Coastal Management Element

Draft -- August 21, 1997

TABLE OF CONTENTS (you may simply scroll through this document, or click on any heading below to go directly to a specific section)

Coastal Planning--Background

Coastal Boundaries

Existing Land Use Conditions

Land Use Conflicts

Redevelopment and Historic Sites

Economic Base

Boating Ordinances

Infrastructure in the Coastal Planning Area

Natural Disaster Planning Concerns

Hurricanes and Tropical Storms

Affected Population

Vehicles in Use

Evacuation Times (On Island)

Evacuation Times (Off Island)

Sheltering

Community Rating System

Post-Disaster Redevelopment

Coastal Construction Control Line

National Flood Insurance Program

Hazard Mitigation

Areas of Concern

Building Back

Structures with Repeated Damage Due to Storms

Beach Erosion

Beach Renourishment

Other Shoreline Protection Measures

Public Access to the Water

Water-Related and Water-Dependent Land Uses

Marinas

Boat Ramps and Piers

Artificial Reefs and Fishing Areas

Beach Access

Need for Additional Access

Competition for Marina Space

The Need for a Balanced Harbor Planning Process

GOALS, OBJECTIVES, AND POLICIES:

1. Coastal Planning Generally

2. Natural Disaster Planning

3. Post-Disaster Redevelopment

4. Beaches and Dunes

5. Access to the Water

6. Harbor Planning

The state of Florida requires all counties and cities along the coast to address special coastal management concerns that do not apply to non-coastal communities. An important reason is the need to protect these resources and human life and property in locations that are subject to large-scale destruction by tropical storms and hurricanes. This element begins with brief inventories of coastal resources in and around the Town of Fort Myers Beach, followed by in-depth treatment of critical coastal planning issues.

Coastal Planning--Background

Coastal Boundaries

The state provides guidelines for local governments in establishing their "coastal planning area," specifying: (1) water and submerged lands oceanic water bodies or estuarine water bodies, (2) shorelines adjacent to oceanic waters or estuaries, (3) coastal barriers, (4) living marine resources, (5) marine wetlands, (6) water-dependent facilities or water-related facilities on oceanic or estuarine waters, (7) public access facilities to oceanic beaches or estuarine shorelines, (8) and all lands adjacent to such occurrences where development activities would impact the integrity or quality of the above resources. Another important coastal boundary is the coastal high hazard area which is defined as the evacuation zone for a category I hurricane as established in the regional hurricane evacuation study.

Based on many of these guidelines, the entire municipal boundary of the Town is within the coastal planning area. Figure 1 is an aerial view of the southerly end of Estero Island, taken from the south. Figure 2 illustrates the precise boundary of the Town's coastal planning area (the entire land area of the Town plus its 1000-foot jurisdiction over the waters). Figure 3 depicts the various hurricane vulnerability zones as determined by the Hurricane Evacuation Study, Southwest Florida (SWFRPC, 1995).

Existing Land Use Conditions

The amenities of the Gulf of Mexico and Estero Bay have made the Town one of the more desirable places to live and work in Southwest Florida. Located within a highly populated county and being located on a bridged barrier island, it is only natural that the Town of Fort Myers Beach is a substantially built-out community.

The Town of Fort Myers Beach is approximately 1466 acres in size. The Town stretches almost 6 miles in length and averages ½ mile wide. The Town is surrounded by water: to the southwest is the Gulf of Mexico; to the north is San Carlos Bay; to the east is Matanzas Pass and Estero Bay; and to the south is Big Carlos Pass. The Town has approximately 41 miles of streets with Estero Boulevard running the length of the island serving as the main thoroughfare.

Because of its proximity to coastal waters, the Town's land uses are intimately tied to tourism and resort living. Although the existing uses are linked primarily to tourism, there are distinct areas within the Town's municipal limits.

The North End maintains a residential and resort identity. At the northern tip of the island lies Bowditch Point, a regional park. Close to Bowditch Point are several highrise hotels, resorts, and multi-family developments. Single-family dwellings are interspersed among these uses, especially on the bay side.

The Times Square area is filled with restaurants and stores that cater to tourists and residents alike. The centerpiece is Lynn Hall Memorial Park, a popular destination for beachgoers where they can sunbathe and enjoy the Gulf waters within easy reach of parking, shopping, and food.

Many of Estero Island's original settlers located in what is now referred to as the Near Town district. This district, located on the bay side of Estero Boulevard, has primarily single-family homes with a few multi-family units mixed in. The homes are among the oldest on the island. Many of the homesites have direct water access, with canals having been dredged at the time of original development.

The Civic Complex district has a mixture of single- and multi-family dwellings surrounding the Town's library, elementary school, and Town Hall. The Bay Oaks Community Park offers assorted recreational activities, with baseball fields, tennis and basketball courts, a playground, and a gymnasium. The northern end of the Matanzas Pass Preserve is located there.

The center of the island comprises the largest land area on the island, with predominately single-family homes. However, multi-family dwelling units and small resorts can be found among them. The island's fire station is located in this district, as is the Mid Island Marina.

A large resort district further south is distinctly different in character from the remainder of the island. High-rise condominium complexes are the predominant land uses. There are various commercial sites including Villa Santini Plaza, a shopping center. This district includes Little Estero Island, a state-owned wildlife preserve, and the island's only golf course at Bay Beach.

At the southernmost tip of Estero Island is a district of mainly single-family homes plus a few condominium towers at Big Carlos Pass. The Buccaneer Lagoon separates the south end from resort district.

Table 1 summarizes the existing land uses by acreage for the Town of Fort Myers Beach.

Land Use Conflicts

Shoreline uses lining both the Gulf and bay sides of the island are a mixture of single- and multi-family dwelling units, and commercial resorts, restaurants, marinas, and stores. The greatest potential for conflict among uses lies with the mix of single- and multi-family dwellings. In some cases, one-story homes can be found sandwiched between tall condominiums, thereby having views and sunlight blocked. The Future Land Use Map should limit intense multi-family units to areas of similar uses or to existing sites.

The majority of free-standing restaurants and retail shops are located in or near the Core Area. This concentration reduces the potential for incompatible uses being intermingled in other areas of the island. This should not preclude the locating of other commercial operations elsewhere, but those uses should be clustered in commercial complexes or nodes to reduce incompatibility.

The Town's marinas are located along the bay side of the island which offers greater protection from storms and erosion. In a few cases, marinas are completely surrounded by residential dwellings and the only road access is by a residential street, thus limiting future expansion potential to protect other existing uses.

Redevelopment and Historic Sites

The intensive development of Estero Island began during the 1930s. Prior to that time there were only a few buildings. In 1912, the Winkler Hotel was built; it was sold in 1930 and renamed the Beach Hotel. In 1921, a bridge was built which connected Estero Island to the mainland, which resulted in the further development of many hotels, restaurants, a pier and a bathing casino as people became aware of the Fort Myers area as a popular vacation destination. Many of the earlier structures have been destroyed by storms and development of modern structures, such as high-rises, has resulted in a loss of many of the older buildings on the island.

One of the oldest structures on the island is the historic Case home which was built around 1910 by William Case at the end of what is now Connecticut Street. The Pelican Hotel is another structure which has historic significance. Its main hall is the remains of a large house boat which ran aground in the 1890s.

In a historic resources survey of Fort Myers Beach, Lee County officials found no structures which were eligible for designation on the National Register of Historic Places, but determined that the Case cottage and others would be suitable for local designation. A complete inventory of structures that are considered to have historic value is located in the Historic Preservation Element; their locations are shown here on Figure 4. Unregulated development and redevelopment within the Town may result in the loss of locally significant historic structures. The effects of this issue are further discussed within the Historic Preservation Element.

Economic Base

The economic base of Fort Myers Beach depends primarily upon tourism. The 6-mile-long island has approximately 140 motels, apartments, and resorts that cater to part-time residents and visitors. In 1990, the U.S. Census reported a total of 2,349 full-time jobs located on Estero Island. The Town's Gulf beach is its primary economic asset.

