69 m +/- 4 m, i.e., rate of 2 m/yr.
4) 1962-1971 - decre2se in surface area of we2tern Santa Rosa
Island by ca. 156,000 m +/- 4 m, i.e., 17,000 m /yr, no apparent
linear migration. Perdidio Key migrated 40 m +/- 4 m to east,
i.e., 4.4 m/yr.
5) 1971-1981 i decrease in surface are@ of Santa Rosa Island
by ca. 164,000 m +/- 4 m, i.e., 16,000 m /yr, migration from
west to east by approximately 100 m (10 m/yr). Perdido Key showed
slight movement to east back to its 1856 shoreline positions.

The data suggest that the western extremity of Santa Rosa
Island has, since 1962, remained relatively stable in space and
exhibited only slight movement to east. Analysis and comparison
of 1981-1984 aerial photos suggest that the western tip of Santa
Rosa Island.has continued to migrate to east by an average
distance of.30.,m (Stone, 1984c).

Perdido Key has continued to migrate towards the east'for
the last 50 years. Since 1962, this movement has occurred at a
greater rate than that measured along western Santa Rosa Island.
From this trend, it becomes apparent that the eastward movement
of sediment along Perdido Key is significant even though many
have thought not. A likely source of sediment is immediately
west along Perdido Key where island shows to be decreasing in
width at a rate of 2 - 8 m/yr.

There has been recent consideration by the US Army Corp of
Engineers and the National Park Service on depositing dr6dge
material along an eroding section of Perdido Key approximately 1

km west of the Pass. As noted earlier, the entrance channel to
Pensacola Pass requires periodic dredging to ensure navigatible
water depth. Stone (1984c) has shown that sediment is directed
ast. At the proposed spoil deposition site along eas@ern
Perdido Key into Pensacola Pass during 120, 60, and 45 deep
e

water wave approaches (note: the phenomenon is due to wave
refraction). More material would enter the shoal and channel
system if the dredged material was deposited at the proposed site.
The morphology of eastern Perdido Key and western Santa Rosa
Island is linked tightly to wave processes in operation along the
area. Depending on the angle of wave strike to the beach,
sediment transport will differ.

Stone (1984c) reported results that indicated complex
nearshore cell circulation patterns on the Gulf side of the
Navarre area, not previously recognized. Results also illustrate
changes in this circulation system if there is jetty and channel
construction.'Evidence now suggests that sediment is not
transported in one direction in a "river of sand" fashion - as
previously envisioned during any particular wave climate
condition - but that transportation fluctuates in a complex
fashion. However, the dominant, annual net movement of sediment
is from east to west along Santa Rosa Island.

Esca
mbia
County
Santa Rosa FOREST
County

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MLTON
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PENSACOLA
. . . . . . . . . . . . . . . . . . . . .

1-4

U& NAVAL MR NrAl
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RM PMM STAW PAW

Sectim -2 clurisdictiowl & Regubt(wy Frameww*

Section 2. Jurisdictional and Regulatory Framework during Study
Period

2.1 Introduction

The scope of this section comprises those land use
practices carried out at all government levels in Escambia and
Santa Rosa Counties. The analysis focuses on the jurisdictions
which oversee activities along the coast and rivers of the two
counties. The agencies examined are those whose role has a
direct bearing on water quality in the estuarine system. The
following are included:

Federal

U.S. Army Corps of Engineers
Environmental*Protection Agency
U.S. Fish and Wildlife Service
National Marine Fisheries Service
U.S. Department of Agriculture
U.S. Naval Air Station (Pensacola)
U.S. Air Force Base (Eglin)
Federal Emergency Management Agency

State

Department of Agriculture and Consumer Services
Department of Community Affairs
Department of Environmental Regulation
Department of Health and Rehabilitative Services
Department of Natural Resources
Game and Freshwater Fish Commission
Marine Fisheries Commission
University of West Florida

Regional

Northwest Florida Water Management District
West Florida Regional Planning Council
Escambia/Santa Rosa Coast Resource Planning and Management
Committee

Local

Escambia County
Board of County Commissioners
Escambia County Utilities Board
Soil and Water Conservation District

Santa Rosa Island Authority

Santa Rosa County
Board of County Commissioners
Health Department
Soil and Water Conservation District
South Santa Rosa County Utilities Board
Midway Water System Franchise
Holley-Navarre System Franchise
Santa Rosa Shores, Inc.
Navarre Beach Administrative Board

City of Pensacola

City of Gulf Breeze

City of Milton

Agency involvement can be described under four separate
categories.

1) Regulation/Enforcement - By statute or ordinance, an agency
has the authority to issue a permit and or veto a project or
activity.

2) Planning/Policy Development - Through statute, ordinance,
executive directive, or explicit local policy, the agency will
establish goals, set guidelines, and develop implementation
strategies for activities or projects.

3) Review/Advisory - By statute, ordinance, executive directive,
or explicit local policy, an agency is required to be aware of a
project or activity and make recommendations or comments.

4) Research/Education - Agencies are called on for data
collection or interpretation. This information can be used to
establish a-public awareness of critical issues.

All four categories are essential steps toward improving
conditions in the estuarine system.

Specific categories of regulations are useful in isolating
factors which influence the Pensacola Bay estuarine system.
Pertinent to this study are regulations which manage, control, or
restrict point and non-point sources of pollution. The measures
which deal with pollutants in the system include zoning and
subdivision requirements, restrictive covenants, wastewater
treatment, stormwater management, dredge and fill provisions,
sediment and erosion control, shoreline protection, and capital
improvement programming. Implementation and oversight of-these
measures occurs in many forms and on many levels. Permitting,

public grants/appropriations, site plan review, building
certification, and public acquisition are some examples. The
discussion spans the same period in which the marine research
data was collected, from the 1950's to the present.

2.2 Land use practices since the 1950's - a summary

The Federal Government

Federal involvement in estuarine management and attendant
water quality issues includes regulatory, advisory, and education
activities. The Fish and Wildlife Act of 1956 established policy
for the development of commercial fisheries and promoted the
consumption of fish. The Fish Restoration and Management Projects
Act and the Sport Fish Restoration Act provided financial
assistance for the conservation of game fish and wildlife. Their
policies were carried forward by the Coastal Zone Management Act
of 1972. This act, moreover, authorizes the Secretary of
Commerce to award grants to allow states to develop coastal
management programs. These programs are designed to preserve,
protect, develop, and restore or enhance the resources of the
nation's coastal zone for present and future needs. The
Endangered Species Act of 1973 is another well-known conservation
measure. The federal government targeted several specific
conservation activities with the Estuary Protection Act (19date).
The federal government also initiated dune protection locally by
establishing the Gulf Islands National Seashore.

The Federal Water Pollution Control Act of 1965 and the
National Environmental Policy Act of 1969 became the most
critical areas of environmental quality in federal regulation.
Water quality impacts and standards for pollution levels in
navigable waters adopted in these laws have been an essential
component of estuarine management in the study area. States were
required to comply with a set of minimum water quality standards
for all bodies of water within its borders. Maximum discharges
for various pollutants were determined and permits issued
specifying the quantity of wastes each discharger could legally
discharge. These controls were primarily directed toward
industrial and municipal sources of pollution.

Federal Water Pollution Control Act amendments in 1972. and
1977 established a system of technology-based effluent standards.
Non-point sources were not covered by these standards, yet the
legislation established the concept of controlling water
pollution from all sources based on planning by geographic areas.

other environmental quality enactments include the Resource
Recovery Act and the Federal Insecticide, Fungicide and
Rodenticide Act, intended to prevent indiscriminate pesticide
application as a stormwater precaution. Fertilizer runoff is
monitored and regulated in the Environmental Protection Agency's
(EPA) National Pollutant Discharge Elimination System. The Oil
Pollution Act of 1961 has been dealing with the most deliberate
discharges or negligent practices of vessels within fifty miles

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Escambia
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Santa Rosa
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Figure 2.1 Political divisions (jurisdictions).

of the shore.

The Army Corps of Engineers (ACOE) regulates dredging and
filling pursuant to the River and Harbor Act of 1899, and the
Clean Water Act of 1972. The Marine Protection Act (1972)
authorizes the ACOE to issue permits for transportation and
dumping of dredged spoil materials in ocean waters. The Marine
Sanctuaries Act of 1972 authorizes the Secretary of Commerce to
designate certain areas as marine sanctuaries offering protection
to estuaries and their adjoining land areas.

Many of the above federal programs were not necessarily
mindful of the political and economic realities of the study
area. Some programs were not structured to administer to
emerging critical needs, thereby rendering some goals as wholly
unattainable. For example, the EPA was to achieve the goal of no
pollution by 1985. Nevertheless, as coordination with state and
local has increased, and standards have been more widely
recognized, the federal government's role in the Pensacola Bay
area has been more meaningful.

The State of Florida

State ownership of navigable waterways is established under
the Florida Constitution, Article X, Subsection 11. All title to
lands under navigable waters, including beaches, up to the mean
high water mark is held by the State in trust for the people.
Private use of these lands may be authorized by law if not
contrary to the public interest.

The myriad of programs authorized to review and permit
activities affecting coastal management has made the system in
Florida very complex. The Environmental Reorganization Act of
1975 dealt with some of the system's major problems.

The Act created the Department of Environmental Regulation
(DER), the agency with primary responsibility for environmental
permitting. Under Chapter 253, Florida Statutes, all the powers,
duties, and functions of the Department of Natural Resources
pertaining to permits, licenses, and exemptions were transferred
to DER. As a result, dredge and fill activities have been
subject to established water quality standards. Pursuant to the
Florida Air and Water Pollution Control Act, Chapter 403, Florida
Statutes, DER regulates: water quality standards, permits,
domestic and waste treatment requirements, resource recovery and
management, sewage disposal facilities, industrial siting,
stormwater, and hazardous waste.

The outstanding Florida Waters (OFW) program, encompasses
those water bodies which are to receive the highest protection

from DER. The program includes the following areas within the
study area:

Waters within State Parks or Recreation Areas
Blackwater River State Park

Waters within National Seashores
Gulf Islands National Seashore

Waters within State Aquatic Preserves
Yellow River Marsh
Fort Pickens State Park

Special Waters
Blackwater River

The Northwest Florida Water Management District was
established under Chapter 373, Florida Statutes in 1980. The
purpose of the District, which also includes other North Florida
counties, is to assure that activities relating to the management
and storage of surface waters will not be harmful to the water
resources and will provide for the safety of life and property
within the District. It is the only water management district in
Florida which is tightly restricted in the revenue that it can
raise. This limits any active role that it could have in
resource management.

