Resolution 030-2011Emergency Management
RESOLUTION NO. 030-2011
APPROVAL OF A RESOLUTION TO ADOPT THE 2010 FINAL DRAFT UPDATE OF
THE LOCAL MITIGATION STRATEGY AS REQUIRED BY STATE AND FEDERAL
REGULATIONS TO QUALIFY FOR CERTAIN MITIGATION GRANT FUNDING.
WHEREAS, Monroe County adopted a Local Mitigation Strategy (LMS) in 1999 and an
update of the LMS in 2005; and
WHEREAS, Monroe County and the cities of Key West, Key Colony Beach, Layton,
Islamorada, and Marathon, have experienced hurricanes and other natural hazard events that pose
risks to public health and safety and which may cause serious property damage; and
WHEREAS, the Robert T. Stafford Disaster Relief and Emergency Assistance Act, as
amended by the Disaster Mitigation Act of 2000, require local jurisdictions to adopt a mitigation
plan in order to be eligible for post -disaster and pre -disaster grants to implement certain
mitigation projects; and
WHEREAS, pursuant to Florida Administrative Code Section 9G-22, the County must
have a formal LMS Working Group and the LMS Working Group must review and update the
LMS every five years in order to maintain eligibility for mitigation grant programs; and
WHEREAS, the National Flood Insurance Reform Act of 1994 and the Flood Insurance
Reform Act of 2004 require local jurisdictions to adopt a mitigation plan in order to be eligible
for grants to implement certain flood mitigation projects; and
WHEREAS, the planning process required by the State of Florida and the Federal
Emergency Management Agency offers the opportunity to consider natural hazards and risks and
to identify mitigation actions to reduce future impacts of such hazards; and
WHEREAS, the State of Florida has provided federal mitigation funds to support the
development of the Local Mitigation Strategy; and
WHEREAS, the 2010 Monroe County LMS has been revised by the LMS Working
Group composed of representatives of Monroe County, the cities of Key West, Key Colony
Beach, Layton, Islamorada, and Marathon, and a number of nonprofit organizations have
reviewed and updated the LMS; and
WHEREAS, the 2010 LMS Final Draft Update identifies mitigation initiatives that will
improve the process used to identify and manage mitigation initiatives intended to minimize and
reduce safety threats and damage to private and public property; and
WHEREAS, the 2010 LMS Final Draft Update was made available to the public and a
public meeting was held on August 16, 2010, to solicit questions and comments and to present
the LMS; and
WHEREAS, the 2010 LMS Final Draft Update has been submitted to the Florida
Division of Emergency Management and FEMA for final review; final approval by FEMA will
be withheld until the LMS is adopted.
NOW, THEREFORE, BE IT RESOLVED BY THE BOARD OF COUNTY
COMMISSIONERS OF MONROE COUNTY, FLORIDA, that:
1. The 2010 LMS Final Draft Update is adopted as an official plan of Monroe County,
Florida, contingent upon approval by the State and FEMA.
2. The Monroe County Emergency Management Department is directed to report at the
earliest possible meeting to the Board of County Commissioners of Monroe County when
final State and FEMA comments are received, and whether such comments require
significant modification of the revised LMS.
3. The Monroe County Emergency Management Department is directed to provide, at any
meeting where staff reports that State or FEMA comments require changes to the
strategy, to the Board of County Commissioners such revisions as staff proposes be
incorporated to address those comments.
4. Any initiative identified in the LMS shall be subject to, and contingent upon, budget
approval, if required, which shall be at the discretion of the Board of County
Commissioners, and this resolution shall not be interpreted so as to mandate any such
appropriations.
5. The Monroe County Emergency Management Department is directed to coordinate with
appropriate County departments and to perform the annual report requirements set forth
in the Florida Administrative Code Chapter 9G-22.
The Clerk is directed to mail copies of this resolution to the Florida Division of Emergency
Management, the Federal Emergency Management Agency, and the mayors of municipalities
within Monroe County.
This Resolution shall become effective upon the date of its adoption herein.
PASSED AND ADOPTED by the Board of County Commissioners of Monroe County,
Florida, at a regular meeting of said board held on January 19, 2011.
Mayor Heather Carruthers
Mayor Pro Tern David Rice
Commissioner Kim Wigington
Commissioner George Neugent
Commissioner Sylvia Murphy
D 14'Y p KO AGE, CLERK
By:�
Deputy Clerk
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BOARD OF COUNTY COMMISSIONERS OF
MONROE COUNTY YLORIDA
By: *Ak—
M/y
MONROE COUNTY ATTORNEY
AP OV D AS T F M:
NTHIA L. HALL
ASSISTANT COUNTY ATTORNEY
Date_ I;z- /0- �410
December 1, 2010
Mr. David Halstead, Director
Division of Emergency Management
2555 Shumard Oak Boulevard
Tallahassee, Florida 32399-2100
Attention: Mr. Miles Anderson
U.S. Department of Homeland Security
FEMA Region IV
3003 Chamblee Tucker Road
.1"'NR1 Atlanta, GA 30341
F MA
Reference: Monroe County Local Hazard Mitigation Plan Update
Dear Mr. Halstead:
This is to confirm that we have completed aFederal/State review of the Monroe County Hazard
Mitigation Plan Update for compliance with the federal hazard mitigation planning standards contained in
44 CFR 201.6(b)-(d). Based on our review and comments, Monroe County developed and submitted all
the necessary information. We have determined that the Monroe County Hazard Mitigation Plan is
compliant with federal standards, subject to formal community adoption.
In order for our office to issue formal approval of the plan, Monroe County must submit adoption
documentation and document that the final public meeting occurred. Upon submittal of these items to our
office, we will issue formal approval of the Monroe County Hazard Mitigation Plan.
If you have any questions or need any further information, please do not hesitate to contact Gabriela
Vigo, of the Hazard Mitigation Assistance (HMA) Branch at (229) 225-4546 or Linda L. Byers, Planning
Lead Specialist, at (770) 220-5498.
Sincere ,
Robert E. owe, Chief
Risk Analysis Branch
Mitigation Division
Chapter 1: Introduction.........................................................................................1-i
1.1 Authority.....................................................................................................................1-1
1.2 Working Group Membership...................................................................................... 1-2
1.3 Acknowledgments......................................................................................................1-3
1.4 Key Terms.................................................................................................................. 1-3
1.5 Acronyms ....................................................................................................................1-4
1.6 References...................................................................................................................1-5
Chapter2: The Planning Area............................................................................2-1
2.1
Geography &Planning Area......................................................................................
2-1
2.2
Population...................................................................................................................
2-2
2.3
Land Use and Growth Trends.....................................................................................2-3
2.4
Number and Value of Buildings and Structures
......................................................... 2-5
2.5
Economic Characteristics...........................................................................................
2-6
2.6
Transportation.............................................................................................................2-7
2.7
Environmental &Historic Resources.........................................................................
2-8
2.7.1 Environmental Resources...............................................................................
2-8
2.7.2 Historic Resources.........................................................................................
2-9
2.8
Critical Facilities.........................................................................................................
2-9
2.9
2010 Updates............................................................................................................
2-12
Chapter 3: Mitigation Planning..........................................................................3-1
3.1 Introduction................................................................................................................. 3-1
3.2 The Mitigation Planning Process................................................................................ 3-1
3.3 Public Involvement in Mitigation Planning................................................................ 3-4
3.4 The 2010 Update: Hazard Identification and Risk Assessment ................................ 3-5
3.5 2010 Updates.............................................................................................................. 3-6
Chapter 4: Mitigation Goals................................................................................ 4-1
4.1 Introduction................................................................................................................. 4-1
4.2 LMS Mitigation Goals................................................................................................ 4-1
4.3 Florida's Mitigation Vision &Mission Statement..................................................... 4-2
4.4 FEMA's Mitigation Goals.......................................................................................... 4-3
4.5 2010 Updates.............................................................................................................. 4-3
Monroe LMS (2010 Update) i
Chapter 5: Hurricanes &Coastal Storms .................................................... s-i
5.1
Defining the Hazard....................................................................................................
5-2
5.1.1 Flood Insurance Rate Maps............................................................................
5-4
5.1.2 NFIP Flood Insurance Policies &Repetitive Loss Properties .......................
5-5
5.2
Hurricane Effects in Monroe County.........................................................................
5-6
5.3
Some Major Hurricanes..............................................................................................
5-8
5.4
Losses Due to Major Disasters.................................................................................
5-10
5.5
Impacts of Hurricanes...............................................................................................
5-12
5.5.1 Buildings......................................................................................................
5-13
5.5.2 Transportation Infrastructure.......................................................................
5-18
5.5.3 Communications..........................................................................................
5-19
5.5.4 Water Supply................................................................................................5-19
5.5.5 Electric Power..............................................................................................
5-21
5.5.6 Wastewater Facilities...................................................................................
5-22
5.5.7 The Economy...............................................................................................
5-23
5.5.8 Environmental Resources.............................................................................
5-24
5.5.9 Historic Resources.......................................................................................
5-26
5.6
2010 Updates............................................................................................................
5-27
Chapter 6: Other Hazards &Risks.................................................................. 6-1
6.1 Introduction................................................................................................................. 6-1
6.2 Strong Storms, including Tornadoes &Water Spouts ................................................ 6-2
6.3 Rainfall/Fresh Water Flooding................................................................................... 6-8
6.4 Drought....................................................................................................................... 6-9
6.4.1 Florida's Keetch-Byram Drought Index......................................................... 6-9
6.4.2 Drought in the Florida Keys......................................................................... 6-10
6.5 Wildland Fire............................................................................................................6-11
6.6 Coastal Erosion.........................................................................................................6-15
6.7 Overview of Monroe's Hazards &Risks..................................................................6-16
6.8 2010 Updates............................................................................................................ 6-18
Chapter 7: Monroe County.................................................................................. 7-1
7.1 County Government Structure.................................................................................... 7-1
7.1.1 Emergency Management Department........................................................... 7-3
7.1.2 Growth Management Division....................................................................... 7-4
Monroe LMS (2010 Update) ii
7.1.3
Public Works Division................................................................................... 7-6
7.1.4
Emergency Services Division........................................................................
7-6
7.1.5
Monroe County Health Department...............................................................
7-7
7.1.6
Monroe County Budget and Finance.............................................................
7-8
7.1.7
Monroe County School District.....................................................................
7-8
7.2 Regional Agencies & Organizations..........................................................................
7-9
7.2.1
South Florida Regional Planning Council ......................................................
7-9
7.2.2
South Florida Water Management District ..................................................
7-10
7.2.3
Florida Keys Aqueduct Authority................................................................
7-10
7.2.4
Electric Utilities...........................................................................................
7-11
7.2.5 Habitat for Humanity of Key West and Lower Florida Keys ...................... 7-11
7.3 Planning & Development Processes......................................................................... 7-11
7.3.1 Comprehensive Plan: Year 2010.................................................................. 7-11
7.3.2 Floodplain Management............................................................................... 7-14
7.4 Communicating about Hazards................................................................................. 7-17
7.5 Recent and Near -Term Mitigation Actions.............................................................. 7-18
7.6 2010 Updates............................................................................................................ 7-19
Chapter 8: City of Key West................................................................................ s-i
8.1 Overview of Key West............................................................................................... 8-1
8.2 City Organization and Agencies................................................................................. 8-3
8.3 Hazards and Risk in Key West................................................................................... 8-8
8.4 Damage Reduction Activities................................................................................... 8-16
8.5 2010 Updates............................................................................................................ 8-18
Chapter 9: City of Layton...................................................................................... 9-1
9.1 Overview of Layton.................................................................................................... 9-1
9.2 City Organization and Agencies................................................................................. 9-2
9.3 Hazards and Risk in Layton........................................................................................ 9-3
9.4 Damage Reduction Activities..................................................................................... 9-7
9.5 2010 Updates.............................................................................................................. 9-8
Chapter 10: City of Key Colony Beach ....................................................... 10-1
10.1 Overview of Key Colony Beach............................................................................... 10-1
10.2 City Organization and Agencies............................................................................... 10-2
Monroe LMS (2010 Update) iii
10.3 Hazards and Risk in Key Colony Beach...................................................................10-5
10.4 Damage Reduction Activities.................................................................................10-10
10.5 2010 Updates..........................................................................................................10-12
Chapter 11: Islarnorada Village of Islands ................................................ 11-1
11.1
Overview of Islamorada...........................................................................................
11-1
11.2
Village Organization and Agencies..........................................................................
l l-2
11.3
Hazards and Risk in Islamorada...............................................................................11-3
11.4
Damage Reduction Activities.................................................................................
11-10
11.5
2010 Updates..........................................................................................................11-11
Chapter 12: City of Marathon...........................................................................12-1
12.1 Overview of Marathon..............................................................................................12-1
12.2 City Organization and Agencies............................................................................... 12-3
12.3 Hazards and Risk in Marathon................................................................................. 12-6
12.4 Damage Reduction Activities................................................................................. 12-13
12.5 2010 Updates..........................................................................................................12-14
Chapter 13: Mitigation Initiatives...................................................................13-i
13.1
LMS Goals and Priority Hazards..............................................................................13-1
13.2
Range of Mitigation Initiatives.................................................................................13-2
13.3
Mitigation Initiatives................................................................................................13-3
13.4
Initiatives for Working Group as a Whole...............................................................13-4
13.4.1 Working Group Initiatives: 2010................................................................13-4
13.4.2 Status of Working Group Initiatives: 2005.................................................13-5
13.5
Community -Specific Initiatives................................................................................
13-7
13.5.1 Community -Specific Initiatives: 2010........................................................13-7
13.5.2 Status of Community Specific Initiatives: 2005.........................................
13-7
13.6
Site -Specific Initiatives.............................................................................................13-7
13.7
Prioritizing Mitigation Initiatives.............................................................................
13-8
13.8
Potential Funding for Selected Initiatives...............................................................13-11
13.9
LMS Actions to Support Grant Applications.........................................................
13-13
13.10 2010 Updates..........................................................................................................13-15
Chapter 14: Evaluation, Updates & Revisions ....................................... 14-1
14.1 Distribution............................................................................................................... 14-1
Monroe LMS (2010 Update) iv
14.2 Annual Evaluation &Updates (Monitoring) ............................................................ 14-1.........14-1
14.3 Five -Year Revision...................................................................................................14-2
14.4 Incorporating Mitigation Plan Requirements into Other
Local Planning Mechanisms..................................................................................... 14-3
14.5 2010 Updates............................................................................................................14-3
APPENDICES
Appendix A LMS Agendas & Minutes............................................................................. A-1
AppendixB Public Notices................................................................................................B-1
Appendix C Resolutions of Adoption................................................................................C-1
Appendix D NWS Hurricane Wilma in the Florida Keys ................................................. D-1
Appendix E Mitigation Initiatives, Forms and Tracking Spreadsheets .............................. E-1
TABLES
Table 2-1
Projected Permanent Population.................................................................... 2-2
Table 2-2
Special Needs Registry(2009).......................................................................
2-3
Table 2-3
Number and Value of Buildings and Structures (1998 and 2009) .................
2-5
Table 2-4
Notes on Selected Critical Facilities............................................................
2-10
Table 2-5
Notes on Selected Infrastructure..................................................................
2-11
Table 5-1
Presidential Disaster Declarations(1965-2009).............................................
5-1
Table 5-2
Saffir-Sampson Scale and Typical Damages .................................................
5-3
Table 5-3
Flood Insurance Rate Maps............................................................................
5-5
Table 5-4a
NFIP Repetitive Loss Properties....................................................................
5-5
Table 5-46
NFIP Repetitive Loss Properties (by structure type) .....................................
5-5
Table 5-5
Probably Storm Tide Ranges.........................................................................
5-6
Table 5-6
Some Major Hurricanes that Affected Monroe County .................................
5-8
Table 5-7
Some Past Disaster Recovery Costs.............................................................
5-11
Table 5-8
SHMP Summary: Impacts of Hurricanes in Monroe County .....................
5-12
Table 5-9
Monroe Housing Units Affected by Georges, Mitch & Wilma ...................
5-13
Table 5-10
1998 TAOS Damage Projections: Single -Family Homes ..........................
5-14
Table 5-11
1998 TAOS Damage Projections: Manufactured Homes ..........................
5-15
Table 5-12
1998 TAOS Damage Projections: Multi -Family (<10) .............................
5-15
Table 5-13
1998 TAOS Damage Projections: Other Residential .................................
5-16
Table 5-14
1998 TAOS Damage Projections: Commercial .........................................
5-16
Table 5-15
1998 TAOS Damage Projections: Institutional ..........................................
5-17
Table 5-16
1998 TAOS Damage Projections: Hotels ...................................................
5-17
Monroe LMS (2010 Update) v
Table 6-1
Enhanced Fujita Scale.................................................................................... 6-3
Table 6-2
Tornadoes: 1959 — 1995................................................................................ 6-6
Table 6-3
Tornadoes: 1998 — 2009................................................................................ 6-6
Table 6-4
Lightning Deaths/Injuries(1959-2009).......................................................... 6-7
Table 6-5
SHMP Summary: Riverine Flooding Impacts .............................................. 6-9
Table 6-6
Summary of Wildfire Risk Areas.................................................................
6-13
Table 6-7
Hazards: Relative Vulnerability..................................................................
6-18
Table 7-1
Monroe County's Functional Divisions......................................................... 7-2
Table 7-2
Permits Issued in 2007, 2008 and 2009......................................................... 7-5
Table 8-1
Selected Objectives and Policies (2008 Comprehensive Plan) ...................... 8-2
Table 8-2
Permits Issued in 2007, 2008 and 2009......................................................... 8-4
Table 8-3
FEMA Reimbursements for Hurricane Georges(DR#1249)....................... 8-10
Table 8-4
FEMA Reimbursements for Hurricane Wilma (DR# 1609) .........................
8-11
Table 8-5
SLOSH Maximum Predicted Water Depths ............................................... 8-11
Table 8-6
Locations Susceptible to Rainfall/Fresh Water Flooding ............................
8-12
Table 8-7
Tornadoes in Key West................................................................................ 8-15
Table 8-8
Important and Critical Facilities in Key West ..............................................
8-15
Table 8-9
Key West Mitigation Projects (1999-2010).................................................
8-17
Table 9-1
Layton: Permits Issued (2007, 2008, 2009).................................................. 9-3
Table 9-2
SLOSH Maximum Predicted Water Depths ..................................................
9-5
Table 9-3
Important and Critical Facilities in Layton ....................................................
9-7
Table 10-1
Key Colony Beach Permit Statistics for 2007, 2008, 2009..........................
10-3
Table 10-2
SLOSH Maximum Predicted Water Depths ................................................
10-7
Table 10-3
Important and Critical Facilities in Key Colony Beach .............................
10-10
Table 11-1
Islamorada: Permits Issued (2007, 2008, 2009)..........................................11-3
Table 11-2
SLOSH Maximum Predicted Water Depths ................................................
11-6
Table 11-3
Important and Critical Facilities in Islamorada............................................ 11-9
Table 12-1
Permits Issued &Inspections Conducted in 2008........................................ 12-4
Table 12-2
SLOSH Maximum Predicted Water Depths ................................................
12-8
Table 12-3 Critical and Important Facilities in Marathon ............................................ 12-11
Table 13 -1 Hazards: Relative Vulnerability.................................................................. 13 -1
Table 13 -2 Categories of Mitigation Initiatives............................................................. 13 -2
Table 13 -3 High Priority Mitigation Initiatives: Working Group ................................. 13 -4
Table 13-4 2005 High Priority Mitigation Initiatives: Working Group ........................ 13-5
Table 13 -5 Primary Potential Funding for Mitigation .................................................. 13 -11
Table 13 -6 LMS Actions to Support Grant Applications ............................................. 13 -14
Monroe LMS (2010 Update) vi
FIGURES
Figure2-1
Location Map.............................................................................................. 2-1
Figure 2-2
Average and Medial Sale Prices of Single Family Homes ......................... 2-6
Figures 2-3a-f
Locations of Critical &Important Facilities .................................. 2-13
— 2-18
Figure 5-1
Surge Zones for Monroe County................................................................. 5-7
Figure 5-2
Historical Hurricane and Tropical Storm Tracks ........................................ 5-8
Figure 6-1
Monroe County Wind Speed Lines............................................................. 6-3
Figure 6-2
Frequency of Tornadoes: 1950-2002......................................................... 6-5
Figure 6-3
Example of the KBDI................................................................................ 6-10
Figure 6-4
Lower Florida Keys Fire Behavior Potential ............................................
6-14
Figure 6-5
Critical and Non -Critical Beach Erosion .................................................. 6-16
Figure 7-la j
Repetitive Loss Properties (Monroe County) ................................ 7-20
— 7-24
Figure 8-1
Repetitive Loss Properties (Key West) ..................................................... 8-14
Figure 8-2
Key West's Critical Facilities Map........................................................... 8-19
Figure 10-1
Repetitive Loss Properties (MM48-MM53)............................................. 10-9
Figure 11-1
Repetitive Loss Properties (MM72-MM79)...........................................
11-12
Figure 11-2
Repetitive Loss Properties(MM79-MM86.............................................
11-12
Figure 12-1 a-b
Repetitive Loss Properties (MM48-MM61) .............................. 12-15 —
12-16
Monroe LMS (2010 Update) vii
Monroe LMS (2010 Update) viii
Chapter 1. Introduction
Monroe County, Florida, and its incorporated municipalities of the Village of Islamorada,
City of Layton, City of Key Colony Beach, City of Marathon, and the City of Key West,
undertook development of this 2010 Update of the Local Mitigation Strategy (LMS) because
of its awareness that natural and man-made hazards, especially hurricane and flooding
hazards, may affect many people and property. The 2010 Update replaces the 2005 Update
of the 1999 LMS. The LMS is a requirement associated with receipt of certain federal
mitigation grant program funds administered by the Florida Department of Community
Affairs and the Federal Emergency Management Agency (FEMA).
1.1 Authority
The Board of County Commissioners directed the Monroe County Emergency Management
Department (Monroe EMD) to coordinate with other appropriate departments and agencies,
and the cities of Key West, Marathon, Key Colony Beach, Layton, and Islamorada, to
facilitate the development of the LMS, and subsequent 5-year updates, in conformance with
state and federal guidelines.
The 2010 LMS Update was prepared to comply with the Florida Department of Community
Affairs' requirements (Florida Administrative Code Chapter 9G-22) and the provisions of
the federal Hazard Mitigation and Pre -Disaster Mitigation Programs (44 CFR Parts 201 and
206), and the Flood Mitigation Assistance Program (44 CFR 78.6). Communities and the
non-profit organizations located in them must participate in a mitigation planning process
that results in an adopted strategy that is approved by FEMA in order to qualify for certain
federal mitigation funds.
Florida Administrative Code Chapter 9G-22 sets forth the composition and responsibilities
of LMS Working Groups. In particular, Working Groups are to develop and revise the
LMS, set the order of priority of projects submitted for funding, and submit an annual
report. The minimum contents of the LMS are specified and include a number of provisions
that are not explicitly set forth in federal requirements.
1.2 Working Group Membership
The LMS Working Group was established in 1998 pursuant to authorization by the Monroe
County Board of County Commissioners (BOCC). It has met periodically since then,
convening on November 12, 2009 for the specific purpose of initiating the 2010 Update of
the Local Mitigation Strategy (LMS).
The Working Group includes representatives from the Monroe County and all incorporated
municipalities in the county. Prior to the 1999 LMS, Working Group Agreements were
Monroe LMS (2010 Update) 1-1
established between Monroe County and the municipalities. The City of Marathon joined
upon its incorporation in late 1999. All jurisdictions have continued participation in the
quarterly LMS Working Group meetings and the process to update the LMS every five
years.
Representatives from following are designated members of the Working Group who were
notified of each meeting, invited to participate in all meetings (see meeting minutes in
Appendix A) and to provide comments on various drafts, and invited to review and
comment on the 2010 Update before it was finalized for adoption:
• Monroe County, Emergency Management (Chair)
• Monroe County, Growth Management
• Monroe County Engineering
• Monroe County, Health Department
• Monroe County School District
• Monroe County, Grants Coordinator
• Monroe County Extension Service
• City of Layton, City Administrator (Vice -Chair)
• Village of Islamorada, Principal Planner
• City of Key Colony Beach, Building Official
• City of Key West, KWFD Training Chief / Emergency Management
Coordinator
• City of Marathon, Marathon Fire Department / Emergency Management
Coordinator
• Monroe County, Historic Florida Keys Foundation
• Habitat for Humanity of Key West and Lower Florida Keys
• Keys Energy Systems
• Florida Keys Electric Cooperative
• Florida Keys Aqueduct Authority
The following were notified and invited to review and comment throughout the 2010 Update
process:
• Florida Division of Emergency Management (DEM)
• Florida Keys Community College
• The Salvation Army
• Monroe County Association for Retarded Citizen's
• American Red Cross
• St. Justin The Martyr Catholic Church, Key Largo
Monroe LMS (2010 Update) 1-2
• The Island Christian School, Islamorada
• Big Pine Moose Lodge, Big Pine Key
• St. Mary Star of the Sea School, Key West
• Monroe County Mosquito Board
• Florida Keys Outreach Coalition
• The South Florida Regional Conservation and Development Council
(SFRC&D)
• Office of Congressional Representative Ileana Ros-Lehtinen, 18th District
• Office of State Representative Ron Saunders, District # 120
1.3 Acknowledgments
The 2010 LMS Update was supported by a planning grant administered by the Department
of Homeland Security through the Florida Division of Emergency Management.
The 2010 LMS Update (and the 2005 revision) was prepared with the support of RCQuinn
Consulting, Inc., Charlottesville, VA. RCQuinn Consulting, a mitigation planning
consultant, helped to guide the Working Group through the update process, helped to
research and update each chapter, documented decisions of the group, and collected
comments, data, and incorporated the material into the LMS Update. The 1999 LMS was
prepared with the support of Janice Drewing Consulting, Inc. of Plantation Key, Florida.
1.4 Key Terms
For the most part, terms used in the Plan have the meanings that are commonly associated
with them:
• Disaster means the occurrence of widespread or severe damage, injury, loss of
life or property, or such severe economic or social disruption that
supplemental disaster relief assistance is necessary for the affected political
jurisdiction(s) to recover and to alleviate the damage, loss, hardship, or
suffering caused thereby.
• Floodplain: See "Flood Hazard Area."
• Hazard is defined as the natural or technological phenomenon, event, or
physical condition that has the potential to cause property damage,
infrastructure damage, other physical losses, and injuries and fatalities.
• Mitigation is defined as actions taken to reduce or eliminate the long-term risk
to life and property from hazards. Mitigation actions are intended to reduce
the need for emergency response — as opposed to improving the ability to
respond.
• National Flood Insurance Program (NFIP), located within the U.S.
Department of Homeland Security, Federal Emergency Management Agency
Monroe LMS (2010 Update) 1-3
(FEMA), is charged with preparing Flood Insurance Rate Maps, developing
regulations to guide development, and providing insurance for flood damage.
• Risk is defined as the potential losses associated with a hazard. Ideally, risk is
defined in terms of expected probability and frequency of the hazard
occurring, people and property exposed, and potential consequences.
• Flood Hazard Area or Floodplain is the area adjoining a river, stream,
shoreline, or other body of water that is subject to partial or complete
inundation. The area predicted to flood during the 1 % annual chance flood is
commonly called the "I 00-year" flood.
1.5 Acronyms
The following acronyms are used in the document:
• CRS —Community Rating System (NFIP)
• DEM —Florida Division of Emergency Management
• FEMA — U.S. Department of Homeland Security, Federal Emergency
Management Agency (FEMA)
• FIRM —Flood Insurance Rate Map
• FMA —Flood Mitigation Assistance (FEMA)
• GIS —Geographic Information System
• HMGP —Hazard Mitigation Grant Program (FEMA)
• LMS —Local
Mitigation Strategy
• NFIP
—National Flood Insurance Program (FEMA)
• PDM —Pre-Disaster
Mitigation grant program
• ROGO —Rate of Growth Ordinance
• SRL —Severe
Repetitive Loss grant program (FEMA)
• TAOS
—The Arbiter of Storms
1.6 References
American Society of Civil Engineers. 2005. Minimum Design Loads for Buildings and
Other Structures (SEI/ASCE 7-05). Reston, VA.
Federal Emergency Management Agency. Various Panel Dates. Flood Insurance Study and
Flood Insurance Rate Maps for Monroe County, Key West, Key Colony Beach, Layton,
Islamorada, and Marathon, Washington, DC. [Available for public review at planning
and/or permit offices of each jurisdiction.]
Florida Division of Emergency Management. Florida's 2010 Severe Weather Awareness
Guide: Are You Ready? Online at http://www.floridadisaster.org/DEMpublic.asp.
Monroe LMS (2010 Update) 1-4
Florida Sea Grant Program, University of Florida. July 1994. The Effect of Hurricane
Andrew on Monroe County Businesses: Negative Economic Effects and Assistance Sought.
Kasper, Kennard. "Hurricane Wilma in the Florida Keys." National Oceanic and
Atmospheric Administration (NOAA)/National Weather Service (NWS) Weather Forecast
Key West, Florida. 2010 Conformed Version of the Key West Comprehensive Plan.
Office (WFO) Key West, Florida (undated;
(http://www.srh.noaa.gov/media/l,-,ey/Research/wilma.Tdf).
Monroe County, Florida. Year 2010 Comprehensive Plan: Policy Document.
Monroe County, Florida. Year 2010 Comprehensive Plan: Technical Document.
Monroe County, Florida. Comprehensive Emergency Management Plan (2007).
Monroe County Cooperative Extension Service. August 1994. The Effect of Hurricane
Andrew on Monroe County's Natural Resources and Its Dependent Industries.
Monroe LMS (2010 Update) 1-5
Monroe LMS (2010 Update) 1-6
Chapter 2. The Planning Area
The planning area includes Monroe County and the incorporated municipalities of the
Village of Islamorada, City of Layton, City of Key Colony Beach, the City of Marathon, and
the City of Key West. The Monroe County Year 2010 Comprehensive Plan contains
extensive narrative to describe the County and its policies. The following brief summaries
are, in large part, taken from that document.