Fort Myers Beach residents held a total of 2,140 full-time jobs in 1990, with 44% of those residents working on Fort Myers Beach, San Carlos Island, or up to Summerlin Road. Of the 2,140 residents with full-time jobs, almost 30% were employed in the retail trade industry. The second largest employment industry was construction, with 12.5% of the jobs. Table 2 displays all employment of town residents by industry classifications.

Of the specific occupations which were reported to the Census Bureau (as opposed to specific industries), the most common occupations of town residents were in sales (primarily retail), management, or general services. Table 3 shows the occupational breakdown for 1990.

The median per-person income in 1990 was reported to be $19,270, with a median household income of $30,180. It is evident that the main portion of the Town's economy caters to the tourism industry. Commercial fishing is not a large industry for the Town itself, although it is certainly is for Lee County. The Department of Environmental Protection estimated that well over 9 and 6 million pounds of fish were harvested in the waters surrounding Lee County during 1995 and 1996. At an average price of $1.56 per pound in 1996, these landings added $9.68 million to the Lee County economy that year. Lee County's fishing docks are located primarily on San Carlos Island (42%, across Estero Bay) and Pine Island (48%).

Boating Ordinances

The Town has already adopted several ordinances which directly affect the use of the coastal waters surrounding the Town. These are (1) the Vessel Control and Water Safety Ordinance, (2) Personal Watercraft Ordinance, and (3) Parasailing Ordinance.

Vessel Control and Water Safety Ordinance

Vessels are restricted from operating within 500 feet of a Town or County owned public park beach which is designated for swimming or others areas designated by the Town. Vessel speeds within regulated areas must not exceed slow or idle speed and ingress and egress to beaches shall be as nearly perpendicular as possible. Regulated areas are all waters within 500 feet of the shoreline, 100 feet of the pier and bridges, and locations with posted signs.

Personal Watercraft Ordinance

Operators of personal watercraft must use U.S. Coast Guard approved personal flotation devices and use a lanyard type engine cutoff. Personal watercraft may not be operated during the night between ½ hour before sunset and ½ hour after sunrise. The Town also regulates the operations and locations of rental businesses. Persons are not permitted to operate unregistered personal watercraft within the Town's jurisdiction.

Parasailing Ordinance

Parasailing operations within the Town must be fully licensed by Lee County, the location of businesses must be located with direct access to the beach and within certain locations, and be protected by commercial insurance. Operators must be located at least 1,000 feet from shore when they inflate or deflate a parachute, and parachutes are not allowed to be flown within 500 feet of the pier or beach. All operations must cease at sunset.

Infrastructure in the Coastal Planning Area

Since the "coastal planning area" comprises the entire Town, detailed inventories of existing infrastructure are found in all other elements of this comprehensive plan. Analysis of infrastructure capacities and minimum level of service standards are established in those elements.

Natural Disaster Planning Concerns

Hurricanes and Tropical Storms

The Town of Fort Myers Beach has serious evacuation problems, being densely developed and located entirely on a bridged barrier island. Estero Island can be easily overtopped by tropical storm wash and by passing Gulf hurricanes. The last time the Town was directly struck by a hurricane was in 1960, by Hurricane Donna, a "Class 3" storm on the Saffir-Simpson scale (see Table 4). Damage on the island was massive, with loss of life. The hurricane passed directly over the Island on September 10; virtually all structures were rendered temporarily uninhabitable, and many were destroyed.

Southwest Florida has not been struck by a hurricane since 1960. Despite its sheltered location (compared to the east coast of Florida or the southerly shore of the Florida panhandle), southwest Florida is considered to be the second most hurricane vulnerable region in the country (SWFRPC, 1997). This vulnerability results from the shallow off-shore waters which will allow extremely high tidal surges to develop under certain conditions; many low-lying coastal areas which can easily be inundated; and from a large coastal population, including many mobile homes.

The level of flooding to be expected cannot be determined based on wind speed alone. The precise direction from which the storm approaches, and the exact location that the storm strikes land, both have a tremendous effect on the level of flooding. Figure 3 shows the areas in Lee County that could be flooded from various levels of storms if those storms strike from the direction and at the location that would cause the highest storm surge (specifically, striking from the west and making landfall just north of Lee County). When one of these worst-case storms strikes Lee County (or a lesser but still-severe storm), the flooding will have devastating effects on life and property. (The flooding levels in Figure 3 were projected by the National Hurricane Center's "Sea, Lake, and Overland Surges from Hurricane" (SLOSH) computer model for Lee County.)

The Town is accessible by road only through other islands, which in turn are accessible by road through comparatively low-lying mainland areas. This feature compounds the Town's hurricane preparedness problems, since the routes the Town will use for an evacuation will also be used by the residents of other islands and of low-lying areas that have no other routing alternatives.

Another evacuation problem is the large Australian pine trees that are seen throughout Fort Myers Beach. Due to their shallow root structure, they are especially vulnerable to high winds and can easily fall, blocking critical evacuation routes even before the really high winds begin. A program of removing or regularly pruning these trees along Estero Boulevard could reduce this risk.

Affected Population

The Town has in a sense two populations, a "permanent" population made up of those who consider the island their permanent residence, and a "transient" population that peaks each day as workers come and leave during the work day, that peaks each holiday with the occupation of the many transient lodging facilities, and peaks during the winter months as seasonal residents occupy second homes and the transient lodging facilities become fully occupied by vacationers.

During hurricane season, the "transient" population is fortunately at somewhat lower levels than the winter months (except for holidays). Further, a portion of the "permanent" population throughout hurricane season is vacationing elsewhere, especially in the summer months. Regardless of these factors, a large portion of the Town's population is threatened by inundation by hurricanes, with no part of the Town being at natural heights greater than expected storm surges in major storms.

To evaluate the time it would take to evacuate the Town, the number of vehicles that would be evacuating is estimated as follows:

• Existing units are estimated from various sources, including the Census, building permit data, and surveys.
• Occupancy rates are based upon local and regional surveys.
• The number of persons per occupied household are drawn from Census data and applied to all units.
• Forecasts of future population are based upon "build-out" unit estimates.
• The number of vehicles that would be used in an evacuation are drawn from the per-unit estimates provided in the Hurricane Evacuation Study (SWFRPC, 1995).

The 1990 Census shows a total of 7,420 dwelling units for the area now in the Town of Fort Myers Beach. Of these, 2,247 were single-family detached, 133 were single-family attached, 3,925 were in structures with 10 or more units, 256 were mobile homes, and the remainder in duplex to 9-unit structures. Since 1990, there have been an additional 472 units built of all types, making a total for 1996 of 7,892. To this total can be added an additional 1,351 units for hotels and motels (SWFRPC, 1995).

About 2.02 persons occupied the average dwelling unit, according to the 1990 Census. There is no reason to believe that this characteristic has changed markedly since that time.

The 1990 Census indicated that the Town's units were largely renter, seasonal, or recreational occupied, constituting 72% of the units. The occupancy rate of owner/occupied units is high, about 95%, but that of other units is 64% outside of the "season." From surveys, occupancy rate of hotels/motels varies throughout the seasons, but is a fairly stable 62-64% during hurricane season, but climbing to nearly 100% during holidays.

The estimate of affected persons is thus calculated: ((28% of 7,892 units x .95) +(72% of 7,892 x .36) +(1,351 x .63)) x 2.02 = 10,092. This number will show moderate variations throughout the season from June to November, and may peak by an additional 1,000 during holidays, not including day visitors.

Build-out forecasts expect an additional 1,028 dwellings and 336 hotel units (see Future Land Use Element). Applying the ratios used above to these additional units provides for a build out population during hurricane season (including overnight-or longer-transients) of 11,619.

Vehicles in Use

Through surveys conducted by the SWFRPC, it has been estimated that there would be one evacuating vehicle for every two people. In beach communities, the estimate is conceded to be higher, approaching nearly all vehicles for which a driver can be found since the vehicle is the second most expensive item a person will own and it is mobile. The beach community can be recognized as having higher vehicle usage than the county as a whole. For the purpose of this assessment, though, the one-vehicle/two-person ratio is being applied. The estimated vehicles in use by Town residents will be at least 5,052. This number would grow to 5,809 at build-out.