The Department of Natural Resources (DNR) is authorized to
lease, regulate, and permit activities in sovereignty submerged
lands, under Chapter 253, Florida Statutes. DNR selects and
acquires property for the state under the Conservation and
Recreation Lands (CARL), rule and the State Land Acquisition
Procedures rule. The Florida Aquatic Preserves program which
preserves exceptional areas of sovereignty lands, Chapter 258,
Florida Statutes oversees management of the Fort Pickens State
Park Preserve in Escambia County and the Yellow River Marsh in
Santa Rosa County. These areas are subject to marina siting
requirements, among other management criteria. Chapter 161 and
370, Florida Statutes are implemented rules and procedures for
coastal construction and excavation seaward of the coastal
construction control line and the thirty erosion setback line.
Chapter 376, Florida Statutes authorized DNR with
enforcement actions for violations against the Pollutant
Discharge Act of 1974.

The Department of Health and Rehabilitative Services
administers standards for onsite sewage disposal systems from
authority granted under Chapter 373, Florida Statutes, through
the rule Chapter 10D.

The Environmental Land and Water Management Act, Chapter

380, Florida Statutes, authorizes the Department of Community
Affairs (DCA) to administer two programs which review land use
procedures in the study area. The Areas of Critical State
Concern program was the basis for establishing the Escambia/Santa
Rosa Coast Resource Planning and Management Committee. The
Committee was set up to help southern Escambia and Santa Rosa
Counties guide growth, by developing the Resource Management Plan
in 1985. The Developments of Regional Impact (DRI) program has
designed a review procedure for developments that, due to the
nature, magnitude or location will have a substantial impact on
more than one county. Chapter 27F, Florida Administrative Code
sets guidlines and thresholds by which to evaluate whether a
development project is a DRI.

DCA has also been the agency responsible for administering
the Local Government Comprehensive Planning Act, Chapter 163,
Florida Statutes. The statute was amended in 1985 as the Local
Government Comprehensive Planning and Land Development
Regulations Act. Prior to these amendments DCA was involved
mainly in an advisory capacity as it reviewed local governments'
compliance with general guidelines. The recent amendments
direct DCA to adopt minimum criteria for comprehensive plans with
which the local governments must comply. A coastal management
element also is required in each coastal local government's
comprehensive plan.

The Game and Freshwater Fish Commission manages wild animal
life and freshwater aquatic life over public or private lands.
The authority to implement this agency's rules came from Chapter
372, Florida Statutes.

The Department of Agriculture and Consumer Services is
authorized under Chapter Chapter 487, Florida Statutes to
administer the registration and the use of pesticides and
fertilizers. chapter 582 authorizes the Department to administer
federal soil and water conservation programs.

Local Governments

The local governments are the areas of greatest concern as
they are the most immediate level overseeing activities which
have affected water quality decline, habitat destruction,
shoreline protection, and erosion and sediment control. Those
local governments within this reports study area are faced with
the daily administrative challenge of contending with tremendous
growth pressure,

Escambia County

This jurisdiction has a sparse history of land use

regulations. In 1947, the Legislature created the Santa Rosa
Island Authority, (Chapter 24500, Laws of Florida) vesting that
same entity with broad powers, delegated through the County
Commission, to include the maintainence and development of Santa
Rosa Island structures. At that time, the Santa Rosa Island
Development Code was adopted. This code was revised in 1970,
1973, and 1979 to become a meaningful land use regulation,
providing local control for important natural resources. Section
III, the most comprehensive part, deals especially with fills,
bulkheads, docks, marinas, canals, and beach management. Design
standards for waterfront locations, drainage easement provisions,
requirements for open space dedications and sewage service are
also included.

County Ordinance Number 86-7
Escambia County adopted for the University of West Florida
vicinity a set of land use regulations in 1966. These were
revised in 1971 and amended in 1973 and 1986. The area affected
is north of Pensacola proper and bordering on the
northwest shore of Escambia Bay. This set of regulations is one
of a very few comprehensive land use controls in Escambia County.
The 1986 "Comprehensive Amendment" contains a land use map
dated from 1973.

County Ordinance Number 85-46
The other comprehensive set of regulations was adopted by
a zoning ordinance for Perdido Key in 1983. It was repealed and
replaced by ordinances adopted in 1984 and 1985. This ordinance
contains a future land use map revised in 1983. Both Ordinances
85-46 and 86-7 specify an estuarine setback in which no new major
construction is permitted, between the Mean Sea Level as
established by the National Geodedic Survey Datum and an
elevation of (+)2.5 feet along the two areas respective
shorelines.

Subdivision Ordinance 85-21
The remafn-d-er of unincorporated Escambia County is regulated
by the use of subdivision ordinances which first were adopted in
1973. Prior to that, private land use controls such as
restrictive covenants were the only measure used. The original
ordinance was amended in 1975, 1979, 1981, and 1983 and repealed
in 1985.

Drainage Ordinance 73-10
This law, only slightly amended in 1983, is aimed at
reducing off-site drainage and water pollution. It demonstrates
concern for stormwater runoff by allowing up to 100 percent of
impervious surface only upon evidence that the additional.,
percentage will not deteriorate water quality or contribute to
off-site drainage problems. It applies to all manufacturing,
industrial, and commercial buildings, and to residential uses

with more than twelve units.

Lot Coverage Ordinance 85-29
This ordinance established standards relating to lot
coverage when it first was adopted in 1983. Instead of the
absolute percentage of impervious surface permitted for each
development as set up in the earlier subdivision ordinances, this
provided a formula in which to determine drainage.

Sediment Control Ordinance 85-32
This ordinance first establ d standards in 1974 for the
amount of allowable sediment in stormwater runoff. It also
required the use of sediment control structures. This and
subsequent amendments adopted in 1977, 1978, and 1984 were
repealed and replaced by the ordinance 85-32 to reflect the
changes made in Escambia County's Subdivision Ordinance.

Coastal Hazard Prevention and Protection Ordinance 75-3
This ordlinance established requirements for structures to
guard against 100 year floods. The intent was to provide for no
obstruction of the flow of flood waters, minimize damage and
regulate the manner and type of construction, particularly that
below and just above flood levels. A portion specifically
addresses filling in flood-prone lands. Agricultural uses and
construction under 1,000 square feet are exempt.

Special Flood Hazard Ordinance 85-19
originally adopted In-1977, this ordinance establishes areas
of special flood hazard within Escambia County. It also sets
standards and requirements for construction and other activities
on lands within the areas of special flood hazard. Maps of the
affected areas are adopted along with the ordinance.

At this writing Escambia County is preparing a land use
ordinance which includes a zoning program. Since it is in the
review stage,.it is premature to comment on the ordinances
features.
The Escambia County Board of Commissioners adopted its' most
recent Comprehensive Plan in 1980. All unicorporated areas,
including Perdido Key and the Santa Rosa Island Authority are
subject to this plan. Many of the Plan's policies have been
analyzed in depth by the Escambia/Santa Rosa Coastal Resource
Planning and Management Committee. This review focuses on how the
Plan's policies address the water quality of the Pensacola Bay
area. Those elements in the Plan that set policies which affect
estuarine water quality include: Land Use and Growth;
Conservation; Coastal Protection; Recreation and Open Sp4ce; and
Sanitary Sewer, Solid Waste, Drainage, and Potable Water,

The Land and Growth Element encourages the following

policies:
o residential development in areas and on soils and
topography suitable for such use,
o new industries to locate in suitable areas served by
utilities and transportation facilities,
o the retention of agricultural and forest land, and
recommends that a County Land Use Ordinance be consistent with
the values of area residents and is based upon the concept of
private property and public interest.

This element contains a future land use map which uses
crude land use classifications: urban (15-25 dwelling units per
acre), transition (5-14 dwelling units per acre), and rural-
agricultural (0-4 dwelling units per acre). These
classifications do not consider the variation of suitability of
land for different types of development. The classification and
density seem to be a function of the land's proximity to the City
of Pensacola and to the coast. In the absense of zoning, this
general kind of mapping does not consider that certain areas
require greater protection than other areas. In this sense, the
future land use map fails to offer any strategic plans as to
where growth can be sensibly directed with minimal impacts on the
estuarine system.

The Conservation Element in the Plan includes the following
policies:
o discourage the location of inappropriate residential,
commercial, and industrial land uses or other developments in
floodplains or westlands;
o encourage the conservation of wetlands and floodplains as
water quality control, natural recreation areas, and storm
buffers.
o place land use restrictions on all land areas identified
as Conservation Areas in order to regulate and control adverse
effects resulting from urban development.

Most of the areas which require special protection in the
policies listed above are mapped in other documents. The ..
Conservation Area, however, is a designation unique to Escambia
County. Neither has it been incorporated into the text, nor is
there a reference to where it can be obtained. This omission
makes it very difficult to carry out an important policy.

The Coastal Protection Element is the most crucial portion
of the Plan in that its central function is to assure that
activities along the coastline have a minimal impact upon the
marine ecology. The policies include:
o adequate natural vegetated buffer zones shall be
maintained between mean high water and proposed improvem n
developments, land alterations, projects or structures, unless
such will unduly restrict the use of private property.

o, maintain and protect the primary dune systems and the
vegetation associated with marshes and wetlands on the barrier
islands.
o the marshes and marine grass beds of the coastal zone are
considered vital to the maintenance and protection of the coastal
and economic resources of Escambia County, and as such,
developments which would degrade or minimize the natural
productive capacity of such areas are discouraged.
o the natural drainage patterns shall be maintained and
protected to the maximum extent feasible, consistent with the
need to protect the environment and to provide adequate
deposition of stormwater runoff.
o adequate vegetated buffers along drainageways shall be
maintained to the maximum extent feasible, consistent with
private property rights.
o activities or developments which cause or allow saltwater
intrusion into the freshwater lens of the barrier islands are
p
rohibited except as authorized through special review
processes.
o dredging, filling, or activities artificially lowering the
water table of the barrier islands are prohibited except as
authorized through special review.

The force of these policies is undermined by qualifying
language which concedes additional discretion in the use of
private property. Under the Plan, protection of coastal
resources is advised, however, not at the expense of private
property rights. Estuarine setback requirements advocated in
this element for Perdido Key are measures that would be well
advised for all coastal areas in the County.