2.1 Geography and Planning Area
Monroe County is located at the southernmost tip of the State of Florida. The Florida Keys
are situated in a precarious physical location between the Gulf of Mexico and the Atlantic
Ocean. The Keys consist of an archipelago that sweeps for almost 150 miles in a
southwesterly direction from southeastern Miami -Dade County. The mainland portion of
the County is bordered by Collier County to the north and Miami -Dade County to the east
(See Figure 2-1).
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Monroe LMS (2010 Update) 2-1
The total area of Monroe County is approximately 1.2 million acres (about 1,875 square
miles). Large portions are submerged lands associated with parks and preserves that are
under the jurisdiction of the federal and state governments. The total land area is
approximately 885 square miles, of which about 102 square miles are in the Keys (including
unincorporated and incorporated municipalities). The entire mainland portion is within the
Everglades National Park or the Big Cypress National Preserve and is virtually uninhabited.
The County's Year 2010 Comprehensive Plan focuses primarily on the Florida Keys —
which is the same planning area for the Local Mitigation Strategy. The Florida Keys are
typically long, narrow, and low-lying islands. The average elevations of the various larger
islands range from four to seven feet above mean sea level. Only one small area in the City
of Key West referred to as Solares Hill rises to 16 feet above mean sea level. Other
relatively high areas are several coral ridges in Key Largo are near Mile -Marker 106.
2.2 Population
The 2007 estimated projected population of Monroe County and the incorporated
municipalities is just over 73,000 (see Table 2-1). The permanent resident population has
decreased by approximately 6,300 persons, or 0.8%, from 2000 to 2007. The area's
population varies considerably due to seasonal residents; at peak season, the seasonal
population is estimated at nearly 74,000. All told, the Florida Keys receives approximately
3 million visitors per year.
Table 2-1. Projected Permanent
Population*
Permanent
Resident
Monroe County (unincorp)
33,540
Islamadora
6,386
Layton
193
Key Colony Beach
772
Key West
22,682
Marathon
9,650
Total
73,223
*The projected permanent population is based on
the U.S. Census Bureau 2007 population
estimates
Approximately 15% of the total population is over the age of 65. As of 2008, the Special
Needs Registry includes 404 people enrolled in the Special Needs Hurricane Evacuation
Program due to age, medical condition, or other factors that require assistance from the
County to evacuate during an emergency (Table 2-2). The County has a small non-English
speaking population spread throughout the Keys and a small transient worker population.
Monroe LMS (2010 Update) 2-2
Table 2-2. Special Needs Registry (2009)
Mile Marker
Registered Special Needs
0-12
204
13-40
43
41-72
51
73-92
36
93-113
70
Total
404
2.3 Land Use & Growth Trends
Growth trends in Monroe County are regulated through the number of residential permits
issued. The majority of the new residential permits issued are for permanent residential use,
although some permanent dwellings are used by seasonal residents.
The number of dwelling units (permanent and seasonal) which can be permitted in Monroe
County and incorporated municipalities has been controlled by the Rate of Growth
Ordinance adopted by Monroe County in 1992 to implement portions of its Comprehensive
Plan. Called "ROGO," this approach was developed as a response to the inability of the
road network to accommodate a large-scale hurricane evacuation in a timely fashion. A
series of complex models developed during the area's first evacuation study identified an
approximate number of additional dwelling units which could be permitted and which would
not have a detrimental effect on the time needed to evacuate the Keys. The number of
allocations for each area was based upon the supply of vacant buildable lots. The ROGO
system was developed as a tool to equitably distribute the remaining number of permits
available both geographically and over time. As of early 2010, the ROGO process is under
review.
The ROGO system distributes a pre -determined number of allocations for new residential
permits on a yearly basis from July 14 of one year to July 13th of the following year. Each
service area of unincorporated Monroe County and several of the incorporated areas receive
allocations. The Ocean Reef area of north Key Largo is exempted from the ROGO system
due to its proximity to Card Sound Road, an alternate evacuation route.
In unincorporated Monroe County, the ROGO system allowed 255 allocations for new
residential units for each of the first six years. The number of allocations available was
reduced by 20% (from 255 to 204) by the State of Florida Administration Commission
during Year 7, based upon a lack of progress on the implementation of the Year 2010
Comprehensive Plan.
Monroe LMS (2010 Update) 2-3
The County' s annual allocation was further reduced to 158 by the incorporation of
Islamorada and Marathon, which receive 28 and 24 allocations per year, respectively.
The County, in an effort to further address concerns of carrying capacity, implemented
Monroe County 2010 Comprehensive Plan Goal 105 by adopting the Tier System. This
system qualified land into three primary categories of development potential. Tier 1 a
conservation tier, Tier 3 an infill/continued development tier and Tier 3a, a small subset of
Tier 3 to protect isolated tropical hardwood hammock patches. The adoption of this
classification altered the ROGO competition to guard against continued fragmentation of
critical threatened and endangered species habitat. The Tier System also increased the total
number of annual allocations to 197.
The current allocation of 197 is divided into 126 "market rate" and 71 "affordable" units and
are distributed in unincorporated Monroe County as follows:
• 61 market rate units in the Upper Keys service area,
• 57 market rate units in the Lower Keys service area,
• 8 market rate units in the Big Pine and No Name Keys service area,
• 36 affordable units for Very Low, Low, and Median Incomes*, and
• 35 affordable units for Moderate Income*
• *Includes one each for Big Pine Key and No Name Key.
Nonresidential permitting also plays a role in land use and growth trends. Nonresidential
permits include everything that is not residential, including industrial, commercial, non-
profit and public buildings, and replacement or remodeling of existing nonresidential
structures. Also included are vested and ROGO-exempt hotels, motels, campgrounds,
marinas and other commercial facilities.
With very little industrial and agricultural activity in the Keys, the predominant form of
nonresidential development is commercial. There are two primary types of commercial
development: retail trade and services (which includes tourism -related development such as
marinas and restaurants). Therefore, the impact of nonresidential development on public
facilities varies significantly based on the type of commercial use.
Nonresidential and residential developments tend to fuel one another. Residential
populations provide markets for nonresidential activities. Nonresidential development, in
turn, helps to drive permanent and seasonal population growth by providing services and
employment. Certain types of nonresidential development also concentrate the demand for
public facilities within certain locations and during peak seasons.
Monroe LMS (2010 Update) 2-4
Since residential development is constrained through the Rate of Growth Ordinance and the
Permit Allocation System, it was thought that nonresidential (commercial) development
should also be constrained in the interest of maintaining a balance of land uses.
At the time the Comprehensive Plan was prepared in 1991, 17.6% of the land was under
residential use, while 4.6% was used for commercial development). It was determined that
this balance was appropriate at the time. To assure that balance was maintained, the
Comprehensive Plan proposed Policy 101.3.1. In effect, the square footage of new
commercial development that may be permitted is limited to 239 square feet for each new
residential permit issued. This equates to around 37,762 square feet of new commercial
development per year throughout unincorporated Monroe County.
2.4 Number and Value of Buildings and
Structures
The data for two years shown in Table 2-3 are from two sources, which makes any
comparison questionable. However, in the ten years between 1998 and the end of 2008, it
appears there was a 41 % increase in the total number of structures. The increase is primarily
attributed to erroneous data used to produce the 1998 TAOS assessment, and not an actual
increase in the total number of buildings. Similarly, it appears the value of all structures
more than tripled, also attributable to the data used in 1998 — also likely to be erroneous.
Table 2-3. Number and Value of Buildings and Structures
(1998* and 2009 * *).
Occupancy
# in 1998
# on
1/1/2009
$ in 1998
# on
1/1/2009
Single -Family Homes
16,618
26,149
$3.01 B
$14.86 B
Manufactured Homes
5,881
5,619
$308 M
$1.09 B
Multi -Family (<10)
1,312
21475
$250 M
$1.29 B
Other Residential
7,652
7,501
$2.3 B
$3.11 B
Commercial
11431
41227
$409 M
$2.74 B
Institutional
155
504
$80 M
$565 M
Hotels
215
452
$614 M
$1.03 B
TOTALS
33,264
46,927
$6,971 B
$24,685 B
* From a 1998 analysis prepared by the Florida Department of Community Affairs
** From the Monroe County Property Appraiser (2009)
Monroe LMS (2010 Update) 2-5
Figure 2-2 shows how the average and median sale prices of single family homes have
changed between 1965 and 2009. When the 1999 LMS was prepared, the average property
value was $120,000; as of mid-2005 when the 2005 LMS was prepared, the average value
had climbed to $281,000. In 2009, the average property value was $570,500. Similar
variations have been experienced in the values of other types of properties.
Figure 2-2. Average and Medial Sale Prices of Single Family Homes in Monroe County
(Monroe County Property Appraiser, 2009)
2.5 Economic Characteristics
Monroe County's economy is unique in a number of respects due to its location and
geography. The area attracts both seasonal residents and short-term visitors, drawn by the
amenable climate and recreational opportunities. The economy is dominated by tourism and
the commercial fishing industry. The following text is based on the 2010 Comprehensive
Plan.
The service sector, dominated by hospitality (food and lodging), is the largest segment of the
private sector, followed by retail trade. These industries account for nearly 52% of total
employment, and 67% of private sector employment.
Monroe LMS (2010 Update) 2-6
Commercial fishing represents 7% of total employment and 9% of private sector
employment. A combination of economic and natural resources factors have lead to a
decline in the number of commercial fishing vessels and a long-term downward trend in the
total poundage of the harvest.
Two other private sector categories together account for about 15% of total employment:
construction and finance/insurance/real estate.
Public sector employment accounts for just over 20% of total employment. This category
includes the federal government (and military), State and local government agencies, and
utilities.
Because the tax base in Monroe County is supplemented by tourism, declines in the number
of visitors after major hurricanes lead to reduced revenue associated with the Bed Tax, Sales
Tax, and Infrastructure Tax. Historically, damaging storms result in significant loss of
revenues.
2.6 Transportation
The transportation network in the Florida Keys is unique in that a single road forms its
backbone and the sole link to the Florida mainland. U.S. Route I. referred to as the
Overseas Highway, runs for 126 miles from Florida City in Dade County to Key West in
Monroe County. Maintained by the Florida Department of Transportation, for most of its
length U.S. 1 is a two-lane highway with 42 bridges (combined total length of 19 miles of
bridge structure).
U.S. 1 is a lifeline for the Keys, functioning as both highway and "Main Street." Each day it
brings food, materials, and tourists from the mainland, driving the local economy.
Approximately 450 miles of roads, including 37 bridges, are maintained by the County.
Card Sound Road, operated as a toll road, is an alternate to U.S. 1 in some locations.
Mainland Monroe County consists primarily of government -owned parks and preserves, and
consequently has few roads. The only County -maintained road is Loop Road, a 16-mile
excursion off of U.S. 41 crossing the Dade and Collier County lines.
The cities of Key West, Marathon, Key Colony Beach, Layton, and Islamorada are
responsible for the streets within their boundaries.
Air transportation is a viable alternative to highway travel. Monroe County's by two
airports: Key West Airport and Marathon Airport, serve major commercial airlines. Four
privately -owned community airports are also located in the Keys.
Monroe LMS (2010 Update) 2-7
2.7 Environmental & Historic Resources
2.7.1 Environmental Resources
The Florida Keys contains many valuable environmental resources. It has unique habitats,
with many rare and/or endangered plant and animal species. Because of these special
environmental considerations, in 1980, through legislative act, the State of Florida
designated the Keys portion of unincorporated Monroe County and the incorporated
municipalities as "Areas of Critical State Concern." The purpose of the program is to
protect the unique environment, vegetation, and natural resources of the designated area by
regulating land development and other activities regarded as detrimental to the environment.
In conjunction with the designation, the legislature enacted the "Principles for Guiding
Development," which are set forth in Chapter 380.0552(7). The law provides for State
oversight of development and changes to land use regulations, a function carried out by the
Department of Community Affairs. The Department established Field Offices in Monroe
County to assist in review of development permits and related issues for compliance with
the "Principles."
The Florida Department of Environmental Protection's Office in Marathon submitted the
following list of specific environmentally sensitive areas referred to as "Special
Management Areas" (state and federal) :
• Florida Keys Marine Sanctuary (comprehensive designation)
• Bahia Honda State Park
• Fort Zachary Taylor State Historic Site
• Indian Key State Historic Site
• John Pennelcamp Coral Reef State Park
• Lignum Vitae Key State Botanical Site
• Long Key State Park
• Windley Key Fossil Reef State Geological Site
• Curry Hammocks State Park
• San Pedro Underwater Archaeological Preserve
• Key Deer National Wildlife Refuge
• Great White Heron National Wildlife Refuge
• Looe Key National Marine Sanctuary
• Key Largo National Marine Sanctuary
• Everglades National Park (primarily mainland Monroe)
Monroe LMS (2010 Update) 2-8
2.7.2 Historic Resources
A significant percentage of tourism in the Keys is associated with its unique archeological,
historical, and cultural heritage and many landmarks. Many sites are listed on the National
Register of Historic Places and designated for protection (available at
http://www.cr.nps.,gov/places.htm). Many identified historic resources could experience
irreversible damage from hurricanes. The Historic Florida Keys Foundation, Inc. has
agreement with County to provide professional staffing for historic preservation. The
County has about 330 locally -designated sites identified under Article 8 of the Monroe
County Code as Archaeological, Historical, and/or Cultural Landmarks (available on the
County's webpage). Key West's Historic Architect Review Commission has locally -
designated about 2,300 sites (available on the City's webpage).
Despite recent hurricanes, historic resources have, for the most part, escaped significant
damage. A number of significant properties have been mitigated:
• The Old Monroe County Courthouse, a state-owned building, has
suffered wind damage in the past; it was retrofit with window protection
using FEMA's Hazard Mitigation Grant Program funds.
• Retrofit the steeple of the Old Key West City Hall with motorized
hurricane shutters was funded by FEMA.
2.8 Critical Facilities
The Monroe County Comprehensive Emergency Management Plan includes content related
to essential services, critical facilities, and important infrastructure. The LMS Work Group
determined that the following distinctions are appropriate for "critical facilities," where that
term includes buildings and facilities that are identified by the public entities, utilities, and
non-profit organizations that own them:
• Critical Facilities are buildings and infrastructure that are vital to the
operations and continuity of government operations necessary to perform
essential security missions and services to ensure the general public
health and safety in order to make daily living and working possible.
Critical facilities generally should be functional within 24 to 72 hours
after a declared disaster depending on the severity of the event.
• Primary/Important Facilities are those that should be functional within
seven days after a declared disaster.
• Secondary/Standard Facilities are those that need not be fully
functional until six months after a declared disaster.
Monroe County Emergency Management Department maintains a secured database of
public and critical facilities and certain private non-profit facilities. Figures 2-3a through 2-
Monroe LMS (2010 Update) 2-9
3f (end of chapter) show locations of the critical facilities identified by each jurisdiction that
can be plotted (figures prepared mid-2005; no significant changes as of 2010). Table 2-4
contains notes on selected critical facilities and Table 2-5 contains notes on selected
infrastructure. Chapters 8 through 12, the chapters for the municipalities, also include lists
of selected facilities identified by the municipalities.
Table 2-4. Notes on Selected Critical Facilities
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Florida Keys Health Systems (Depoo Hospital and Lower Florida Keys Health Center)
Marathon (Middle Keys) — Fishermen's Hospital
• Tavernier (Upper Keys) — Mariner's Hospital
• All hospitals must evacuate Monroe County in a storm of Category 3 or greater.
Nursing Home
Bayshore Manor, Key West (Monroe County owned and operated) must evacuate
Monroe County when a storm of Category 3 or greater is predicated
Public Schools/Hurricane Shelters
Only selected schools have been identified as suitable shelters for use in tropical storms,
Category 1-2 hurricanes, and other emergency purposes. In most cases, for hurricanes
of Category 3 and higher all persons must evacuate Monroe County and shelters will not
be used:
i
• Key West High School, 2100 Flagler Ave., KW
• Sugarloaf Elementary School, Mile -Marker 19, Sugarloaf Key
s
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• Stanley Switlik Elementary School, Mile -Marker 48.5, Marathon
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• Coral Shores High School, Mile -Marker 90 Plantation Key
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• Key Largo School Cafetorium, Mile -Marker 105, Key Largo
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Other facilities that may be used as hurricane shelters:
• Saint Justin Martyr Catholic Church, Key Largo
• Poinciana Elementary School, 1212 14t" St, KW (open in 2008)
• Marathon High School
Other facilities critical/important for recovery:
L
Habitat for Humanity of Key West and Lower Florida Keys, 30320 Overseas Highway
s
(storage for water, temporary roof coverings and supplies, client intake for emergency home
}'
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repair needs and staging area for volunteer coordination)
• Monroe County Medical Examiner's Office (added 2009)
Monroe LMS (2010 Update) 2-10
Table 2-5. Notes on Selected Infrastructure
Bridges
• 42 bridges connect primary roadway US 1.
• Bascule -type drawbridge on Snake Creek Bridge at Mile -Marker 86, open periodically for marine
traffic; drawbridge operations and possible breakdowns can interrupt traffic flow.
• "Lifelines" (Linear components of critical infrastructure)
Water Lines
• Primary supply pipeline on mainland in Florida City (managed by Florida Keys Aqueduct Authority)
• Some distribution pipeline connected to roads and bridges.
• Contingency and redundancy:
• Primary pipeline serving Upper Keys is subaqueous and does not depend on roads and bridges.
• Reverse Osmosis Plant located in Marathon to serve Middle Keys.
• Reverse Osmosis Plant located in Stock Island (Key West) to serve Lower Keys.
• Reverse Osmosis Plan located in Florida City (Upper Keys)
Power Lines
• Electric Power supplied by Florida Keys Electric Cooperative (FKEC) Upper Keys to Marathon
• Electric Power supplied by Keys Energy Service (KES) Marathon to Key West.
• Majority of electric lines above ground.
• No power poles located on bridges.
• To prevent loss if bridges are damaged, transmission line power poles are pile -driven into the
water along roads and bridges.
• Subsequent to Hurricane Andrew poles re -designed to withstand serious storm conditions were
installed in certain areas such as along the 18-mile stretch. Old equipment is being replaced with
newer, more resilient materials.
Telephone Service
• To provide redundancy, two major trunk fibers are provided from Homestead on the mainland to
Key West. One is buried and the other is aerial.
• Most cable lines located along underside of fixed bridges, therefore vulnerable if bridges fail.
• Digging not feasible because of rock substructure.
• Environmental considerations inhibit underwater installations.
Monroe LMS (2010 Update) 2-11
2.9 2010 Updates
The LMS Working Group reviewed and updated the pertinent sections. Some of the more
significant changes include:
• Section 2.2: Updated population Special Needs Registry data.
• Section 2.3: Noted the ROGO system is being revised.
• Section 2.4: Moved content on the number and value of structures from
another section and updated the data.
• Section 2.7: Noted that the Monroe County Emergency Management
Department maintains a secure list of critical facilities and updated the
table of critical facilities.
• Section 2.8: Updated the list of schools and facilities that are secondary
shelters.
Monroe LMS (2010 Update) 2-12
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Chapter 3. Mitigation Planning
3.1 Introduction
An important step in the lengthy process of improving resistance to natural hazards is the
development of a Local Mitigation Strategy. The Monroe County LMS was prepared in
accordance with the guidelines provided by the Federal Emergency Management Agency
and the Florida Division of Emergency Management, and steps outlined in guidance
documents for the National Flood Insurance Program's (NFIP) Community Rating System.
The LMS serves several purposes. It sets the stage for long-term resistance to natural
hazards through identification of actions that will, over time, reduce the exposure of people
and property. Further, the LMS is required to be eligible for certain state and federal
mitigation grant funds.
Chapter 5 (Hurricanes & Coastal Storms) and Chapter 6 (Other Hazards & Risks) provide
overviews of hazards that threaten the County, estimates of the people and property exposed
to hazards, the planning process, how hazards are recognized in the local government
processes and functions, and priority mitigation action items. The hazard summary and
disaster history help to characterize future hazards. When the magnitude of past events, the
number of people and properties affected, and the severity of damage, hurricanes and coastal
storm flooding hazards clearly are the most significant natural hazard to threaten Monroe
County.
The LMS Working Group acknowledges that many buildings were built before the adoption
of regulations for development in floodplains in the County and the incorporated
municipalities. Current regulations require new development to be designed and built to
resist anticipated wind and flood hazards. Older buildings, then, may reasonably be
expected to sustain more property damage than new buildings.
3.2 The Mitigation Planning Process
The LMS Working Group followed a well -established planning process to revise the LMS.
A mitigation planning consultant was retained to guide the Working Group through the
update process, to help research and update each chapter, to document decisions of the
group, and to collect comments and incorporate them into the LMS Update. Several
meetings were held during which the 2010 LMS Update was discussed (see Appendix A for
meeting agendas and minutes):
• August 20, 2009. Review the LMS update process and State and federal
requirements that require the Working Group to update the LMS every five
years. The Working Group must examine each section, and a summary of the
Monroe LMS (2010 Update) 3-1
update process must be included. The entire updated plan must be adopted by
every jurisdiction, not just a summary of the updates. Monroe EMD will
publicize the Working Group meetings through the County's normal channels.
An announcement was provided to the city members for their use, if they want
to announce the update process at city council meetings. It was reported that a
representative of the Key West National Weather Service office offered to
review and comment on Chapter 5 (Hurricanes &Coastal Storms), Chapter 6
(Other Hazards & Risks).
November 12, 2009. Notice of this meeting was published in the
November 7 edition of the Keynoter (Appendix B) and distributed to the
LMS listserve of interested parties. The importance of Working Group
participation and contribution was stressed. Each local government
member will be responsible for ensuring that their chapters are reviewed.
Following up on DEM recommendations, the approval process was
reviewed (especially the importance of holding until after the public
meeting and comment period, the Working Group's approval and
recommendation for formal adoption by the councils/commissions. DEM
has also emphasized the requirement to identify at least one action that
addresses each "high" priority risk. The NWS and consultant have
prepared revisions to Chapter 5 (Hurricanes & Coastal Storms) and Chapter
6 (Other Hazards & Risks), which will be distributed to the Working
Group. Those chapters were reviewed; coastal erosion was discussed (it
appears the information available from the State Hazard Mitigation Plan is
only for state-owned shorelines). Every local government member must
review and comment, especially to incorporate the impacts of Hurricane
Wilma (2005). The Working Group discussed the fact that the hurricane
"risk assessment" information is based on the 1998 TAOS damage
projections and concluded that those estimates remain acceptable for the
purpose of indentifying and prioritizing mitigation actions. Similarly, the
Working Group agreed that the remaining hazard identification and risk
assessment content continues to characterize the hazard and risks and are
acceptable for the purposes of relative ranking. It was also noted that the
results of the update of the hurricane storm surge modeling (SLOSH) are
expected some time in 2010. Prior to initiation of the 2015 Update, the
Working Group will reevaluate whether it is appropriate to revise the risk
assessment using FEMA's GIS-based tools.
April 26, 2010. Media partners were asked to publish notice of this meeting
(Appendix B) and it was posted on the County's and webpage and
distributed to the LMS listserve of interested parties. The primary purposes
of this meeting were to review revisions to the forms used to place
initiatives on the initiatives list, to update the status of actions listed in the
2005 LMS Update, and to discuss mitigation actions for the Working
Group as a whole. Each member was instructed to review the initiatives
list and submit updates, especially to identify which hazards and which
element(s) of the mitigation goal each initiative is intended to address.
Monroe LMS (2010 Update) 3-2
July 26, 2010. The Working Group was convened by conference call to
concur with making the Public Review Draft available for public review, to
schedule a public meeting, and to submit the document to the Florida
Division of Emergency Management for review. Prior to the call, the draft
document was distributed so that all members could review all changes
(still shown in <track changes>).
August 16, 2010. The public meeting was held on August 16, 2010. Notice
of this meeting was published in the Wednesday, July 8, 2010 edition of the
Keynoter (Appendix B) and distributed to the LMS listserve of interested
parties. One public comment was received regarding the separate fire and
EMS district in Key Largo (this comment did not prompt a change in the
LMS).
October 6, 2010. The Working Group was convened by conference call to
review public comments and comments received from DEM; and to approve
2010 LMS Update and forward it to FEMA for review. Each local jurisdiction
indicated it would initiate the process for formal adoption.
The overall mitigation planning process, summarized below, was facilitated by a mitigation
planning consultant:
• Get Organized. The Monroe County LMS Working Group was charged with
coordinating a committee comprised of its members to review and update the
LMS.
• Coordinate. Prior to the August 20, 2009, meeting, other agencies and other
interested organizations were notified of the planning activity and invited to
participate.
• Review Identified Hazards. The LMS Working Group reviewed the hazard
identification content in the 2005 LMS (which was based on materials from
the 1999 LMS) and hazard events that had occurred in the intervening years,
and confirmed the priority ranking of natural hazards. In 2009, the Working
Group considered adjusting the 1999 results from "The Arbiter of Storms"
(TAOS) using data provided by the Monroe County Property Assessment
Office, but determined that discrepancies in the raw numbers precluded a
straightforward adjustment. However, even if adjusted, the end result would
not alter the risk assessment and prioritization of hazards.
• Review how Natural Hazards are Addressed. Working Group members
reviewed brief descriptions of their agencies and on -going actions related to
hazards and provided updates. The results are summarized in Chapter 7
(Monroe County) and Chapters 8 through 12 for the cities of Key West, Key
Colony Beach, Layton, Islamorada and Marathon.
• Review Assessment of Risks. The Working Group reviewed the risk
assessment content in the 2005 LMS (based on materials from the 1999 LMS).
Despite the age of the damage projections, the Working Group determined
they remain sufficient for the purpose of identifying and prioritizing mitigation
actions.
Monroe LMS (2010 Update) 3-3
Research Existing Plans. The Working Group reviewed existing
comprehensive plans and flood damage reduction regulations and referenced
pertinent provisions into the LMS.
Confirm the Mitigation Goals. The mitigation goals were discussed and
confirmed by the Working Group.
Identification of Mitigation Actions. The list of potential mitigation actions
is not static, it changes as new projects are identified, as projects are
completed, and as the priorities of proponents change or better information
about the feasibility and cost-effectiveness of an activity comes to light.
Mitigation actions include projects (typically involving specific buildings or
drainage problems) and other actions that have broader impact (such as public
information and regulatory requirements). A high priority action identified in
the 2005 LMS called for the Working Group to improve the method by which
the list of projects is maintained and updated (this action was completed).
Draft the LMS Update. The draft LMS Update was prepared and circulated
to LMS Working Group members and, after the local government members
confirmed their concurrence, electronic copies were provided to adjacent
communities, interested parties, and pertinent state and federal agencies.
Comments were collected and incorporated into the "public review" draft.
Make Available to the Public and Hold Public Meeting. A press release
was issued and posted on the County's webpage. A notice of the public
meeting and the availability of the Public Review Draft of the 2010 LMS
Update was published in the Florida Keys Keynoter (see Appendix B). The
draft was posted on the County's webpage and hardcopies placed in the five
libraries, the five city offices, and the County's Growth Management office in
Marathon. Notices were sent to adjacent counties, regional organizations, the
utility companies that serve the area, the e-mail listserve maintained by the
LMS coordinator. The LMS Update was presented at the public meeting held
on August 16, 2010.
Adopt LMS. The draft LMS Update was presented to the Monroe County
Board of County Commissioners and the governing bodies of the Village of
Islamorada, the City of Layton, the City of Key Colony Beach, the City of
Marathon, and the City of Key West. Copies of the resolutions of adoption are
found in Appendix C.
3.3 Public Involvement in Mitigation Planning
Consistent with the standard practices to inform and provide citizens the opportunity to
comment, and to fulfill the public involvement requirements of the mitigation planning
programs, the input was solicited and residents were notified and invited to review the LMS
and attend a public meeting. In January 2004, a letter advising that the County and cities
were initiating the planning process, including a public meeting, was sent to selected state
and federal government agencies, neighborhood associations and other interested and related
organizations.
Monroe LMS (2010 Update) 3-4
The public meeting of the LMS Working Group that initiated the 5-year update was
advertised in the Florida Keys Keynoter on November 7, 2009 and a notice was posted on
the County's web page. To further inform the public, the following cities announced that
the Working Group was initiating the update process, that meetings are open to the public
and notices of meetings are published, and that the public is encouraged to comment when
the draft LMS Update is made available prior to approval by the Working Group:
• Key Colony Beach (September 10, 2009 Commission meeting)
• Marathon (September 3, 2009 City Council and city newsletter)
Islamorada (October 8, 2009, Village Council Meeting)
Meetings of the LMS Working Group are open to the public, notices are posted on the
County's web page, and some meetings are announced in The Keynoter.
The Monroe County LMS 2010 Update (Public Review Draft) was scheduled for
presentation to the public at a meeting on August 16, 2010. Notice of the meeting was
published in the Florida Keys Keynoter. Prior to the meeting, copies of the Public Review
Draft were made available to the public in the offices of the cities, in the five County public
libraries, and posted on the County's webpage. A notification letter was sent to adjacent
communities, federal and state agencies, neighborhood associations, and the LMS email
notification list. Comments were requested by August 20, 2010. No citizens attended the
public meeting and one comment was submitted.
3.4 The 2010 Update: Hazard Identification and
Risk Assessment
Chapter 5 (Hurricanes &Coastal Storms) and Chapter 6 (Other Hazards &Risks) include
descriptions of hazards and characterizations of the assessments of risk. Chapter 5 includes
a series of tables that summarize the 1998 damage projections from data developed by the
State using "The Arbiter of Storms" (TAOS). As noted in Section 5.5.1, in 2005 the
Working Group decided that although the TAGS projections were several years old, the
value of the results is not in the precise numbers, but in the order of magnitude of projected
damage (see Tables 5-10 through 5-16).