Evacuation Times (On Island)

Within the Town, the factor controlling evacuation times is Estero Boulevard, a two-laned facility (with center turn lane along part of the Island). The roadway capacity varies depending upon the degree of direct management that is provided. Without such management, the capacity at service level D (county/regional calculation standard) is 943 vehicles per hour in the primary direction, or 1,660 per hour for both lanes with two way traffic (830 per lane). The Town directs about half of its traffic south to Bonita Beach Road (for evacuees south of the fire station) and the remainder north across San Carlos Island.

Using one-way/one-lane capacity, the time to clear the island at the stated level of service is determined by dividing the number of vehicles by the road capacity. This calculation is 5,052/943, or 5.4 hours. Using the two-way option, the number drops to 3.1. When the "build-out" estimate is used, the calculation is 5,809/943, or 6.2 hours for one lane, and 3.5 for two way. No system-wide road capacity improvements are planned that could improve these capacities.

Evacuation Time (Off Island)

The Town's evacuation route off the island extends through Bonita Beach and Bonita Springs to the south and east, and through San Carlos Island and the unincorporated areas of South Fort Myers to the north and east (see Figure 5). When the routes are used for hurricane evacuation, there will be significant traffic from other low-lying areas added to these routes.

According to the 1995 assessment by the SWFRPC, the volume of traffic for a category 1 storm will occupy routes used by the Town for 7.4 hours in July and 8.4 hours in November. Times for category 2 are the same, but times for a category 3 climb to 12.1 hours in July and 12.6 in November. Short-term forecasts (1998) climb to 7.9 hours for category 1 and 2 storms in July, 9.0 hours for the same storms in November. Category 3 times climb to 12.9 and 13.5. The routes off island and the other communities occupying these routes are shown on ?.

Unfortunately, the "piling on" effect forecasted for Southwest Florida makes these times seem small. Should the worse category storms follow the path of greatest threat, times have been forecasted to climb to 58.4 hours for an out-of-region evacuation, to which the Town contributes only a small percentage of the overall traffic. Such times are unachievable, requiring the Town and its surrounding region to reexamine their sheltering options.

Sheltering

Public shelter space available to the Town is provided through the county school system. There are eight schools along the most likely routes, and a total of 34 schools county-wide. These schools are shown on the evacuation route map (Figure 5) and listed in Table 5. The space within all 34 schools is adequate for only 42,740 persons in a minor storm and 52,440 in a major storm, and these same shelters will be used by other evacuating communities. Some also become unusable should the category storm be 3 or greater, reducing the space substantially. Consequently, the overall public shelter space is inadequate for the potential demand.

Town residents also have private sheltering options, including hotels and friends or family that are outside of predicted flood areas. These opportunities also diminish for the more severe storms.

The problems facing the Town also affect the entire region. There is simply not enough shelter space for all evacuees (SWFRPC, 1995). Evacuation times have been reduced in some coastal areas because of aggressive road construction in recent years, but evacuation to areas outside of coastal counties is becoming less feasible each year as roads between counties are not being built at a rate that matches increases in population. For this reason the Town will need to work with Lee County and regional agencies to develop feasible in-county alternatives to traditional public sheltering.

Initial work on this concept is detailed in a 1997 study that sought to identify potential private shelters (SWFRPC, 1997). Private shelters wouldn't be staffed and equipped by public agencies or the American Red Cross, but might provide a degree of "lessened threat" for coastal residents than some other alternatives (remaining at home, being caught on the road when high winds make further car travel impossible, or competing for the very limited number of motel rooms).

Potential private shelters include recreation facilities in planned communities; churches; public buildings such as courthouses or airport terminals; and workplaces of major employers. Drawbacks to private shelters can include poor locations, inadequate structural strength, lack of supplies and emergency power, and liability concerns for property owners. The SWFRPC study identified potential space in Lee County for up to 16,500 additional evacuees; unfortunately this number is still far short of the shelter space required.

Town residents and businesses face greater physical risks when a hurricane strikes than do most people in Lee County. The relative infeasibility of providing on-island sheltering options is just one such risk. Another is knowing exactly when to evacuate. Emergency management officials are reluctant to suggest evacuation any earlier than is needed because hurricanes can quickly change direction; residents who evacuate needlessly will hesitate to heed such an alarm before the next storm.

Island residents are aware of their vulnerability and the increased distance they must evacuate, and would generally be ready to take a greater risk of unnecessary evacuation than other county residents. However, county officials are responsible for a much larger area and cannot be expected to give their full attention to weighing the risks and benefits of an early evacuation recommendation.

Compounding the problem is the fact that Lee County officials do not anticipate ordering a mandatory evacuation of Fort Myers Beach under almost any circumstances. Town officials, however, could weigh the local situation and do so, if a system were in place for full communication of relevant information. Or the Town could set up such a system in cooperation with the City of Sanibel, which faces the same dilemma. This would be a major undertaking, especially since an early evacuation would have to coupled with arrangements for emergency shelters to open early to accommodate those evacuees seeking refuge there. But given the vulnerability of Fort Myers Beach to even a minor hurricane, the benefits of such a system could be immense.

Community Rating System

The Federal Emergency Management Agency evaluates floodplain management programs of local governments and issues a rating under the Community Rating System (CRS). The Community Rating System encourages and rewards local governments which undertake efforts to reduce flood losses and promote the purchase of flood insurance. The major benefit for citizens of CRS- rated communities is that they will receive flood insurance premium rate credits which lower insurance costs for all property owners. Local governments are rated on a scale of one to ten, with one being the highest rating that could ever be granted. This rating is not a measure of how safe a community is from flooding; rather it is a measure of how hard a local government is currently trying to reduce its vulnerability to flooding.

Fort Myers Beach is currently rated "7," an improvement from the previous rating of 8. Both ratings now apply to all of Lee County, but Fort Myers Beach has applied for its own rating, which will probably be made in 1998. All reasonable efforts should be made to receive the best possible rating from FEMA in order to lower flood insurance premiums. Sanibel has been able to obtain a "5" rating; Tulsa Oklahoma has been the only other community in the nation to obtain a rating that high.

Post-Disaster Redevelopment

For Floridians, natural disasters are constant reminders of how fragile barrier islands are. Tropical storms and hurricanes can wreak havoc on citizens lives, homes, and personal property. In most cases, development should not be permitted on barrier islands at very high densities; however, hindsight is often the exception rather than the rule. In the case of Fort Myers Beach, the town is mostly developed with relatively high densities, which average 20 units per acre for existing multifamily buildings. Therefore, its disaster planning must center primarily on reducing potential losses of life, improving existing and new structures and infrastructure, and rebuilding more safely after severe damage.

Any redevelopment within the Town must meet the minimum level-of-service standards established within this comprehensive plan. As pointed out in the elements where level of service standards are established, there is sufficient capacity in most infrastructure through build-out, although site related impacts still must be mitigated.

Current regulations discourage landowners from making structural improvements to strengthen buildings against the constant threat from hurricanes, contrary to expected public policy. The impacts of these programs, described below, vary depending on the precise location of a parcel of land. Each program has a set of very specific maps or boundaries that delineate their regulatory zones.

Coastal Construction Control Line

The state of Florida began regulating shoreline development in 1971. Along the beachfront, the state imposes stricter construction standards to minimize damage to the natural environment, private property, and human life. The best-known state regulation is the designation of Coastal Construction Control Lines (CCCL), which are precise lines running just inland of barrier island beaches.

In 1978, the state established its first CCCL at Fort Myers Beach. With a few exceptions, new buildings could only be built landward of this line.

In 1991, the state established a new and very different CCCL. The new line averages about 200 to 300 feet landward of the 1978 line, often running right along Estero Boulevard. This new line came with quite different rules; it is definitely not a "line of prohibition." Instead the rules are more of a structural building code, administered by the engineering staff of the Department of Environmental Protection (DEP) in Tallahassee. In order to receive a permit, a proposed building must be designed to withstand the physical force of wind and waves of a 100-year storm; the water pressure of being partially submerged during flooding; and the effects of surrounding soil being lost to erosion, in addition to all normal structural requirements for buildings.