The Recreation and Open Space Element is an appropriate
place in which to reinforce and supplement the measures advocated
in the coastal protection and land use elements. Sensitive areas
along the rivers and coast could be the prime focus of an open
space program. Open space designation is attainable because it
can be established through means other than fee simple land
acquisition. Affordable means such as conservation easements
over portions of private property would establish many open
spaces along areas that require additional protection. This
opportunity, however, is lost in the existing element whose
policies do not address the function of protection in either a
recreational or an open space program. Policies that recognize
more diverse functions of recreation and open space should be
incorporated into the Plan.

The Sanitary Sewer, Solid Waste, Drainage, and Potable Water
Element emphasizes the need for coordination throughout the
policies for each category:
o coordinate efforts of Escambia County with those &f the
City of Pensacola and other communities in their provision of

sewerage to their respective service areas.
o support the construction of sewerage facilities for the
Cantonment and Century areas. %
o develop an area solid waste disposal plan for Escambia
County.
o coordinate Escambia County's solid waste efforts and plans
with those of adjacent communities.
o establish a solid waste disposal tipping fee or user charge
capable of supporting all allowable and allocable costs of solid
waste operations including acquisition of equipment, depreciation,
and debt retirement.
o encourage mandatory residential solid waste collection for
the southern portion of Escambia County.
o utilize natural drainageways for. stormwater runoff whenever
possible.
o control stormwater through onsite development of structures
designed to minimize peak stormwater flow consistent with the
County Master'Drainage Plan when adopted.
o coordinate plans for stormwater management with other
regional and local plans for transportion, open space, solid waste
disposal and land use.
o establish a floodplain management program for Escambia
County consistent with the Southwest Escambia County Master
Drainage Plan when adopted and implemented.
o encourage cooperation and coordination among public water
suppliers in order to provide the most efficient system of potable
water supply.
o require public water suppliers to prepare emergency and
contingency plans in case power, equipment, or resource failure.
o protect those recharge areas necessary for the maintenance of
the supply of potable water.
o insure continued potable water availablity by preventing
excessive withdrawals, particularly in areas of known and
suspected saltwater encroachment.
o cooperate and coordinate efforts of the Escambia County
Health Department and other concerned County departments with
those of the Northwest Florida Water Management District in
providing, conserving, and maintainning the quality of potable
water.

Since this element pertains to capital improvements which
affect more than one jurisdiction, coordination is well advised.
The extent to which these policies address protection of the
resourcea that the services manage or maintain is marginal.
Other than the specific reference to the Cantonment and Century
service areas requiring sewerage facilities, no priorities have
been assigned to improve the delivery of service in sensitive
areas along the rivers or the coast. Since many of the sensitive
areas are also those which are dealing with a great deal.bf
growth pressure, the policies should reflect that special'areas
exist which require critical attention.

City of Pensacola

This city has the longest standing history of zoning
regulations of all the local governments within the study area.
In 1947 it passed Zoning Ordinance 9-47. A typical Euclidean
zoning scheme, it established districts and boundaries for
residential, commercial, and industrial uses. This ordinance and
its subsequent amendments in 1965, 1970, and 1986 contain land
use district maps which show progressively more intense uses
zoned adjacent to the estuarine system, especially along Bayou
Chico and nearby Pensacola Bay.
A large part of the eastern boundary of the city, however,
is zoned as a special district known as the Escambia Bay Bluffs
and Shoreline District, which requires greater attention to site
planning and aesthetics with emphasis on retention of natural
topographical features and vegetation and preservation of open
space. Even as the Land Development Code of 1986 consolidated
all land use ordinances and their amendments, only a few special
land use districts like the Escambia Bay Bluffs and the Bayou
Texar Shoreline Districts have specified performance standards.

The Code's Open Space District also retains sound estuarine
management practices. This district is to establish and preserve
open space areas necessary for protecting water resources,
providing parklands and wilderness reserves, conserving endemic
vegetation, and preventing flood damage and soil erosion. Unlike
Escambia County's Open Space Element, this measure more vividly
associates the functions of an open space program with protecting
the estuarine system.

In addition to zoning, Pensacola's Land Development Code
addresses tree and landscape regulations; subdivisions; erosion,
sedimentation, and runoff control; and floodplain management.
The tree and landscape provisions, stemming from a 1975
ordinance, are detailed and offer a good deal of protection. The
buffer concept could be more ambitious, especially where the
coastline ir@ concerned. A ten foot strip is not enough to curb
erosion and stormwater runoff. The enforcement provisions,,are
very clear.

The subdivision section originated from the 1956 Subdivision
Ordinance. Plats are required for a building permit. Adequate
drainage and street layout are the principal considerations for
plat approval. Structural provisions are tied closely to
direction given in the Comprehensive Plan.

The 1975 Erosion Control and Runoff Ordinance also was
incorporated into Pensacola's Land Development Code. Design'
standards require comprehensive drainage plans based upox!i'd 25
year flood, for any construction activity. A great deal 'of
discretion is granted to the City Engineer in waiving the

requirements.

Of final interest to estuarine management within the Land
Development Code, is the Flood Plain Management Chapter. It
incorporates federal and state flood hazard provisions into one
local law. Originally this chapter was adopted as an ordinance
in 1977.

Chapter 4-3 of the Municipal Code deals with the regulation
of solid waste disposal, including hazardous waste. One section
specifically requires that industrial wastes be disposed of by
appropriate, non-detrimental means. These sanitation
regulations were designed to restrict harmful effects upon the
upland as well as all waters. Although the Public Service
Department official has had the authority to examine all premises
to determine their sanitary condition, implementation was observed
in the early Seventies as ineffective.

Chapter 135 regulates users of sewage systems. The city may
reject wastes or require pre-treatment, control, or payment for
treatment. Developers are required to provide basically all of
the essential facilities. These improvements eventually become
the property of the city and may be used by the general public.
A special section prohibits the use of sewers for stormwater; and
untreated drainage; unpolluted industrial process water; numerous
solid, corrosive, toxic, and poisonous substances which have been
compiled. Ph levels and temperature restrictions also are listed.

The Pensacola City Council adopted the Pensacola
Comprehensive Plan in 1981. The elements in the Plan that set
policies that affect estuarine water quality include: Natural
Resource Conservation and Coastal Zone Management; General
Utility; and Recreation and Open Space. Accompanying the Plan is
a useful, detailed land use map.

The Natural Resource Conservation and Coastal Zone
Management Element stresses reliance upon and cooperation with
all governmental levels in implementing necessary environmental
quality regulations. It lists the following policies:
� development shall be compatible with adjacent land and
water uses to the maximum extent practical.
� development in areas adjacent to environmentally sensitive
areas is to be sited and designed to prevent impacts which should
significantly degrade such areas.
o public shoreline recreational uses, areas and facilities
and access to such areas should be protected.
This important element would be more useful if more*..exacting
policies were enumerated. The general nature of each policy
gives public officials little to rely upon when reviewing'and
approving any kind of land use activity. More definitive

positions on the need for shoreline buffers is one direction
where improvements are due.

The General Utility Elements includes several subelements
which pertain to estuarine water quality: wastewater, drainage,
solid waste, and potable water. Each of these subelements
relies upon a separate document for discussions on each topic.
Consequently, no policies are submitted in the Plan itself. Some
policies should be stated in the Plan to give more direction in
these areas, such as was provided in the Escambia County Sanitary
Sewer, Solid Waste, Drainage, and Potalbe Water Element.

The Recreation and Open Space Element details a five year
program plan with priorities identified. Among several other
policies this element lists the following:
o develop parks and facilities in the northeastern section
of Pensacola.
o formati.on of a county-wide recreation and park council
which should include cities, county, schools, colleges, and the
United Way.
o determine availability of state and federal funds for
public recreational activities and facilities.

This element could be more closely associated with shoreline
protection as was discussed under Escambia County's Recreation
and Open Space Element. Policies that address more diverse
functions for recreational and open space programs would improve
the chances of accomplishing a greater portion of the Park
Program.

A useful element that the Plan lacks is a future land use
element in the Long Range Policy and Plan Package III. Without
this element the Plan does not address policies which guide
future growth. Without this element, there can be no strategic
planning as to where growth can sensibly be directed with minimal
impacts on the estuarine system.

Santa Rosa County

The other county in this two county estuarine study area is
Santa Rosa County. It, like Escambia County, has been guided by
few land use regulations over the last thirty years. With the
increased growth rate that is occurring along the southern
portion of the county, adequate safeguards are essential.
The following is a discussion of the ordinances and comprehensive
plan policies that govern the unincorporated areas of Santa Rosa
County. Following this is a discussion of those measures which
govern the cities of Gulf Breeze and Milton.

South Santa Rosa County Zoning Ordinance 86-16

This comprehensive ordinance was adopted as recently as
1986, repealing Ordinance 85-25 Land Use Regulations for South
Santa Rosa County. It established land use regulations for only
the peninsula east of the City of Gulf Breeze and South of the
East Bay River, also known as the South Santa Rosa County
Planning Area. The remainder of the unincorporated areas are not
subject to any zoning. The performance standards attempt to
control "potential nuisances." This type of approach emphasizes
aesthetics more than the function of natural systems. It fails
as a result to deal effectively with environmental impacts. The
zoning maps which accompany this ordinance do not show a buffer
along the coastline. A shoreline protection district
classification and or a provision within the Planned Unit
Development classification assuring strict review of development
adjacent to the coast would remedy this ommission.

The Navarre Beach Administrative Board Land Development Code
is a set of rules based on the Santa Rosa Island Authority
Development Code. It is used to regulate development in the
Navarre Beach Community in unicorporated Santa Rosa. Many of
the provisions in the code are not applicable to that community's
situation. It is currently being revised to assure more
meaningful review of land use activity.

Subdivision ordinance 86-01
This ord nce orTg-l-nated in 1974. It set out plat
requirements dealing with detailed contour maps, all easements,
and a drainage plan to include storm sewers, coverts, easements,
final disposal and outfall ditches. The county amended this
ordinance in 1983, 1985, and 1986. In the absence of zoning in
most parts of the county, the subdivision ordinance and
restrictive covenants are the only local land use regulations.

County Ordinance 72-8
This oi-dir-n-ance was originally adopted in 1972. It required
no explicit standards other than for the surveillance of the
county land--fills and for the permitting and inspection of septic
tank installation. Although numerous studies and plans have been
done since 1972, there appears to be no amendments adopted to
reflect the growing complexity of regulating these services.