At the November 12, 2009 meeting, the Work Group reconfirmed this assessment. With
regard to buildings, while many new buildings have been constructed, compliance with the
Florida Building Code and each jurisdictions flood damage prevention regulations limits
vulnerabilities. To account for some of the changes in the preceding 10 years, the Work
Group obtained the total number of each structure category and the current total value of
those structures from the Monroe County Property Assessment Office (see Table 2-3 in
Section 2.4). However, given the apparent significant discrepancies between the raw
Monroe LMS (2010 Update) 3-5
numbers (both number of parcels/buildings and total improved values), it was not feasible to
use the 2009 data to adjust the TAOS projections. This does not alter the conclusion that the
order of magnitude of project damage is sufficient for the purpose of prioritizing hazards
and risks.
Two additional factors were considered in the decision to retain the risk assessment
information from the 2005 LMS and anticipate updating it for the 2015 Update:
• The 2010 U.S. Census information will be available; and
• The update of the hurricane storm surge modeling (SLOSH) is underway,
although the anticipated publication date is unknown.
3.5 2010 Updates
The LMS Working Group reviewed and updated the pertinent sections. Some of the more
significant changes include:
• Section 3.2: Described the LMS meetings related to the 2010 Update.
Updated the description of the planning process to reflect recent actions.
• Section 3.3: Added that three cities announced the initiation of the update
process at council meetings. Noted the public meeting and the Working
Group meeting at which public comments were addressed.
• Section 3.4: Added explanation that the Working Group reconfirmed its
2005 assessment that, although prepared in 1999, the hazard identification
and risk assessment are sufficient for the intended purpose (updated to
reflect events).
Monroe LMS (2010 Update) 3-6
Chapter 4. Mitigation Goals
4.1 Introduction
State and federal guidance and regulations pertaining to mitigation planning require the
development of mitigation goals to reduce or avoid long-term vulnerabilities to identified
hazards. Mitigation goals have been established by the Federal Emergency Management
Agency, the State of Florida, and Monroe County's LMS Working Group.
4.2 LMS Mitigation Goals
State and federal guidance and regulations pertaining to mitigation planning require the
identification of mitigation goals that are consistent with other goals, mission statements and
vision statements. The Monroe County Comprehensive Plan (Year 2010) includes Goal
217: "Monroe County shall develop and implement a program of hazard mitigation and
post -disaster redevelopment to increase public safety and reduce damages and public
expenditures."
The LMS Working Group first developed a set of goals as part of the 1999 LMS. These
goals were reviewed and confirmed for the LMS revision in 2005, with one minor addition.
The goals were discussed and reconfirmed for the 2010 Update. To move towards meeting
these goals, the members of the LMS Working Group consider the range of mitigation
initiatives outlined in Section 13.2 when identifying initiatives within their jurisdictions.
Monroe County Local Mitigation Strategy Goals
1. Preservation of sustainability of life, health, safety
and welfare.
2. Preservation of infrastructure, including power,
water, sewer and communications.
3. Maintenance and protection of roads and bridges,
including traffic signals and street signs.
4. Protection of critical facilities, including public
schools and public buildings.
S. Preservation of property and assets.
6. Preservation of economy during and after disaster,
including business viability.
7. Preservation and protection of the environment,
including natural and historic resources.
Monroe LMS (2010 Update) 4-1
4.3 Florida's Mitigation Vision & Mission
Statement
The Florida State Hazard Mitigation Plan was revised in 2007 and approved by FEMA in
early 2008. The Plan outlines the State's mitigation vision, mission statement, primary
goals and a wide variety of actions.
Florida's Mitigation Vision & Mission Statement
VISION.- Florida will be a disaster resistant and resilient
state, where hazard vulnerability reduction is standard
practice in both the government and private sectors.
MISSION.- Ensure that the residents, visitors and
businesses in Florida are safe and secure from natural,
technological and human induced hazards by reducing
the risk and vulnerability before disasters happen,
through state agencies and local community
communication, citizen education, coordination with
partners, aggressive research and data analysis.
The primary goals set forth in the State plan include:
• Goal 1: Enhance and maintain state capability to implement a comprehensive
statewide hazard loss reduction strategy
• Goal 2: Support the development and enhancement of local capability to
practice hazard mitigation
• Goal 3: Increase public and private sector's awareness and support for disaster
loss education practices as a means of developing a culture of hazard
mitigation in Florida.
• Goal 4: Reduce Florida's hazard vulnerability through the application of
scientific research and development.
• Goal 5: Protect the state's cultural, economic and natural resources.
• Goal 6: Reduce the vulnerabilities of state-owned facilities and infrastructure
to natural and manmade hazards
Monroe LMS (2010 Update) 4-2
4.4 FEMA's Mitigation Goals
FEMA's mitigation strategy is set forth in a document originally prepared in the late 1990s.
This strategy is the basis on which FEMA implements mitigation programs authorized and
funded by the U.S. Congress.
FEMA's National Mitigation Goals
To engender fundamental changes in perception so that
the public demands safer environments in which to live
and work; and
To reduce, by at least half, the loss of life, injuries,
economic costs, and destruction of natural and cultural
resources that result fi^om natural disasters.
4.5 2010 Updates
The LMS Working Group reviewed and updated the pertinent sections:
• Section 4.2: Noted the mitigation goals were discussed and confirmed.
• Section 4.3: Listed primary goals from the State's mitigation plan.
Monroe LMS (2010 Update) 4-3
Monroe LMS (2010 Update) 4-4
Chapter 5. Hurricanes & Coastal Storms
The descriptions of hazards, hazard histories, and impacts that are detailed in this chapter
and Chapter 6 are summarized as "relative" vulnerabilities in Table 6-7.
The Working Group discussed the fact that the hurricane "risk assessment" information in
this Chapter is based on the 1998 TAOS damage projections. The conclusion was that those
estimates remain acceptable for the purpose of indentifying and prioritizing mitigation
actions. It was also noted that the results of the update of the hurricane storm surge
modeling (SLOSH) are expected some time in 2010. Prior to initiation of the 2015 Update,
the Working Group will reevaluate whether it is appropriate to revise the risk assessment
using FEMA's GIS-based tools.
Since 1965, fifteen of the seventeen events that prompted Presidential disaster declarations
have been associated with tropical cyclones and coastal storms (Table 5-1). One declaration
was for fire hazard and one was for a severe cold spell that affected South Florida.
Table 5-1. Presidential Disaster Declarations (1965-2009)
DR#
Date of
Declaration
Event
Assistance Provided*
209
09/14/1965
Hurricane Betsy
IA,PA
337
06/24/1972
Tropical Storm Agnes
IA, PA
955
08/24/1992
Hurricane Andrew
IA,PA
982
03/22/1993
Tornadoes, Flooding, High Winds &
Tides, Freezing
IA,PA
1204
02/20/1998
Severe Storms, High Winds,
Tornadoes & Flooding
IA,PA
1223
06/19/1998
Extreme Fire Hazard
PA
1249
09/28/1998
Hurricane Georges
IA,PA
1259
11 /06/1998
Tropical Storm Mitch
IA, PA
1306
10/22/1999
Hurricane Irene
IA,PA
1345
10/04/2000
Severe Storms & Flooding
IA
1359
02/06/2002
Severe Winter Storm
Disaster unemployment
1539
08/11-30/2004
Tropical Storm Bonnie & Hurricane
Charlie
IA
1551
09/13/2004
Hurricane Ivan
PA-B
1595
07/10/2005
Hurricane Dennis
PA
1602
08/28/2005
Hurricane Katrina
PA
1609
10/24/2005
Hurricane Wilma
IA, PA
1785
08/24/2008
Tropical Storm Fay
PA
* IA = Individual Assistance; PA = Public Assistance
Monroe LMS (2010 Update) 5-1
5.1 Defining the Hazard
The most significant hazards that could affect Monroe County are winds and flooding
associated with tropical cyclones (hurricanes, tropical storms, and tropical depressions) and
non -tropical coastal storms. Non -tropical coastal storms are less common, although such
storms can be produce high winds and flooding rains.
The Monroe County Comprehensive Emergency Management Plan states that "the Florida
Keys has one of the highest probabilities of being affected by tropical cyclones in the
Continental United States," a characterization that is echoed by the National Hurricane
Center.
Most of Monroe County has natural elevations of about 4 to 7 feet above mean sea level.
This makes the area vulnerable to coastal flooding. A few areas have poor drainage and
accumulate water during heavy rainfalls.
Hurricanes and tropical storms, as well as tropical depressions, are all tropical cyclones
defined by the National Weather Service, National Hurricane Center, as warm -core non -
frontal synoptic -scale cyclones, originating over tropical or subtropical waters, with
organized deep convection and closed surface wind circulation about a well-defined center.
Once they have formed, tropical cyclones maintain themselves by extracting heat energy
from the ocean at high temperatures and releasing heat at the low temperatures of the upper
troposphere. Hurricanes and tropical storms bring heavy rainfalls, storm surge, and high
winds, all of which can cause significant damage. These storms can last for several days,
and therefore have the potential to cause sustained flooding, high wind, and erosion
conditions.
Tropical cyclones are classified using the Saffir-Simpson Hurricane Wind Scale, which
replaces the Saffr-Simpson Hurricane Scale (Table 5-2). As described on the NOAA
National Hurricane Center's webpage (below), the scale has been modified to indicate only
wind intensity and anticipated types of damage and impacts. The description notes that the
scale no longer indicates anticipated storm surge depths.
Saffir-Simpson Hurricane Wind Scale (Experimental)
The Saffir-Simpson Hurricane Wind Scale is a 1 to 5 categorization based on the hurricane's
intensity at the indicated time. The scale provides examples of the type of damages and impacts in
the United States associated with winds of the indicated intensity. In general, damages rise by about
a factor of four for every category increase. The maximum sustained surface wind speed (peak 1-
minute wind at 10 m [33 ft]) is the determining factor in the scale. The historical examples (one for
the U.S. Gulf Coast and one for the U.S. Atlantic Coast) provided in each of the categories
correspond with the intensity of the hurricane at the time of landfall in the location experiencing the
strongest winds, which does not necessarily correspond with the peak intensity reached by the
system during its lifetime.
Monroe LMS (2010 Update) 5-2
The scale does not address the potential for such other hurricane -related impacts, as storm surge,
rainfall -induced floods, and tornadoes. These wind -caused impacts are to apply to the worst winds
reaching the coast and the damage would be less elsewhere. It should also be noted that the
general wind -caused damage descriptions are to some degree dependent upon the local building
codes in effect and how well and how long they have been enforced. For example, recently enacted
building codes in Florida, North Carolina and South Carolina are likely to somewhat reduce the
damage to newer structures from that described below. However, for a long time to come, the
majority of the building stock in existence on the coast will not have been built to higher code.
Hurricane wind damage is also dependent upon such other factors as duration of high winds, change
of wind direction, amount of accompanying rainfall, and age of structures.
Earlier versions of this scale - known as the Saffir-Simpson Hurricane Scale - incorporated central
pressure and storm surge as components of the categories. The central pressure was utilized during
the 1970s and 1980s as a proxy for the winds as accurate wind speed intensity measurements from
aircraft reconnaissance were not routinely available for hurricanes until 1990. Storm surge was also
quantified by category in the earliest published versions of the scale dating back to 1972. However,
hurricane size (extent of hurricane force winds), local bathymetry (depth of near -shore waters), and
topographic forcing can also be important in forecasting storm surge. Moreover, other aspects of
hurricanes - such as the system's forward speed and angle to the coast - also impact the storm
surge that is produced. For example, the very large Hurricane Ike (with hurricane force winds
extending as much as 125 mi from the center) in 2008 made landfall in Texas as a Category 2
hurricane and had peak storm surge values of 15-20 ft. In contrast, tiny Hurricane Charley (with
hurricane force winds extending at most 25 mi from the center) struck Florida in 2004 as a Category
4 hurricane and produced a peak storm surge of only 6-7 ft. These storm surge values were
substantially outside of the ranges suggested in the original scale. Thus to help reduce public
confusion about the impacts associated with the various hurricane categories as well as to provide a
more scientifically defensible scale, the storm surge ranges, flooding impact and central pressure
statements are being removed from the scale and only peak winds are employed in this revised
version - the Saffir-Simpson Hurricane Wind Scale.
Source: www.nhc.noaa.gov/aboutsshs.shtml
Table 5-2. Saffir-Sampson Scale and Typical Damages
Tropical Storm: Sustained
winds 39-73 mph.
Category One Hurricane:
Damaging winds are expected. Some damage to building structures could
Sustained winds 74-95 mph.
occur, primarily to unanchored mobile homes (mainly pre-1994 construction).
Some damage is likely to poorly constructed signs. Loose outdoor items will
become projectiles, causing additional damage. Persons struck by windborne
debris risk injury and possible death. Numerous large branches of healthy
trees will snap. Some trees will be uprooted, especially where the ground is
saturated. Many areas will experience power outages with some downed
power poles.
Category Two Hurricane:
Some roofing material, door, and window damage of buildings will occur.
Sustained winds 96-110 mph
Considerable damage to mobile homes (mainly pre-1994 construction) and
Very strong winds will
poorly constructed signs is likely. A number of glass windows in high rise
produce widespread damage.
buildings will be dislodged and become airborne. Loose outdoor items will
become projectiles, causing additional damage. Persons struck by windborne
debris risk injury and possible death. Numerous large branches will break.
Many trees will be uprooted or snapped. Extensive damage to power lines and
poles will likely result in widespread power outages that could last a few to
several days.
Monroe LMS (2010 Update) 5-3
Category Three Hurricane:
Sustained winds 111-130.
Dangerous winds will cause
extensive damage.
Some structural damage to houses and buildings will occur with a minor
amount of wall failures. Mobile homes (mainly pre-1994 construction) and
poorly constructed signs are destroyed. Many windows in high rise buildings
will be dislodged and become airborne. Persons struck by windborne debris
risk injury and possible death. Many trees will be snapped or uprooted and
block numerous roads. Near total power loss is expected with outages that
could last from several days to weeks.
Category Four Hurricane:
Some wall failures with some complete roof structure failures on houses will
Sustained winds 131-155
occur. All signs are blown down. Complete destruction of mobile homes
mph. Extremely dangerous
(primarily pre-1994 construction). Extensive damage to doors and windows is
winds causing devastating
likely. Numerous windows in high rise buildings will be dislodged and become
damage are expected.
airborne. Windborne debris will cause extensive damage and persons struck
by the wind-blown debris will be injured or killed. Most trees will be snapped or
uprooted. Fallen trees could cut off residential areas for days to weeks.
Electricity will be unavailable for weeks after the hurricane passes.
Category Five Hurricane:
Complete roof failure on many residences and industrial buildings will occur.
Sustained winds greater than
Some complete building failures with small buildings blown over or away are
155 mph. Catastrophic
likely. All signs blown down. Complete destruction of mobile homes (built in
damage is expected.
any year). Severe and extensive window and door damage will occur. Nearly
all windows in high rise buildings will be dislodged and become airborne.
Severe injury or death is likely for persons struck by wind-blown debris. Nearly
all trees will be snapped or uprooted and power poles downed. Fallen trees
and power poles will isolate residential areas. Power outages will last for
weeks to possibly months.
Storm surge is a large dome of water which may be 50- to 100-miles wide and rising from
less than 4-feet to over 18-feet high. Generally, surges begin to arrive before a storm's
landfall, although the timing is influenced by the path, forward speed, and timing of each
storm with respect to the tide cycle. Wind -driven waves are a significant component of
tropical cyclones. The height of waves is influenced by storm characteristics and whether
shorelines are buffered by barrier islands.
Storm surge can be modeled by various techniques; one such technique is the use of the
National Weather Services' Sea, Lake and Overland Surges from Hurricanes (SLOSH)
model. The model is used to predict storm surge heights based on hurricane category.
Surge inundation areas are classified based on the category of hurricane that would cause
flooding. As the category of the storm increases, more land area will become inundated.
Storm surge is a major component of Nor' easter storms along the East Coast of the U.S.
Because winds are moving from a north and/or eastward position, winds move across the
ocean towards shore and form large waves.
5.1.1 Flood Insurance Rate Maps
The National Flood Insurance Program (NFIP) prepares maps to depict areas that are
predicted to flood during events up to and including the 1-percent annual chance flood
(commonly called the 100-year flood). In Monroe County and the cities, virtually all areas
shown on the Flood Insurance Rate Maps (FIRMS) are impacted by coastal flooding,
Monroe LMS (2010 Update) 5-4
whether due to hurricanes or other coastal storms. Monroe County and the cities all
maintain copies of their current effective FIRMs and the maps are available for inspection
by the public.
In order to make federal flood insurance available to citizens, communities adopt FIRMs
and administer floodplain management ordinances. Table 5-3 indicates when the County
and cities first joined the NFIP and the date of the current map. Monroe County and the
cities were among the first to have maps revised and updated into the Geographic
Information System format under FEMA's Map Modernization initiative.
Table 5-3. Flood Insurance Rate Maps
Joined the NFIP
Date of Current Map
Monroe County
June 15, 1973
February 18, 2005
Islamorada
October 1, 1998
February 18, 2005
Key Colony Beach
July 16, 1971
February 18, 2005
Key West
September 3, 1971
February 18, 2005
Layton
July 13, 1971
February 18, 2005
Marathon
October 16, 2000
1 February 18, 2005
5.1.2 NFIP Flood Insurance Policies & Repetitive Loss Properties
The Florida Division of Emergency Management provided National Flood Insurance
Program data that identifies properties in Monroe County and the cities that are, or have
been, insured by the National Flood Insurance Program and that have received two or more
claims of at least $1,000. Table 5-4a shows that as of February 28, 2010, there area total of
912 such properties and Table 5-4b shows how the repetitive loss structures breakdown by
type of structure as identified by the NFIP.
Table 5-4a. NFIP Repetitive Loss Properties (as of February
28, 2010)
# of Properties
# Claims
Total Claim
Payments
Monroe County
636
1,356
$29,093,568
Islamorada
14
42
$1,113,453
Key Colony Beach
15
39
$1,827,679
Key West
216
544
$24,630,891
Layton
0
0
-0-
Marathon
31
67
$3,638,596
Total
912
2,048
$60,304,187
Monroe LMS (2010 Update) 5-5
Table 5-4b. NFIP Repetitive Loss Properties (by structure type)
Single
Family
Home
2-4
Family
Home
Other
Resi-
dential
Condo-
minimum
Non -
Resi-
dential
Total
Monroe County
525
30
14
18
49
636
Islamorada
8
2
2
2
0
14
Key Colony Beach
2
0
6
3
4
15
Key West
152
15
9
6
34
216
Layton
0
0
0
0
0
0
Marathon
22
3
2
3
1
31
Total
709
50
33
32
88
912
5.2 Hurricane Effects in Monroe County
Hurricane modeling prepared for South Florida predicts surge depths for different categories
as a function of track path. Some paths are predicted to producer higher surges than others.
Throughout Monroe County, most locations will experience surges of 9-feet or more as a
result of category 3, 4 and 5 hurricanes (Table 5-5). Figure 5-1 shows that most of the Keys
and upper mainland portions of the County will be affected by category 2 and more severe
storms. Chapters 8 through 12 include tables detailing maximum predicted water depths
above mean seal level in Key West, Key Colony Beach, Layton, Marathon, and Islamorada.
Table 5-5. Probable Storm Tide Ranges*
Saffir-Simpson
Elevation (ft above MSL)
Monroe
Dade
Category 1
5
5
Category 2
7
7
Category 3
10
10
Category 4
13
13
Category 5
+15
+15
* Lower Southeast Florida Hurricane Evacuation Study (1983)
Monroe LMS (2010 Update) 5-6
u
Graw Whn'@ .`
Narmae woraftTe RerU_Qa
n
i
Mr NS,
UH NH o
i
1
YARATHFW r
M& Monroe County
r emu.. Serge Zones
i
Date created: March 2Q08
Legend
0EVa=Z
Surge Zone-s
CATEGORY
Ca-rgzr)
Cale 3
_ =EgM d
Ca1egDry E.
Figure 5-1. Surge Zones for Monroe County, prepared by Florida Division of
Emergency Management (online at
http://www.floridadisaster.or2/publicmappin2/index.htm).
Assigning frequencies to hurricanes is difficult, in large part because of the relatively short
record. Based on past storms, it appears that the frequency for a Category 5 storm in Key
West is one every 36 years (or about 3-percent chance in any given year — by comparison,
the "100-year" storm has a 1-percent chance of occurring in any given year). A Category 4
storm is likely to occur about once every 22 years (or about 5-percent in any given year).
Category 3, 2, and 1 hurricanes and tropical storms have increasing probabilities of
occurrence in any given year. Overall, Monroe County has been advised that in any given
year, there is a one in four chance (25-percent) that the area will be affected by a tropical
cyclone of some intensity.
One of the greatest threats posed by hurricanes is their erratic and irregular tracks, making
prediction of landfall difficult. Figure 5-2 illustrates the tracks of past hurricanes and
tropical storms. More hurricanes make landfall during September and October, although
they have occurred in all months of hurricane season.
Monroe LMS (2010 Update) 5-7
Legend
Hurricane Track
Category 3 - 5
category 1 - 2
T 1• opical Storm
Tropical Depression
U I•)t r opic al storni
Al Su bt l• opt Ir1 aI Depression
LIN Extratropical Stt arni
Tropical L.o °A,-
TI• op Ic al D'I'SILI I L-LI I `I
Tr opic all Wha,y r
Q 'water Feature
L] Land FeatLllr
kL
In,1
�' 13 eat ,1 �
i IL r
dui
A - t
1f,
r•
4
ti
lie
_
J _
r .
J y
d M1
�•
- _ I , _ ., _.vim ..•,::: .
Kerr
5011
Figure 5-2. Historical hurricane and tropical storm tracks, South Florida (online at http://csc-s-maps-
ci.csc.noaa.2ov/hurricanes/viewer.html).
5.3 Some Major Hurricanes
The Florida Keys have experienced many hurricanes and tropical storms. Brief descriptions
of some or the more significant storms (Table 5-6) are sufficient to characterize the
hurricane history of the area.
Table 5-6. Some Major Hurricanes that Affected Monroe County
1919 Hurricane (September 2-15). The hurricane passed Key West and the Dry Tortugas on a
westward course. Key West recorded winds of 95 mph, with a barometric pressure of 28.81 inches.
Water levels were 5-7 feet above Mean Sea Level (MSL)
1929 Hurricane (September 22 to October 4). The hurricane crossed over Key Largo on a northerly
course. Key Largo reported winds estimated at over 100 mph, a central barometric pressure of 28
inches, and tide levels of 8-9 feet above MSL. Key West experienced tide levels of 5-6 feet above MSL
and winds of 66 mph.
1935 Hurricane (August 29-September 10). The small, extremely violent, Category 5 hurricane crossed
the Florida Keys on a northwesterly track. The Tavern ier-Islamorada area reported winds estimated at
120 mph with gusts from 190-210 mph. Tide levels ranged from 14 feet above MSL in Key Largo to 18
feet above MSL in Lower Matecumbe Key. The storm was so intense and tightly wrapped that Key West
had tide levels of only 2 feet above MSL and average sustained winds of less than 40 mph. Tragically,
the storm caused the death of many WWI veterans who were working on construction of Henry Flagler's
Overseas Railroad. The 1935 Keys Hurricane remains the strongest storm ever to hit the Continental
U.S.
Hurricane Donna, 1960 (August 29-September 19). Hurricane Donna curved northwestward over the
Middle Keys near Long Key/Layton and then traveled northward toward the Gulf Coast towns of Naples
and Fort Myers. Areas in the vicinity of the storm experienced winds speed of 128 mph and a central
pressure of 28.44 inches. The storm affected the Everglades with estimated winds of 150 mph. Tide
levels were reported at Upper Matecumbe Key of 13.5 feet above MSL, at Plantation Key 10+ feet above
Monroe LMS (2010 Update) 5-8
Table 5-6. Some Major Hurricanes that Affected Monroe County
MSL, and 8.9 feet above MSL in Key Largo. As of 1992 Hurricane Donna, a Category 4 storm, was listed
as the 6th most intense hurricane in the U.S.
Hurricane Betsy, 1965 (August 26-September 12). Hurricane Betsy passed over Marathon while
moving westward into the Gulf of Mexico. The lowest central pressure was measured in Tavernier at
28.12 inches and wind speeds were estimated to be 120 mph. Tide levels in Tavernier were 7.7 feet
above MSL and Key Largo had tide levels of around 9 feet above MSL.
Hurricane Andrew, 1992. This storm made landfall in southern Dade and northern Monroe Counties in
the early morning hours of Monday, August 24, 1992. A strong Category 4, the storm severely affected
Monroe County in the Key Largo area, particularly North Key Largo and the community of Ocean Reef.
According to National Hurricane Center, maximum sustained winds for this storm were 145 miles per
hour, with gusts to 175 miles per hour. At landfall, its central barometric pressure was, 926 Mb, is the third
lowest in the 20th Century. At the time, Hurricane Andrew was the third strongest storm this Century.
Storm tides at Ocean Reef have been estimated at about 4.5 feet on the bay side and 3.9 to 5.0 feet on
the ocean side. Because of the storm Is intensity and tight configuration, it quickly moved inland.
Hurricane Andrew was costly for Monroe County, including extensive roof and other structural damage to
residences; public safety and administrative buildings; the Card Sound Road toll facility; and resort
buildings; loss of emergency equipment; severe damage to roadways and signs; loss or emergency and
security vehicles; and damage to marinas and craft. Other expenses accrued from large-scale landscape
loss and damage; loss of and damage to private vehicles; damage to recreational facilities; and great loss
of personal property. Many businesses in Upper Key Largo experienced some damage (especially roofs)
and loss of signs and landscaping. County roadways were blocked by debris and street and road signs
were lost. The Florida Keys Electric Coop reported $130,000 in losses of utility poles and related
infrastructure. Total damage in Monroe County exceeded $131,000,000.
Hurricane Georges, 1998. On September 25, 1998, this hurricane made landfall in the Lower Keys and
affected the entire county to some extent. Hurricane Georges devastated the Caribbean, including Haiti
and the Dominican Republic, Puerto Rico, and Cuba before taking aim at Monroe County. When it hit
Santo Domingo in the Dominican Republic on September 22nd, it was a strong Category 3 with sustained
winds of120 mph. It weakened to a Category 2 by the time it arrived in the Florida Keys, with maximum
sustained winds of 92 mph measured at the Naval Air Station (Boca Chica) near Key West. Gusts of 110
mph were reported in Marathon. According to the Key West Weather Service, precipitation levels in the
Lower Keys were identified as 8.65 inches on the south side of Sugarloaf Key, 8.38 inches at Key West
International Airport, 8.20 inches on Cudjoe Key, and 8.4 inches at Tavernier in the Upper Keys. The
most severe damage was sustained between Sugarloaf Key and Big Pine Key in the Lower Keys.
Damage estimates, including insurable, uninsurable, and infrastructure loss, was nearly $300 million.
Substantial damage occurred to mobile homes and landscaping throughout the keys. Roof and flood
damage occurred in several areas including Big Coppitt, Sugarloaf, Summerland, Ramrod, and Big Pine
in the Lower Keys. Similar damage affected the Middle Keys including Marathon, Key Colony Beach,
Grassy Key, Long Key/Layton, and Duck Key. In the Upper Keys, several hotels and motels, such as the
Cheeca Lodge received damage as did portions of roadway, e.g. Lower Matecumbe where overwash
occurred. A school under construction in Sugarloaf Key sustained damage to the unfinished roof, heavy
damage to the Big Pine Community Center, and damage to the air conditioning unit on the roof of
Marathon High School, which resulted in interior water damage. The City of Key West sustained damage
to private buildings and public property, especially along low-lying areas along South Roosevelt
Boulevard.
Tropical Storm Mitch, 1998. Arriving on November 4 and 5, Mitch initially was forecast to bring minimal
tropical storm conditions to the Keys. Unfortunately, feeder bands from Mitch containing super cells
spawned several damaging tornadoes in the Upper Keys. Sections with mobile homes were especially
hard hit. Islamorada experienced an F-1 tornado. Rock Harbor and Key Largo were hit by F-2
tornadoes. The State reported Monroe County's damages were estimated at nearly $11 million.
Hurricane Wilma, October 2005. During the night of October 23 to 24, 2005. Hurricane Wilma visited
Monroe County, resulting in at least 2 injuries and at least $33 million in damage. Over the Upperr Keys
from Craig Key to Ocean Reef, maximum winds were measured at 65 knots with gusts to 79 knots. At
Molasses Reef C-MAN station. Overall, average winds across the inhabited Lower Keys were estimated
at 70 to 80 mph with gusts up to 90 mph with general Category 1 Saffir Simpson Damage noted. Rainfall
across the Lower Keys was fairly light but typical for a fast-moving hurricane, 1.50 inches measured at
Pennekamp State Park in Key Largo. Wilma's storm surge primarily affected the ba side of the Upper
Monroe LMS (2010 Update) 5-9
Table 5-6. Some Major Hurricanes that Affected Monroe County
Keys, ranging from 4 to 5 feet above sea level with the worst in Lower Matecumbe Key. U.S. Route 1
north of Key Largo was temporarily flooded at least 3 inches at maximum surge during the afternoon
hours on October 24. For a more complete description of the impacts, see Appendix D, "Hurricane Wilma
in the Florida Keys" by Kennard Kasper, National Oceanic and Atmospheric Administration
(NOAA)/National Weather Service (NWS) Weather Forecast Office (WFO) Key West, Florida
(http://www.srh.noaa.gov/media/key/Research/wilma.PdD.
5.4 Losses Due to Major Disasters
No definitive record exists of all losses — public and private — due to disasters for Monroe
County. For the United States as a whole, estimates of the total public and private costs of
natural hazards range from $2 billion to over $6 billion per year. Most of those costs can
only be estimated. In most declared major disasters, the Federal government reimburses
75% of the costs of cleanup and recovery, with the remaining 25% covered by states and
affected local jurisdictions. FEMA administers two programs that help with recovery:
Public Assistance program, that provides cost -shared grants for certain
categories of damage/expenditures sustained by State and local governments
and certain types of nonprofit organizations. FEMA provides supplemental
assistance for debris removal, emergency protective measures, and the repair,
replacement or restoration of damaged public facilities and facilities of certain
nonprofit organizations, including damaged roads and bridges, flood control
facilities, public buildings and equipment, public utilities, and parks and
recreational facilities; and
Individual Assistance program, which provides direct assistance to individuals,
families, and businesses for certain losses that are not covered by insurance.