In addition there are several specific requirements that affect the use of the ground level below buildings that are seaward of the 1991 CCCL. No substantial walls or partitions can be placed below the first elevated floor. The only obstructions allowed below the first floor are stairways, elevator shafts, pilings, and "shearwalls" up to 20% of the building's width, and even then only when they are essential for structural integrity.

As strict as these rules are, they do not preclude many reasonable uses of land, as was feared by many property owners when the 1991 CCCL was adopted. However, buildings must be elevated, typically even higher than buildings elsewhere on the island, and be extremely well-built. High-rise condominiums and hotels, as well as single-family homes, can be built under these rules.

Because of these requirements, however, the only possible way to have ground-floor retail space as currently exists, might be to locate it on the landward side of the shearwalls. The result would be, at best, a discontinuous street frontage because of the 20% rule. This is hardly conducive to "window shopping" and general pedestrian amenity. The net result appears to be that, under current regulations, new or improved pedestrian-oriented ground-level retailing and restaurants are impractical seaward of the 1991 CCCL except where buildings already exist. These areas include most of the Gulf side of Estero Boulevard across the entire island (but very little of the Bay side). One possible alternative to this conclusion might be for the Town of Fort Myers Beach to seek an interpretation or rule change from the state that would allow the 20% to be calculated differently, for instance across the entire island. Under this scenario, the Town would commit to maintaining or increasing the current restrictions against high-intensity development along a significant portion of the beachfront, in exchange for some leniency that would allow some new buildings at ground level in designated pedestrian zones.

National Flood Insurance Program

The National Flood Insurance Program (NFIP) is one of several federal disaster programs which has established minimum construction standards which serve to reduce damages from storm events in coastal high hazard areas. It was begun in 1968 as a nationwide system of flood insurance for designated flood-prone areas. Each area is studied to produce a map that indicates how high flood waters might rise, which is known as the "base flood elevation." Local governments then adopt regulations to reduce the impacts of future flooding. In exchange for these regulations, property owners can obtain flood insurance that is guaranteed by the federal government. The most important regulation is that the lowest floor level of most new and improved buildings must be raised above the "base flood elevation." The base flood elevations are shown on a series of official Flood Insurance Rate Maps.

There are basically two types of flood zones at Fort Myers Beach. The first are called "A-zones," defined as areas subject to rising water from coastal flooding. Base flood elevations in the A-zones vary across the island, ranging from 11 to 14 feet above mean sea level. The finished level of the first floor must be at or above this height. For residential structures, fill or exterior walls are allowed below the floor level, but any walls must be designed to preclude finished living space and to allow flood waters to flow freely. Parking is permitted, but interior partitions are not.

The second flood zone is a "V-zone" or velocity zone, defined as areas subject to wave action on top of the rising water from coastal flooding. V-zones are found immediately along the Gulf of Mexico and inland as far as Estero Boulevard. Base flood elevations for new buildings in V-zones range from 15 to 19 feet and are measured to the bottom of the floor structure, causing new buildings to be somewhat taller. Fill or solid construction is not allowed below minimum floor elevations in any buildings except for pilings, stairwells, or "breakaway" walls that will wash away during flooding. About 16% of the land in Fort Myers Beach is in a V-zone (257 acres); the remainder is in an A-zone.

Since the 1970s, flood-prone communities have been required to adopt these regulations in order for their residents to qualify for federal flood insurance. Federally insured lenders cannot provide mortgages in these communities on property that does not have flood insurance. As a result, almost no flood-prone community can exist without participating in the NFIP, since few private companies offer comparable flood insurance.

Lee County began participating in the NFIP in 1984 immediately after all of its coastal areas were mapped. Fort Myers Beach has been covered under the county's program; however, the Town is now in the process of joining the program on its own.

Hazard Mitigation

For residential buildings, floodplain development regulations have become a fact of life in all coastal communities. They cause a hardship to many elderly people who have difficulty climbing the required entrance stairs in homes; they often create a strange pattern in neighborhoods with old and new houses; and they reduce the desirable connection between indoor living space and Florida's pleasant outdoors. However, these factors are generally outweighed by the desirability of keeping new homes out of harm's way during recurring floods.

There is little prospect for changing these development requirements as it applies to new homes. However, there are two areas where current floodplain regulations may conflict with good planning practice and other public goals.

The concept of hazard mitigation has become a high priority in the field of emergency management in recent years. Essentially, this kind of mitigation means actions to prevent, avoid, or reduce the impacts of a hurricane, especially actions that can be taken in advance to reduce the vulnerability of people and property to injury from a hurricane or tropical storm. Yet, some of the current floodplain regulations actually work against pre-storm hazard mitigation. FEMA recently acknowledged that its programs do not provide incentives to take proactive mitigation actions and that a more comprehensive strategy for mitigation needs to be developed.

A recent publication from the Florida Department of Community Affairs (DCA) quotes FEMA's Director Mr. James Witt approvingly on this matter, and went on to observe that:

Retrofitting and flood mitigation are integral to floodplain management. However, they are also excellent forms of pre-disaster activities that involve undertaking and performing corrective and preventive measures to existing houses and businesses, electrical and mechanical equipment and water and sewer lines, as well as land areas (DCA, 1995).

DCA is taking this concept to great lengths, recognizing that post-disaster property damages can be dramatically lowered by modifying existing structures. The department proposed a "residential construction mitigation program" to the legislature in 1997. This program would help lower-income residents to retrofit their homes to increase their safety and protect their investments before a disaster occurs, using low-interest loans or grants (DCA, 1996). The legislature appropriated $3.1 million for a pilot program in 1997-98; DCA will be requesting $10 million for the full program in 1998.

Homes built in Lee County before 1984 were not required to be elevated above the base flood elevation. Since then, through the building permit process, elevation requirements have been strictly enforced for new homes and for "substantial improvements" that cost more than 50% of the appraised value of a building (not including the land's value) over any five-year period. This is one example of the infamous "50% rule" that causes so much difficulty for owners of older buildings when they are trying to maintain and upgrade their property.

Within the Town of Fort Myers Beach, non-conforming buildings should be allowed to be modified, provided the modifications do not increase the non-conformity. In addition, the Town should encourage property owners to strengthen buildings before a hurricane hits rather than wait to provide disaster aid or expedited permitting to repair damage that could have been avoided. Such policy will allow property owners to strengthen their buildings by installing storm shutters or shatterproof glass; strengthening roof attachments, floors, and walls; and minor floodproofing. One way the Town can encourage strengthening by excluding these costs from the 50% rule.

The floodplain regulations for commercial buildings are not identical to those for residential uses. In A-zones, commercial buildings are technically allowed to include space below the base flood elevation. However, their outer walls must then be "dry floodproofed" so as to be impervious to water and able to withstand complete inundation without collapsing. This is done by sealing the building walls with waterproofing compounds and some type of impermeable shielding over doors and windows to prevent flood waters from entering at any point. Alternatively, the lower area can be "wet floodproofed," where flood waters are allowed to enter and exit the building without damaging the structure. "Wet floodproofing" is suitable for garages but obviously inconsistent with retail and office uses.

Dry floodproofing is difficult to achieve because of the obvious expense of making a building also act as an unfloatable boat. It is difficult enough to keep all water out; it is even more difficult to make a building strong enough to withstand the water pressure that will be caused by inundation, which will tend to collapse inward. Dry floodproofing is considered fairly easy for concrete block construction up to a flood depth of about three feet. Unfortunately, the practicality of dry floodproofing a storefront to greater heights is less clear. Most likely, poured concrete walls would be required, with heavily reinforced windows.

Areas of Concern

The CRA's Core Area Master Plan envisions significant mixed-use redevelopment along Estero Boulevard from Times Square to Pearl Street. A major portion of this plan calls for mixed-use development with retailing at ground level, despite state and federal policies to elevate most new construction above expected levels of flooding.

There are two separate impediments to implementing the CRA core area master plan: the "dry floodproofing" requirements in the NFIP's A-Zones, and the regulations for new buildings seaward of the CCCL.