Special Flood Hazard ordinance 85-21
A land management program was established to enable flood-
prone communities to be elligible for flood insurance in 1972.
Standards were adopted and building permits were required in
order to minimize damage due to flood effects. This ordinance
was amended in 1974, 1975, 1977, and 1985, reflecting changes in
the federal program.

Santa Rosa Countv Utilities Board Ordinance 86-06
This 6-rdinance provides f r future 'planning services and

plan preparations for utilities development. The Santa Rosa
County Utilities Board, whose jurisdictional area is designated
under this ordinance, shall oversee planning and operation
requirements associated with the provision of area- wide
utilities.
To date, no solid waste mangagement ordinance has been
adopted. Local officials are studying how such an ordinance
should be designed.

The Santa Rosa County Board of Commissioners adopted its
Comprehensive Plan in 1982. All unincorporated areas, including
Navarre Beach, are subject to this plan. Of the elements listed
in the Plan, those applicable to estuarine resouces include
Sanitary Sewer, Solid Waste, Drainage, and Potable Water;
Utility; Conservation; Coastal Zone; Recreation and Open Space;
and Future Land Use. The level of specificity varies with each
element.

The first element enumerates policies for Sanitary Sewerage
Systems:
o establish a coordinated system of sanitary sewer facilities
designed to provide the range and level of services necessary to
serve the existing and anticipated population of the County.
o encourage patterns of growth and development that permit
the construction of sanitary water facilities and provide for
their orderly expansion.
o encourage adequate regulation of individual waste disposal
systems.
o implement the 201 Facilities Plan.

The applicable solid waste management policies include:
o continue the provision of collection services to all areas
of the County.
o vigorously enforce county ordinances to prohibit litter of
public or private lands and waters.

It also lists-drainage policies:
o insure that designated natural drainage corridors are
maintained in an open and unobstructed condition in order to
conserve their function and prevent flooding.
o discourage development practices which give rise to the
overdrainage of land and soils.
o require developers of industrial sites, subdivisions and
PUD's to provide stormwater retention systems where feasible
after engineering studies to minimize flooding and non-point
source pollution.

Finally, the element includes policies about potable water supply
systems:
o provide water for existing and future populations -in the
county in ways that are consistent with sound water resources

planning.
o encourage new developments that will not aggravate
problems in existing public water supply systems.
o encourage local enforcement of established watet quality
standards.
o establish a water conservation program to prevent aquifer
drawdown in coastal areas.

As in the Escambia County Comprehensive Plan, this element
needs to be more directed about setting priorities. Coastal and
riverine areas are wellknown to be in critical need of
protection. In this type of capital facilities element, service
levels and maintenance precautions must be improved. The
policies are so generally worded that they fail to convey the
urgent situation in especially the sensitive areas. The recent
formation of the Utilities Board is in excellent position to
consider these needs.

The Conservation Element lists the following policies that
offer a little more direction than is noted in the earlier described
conservation elements:
o promote growth in areas where the soils are suitable for
development.
o restrict and control excessive drawdown on the aquifer
especially in the coastal areas.
� encourage the use of other than septic tanks especially in
areas with poorly drained soils.
� promote open space and conservation uses in sensitive
areas.
o strictly adhere to state conservation policies.
o recommend the development of appropriate soil,
topographic, and floodplain studies to assist in conservation-
related decisions.
o insist on site-planning and design characteristics so as
to minimize or prevent environmental damage by all new
developments in the County.
o utiliz6-.techniques to minimize urban and agricultural
runoff.
o require the maximization of the overall topography, 'the
particular physiographic characteristics, and particularly the
coastline in developing residential areas.
� encourage the Planned Unit Development (PUD) concept as a
means of protecting environmentally sensitive areas.
� adopt and promote conservation-oriented development
techniques which utilize land efficiently and protect the
character of the undeveloped woodland areas.,
o permit only planned and orderly growth of public
improvements so as to minimize environmental impacts.
o promote coordination between the County, Water Management
District, Department of Environmental Regulation, Division of
Forestry and Regional Council in the conservation of natural

resources.

This element is very adept at pointing out that development
projects should incorporate conservation measures. Moreover, it
acknowledges that adverse impacts come not only from development
activity but also from agricultural practices. The intent of
this element is not apparent, however, in the zoning maps
for the South Santa Rosa County Ordinance 86-16. In the maps,
much of the land along the coastline is classified for uses
potentially more intensive than the Planned Unit Development.
This element should play an important role in determining future
uses for lands adjacent to all bodies of water.

The Coastal Zone Element lists the following general
policies:
o all public improvements in Santa Rosa County will be
assessed by the appropriate officials as to possible impact on
coastal zone resources.
o private development in Santa Rosa County will be reviewed
at the issuance of building permits to review impacts on the
coastal zone.

Thereafter, the Plan list policies under such categories as
septic tank use, government coordination and management, domestic
and industrial discharge, urban runoff, dredge and fill, natural
vegetation, beach erosion,'and aquifer drawdown. Those individual polic
meaningful, specific direction upon which public officials should
be able to determine difficult issues.

The Recreation and Open Space Element policies reinforce
the priorities spelled out in previous elements:
o guide development in the County into patterns that offer
maximum opportunities for the public to enjoy and benefit from
valuable natural recreational and scenic resources.
o protect potential public recreational areas from
encroachment of incompatible development in surrounding areas
which would..affect safety of access and or use.
0 encourage the provision of open space and recreational
facilities in all private residential developments. This could
include the expansion of regulations to provide minimum standards
of open space/facilities provision.

The last policy listed especially demonstrates how the Plan
continues to point out that the scope of one element overlaps
with the scope of others. Recreational facilities are not
limited to parks; they can also be incorporated into subdivisions
and elsewhere.

Finally, the Future Land Use Plan in the Santa Rosa'tounty
Comprehensive Plan relates to estuarine water quality. this
strategic and detailed element submits several categories of

priorities to assure a flexibility in development choices. Too
lengthy to enumerate here, the policies appear under the
following areas: how the natural environment should be conserved;
how compatible and coordinated development should be facilitated;
and standards for location and general development.
The element's consistency with the new South Santa Rosa County
Zoning map, however, is an indicator of how other portions of
the County along the water will be classified. Since the
existing land use map is quite general, and since this type of
map is very useful in tracking growth patterns, the potential
areas for development should be detailed in a future land use map
which is not provided in the Plan.

The City of Gulf Breeze

Gulf Breeze was incorporated in 1961. Thereafter, it
adopted its own codes, ordinances, and plans. Its proximity to
the Gulf Island National Seashore and to Pensacola Bay and Santa
Rosa Sound stresses the important role that this jurisdiction has
in sound land use practices.

Subdivision Ordinance 49-62
This ordinance which controls subdivision development was
first adopted in 1962 and amended in 1969 and 1983. It requires
both preliminary and final plats. The plats must show all
easements, particularly those used for drainage of stormwaters
and runoff disposal.

Zoning Ordinance 16-74
In 1974 Gulf Breeze adopted its first zoning ordinance. It
was amended in a variety of areas in 1975, 1982, 1983, 1984, and
1985. The roost salient feature of this ordinance is its minimum
landscaping requirements. It prescribes the use of landscaping
as buffers between adjacent zoning districts and prohibits the
removal of trees or shrubs on any public property. Generally,
five percent of any total developed area must be landscaped.
Permission ior*trimming and or removing trees must be obtained
from the director of public works. Additional landscaping
requirements are adopted under Chapter 23 of the city's and
Development Codes.
Gulf Breeze's comprehensive zoning regulations allows some
commercial districts, no industrial districts, as well as open
spaces. Its many restrictions upon boat activity controls the
use of the land bordering waterways.

Flood Hazard Ordinance 6-77
Th-15s-o-r-dln--ance, like those of the other juridictions,
brings Gulf Breeze in compliance with the National Flood"--
Insurance Program. Revisions have been made to reflect dhanges
in the program.

Solid Waste Ordinance 1-75
I
N
t s Tn--1awfT1-'tod1sposal of certain solid wastes on public
lands, street, or waters. This ordinance provides for-*the
franchising of garbage collection.

C't Ordinance 2-73
Ir
Th--fys Z-rd-1-n-'ance sets out impact study requirements which
acknowledge the city's physical environment and its proximity to
the Gulf Island National Seashore. With language declaring that
this ordinance is the result of an existing emergency situation,
the "environmental impact shall include adverse impacts, open
space provisions, easements, drainage plans, and possible runoff
problems. Included in the study shall be a) scope of project, b)
population impacts and economic impacts, c) impacts upon public
services and garbage."

Sewer Ordinance 4-71
The use Of private sanitary systems, disposal, and the
discharge of wastes are strictly regulated under this ordinance.
The effort is to restrict the use of private septic tanks and
privies. Pollutant standards and prohibitions on contamination
by storm water are included.

The City of Gulf Breeze adopted its Comprehensive Plan in
1980, after having prepared a master plan in 1968. Those
elements in the Plan which relate to estuarine water quality are:
Sanitary Sewer, Drainage, and Potable Water; Conservation;
Coastal Zone; and Future Land Use.

The Sanitary Sewer, Drainage, and Potable Water Element
lists the following as its policies:
o implement the 201 Plan.
o construct a new interceptor system and pumping station for
the purpose of conveying wastewater to new regional plant.
o phase out Gulf Breeze treatment plant.
o conduct an ongoing evaluation of the sewer system.
o, complete an extensive sewer system rehabilitation
project.
o phase out, over a period of years, all of the septic tanks
in use.
o extend collection lines to all City residents.
o continue negotiations for a new transfer station to reduce
transportation costs.
o obtain a legally binding agreement from the County to
assure free use of the Holley No. 2 landfill.
o, ensure the continuation of a suitable franchise
arrangement with the Midway Water System.
o continue to carry out proper operation and mainteilahce
practices on the Gulf Breeze water distribution system. '-
o effect the necessary maintenance techniques to sustain the

wells and pumps employed in the auxiliary system.
o assist in the provision of a second well for the Midway
Water System.

This is by far the most explicitly guided capital
improvement type element of those previously discussed. Since
the Plan's adoption, many of these activities have been underway.