This assistance is intended to help with critical expenses that are not covered
in other ways — it is not intended to restore damaged property to pre -disaster
condition.
The Florida Division of Emergency Management coordinates and administers aspects of
FEMA's Public Assistance Program. DEM provided the data shown in Table 5-7, which
summarizes some costs associated with disaster recovery from declared disasters in the past
decade (including estimates of some costs that were covered by insurance).
Monroe LMS (2010 Update) 5-10
Table 5-7. Some Past Disaster Recovery Costs
Hurricane Georges Damage As Of September 1, 1999*
Public Assistance (Infrastructure &
Emergency Activities)
$ 54,257,290
Temporary Housing
$ 6,584,782
Individual Assistance
$ 3,966,572
Small Business Administration
$ 61,366,100
National Flood Insurance Program
$ 38,044,669
Wind Insurance (est.)
$131,000,000
TOTAL
$ 295,219,413
Tropical Storm Mitch Damage As Of September 1, 1999*
Public Assistance (Infrastructure &
Emergency Activities)
$ 4,021,718
Temporary Housing
$ 754,845
Individual Assistance
$ 395,663
Small Business Administration
$ 5,678,700
National Flood Insurance Program
$ 51,527
TOTAL
$ 10,902,183
Hurricane Ivan (DR# 1551)**
Public Assistance (Infrastructure &
Emergency Activities)
$362,648
Temporary Housing
Not declared
Individual Assistance
Not declared
Small Business Administration
Not declared
TOTAL
$362,648
Hurricane Dennis (DR# 1595)**
Public Assistance (Infrastructure &
Emergency Activities)
$6,260,342
Temporary Housing
Not declared
Individual Assistance
Not declared
Small Business Administration
Not declared
TOTAL
$6,260,342
Hurricane Katrina (DR# 1602)**
Public Assistance (Infrastructure &
Emergency Activities)
$5,522,803
Temporary Housing
Not declared
Individual Assistance
Not declared
Small Business Administration
$3,480,700
TOTAL
$9, 003, 503
Hurricane Wilma (DR# 1609)**
Public Assistance (Infrastructure &
Emergency Activities)
$69,875,249
Temporary Housing
$1,980,852
Individual Assistance
$24,596,806
Monroe LMS (2010 Update) 5-11
Small Business Administration
$97,349,200
TOTAL
$193,802,107
Tropical Storm Fay (DR# 1785)**
Public Assistance (Infrastructure &
Emergency Activities)
$4,403,549
Temporary Housing
Not declared
Individual Assistance
Not declared
Small Business Administration
Not declared
TOTAL
$4,403,549
* Florida DCA, Recovery & Mitigation Section (2005)
** Florida DEM, Recovery Bureau (as of November 6, 2009)
5.5 Impacts of Hurricanes
The State Hazard Mitigation Plan (SHMP, 2007) summarizes analyses of "population at
risk" and the dollar values of residential and commercial structures exposed to Category 2
hurricanes (SHMP Table 3.3.7), Category 5 hurricanes (SHMP Table 3.3.8), hurricane wind
(SHMP Table 3.3.9). The results are shown in Table 5-8.
Table 5-8. SHMP Summary: Impacts of Hurricanes in Monroe County (2007).
Population
Value of
Residential
Structures
Value of
Commercial
Structures
Coastal
Flooding
Category 2
377849
$47715 million
$765 million
Category 5
577323
$67797 million
$17111 million
Hurricane Wind 797589 $9.3 million $2.1 million
To improve understanding of hurricanes and their impacts, in the mid- 1990s the Florida
Department of Community Affairs developed "The Arbiter of Storms" (TAOS). TAOS was
an integrated hazards model that provided higher resolution data than were produced by the
National Hurricane Center's SLOSH model. The SLOSH model calculated storm surge for
an area of coastline called a basin. TAOS, which makes more extensive use of satellite and
digital terrain data, had a higher resolution. In addition to storm surge estimates, TAOS
calculated estimates of wave height, maximum winds, inland flooding, debris and structural
damage. Computer models are approximations and all predications of storm impacts and
damage that are based on models include some degree of uncertainty.
In 1998, estimates of projected damage for various land use types in different storm
scenarios developed through the TAOS model were provided by the State. The projections
included the number of parcels by type, total improved value, and six storm scenarios
Monroe LMS (2010 Update) 5-12
(tropical storm and all categories of hurricane). Anticipated damage was included for
floods, winds, and wave action.
5.5.1 Buildings
The Monroe County Property Appraiser reports that as of January 1, 2009, there are 74
mobile home/recreational vehicle parks (land owned by park operator). Between the units
installed in those parks and those installed on individual parcels of land, there is a total of
5,619 manufactured homes units. New manufactured home parks have not been approved
since 1987. Installation of new or replacement units must comply with current codes.
Four hundred fifty-two parcels of land are recorded as "hotel/motel" and it is estimated that
there are 7,100 available rooms (including guest houses but not including "condotels,"
which are privately -held condominiums that can function as hotels). Most were built before
current strict standards related to wind and flood hazards. Additions or substantial
renovation will trigger the need to comply with current codes.
A need for affordable housing has been identified in the County and Municipal
Comprehensive Plans and was underscored by the experiences in Hurricane Georges and
Tropical Storm Mitch. The preliminary damage assessments identified of housing units that
were determined to have been destroyed or to have sustained major or minimal damage (see
Table 5-9).
Table 5-9. Monroe Housing Units Affected by Hurricanes
Georges and Mitch
Total
Affected
Degree of Damage
Minimal
Major
Destroyed
Hurricane Georges
1,854
893
470
173
Tropical Storm Mitch
664
165
40
43
The TAOS information covered the entire county and did not provide separate data on the
incorporated municipalities. Tables 5-10 through 5-16 summarize the damage projections
for single-family homes, manufactured homes, multi -family homes, other residential
buildings, commercial property, institutional property and hotels.
In 2005, the LMS Work Group decided that although the TAOS projections were prepared
for the 1999 LMS, the value of the results is not in the precision of the numbers, but in the
order of magnitude of projected damage. In 2009, the Working Group considered adjusting
the TAOS data using current data provided by the Monroe County Property Assessment
Office (see explanation in Section 2.4). However, given the apparent significant
discrepancies between the raw numbers (both number of parcels/buildings and total
Monroe LMS (2010 Update) 5-13
improved values), it was not feasible. This does not alter the conclusion that the order of
magnitude of project damage is sufficient for the purpose of prioritizing hazards and risks:
• A category 3 hurricane is projected to result in some degree of damage to all
occupancies, totally on the order of 50% of improved value.
• All single family homes will experience some degree of damage in all storms,
with total structural damage approaching 100% in a Category 5 hurricane.
• All manufactured homes will be damaged to some degree in all storms, with
total damage approaching 100% in a Category 3 hurricane.
• All multi -family residential buildings, other residential buildings, hotels,
commercial buildings, and institutional buildings will be damaged to some
degree in all storms, with total structural damage approaching 100% in a
Category 5 hurricane.
Table 5-10. 1998 TAOS Damage Projections: Single -Family Homes
(Total Parcels = 16,618; Improved Value = $3.01 billion, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
Damaged
8,565
16,618
16,618
16,618
16,618
16,618
Total
Structure
243
686
1,066
1,571
27248
2,946
o
Structure
100
245
413
620
848
11128
CD o
Flood
Structure
a)
Wind
0
50
188
492
11102
2,380
c�
Structure
139
40
518
657
830
10,819
o
Wave
Total
Content
63
169
3,295
696
11217
11487
Monroe LMS (2010 Update) 5-14
Table 5-11. 1998 TAOS Damage Projections: Manufactured Homes
(Total Parcels = 5,881; Improved Value = $308 million, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
5,881
5,881
5,881
5,881
5,881
5,881
Damaged
Total
Structure
116
169
235
304
308
308
o
Structure
26
52
80
110
155
221
CD o
Flood
Structure
a)
Wind
9
51
135
297
308
308
c�
Structure
92
111
123
137
155
183
o
Wave
Total
Content
11
46
99
152
153
154
Table 5-12. 1998 TAOS Damage Projections: Multi -Family (<10)
(Total Parcels = 1,312; Improved Value = $250 million, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
522
1,312
1,312
1,312
1,312
1,312
Damaged
Total
14
41
68
112
173
243
Structure
o
Structure
6
14
17
43
61
84
o
Flood
Structure
a)
Wind
0
4
15
40
90
196
c�
Structure
8
22
28
36
47
66
o
Wave
Total
3
10
19
49
94
123
Content
Monroe LMS (2010 Update) 5-15
Table 5-13. 1998 TAOS Damage Projections: Other Residential
(Total Parcels = 7,652; Improved Value = $2.3 billion, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
5,629
7,652
7,652
7,652
7,652
7,652
Damaged
Total
Structure
186
496
809
11292
2,018
21262
o
Structure
68
136
262
411
617
826
CD o
Flood
Structure
a)
Wind
13
101
284
654
17335
21250
c�
Structure
106
281
350
419
518
691
o
Wave
Total
Content
37
102
288
633
1,057
11126
Table 5-14. 1998 TAOS Damage Projections: Commercial
(Total Parcels = 1,431; Improved Value = $409 million, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
11287
11431
11431
11431
11431
11431
Damaged
Total
43
107
163
250
366
409
Structure
Cn o
Structure
15
30
49
74
106
142
o
Flood
601
Structure
Wind
4
20
56
128
259
409
c�
Structure
25
64
77
93
115
149
o
Wave
Total
10
24
59
121
189
203
Content
Monroe LMS (2010 Update) 5-16
Table 5-15. 1998 TAOS Damage Projections: Institutional
(Total Parcels = 155; Improved Value = $80 million, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
142
155
155
155
155
155
Damaged
Total
5
17
28
45
70
80
Structure
o
Structure
1
4
74
12
18
26
CD o
Flood
Structure
a)
Wind
1
4
11
25
51
80
c�
Structure
o
Wave
4
9
11
15
18
24
Total
0.5
2
9
22
36
40
Content
Table 5-16. 1998 TAOS Damage Projections: Hotels
(Total Parcels = 215; Improved Value = $614 million, 1988 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
Damaged
155
215
215
215
215
215
Total
22
72
170
320
563
614
Structure
Cn o
Structure
5
9
54
97
147
201
o
Flood
601
Structure
Wind
6
30
85
195
396
614
c�
Structure
o
Wave
11
35
40
49
63
90
Total
3
7
57
158
294
306
Content
Monroe LMS (2010 Update) 5-17
5.5.2 Transportation Infrastructure
Historically, some areas and streets are more vulnerable than others to coastal flooding
and/or pooling of rainfall runoff flooding from heavy rains. In the past decade, the
following areas have been identified as likely to flood repetitively:
• MM 109 in the Upper Keys, which can hamper evacuation.
• MM 106, Lake Surprise area, vulnerable to the effects of wind driven wave
run-up from ENE and W/SW directions; heavy rainfall results in ponding.
• MM 111, the exposed beach area along the 18-mile stretch bordering Barnes
Sound, experiences wave runup or "piling" with strong E and NE winds.
• MM 113, the Point Laura Marina Area, borders Barnes Sound is similarly
susceptible to strong E and NE winds.
• MM 73.5 to approximately MM 74.5, the Lower Matecumbe area known as
"Sea Oats Beach", vulnerable to NE / E / SE wind driven wave run-up.
• MM 30 -31, Big Pine Key. The area north of the Big Pine Plaza Shopping
Center encompassing Wilder Road and Key Deer Boulevard, while not
normally vulnerable to storm surge effects, experience rainfall ponding.
• MM 9-10, Big Coppitt Key, Bayside, experiences wind -generated wave run-
up.
Hurricane Andrew, Hurricane Georges, Tropical ,Storm Mitch. Transportation disruptions
in the Keys occurred during evacuations for Hurricane Andrew and Hurricane Georges.
Following Tropical Storm Mitch and Hurricane Georges, debris on U.S. 1 somewhat
impeded traffic flow. Both of the areas airports, Key West Airport and Marathon Airport,
were closed before Hurricane Georges moved through the area. Damage to the airfield
lighting at the Key West Airport closed the facility for five days. The Marathon Airport did
not suffer any notable physical damage, but was closed for four days for debris removal and
assessment and repair.
Hurricane Wilma. The Monroe County Public Works Division reported the following:
• Twenty-five separate work orders were issued for sign repairs in the upper
Keys ($12,799) and Lower Keys ($29,732).
• Repair of revetment at the Long Key transfer station ($47,199).
• Road repairs on Lobster Lane, Key Largo ($4,869).
• Repairs to asphalt and limerock base on Seaview Avenue, Conch Key
($8�900).
• Repairs to various roads in the Lower Keys ($299,375).
Monroe LMS (2010 Update) 5-18
• Repair of asphalt and limerock base, 450 linear feet of riprap barrier wall, and
750 linear feet of new riprap barrier wall (considered as "mitigation") at the
end of Boca Chica Road (estimated $3 82,000).
• Repaired several street lights ($12,000).
• Storms were cleaning in the Lower Keys ($15,000).
• Repair of traffic signal equipment that was deteriorated by corrosion likely
caused by salt water/moisture intrusion at several locations; it is likely the
damage is attributable to Hurricane Wilma, even though the work was done
nearly a year after the storm.
5.5.3 Communications
Most telephone service in the Keys is directed through facilities in Miami, although some
local capability provides services within single exchanges. To ensure redundancy, two
major trunk fibers are furnished from Homestead on the mainland to Key West (one buried
and one aerial). However, most cable lines are located along the underside of fixed bridges,
making them vulnerable if bridges fail. Installing sub -surface cable is not feasible because
of rock substructure; environmental considerations inhibit underwater installations.
Communications infrastructure suffered in Hurricanes Andrew and Georges, downing
towers and antennas in Dade County (cell towers, radio and TV towers, and repeaters) and
damaging poles and switching equipment. The NOAA weather radio transmitter in Key
Largo was damaged in Hurricane Andrew. Winds associated with Hurricane Georges
destroyed the Key West Police Department's communication's tower. Major
communication problems result from loss of electrical power.
The Monroe County Sheriff's Office Florida Keys reported installing a special door to
protect the 911 equipment room from flooding.
5.5.4 Water Supply
Although Monroe County receives approximately 42 inches of rainfall per year, there are
virtually no fresh water sources in the Upper Keys due to characteristics of the underlying
limestone base rock. Some small fresh water lenses exist in the Lower Keys, primarily in
Big Pine Key and Key West. Consequently, virtually all -potable water comes from the
Biscayne Aquifer in Florida City via pipeline owned and operated by the Florida Keys
Aqueduct Authority. The main pipeline that connects to the Upper Keys is laid underwater;
some distribution pipelines are connected to roads and bridges and thus vulnerable to
washout.
The Florida Keys Aqueduct Authority is an independent Special District created by the State
of Florida Legislature, with the primary purpose and function to obtain, treat and distribute
Monroe LMS (2010 Update) 5-19
an adequate water supply to the residents and businesses of the Florida Keys. In 1998, the
Florida Legislature modified the Authority's enabling Act to include providing wastewater
collection, treatment and disposal throughout the unincorporated areas of Monroe County,
with the exception of Key Largo. The Authority manages the infrastructure used to supply
water and wastewater services to its customers in the Florida Keys, sets rates and provides
customer service.
The Florida Key's Aqueduct Authority's mitigation and response activities include:
The Authority's pipeline originates in Florida City in south Miami -Dade
County. It ensures that the supply is protected from hazards and complies with
South Florida Water Management Districts permit requirements, including
identification and use of alternative sources. The Authority also operates and
maintains two Reverse Osmosis emergency water treatment plants in the
Florida Keys, to provide an alternate source when water cannot be supplied
through the pipeline.
The Authority participates in developing policies and procedures for
responding to and recovering from shortages or disruptions in the supply and
delivery of electricity, potable water, waste water collection and treatment and
other fuels which affect or threaten to affect significant numbers of citizens
and visitors.
The Authority, an agency of the State, has contingency plans and works diligently to provide
water in the event of a hurricane in the Keys. Although not required to obtain local building
permits, FKAA is required to meet or exceed the latest edition of the Florida Building Code
when building or renovating its facilities. In addition, FKAA complies with the minimum
design standards for flood protection of water and wastewater infrastructure and the
standards set by the Florida Department of Environmental Protection. Some redundancy for
the regular supply line was provided by restoring two reverse osmosis plants: the Marathon
facility would serve the Middle Keys and the Stock Island (Key West) facility would serve
the Lower Keys. All primary pumping and water treatment facilities have backup power
generation capability.
Hurricane Andrew: The water treatment plant in Florida City was damaged (lost roof on
control room; roof on high service pump building; loss of Quonset hut; other minor building
damage; partial loss of communication system). The only impact to customers was
discontinuation of lime softening at the plant.
Hurricane Georges: The Florida Keys Aqueduct Authority reported that little, if any,
disruption occurred in the transmission system during Hurricane Georges. Distribution
system disruptions occurred in isolated areas due to broken water mains caused by uprooted
trees. Wave action on the ocean side of the Spanish Harbor Bridge washed out a portion of
Monroe LMS (2010 Update) 5-20
the approach road and exposed about 250 feet of 24-inch transmission main (subsequently
relocated to the roadway). As a private non-profit entity, FKAA was eligible to receive
$1.69 million in federal disaster assistance. The assistance was used to rehabilitate damaged
facilities.
All new or replaced pump stations are built above the estimate storm surge level of 14 feet
above mean seal level. Other new structures are hardened to help withstand storm damage
and protection operational capacity. An existing transmission station was retrofit with
floodproofed doors.
Private water wells that draw from shallow freshwater sources can be contaminated by
flooding, whether from storm surge or ponded runoff. A number were contaminated by
floodwaters in Hurricane Georges, especially on Big Pine Key, where it appears that flooded
septic tanks, cesspools and drain fields overflowed. After that event the South Florida
Water Management District provided funding to the FKAA to install distribution mains to
homes on Big Pine Key that had wells contaminated by the tidal surge. The project also
supported environmental objectives related to the Key Deer, and endangered species, by
reducing withdrawals from the fresh water lens.
Hurricane Wilma: In its 2007 Comprehensive Annual Financial Report, the FKAA
reported having sustained no significant infrastructure damage and there were no
interruptions of service.
5.5.5 Electric Power
Electric power is supplied by Florida Keys Electric Cooperative (FKEC) from the Upper
Keys to Marathon, and by Keys Energy Service (KEYS) from Sunshine Key to Key West.
The two agencies cooperate to provide the best service for the area. Both utilities purchase
power from larger suppliers.
Keys Energy Service has the capability to generate electricity at its plant in Key West. The
FKEC has limited generating capability at its Marathon Plant. With the exception of the
private community of Ocean Reef in North Key Largo, the majority of electric lines in the
county are above -ground. Due to vulnerability, power poles are not located on bridges but
are submerged. Subsequent to Hurricane Andrew, some poles were re -designed to
withstand higher wind forces. Both electric utilities have replaced older equipment with
newer, more resilient designs and materials.
Hurricane Andrew: Due to the loss of the Florida Power and Light Company's electrical
tie line in Dade County, Monroe County's approximately 78,000 residents were without
power or on limited power for approximately two weeks. The Florida Keys Electric
Cooperative reported a $130,000 loss of utility poles and related infrastructure. A report by
Monroe LMS (2010 Update) 5-21
the Florida Sea Grant Program identified lack of power as one the most significant factors
affecting businesses and, while such damages were difficult to quantify in a monetary sense,
they "left an indelible economic footprint on many businesses in the Keys."
Hurricane Georges: The Lower Keys experienced significant disruption of electric power.
Damage to transformers, power poles, and transmission lines was responsible for
widespread power outages, especially in areas serviced by Keys Energy Service. Power was
restored on a priority basis with efforts directed at hospitals and critical services. Most
electricity was reestablished within two weeks; however, as with most disasters, restoration
in the hardest hit areas progressed more slowly. Power outages created major economic loss
to Key businesses that are heavily dependent on the tourist trade. Disaster related
unemployment, primarily due to the lack of electricity was significant because of loss of
jobs in the service industry.
Hurricane Wilma:
Florida Keys Electric Cooperative (FKEC) reported that its power
transmission system sustained no damage and was able to transmit power
immediately after Hurricane Wilma. The power distribution system sustained
moderate damage, with repair costs totaling $712,500. Damage was sustained
by the land -based portion of the distribution system (downed primary taps,
broken poles, transformer failures) and by the Channel Five water crossing,
where severe winds caused disconnection of the wires. Overall, FKEC
assessed that its power distribution and power transmission systems held up
well, with limited outage.
Keys Energy System (KEYS), in the Lower Florida Keys, experienced only
moderate damage to its system. The utility had very minor damage to the
main transmission 13 8kV line from the mainland power grid. In the
distribution system, 68 utility poles failed (less than 0.5% of all poles).
Seventy eight (78%) of customers had service restored within 24 hours.
Within 72 hours, 93% of KEYS' customers had electrical service
reestablished. Power was restored in accordance with a "Restoration Priority
Plan" (i.e. hospital, EOC, critical customers) approved by local governmental
agencies. KEYS activated its Mutual Aid Agreement with Florida's utilities
and contractors. Approximately 112 outside crews and supporting staff
assisted KEYS in the restoration efforts. Total damage was approximate $3.6
million, with impacts to transmission, distribution, generation, and other
support building locations. Even though Hurricane Wilma was a major flood
event, KEYS experienced minimal damage to its underground lines.
5.5.6 Wastewater Facilities
Hurricane Georges: The State's Hurricane Georges assessment report noted that domestic
wastewater facilities were surveyed in the two weeks following the storm. All regional
facilities remained functional throughout the event, including facilities in Key West and Key
Monroe LMS (2010 Update) 5-22
Colony Beach. Approximately 250 package treatment plants are located throughout the
County to serve such uses as motel, mobile home and RV parks, restaurants, and others.
The loss of power to these small package plants did not result in overflows. While power
was being restored, to prevent health and safety problems sewage was hauled away from
these small collection systems.
5.5.7 The Economy
Disruption of the local economy is an anticipated consequence of hurricanes that directly
affect the Florida Keys. Although major storms may generate debris and cause building and
infrastructure damage, the most detrimental short-term impact of large and small storms is
caused by the loss of electric power. The most significant long-term impact would be
caused by major damage to U.S. 1. Lengthy repairs and limited easy access to the Florida
Keys would directly affect tourism and the flow of goods.
The Florida Keys are susceptible to economic disruption because the primary industries are
related to retail sales, service, tourism, and fishing. Events that cause visitors to stay away
would result in economic loss to local businesses and loss of tax income to local
governments. The fishing industry would suffer economically with loss of power (affects
ice production) and transportation disruption (affects transport to the mainland).
With a relatively high percentage of retirees in the area, interruption in government services
that provide social security, disability, unemployment, and welfare payments would result in
some economic impacts.
Major disasters can create a "domino effect" that can hurt the economy. For example, major
damage and loss to residential properties can lead to displacement of people. Decrease in
population means loss of clientele for local businesses. Businesses themselves may be
destroyed or damaged to the degree that they cannot operate (whether short- or long-term).
Even without initial major population relocation, business closings can contribute to reduced
services, leading some to relocate in the short-term. Business closings and destruction or
severe damage of facilities like schools, libraries, and other public buildings may eliminate
jobs (even in the short-term) may lead some people to leave the area.
Since 1998, the Florida Keys Employment and Training Council has noted the significance
of disasters on employee dislocation, unemployment, and underemployment. Because of the
nature of the economy and the severe shortage of affordable housing, many employees do
not have a stable economic base. Even a minor interruption in business may have serious
effects on the work force. Given the already short supply of housing, another complicating
factor is the likely reduction in the housing supply due to damage.
Monroe LMS (2010 Update) 5-23
Hurricane Andrew and Hurricane Georges: Both Hurricane Andrew and Hurricane
Georges caused economic disruption in Monroe County, primarily due to the interruption of
tourism. In addition, the fishing industry was hard hit due to the loss of many seafood traps,
lack of ice for storage, and transportation disruption. Loss of power disrupted not only
hospitality and retail businesses, but affected gas stations that could not pump and were slow
to receive fuel because of transportation disruptions. The loss of more than 80 channel
markers throughout the Keys curtailed boating and caused the suspension of cruise ship
visits. In addition, the County and municipal governments were affected by a reduction in
sales, infrastructure, and bed tax revenues immediately after the storm, resulting from
business slow -downs.
Hurricane Wilma: It has been reported that a number of permanent residents moved out of
the area after flooding rendered at -grade dwelling units uninhabitable. Because affordable
housing is limited throughout the Keys, the damage to those living units has an adverse
impact on an already difficult housing market which makes it more difficult for low income
residents and, in turn, affects the available work force.
5.5.8 Environmental Resources
After Hurricane Andrew in 1992, the Monroe County Cooperative Extension Service
received a grant to study environmental consequences. The study, "The Effect of Hurricane
Andrew on Monroe County's Natural Resources and Its Dependent Industries," identified
natural resources affected by the hurricane. It states that impacted resources include "pine
rocklands, hard wood hammocks, mangrove forests, cypress domes, the freshwater regimes
of the sawgrass community, and the coral reefs offshore of Key Largo."
The study notes that although South Florida ecosystems have evolved to adapt to natural
episodic massive disturbances, including hurricanes, droughts, wildfires, and freezes, the
growth of urban environments has significantly altered the ecology and ability of the
ecosystems to respond and recover from catastrophic events.
Mangroves are very important to the environment of the Keys and serve as protective
buffers in storms. Hurricane Andrew damaged the mangroves in Everglades National Park
as severely as 80-95% in places, although areas south of the hurricanes' eye experienced
more limited defoliation and branch damage. The study demonstrated that trees continue to
suffer after the passage of a storm; initial estimates of mortality eventually were increased
by up to 50%. Delayed mortality has been observed following past hurricanes, sometimes
up to 2 years after the initial event.
Marsh Communities appeared to have survived Hurricane Andrew with little apparent
damage, although the loss of periphyton, (which fish feed on) could affect "fish
abundances." Pineland damage had a positive influence because of increased sapling
Monroe LMS (2010 Update) 5-24
growth. Hardwood hammocks are more susceptible to wind damage than pines. In North
Key Largo, Hurricane Andrew damaged about two-thirds of the upland hardwood hammock
trees.
Because Hurricane Andrew came ashore north of Monroe County, the Florida Keys reefs,
including those in the Key Largo National Marine Sanctuary, were spared the affects of
hurricane force conditions. Hurricanes can cause major damage to coral reefs; in past
surveys in Puerto Rico, it was found that major hurricanes leave behind considerable breaks
in coral formations.
Hurricanes can have a variety of impacts on fishery resources, including short-term and
long-term impacts that are detected only after extended monitoring. After Hurricane
Andrew, three species appeared to experience harvest declines in 1992 and 1993: Spanish
Mackerel, Dolphin, and Spiny Lobster. In addition, there was a consistent decline in shrimp
following the storm, but catches increased in the following year.
A survey of the commercial fishing industry after Hurricane Andrew, found that 53% of 43
survey respondents reported adverse impacts, primarily in the lobster industry because the
storm occurred during the lobster season. The industry experienced inventory loss (virtually
all 1 million traps were in the water), disruption of utilities (electric power to make ice),
communications (for sales transactions), and transportation.
Overall, hurricanes are necessary and natural occurrences for the historical maintenance of
the natural environment of the Florida Keys. Although Hurricane Andrew caused a
relatively minor disruption of the portion of Monroe County's economy that is based on
natural resources, the event pointed out opportunities to mitigate the impacts on the industry.
In particular, restoration of power is a high priority.
Hurricane Wilma: Hurricane Wilma, particularly its storm surge, severely damaged pine
rocklands throughout the Florida Keys National Wildlife Refuges. Virtually all pines on
Cudj oe Key were killed, with high mortality of both young and mature trees on Big Pine,
Sugarloaf, and Little Pine Keys. Within a month of the storm's passage, boring insects
attacked and killed significant numbers of the surviving pines on Big Pine Key. Recovery
of the pinelands will be protracted and on Cudj oe Key especially, recovery is far from
assured.
All backcountry islands in Great White Heron and Key West National Wildlife Refuges
were severely damaged by Hurricane Wilma, with both wind and storm surge exacting a
toll. Virtually all vegetation was either defoliated or killed. Little Crane Key was nearly
obliterated, with only a few isolated trees left standing. As of late 2009, most backcountry
islands are on the way to recovery.
Monroe LMS (2010 Update) 5-25
A noteworthy large sand island near Boca Grande Key was created by Hurricane Wilma. In
the 2006 and 2007 seasons the site harbored nesting roseate terns, the first known nesting by
this species in Key West National Wildlife Refuge. Fifty-four bird species, including 4
federally listed species, have been observed at the site. The island has progressively shrunk
due to erosion and is now less than 10% of its original size.
5.5.9 Historic Resources
Monroe County has many historic structures that are listed on the State and National
Registers of Historic Places. These structures are owned by the State, the County, and
private owners. Many historic properties, especially in Key West, attract many visitors.
In recent years, properties and sites that are listed on the National Register of Historic Places
have not sustained major damage because the Keys have not had any landfalling major
hurricanes. The Old Monroe County Courthouse, a state-owned building, has suffered wind
damage in the past. It was retrofit with window protection using FEMA' s Hazard
Mitigation Grant Program funds. FEMA's funds also were used to retrofit the steeple of the
Old Key West City Hall with motorized hurricane shutters. In 2005, flooding associated
with Hurricane Wilma was approximately 14" deep, flooding the entire ground floor of the
Old Key West City Hall, destroying all of the doors. The tenant abandoned the space
because the saturated interior led to mold growth. Repair work was completed in January
2009: all old finishes were removed, mold was remediated, and retaining walls and impact
windows were used to infill the large arched openings. The total cost of repairs was
approximately $350,000. The Key West Arts & Historical Society operates three historic
sites. During the 2004 and 2005 hurricane seasons, each site suffered significant damage:
• The Custom House Museum (State owned). During Hurricane Wilma, the
basement was flooded, damaging all of the fire protection and electrical
equipment. The roof and winds were damaged by wind and water intrusion
contributed to interior damage.
• The Lighthouse and Keeper's Quarters Museum is located on high ground.