The flood-insurance prohibition against any new ground level enclosures in the V-zone will have only minor effects on carrying out the CRA master plan because only a few buildings, such as the Pier Peddler/Dairy Queen, are in the V-zone. However, the V-zone covers almost all of the Gulf side of Estero Boulevard from the Red Coconut to the Catholic Church; it would not be practical to include any of those areas in an expanded master plan for pedestrian-oriented commercial space.

The flood-insurance requirement to dry floodproof all new ground-level commercial space in A-zones applies across the remainder of the CRA master plan. The only significant difference is the specific elevation that floodproofing must extend up to 14 feet above mean sea level in Times Square and the Gulf side of Estero Boulevard; and 12 feet along Old San Carlos Drive. With existing ground levels averaging about 6 feet above sea level, this would mean dry floodproofing up to 8 and 6 feet above ground level respectively. This distinction could be critical to the technical feasibility of dry floodproofing, making it more practical along Old San Carlos Drive.

The CCCL is a bigger impediment than the flood insurance requirements to commercial redevelopment along the Gulf side of Estero Boulevard. Unless the State of Florida can be persuaded to look at Estero Island as a whole, the 20% rule for buildings seaward of the CCCL will preclude much of the lively streetscape envisioned in the CRA master plan, and ultimately could phase out most ground-level activity there.

If such changes or exemptions to the CCCL regulations cannot be obtained, Old San Carlos Drive and the Bay side of Estero Boulevard may be the only potentially practical locations for commercial redevelopment.

If full-height dry floodproofing turns out to be impractical, there is another possible plan for Old San Carlos besides the elevated walkway concept proposed by the University of Florida (1991). This plan would be to raise the existing grade a few feet along Old San Carlos, including roads and sidewalks, and to rebuild adjoining commercial space to the new grade, with dry floodproofing now required only to about mid-height on the new walls. This would reduce construction costs considerably and allow more extensive storefront windows, both of which would contribute to the success of the redevelopment effort. This kind of plan cannot be achieved inexpensively or incrementally, however, because raising the grade would obviously have major impacts on existing ground-level businesses.

Building Back

When a passing hurricane destroys part of a community, difficult rebuilding questions arise immediately. Landowners have spent thousands and sometimes millions of dollars in developing their property. Not allowing landowners to rebuild places a great economic burden upon them. But allowing redevelopment in the same manner exposes it to destruction in the next big storm.

If a disaster occurs within the Town of Fort Myers Beach, structures could of course be rebuilt in accordance with the adopted Future Land Use Map. (In most cases, the permitted use will be the same as before the storm.) Structures that are damaged greater than 50% of their current value are allowed by Lee County to be rebuilt, however it must be rebuilt in accordance with the regulations that apply to new development. This means that the lowest floor level is elevated, uses are severely limited on the ground level, and break-away walls may be required.

The "build-back" policy was initiated by Lee County in 1989 to allows post-disaster reconstruction at existing density levels but with improved resistance to future storms. This provision has been popular among landowners at Fort Myers Beach because of the greatly reduced density levels that would otherwise apply after a major storm, but it falls far short of a redevelopment plan that would ensure that the community would be improved in other ways during the inevitable rebuilding process. Further planning is warranted on this subject to improve the existing build-back policy.

Major investments by government and private industry are made for public infrastructure. In order to rebuild, damaged infrastructure must be repaired or replaced. In a flood-prone area such as Fort Myers Beach, new or replacement infrastructure should be designed and constructed to minimize damage caused by hurricanes and tropical storms. Power lines can be placed underground. Potable water and sanitary sewer systems should eliminate infiltration of flood waters into utility systems, and they should be capable of running on auxiliary power during post-storm periods. Roads should be designed and constructed to manage minimum levels of storm events and be located in areas least susceptible to storm damage.

Structures with Repeated Damage Due to Storms

A number of structures within the Town have experienced damage as a result of past floods. Lee County implemented a program through Ordinance 95-14 in which individual buildings that were repeatedly damaged by flood waters were inventoried. The county requires that certain older buildings be brought into compliance with current regulatory standards for new construction: specifically, any building that is improved, modified, added on to, or reconstructed by more than 20% of its replacement value and which has recorded one or more National Flood Insurance Program (NFIP) flood losses of $1,000 or more since 1978.

From that program, the properties in Table 5 have been identified, and are mapped in Figure 6. No meaningful pattern appears on Figure 6 that could suggest neighborhood-wide flooding remedies. Of particular interest on Table 6, however, is that none of the floods that caused considerable damage at Fort Myers Beach in the past 15 years were even minimal hurricanes; in fact two weren't even strong enough to be considered tropical storms.

Lee County is conducting a detailed assessment of the costs of improving the buildings in the unincorporated area that have been repeatedly damaged by flooding. The county hopes to obtain 75% federal funding for many of these improvements.

Beach Erosion

Beach and dune systems are the zones of interaction between oceanic waters and land located on barrier islands or the mainland. A typical beach can be divided into four distinct zones which are dunes, backshore, foreshore, and nearshore. The dunes and backshore areas are beyond the influence of regular wave activity; however, they are influenced by wind and surges in wave activity. The foreshore zone is where waves generally break and is the area of most activity. The nearshore zone is generally submerged and great amounts of sand are deposited there as sand descends from waves. Sand is deposited along beaches through wave action in a process know as littoral drift. Wave and tidal action move sand in many different ways. Many times, it is pushed parallel to the shore since wave action is not always perpendicular to the beach. It is also pulled away from the beach by the backwash action of waves. This process transports sand in and away from beaches, resulting in gradual changes.

A number of coastal protection structures have been built over time to combat beach erosion. Many of these are concrete seawalls which have been installed in the central and southern locations of the island where erosion has been the greatest. Revetments have also been used (piles of rocks that function like seawalls), as well as groins (which are built perpendicular to the beach to trap sand).

Some of the southern portion of the island is protected by Little Estero Island, which began as an offshore sand bar that is visible in aerial photographs from as early as 1944. It began to support vegetation and wildlife during the 1970s. Little Estero Island and Bowditch Point are the island's major areas of beach growth (accretion).

Like most beaches, much of the rest of the Estero Island shoreline has suffered from erosion caused by storms and tidal action. Figure 7 shows the major areas where continued erosion threatens Estero Island, according to a recent comprehensive study for Lee County (Humiston and Moore Engineers, 1997).

Beach Renourishment

Some "renourishment" of the northern end of the island occurred in 1985/86. Approximately 190,000 cubic yards of sand was restored to the beachfront from Bowditch Point Park to Times Square. Another small beach renourishment project was completed in April 1996 along the beach from the Best Western Hotel to the north of the Estero Beach Hotel. The project involved approximately 4,500 feet of beach and helped to stabilize this section of severely eroding shoreline. Both of these projects were initiated to remove excess material from the main navigation channel near Bowditch Point; beach renourishment was only a secondary benefit.

Renourishment programs are quite expensive. The recent county study made a through evaluation of historical erosion/accretion rates at Fort Myers Beach and all feasible alternatives for shoreline protection (Humiston and Moore Engineers, 1997). The study recommended a beach renourishment program, at an estimated cost of $9 million for engineering design, permitting, and construction, to renourish the two shoreline sections shown in Figure 7. The report also indicates that maintenance renourishment would be needed every ten years at an annualized cost of $546,000 per year.

The U.S. Army Corps of Engineers had previously estimated a cost at $5.95 million, but the Corps had not included the southern shoreline area and had proposed a smaller volume of sand.

In a recent application to the Department of Environmental Protection, Lee County estimated the cost for the northern segment at $9.57 million of which $4.53 million was requested from the Federal government, $2.51 million from the State government, and $2.53 million would be provided by local government. The requested amount for the southern segment is $3.23 million of which the State and local governments would each provide $1.62 million. Renourishment of the northern segment would involve approximately 25,600 linear feet of beach, while the southern one would involve about 3,155 linear feet. These funding requests include design, permitting, construction, monitoring, and maintenance through the year 2008. This proposal is being supported by the county's Tourist Development Council and its Coastal Advisory Council.