The Conservation Element policies are as follows:
o promote growth in areas where the soils are suitable for
such development.
o regulate development in flood-prone areas so that they
adhere to Federal Flood Insurance guidelines.
o Keep low-lying areas free from intensive urban development
to minimize flood problems.
o promote open space and conservation uses in sensitive
areas.
o encourage adherence to state conservation policies.
o encourage the development of appropriate soil,
topographic, and floodplain studies to assist in conservation
related decisions.
o encourage site planning and design characteristics which
will minimize environmental damage by all new developments in the
city. o utilize, where possible and feasible, techniques to
minimize urban runoff, including the retention of stormwater
on site.
o encourage the maximization of the overall topography, the
particular physiographic characteristics, and particularly the
coastline in developing residential areas.
� utilize the Planned Unit Development(PUD) concept as a
means of protecting environmentally sensitive areas.
� encourage coordination between the County, Water
Management District, Department of Environmental Regulation, Soil
Conservation Service, and the West Florida Regional Planning
Council in the conservation of natural resources.

These policies stress coordination with a host of state,
regional, and local agencies. Although the policies are quite
general, at least the clause for "retention of stormwater on
site," has been included. These policies are meaningful in how
they relate to existing codes and ordinances.

The Coastal Zone Element policies for the City of Gulf
Breeze are very similar to those of the Santa Rosa County
Comprehensive Plan. The general policies listed below are
supported by largely the same specific policies:
o all public improvements in Gulf Breeze will continue to be
assessed by the appropriate officials as to possible negative
impacts on coastal zone resources.
o private development in Gulf Breeze will be reviewed at the

issuance of building permits to review impacts on the coastal
zone. Negative impact uses will be discouraged.

The specific policies are too lengthy; so they,
like those in the Santa Rosa County Comprehensive Plan, will not
be listed here. These policies are much more in line with the
existng codes and ordinances adopted by the City, than those
adopted by the County.

The Future Land Use Plan, in the way that the policies are
presented, is also similar to the Santa Rosa County Comprehensive
Plan. Policies for general development are guided by provisions
for how the natural environment should be conserved, how
compatible and coordinated development should be facilitated, how
development costs should be minimized, how a desirable variety of
land uses should be promoted, and how open space and sensitive
ecological systems should be protected. This element too is
consistent with the direction established in the City's codes and
ordinances. the specific policies are too lengthy to be included
here. This element also contains a future land use map, clearly
and consistently depicting the policies discussed above.

City of Milton

Although Milton is not included in the Esacambia/Santa Rosa
Coastal Resource Planning and Management Committee's study area,
it is important to examine in this report by virtue of its
proximity to the Blackwater River. This is the fifth and final
local government discussed in this jurisdcitional framework
section.

Zoning Ordinance 747
To-n-ir-ng ;Wa@sfirst established in the City of Milton in 1972
to encourage appropriate uses of lands, regulate and restrict
Planned Unit Development's, manage floodplain districts, provide
support services, open spaces and adequate population densities.
It has been.'amended once. The performance standards, like those
in the Santa Rosa County Zoning Ordinance, pertain mainly to
nuisance activities with some attention to environmental impacts.
Its minimum standards are subject to those imposed by revised
state and/or federal regulations. The lot coverage concept needs
to be more clearly defined as a way of making the performance
standards more meaningful.
Under one special article, this ordinance establishes a
floodplain district. The intent is to preserve areas that are
prone to flooding in their natural state or develop them in a
prudent manner.

subdivision Ordinance 487
This generalized city 'subdivision ordinance is less'
comprehensive than the zoning ordinance. Adopted in 1972, it

includes provisions for easements, drainage plans, and a
topographical map. It pays particular regard to drainage of,
sanitary disposal requirements for, and placing of mobile homes
with the Health Department setting the necessary standards. It
was amended in 1979 to deal with drainage improvements.

City Solid Waste Ordinance
Also adopteT_i1_nl'9_72, this ordinance provides generally for
the packing of solid waste in containers, their placement, and
collection of refuse.

Erosion, Sedimentation, and Runoff Ordinance 606
This ordinance, adopted in 1978, requires that complete
drainage plans be submitted prior to land clearing. The plan
must detail storm sewers, ditches, culverts, catch basins, and
settling basins among other drainage controls. Although
individual single family and duplex homes are exempt from the
required drainage plan, the lot must be cleared in a manner such
that no runoff or siltation problem develops. Subdivisions are
not exempt from any provision of this ordinance.

The City of Milton adopted its Comprehensive Plan in 1981.
It is characterized by extensive mapping which makes
interpretation of anticipated trends much more lucid than the
trends in most of the other jursidictions discussed. The
elements in the Plan that set policies which affect estuarine
water quality include: Future Land Use; Sanitary Sewer, Solid
Waste, and Drainage; and Potable Water; Conservation; and
Recreation and Open Space. Since Milton is not a coastal
community, it has no coastal zone element in its plan.

The Future Land Use Element's policies are broken down into
three separate categories: residential, commercial, and
industrial. The following summarizes those policies within each
category which are central to this study:

Residential
o incorporate 100-year floodplain regulations into local
land use ordinances.
o assess the feasibility of adopting local ordinances
establishing the use of transferable development rights and
public acquisition as alternative management tools for regulating
flood plains.
o encourage the adoption of tree and landscape ordinances to
prevent flood damage, and vigorously enforce the
ersoion/sedimentation ordinance.
� residential development in wetlands should be avoided.
� soil information from USDA Soil Conservation should be
investigated for compatibility to proposed use with existing
soils before any construction permit is granted. Permeability
limitations, shrink-swell potential, and load-bearing capacity

should be considered.
o encourage residential developers to consider slope when
selecting a site for development. Site plans should be reviewed
to determine whether or not the design of structures, street, and
storm drainage systems is sufficient.
o site plans for proposed residential developments locating
in environmentally sensitive sreas should be reviewed and
building permits issued only after the several factors (listed
in the Plan) have been investigated.

Commercial
o require developers to submit proposed commercial projects
locating in or adjacent to environmentally sensitive areas to
local/state agencies for review, to insure compliance with State
and National environmental law.
o adopt ordinances protecting the natural environment where
State or Federal law may be weak or nonexistent when dealing with
commercial development (i.e. sedimentation/erosion control
ordinance). *
o site plans for proposed commercial develoments locating in
environmentally sensitive areas should be reviewed and building
permits issued only after the several factors (listed in the
Plan) have been investigated.
o adopt and enforce local ordinances which regulate
commercial consturction in the 100-year floodplain, establish
minimum performance standards for minimal or no damage,
investigate the use of transferable development rights and public
acquisition.
� commercial development in wetlands should be avoided.
� soils and slope information should be investigated (as in
the residential portion).

Industrial
0 regulate industrial development in the 100-year
floodplain.
o industrial parks not requiring direct surface water access
should be discouraged from locating within the 100-year
floodplain boundary. Require such industries to examine
alternative sites outside the 100-year floodplain.
o adopt and enforce local ordinances which require flood
damage prevention facilities, and investigate the use of
transferable development rights and public acquisition.
o support the existing federal regulations which control the
storage of toxic materials in the 100-year floodplain.
o soil and slope information (as in the residential portion)
should be investigated.
o encourage the coordination of all federal, state, and
local permitting agencies in the establishment of a "strqamlined"
permitting system for new industrial development.
o require compliance with the siting requirements and
standards of the Federal Clean Air Act and Chapter 17-2, Florida

Administrative Code before issuing a building permit for
industrial development.
o protect estuarine areas and other marine habitats from
adverse environmental impacts resulting from improper industrial
development.
o protect industrial districts from encroaching development
of residential and other incompatible land uses.
o facilities such as warehouses, sewage treatment plants,
and city garages should be located in industrial or buffered
areas to lessen adverse impacts on other land uses.

Many of the policies reflect the need to adopt ordinances
which are long overdue, which other jurisdictions in the two
county study area have adopted. Other policies redundantly
express the necessity of abiding by federal and state laws. The
direction of the policies as a whole, however, is supportive of
vigorous enforcement of sound environmental protection.
one troublesome aspect of this element is the lack of buffer
along the Blaqkwater River as shown on the future land use map.
Expansion of intensive classifications such as industrial and
commercial uses are shown adjacent to the river. Moreover, the
industrial zone expanded in the southeastern portion of the city
conflicts with the open space designated for that same area under
the Conservation Element. This use must be reconciled in order
that a consistent and environmentally sound strategy is
implemented.

The Sanitary Sewer, Solid Waste, Drainage, and Potable Water
Element has enumerated many very specific policies. Those most
relevant include the following:
MGD. o upgrade the treatment plant and expand its capacity to 2.5
� install interceptor system.
� through a sewer system evaluation, determine precisely the
problems in the collection system.
� perform a sewer system rehabilitation project.
� insure-that wastewater effluent discharged into the
Blackwater River meets DER and EPA standards.
� explore sources of funding for extension of collection
lines into new areas.
� phase out septic tanks in areas where sanitary sewer
service is available.
o since the responsibilities for operation and maintenance
of the landfill site reside with the county, continue to work
closely with county officials to insure that proper disposal
techniques are efficiently executed.
o as city growth occurs and new areas are annexed, insure
that the city's sanitation department is capable of serving new
customers.
o study specific drainage problems and determine whether or
not improvement projects are feasible.

o insure that plans for provision of proper drainage
facilities accompany each proposal for new development.
o use the 208 Areawide Waste Treatment Manaqement Plan
Management Handbook to review existing drainage ordinances and
develop new ordinances consistent with the 208 Clean Water Plan.
o revise subdivision regulations to allow the use of grass
swales where feasible.
o develop an auxiliary system sufficient to meet emergency
demands.
o continue system mapping.

The policies in this element are more exacting than those
capital improvement related elements in the other plans. This
gives local public officials firmer ground upon which to
implement responsive environmental controls.

The Conservation Element lists the following policies:
o promote growth in areas where soils are suitable for
development. *-
o discourage the use of septic tanks with poorly drained
soils.
o promote open space and conservation uses in sensitive
areas.
o encourage adherence to state conservation policies.
o encourage the development of appropriate soil,
topographic, and floodplaih studies to assist in conservation
related decisions.
o encourage site planning and design characteristics which
will minimize environmental damage by all new developments in the
City.
� discourage intensive development around low lying river
flood plains to minimize flood problems.
� encourage the maximization of the overall topography, the
particular physiographic characteristics, and particularly the
coastline in developing residential areas.
o utilize the Planned Development Project concept as a means
of protecting'anvironmentally sensitive areas.
o encourage planned and orderly growth of public
improvements to minimize environmental impacts.
o encourage coordination between the City of Milton, Santa
Rosa County, and the West FLorida Regional Planning Council in
the conservation of natural resources.
o implement the 201 Facilities Plan.
o adopt the 208 U-1ean Water Plan.