During Hurricane Wilma, windows and shutters were damaged by wind. The
fence has deteriorated because of inundation.
• Fort East Martello, located near the airport, is flooded during most hurricanes,
affecting the interior courtyard and the citadel. In Hurricane Wilma,
floodwaters destroyed the massive front doors and damaged the gift shop.
Monroe LMS (2010 Update) 5-26
5.6 2010 Updates
The LMS Working Group reviewed and updated the pertinent sections. Some of the more
significant changes include:
• Added explanation that the Working Group reconfirmed its 2005
assessment that, although prepared in 1999, the hazard identification and
risk assessment are sufficient for the intended purpose (updated to reflect
events).
• Updated Presidential disaster declarations. Revised the new Saffir-
Simpson Hurricane Wind Scale.
• Section 5.1.2: Added summary tables of NFIP repetitive loss data.
• Section 5.2: Added surge zone map and map of hurricane tracks.
• Section 5.3: Added description of Hurricane Wilma.
• Section 5.4: Updated descriptions of FEMA's Public Assistance and
Individual Assistance programs. Added data on recovery costs for
hurricanes Ivan, Dennis, Katrina and Wilma and Tropical Storm Fay.
• Section 5.5: Added summary of impacts of hurricanes in Monroe
County, from the State Hazard Mitigation Plan.
• Several subsections: Added description of impacts of Hurricane Wilma.
• Section 5.5.1: Updated data on mobile home parks and hotel/motels.
Noted the Working Group considered adjusting the 1999 TAOS results.
• Section 5.5.8: Revised text to note and describe the effects of hurricanes
in 2004 and 2005 on historic resources.
Monroe LMS (2010 Update) 5-27
Monroe LMS (2010 Update) 5-28
Chapter 6: Other Hazards & Risks
6.1 Introduction
Hurricanes and tropical storms pose major risks to Monroe County due to high winds and
flooding (the effects of those storms are addressed in Chapter 5). Other natural hazards
addressed in this chapter that affect the area to a lesser degree are high winds other than
hurricane (severe storms/tornadoes), rainfall flooding, drought, wildland fires, and coastal
erosion. These hazards are not profiled with the same degree of detail as hurricanes/coastal
storms because they do not represent the same level of risk and do not threaten large areas
nor affect many people. This is reflected in the summary table at the end of the chapter that
identifies the relative vulnerability. As described in the following sections:
• Strong storms, including tornadoes and water spouts can equally affect the
entire county. As with hurricanes and coastal storms, all types buildings are
exposed to the effects of winds, with those that pre -date building code
requirements somewhat more vulnerable than more recent buildings (Section
6.2);
• Rainfall pooling and occasional flooding of depressed areas occurs locally in
Marathon and Key West, without severe property damage (Section 6.3);
• Drought affects the entire county, is managed by the water providers, and does
not result in property damage (Section 6.4);
• Wildland fire risk is very localized, has affected only small areas in the past,
the impacts are limited because of effective response capabilities (Section 6.5);
and
• Coastal erosion areas have been identified only in a state study; there is
insufficient reported evidence that many private properties with buildings are
experiencing significant erosion (Section 6.6).
In 2009, the Working Group agreed that the hazard identification and risk assessment
content in this chapter, combined with Chapter 5, continues to characterize the hazard and
risks and are acceptable for the purposes of relative ranking. Prior to initiation of the 2015
Update, the Working Group will reevaluate whether it is appropriate to revise the risk
assessment using FEMA's GIS-based tools.
Recent advice from NOAA/NWS is that, although extremely rare, some tsunami hazard
exists for the Atlantic and Gulf coasts for elevations less than 15 feet above mean high tide
and within 300 feet horizontal distance from mean high tide line. Because seismic and/or
tsunami events have been so rare, they are not further considered in this Plan.
Monroe LMS (2010 Update) 6-1
Other hazards that do not affect the area include landslides/sinkholes, dam/levee failure
flooding, and winter storms; thus, these hazards are not addressed by this Plan. Winter
storms and freezes do not pose risks to agricultural interests and property because of the
climatological and meteorological characteristics of the Keys. The winter of 1981 was
especially cold, with temperatures in the low 40°s (record low was 3 5 °F at Coral Key
Village). In mid -January 2010, the Florida Keys experienced one of the longest and most
intense periods of cold weather recorded, with temperatures remaining more than 10 degrees
below normal for nearly two weeks. The greatest effect of an unusually low temperature
would be a resulting low wind chill factor and the National Weather Service Weather
Forecast Office in Key West issues wind chill advisories from time to time.
Numerous federal agencies maintain a variety of records regarding losses associated with
natural hazards. Unfortunately, no single source is considered to offer a definitive
accounting of all losses. The Federal Emergency Management Agency maintains records on
federal expenditures associated with declared major disasters. The National Climatic Data
Center (NCDC) of the National Oceanographic & Atmospheric Administration collects and
maintains certain data in summary format, indicating injuries, deaths, and costs, although the
basis of the cost estimates is not identified and the reports are not independently verified
(http://www.ncdc.noaa.gov/oa/climate/severeweather/extremes.html).
6.2 Strong Storms, Including Tornadoes & Water
Spouts'
The term "strong storms" is used to cover weather events that exhibit all or some of these
characteristics: high winds (including tornadoes), heavy rainfall, lightning, and hail.
Generally, thunderstorms form on warm -season afternoons and are local in effect. Storms
that form in association with a cold front or other regional -scaled atmospheric disturbance
can become severe, thereby producing strong winds, frequent lightning, hail, downbursts
and even tornadoes. Strong storms are equally likely to occur through the entire extent of
Monroe County.
Of the estimated 100,000 thunderstorms that occur each year in the U.S., only about 10% are
classified as severe (produces hail at least 1 inch in diameter, winds of at least 58 miles per
hour, or tornadoes). In Monroe County, most strong storms do not cause property damage
unless the storm spawns a tornado.
Strong storms generally produce lightning, which kills more people in Florida, on average,
than any other weather related phenomenon. Lightning is defined as a sudden and violent
discharge of electricity from within a thunderstorm due to a difference in electrical charges
and represents a flow of electrical current from cloud -to -cloud or cloud -to -ground.
1 The Monroe County LMS Working Group gratefully acknowledges the contributions to this section by Andrew Devanas,
Science and Operations Officer, National Weather Service Office in Key West, FL.
Monroe LMS (2010 Update) 6-2
Nationally, lightning causes extensive damage to buildings and structures, kills or injures
people and livestock, starts many forest fires and wildfires, and disrupts electromagnetic
transmissions.
Figure 6-1 shows Figure 1609 from the 2007 Florida Building Code which delineates
windborne debris regions and the "basic wind speed" used to design buildings to withstand
reasonably anticipated winds in order to minimize property damage. In Monroe County, the
"design wind" speed is 159 miles per hour (3-second gust measured at 33 feet above the
ground). A probability or recurrence interval is not assigned to the design wind speed. The
structures that are most vulnerable to high winds, especially winds that reach the design
wind speed of 159 mph, are mobile/manufactured homes and recreational vehicles. Data
from the Monroe County Property Appraiser (see Section 5.5.1) indicates there were 5,619
mobile/manufactured home units.
A tornado is a relatively short-lived storm composed of an intense rotating column of air,
extending from a thunderstorm cloud system. Tornadoes may be spawned from storm
systems associated with hurricanes and tropical storms. Average winds in a tornado,
although never accurately measured, are thought to range between 100 and 200 miles per
hour; extreme tornadoes may have winds exceeding 300 miles per hour. The Enhanced
Fuj ita Scale, Table 6-1, classifies tornadoes by wind speed and is accompanied by a series of
28 damage indicators (http://www.spc.noaa.gov/efscale/ef-scale.html).
-Monroe County wind Speed Lines
Monroe County Wind Speed Line Deseril!!!l L
Windload requiremmenn,
All t ajoj` stt-actures within, muncoaperated Mouroe
Coiusty. except mobile.'rx-nnufactured homes. mall be
designed ptu4sm-ml to the requffemenrs of ASCE -95
using a ruinimniu -wind _'.peed of one liundred fife (150)
nules per hour.
Monroe County Wind Speed Lines
`vl ajor Road&
US S 1-24,000 Roads
Public Land Surrey System
County Boundary
150 MPH
160 MPH
N A" t
+ • 11 la •rN �a I.L
Vles
■ �� � � • • F I � ' i e .
MPH
Figure 6-1. Monroe County Wind Speed Lines
Monroe LMS (2010 Update) 6-3
A water spout is a violently rotating column of air over water, often spawned from a strong
or severe thunderstorm. Waterspouts that come ashore are classified as tornadoes.
Fortunately, most waterspouts dissipate over water and do not result in many deaths or
serious injuries. However, over water they are a threat to marine interests.
Table 6-1. Enhanced
Fujita Scale
Scale
3-Second Gust
(miles per hour)
E F-0
65 to 85
E F-1
86 to 110
E F-2
111 to 135
E F-3
136 to 165
E F-4
166 to 200
EF-5
Over 200
On the U.S. mainland, tornado paths range from a few feet long to as long as 300 miles.
Path widths average 300-400 yards, but severe tornadoes have cut swaths a mile or more in
width, or have formed groups of two or three funnels traveling together. On the average,
tornadoes move over land at speeds between 25 and 45 miles per hour, but speeds of up to
70 miles per hour have been reported. Tornadoes rarely linger more than a few minutes over
a single spot or more than 15-20 minutes in a 10-mile area, but their short periods of
existence do not limit the devastation. The destructive power of the tornado results
primarily from its high wind velocities, sudden changes in pressure, and windborne debris.
Since tornadoes are generally associated with severe storm systems, they are often
accompanied by hail, torrential rain and intense lightning. Depending on intensity,
tornadoes can uproot trees, bring down power lines and destroy buildings.
Strong Storm &Tornado/Lightning Experience and Probability
Tornadoes
Most tornado deaths in Florida occur during the fall, winter, and spring seasons when
stronger dynamics are present in the atmosphere capable of producing
`supercell'/mesocyclone thunderstorms." According to the National Weather Service
Weather Forecast Office in Key West, there is an equal likelihood of any one area in the
Florida Keys being impacted by a tornado. This demonstrates that the low-lying terrain and
narrow islands do not appreciably slow onshore winds, nor does the topography and
configuration of the islands favor tornado development in any specific area.
Monroe LMS (2010 Update) 6-4
Half of tornadoes in Florida occur in the summer months from May through August, but
only less than 10% of tornado -related deaths happen during this period of time. Most
tornado deaths occur during seasons when stronger atmospheric dynamics may produce
supercell/mesocyclone thunderstorms. Figure 6-2 illustrates the frequency of tornado
occurrences in the State, and shows that Monroe County falls in the mid -range, having
experienced between 40 to 70 tornadoes during the 52 year period between 1950 and 2002.
The State Hazard Mitigation Plan (2007) identifies the entire population and total building
inventory as being at risk of impacts by tornadoes (SHMP Table 3.3.11).
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Historical Tornado
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100 to 50
70 to ' 0-0
40 to 7-0
20 to 40
R. to 2
0 to
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Figure 6-2. Frequency of Tornadoes: 1950-2002 (SHMP Figure 3.3.12).
Table 6-2 summarizes tornadoes that affected Monroe County from 1959 to mid-2009 and
Table 6-3 lists detail on tornadoes that hit the area between 1998 and mid-2009. During the
50 year span reflected in the two tables:
Monroe LMS (2010 Update) 6-5
A tornado of intensity FO or F 1 occurs, on average, about once each year; and
• F2 tornadoes, much rarer with only 6 reported associated with two hurricanes,
caused most injuries and considerably more property damage.
• More intense tornadoes appear unlikely.
Table 6-2. Tornadoes: 1959 - 1995
Fujita
Scale
# Tornadoes
Reported
Deaths
Injuries
Cumulative Damage
(not adjusted)
F-0
33
0
5
More than $5 million
F-1
15
0
0
More than $30 million
F-2
1 6
1 0
1 71
1 More than $55 million
Table 6-3. Tornadoes: 1998 — 2009
Location
Affected
Date
Fujita
Scale
Deaths
Injuries
Damage
Marathon
February 1998
F-1
0
0
$20,000
Islamorada
February 1998
F-0
0
0
Key West
June 1998
F-0
0
0
$15, 000
Islamorada
November 1998
F-1
0
0
$100,000
Rock Harbor
November 1998
F-2
0
0
$50,000
Key Largo
November 1998
F-2
0
20
$25 mil
Key West
May 1999
F-0
0
0
Rick Harbor
September 1999
F-0
0
0
Craig Key
October 1999
F-1
0
0
Key West
October 2000
F-0
0
0
Big Pine Key
July 2000
F-0
0
0
$15,000
Big Pine Key
August 2000
F-0
0
0
Key West
October 2003
F-0
0
0
Marathon
June 2005
F-0
0
0
$5,000
Marathon
August 2005
F-2
0
0
$5 mil
Sugarloaf Key
June 2007
F-0
0
0
$20,000
Marathon
June 2007
F-0
0
0
$3,000
Marathon
February 2008
F-0
0
0
$2,000
Big Coppit Is
August 2008
F-0
0
0
$1,000
Summerland Key
August 2008
F-0
0
0
$1,000
Upper Key Largo
September 2008
F-0
0
0
$25,000
Craig Key
September 2008
F-1
0
0
$120,000
Sugar Loaf Key
September 2008
F-0
0
0
0
Stock Island
I September 2008
1 F-0
1 0
1 0
1 0
Source: NCDC online
Monroe LMS (2010 Update) 6-6
Lightning
Florida leads the nation in lightning deaths and injuries, with most occurring from May to
October (peaking in July). People near water appear to be at greater risk. Because the
Florida Keys are surrounded by water and most tourism and recreation activities are water -
based, lightning is a significant hazard (Table 6-4).
Table 6-4. Lightning Deaths/Injuries (1959-2009)
Date
Death
Injury
Remarks
September 1959
0
1
Bridge tender
October 1962
0
1
Unknown
June 1974
1
0
Trash collector in vehicle
July 1976
1
1
Fishing boat
August 1980
1
0
Fishing from bridge
September 1982
1
1
Snorkeling
June 1983
1
0
Fishing from bridge
August 1986
0
1
Standing under tree
August 1990
0
1
Fishing from boat
July 1995
0
1
Police officer next to car
July 1997
0
1
Unknown
July 2000
0
1
Fishing boat
August 2001
0
1
Restaurant employee
July 2009
0
1
White St pier
Total
5
10
Average of 0.1 deaths and 0.2 injuries per year
Source: NWS Warning Meteorologists, Miami & Key West
Notable Storms
A significant non -tropical weather event that affected Monroe County was the "Storm of the
Century," a very strong winter storm that occurred from March 12-23, 1993. Moving from
Florida's West Coast across the state and up the eastern seaboard, the storm eventually
wreaked havoc from Florida to New England. It brought heavy rains, wind, and coastal
flooding to the Southeast and blizzard -like conditions in the Northeast. When it was finally
over, the total damage estimates were over $800 million (over $200 million in Florida). The
Florida Keys experienced high winds and tides and substantial amounts of rainfall and the
County was among the 38 counties declared a Presidential disaster area.
A particularly active year was 1998. The first event of that year, referred to as the "Ground
Hog's Day Storm," occurred on February 2, 1998 and involved multiple tornado
touchdowns. Areas most affected were the Middle Keys including Grassy Key and Valhalla
Beach in the vicinity of Duck Key. Several buildings were damaged. Also significant
problems arose from the displacement of lobster traps which contributed to seaborne debris
and navigational problems. The fishing industry suffered considerable loss of income.
Monroe LMS (2010 Update) 6-7
Another notable weather event occurred on July 4, 1998, when severe thunderstorms with
lightning and high winds came up quickly in the Middle Keys. The Key West Weather
Service Office recorded sustained wind speeds up to 70 mph. Because it was July 4th' many
boats were offshore celebrating and waiting for fireworks displays. One boat capsized,
resulting in a fatality. This storm did not prompt a major disaster declaration.
The most damaging tornadoes in 1998 were spawned by Tropical Storm Mitch on
November 4 and 5. Islamorada experienced an F-1 tornado, while Rock Harbor and Key
Largo were hit by F-2 tornadoes. One tornado moved at 30 mph, tearing down utility lines,
damaging boats, and damaging more than 600 structures, many of them were mobile homes.
6.3 Rainfall/Fresh Water Flooding
Flooding due to the accumulation of rainfall generally is not a problem in most of Monroe
County and the municipalities. Most of the rainfall runs off into the surrounding seas. The
rainfall which is caught in closed basins (depressed areas which collect rainfall and rainfall
runoff) usually will drain relatively quickly because the underlying coral rock and limestone
soils have high infiltration rates. The exceptions to this are:
• The City of Key West does experience some freshwater flooding when storm
drains cannot handle the volume of runoff and the excess flows through the
streets, often more than one -foot deep and more than two -feet deep depending
on the tidal cycle; some low areas do not drain well, resulting in ponding. The
city maintains records of the locations of these areas and actively pursues
projects to improve drainage.
• The City of Marathon has identified several locations where ponded water that
can range in depth from one to three feet deep causes access problems and can
affect older, non -elevated, buildings. The city maintains records of the
locations of these areas and actively pursues projects to improve drainage.
The most significant rainfall/fresh water flooding event occurred on November 11-12, 1980.
The storm resulted in $1 million in property damage, primarily in the City of Key West.
Known as the "Veteran's Day Storm," the event resulted from the influence of a stalled cold
front and Tropical Storm Jeanne that was over Cuba. These combined systems produced 23
inches of rain in 24 hours, the heaviest 24-hour rainfall ever recorded for the area. Even
though the water was pouring out into the surrounding seas, the intense rainfall resulted in
widespread flooding especially in streets and low-lying areas. Weather Service reports
indicated that 300 vehicles and 500 buildings were seriously damaged.
Monroe County Public Works reports that runoff from intense rainfalls generally does not
result in road or drainage swale damage, although some unpaved roads exhibit washing and
potholes.
Monroe LMS (2010 Update) 6-8
The State Hazard Mitigation Plan (2007) summarizes analyses of "population at risk" and
the dollar values of residential and commercial structures exposed "riverine" flooding
(SHMP Table 3.3.6). As used in the State Plan, "riverine" flooding is characterized as
resulting from rainfall -runoff and typically refers to flooding along rivers and streams, as
opposed to tidally -influenced storm surge. In Monroe County, the term refers to
rainfall/freshwater flooding. The results are shown in Table 6-5.
Table 6-5. SHMP Summary: Riverine Flooding Impacts (2007).
Population
Value of
Value of
Residential
Commercial
Structures
Structures
Riverine Flooding
257000
$27896 million
$648 million
6.4 Drought
A drought is defined as a prolonged period of dry weather during which there is an
inadequate supply of water to meet water demands that can have severe effects on people
animals, and plants. Lack of rainfall and adequate water supply could result in health
problems for humans, animals, and vegetation. Regulations and water restrictions may force
residents to stop the waste of any potable water or water supply. Drought may be
accompanied by prolonged periods of extreme heat.
Drought is a natural and expected part of the climate in most areas, but the severity of
drought impacts differs based on duration, geographic extent, intensity, human demand for
water, and agricultural practices. Drought can be defined as:
• Meteorological drought, an extended period of dry weather.
• Agricultural drought, a shortage of precipitation that affects crops.
• Hydrologic drought, a reduction in water content in lakes, rivers, streams,
aquifers, and soils that may affect supplies available for all users.
6.4.1 Florida's Keetch-B ram Drought Index
Y g
The Keetch-Byram Drought Index (KBDI) is used by the Florida Division of Forestry to
indicate the dryness of the soil and surface fuels. The drought index is a continuous
reference scale for estimating the dryness of the soil and duff layers. The index increases for
each day without rain (the amount of increase depends on the daily high temperature) and
decreases when it rains. The scale ranges from 0 (no moisture deficit) to 800. The range of
the index is determined by assuming that there is 8 inches of moisture in a saturated soil that
is readily available to the vegetation. Using 35 years of rainfall and temperature
2 http://www.fl-dofcom/fire—weather/information/l,-,bdi.html
Monroe LMS (2010 Update) 6-9
measurements from 9 locations throughout the state average KBDI values are determined
for the state on a regional basis. Figure 6-3 is an example of how the KBDI is illustrated
each day.
For different soil types, the depth of soil required to hold 8 inches of moisture varies
(loam=30", clay=25" and sand=80"). A prolonged drought (high KBDI) influences fire
intensity largely because more fuel is available for combustion (i.e. fuels have a lower
moisture content). In addition, the drying of organic material in the soil can lead to increased
difficulty in fire suppression.
■ 0-99
■ 100-199
■ 200-299
❑ 300-399
❑ 400-449
❑ 450-499
❑ 500-549
■ 550-599
■ 600-649 *11� 7
■ 650-699
■ 700-749
:-v Se 16 2010
■ 750+ tF p
Figure 6-3. Example of the KBDI (September 16, 2010).
6.4.2 Drought in the Florida Keys
The Florida Keys are normally characterized by an arid climate and native vegetation is
acclimated to such conditions. However, human usage of potable water continues to rise as
development occurs. The water providers for the Keys, the Florida Keys Aqueduct
Authority and the South Florida Water Management District, impose restrictions on water
use depending on conditions which are continuously monitored. Situations requiring water
usage restrictions have occurred over the last several years:
The City of Key West imposed water restrictions in November 1990.
• The City of Layton operated under water restrictions in the mid- 1990s.
• In 2001 the South Florida Water Management District imposed Phase 1 and
Phase 2 water restriction rules throughout the Keys.
Monroe LMS (2010 Update) 6-10
Late 2009, the South Florida Water Management District imposed Landscape
Irrigation Water Restrictions throughout the District's jurisdiction, including
Monroe County.
Using a simplified approach of occurrence over a given period, for the ten-year period of the
1990s the frequency of drought was 20%. This statement of frequency does not imply
severity. Indeed, the National Weather Service Weather Forecast Office indicated that
drought periods in the Keys have not been prolonged or widespread and thus drought is not
considered to be a significant hazard for Monroe County. However, the Department of
Agriculture's online archived records of the KBDI show that the maximum index recorded
for Monroe County is 764 (out of a maximum 800). Based on this, Monroe County can
expect to see severe drought conditions, even if not prolonged. Because there is relatively
little agricultural activity in Monroe, a drought that impacts the mainland source of water is
expected to equally affect the entire extent of Monroe County. Drought does not cause
property damage to buildings.
The County is supplied with water from the mainland and all residents are very aware of the
need for water conservation on a regular basis, not only during announced drought periods.
Typical usage is 169 gallons per person per day during tourist season and 96 gallons per
person per day off-season. Measures such as encouraging native vegetation and using native
ground cover vegetation in place of lawns contribute to reducing water consumption.
Compared to other counties in South Florida, Monroe County's per capita water use is at or
below average in most areas.
In mid-2009, the South Florida Water Management District issued restrictions on water use
throughout its service area, including Monroe County. During this period, the KBDI peaked
at 692 in mid -May. Water restrictions are mandatory and are enforced by the District, local
governments, and law enforcement agencies. Residents and businesses were placed on two-
day -a -week alternating schedules, with watering not allowed between 10 a.m. and 4 p.m.
The restrictions apply to all sources of water for irrigation, including wells, canals, ponds,
and lakes. Use of 100% reclaimed or supplemented reclaimed water is allowed during
specific periods of time, and low -volume systems that apply water direct to root plant zones
may be used provided no runoff is produced. Car and boat washing is allowed
(recommended over non -paved, grassy or porous surfaces), and pressure washing is allowed,
with runoff water channeled to grassy or porous areas.
6.5 Wildiand Fire
Wildland fires are defined as an uncontrolled fire spreading through vegetative fuels that
exposes and possibly destroys buildings. Wildfires are classified as either wildland (in
relatively undeveloped areas, perhaps with some basic infrastructure such as roads, power
Monroe LMS (2010 Update) 6-11
lines, and railroads) or an urban-wildland interface fire (areas with buildings and
development).
Certain conditions must be present for a wildland fire hazard to exist: a large source of fuel;
conductive weather (generally hot, dry, sunny, and windy) and lack of fire suppression
capability due to remoteness or other limitations.
High values of the KBDI, described in Section 6.4.1, are an indication that conditions are
favorable for the occurrence and spread of wildfires, but drought is not by itself a
prerequisite for wildfires. Other weather factors, such as wind, temperature, relative
humidity and atmospheric stability, play a major role in determining the actual fire danger.
High values of the drought index are associated with severe wildfire outbreaks such as
occurred during 1998. However, no threshold point has previously been determined to
indicate that conditions are far above normal and warrant concern. This work operates under
the premise that wide spread drought is accompanied by severe wildfire outbreaks. The
average KBDI is compared to recent levels of fire activity (198 1 -present) to determine
threshold levels that indicate above normal fire activity
The Monroe County Comprehensive Emergency Management Plan notes that the extent of
the brush and wildland fire threat is minimal for the majority of Monroe County. The
exceptions are the Everglades National Park in mainland Monroe, and on Big Pine, No
Name, Cudj oe, and Sugarloaf Keys in the Lower Keys where there are remnant tracts of
native pine rockland forest.
A primary cause of fires is arson, especially vandalism by school age children and escaped
campfires started by the homeless. Other factors that contribute to fires are high winds and
droughts, lightening, carelessness, and accidents. Problems can also occur, especially in
storms when downed utility lines may spark fires. Accumulated debris after hurricanes
contributes to overall fire potential, including wildland fire potential. After Hurricane
Georges in 1998, brush debris caught fire in Big Pine.
Information provided by the Florida Department of Forestry indicates that while wildland
and brush fires occur infrequently and with little significant consequence in Monroe County,
they may occur more often than many think. However, most wildfires are small and
contained quickly. On rare occasion, incidents are more serious. For the most part, fires in
the Everglades do not threaten residential properties although heavy smoke can lead to road
closures.
Since 1987, there have been 38 unintentional wildfires on U.S. Fish and Wildlife Service
lands in the National Key Deer Refuge. The largest occurred in 1992 when three wildfires
burned over 50 acres. Of the 38 wildfires, 6 were caused by lightning and 15 by arson.
Monroe LMS (2010 Update) 6-12
Fireworks have also played a role in wildland fire, indicated as the cause of 10 fires. Since
2000, an average of three wildland fires have occurred each year in the Lower Keys
affecting an average of 1.27 acres. The largest potential wildfire in the Keys is
approximately 500 acres, which is the largest contiguous block of vegetation on Big Pine
Key. The extent of any given fire is limited by the size of vegetated areas and also effective
response capabilities (described below in "Existing Mitigation Measures.")
In 2007, the Thunderstruck Fire burned 7 acres on Big Pine Key, affecting vacant property
adjacent to residential and commercial structures. The Florida Division of Forestry brought
in resources from Miami to assist in controlling the fire. The U.S. Fish and Wildlife Service
provided helicopter water drops to help control the fire spread. During this event,
firefighters from several stations worked in the yards of homes and several businesses to
prevent damage. Flame lengths on this wildfire exceeded thirty feet, and nearly all the
vegetation was killed as a result of the severity and intensity.
The Florida Department of Forestry reports that areas prone to wildland and brush fires in
Monroe County include Everglades National Park, No Name Key, Big Pine Key, Grassy
Key, Sugarloaf Key, Cudjoe Key, and Big Coppitt Key (including Geiger and Boca Chica).
As an indicator of at -risk property in these areas, Table 6-6 indicates the total number of
platted lots, the number of lots with improvements (primarily residences), and the value of
those improvements. It is important to note that this summary of all properties does not
imply that all properties would be vulnerable in any given wildfire outbreak.
Table 6-6. Summary of Wildfire Risk Areas*
Area
Total #
Parcels
# Improved
Parcels
Value of Improvements*
Mainland/Everglades
13,736
39
$1,987,917
No Name Key
504
43
$8,961,524
Big Pine Key
8,929
21741
$444,130,421
Sugarloaf Key
21284
1,033
$252,653,244
Cudjoe Key
2,952
1,521
$251,845,233
Big Coppitt Key (including
Geiger and Boca Chica)
2,627
11289
$258,465,919
Grassy Key (in Marathon
& Key Colony Beach)
9,391
6,498
$1,562,786,704
* Data from Monroe County Property Assessment (June 2005)
Monroe LMS (2010 Update) 6-13
Figure 6-4 depicts these areas in terms of potential fire behavior:
• Areas of low fire behavior potential are shown in green (flame lengths of less
than 4 feet; relatively easy to control). Fires of this intensity would be most
likely to occur in hardwood hammock areas or in areas where brush has been
removed.
• Areas of moderate fire behavior potential are shown in yellow (flame lengths
of 4-8 feet; difficult to control). These areas are characterized as marshes and
areas transitioning out of marshes into uplands.
• Areas of high wildland fire behavior potential are shown in red (flame lengths
exceeding 8 ft; very difficult to control, especially during the afternoon when
solar radiation peaks). These areas would be characterized as the pine
rockland uplands that are found on the islands in the Lower Keys, which is
also where the concentrations of structures occur.
Lower Florida Keys Fire Behavior Potential
Y
Xr
P
F � e
�P
v
it
— f F
aPhk s
Wallace, FVVS Fire Management R ` 5 5 1.0
p��j!y�
Legend
F�BF M41D
= Dow rire t1aVOF
Moderate Fire Behavior
�: High Fire Behavior
y Q NanBurnande
Figure 6-4. Lower Florida Keys Fire Behavior Potential.
Existing Mitigation Measures. Monroe County and Marathon have programs for training
and certifying volunteer fire departments in wildland fire fighting. Although, the
Department of Forestry in the Keys received new equipment in the late 1990s, staff levels
have been reduced to only two rangers for all of Monroe County. The U.S. Fish and
Wildlife Service National Key Deer Refuge has also received grant money to help train fire
Monroe LMS (2010 Update) 6-14
department personnel in wildland fire control, fires in wildland urban interface areas, and the
Incident Command System. The U.S. Fish and Wildlife Service has a full time prescribed
fire specialist/firefighter on staff in Big Pine Key, along with a tracked wildland fire engine
and a small wildland fire truck.
The following preventive measures are recommended by the Department of Forestry and the
U.S. Fish and Wildlife Service:
• Educational programs, especially for children.