A large renourishment project for Estero Island would be extremely beneficial to the Town. The major attractor for tourism and the Town's economic base is the Gulf of Mexico and its beaches. For the Town and Lee County to continue competing for tourist dollars, investments in beach amenities are necessary and would contribute substantially to the economies of both.

Other Shoreline Protection Measures

Shoreline protection within the Town of Fort Myers Beach should be accomplished by a series of steps:

• The beach renourishment project just described should be a Town priority for the critically eroding areas. The recreational and economic benefits derived from such projects will offset the initial costs.
• Sand dunes should be protected and re-created where they have been removed. Native dune plants should be protected and non-native exotics removed. Dune walkovers should be constructed where they do not exist and existing structures should be maintained. The use of vehicles on beaches should be limited to emergency and public lands management (such as exotic plant removal and beach maintenance) vehicles.
• Buildings and other structures should be located as far away from the shoreline and dune system as possible since the beach is a constantly changing environment.
• The last resort for shoreline protection is the use of hardened structures.

Hardened structures such as groins, jetties, and seawalls, should only be used as a last resort when a series of structures are in imminent danger of collapse. If it is determined that a hardened structure is necessary, rip-rap revetments are preferred to seawalls. Rip-rap consists of one or more layers of natural stone, boulders, concrete rubble, or sand bags placed on a gentle slope. Rip-rap is very effective on low energy coasts where wave heights are not large (for instance, along Matanzas Pass). It is less effective on beaches, and greatly interferes with sea turtle nesting. Groins, jetties, and seawalls along the beach should be the absolute last resort since their use may damage the shoreline in other locations and they impede public use of the beachfront. The only exception would be for "terminal groins," which extend perpendicular from the shoreline near major inlets. A properly designed terminal groin does not rob adjoining beaches of sand moving along the coast; because of its location, it keeps sand from moving off the beach and into inlets that need to remain open for navigation or tidal circulation.

Public Access to the Water

Water-Related and Water-Dependent Land Uses

Water-related land uses are plentiful within the Town of Fort Myers Beach. Virtually all of the resorts, retail shops, and restaurants cater to tourists who visit for the Gulf of Mexico and its beaches. In addition, many of the homes are built adjacent to saltwater canals which lead to Estero Bay. In one sense, all of the island's land uses are water-related. In contrast, water-dependent uses absolutely must be on land directly adjoining the water. Examples are marinas, boat ramps, public beaches, or commercial fishing ports.

Marinas

There are four marinas within the Town of Fort Myers Beach. Each offers sales, service, or storage (wet and dry) of boats. Figure 8 and Table 7 summarize the location and services offered by the island's commercial marinas.

The Town of Fort Myers Beach does not have a deep water port, nor is one planned for the future. The marinas and docks cater to recreational boaters, tourists, and, occasionally, commercial fishermen.

Boat Ramps and Piers

Lee County has long maintained a magnificent pier which attracts tourists, fisherman, and residents to the Times Square area. The pier, 584 feet in length, is located at the Lynn Hall Memorial Park. Figure 9 shows the present pier, which underwent structural renovations in 1997.

The Town does not operate a public boat ramp. Lee County provides public boat ramps with parking for tow vehicles and trailers to the north at Punta Rassa and Sanibel Island and to the south at the Carl Johnson/Lover's Key Recreation Area and Imperial River. The ramp at the Carl Johnson/Lover's Key Recreation Area is the closest at approximately 1½ miles. Figure 10 shows the locations of publicly owned boat ramps.

Within the Town's boundaries are 3 quasi-public ramps, each apparently on public land but without space for parking. These ramps are on Bayview Drive and at the end of Miramar Street and Coconut Drive.

Artificial Reefs and Fishing Areas

Man-made reefs are highly sought destinations for the sport fisherman because the reefs attract numerous varieties of fish. There are several off-shore artificial reefs in the Lee County area, 5 of which are within 13 nautical miles of Fort Myers Beach. They are identified in Table 8 and Figure 11.

In addition to artificial reefs, there are other popular fishing areas in the Fort Myers Beach vicinity. The Fort Myers Beach pier provides access to off-shore water for those without boats. Fishermen have also been know to fish from the Gulf and bay shorelines.

Beach Access

Access to beaches is very important to residents of any community, not just to visitors. Although many of the Town's residents live along the shoreline, not everyone does. Long before incorporation, Lee County has been maintaining and improving the numerous public access points to the beach through the use of easements, rights of way, and purchase of land. There are 46 public access points along the approximate seven mile island -- 36 are located along the Gulf of Mexico and 10 are along Estero Bay (see Table 9 and Figure 12). The county has continued to maintain these access points since incorporation, using funding from the Tourist Development Council. The Town may wish to take formal responsibility for this maintenance. An opportunity exists to meter the parking spaces and generate revenue to be used for further beach improvements.

Two of the access points are operated by Lee County as public parks. Bowditch Park is approximately 17 acres with 1,850 linear feet of beach along the Gulf of Mexico. Located at the northern tip of Estero Island, the park has playground equipment, fishing areas, picnic tables, nature trails, and restroom facilities. Lynn Hall Memorial Park is about 5 acres in size and has 600 feet of beach. The pier, grills, shelters, playground equipment, and restroom facilities are located at the park.

Most of the Town's hotels, motels, and resorts are located along the Gulf of Mexico. They provide access to their guests and, in some cases, to the general public.

Need for Additional Access

As demonstrated in the inventory, public access facilities to the beaches and water are quite good. However, given the number of visitors wishing to use these facilities, additional sites should be considered which can provide parking or provide beach access on the southern quarter of the island since no public sites are currently located there. Access acquisition would likely be expensive at the south end, but this is where public access is most lacking at present. An especially critical location would be a southerly access to Little Estero Island, where little Gulf-front land remains available.

A single lot here could provide a walking access, a gazebo to provide shade, a small parking area, and educational exhibits about wildlife on Little Estero Island. The parking area would avoid public use of adjoining homesites for this purpose, and would help the Town acquire state and federal funding for beach renourishment, funding which is dependent on public access (including parking).

If the Town were to construct a public boat ramp, a fairly large site would need to be selected to provide parking for tow vehicles and trailers. Since most of the island is already built up, a public boat ramps would be very expensive. Given the existing traffic congestion during the peak season, off-island residents and visitors would have difficulty using a boat ramp on Estero Island, and would contribute to further congestion whenever they did so. Fortunately, the existing boat ramp situation is sufficient to meet current needs.

Competition for Marina Space

In many coastal locations, available space for public or semi-public access to the water has been drastically reduced through conversions of water-dependent uses (such as marinas) to water-related uses (such as condominiums or restaurants).

To forestall this eventuality, Lee County's comprehensive plan designated "water-dependent overlay zones" that include Fish Tale Marina, Mid-Island Marina, and Moss Marine on Estero Island. That designation began a county-initiated rezoning process to formally zone such sites for marina uses (since in some cases the marinas were not properly zoned, or were zoned for a category that allowed non-marina uses as well). The purpose of rezoning was "to protect their [marina's] rights to rebuild and expand and to prevent their conversion to non-water-dependent uses without a public hearing" (Objective 8.1 and Policy 98.1.1).

Directly across Matanzas Pass, extensive water-dependent overlay zones were also established on San Carlos Island. Those zones were designed to protect "marine industrial" activities such as boat yards, shrimp docks, shrimp packing plants, and certain other compatible uses (these policies are now found under Objective 12.1).

In the intervening years, the shrimping industry has become a potential new competitor for existing marina space. The shrimping industry had been declining for over a decade. Shrimp docks were recently eliminated from Key West, leaving Tampa and San Carlos Island as the only viable shrimping ports on the west coast of Florida. The relocation of the Key West boats is causing serious overcrowding on San Carlos Island, and has led the Community Redevelopment Agency there to evaluate various ideas on expanding the existing docks. A private shrimping firm has also acquired the Island Bay Marina at the end of Delmar Street, the only marina at Fort Myers Beach not currently in a water-dependent overlay zone. The firm proposes to greatly expand the existing dockage.