Although this element covers all the general areas, it lacks
the specifics to carry out a meaningful conservation agenda.
Also, despite that fact that coordination is stressed, internally
the document itself contradicts this policy. The "conservation
areas" along the Blackwater River are also those areas which have
been designated for intensive development in the Plan's Future

Land Use Element. Almost a duplicate of the Gulf Breeze
Conservation Element, this element does not include the
meaningful clause in the urban runoff policy regarding Pretention
of stormwater on site."

The Recreation and Open Space Element policies that pertain
to estuarine water quality management are highlighted in the
following:
o coordinate the need for recreational space identified in
this element and the 1976 Recreation Plan for Action with the
Future Land Use Element.
o encourage preservation of open space along the Blackwater
River north of the L&N Railroad and promote the development of a
marina in the area.
o as new areas are considered for annexation into the City,
investigate the purchase of sites for recreational purposes.
o locate neighborhood parks adjacent to public schools and
on school grounds where possible.
o investigate all the sources listed in this element for
availability of funding for recreation and open space
improvements in Milton.
o encourage establishment of an intergovernmental
recreational planning committee with representatives from the
cities in the County, the County, the public school system, and
any other significant recreational organizations.

In this element, as in the Conservation Element just
discussed, the notion of coordination is confused. Areas which
are proposed for recreation in this element are designated for
industrial and commercial uses on the Future Land Use map. Also,
while this element specifies areas adjacent to public schools and
school grounds as prime areas for locating recreational
facilities, it should also specify areas adjacent to the
Blackwater River. This intent should be verbally expressed as
plainly as it is graphically expressed.

. . . ... . ........ .............. ... ........ ... .
ja%)uailne Degradations
Section-3 &Land Management
ips

Section 3. Estuarine Degradations and Land Management Relationships

3.1 Introduction

Estuaries are unique environmental features that represent
an interface between fresh and marine waters. Because of the
gradient of salinities present, estuaries contain a wide range of
habitats that harbor a diverse and abundant assemblage of flora
and fauna. Many of these habitats act as a nursery ground and
refuge for a large number of important commercial and sport
species. over 90% of the fish species present in nearshore
Florida coastal waters utilize estuaries during at least a portion
of their life cycle.

it is well documented that estuaries are highly productive
areas (e.g., Odum, 1959, 1960). Unfortunately, estuaries and their
adjacent lands have physical and visual attributes that attract
residential, industrial, and commercial development. In most
situations, human activity and natural functions are
incompatible, with the environment typically impacted to some
degree. Future prospects for estuarine resources do not appear
much better because of increasing pressure from a growing
population that is concentrated primarily along the coastal
region.

Estuaries are particularly sensitive to pollution inputs.
Estuaries may be viewed as repositories of pollution activity
occurring upstream. one factor contributing to this sensitivity is
that the area of the waterbody is usually much smaller compared
to that of the adjacent land masses, therefore pollutants
entering the estuary are concentrated into a smaller area.
Physical and chemical processes within the estuary also are major
factors.

Upland.ac'tivities can directly and/or indirectly affect
estuarine resources. For example, dredging nearshore sediments
can directly destroy seagrass beds by physically removing the
plants but it may also indirectly destroy nearby beds by
increasing the turbidity of surrounding waters. It may also
affect other habitats in a variety of ways. Many times the loss
or degradation of an estuarine resource may be the result of the
interaction of many individual land-based causes or the
cumulative effects of many "small" impacts that taken alone would
not produce a significant degradation.

The recognition of specific recurring problems within the
estuarine system and their ties to upland activities provides an
historical basis with which to develop land management practices
and regulations to reduce the future threat of further

degradation. In addition, nonuniform regulations or policies in
the system can be identified that pose potential problems.

The Pensacola system has experienced a number of -
environmental degradations (see Section 1) that are attributable
to various upland activities by a number of investigators. These
upland activities, in turn, can be analyzed in terms of land
management practices throughout the region.

3.2 Methodology

Several investigators have attempted to examine the effects
of land use practices on estuarine resources in other systems
(e.g., Long Island Sound - Beltrami and Carroll, 1978). Many
have reached similar conclusions concerning the difficulty of
working on such a complex problem. For example, Maiolo and
Tschetter (1981) stated the following: "None of the published
reports we reviewed provided specific estimates of damage to
estuarine fisheries due to actual episodes of coastal zone
development. As such, coastal zone and resource managers are
left to make policy by the process of extrapolation, which can be
quite risky, or even worse, on the basis of general impressions."
and 11 ... we are constrained by limited data which, nevertheless,
should be of importance to resource managers. It is our view
that we should present the data now, limited as they may be
rather than await the results of future research, while, in the
meantime, social and economic costs in our coastal zones continue
to mount." We' ran into similar difficulties during this
investigation: limited data, the absence of historical land use
data, and statistical limitations, in particular, that made it
hard to generate concrete cause-and-effect correlations between
land uses and estuarine degradations.

As previously mentioned, we viewed the problem of estuarine
degradations within the Pensacola system in an historical
perspective. Doing this, we encountered the first problem. There
is a general lack of environmental data prior to 1970, with the
exception of aquatic vegetation distributions (Figure In
addition, many available reports covered only specific
geographical areas or specific problems at a single time period
that provided only a snapshot view of a portion of the system.

Given the data gaps and statistical problems we encountered
with a quantitative approach, we took a qualitative view of the
problem. We based our conclusions and recommendations on the
results of previous investigators working in the system, many of
whom noted the effects of particular land uses on estuarine.
resources and most of whom had a greater understanding of the
ecological functionings of the system. In other cases, we could
relate an estuarine degradation to a particular alteration in an
environmental condition(s) (e.g., increased turbidity) based on
work in other systems. Note that this is not to be equated as a
11cause and effect" situation. The data do not allow such a
conclusion. We then attempted to relate management practices.
or a lack of regulatory mechanism(s) to the change in the
natural environmental condition which in turn affects the
estuarine resources:

Regulatory ------- > Environmental ------- > Estuarine
mechanism condition resource

in some instances, direct relationships could be noted,' for
example dredging through a grass bed obviously destroys a segment
of that habitat. However, many times several potential causes
may have been indirectly responsible for an observed degradation.
For example, the demise of the seagrass in the Pensacola system
has been tied primarily to increased turbidity caused by a
variety of factors such as stormwater runoff, industrial input,
nutrient loading, and others. Therefore, one must determine
which management practices affect these environmental factors.
As a first step, it is important to identify the environmental
conditions that affect estuarine resources. The following
relates the six degradation categories noted in Section 1 to
possible causative environmental factors:

Estuarine Degradation Causative Environmental Factors

Aquatic Vegetation Declines Increased turbidity
Dredging/Filling
Marinas piers, and docks

Water Quality Declines Wastewater inputs
Industrial inputs (heavy metals,
synthetiz organics, and nutrients)
Stormwater runoff (heavy metals,
synthetic organics, and nutrients)
Lack of wetland buffer/filter

Estuarine Sediment Dredging/Filling
Contamination Industrial inputs
Stormwater runoff
Erosion - change in sediment type
Solid waste disposal

Shellfish/Finfish Declines Toxins
Low Do (water quality)
Habitat loss
Increased turbidity, esp shellfish
Lack of food
Stock depletion - overharvesting

Shoreline Erosion Disruption of natural transport
system
Sea-level rise

Bayou-specific Problems Exceeding assimilatative capacity
Low flushing capabilities
Nutrient loading
Toxins
Summer stress conditions
Wetland loss
Watershed alteration

The regulatory mechanisms or topics discussed in Section 2
can be variously assigned or related to a number of these
causative environmental factors. It should be pointed out
however that the degree (in actual quantitative terms) to which
each mechanism (e.g., stormwater management) actually affects an
environmental condition (e.g., turbidity) is unique to an
individual estuarine system given the multitude of factors (e.g.,
impervious surface, pollutants present, slope of terrain, size of
receiving water body, and general hydrology) that are involved in
every segment of the bay system. In addition, there are the
hard-to-measure factors, such as the consistency of compliance
and enforcement, that come into play and can be equally
important.

We related the regulatory mechanisms identified earlier in
Section 2 to changes in environmental conditions in the following
manner (adapted from Koppelman, 1976; Rogers, Golden and Halpern,
Inc., 1985):

Regulatory Mechanism Affected Environmental Condition

Stormwater Management Turbidity
Nutrient Levels
DO Levels
Sediment size and type
Habitats
Shellfish/finfish productivity

Shoreline Protection Sand transport

Habitat Protection Dunes
Wetlands
Submerged vegetation (seagrass)
Beaches
Shellfish/finfish productivity

Septic Tanks Nutrient levels
DO levels
Shellfish productivity

Marina Siting Water quality
Seagrass declines

solid Wastes Toxins

Floodplain Management Habitats (especially wetlands)
Turbidity
Sediment size and type

Land Development Codes Habitats
Water quality
Shellfish/finfish productivity

Dredge and Fill Habitats
Turbidity
DO levels
Toxins
Sediment alteration
Shellfish/finfish productivity

As is clearly evident from the above table, the regulatory
mechanisms that are in place or available for upland regions can
affect more than one environmental condition simultaneously.
Also, the effects of various upland activities may interact to
produce adverse effects. As more data are collected on estuarine
systems in general and the Pensacola system specifically, these
relationships may become more clear. one way to simplify the
problems and reduce the variability encountered in working with a
large, complex estuarine system such as Pensacola Bay is to make
sure that all the upland regions surrounding the water bodies are
regulated in a similar manner or within a similar range of
standards. Therefore, as environmental conditions change in the
system the regulations and standards can be adjusted on a
region-wide basis to correct any problems.

3.3 General Trends and Relationships

After analysis of the available data on the estuarine
resources and degradations within the Pensacola system,' several
general historical trends emerged:
(1) Residential and industrial development and their accompanying
activities have had significant detrimental impacts upon the
seagrasses through both individual and synergistic effects. The
inappropriate placement of some industries along some sections of
the system with poor circulation has contributed to many of the
problems. For example, investigators have reported that several
factors probably contributed to seagrass declines in the system.
These include: industrial discharges, dredging and filling,
beachfront alteration, nonpoint discharges, and general watershed
changes. Most of these factors contribute to increased turbidity
in the system which has been shown to be a primary cause of
seagrass bed decline. Although there has been a general
comprehension:of the extreme importance of these habitats to the
system since at least the early 19701s, actual protective
measures have not yet been implemented.