• Create defensible space around buildings by removing brush and burnable
materials from around structure so that firefighters have easy access.
• Cleaning gutters to prevent build-up of burnable materials.
• Timely disposal of yard waste and household debris, particularly mattresses.
• Development of ordinances dealing with removal of brush and potentially
dangerous vegetative materials, especially during dry spells and during
hurricane season, and rapid removal of storm debris.
• When residential property is threatened by fire, the roof and yard should be
wet down to provide protection.
• Selective prescribed burning by a state -certified burn manager, to reduce the
quantities of fuel.
To deal with wildfire threats on Cudj oe Key, the Florida Division of Forestry added water
supply wells and widened some roads to improve emergency vehicle access.
6.6 Coastal Erosion
Coastal erosion is the wearing away of land or the removal of beach or dune sediments by
wave action, tidal currents, wave currents, or drainage. Waves generated by storms cause
coastal erosion, which may take the form of long-term losses of sediment and rocks, or
merely in the temporary redistribution of coastal sediments. The concept of probability of
occurrence is not applicable because coastal erosion is a long-term, on -going process.
Erosion in one location may result in accretion nearby.
The following definition has been adopted by the Florida Department of Environmental
Protection (DEP), Bureau of Beaches and Coastal Systems, to identify areas of critical
erosion:
"Critical erosion area is a segment of the shoreline where natural processes or human
activity have caused or contributed to erosion and recession of the beach or dune system
to such a degree that upland development, recreational interests, wildlife habitat, or
important cultural resources are threatened or lost. Critical erosion areas may also include
Monroe LMS (2010 Update) 6-15
peripheral segments or gaps between identified critical erosion areas which, although
they may be stable or slightly erosional now, their inclusion is necessary for continuity of
management of the coastal system or for the design integrity of adjacent beach
management projects."
Some erosion -related changes are slow, inexorable, and usually gradual. However the
changes on a beach, in contrast, can happen literally overnight, at least during a storm. Even
without storms, sand may be lost to longshore drift (the currents that parallel coastlines) or
sand may be pulled to deeper water, essentially lost to the coastal system. DEP determines
the geographic areas of the state that are at high risk of erosion. The Bureau develops and
publishes an annual report on Critically Eroded Beaches Report. The State Hazard
Mitigation Plan illustrates the critical and non -critical erosion areas in Figure 6-5.
• Red — Critical erosion beaches and inlet
• Blue — Non -critical r sio n beaches and inlets
6
Beach Erosion
Critical
NonmCritical
a- }
lop
a i
Figure 6-5. Critical and Non -Critical Beach Erosion (2007 SHMP).
Monroe LMS (2010 Update) 6-16
During the 2005 hurricane season, hurricanes Dennis, Katrina, Rita, and Wilma caused
erosion and flooding along the coastal barrier beaches of Dade County and the Florida Keys
and mainland beaches of Monroe County. The State Hazard Mitigation Plan (2007)
summarizes the number of critical and non -critical erosion areas by county. Using this
characterization to estimate the extent of erosion vulnerability, Monroe County has 7.7 miles
of shoreline designated in 8 critical areas, and 2.9 miles of shoreline designated in 3 non-
critical areas (SHMP Table 3.3.13). The DEP's Strategic Beach Management Plan (2007)
identifies erosion -prone beaches, but does not indicate the number and type of buildings and
structures that may be at risk. In Monroe County, the
locations include:
• Key West (2.8 miles)
• Bahia Honda State Park (2 miles)
• Long Key (1 mile)
• Key Colony Beach (0.9 mile)
• Fort Zachary Taylor (0.3 mile)
• Sombrero Beach (0.3 mile)
• Coco Plum Beach —West End (0.3 mile)
• Little Crawl Key (0. 1 mile)
At the November 127 2009 meeting,
LMS Work Group members noted
that the DEP Strategic Beach
Management Plan appears to
identify only public beaches that
are experiencing erosion. In
various locations in Monroe County
privately -owned shorelines (not just
beaches) are experiencing erosion.
There is no known source that
identifies all such eroding areas.
Two post -disaster projects to address beach erosion and loss of sand have been funded under
FEMA's public assistance program. On these beaches and similar sandy beaches in the area
are expected to see similar erosion in the future under similar storm conditions. Storms that
do not move through the region quickly could result in even greater loss of sand:
• Smathers Beach in Key West has been renourished several times since the late
1980s. After Tropical Storm Ike (2008), an engineering investigation
confirmed erosion of the permanent beach face of 2,453 cubic yards of sand.
• Coco Plum Beach in Marathon sustained loss of approximately 4,444 cubic
yards of sand associated with Tropical Storm Fay (2008).
6.7 Overview of Monroe's Hazards & Risks
The descriptions of hazards, hazard histories, and impacts that are detailed in Chapter 5 and
this chapter are summarized as "relative" vulnerabilities in Table 6-7. At its November 12,
2009 meeting, the LMS Work Group agreed to the following:
• Strong Storms/Tornadoes/Lightning: These hazards are related and are grouped
based on the advice of the National Weather Service representative on the LMS.
Because the relative vulnerability to strong storms is "moderate," the Working
Monroe LMS (2010 Update) 6-17
Group decided that the hazard is not sufficiently distinct (especially compared the
potential effects of hurricanes) to warrant separate and detailed profiles.
• Wildfire: Change the vulnerability ranking from "moderate" to "low," based on the
recommendation of the NWS Weather Forecast Office.
• Coastal Erosion: Add as a hazard, with a "low" ranking to reflect that while erosion
is a continual process, it is only locally significant.
Table 6-7. Hazards: Relative Vulnerability
Hazard
Vulnerability
Impact
Frequency
Distribution
Hurricane/Tropical Storm
High
Moderate
1-2 per year
Countywide
to Severe
Flooding (rainfall ponding)
High (locally)
Moderate
6-12 times
Key West &
each year
Marathon
Strong Storms/
Moderate
Moderate
1-2 per year
Countywide
Tornado/Lightning
Wildfire
Low
Moderate
Less than 1
Selected
per year
areas
Drought
Low
Low
1-2 per
Countywide
decade
Coastal Erosion
Low
Low
1-2 per year
Limited
(with coastal
selected
storms)
areas
6.8 2010 Updates
The LMS Working Group reviewed and updated the pertinent sections. Some of the more
significant changes include:
• Added explanation that the Working Group reconfirmed its 2005
assessment that, although prepared in 1999, the hazard identification and
risk assessment are sufficient for the intended purpose (updated to reflect
events).
• 6.1: Added summary of risk assessments.
• 6.2: Reorganized the section on strong storms to recognize that such
storms include the related physical hazard of lightning, strong winds
(including tornado) and hail. The Working Group decided that those
hazards are not sufficiently distinct (especially compared the potential
effects of hurricanes) to warrant separate and detailed profiles.
Subsections describe tornadoes, lightning, and notable storms and to
update event occurrences. Updated description and table about the Fujita
(which no longer characterizes damage anticipated as a function of
intensity).
• 6.3: Added potential depth of rainfall flooding in locations in Marathon
and Key West.
Monroe LMS (2010 Update) 6-18
• 6.4: Added late 2009 water restrictions.
• 6.4.1: Added description of the Keetch-Byram Drought Index (KBDI).
• 6.4.2: Added historical record of KBDI.
• 6.5: Added wildland fire incidents, relationship to KBCI, recent average
number and size of fires, and description of U.S. Fish & Wildlife Service
measures.
• 6.6: Added new section on coastal erosion, including evidence of beach
erosion in two locations.
• 6.7: Changed table of relative vulnerabilities to assign a low ranking to
wildland fire and to add coastal erosion.
• Added summaries from the State Hazard Mitigation Plan.
Monroe LMS (2010 Update) 6-19
Monroe LMS (2010 Update) 6-20
Chapter 7. Monroe County
This chapter contains an overview of Monroe County agencies and their functions as they
relate to natural hazards and hazard mitigation. This plan summarizes the functions of
Emergency Services Division, but does not characterize its functions that deal with
emergency response and immediate post -event recovery. That information is found in the
Monroe County Comprehensive Emergency Management Plan.
Chapters 8 through 12 describe the cities Key West, Marathon, Key Colony Beach, Layton,
and Islamorada Village of Islands.
7.1 County Government Structure
Monroe County, created in 1823, is a political subdivision of the State of Florida. The
powers and authority of the County emanate from the State Legislature.
The Board of County Commissioners (BOCC), which performs the legislative and executive
functions, consists of five members elected at large. Each commissioner represents one of
five districts and is elected for a term of four years. Pursuant to Florida Statute 252, the
BOCC is responsible for safeguarding the life and property of the population of Monroe
County, and to provide effective governmental control and coordination of emergency
operations.
For administrative purposes and to conduct the work of the County, the Board of County
Commissioners (BOCC) has organized County agencies into eight functional divisions, each
with several departments (Table 7-1). Selected departments that have direct or indirect roles
in addressing natural hazards are described below. Not shown are the Budget and Finance
Division (Office of Management & Budget, Purchasing, and Grants Management), the
Social Services Division (Bayshore Manor, In -Home Services, Nutrition, Transportation,
and Community Support Services), and the Office of the County Attorney.
Monroe LMS (2010 Update) 7-1
Table 7-1. Monroe County's Functional Divisions
Mitigation Role
Indirect
Division
Departments Supervised
Direct
or None
County Administrator
Airports
X
Social Services
X
Library Services
X
Extension Services
X
Technical Services
X
Veteran's Affairs
X
Project Management
X
Wastewater
X
Emergency Services
Fire/Rescue
X
Emergency Medical Services
X
Emergency Management
X
Fire Marshall
X
Upper Keys Health Care Taxing District
X
Public Works
Fleet Management
X
Facilities Maintenance
X
Detention Facilities
X
Unincorporated Parks & Beaches
X
Higgs Beach & Martello Museums
X
Engineering Services
X
Roads & Bridges
X
Solid Waste Mgnt & Recyling
X
Animal Control
X
Card Sound Toll Authority
X
Growth Management
Code Enforcement
X
Building Department
X
Planning & Environmental Resources
X
Marine Resources
X
Office of Housing & Community
X
Development
X
GIS Department
X
Employee Services
Human Resources
X
Risk Management
X
Safety Office
X
Monroe LMS (2010 Update) 7-2
7.1.1 Emergency Management Department
Chapter 252.38 of the Florida Statutes requires political subdivisions to develop emergency
plans to provide for the safeguarding of life and property of its citizens.
The Monroe County Emergency Management Department has jurisdiction over the entire
county and serves as liaison for, and coordinator of, municipalities' requests for State and
Federal assistance during post -disaster emergency operations. By State rules, each
municipal emergency management plan must be consistent with, and subject to, the county
emergency management plan. Such consistency will be evidenced in the elements of their
respective preparedness, response, recovery, and mitigation plans.
The Monroe County Comprehensive Emergency Management Plan (CEMP), establishes
official emergency management policy for all agencies and municipalities for response to,
recovery from, and mitigation of, emergencies and disasters within Monroe County.
Examples of other planning and response plans are those pertaining to Hurricane
Evacuation, Shelter, and Refuge of Last Resort Plan, Turkey Point Nuclear Power Plant
Emergency Plan, Migration, and Terrorism, among other plans and procedures.
Included among the Department's many activities are the following:
• Emergency Management is the primary department responsible for training
and public awareness as it relates to disaster preparedness; throughout the
year, personnel conduct seminars and presentations, and meetings regarding
emergency preparedness.
• Emergency Management conducts annual training programs for all county
departments and other county entities participating in Emergency Operation
Center and Shelter operations, and other emergency preparedness activities
and needs.
• Emergency Management has established a number of public information and
education programs regarding recovery efforts and available assistance.
• Hurricane preparedness information concerning mobile home, travel trailer
and RV hurricane procedures and local shelter information is disseminated to
the public via local television, radio, print media, and other media outlets, each
year prior to Hurricane Season.
• Emergency Management personnel, as part of their professional development,
are encouraged to attend State and FEMA courses.
• Local personnel are trained through programs of relief organizations
(American Red Cross and HAM radio groups).
• Monroe County conducts annual drills and exercises in, but not limited to,
hurricane response, nuclear power plant response, airport disaster response,
mass migration, cruise ships emergencies, terrorism threats, and oil spill
response. These exercises are scheduled in conjunction with the Florida
Monroe LMS (2010 Update) 7-3
Division of Emergency Management, and various County, State, and Dederal
agencies.
All agencies with emergency response roles participate in annual exercises and
drills. Drills and exercises test emergency systems such as the Emergency
Alert System, HURREVAC, Hurrevac, ESATCOM, Webinar, GoToMeeting,
NWS Chat, as well as SLOSH modeling software (Sea Lake Overland Surge
from Hurricanes).
The Monroe County Emergency Management Department is charged with facilitating,
developing, managing, monitoring and evaluating the Monroe County Local Mitigation
Strategy Plan, in cooperation with the municipalities of Key West, Marathon, Key Colony
Beach, Layton, and the Village of Islamorada. The agency coordinates with the Florida
Department of Community Affairs to process applications for mitigation grant funds.
Projects funded with hazard mitigation funds, including funds that may be made available as
part of FEMA reimbursements for damage to public facilities, must conform to established
Monroe County codes and regulations.
7.1.2 Growth Management Division
The Growth Management Division recommends and implements policies provided in the
County's Comprehensive Plan and the Land Development Regulations. The Building,
Planning and Environmental Resources, Code Enforcement, and Marine Resources
Departments are under the Division's jurisdiction. Planning staff assists in the development
of the County's Comprehensive Plan.
The Planning and Environmental Resources, Building, and Code Enforcement Departments
are responsible for reviewing construction plans, issuing building permits, assuring
compliance with the floodplain regulations, and inspecting projects during construction.
Enforcement of zoning and building standards are intended to safeguard public safety and to
minimize damage associated with high winds and flooding. Table 7-2 shows the number of
permits issued in calendar years 2007, 2008, and 2009. The Division serves as the
coordinator for the National Flood Insurance Program and assists the public in identifying
and implementing flood damage prevention measures (see Section 7.3.2).
Monroe LMS (2010 Update) 7-4
Monroe County, Florida
• Seven Inspectors
Two Inspectors hold minimal standard
certifications and five Inspectors are cross
certified in each Made; plumbing, mechanical
electrical and structural
Building Code Effectiveness Grading Schedule
rating.-
- 3 for 1-2 Family Dwellings
— 3 for Commercial
Table 7-2. Permits Issued in 2007, 2008, and 2009
Activity
CY2007
CY2008
CY2009
New single-family, detached
262
82
43
Multi -family (2 or more)
1
3
0
Non-residential (all types)
323
290
268
Residential (additions, alterations, repairs)
3,506
2,878
3,775
Non-residential (additions, alterations, repairs)
301
290
268
Demolition
284
232
226
Mobile home (permanent/temporary)
19
13
6
Total
1 4,696
1 3,788
41586
In the event of a disaster, post -damage inspections are conducted to determine requirements
that are applicable during repair and reconstruction. After a hazard event that prompts
recovery, the Growth Management Division carries out the following specific duties:
• Collection of information for preparation of Damage Survey Reports is a joint
effort of MC Emergency Management and MC Growth Management. The
MC Growth Management Division surveys neighborhoods for structural
damage. For the purpose of re -construction, damage to structures is
categorized by "minor", "major", "uninhabitable" (major electrical, plumbing
or roof damage), and "destroyed".
• For substantially damaged buildings that also are insured by the NFIP, the
Growth Management Division issues letters for application of Increased Cost
of Construction (ICC) claims and requires re -construction through the
permitting process to comply with all current codes.
Mitigation activities in post -disaster situations will be handled through the
Growth Management Division and the Department of Emergency
Management.
Monroe LMS (2010 Update) 7-5
• Planning Department policies ensure that mitigation related items in the
Comprehensive Plan, such as floodplain and natural resource management, are
followed and reflected in the County's Codes and Standards.
• Planning personnel participate in post -disaster appraisals and may formulate
additional mitigation measures for use in the Comprehensive Plan. Personnel
work closely with building and zoning staff to ensure coordination.
• Mitigation recommendations, especially those based on direct disaster
experience will be reflected in the Evaluation and Appraisal Reports (EAR)
required for the Comprehensive Plan.
• Environmental Resources monitors environmental provisions in regulations,
codes, and plans and coordinates with other agencies as needed.
7.1.3 Public Works Division
The Public Works Division is responsible for overseeing the maintenance and operation of
County facilities, including roads and bridges. From three locations (Key West, Marathon,
and Plantation Key), the Division operates and maintains the County's heavy equipment,
vehicles, repair shop, and fueling stations. The County's engineering operations function
under the Public Works Division.
The Public Works Division is responsible for the following disaster and mitigation -related
activities:
• Deploy protective measures at County's designated Shelter facilities (i.e.,
install shutters, position generators, etc.).
• Expedite debris clearance of Overseas Highway (US # 1).
• Assist with re-entry and respond to assistance requests from municipal
agencies.
• Secure environmental waivers and legal clearances for debris removal and
disposal.
• Identify and report damage to public facilities and infrastructure, participate in
preparation of documentation for State and federal reimbursements, and
consider possible mitigation measures as part of repairs and reconstruction.
• Establish priorities regarding the repair and/or reconstruction of damaged
transportation routes (roads, bridges, airfields, etc.).
• Coordinate emergency contracting and emergency repair of drainage and solid
waste facilities.
7.1.4 Emergency Services Division
The Emergency Services Division has administrative responsibility for Fire Rescue,
Emergency Medical Services, Emergency Management, the Fire Marshall, and the Upper
Keys Health Care District. During an emergency these agencies are responsible for
firefighting, medical services, and urban search and rescue.
Monroe LMS (2010 Update) 7-6
The Division of Emergency Services (and its functional units) is responsible for the
following disaster -related activities:
• Manage the Emergency Operations Center
• Coordinate with local hospitals
• Coordinate Special Medical Needs
• Coordination with Monroe County School District
• Manage in -county and out -of -county shelters
• Coordinate with the Florida Department of Forestry, U.S. Navy, Boca Chica,
Florida Fish and Wildlife Conservation Commission, and other fire service
resources to support emergency functions requiring fire -fighting capacity to
perform emergency response, recovery and assistance missions.
• Coordinate search and rescue operations and resources; provide support to
local agencies, locate missing persons, lost vessels, persons trapped in
confined areas (including damaged/destroyed structures); locate downed
aircraft, extricate, if necessary, and treat victims upon rescue.
• Monroe County Emergency Medical Services is responsible for reviewing and
assessing health and medical needs of the county in the event of an emergency
event and obtain resources to meet needs.
• Fire Marshall's Office coordinates and directs efforts to complement local
emergency response actions in the aftermath of a hazardous material
accident/incident; secures affected areas and coordinates removal and disposal
of materials from the disaster location.
7.1.5 Monroe County Health Department
The Monroe County Health Department is an agency of the State that functions as the
primary public health unit for the county and municipalities. The department's
responsibilities include investigating and addressing public health threats, dealing with
reportable and non -reportable diseases and environmental issues, regulation of biomedical
waste, radiological incidents, child care facilities sanitation inspection, septic tank
permitting, regulation of toxic and hazardous materials, locating/installing fuel storage
tanks, and permitting of mobile home and RV parks. The Health Department operates from
three locations in the Upper, Middle, and Lower Keys. Each office oversees health issues
such as rabies and infectious disease control, and family planning and health services.
The Health Department is responsible for the following disaster -related activities:
• Disaster Community Health Assessment Teams conduct post -disaster
assessments of public health risks.
• Following a disaster, the Health Department maintains surveillance of
outbreaks of infectious diseases and takes necessary actions to address
problems.
Monroe LMS (2010 Update) 7-7
May undertake event -specific activities; after Hurricane Georges the
department reviewed performance of various kinds of septic and waste
systems.
Is responsible for the sheltering needs of the area's Special Needs Population
in out -of -county hurricane sheltering operations at Florida International
University.
7.1.6 Monroe County Budget and Finance
Budget and Finance includes the Office of Management and Budget, the Purchasing
Department, and the Grants Department.
Budget and Finance is responsible for the following disaster -related activities:
Give guidance to all departments to ensure they collect and maintain thorough
documentation of disaster -related expenditures, the key element in the
reimbursement process which requires maintenance of logs, records and file
copies of all expenditures in order to provide clear accountability for
reimbursement requests.
• Establishes financial management procedures in conformance with State and
federal requirements specific to funding sources.
7.1.7 Monroe County School District
The Monroe County School District operates and maintains the school system in the County
and municipalities. In addition to serving the student population, schools are a vital
component of the County's Emergency Management Program. Selected school buildings
may function as shelters, school personnel often serve as shelter staff, school buses are used
in evacuations, and school personnel provide shelter support services.
The Monroe County School District mitigation and response activities include:
• The District construction standards among the strictest in the State; new
construction is required to meet 150 mile per hour wind -load standards.
• The District and school system is a participating member on the Local
Mitigation Strategy Working Group.
• The District and Monroe County government cooperate in many emergency -
related efforts, including applying for grant funds to install hurricane shutters
on several schools used as shelters.
• Enhanced Hurricane Protection Area (EHPA) construction upgrades were
made possible through funding provide by County, municipality (City of
Marathon), and the District. The following schools will benefit from the
EHPA upgrades: Key West High School, Poinciana School, Marathon High
School, and Key Largo School.
Monroe LMS (2010 Update) 7-8
7.2 Regional Agencies & Organizations
7.2.1 South Florida Regional Planning Council
The South Florida Regional Planning Council plans for and coordinates activities of the
South Florida Region (Broward, Miami -Dade, and Monroe Counties). State legislation
passed in 1993 recognized that the regional planning councils are Florida's only multi-
purpose regional entities that are in a position to plan for and coordinate intergovernmental
solutions to growth -related problems on greater -than -local issues.
Regional planning councils are required to develop Strategic Regional Policy Plans.
Emergency Preparedness is one of the six strategic subject areas addressed and goals and
policies contain provisions relating to hazard mitigation. In addition, the other strategic
areas (land use and public facilities, natural resources, economic development,
transportation, and emergency housing), may provide recommendations related to
mitigation. The Plan recognizes the critical link between land use and emergency
preparedness. For example, management of growth in the region relates directly to
emergency evacuation. Preservation of the environment reduces development or guides
development in ways that maintain important natural areas that may buffer the effects of
storms and other hazards.
The South Florida Regional Planning Council's mitigation and response activities include:
During the development process for the Strategic Regional Policy Plan, the
South Florida Regional Planning Council held workshops with regional
agencies to acquire input. An Emergency Preparedness Workshop which
included discussion of mitigation issues was held and provided an opportunity
to interested agencies to identify their concerns and needs relating to
mitigation.
• In its review of documents such as County Comprehensive Plans and
Comprehensive Emergency Management Plans, the South Florida Regional
Planning Council can recommend policies that enhance hazard mitigation.
• The South Florida Regional Planning Council conducts other projects that
directly assist in effective emergency management and hazard mitigation, such
as publication of the "Hurricane Survival Guide for Small Businesses,
September 1995."
• After the unprecedented activity in the 2004 and 2005 hurricane seasons, the
Florida Division of Emergency Management contracted with the Council to
facilitate, in collaboration with local emergency management officials,
consistent and integrated mapping and analysis of all -hazards evacuation
across the State. This multi -year project will yield a comprehensive regional
evacuation study that encompasses Miami -Dade, Broward, and Monroe
counties.
Monroe LMS (2010 Update) 7-9
7.2.2 South Florida Water Management District
The South Florida Water Management District, operating under the jurisdiction of the
Florida Department of Environmental Protection, is responsible for overseeing the very
complex system of waterways and canals that affect the water system throughout much of
South Florida.
The Florida Keys of Monroe County does not contain a system of drainage canals under the
supervision of the Water Management District, as do other counties. However, portions of
the County on the mainland that are located in Everglades National Park and Big Cypress
Basin are under the District's control. The County and incorporated municipalities may
coordinate with the District to develop Storm Water Management Master Plans and policies
to improve storm water management techniques and participation in the Surface Water
Improvement Management Program.
The South Florida Regional Planning Council's mitigation and response activities include:
• Analyses and recommendations for water control measures to mitigate hazards
such as floods and droughts.
• The District, with support of local governments and law enforcement agencies,
enforces mandatory water shortage restrictions when such restrictions are
activated.
• Implementation of storm water management measures advocated by the
District, such as discouraging the use of impervious surfacing and filling and
retention of natural drainage patterns and open space, could help decrease
property damage from a major storm event.
• Through the planning and use of various water control techniques, the
District's work can mitigate certain hazards such as those related to flooding
and the mixing of fresh and salt water.
7.2.3 Florida Keys Aqueduct Authority
The Florida Keys Aqueduct Authority is an independent agency constituted by the State of
Florida with the primary purpose and function to obtain, supply, and distribute an adequate
water supply to the Florida Keys. The Authority manages the infrastructure used to supply
water to the Florida Keys and provides service to the consumer, sets rates, and conducts
billing.
The Florida Key's Aqueduct Authority's mitigation and response activities include:
• The Authority's pipeline originates in Florida City in south Miami -Dade
County. It examines ways to protect the supply system from hazards and
minimize the opportunities for disruption. The Authority works to find ways
to deal with disruption, including identification of alternative sources when
water cannot be supplied through the pipeline.
Monroe LMS (2010 Update) 7-10
• The Authority participates in developing policies and procedures for
responding to and recovering from shortages and disruptions in the supply and
delivery of electricity, potable water, and other forms of energy and fuels
which affect or threaten to affect significant numbers of citizens and visitors.
• The Authority has 100% redundancy with diesel -powered pumps to mitigate
the loss of water flow to the Keys during electric service outages. The
redundancy includes three desalinization plants: Stock Island (2 million
gallons per day); Marathon (1 million gallons per day); and Florida City (xx
million gallons per day).
7.2.4 Electric Utilities
The electric utilities that serve Monroe County are the Florida Keys Electric Cooperative
(FKEC), the Keys Energy System (KEYS), and Florida Power and Light (FP&L). The
mitigation and response activities of the utilities include:
• Establish policies and procedures for responding to and recovering from
shortages and disruptions, including the supply and delivery of electricity, and
other forms of energy and fuel, which affect or may affect significant numbers
of citizens and visitors.
• Restoration of electric utility services which were interrupted due to major or
catastrophic emergencies. Coordination of services and communications
among utilities and local, state and federal agencies. Identification of
emergency -related problems and development of remedial actions.
• FKEC completed its Operations Center in December 2009.
7.2.5 Habitat for Humanity of Key West and Lower Florida Keys
The mission of Habitat for Habitat for Humanity of Key West and Lower Florida Keys, Inc.
is to eliminate substandard housing and provide post disaster recovery assistance to the
community. The organization occupies a 13,000 square foot concrete facility located at
30320 Overseas Highway, Big Pine Key, behind Roger's Furniture. In the event of a
disaster, Habitat is positioned to provide a staging area for post disaster operations including
volunteer deployment, project coordination and supply distribution. Habitat works in
partnership with federal, state, county and municipal disaster response teams as well as
nonprofit organizations such as The American Red Cross, The Salvation Army, State,
national and local ecumenical response groups, and the community at large.
7.3 Planning & Development Processes
7.3.1 Comprehensive Plan: Year 2010
The Monroe County Comprehensive Plan (Year 2010) consists of three parts: the Policy
Document; the Technical Document; and the Map Atlas. The plan is available online at
http://www.monroecounty-fl. ov/pales/MonroeCoFL Growth/CompPlan2010/index. As of
Monroe LMS (2010 Update) 7-11
mid-2010, the County is undertaking a significant update and revision of the Comprehensive
Plan.
The Policy Document contains the goals, objectives and policies for each element, the
capital improvements implementation program, and the monitoring and evaluation
procedures. The Technical Document contains background information and support data
and analyses for the elements of the plan. The Map Atlas contains maps depicting
background information for the various elements (existing land use, natural features,
existing, transportation, etc.). The County's commitment to implementing the
Comprehensive Plan is "limited to its reasonable ability to fund only part of the cost of
implementation." It is acknowledged that external funding is required for full
implementation.
The Comprehensive Plan is framed as a series of goals, objectives, and policies that are
organized under fourteen elements. Natural hazards, especially flooding and high winds
associated with hurricanes and coastal storms, stormwater and drainage, and drought are
incorporated throughout. The following are some of the more notable citations:
Goal 101: Monroe County shall manage future growth to enhance the quality
of life, ensure the safety of County residents and visitor, and protect valuable
natural resources.
— Objective 101.2: Monroe County shall reduce hurricane evacuation clearance times
to 24 hours by the year 2010. This policy is implemented through the Permit
Allocation System and consideration of the new hurricane evacuation transportation
model in consideration of capital improvements.
— Objective 101.5: Monroe County shall implement a Point System which directs
future growth to encourage redevelopment and renewal of blighted areas, to maintain
and enhance the character of the community, to protect natural resources, to encourage
a compact pattern of development, and to encourage affordable housing.
Objective 101.9: Monroe County shall provide for drainage and stormwater
management so as to protect real and personal property and to protect and improve
water quality.
Objective 101.14: By January 4, 1997, Monroe County shall adopt Land
Development Regulations which direct future growth away from areas subject to
periodic flooding (with particular focus on the Coastal High Hazard Areas, in which
mobile homes shall be prohibited except in existing parks or subdivisions).
• Goal 102: Monroe County shall direct future growth to lands which are
intrinsically most suitable for development and shall encourage conservation
and protection of environmentally sensitive lands.
— Objective 102.8: Monroe County shall take actions to discourage private
development in areas designated as units of the Coastal Barrier Resources System,
including discouraging extension of facilities and services by providers of electricity
and telephone service.
• Goal 206: The health and integrity of Monroe County's beach/berm resources
shall be protected and, where possible, enhanced (through development
Monroe LMS (2010 Update) 7-12
standards for siting structures, disturbances, setbacks, restoration of native
vegetation).
• Goal 211: Monroe County shall conserve and protect potable water resources
and cooperate with regional efforts to ensure the continued availability of
quality potable water.
Objective 212.2: Monroe County shall adopt minimum performance standards
designed to reduce the storm water runoff impacts, aesthetic impacts, and hydrologic
impacts of shoreline development.