Although the potential conversion of this marina for overflow shrimp boat docking would not preclude its later re-use as a recreational marina, it does raise other planning issues. Recreational marinas are used in ways that are quite different than quasi-industrial marinas or commercial ports. The potential compatibility issues arise on the waterside of the docks (conflicts between the regular comings-and-goings of small recreational boats and large occasional influxes of large shrimp boats) and on the landside (the potential introduction of industrial activities into a residential neighborhood).

If the San Carlos Island CRA is able to provide alternate overflow docking for shrimp boats, this conflict may never occur. If alternate arrangements are blocked or prove to be infeasible, the Town may choose to establish its own water-dependent overlay zone for the Island Bay Marina and similar sites to avoid conversion of recreational marinas to industrial uses.

The San Carlos Island CRA recently received a state grant designed to aid waterfront industries. An initial goal is a management plan for the waterfront that balances environmental protection, public recreation, economic development, and hazard mitigation. The Town of Fort Myers Beach has agreed to participate in this planning process.

The Need for a Balanced Harbor Planning Process

Conflicts between waterfront uses can escalate in the absence of a balanced forum where conflicting uses of Matanzas Pass can be examined and workable solutions devised. With the advent of the Town of Fort Myers Beach, Lee County will have difficulty in establishing such a forum alone. And a forum controlled by the Town, or by San Carlos Island interests, will inevitably be viewed with suspicion by the other side, and ultimately will not have the credibility to resolve many of the difficult issues. It would be in the interests of all parties to create a continuous and more balanced planning process for Matanzas Pass.

Other harbor issues also need to be addressed and balanced against the needs of the commercial fishing industry and of recreational boaters. These include live-aboard boats; water shuttles; cargo shipping; oil spills; jet skis; boat speed regulations to protect manatees; channel dredging; and estuarine water quality. Currently, each of these issues are considered somewhat in isolation. For instance, a regional harbor board was recently established to address problems faced by (or caused by) anchorages for recreational boaters, including live-aboard vessels. Although this is a positive step, the current anchorage in Matanzas Pass cannot be isolated from other activities there.

Important participants in a balanced planning process might include:

• Lee County;
• The Town of Fort Myers Beach;
• San Carlos Island Local Redevelopment Planning Committee;
• Shrimping industry representatives;
• Recreational marina representatives;
• Estero Bay Aquatic Preserve;
• U.S. Coast Guard
• Lee County Port Authority; and
• West Coast Inland Navigation District.

Ideally this planning process would be an integral part of a new entity established to manage (not just plan for) the future conflicts and activities that can be expected in Matanzas Pass.

A good approach toward establishing such an entity would be for through a formal committee that would advise either the Lee County Commission or the Lee County Port Authority on Matanzas Pass matters. (A similar committee now advises the Port Authority on airport issues; it has been very successful in mediating conflicts and planning a major airport expansion.) The current Lee Plan proposes such an advisory body, with specific responsibility to prepare a "Matanzas Harbor Management Plan" (Policy 94.6.3). However, no ongoing entity has been established to serve this important function.

PROPOSED GOALS - OBJECTIVES - POLICIES

Based on the analysis of coastal management issues in this element, the following goals, objectives, and policies have been drafted for inclusion in the Fort Myers Beach comprehensive plan.

GOAL: To keep the public aware of the potential effects of hurricanes and tropical storms and to plan a more sustainable redevelopment pattern that protects coastal resources, minimizes threats to life and property, and limits public expenditures in areas subject to destruction by storms.

COASTAL PLANNING GENERALLY -- Protect and enhance coastal resources through an on-going planning process that recognizes the advantages and limitations of living within a sensitive coastal environment. Important limitations on development in this coastal high hazard area include the existing over-concentration of people plus state and federal policies against public expenditures that subsidize further private development.

1. The Town shall maintain and enforce building codes at least as stringent as required by Florida law to limit the potential damage of structures from hurricanes and tropical storms. These codes shall include wind-resistance commensurate with the risk of a coastal environment and building elevation requirements that conform with federal laws and Flood Insurance Rate Maps.
2. The maximum density of future residential development is limited to the densities described in the Future Land Use Element in recognition of natural hazards and existing population concentrations. (For rebuilding following a natural disaster, see the buildback policy, Policy 3-C in this element.)
3. When state funding is required for the relocation of replacement of infrastructure currently within the Coastal Building Zone, the capacity of the replacement structure shall be limited to maintaining required service levels, protecting existing residents, and providing for recreation and open space needs.
4. Since the entire Town of Fort Myers Beach is within the coastal planning area and is designated as a coastal high hazard area, specific policies addressing historic buildings, phasing of infrastructure, and environmental resources are contained in other elements of this plan and are not repeated here.

NATURAL DISASTER PLANNING -- Reduce the threat of loss of life and property resulting from catastrophic storms by improving evacuation and shelter capabilities from their current levels.

1. The Town shall work to improve the capability of evacuating Fort Myers Beach when a tropical storm or hurricane threatens to strike. Specific problem areas include:

   County officials may be reluctant to order a county-wide evacuation even though an evacuation may be warranted for low-lying coastal areas such as Fort Myers Beach. Town officials should be prepared to order a local evacuation if one is warranted.

   Australian pines and other trees along evacuation routes can pose a threat to evacuation routes due to decay or shallow root systems; such trees need to be identified and pruned or removed.

   In a cooperative process with Lee County, Sanibel, and the Southwest Florida Regional Planning Council, the Town shall seek to improve mainland shelter capacities including private sheltering options.

   The Town shall work closely with Lee County and Florida DOT to maintain or improve hurricane evacuation times and procedures, including off-island traffic bottlenecks.

2. The Town shall participate fully in the federal government's National Flood Insurance Program and seek constant improvements under the Community Rating System.
3. The Town shall encourage owners of private buildings to strengthen or otherwise protect them before severe storms strike, to reduce avoidable damage to life and property. Town regulations shall be modified if they unnecessarily interfere with this important form of hazard mitigation.
4. The Town shall develop and adopt a storm emergency plan for preparing for, responding to, and recovering from a hurricane or tropical storm. Hazard mitigation recommendations of local peacetime emergency plan or interagency hazard mitigation reports shall be evaluated for inclusion in the Town's plans.
5. The Town shall participate in Lee County's "all-hazards" special taxing unit.
6. Capital improvements to infrastructure and facilities under the Town's jurisdiction that can maintain or improve evacuation times will be identified and included in the Capital Improvements Element.

POST-DISASTER REDEVELOPMENT -- Plan for post-disaster rebuilding that will reduce the exposure of human life and property to future disasters and improve the community in other ways during the rebuilding process.

1. By 1999, the Town in cooperation with Lee County officials shall prepare a post-disaster redevelopment plan. Such plan shall be consistent with this comprehensive plan and use the following priorities:

   Activities which prevent further loss of life or that minimize public health risks;

   Activities which restore the basic public infrastructure and services to support the population;

   Activities which prevent further damage to public or private property;

   Activities which begin the rebuilding process as promptly as possible.

2. By 1998, the Town shall evaluate the elevation and drainage characteristics of evacuation routes to the mainland to identify problem areas that may prematurely block evacuation. Solutions shall be sought in cooperation with agencies having jurisdiction over such facilities.
3. Allow rebuilding after a disaster in accordance with the adopted Future Land Use Map or, at the landowner's option, in accordance with the "buildback policy" initiated by Lee County in 1989. This policy applies only where buildings are damaged by fire, hurricane or other natural disaster, and allows the following options:

   Buildings damaged less than 50% of their replacement cost (measured at the time of damage) can be rebuilt to their original condition, subject only to current building and life safety codes.

   Buildings damaged more than 50% of their replacement cost can be rebuilt to their legally documented actual use, density, intensity, size, and style provided the new construction complies with:

   1. federal requirements for elevation above the l00-year flood level;
   2. any building code requirements for floodproofing;
   3. current building and life safety codes;
   4. Coastal Construction Control Line requirements; and
   5. any required zoning or other development regulations (other than density or intensity), except where compliance with such regulations would preclude reconstruction otherwise intended by this policy.