(2) Many of the numerous fish kills that have been noted
throughout recent decades in the system were the result of
artificially stressful conditions (e.g., nutrient loading and
decreased DO levels) superimposed upon naturally stressful
conditions (e.g., low DO levels and low freshwater inputs) that
are most prevalent during the warm summer months.
Where once many areas were well-suited for septic tanks, this
type of sewage treatment is having detrimental effect on nearby
surface waters. Septic systems have been linked to numerous
waterborne disease outbreaks. Septic tank systems work well in
rural low density areas with suitable soils. Given the strong
growth pressures, the estuarine area is rapidly becoming densely
populated. in a number of cases, sewage treatment plants have
been operating at overcapacity especially during the summer
which is a peak season for visitors. The declines in oyster,
crab, and shrimp productivity in the area can be attributed to
general declines in water quality and loss of suitable habitats
or nursery grounds.

(3) The northeast region of Escambia Bay has been the site of
numerous water quality degradations (low DO levels and high
nutrient and toxin inputs) and sediment contamination problems
due to industrial point source discharges. These have been
clearly evident as fish kills and shoreline vegetation changes
during the early 1970's and the last couple of years.
(4) In general, water quality conditions in the system h@@e,
improved over those present in the mid-60's to mid-701s.' This

may be attributed to stringent federal and state regulations and
a greater awareness of the problem throughout the system.
Nevertheless, Young (1985) noted that this trend of improvement
was not continuing. This has become evident more recently (late
summer 1986) by two large fish kills that have been noted in
Bayou Chico and the northeast corner of Escambia Bay.

(5) The bayous surrounding the bays historically have been the
most sensitive regions of the system. They are the most
susceptible to perturbations by development in their immediate
vicinity and its accompanying pollution. This is clearly
demonstrated in the case of Bayou Chico which has experienced
excessive residential and industrial development over the years.

(6) The shoreline erosion problems present along the northern
shore of Santa Rosa Island appear the result of a natural rise in
sea level and man-made structures that have altered the littoral
sand-transport system along the shoreline.

Many of the aforementioned observations can be directly or
at least indirectly tied to the general hydrodynamic regime of
the system. As noted in Section 1, the system as a whole has
poor circulation and consequently a very slow flushing a time due
to several physical factors. This causes pollutants that enter
the system to remain for a long time. Physical and chemical
processes remove a variety of pollutants from the water colum to
the sediments where they may be stored for various time periods.
In the case of bayous, the flushing times are also very high. As
a result, the bays and bayous can undergo seasonal physical
fluctuations such as summer stratification of the water column
with very low DO levels in the bottom layers that stress the
ambient fauna.

We noted repeated recommendations and concerns for the
declining estuarine resources in the system through many reports.
The urgency of the situation has, however, not meet with the
appropriate,re*sponse on the local government level. Local
governments'have not addressed these concerns for several
different reasons. Many officials continue to rely on anitquated
analytical techniques. Often unreliable and inconsistent data
are the basis for findings upon which officials will approve a
project or activity. The water quality standards have been set
with assimilative capacity not with restoration in mind. Before
an effective regulatory strategy can be developed to stem the
decline of estuarine resoures, a greater awareness and
appreciation of the severtiy of the problems is necessary.

Seaion-4 Recommendations

Section 4. Recommendations for Corrective Action

The recommended corrective measures are divided into three
categories: (1) general recommendations; (2) specific
recommendations for improved land management at the local level
that address the six estuarine degradation categories noted, and;
(3) gaps in data and knowledge of the system that need attention.
These measures are germane to both the recommendations made in
the Resource Management Plan, as well as the minimum criteria for
local government comprehensive plans adopted under 9J-5, F.A.C.

General.

(1) Joint venture solutions to mutual problems between levels of
government and private enterprise should be increased where
feasible. Of particular note is the coordination of data
collection for the Bay Area Resource Inventory Program (BARIP)
program between the involved agencies and local industries which
have compliance monitoring programs in place for NPDES permits.
This would enable these separate entities to pool their
information and ensure overlap in sampling stations and
techniques. It would also provide more oversight toward
improving conditions.

(2) Greater public awareness of the problems of the system and
voluntary methods to improve conditions within the system.
Several principal investigators for estuarine studies claimed
that public awareness was a crucial aspect in spearheading their
respective resource management efforts. The following are
examples of how the public could be informed:
a. A resident's guide to shoreline management should be
developed to instruct property owners in the proper care and
maintenance of waterfront property (e.g., the proper use of
pesticides and fertilizers on waterfront lawns, etc. and proper
disposal of toxic household chemicals). This type of guide has
been distributed by the Maryland Coastal Zone Program.
b. A guide to be distributed at marinas, to inform
boaters of the sensitivity and importance of the seagrass beds
and measures to be taken to avoid destruction of this habitat.
c. A comprehensive program in the school systems to teach
the importance of the system's environments and ways to protect
the sensitive habitats. The City of Sarasota has implemented
this with assistance from the federal Office of Coastal Zone
Management.

Specific Recommendations Based upon Estuarine Degradations.

(1) Adopt zoning throughout all unincorporated areas in tscambia

County to restrict the placement of nonwater-dependent uses
near the shoreline. Eliminate untreated industrial discharges
and runoff in general from directly entering the waterways by
zoning industrial uses in areas not adjacent to the waterways and
by zoning buffers between the industrial use zones and'the
waterways.
a. This measure would assign to land appropriate uses,
densities, intensities, and performance criteria (stormwater
retention, erosion control, effluent discharge levels, etc.).
This detailed system would enable public officials to understand
better and forecast more accurately development patterns and
their impacts. The use of appropriate siting would minimize
pollutants from entering the system. For example:
1. New industrial land use classifications would not be
placed along the bays, bayous, or rivers unless
absolutely necessary.
2. Non-water dependent commercial uses which would
otherwise adversely affect the shoreline environment
should be prohibited.
3. In general, cluster residential development away
from the water's edge.

(2) Existing land uses must be mapped and periodically updated
so that an accurate inventory can be available for water quality
modeling and analyses of the system. Above and beyond the
minimum criteria adopted under 9J-5.006(l), Florida
Administrative Code, is the following:
There should be uniformity in map coding throughout all
jurisdictions in the system so that a comprehensive view of the
entire system can be obtained without a number of interpretations
needed. For example, district could be viewed in terms of a
series of watershed management districts. Comparable land use
terms could be used since the watershed'spans more than one
political jurisdiction.

(3) All areas must have future land use maps, as required by
9J-5.006, Florida Administrative Code.
a. The specific zoning recommendations described above should
be graphically portrayed, in accordance with 9J-5.006(3) and
9J-5.006(4).
b. Some areas need to reconcile incompatible land uses shown
in separate elements of a comprehensive plan. For example,
Milton has a conflict showing an industrial district and
conservation district in the same area adjoining the Blackwater
River.

(4) Establish a sensitive vegetative buffer area along waterways
and bay and bayou shorelines to reduce sedimentation, turbidity,
and nutrient loading in the system. This would also provide
habitat protection for shoreline vegetation and animal
communities.

a. Extend beyond the bayou and bay corridors, recommended for
protection in the Resource Management Plan, to include rivers and
most streams in the two-county region.
b. Establish specific setbacks for each component of the
system
c. Establish high performance standards for development
within this sensitive area in order to reduce pollutants (from
both point and nonpoint sources) from entering the system. For
example:
1. Stormwater management
- extra ordinary (> .5 in) water retention areas for
stormwater runoff for development along the
waterfront
- less impervious surface
- preserve as much native vegetation as possible,
especially adjacent to waterways
2. Site design
- minimize the clearing of vegetation and disturbance
of soil by restricting clearing to the "footprints"
of site structures and to that necessary for drainage
and traffic safety in order to minimize erosion
- minimize grading
maximize on-site retention of sediments by leaving
substantial buffer strips of vegetation down slope of
disturbed sites
- allow space for the installation of sediment-trapping
devices close to disturbed areas
3. Septic tanks
- install septic drainage fields as far as possible
from surface waters and place in only proper soils

(5) Stress coordination between the utility board and authorities
and HRS with regard to septic tank location, installation, and
regulation. This would improve implementation of HRSI
septic tank rule, known as IOD-6, Florida Administrative Code,
and eventually reduce nutrient loading and the potential for
pathogens to enter the system.
a. The septic tank regulator is apprised of available sewer
service.
b. Minimize potential septic system installations in
unsuitable areas such as inappropriate soils and nearby surface
waters.

(6) Adopt an adequate public facilities ordinance to reduce
residential effluents and toxic runoff from poorly managed solid
waste facilities.
a. Require close accounting of service levels and siting
practices. Service providers would be less inclined to be over-
extended because development order approval is commensurate with
existing facilities' capacity.
b. Expand Resource Management Plan's recommendation to

establish utility authority/board beyond southern "study area" to
follow the sensitive area buffer/corridor.
c. Manage public wastes more efficiently.

(7) Adopt a provision in all land development codes that ensures
that a consistently rigorous site plan review is conducted.
Prepare a checklist reflecting all the requirements with which a
development project must comply; for example: setbacks, drainage
system, existing vegetation to be preserved, additional
landscaping, and calculation of total impervious surface. This
approach gives greater assurance that the review process is not
only thorough, but consistent throughout the jurisdiction.

(8) Work towards establishing a watershed management district
a. Enlist DER's aid in preparing supporting ordinance to
document the layout of watersheds within the two county area.
This would work towards reducing nonpoint source pollution by
managing and confining stormwater runoff in its natural domain.
b. Floodplain management could be a subset of this district
where higher performance standards are set. This would protect
wetlands from point and nonpoint source pollution, reduce erosion
and nutrient loading into the nearby waterways.