Objective 212.3: Permitted uses and performance standards within the shoreline
setback are outlined.
Goal 216: Monroe County shall provide for hurricane evacuation, shelters
and refuges, and communication capabilities to promote safeguarding of the
public against the effects of hurricanes and tropical storms. Among policies
outlined are consideration of impact fees to offset the public costs of hazard
mitigation, evacuation, reconstruction of public facilities, emergency
communications equipment, and similar needs (Policy 216.1.15) and inclusion
in the Post -Disaster Recovery Plan a structured procedure aimed at debris
removal preparedness during hurricane evacuation and re-entry (Policy
216.1.14).
Goal 217: Monroe County shall develop and implement a program of hazard
mitigation and post -disaster redevelopment to increase public safety and
reduce damages and public expenditures.
Objective 217.1: Monroe County shall develop and implement a program of hazard
mitigation in the Coastal High Hazard Area which reduces floodplain alteration and
damage or loss due to natural disasters. Policies address new or replacement sanitary
sewage systems, supply of potable water, review of the building code, participation in
the NFIP's Community Rating System, enforcement of setback and elevation
requirements, and public acquisition decisions.
— Objective 217.2: Monroe County shall develop a Post -Disaster Redevelopment Plan
which addresses priorities for immediate recovery and long-term redevelopment
including reducing exposure of human life to natural hazards. Policies address
coordination of post -disaster recovery operations, damage infrastructure, FEMA-
designated V Zones and repetitive loss areas, and limits on certain redevelopment.
— Objective 217.3: Monroe County shall adopt Land Development Regulations which
direct future growth away from the Coastal High Hazard Area. Policies include
assigning a negative point rating to developments proposed within this area and
prohibition on placement of mobile homes except on an approved lot within an
existing mobile home park or subdivision zoned for such use.
• Goal 701: Monroe County shall support the Florida Keys Aqueduct Authority
in the fulfillment of their statutory obligation and authority to provide for a
safe, high quality and adequate supply, treatment, distribution, and
conservation of potable water to meet the needs of present and future residents.
Objectives include water conservation efforts.
• Goal 1001: Monroe County shall provide a storm water management system
which protects real and person properties, and which promotes and protects
ground and near -shore water quality.
Monroe LMS (2010 Update) 7-13
Goal 1301: Monroe County shall promote and encourage intergovernmental
coordination between the County, the municipalities, the counties of Dade and
Collier, regional state and federal governments and private entities in order to
anticipate and resolve present and future concerns and conflicts.
Goal 1401: Monroe County shall provide and maintain, in a timely and
efficient manner, adequate public facilities for both existing and future
populations, consistent with available financial resources and the other
elements of the Comprehensive Plan. Considerations include elimination of
public hazards, with limitations on public expenditures within the Coastal
High Hazard Area.
7.3.2 Floodplain Management
Compliance with the NFIP
The County entered the National Flood Insurance Program in
1973 by adoption of an ordinance that complies with the NFIP Flood Insurance
requirements of the program. The County reviews all Policies in Monroe County:
development proposals in special flood hazard areas and 18,131
enforces the requirements of the ordinance. To ensure
continued compliance with the NFIP, the County will Claims paid since 1978:
continue to: 89002
• Enforce the adopted floodplain management ordinance, http://www.fema.gov/nfip/pcstat.shtm
including inspection of permitted development and (as of December 31, 2009)
unpermitted activities;
• Maintain records pertaining to Floodplain development,
including flood maps and Letters of Map Change, which shall be available for
public inspection;
• Notify the public when there are proposed changes to the ordinance or Flood
Insurance Rate Maps; and
• Promote the purchase of NFIP flood insurance policies as financial protection.
Monroe County administers the Floodplain Management Ordinance to regulate development
within areas designated by National Flood Insurance Program (NFIP) as "areas as of special
flood hazard." The purpose is to "protect the public health, safety and general welfare and to
minimize public and private losses due to flood conditions". Areas of special flood hazard
are identified as those expected to be inundated by the 1 %-annual chance flood (commonly
called the "100-year flood").
The NFIP prepared a Flood Insurance Rate Map for Monroe County (current effective map
is dated February 18, 2005). Special flood hazard areas are specified as "A/AE Zones"
where waves are expected to be less than 3-feet high and V Zones where high velocity wave
energies are expected. Most of the County's land area is subject to flooding. The FIRMs
show the anticipated flood elevations (referenced to mean sea level).
Monroe LMS (2010 Update) 7-14
The County's Floodplain Management Ordinance specifies standards for residential and
non-residential construction and water supply and sanitary sewer systems that are located in
areas of special flood hazard. It prohibits the alteration of sand dunes, mangrove stands or
wetlands if such alterations would increase the potential for flood damage. Placement of fill
and obstructions is discouraged (structural fill is prohibited in V Zones).
Standards are set forth for residential, non-residential, and manufactured (mobile home)
developments in special flood hazard areas. The dominant standard requires that the lowest
floor of buildings (including manufactured homes) be elevated to or above base flood levels.
Enclosures below the elevated lowest floor are allowed only if they meet requirements
specific to the flood zone.
Enclosures Below Elevated Buildings
In 1995, FEMA notified Monroe County that the illegal conversion and occupancy of
enclosures below elevated residential structures had resulted from a deficiency in the
County's enforcement of its foodplain management regulations. The County was directed
to correct the deficiency or face suspension from the National Flood Insurance Program.
The Board of County Commissioners responded by appointing a task force to address the
problem, which is complicated by the fact that Florida law prevents on -site investigations.
The task force, working with the State and FEMA, developed the concept that evolved into
the "Flood Insurance Inspection Program." For the five-year period of 2002 to 2007, NFIP-
insured homes with enclosures below the Base Flood Elevation must be inspected to identify
deficiencies and deficiencies must be corrected in order for flood insurance policies to be
written. As of December 31, 2009, over 2,000 properties had been inspected and
approximately 1,600 had been brought into compliance.
Section 122-6 of the County's Floodplain Management Ordinance requires the County to
provide an "inspection upon Transfer of Property." A report is provided to the new owner
regarding any non -conformities associated with enclosures.
NFIP Repetitive Loss Properties
Data provided by FEMA to the Florida Division of Emergency Management identifies
properties that are, or have been, insured by the National Flood Insurance Program and that
have received two or more claims of at least $1.000. In 2005, the unincorporated Monroe
County had only 161 properties that met this definition. As of February 28, 2010, 636
individual properties have received 1,356 claims, totaling $29.1 million (average payment of
$21.400). Figures 7-1 a to 7-1 j (end of chapter) illustrate the areas subject to repetitive
flooding based on NFIP repetitive claims data.
Monroe LMS (2010 Update) 7-15
A subset of the NFIP's Repetitive Loss Properties includes those that meet the Federal
definition for "severe repetitive loss." Seven properties in unincorporated Monroe County
have received a total of 30 claims, totaling more than $760,000. The statutory definition is a
residential property that is covered by an NFIP flood insurance policy and (a) that has at
least four claim payments (including building and contents) over $5,000 each, and the
cumulative amount of such claims exceeding $20,000; or (b) for which at least two separate
claim payments (building only) have been made with the cumulative amount exceeding the
market value of the building. For both (a) and (b), at least two of the qualifying claims must
have occurred within any 10-year period.
In the summer of 2008, the County mailed letters to six owners of properties that FEMA
identified as Severe Repetitive Loss Properties. Two owners responded and applications
were submitted for funding to elevate the buildings in compliance with the County's
requirements. As of early 2010, one project is 95% complete and a revised scope of work is
under review by DEM and FEMA.
Coastal High Hazard Areas
Florida requires that local governments designate Coastal
High Hazard Areas (CHHA) within their jurisdictions (FL
Rule 9J5, F.A.C.). The CHHA must include areas
designated on Flood Insurance Rate Maps as V Zones
(areas subject to velocity hazard from wave action), areas
that are seaward of the Coastal Construction Control Line
(CCCL) established by the Florida Department of Natural
Resources (DNR), and inlets which are not structurally
controlled. The area subject to storm surge impact from a
Coastal High Hazard Area
Areas which have historically
experienced destruction or
severe damage, or are
scientifically predicated to
experience destruction or severe
damage from storm surge,
waves, erosion, or other
Category 1 Hurricane is considered to represent a good manifestations of rapidly moving
approximation of locations predicted to experience or storm -driven water.
destruction or severe
damage duringstorms and the
Monroe County Comprehensive Plan, designates the CHHA as the "area subject to
inundation by the SLOSH (model projections) associated with a Category 1 Hurricane."
Due to its low-lying terrain, approximately 80% of the County is located in the CHHA.
Areas outside the CHHA are chiefly confined to a linear zone along much of U.S. 1 and
some areas of higher elevation on various keys.
Coastal Barrier Resource System
The federal Coastal Barriers Resource Act (CBRA) of 1982 established the Coastal Barriers
Resources System (CBRS). The purpose of the program is to restrict federally subsidized
Monroe LMS (2010 Update) 7-16
development of undeveloped coastal barriers to minimize loss of human life, reduce
wasteful expenditures of federal funds, and reduce damage to fish and wildlife habitat and
other valuable natural resources of coastal barriers. The intent of the CBRA is to remove
from undeveloped coastal barriers federal incentives for new development, such as National
Flood Insurance, structural stabilization projects, and Federal assistance for construction of
sewers, water supply systems, airports, highways, and bridges.
As of 1992, the Coastal Barrier Resource System applied to 15 units in the Florida Keys;
since then, some units have been expanded and some areas have been noted exempt. These
sites are located throughout the county and include areas such as the undeveloped portion of
North Key Largo and sections of Sugarloaf Key. Most of the CBRS units are largely
undeveloped. Protection of these areas is provided through land use policies in the
Comprehensive Plan and related land development regulations. Among the policies
advocated for these sites is public acquisition, especially portions of North Key Largo.
7.4 Communicating about Hazards
Monroe County and other organizations in the area recognize the importance of informing
residents and visitors about hurricanes, evacuation, public safety, and minimizing damage.
The following are some key ways that communications are undertaken:
• The front page of the Monroe County website has links for emergency
management, emergency bulletins, and the Local Mitigation Strategy;
The emergency
management page offers
information about hurricane
preparedness, the Special
Needs Registry, what to
bring to shelters, and
several links to pertinent
sites;
Emergency bulletins are
posted on the webpage,
information is scrolled on
the Monroe County
Government Television
Channel (Channel 76), and
the Emergency
Management Hotline is
activated (1-800-955-5504)
when storm activity or other
hazard events threaten;
• People can request e-mail
notification whenever
emergency bulletins are
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Monroe LMS (2010 Update) 7-17
issued or updated;
• Materials are provided in booths at local fairs;
• Presentations are offered to schools and other groups;
• Both electric companies provide information to property owners about tree
trimming to reduce power outages;
• Public information and pre-recorded public service announcements are
transmitted via local radio and television stations, including the County's cable
channel;
• The Tourist Development Council is structured to transmit emergency
information to the industry (e.g., blast FAX);
• The County's floodplain manager speaks before various professional
organizations such as the Boards of Realtors and individual Real Estate
companies;
• The County's web site has a page on floodplain management in the Florida
Keys (see graphic, www.monroecounty-
fl.gov/Pages/MonroeCoFL_Growth/floodplain);
• Sponsors and promotes Florida Hazardous Weather Awareness Week (see
graphic); and
• American Red Cross
does some public
service announcements
related to hazardous
weather.
Hurricane wind and flood
hazards are well -recognized
throughout the Keys, but the
importance of awareness is
emphasized in the Floodplain
Management Ordinance (at
Florida Hazardous Weather Awareness Week
Printer -Fr eno Y Verdcn
Governor Charlie Crist, in c&operatioa with the National Feather Sen.^ice, The Florida Department of Community
Thu ml loll Of Monroe Affairs, and the 67 county Emergency Alanagement agencies, has proclaimed the third week in February, as Florida
Coxtnty is to provide Hazardous Weather Awareness Week -
outstanding public service
responsive to the needs of On Ifonday, Febvaiy 12, the 1i'eather Awareness spotlight will be on the dangers of lightning. Florida is the
our citYzens- our unique
undisputed thunderstorm capital of the United States and leads the nation in lightning deaths and injuries. In
Florida_ in _OQ6, there were 2 fatalities, 7 injuries, and approximately 1a1,40C?,UOU,O{i0-OC? in damage as a result of
community, and our lightning strikes- Since 1959, over 2,ON people have been injured by lightning in Florida.
environment -
On Tuesday, February 13th Hazardous 11-eather Awareness Week will feature Marine Hazards and Rip
Currents. Attention will be paid to marine hazards, including rip currents, waterspouts, high winds and seas, and
About Monroe County coastal flooding. %. Thile the dangers of rip currents are more prevalent along the coastal areas north of our county,
e, in the Florida Keys, due to our strong recreational and commercial marine interests, are extremely vulnerable to
CommissionersCounty the effects of sudden high winds, accompanying high seas and %waterspouts. Strong winds in the coastal waters have
claimed the lives of boaters and required the rescue of many y others. Rip currents claimed 5 Lives in Broward County
in 2006.
Section 9.5-317)(a)(13)) which states that:
"All agreements for deed, purchase, agreements, leases or other contracts for sale or exchange of
lots within areas of special flood hazard shall carry the following flood hazard warning
prominently displayed on the document: FLOOD HAZARD WARNING This property may be
subject to flooding. You should contact the County Growth Management Division and obtain the
latest information regarding flood elevations and restrictions on development before making use
of this property".
7.5 Recent and Near -Term Mitigation Actions
Improving resistance to the impacts of hurricanes is routine in Monroe County. Many
actions are not dependant on external funding but are part of the normal course of business
Monroe LMS (2010 Update) 7-18
and compliance with various regulations. As of mid-2005, the following characterize some
of these activities:
• The Key West Airport Authority replaced a portion of the terminal. The
replacement was designed and constructed to meet the wind resistance
provisions of the Florida Building Code.
• The drawbridge at MM 107 on Jewfish Creek ("Goliath Bridge") was replaced
with a fixed span bridge, helping to minimize traffic delays.
• One Federal mitigation grant for a repetitive loss property was approved in
2008, and one was approved in 2009. Both are single-family homes that were
demolished and rebuilt elevated, in compliance with the building code and
floodplain management regulations.
7.6 2010 Updates
Several County offices and other entities reviewed and updated the pertinent sections. Some
of the more significant changes include:
• Section 7.1: Moved text describing the Emergency Management Department
to Section 7.1.1. Updated text and table of the County's functional divisions
• Section 7.1.1: Updated description of the Emergency Management
Department.
• Section 7.1.2: Updated description of the Growth Management Division and
number of permits issued.
• Section 7.1.7: Reported on the Enhanced Hurricane Protection Area
construction upgrades at four schools.
• Section 7.2.1: Added bullet about multi -year project to develop regional
evacuation study.
• Section 7.2.3: Noted that the Florida Key's Aqueduct Authority has 100%
redundancy with diesel -powered pumps.
• Section 7.2.4: Noted that Florida Keys Electric Cooperative has completed its
Operations Center.
• Section 7.3.2: Added text about compliance with the NFIP. Updated NFIP
policy and insurance data, data on enclosure inspection program, and data on
the number of NFIP repetitive loss and severe repetitive loss properties.
Added figures to show the locations of repetitive loss properties. Reported
that letters were sent to owners of six severe repetitive loss properties.
• Section 7.4: Updated graphics.
• Section 7.5: Reported completion of the Key West International Airport
Terminal; replacement of a bridge; and two on -going grants for private homes.
Monroe LMS (2010 Update) 7-19
IhM w�
Repetitive Loss Properties
MM 10—MM 16
Saddlebunch (County)
i1" 11
t
MIA 13
Mkt 1 T
t
171M 11
t
+
19m 10
17
_ MONROE
Phw1 AIbrnwWri CIOU Y
Figure 7-1a. Repetitive Loss Properties (MM 10 — MM 16).
Repetitive Losa Properties
MM 15—MM21
MONROE Sugarloaf (County)
COUNTY
irm' id00I•r
3 US WMV I m Im mwbm
r�Ca#
MM 21
a..
i
Am 19
a
14M IG
AL
a
1�
1
ti
3JfJ1 kh
a
Figure 7-1b. Repetitive Loss Properties (MM 15 — MM 21).
Monroe LMS (2010 Update) 7-20
n
•�1R
mm 22
AL
mm 2E rY.
kW 24
�mm 26 L #
f
I_
MM 22—MM 27
Summerland (County)
11 ONR E
Repetitive Loss Properties 13S i Mom,
+ Mwy I main nnr7aim
��� � ��� • !Alit/ i rt
Figure 7-1c. Repetitive Loss Properties (MM 22 — MM 27).
•
a
B
kma"
IB -p-h-1nJX p1 WAy W-mbPu
a US Huy r errW nmF6em
prGda
Figure 7-1d. Repetitive Loss Properties (MM 28— MM 35).
Repetitive Loss Properties
MM 28— MM 35
Big Pine (County)
FRi ]�I
t
W .lb
N RO
COUNTY
Y
I *•A • i.k4 bin
Monroe LMS (2010 Update) 7-21
Repetitive Loss Properties
MM72—MM79
Lower Matacumbe (County)
•
ME iS
t
AIM 12
t jam
Figure 7-le. Repetitive Loss Properties (MM 72 — MM 79).
FAM To
t
MM 34.
Repetitive Loss Properties
lam Ilw
a
MM79—MM86
Upper Matacumbe (County)
d�M B3
PII�i #,I
F14J Y� 1
GL
Llf.1 R6
Ni 2vR E
*bm
Figure 7-1f. Repetitive Loss Properties (MM 79 — MM 86).
Monroe LMS (2010 Update) 7-22
Repetitive Loss Properties
MM 86— MM 92
L Plantation (County)
M14 41
AL
MM l0
t
�M* 39
*Mid U
■
hAfl A •
M NR E
mr. a'ln vc b�- vupc*ir kXmD um
+ Its Hw. S�k nmkrn i C iTW
rani PEITI a
Figure 7-1ff. Repetitive Loss Properties (MM 86 — MM 92).
Repetitive Loss Properties
MM 93— MM 98 r''I` •,
L Key Largo South (County)
s
1
' MONR E
,* UxicVwl mIYemmhmm I COI T V
- •nth• }�pp �w
Figure 7-1h. Repetitive Loss Properties (MM 93 — MM 98).
Monroe LMS (2010 Update) 7-23
Repetitive Loss Properfie
MM99—MM 104
Key Largo Central (County)
JAM 1*1
,w
S
mmiQl
A
mm No
• MONROE
A. USIA-YI%L!MbF&aFS i COUNTY
I )POO
m1w q&I
IQ
Figure 7-Ii. Repetitive Loss Properties (MM 99 — MM 104).
Repetitive Loss Properbe
MM 105 — MM 111
Key Largo North (County)
dL
:w w 10.7
L92" MONROE
a LISHwelmikrml�COUNTV
mm 105
Figure 7-1j. Repetitive Loss Properties (MM 105 — MM 111).
Monroe LMS (2010 Update) 7-24
Chapter 8. City of Key West
The City of Key West, the County seat of Monroe County, is located in the southernmost
portion of the Lower Keys. Incorporated in 1832 and nicknamed the "Island City", the City
is surrounded by the turquoise waters of the Gulf of Mexico and Atlantic Oceans. Aside
from its natural beauty, Key West is noted for historic and cultural resources with over 2500
historic buildings and sites. The National Register Historic District is often referred to as
"Old Town" and contains many unique frame vernacular architecture examples that are over
100 years old.
8.1 Overview of Key West
Geography
The island of Key West comprises just 3,370 acres in area. It is low-lying, rising from 2 feet
along the shoreline near Rest Beach to 16 feet above mean sea level at Solares Hill. Other
higher elevations are man-made and are the waste management area (landfill) and bridges
such as Garrison Bight Causeway. Most of the newer development, built on fill material,
and are raised buildings. While most of the "Old Town" section averages around 7-feet
MSL, certain locations important for tourism, such as Front Street, Key West Bight, and
Mallory Square are only at 3-feet MSL. Critical areas such as Key West Airport and South
Roosevelt Boulevard are at very low elevations (approximately 3-feet MSL).
The City's few natural beaches have oolitic limestone outcrops or thin sand and shell over a
rocky base; a low dune exists at Rest Beach. Although sandy beaches are present along the
southern shore (e.g., Higgs Beach and Smathers Beach), some were artificially constructed.
Mangroves are present along small sections of the island's northern shoreline. Beaches on
the southern shoreline experience erosion due to coastal currents, tides, and wave impact.
The rate of erosion accelerates during storm events. Shallow waters surrounding the island
may contribute to increased storm surge height. Canals, cuts, and inlets experience flooding
due to storm surges that may be higher than along flat shorelines.
Population
Information provided by the Key West Planning Department indicates that the City of Key
West has a permanent resident population of approximately 23,000 (including military
personnel). The seasonal population increases by as much as 16,000. On any given day the
number of people in town can increase dramatically due to the number of tourists that arrive
on cruise ships.
Monroe LMS (2010 Update) 8-1
Land Use & Economy
Key West essentially is completely developed, with a mix of single family residences, multi-
family dwellings, time-share and seasonal units, tourist lodgings (hotels, motels, inns, bed
and breakfasts, etc.), tourist -oriented uses (museums, attractions), marine -related and
recreational uses, commercial uses (restaurants, retail sales, banks, Realtors), medical
facilities and offices, and government uses. Redevelopment and renovation are constant
activities.
2010 Conformed Version of the Key West Comprehensive Plan
The 2008 Conformed Version of the Key West Comprehensive Plan consolidates the 1993
Plan and six subsequent amendments. In 2009, the City began preparations for a major
update to the Plan.
Key West recognizes the natural hazards described in the LMS (Chapter 5 and 6) throughout
the 2008 Conformed Version of the Plan, summarized in Table 8-1. The hazards not
addressed in the Plan are tornado and wildfire (as noted in Chapter 6, the city has
insufficient areas of vegetation to represent a risk).
Table 8-1. Selected Objectives and Policies in the 2008 Conformed Version of the
Comprehensive Plan
Objective 4-3.1 Protect Natural Drainage Features
Policy 4-3.1.1 Ensure that Urban Lands Provide Adequate Drainage and Protection from
Flooding and Manage the Retention of Ground and Surface Water at levels that Enhance
Natural Storage Capacity of Watersheds and Promote Aquifer Recharge
Policy 4-3.1.6 Managing Land Use in the Floodplain
Policy 4-3.1.7 Implementing Stormwater Management Plan
Objective 4-4.1 Coordinate Issues Surrounding Aquifer
Objective 4-4.2 Conserving Potable Water Resources
Objective 5-1.1 Protect Coastal Resources, Wetlands, Estuarine Saltpond Enviornmental
Qualify, Living Marine Resources, and Wildlife Habitats
Policy 5-1.1.3 Protect Stabilize, and Enhance the Coastal and Wetland Shorelines
Objective 5-1.3 Land Use Controls and Construction Standards for Protecting the Natural
Shoreline and the Very Limited Beach/Dune System
Policy 5-1.3.1 Enforce Development Restrictions Seaward of the CCCL
Policy 5-1.3.2 Natural Shoreline and Beach/Dune Stabilization
Objective 5-1.4 Limiting Pubic Subsidy of Development in the Coastal High Hazard Area
Objective 5-1.5 Avoid Population Concentrations in Coastal High Hazard Areas
Objective 5-1.6 Hurricane Evacuation
Objective 5-1.7 Hazard Mitigation and Coastal High Hazard Areas
Objective 5-1.8 Post -Disaster Redevelopment
Objective 5-1.11 Public Facility Level of Service Standards in Coastal Area
Objective 6-1.3 Maintenance of Floodplains
Monroe LMS (2010 Update) 8-2
Table 8-1. Selected Objectives and Policies in the 2008 Conformed Version of the
Comprehensive Plan
Policy 6-1.3.1 Enforce Policies to Maintain Floodplain
Policy 6-1.3.2 Land Purchase through Save Our Rivers Program or Other Available State
and Federal Programs
Objective 9-1.2 Limitation on Public Investment in the Coastal High Hazard Area
8.2 City Organization and Agencies
The Key West City Commission is composed of 7 members, including the Mayor who is
elected specifically to that office. The Commission sets government policy and adopts
guidance documents, such as the Comprehensive Plan and ordinances establishing various
codes and standards.
Key West is organized into several agencies, each with some authorized responsibilities that,
as described below, have bearing on how natural hazards are recognized and addressed.
City Manager. The City Manager of Key West implements the policies of the Commission
and administers the overall operations of the City. Related to mitigation of the impacts of
natural hazards, the City Manager:
• Participates in post -disaster assessment and may develop mitigation initiatives
to address reduction of future loss.
• Participates in the Key West Emergency Operations Center (EOC) and
coordinates with the County and other local governments.
• Works with the City's Post -Disaster Recovery Task Force which serves as the
City's designated Public Facilities Review Committee. This group is charged
with the responsibility for reviewing available alternatives for damaged public
facilities following a hurricane or other disaster.
• May perform an analysis and provide recommendations to the City
Commission for hazard mitigation options, including relocation and
reconstruction of damaged public facilities.
• Participates in intra- and inter -governmental disaster planning efforts,
including multi -agency Site Plan Review Committee and Hazard Mitigation.
Key West Planning Department. The Key West Planning Department is responsible for the
development and maintenance of the City's Comprehensive Plan, land development
regulations, and zoning ordinance. Department personnel support the City Commission,
Planning Board, Historic Architectural Review Commission, Development Review
Committee, Bahama Village Redevelopment Advisory Board, Housing Committee, and the
Truman Waterfront Committee. Related to hazard mitigation, the department:
Monroe LMS (2010 Update) 8-3
• Ensures that mitigation related items in the Comprehensive Plan, such as
floodplain management and natural resource management, are followed and
reflected in the City's Codes and Standards.
• Participates in post -disaster appraisals and may formulate additional mitigation
measures for use in the Comprehensive Plan.
• Works closely with Building Department staff to maintain an accounting
system of permits issued pursuant to ROGO and coordinates actions related to
disaster planning, recovery, and mitigation.
• Conducts surveys for hurricane evacuation modeling (and in 2009, hired an
expert on hurricane evacuation).
• Incorporates mitigation recommendations, especially those based on direct
disaster experience, in the Evaluation and Appraisal Reports (EAR) required
for the Comprehensive Plan.
• Maintains the Water Supply Plan.
Key West Building. The Building Department reviews construction plans, issues permits,
and inspects projects for compliance (see Table 8-2). The staff includes one State Certified
Building Code Administrator, one Building Inspector who is also a State Certified Code
Enforcement Officer, and 3 Permit Technicians (two full time, 1 part-time). Specific to
hazards, Department personnel:
• Enforce the City's floodplain management requirements designed to minimize
damage to structures from wind and waves resulting from storms.
• Enforce the Florida Building Code requirements for wind loads and anchoring
foundations into bedrock.
• Participates in the Post -Disaster Recovery Task Force.
• Proposes (in 2009) to improve public awareness of the Florida Building Code
by conducting workshops and use public forums to educate the public about
the need to obtain permits.
• Continues efforts to address and eliminate unsafe structures.
Monroe LMS (2010 Update) 8-4
Table 8-2. Permits Issued in 2007, 2008, and 2009
Type of Development
CY 2007
CY 2008
CY 2009
New single family
50
50
50
New other (commercial, industrial, religious, etc.)
50
40
30
New multi -family (2 or more)
12
15
20
Commercial (additions, renovation, conversions)
550
600
625
Residential (additions, renovation, conversions)
1, 500
27000
27000
Other
27500
27000
27500
Demolition
25
15
10
Relocation
0
0
0
Manufactured home (permanent, temporary)
6
3
7
Totals
4693
4723
5242
Key West Historic Architectural Review Commission (HARC). Key West includes
numerous historic resources, including two historic districts listed in the National Register of
Historic Places: Key West Historic District and the US Naval Station (known as Truman
Annex). HARC reviews activities that impact historic structures and the historic district.
The guidelines used by HARC incorporate the principles of the Secretary of the Interior's
Standards for Rehabilitation, and including regulations that are unique to the historic fabric
of Key West.
Because historic properties in Key West are significant locally and nationally, they require
special attention and application of sensible reconstruction methodologies after damaging
events. Doing so ensures adequate procedures that will preserve the historic quality and
character found in Key West historic districts. In 2008, the Florida State Historic
Preservation Office (Florida SHPO), Division of Historical Resources prepared a planning
tool, Disaster Mitigation for Historic Resources: Protection Strategies, which will be
adopted by HARC. Since 1991, the City of Key West is a Certified Local Government by
the Secretary of the Interior and the Florida SHPO; therefore, the City needs to comply with
all State and Federal regulations regarding protection of historic structures in order to
maintain the certification.
Key West Finance Department. The Finance Department is responsible for overseeing the
day-to-day financial requirements of the City, including establishment of purchasing
procedures for all agencies. To expedite preparation for, response to, and recovery from
disasters, the Finance Department may implement special emergency procedures to expedite
necessary purchase and payment before, during, and after a disaster.
Monroe LMS (2010 Update) 8-5
Key West General Services Department. The General Services (Utilities) Department
includes Wastewater, Stormwater, Engineering Services, and Solid Waste, including the
management of the City's waste removal contract with Waste Management. The
Department also includes the Richard A. Heyman Environmental Pollution Control Facility
(Wastewater Treatment Plant) which is operated by a private contractor.
Key West Utilities Manager. The Utilities Director is responsible for coordinating
various utility resources in the city. These include the Richard A. Heyman
Environmental Protection Facility (treatment Plant), Sewage Treatment System including
pumping and lift stations, Garbage Collection Program, Waste Transfer Facility, and the
Stormwater Utility. These facilities have specific written emergency plans and
procedures designed for use in emergencies such as tropical cyclones, severe storms,
flooding and tornadoes. A separate plan for hazardous materials is specific to the
Sewage Treatment Plant. The Utilities Manager also directs the City's Transportation
and Facilities Maintenance sections. The Facilities Maintenance section is responsible
for maintenance and repairs on some government structures, and small new construction
and additions.