   Redevelopment of damaged property is not allowed for a more intense use or at a density higher than the original lawful density except where such higher density is permitted under this plan and the Town's land development regulations.

   To further implement this policy, the Town may establish blanket reductions in non-vital development regulations (e.g. buffering, open space, side setbacks, etc.) to minimize the need for individual variances or compliance determinations prior to reconstruction. The development regulations may also establish procedures to document actual uses, densities, and intensities, and compliance with regulations in effect at the time of construction, through such means as photographs, diagrams, plans, affidavits, permits, appraisals, tax records, etc.

4. To further coordinate the redevelopment activities proposed under this plan with state and federal floodplain management programs, the Town shall pursue the following activities:

   Pursue all potential measures to encourage corrective and preventative measures to existing houses and businesses to increase their resistance to flooding and high winds before a disaster occurs. Examples include storm shutters; shatterproof glass; strengthening roof attachments, floors, and walls; and minor floodproofing.

   Allow non-conforming buildings to be modified provided the modifications do not increase the non-conformity.

   Investigate the feasibility promoting pedestrian activity in some redeveloping commercial zones by raising the existing grade of roads and sidewalks one to three feet, thus allowing adjoining commercial space to remain at ground level while reducing the required height of dry floodproofing.

   Explore with the Department of Environmental Protection an alternative method of controlling building intensity seaward of the Coastal Construction Control Line. The current rule allows 20% of any single building's frontage to be enclosed at ground level. This percentage may be too high for most parts of the Town, but is too low where pedestrian zones exist or are being created. An alternative means of computing the 20% rule could better meet the state's coastal management goals and the Town's revitalization program.

5. New publicly funded buildings within the Town shall be designed to withstand major storms and be able to serve as shelters/operation centers for emergency personnel.
6. Design new and replacement infrastructure to minimize damage caused by flooding and high winds:

   Power lines shall be relocated underground whenever possible.

   Water and sewer systems should eliminate infiltration of flood waters and be designed to function with auxiliary power when needed.

   Roads should be designed to manage minimum levels of flooding and be located where least susceptible to storm damage.

7. Continue to inventory buildings that are repeatedly damaged by flood waters to identify those that have recorded one or more National Flood Insurance Program (NFIP) flood losses of $1,000 or more since 1978. Require that such buildings be brought into compliance with current regulatory standards for new construction whenever they are improved, modified, added on to, or reconstructed by more than 20% of their replacement value.

BEACHES AND DUNES -- Conserve and enhance the shoreline of Estero Island by increasing the amount of dunes, renourishing beaches to counter natural erosion, and reducing negative man-made impacts on beaches and dunes.

1. The Town's policies on shoreline protection measures shall be as follows (see also Objective 5 and related policies in the Conservation Element of this plan):

   Beach renourishment will be necessary along much of the Gulf beach. The recreational and economic benefits will offset the cost. The Town shall work closely with Lee County, which has agreed to take the lead role in carrying out this important activity. All practical measures shall be taken to ensure that beach renourishment improves sea turtle nesting habitat rather than interfering with it. Public access to existing and renourished beaches is an important priority of the Town of Fort Myers Beach.

   Sand dunes should be protected and re-created where they have been removed. Native dune plants should be protected and non-native exotics removed. Dune walkovers should be constructed where they do not exist and existing structures should be maintained. The use of vehicles on beaches should be limited to emergency and public lands management (such as exotic plant removal and beach maintenance) vehicles.

   Buildings and other structures should be located as far away from the shoreline and dune system as possible since the beach is a constantly changing environment. Beachfront development shall be protected from coastal erosion, wave action, and storms by vegetation, setbacks, and/or beach renourishment, rather than by seawalls or other hardened structures which tend to hasten beach erosion, interfere with public access, and block sea turtle nesting. Development (other than minor structures) shall not be allowed seaward of the 1978 Coastal Construction Control Line. Development seaward of the 1991 Coastal Construction Control Line may be permitted provided it complies with this comprehensive plan and all state and local permitting requirements.

   The absolute last resort for shoreline protection is the use of hardened structures. New development or buildings requiring seawalls for protection from coastal erosion shall not be permitted.

ACCESS TO THE WATER -- Continue to provide well-maintained accesses to beaches, bays, and navigable waters to serve the existing and future population and visitors.

1. Ensure the continued maintenance of existing beach access points, currently provided by Lee County with funds from the Tourist Development Council.
2. Evaluate the need for expanded parking areas and the potential for revenue generation from metered parking as a funding source for additional public access amenities.
3. The Town shall attempt to acquire one or more beach access points at the southern end of the island.
4. The Town shall monitor the effectiveness of its ordinances regulating water activities (vessel control, water safety, personal watercraft, and parasailing). In cooperation with providers and citizens, develop a program of education, interagency cooperation for enforcement, and additional regulation as needed to protect the coastal waters and the safety and welfare of residents and visitors.

   This plan minimizes the potential for land use conflicts between waterfront uses and other land uses through the following priorities for development/ redevelopment of the shoreline:

   Intense multi-family uses are limited to areas vested by previous regulations; to the rebuilding of existing sites following a natural disaster (see Policy 3-C); and to voluntary rebuilding of existing sites in accordance with the Future Land Use Element.

   Future development or redevelopment of shoreline land uses must ensure compatibility with surrounding lands and provide proper buffering where needed.

   In determining applicable land uses for a site, priority shall be given to water dependent land uses in the following order:

   1. Conservation uses
   2. Water-dependent uses such as marinas which are available for use by the general public;
   3. Recreational uses; and
   4. Other uses that are compatible with the surrounding neighborhood.

1. HARBOR PLANNING -- Initiate a cooperative planning process for Matanzas Pass and surrounding waterways by 1998.
2. 1. The Town shall take an active role in initiating and participating in the planning process for Matanzas Pass and nearby waters envisioned by Policy 94.6.3 of the Lee County Comprehensive Plan. This process would be conducted by a new entity charged with both planning and implementation. This entity would have the following characteristics:
   2. 1. A balanced governing board representing competing interests such as local governments, recreational and commercial boating interests, and regional/state/federal agencies with jurisdiction over these waters, and
      2. A commitment to address and resolve competing interests for use and protection of these water, including commercial fishing and shipping, recreational boating, public anchorage, environmental protection, and protection of other shoreline users.
      3. The active support of all users so that this planning process can be the first step towards long-term cooperation and protection of these valuable resources.

Affected Population 7

Vehicles in Use 8

Evacuation Times (On island) 8

Evacuation Time (Off Island) 9

The Need for a Harbor Planning Process 26

PROPOSED GOALS - OBJECTIVES - POLICIES 27

OBJECTIVE 1 COASTAL PLANNING GENERALLY 27

OBJECTIVE 2 NATURAL DISASTER PLANNING 27

OBJECTIVE 3 POST-DISASTER REDEVELOPMENT 28

OBJECTIVE 4 BEACHES AND DUNES 30

OBJECTIVE 5 ACCESS TO THE WATER 31

OBJECTIVE 6 HARBOR PLANNING 32

Literature Cited

Department of Community Affairs, Retrofitting and Flood Mitigation in Florida, 1995.

Department of Community Affairs, Breaking the Cycle: How Starting on Long-Term Redevelopment Can Help Florida Avoid Economic Disaster, 1996.

Doehring, Fred, Iver W. Duedall, and John M. Williams, Florida Hurricanes and Tropical Storms -- 1871-1993: An Historical Survey, Florida Sea Grant College Program Technical Paper 71, 1994

Godschalk, David R,, David J. Brower, and Timothy Beatley, Catastrophic Coastal Storms: Hazard Mitigation and Development Management, Duke University Press, 1989.

Humiston and Moore Engineers, Estero Island Beach Restoration Study, March 1997.

Southwest Florida Regional Planning Council, Hurricane Evacuation Study, Update 1995, 1995.

Southwest Florida Regional Planning Council, Hurricane Shelter Deficit Reduction Report - 1997, 1997.

University of Florida College of Architecture, Fort Myers Beach Project Phase I - Final Report, July 1991.