(9) Adopt a landscape ordinance which shall establish higher
standards for the floodplain and higher still within the
sensitive area buffer zones, especially adjacent to the bays and
bayous where the wildlife habitat is most diverse and most
sensitive to all types of pollution. This would encourage
habitat protection and stormwater retention.
(10) Marina siting
a. Included in the recommendations of the Resource Management
Plan, the local governments should consider prohibiting the
placement of marinas over existing seagrass beds, especially within
the Santa Rosa Sound. The extreme importance of this habitat to
the estuarine system has been established and expressed by
numerous investigators. Several factors contribute to seagrass
decline around such structures: reduced light for photosynthesis
especially directly underneath the structure, petroleum pollution
from outboard motors, increased turbidity from boat movement, and
direct cutting of seagrass blades by props. Provisions should be
made to exclude the dredging of and the dumping of any fill onto
any grassbed for the establishment of a channel to an existing
marina or dock. The same standards may be applied to docks and
piers that function in a similar manner to marinas.
b. Preference should be given to sites which have been
disturbed previously as opposed to sensitive natural areas.
Expansion of existing marina facilities should be encourages over
the development of new facilities.

(11) Enact special habitat protection measures for seagrass beds.

At a minimum, increase shallow boat channel markings to
guide inexperienced boaters away from vegetated shoals and boat
ramp signs to increase boater awareness of potential damage they
may cause outside these areas.

(12) Have comprehensive plan policies reflect the level of
performance addressed in new districts and ordinances. Use
"shall" instead of "encourage" or "should" in the wording of
plans.

(13) Shoreline protection
a. A long range (50 year) consideration should be
incorporated into shoreline protection policies given the
projections for sea-level rise in the vicinity.
b. The placement of structures, such as bulkheads, along the
shoreline should be prohibited in most instances.

(14) A restora:tion trust fund to be set up with fines collected
from violators of various habitat protection measures could be
used to restore seagrass beds and other important habitats in the
system.

Data Needs.

(1) Reassessment of the adequacy of the present pollution control
standards given the reversal in the trend of improvement in the
system's overall quality.

(2) An assessment of cumulative effects, especially docks and
marinas on various waterbodies in the system. In particular, an
examination of the cumulative impacts of the numbers of docks and
marinas on the seagrasses along the northern shore of Santa Rosa
Sound. Also, less visible habitats such as soft-bottom
unvegetated sediments should also be examined in detail because
they comprise'the majority of the estuary and are vital to its
physical, chemical, and biological functioning.

(3) A general assessment of shellfish and finfish stocks with
more studies on the biology and natural history of the important
recreational and commercial species in the system so that the
physical data collected on the system can be more effectively
related to fluctuations in these resources.

(4) The impacts and amounts of groundwater pollution into the
estuaries and bayous.

100

Section 5. Applicability to other Estuarine Systems

One of the objectives of this investigation was to create a
procedure to guide the analysis of estuarine degradations and
land management practices that could be applied to other
estuarine systems within the State of Florida. More
specifically, the methodology would be one that could be applied
to Resource Management Plan areas to aid in the evaluation of the
effectiveness of the plan. It could also be one that could be
used for analysis of land use practices around aquatic preserves.

The general methodology we developed is outlined below:
(1) generation of estuarine data base;
(2) identification of recurring or persistent degradations of
estuarine resources;
(3) identification of sensitive areas or habitats within the
estuary;
(4) identification of all jurisdictions within the system;
(5) identification and analysis of all plans affecting the
estuary or its components;
(6) determination of uniformity of goals and policies for system;
(7) identification of regulatory mechanisms that may affect
resources directly or indirectly;
(8) determination of uniformity of regulations around system;
(9) identification of past recommendations and their
implementation into the regulatory framework;
(10) identification of the relationships between estuarine
degradation and land management practices;
(11) generation of recommendations for corrective action
a. policy changes
b. ordinances
c. coordination between users of the system, and;
(12) identification of data needs to direct future research
within the system.

There will be similarities between the present analysis for
the Pensacola.and other systems in the Florida. We have delineated
the federal and state regulations dealing with estuarine
resources. Overall, the federal and state regulations will be
uniform (in a vertical sense) throughout all the water bodies,
although there will be the question of uniform enforcement. It
will be on the local level where differences will be identified
(in a horizontal sense) and where the recommendations will be
directed.

There are some important concepts to consider when using the
procedure to analyze other systems. First, the hydrodynamics of
the system will be extremely important. Second, it is critical
to note that there may be different overall management gaals in
different systems. For example, the Apalachicola Bay is--very

101

dependent upon fishing and oystering and its residents have a
different value structure for its estuarine resources than a more
visually-oriented area such as Panama City Beach. Therefore, the
two will have different goals for management of its estuarine
resources. Another important factor is the community perception
of resource degradation and commonality of goals. For example,
does the majority of the population view the system as degraded
and in need of better regulation. It is important to recognize
whether these goals are consistent throughout all jurisdictional
entites and plans. It has been our experience that they often
are not.

102

m = = = = M'm = = = =.= = = m

Section 6. Comprehensive Bibliography

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Adams, J.K. 1972. A comparative study of phytoplankton primary
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103

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104

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105

Ellis, E.E. 1969. Some basic dynamics of the Pensacola Estuary.
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the Gettty Oil Company.

Environmental Analysts of Florida, Inc. 1979b. Environmental
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Escambia County, Department of Community Development. 1974a.
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Florida. 182 pp.
.' I
Escambia County, Department of Community Development. 1974b.
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PP.

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106

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PP.

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FL DER. 1980a. Bioassays of Pensacola Naval Air Station sewage
treatment, Escambia County, FL. NPDES #FLOO02500. Biological
Section, Bureau of Water Analysis. 15 pp.

FL DER. 1980b. Bioassays of American Cyanamid Company, Fibers
Division, Santa Rosa County. NPDES #0002590. Biological
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#FL0021440. Biological Section, Bureau of Water Analysis. 8 pp.

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127

Appendix A. GLOSSARY

aerobic - living, active, or occurring only in the pres ence of
oxygen.

anaerobic - occurring in the absence of free oxygen.

anoxic - oxygen absent.

benthos - organisms that live on or within bottom substrates.

biochemical oxygen demand (BOD) - The quanitity of dissolved
oxygen, measured in milligrams per liter (parts per million),
required to stabilize decomposable organic matter by aerobic
biochemical action. This quantity is determined by diluting a
sample with water saturated with oxygen and measuring both
immediately and after a five-or ten-day period.

cumulative effects - The combined environmental impacts that
accrue over time and space from a series of similar or related
individual actions, contaminants, or projects. Although each
action may seem to have an negligible impact, the combined effect
can be severe.

depuration - The process whereby shellfish such as oysters and
clams rid or cleanse themselves of pollutants.

detritus - partially decomposed organic matter (e.g., plant
material) that represents a food source to many estuarine
organisms.

dissolved oxygen (DO) - Atmospheric oxygen that is dissolved and
held in solution in water. only a fixed amount of oxygen can be
dissolved in water at a given temperature and atmospheric
pressure.

diurnal tides one tidal cycle (high and low tide) per day-

effluent - the outflow of water (with or without pollutant), as
from a lake, river or pipe.

epifauna - In benthic communities, those organisms living on the
substrate surface, either attached or free moving.

epiphyte - micro or macroscopic plants that live on the surface
of a substrate.
estuary - A semienclosed coastal body of water having a f.i7ee

128

connection with the open sea and within which sea water is
measurably diluted with fresh water.

euphotic zone - the amount of surface waters that receives
sufficient light for photosynthesis to occur.

fecal coliform - Bacteria that are present in the intestines or
feces of warm-blooded animals and that are often used as
indicators of the sanitary quality of water. Their degree of
presence in water is expressed as the number of colonies per 100
milliliters of the sample. The greater their number, the higher
the degree of pollution that is indicated.

flushing time - the amount of time for a pollutant entering a
water body to be removed by natural forces such as tides and
currents.

halocline - a salinity gradient.

infauna - In benthic communities, those organisms that dig into
the substrate and construct burrows or tubes.

macrofauna - Often referred to in benthic communities as those
organisms that will be retained on a 0.50 mm mesh sieve.

macrophytes - plants visible to the naked eye.

mean high water the average height of the high tides over a 19-
year period.

mean low water the average height of the low tides over a 19-
year period.

nonpoint source pollution - pollution that is generated over a
relatively wide area such as a city or cropland rather than at
a specific place, and that is discharged into receiving waters at
irregular intervals as a consequence of storm runoff.

nutrients Essential chemicals needed by plants or animalg for
growth. Excessive amounts of nutrients can lead to degradation
of water quality and the growth of excessive numbers of algae.
Some nutrients can be toxic at high concentrations.

point source pollution - pollution originating at a particular
place, such as a sewage treatment facility. In contrast to
nonpoint source pollution, point source pollution tends to occur
more or less continuously.

prinicipal nutrient index (PNI) - a water quality criteripn
incorporting a number of nutrient concentrations in one number.
The method was developed by Harkin (1974).

129

pycnocline - a density gradient

runoff - the part of precipitation that appears in surface
streams after having reached the stream channel either by surface
or subsurface routes.

salinity - a measure of the quanitity of dissolved salts such as
in seawater.

surface irradiance (SI) - the quantity of light present at the
surface of the water.

synergism - an action as a result of several different agents
such that the total effect is greater that the sum of the effects
taken independently.

tidal range the difference between high and low tide levels.

toxic - poisonous, carcinogenic, or otherwise directly harmful to
life.

turbidity - A measure of the amount of material suspended in the
water column. Increasing the turbidity of the water decreases
the amount of light that penetrates the water column. High
levels of turbidity are harmful to aquatic life.

130

Appendix B.

ABBREVIATIONS

BARIP = Bay Area Resource Inventory Program

BOD = biochemical oxygen demand

DDE = dichloro-diphenyl-ethane

DDT = dichloro-diphenyl-trichloroethane

DER = Department of Environmental Regulation

DKR = Department of Natural Resources

Do = dissolved oxygen

ECUA = Escambia County Utility Authority

g gram

kg kilogram

km = kilometer

1 = liter

m - meter

mg = milligram

mgd = million gallons per day

MHW = mean high wtaer

MLW = mean low water

MPN = most probable number

N = nitrogen

KWFWMD = Northwest Florida Water Management District

P = phosphorus

PCB = polychlorinated biphenyl

PNI = principal nutrient index

131

ppm - parts per million

ppt = parts per thousand

REMOTS = trade name for sediment profile camera combined with
computer image analyzer

SRIA Santa Rosa Island Authority

STP sewage treatment plant

TOC total organic carbon

ug microgram

WWTP wastewater treatment plant

132

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