When reviewing the physical plant of the City's utility facilities, the Utilities Manager
evaluates vulnerabilities such as flood height, roof construction, and window protection.
The Utilities Manager provides input in the Post -Disaster Recovery Task Force.
City Engineer. The Manager of the City Engineering Department is professionally
qualified to review Civil Engineering plans to determine compliance with the Florida
Building Code and construction requirements. The Engineer performs other
responsibilities relating to the construction and technical needs of the City, including
overseeing the engineering requirements of public facilities such as roads, bridges, sewer
treatment facility, and other City buildings. The Engineer's office monitors public
beaches for shoreline erosion and participates in grant applications for renourishment and
mitigation activities.
After a damaging event, Engineering staff conduct damage assessments of public
infrastructure and works with federal and state agencies such as FEMA and Florida DEM
to develop scopes of work and to facilitate funding assistance for recovery operations.
Under the federal Public Assistance Program, mitigation measures to reduce future loss
to public facilities may be included in requests for recovery assistance. The City
Engineer provides input to the Post -Disaster Recovery Task Force.
Monroe LMS (2010 Update) 8-6
Key West Community Services Department. The Community Services Department is
responsible for overseeing the maintenance and operation of all city facilities, including
buildings, roads and bridges. The Public Works unit is responsible for coordination and
provision of emergency public works, evaluation of infrastructure damage, and preparation
of documentation required for federal reimbursement (including identification of mitigation
components to be incorporated during recovery), and coordination of emergency debris
clearance.
In executing its disaster and recovery responsibilities, Public Works coordinates with the
Florida Department of Transportation (FDOT), Monroe County Department of Public
Works, Florida Keys Aqueduct Authority, and Keys Energy System. The Department plans,
coordinates and initiates restoration of the serviceability of transportation routes, bridges,
and assurance as to the safety and affected public and private dwellings and structures.
Key West owns approximately 100 buildings; many are leased to commercial concerns.
Some buildings have hurricane shutters; the presence of rooftop equipment and whether it is
anchored to resist hurricane winds is not known at this time. All work on buildings must
comply with the Florida Building Code and other pertinent requirements (such as floodplain
management). The City maintains flood insurance policies on some buildings. For leased
buildings, generally if one is damaged, the City provides some abatement of rent during the
period of restoration. If one is destroyed, the lease would be terminated.
Key West Transportation Department. The Transportation Department provides for
citywide and fixed route intra-county transportation services in the Lower Keys, operating a
fleet of buses. It also assists in transportation and evacuation planning. The Department's
Hurricane Plan and Procedures are designed to effectively implement its responsibility of
moving civilians to shelters or, in the event of an out -of -county evacuation, to staging areas
for school bus transport to the mainland shelter at Florida International University. The
Department participates in the emergency after -action process and formulates measures to
address future needs.
Key West Police Department. The Police Department is responsible for overall law
enforcement and protection of residents and visitors in the City of Key West. The
Department plays a key role in planning and response during emergencies. The permanent
standing Hurricane Preparedness Committee reports to the Chief of Police and is responsible
for preparation, review, and revisions of plans, procedures, operations and training materials
relating to hurricane preparation, response, and recovery. The committee prepares after -
action critiques of every implementation or exercise of any element of the disaster response
and recovery plan and provides recommendations for addressing future problems.
Monroe LMS (2010 Update) 8-7
The Police Department's preparedness and response activities include supervision of the
Emergency Law Enforcement and Traffic Control plan, coordination with other City
Departments, and outside agencies (Monroe County Sheriff's Office and the Florida
Highway Patrol to promote speedy and safe evacuation), communications with base
operations, field personnel, and emergency shelters.
Key West Fire Department. The Fire Department provides emergency management
assistance and direction to the City of Key West in concert with other duties of fire control,
fire prevention, and fire and hurricane public education. The Department plays a lead role in
planning and response for emergencies. In March 2007, the Insurance Services Office
evaluated and awarded the department an ISO Public Protection Classification Rating of 2.
The Fire Department's preparedness and response mitigation activities include assisting
Monroe County Emergency Management, directing the operations of the City's Emergency
Operations Center, and contributing to pre -planning strategies and evacuation planning. The
Department is responsible for planning for hazardous materials incidents, maintaining a
hazardous materials inventory and response plan, and responding to hazardous materials
incidents.
Key West Port Department. The City hosts many cruise ships through the year, serving
approximately 1 million visitors a year. The Ports Director meets with the U.S. Coast Guard
when impending weather conditions may prompt decisions regarding port operations and
whether to close the Key West Harbor to cruise ships and other large vessels. Prior to storm
conditions, the department coordinates preparation of private vessels in both the City Marina
and Key West Bight Marina and secures the ports facilities.
8.3 Hazards and Risk in Key West
Historic Storms
From the wreck of the treasure -laden ship, Nuestra Senora de Atocha, destroyed by a
hurricane in 1622 to the present, hurricanes have played a major role in the life of Key West.
Some of the more significant events include:
• October 1 1, 1846. As one survivor commented, it was "'the most destructive
of any that had ever visited these latitudes within the memory of man". Most
of the damage was located in the north and west sides of the island, along
Whitehead and Duval Streets to the Gulf (Bahama Village and Truman Annex)
and the Key West Bight. Damage included buildings that were pulled off their
foundations and swept out to sea, uprooted trees, destruction of a lighthouse,
and the cemetery located along South Beach was washed away with the dead
scattered in trees. Fort Zachary Taylor, which was under construction, was
severely damaged.
• October 11 and 17, 1909. Listed by the National Hurricane Center as one of
the most intense to affect the U.S., this storm was a Category 3 with a
Monroe LMS (2010 Update) 8-8
barometric pressure of 957 millibars. According to the Key West Historic
Districts Hurricane Guide, "the arrival of this hurricane caught residents
completely unprepared ... Seven factories, several churches, and much of the
waterfront was destroyed. Afterwards, debris clogged the streets." To make
matters worse, another Category 3 hurricane struck on October 17, 1910,
causing 30 deaths and $300,000 in damage (not adjusted).
• September 9-10, 1919. One of the most deadly and intense hurricanes listed in
the records of the National Hurricane Center, this Category 4 storm (927
millibars), this storm caused approximately 600 deaths. Key West recorded
winds of 95 mph and flood levels were 5-7 feet above Mean Sea Level.
Other Notable Hurricanes that Affected Key West
Hurricanes Donna (1960), Betsy (1965), and Inez
(1966), Tropical Storm Alberto (1982), Hurricanes
Kate (1982), Hurricane Floyd (198 7), and Hurricane
Andrew (1992).
November 11-12, 1980. The most notable flooding not produced by storm
surge resulted from the 24-hour event known as the "Veteran's Day Storm".
Nearly 23 inches of rain — the area's record — resulted from the influence of
Tropical Storm Jeanne over Cuba and a stalled cold front. Widespread
flooding affected streets and low-lying areas that were unable to drain due to
the flat topography and continual rainfall. Reports indicate that 300 vehicles
and 500 buildings were seriously damaged.
September 24-26, 1998. Hurricane Georges (Category 2) made landfall in the
Lower Keys. The entire county was affected to some extent (1 death and $300
million total damage). Maximum sustained winds at the Naval Air Station
(Boca Chica) were 92 mph and the Monroe EOC in Marathon reported gusts to
110 mph. According to the Key West Weather Service, precipitation levels in
the Lower Keys were identified as 8.65 inches on the south side of Sugarloaf
Key, 8.38 inches at Key West International Airport, and 8.20 inches on Cudjoe
Key.
October 22, 1999. With little warning, Hurricane Irene suddenly altered its
course and crossed near Key West.
Damage due to Hurricane Georges (1998)
Table 8-3 summarizes reimbursements received by the City from FEMA's disaster
assistance program. These amounts underestimate the total cost of damage to public
property and expenditures of manpower for recovery because they do not include the non-
federal share nor do they include costs determined to be ineligible. Other than debris
Monroe LMS (2010 Update) 8-9
removal and emergency work on beaches, the two most costly projects were the seawall
replacement ($6.9 million) and repairs at the incinerator plant ($535,000).
The damage left after Hurricane Georges moved through the Keys illustrates the
vulnerability and the types and magnitudes of damage and costs. Among the reported
damage were the following:
• The Hemingway House, a historic property, was damaged by a 146 year old
Banyan tree weakened by the winds and rain.
• The Key West International Airport's runway was flooded and one private
plane was overturned.
• A number of roads and sites were covered in sand and debris.
• Houseboats were damaged.
• Waterfront businesses suffered damage including lost piers and decks.
Table 8-3. FEMA Reimbursements for Hurricane
Georges (DR#1249)
FEMA Category of Damage
Amount of
Reimbursements
A Debris Removal
$3,390,800
B
Emergency Protective Measures
$1,925,900
C
Roads and Bridges
0
D Water Control Facilities
0
E
Buildings and Equipment (Public)
$792,800
F
Utilities
0
G
Parks, Recreational Facilities and Other
$7,597,500
Totals
$13,707,000
Damage due to Hurricane Wilma (2005)
Based on the Preliminary Damage Assessment for the City, more than 5,200 structures
experienced flood depths ranging from 3 6" to 60" (1,477 structures), 12" to 3 6" (2,213
structures), and less than 12" (1,512 structures). Eighty-five structures were destroyed.
Table 8-4 summarizes reimbursements received by the City from FEMA's disaster
assistance program. These amounts underestimate the total cost of damage to public
property and expenditures of manpower for recovery because they do not include the non-
federal share nor do they include costs determined to be ineligible.
Monroe LMS (2010 Update) 8-10
Table 8-4. FEMA Reimbursements for Hurricane
Wilma (DR 1609)
FEMA Category of Damage
Amount of
Reimbursements
A Debris Removal
$37506, 346.19
B
Emergency Protective Measures
$ L85806.27
C
Roads and Bridges
$0.00
D Water Control Facilities
$99,739.00
E
Buildings and Equipment (Public)
$2M4006.20
F
Utilities
$596J 50.92
G
Parks, Recreational Facilities and Other
$ L573,849.36
Totals
K675,857.94
Hurricane Flooding as Predicted by SLOSH Modeling
The National Hurricane Center's surge model, called SLOSH (Sea, Lake, and Overland
Surges from Hurricanes), estimates surges associated with different characteristics of
tropical cyclones (track, forward speed, wind speed, etc.). The results can be combined with
topographic mapping to delineate inland areas subject to flooding (with a margin of error of
+/- 20).
Table 8-5. SLOSH Maximum Predicted Water Depths (ft above MSL)
Ocean Side
Bay Side
Track
Direction
Storm Categories
Track
Direction
Storm Categories
1
2
3
4
5
1
2
3
4
5
WSW
3
4
9
9
10
WSW
4
6
9
10
10
W
4
6
8
9
10
W
4
7
8
10
10
WNW
4
6
8
9
10
WNW
4
7
8
10
10
WN
4
6
7
9
9
NW
4
6
7
9
9
NNW
4
5
7
9
9
NNW
4
5
7
9
9
N
4
5
7
9
9
N
4
5
7
9
9
NNE
4
5
7
9
9
NNE
4
5
7
9
9
NE
4
5
6
8
9
NE
3
5
6
8
9
ENE
4
5
6
8
10
ENE
4
5
6
9
10
E
3
1 5
7
8
10
E
1 4
5
7
9
10
Rainfall/Fresh Water Flooding in Key West
In several locations the City's storm drain system is inadequate to handle as little as three to
five inches of rainfall, which happens several times each year. The types of damage caused
by flooding of this nature include traffic rerouting, business closures, and flooding above
finished floor height and above of homes and businesses. In just the Old Town area at North
Duval, a typical storm can disrupt businesses causing losses of approximately $10,000 each
Monroe LMS (2010 Update) 8-11
day. Damage to private structures and contents and the costs of clean up are not estimated.
The most susceptible locations are listed in Table 8-6.
Table 8-6. Locations Susceptible to Rainfall/Fresh Water Flooding.
Location
Status (mid-2010)
The north section of Old Town bounded by the Gulf of
Not completed.
Mexico and Whitehead and Green Streets, some buildings
experience flooding above finished floor elevation flooding
approximately twice a year.
Palm Avenue and Eaton Street (at White Street) which can
Not completed.
reroute 5,000 vehicles per day during heavy rains, affects
businesses, and causes stranding of residents of the
adjacent housing authority homes.
Sirugo Avenue and Sunshine Drive, which has floods
Plans are developed and in line for
above finished floors in residences annually.
construction.
United Street and Thompson Street basin, which
Plans are developed and in line for
has causes flooding of residences finished floor.
construction.
North Roosevelt Boulevard (US Highway 1) which floods
Florida DOT project scheduled to being
two outbound lanes completely during heavy rain storms 2
September 2011, including flood
to 3 times each year, negatively impacting businesses and
mitigation and stormwater run-off
causing significant traffic rerouting.
controls.
Fourth Street at Patterson Avenue floods frequently,
Plans are developed and in line for
causing commercial business and residential traffic
construction.
disruptions.
Blanch, Dennis and Duncombe Streets causing school bus
Plans in development.
disruptions and flooding above finish floors of residences.
Duck Street Ave.and 20th Street, causing traffic disruptions
Not completed.
and flooding above finish floors of residences.
Various very localized flooding spots causing water
Areas are being prioritized for possible
infiltration into homes and businesses can be found around
plan development.
town.
Floodplain Management & Compliance with the NFIP
The City entered the National Flood Insurance Program in
1971 by adoption of an ordinance that complies with the
requirements of the program. The City reviews all NFIP Flood Insurance
q p g y Policies in Key West: 8.521
development proposals in special flood hazard areas and
enforces the requirements of the ordinance. To ensure Claims paid since 1978:
continued compliance with the NFIP, the City will continue 37403
to:
http://www.fema.gov/nfip/pcstat.shtm
• Enforce the adopted floodplain management ordinance, (as of December 31, 2009)
including inspection of permitted development and
unpermitted activities;
• Maintain records pertaining to floodplain development, including flood maps
and Letters of Map Change, which shall be available for public inspection;
Monroe LMS (2010 Update) 8-12
• Notify the public when there are proposed changes to the ordinance or Flood
Insurance Rate Maps; and
• Promote the purchase of NFIP flood insurance policies as financial protection.
NFIP Floodplain Mapping
Key West has participated in the National Flood Insurance Program (NFIP) since September
1971. The City's current Flood Insurance Rate Map, prepared by FEMA, is dated February
18, 2005. The FIRM delineates areas that have been determined to be sub j ect to flooding by
the "base flood," the flood that has a 1-percent-annual chance of flooding in any given year
(commonly called the 100-year flood). Flooding of this frequency is not associated with a
specific hurricane category. Key West has the following flood zones and flood elevations
(above MSL) shown on the FIRM:
• VE Zones (coastal flood with velocity hazard wave action) of 11-13 feet are
near the shoreline and in sections adjacent to Cow Key Channel on the border
with Stock Island.
• AE Zones (areas subject to flooding but waves are predicted to be less than 3-
feet in height) of mostly 7-9 feet are indicated for the newer sections of Key
West and in areas of "Old Town" close to the shoreline.
• X Zones are delineated in most of the inland areas of the older, historic portion
of the City. X Zones include areas determined subject to flooding by the 0.2-
percent annual -chance flood (500-year) and areas that are outside the 500-year
floodplain.
• AO Zones, where flood depths of 1-3 feet are predicted in sloping areas for
Sunset Island offshore of the west side of Key West.
NFIP Repetitive Loss Properties
Data provided by the Florida Division of Emergency Management identifies properties that
are, or have been, insured by the National Flood Insurance Program and that have received
two or more claims of at least $1.000. In 2005, 51 properties met the definition. As of
February 28, 2010, 216 individual properties have received 544 claims, totaling $24.6
million (average payment of $45,300). Figure 8-1 shows the locations of repetitive loss
properties.
A subset of the NFIP's Repetitive Loss Properties includes those that meet the Federal
definition for "severe repetitive loss." Seven properties in Key West are designated as
Severe Repetitive Loss properties, having received a total of 38 claims totaling more than
$1,252,200. A Severe Repetitive Loss Property is defined as a residential property that is
covered by an NFIP flood insurance policy and (a) that has at least four claim payments
(including building and contents) over $5,000 each, and the cumulative amount of such
claims exceeding $20,000; or (b) for which at least two separate claim payments (building
only) have been made with the cumulative amount exceeding the market value of the
Monroe LMS (2010 Update) 8-13
building. For both (n)and (h),otleast two ofthe qualifying claims must have occurred
Figure 8-1. NFIP Repetitive Loss Properties (February, 2010).
Tornadoes in Key West
Table 8-7 includes information on tornadoes that have affected Key West since the late
1950s. Fortunately, no deaths or injuries have resulted.
Table 8-7. Tornadoes in Key West
Date
Fujita Scale
Damage (not adjusted)
July 1, 1959
F-0
$3, 000
June 2, 1966
F-0
$25, 000
June 18, 1972 (Hurricane Agnes)
F-2
$400,000
August 20, 1978
F-0
$25,000
June 28, 1979
F-0
$3, 000
May 16, 1988
F-0
$1, 000
May 3, 1989
F-0
Not reported
May 1999
F-0
Not reported
October 2000
F-0
Not reported
October 2003
F-0
Not reported
December 2009
F-0
$5,000
Source: NWS Key West Warning Meteorologist and NCDC
Drought Hazards
Drought hazards for the planning area are described in Section 6.4. Key West's risk due to
drought is comparable the drought risk throughout the area.
Wildland Fire Hazards
The Florida Forestry Department has not indicated that areas in Key West are likely to
experience significant risk of wildland or brush fires.
Key West's Important and Critical Facilities
Table 8-8 lists facilities that the City deems important and critical. Figure 8-2 at the end of
this chapter shows the locations of the City's bridges, water treatment and sewer facilities,
city buildings and emergency facilities.
Table 8-8. Important and Critical Facilities in Key West
Critical/Essential Facilities:
• bridges
• 17 sewer lift stations and one Wastewater
Treatment Plant
• 2 stormwater lift stations
• City buildings (Old City Hall, City Hall with Fire
Facilities, City Hall Annex, City Hall Parking
Garage, Old Town Garage) Planning dept, .
• City Parks & Recreational Facilities: Martin
Luther King Pool Building, Indigenous Park,
Other Public Facilities:
• Dee Poo Hospital
• Lower Florida Keys Health Center
• U.S. Naval Hospital
• Key West International Airport
• Florida Highway Patrol Substation South
Roosevelt Boulevard
• US Coast Guard Base
• Military Fuel Storage Facility
Monroe LMS (2010 Update) 8-15
Table 8-8. Important and Critical Facilities in Key West
Mallory Square, Douglas Gym, Clayton Sterling
sports complex, Wickers Sports Complex,
Bayview Park Recreational Center, Fire Station
Museum
• Emergency Operations Center (Public Safety
Facility), Fire Station #3,
• Key West DOT Building, Public Works Building,
OMI Repair Building
• Southernmost Transfer Station
Keys Energy Services Main Office & Substation
Florida Keys Aqueduct (FKAA) Authority Main
Office, Water Towers, Storage Facility, Pump
Station
Hazardous Materials Sites (302 Facilities):
Mobile Home and Recreational Vehicle Parks (as
• Bell South, 530 Southard Street
of October 1995):
• KES 1001 James Street
• Key West Villas (Poinciana) LTD Mobile Home
Park
• Key West Wastewater Treatment Plant, Trumbo
Point Annex, Fleming Key
eStadium Mobile Home Park
Naval Air Station, Trumbo Point
• Key West Trailer Court
• Mastic
Marinas:
Cruise Ship and Ferry Ports:
• A & B Marina
• Mallory Square
• Galleon Marina
• Outer Mole
• Garrison Bight Marina
• Pier B
• Hilton Haven Marina
• KW Ferry Terminal
• Key West Seaport
• Key West Yacht Club Marina
• Land's End Marina
• Truman Annex Marina
• City Marina
• Ocean Key House
8.4 Damage Reduction Activities
On -Going Activities
The City activates a Post -Disaster Recovery Task Force after a major damaging event has
occurred. In addition to members from City departments, various neighborhood and
interest -based groups are represented. A main focus of the task force is to encourage public
participation in the post -storm redevelopment planning and review process, including
historic preservation interests. The Task Force also analyzes the outcome of an event and
makes recommendations for mitigation.
Between 1992 and 1999 the City of Key West participated in the NFIP's Community Rating
System. The Key West Building Department lists obtaining CRS certification among its
long-term goals.
Monroe LMS (2010 Update) 8-16
Recent Projects
The City has undertaken various projects to reduce exposure to future damage, such as
drainage improvements and retrofits of public buildings and facilities (with or without
FEMA funding). Table 8-9 lists projects completed between 1999 and 2004.
Table 8-9. Key West Mitigation Projects (1999-2010)
Mitigation Project Location and Notes on Activity
Key West Transfer/SWTE. Notes: Pending grant approval to redevelop the site
i
as the Key West Department of Transportation / Monroe County School District
Transportation Hub and Fleet Services Center.
DOT Building
co
E
FDS Gym. Notes: Seeking grants to enhance the structure to be used as a
c
general population shelter and point of distribution.
U)
Fire Station #1
HMGP
U)
Grinnell Street (Backflow preventers)
a�
William Street
Elizabeth Street
°
Green Street
E
Duval Street
Ashby Street Pump Station. Notes: Control panel was raised above BFE and
provided elevated platform for portable electric generation. Seeking grants to
install permanent emergency power for all pumping stations.
o
Simonton Street (Duval/Front Pump Station)
Major Pipe Cleaning Project. Notes: Ongoing.
White Street
Kamien Subdivision. Notes: Ongoing.
°
L
Fort Street. Notes: Ongoing.
=
a�
Reynolds Street
Searstown / Donald Ave
2005 Project: 26 Locations
Margaret Street
.;
—
Olivia Street
Rest Beach Berm
Dog Beach Berm
South Beach Berm
m
06
Simonton Beach Berm
U)
Smathers Beach Berm
a)
m
Seawall Additional Length
South Beach Pier
Monroe LMS (2010 Update) 8-17
8.5 2010 Updates
• 8.1: Revised to reflect the 2010 Conformed Version of the Key West
Comprehensive Plan.
• 8.2: Updated agency descriptions and revised to reflect current organization
and descriptions of functions related to hurricanes and hazard mitigation.
Expanded text on historic properties.
• 8.3: Added text on Hurricane Wilma. Updated locations susceptible to
rainfall flooding.
• 8.3: Added description of continued compliance with the NFIP. Expanded
text on repetitive loss properties, severe repetitive loss properties, and added
map of repetitive loss properties.
• 8.4: Added notes to the list of recent mitigation projects.
Monroe LMS (2010 Update) 8-18
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r t.
4-4
4—
err 1. 'rrr :1
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-k LL- 1GQ 6
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Figure 8-2. Key West's Critical Facilities Map.
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Monroe LMS (2010 Update) 8-19
Monroe LMS (2010 Update) 8-20
Chapter 9. City of Layton
The City of Layton, incorporated in 1963, is located in the Middle Keys primarily on the
east side of Overseas Highway, just north of Long Key State Park entrance.
9.1 Overview of Layton
Geography
Layton comprises just 85 acres in area. Layton is building almost entirely on waterfront
property, mostly canals. It is low-lying, with all land below about 6 feet above mean sea
(MSL).
Population
Layton has a permanent resident population of 200. The seasonal population increases to as
much as 250. Current population projects indicate the permanent population may grow to
205 by 2010.
In 2004, the Monroe County Social Services registered just one person people in the Layton
area as having special needs for hurricane assistance.
Land Use & Economy
Layton's development is primarily single family residences located along canals and small
businesses (restaurants and convenience stores).
Future growth is limited through the Rate of Growth Ordinance to implement portions of the
City's Comprehensive Plan. ROGO, as the ordinance is called, establishes a building permit
allocation system for residential construction. The purpose is to encourage in -fill of platted
lots served by existing infrastructure and to limit growth to enable safe and timely hurricane
evacuation. Pursuant to ROGO and an agreement between the City, County and the
department of Community Affairs, the annual allocation for Layton is three permits per year
for residential dwelling units.
All new construction, reconstruction, and improvements to existing buildings must comply
with the current building code requirements.
Layton joined the National Flood Insurance Program in July 1971 and administers a
floodplain management ordinance that meets or exceeds the minimum federal requirements.
Monroe LMS (2010 Update) 9-1
9.2 City Organization and Agencies
Layton's City Council is composed of 6members, including the Mayor who is elected
specifically to that office. The City Council sets government policy and adopts guidance
documents, such as the Comprehensive Plan (1996) and ordinances establishing various
codes and standards.
Layton is organized into several agencies, each with authorized responsibilities that, as
described below, have bearing on how natural hazards are recognized and addressed.
Mayor. The Mayor implements the policies of the Commission and administers the overall
operations of the City, including hiring staff as funded by the Council and chairing the
Council meetings.
City Clerk. The City Clerk is appointed by the City Council and is responsible for
maintaining City records, publishing meeting notices, maintaining the financial records, and
other duties as directed by the City Council.
Administrative Assistant to the Mayor. The Administrative Assistant is responsible for the
daily activities of the City and in the absence of the Mayor, represents the Mayor at official
meetings and functions.
Layton Planning Department. The Planning Department is responsible for the
development and maintenance of the City's Comprehensive Plan.
City Building Official. The Building Official reviews construction plans, issues permits,
and inspects projects for compliance. Layton has adopted the Florida State Building Code.
The Department is responsible for enforcing zoning and building standards and the Land
Development Regulations.
Monroe LMS (2010 Update) 9-2
Layton, Florida
• Building Department has 2 part-time staff
members
• City Clerk has 1 past -tine staff member
• Administrative Department has 1 past -tine staff
member
• Planning Department has 1 part-time staff
member
• Code Enforcement Department has 1 part-time
staff member and an appointed Code Enforcement
Board
Table 9-1. Layton: Permits Issued (2007, 2008, 2009).
CY 2007
CY 2008
CY 2009
New single-family, detached
3
3
0
New single-family, attached
0
0
0
Multi -family (2 or more)
0
0
2
Non-residential (all types)
1
2
0
Residential (additions, alterations, repairs)
18
24
27
Non-residential (additions, alterations, repairs)
0
0
24
Demolition
0
4
0
Relocation
0
0
0
Mobile home (permanent/temporary)
0
0
0
Total Permits Issued
22
33
53
9.3 Hazards and Risk in Layton
Historic Storms
Hurricane Donna (August 29-September 19, 1960). A Category 4 hurricane, this storm is
listed among the most intense in U.S. history. It curved northwestward over the Middle
Keys before turning north towards the mainland at Naples and Fort Myers. Wind speeds of
128 mph and central pressure of 28.44 inches were measures. Tide levels ranged from 13.5
feet above MSL at Upper Matecumbe Key, + 10 feet at Plantation Key, and 8.9 feet in Key
Largo. The high water mark closest to Layton was nearly 8 feet (ocean side, Craig Key Mile
Marker 72).
Monroe LMS (2010 Update) 9-3
Hurricane Betsy (August 26-September 12, 1965). A Category 3 hurricane, Betsy passed
over Marathon moving westward into the Gulf of Mexico. At Tavernier, central pressure
was recorded at 18.12 inches and wind speeds were estimated at 120 mph. Flood levels
were measures at 9 feet MSL in Key Largo.
Ground Hog's Day Storm (February 2, 1998). This severe weather system produced
tornadic activity in the area.
Hurricane Georges (September 25, 1998). Near Layton at Mile -Marker 70, storm debris
rendered U.S. 1 impassable to civilian vehicles. The high water marks closest to Layton
were 4.6 feet at Mile -Marker 69.5 and 5.7 feet at Long Key State Park Mile -Marker 66.8.
Tropical Storm Mitch (November 4-5, 1998) affected the City of Layton.
Effect of Recent Hurricane Disasters
Damage from Hurricane Georges is representative of Layton's exposure:
• Damaged city property; a reimbursement of over $7,000 was received for
damage to signs and streets, park cleanup, and EOC staffing.
• All private residences that were below the crown of the city's streets received
flooding, and most roofs suffered wind damage (shingles). About 2% of
homes sustained significant wind damage.
• Due to a 4-day power outage, all businesses were closed or experienced
restricted operations.
• Lobster fishermen lost approximately 50% of their traps.
Damage from Hurricane Wilma
Although there was only minor damage to City property, there was severe water and wave
action caused more than $1.000,000 in damage to the waterfront commercial and residential
properties on the north side of the Overseas Highway as the surge from the storm exceeded
5.5 feet above Base Flood.
Hurricane Flooding as Predicted by SLOSH Modeling
The National Hurricane Center's surge model, called SLOSH (Sea, Lake, and Overland
Surges from Hurricanes), estimates surges associated with different characteristics of
tropical cyclones (track, forward speed, wind speed, etc.). The results can be combined with
topographic mapping to delineate inland areas subject to flooding (with a margin of error of
+/- 20%). The closest available predications are made for Conch Key Mile -Marker 63 and
Islamorada Mile -Marker 82 (Table 9-2). Although storm surge flooding cannot be predicted
simply at any given location, these charts can be used to approximate surge flooding in
Layton.
Monroe LMS (2010 Update) 9-4
Table 9-2. SLOSH Maximum Predicted Water Depths (ft above MSL)
Ocean Side Mile -Marker 63
Ocean Side Mile Marker 82
Track
Direction
Storm Categories
Track
Direction
Storm Categories
1
2
3
4
5
1
2
3
4
5
WSW
4
6
8
9
9
WSW
4
5
7
8
9
W
4
6
7
8
9
W
4
6
7
9
10
WNW
4
5
7
8
9
WNW
4
6
7
9
10
WN
4
5
7
7
8
NW
4
6
7
9
10
NNW
4
5
6
7
8
NNW
4
5
7
8
10
N
3
5
6
7
8
N
4
5
7
8
9
NNE
3
4
6
7
8
NNE
4
5
6
8
9
NE
3
5
6
8
9
NE
4
5
6
7
8
ENE
4
6
8
10
11
ENE
3
5
6
7
8
E
5
8
10
11
12
E
3
4
6
7
8
Floodplain Management & Compliance with the NFIP
The City entered the National Flood Insurance
Program in 1971 by adoption of an ordinance that
complies with the requirements of the program.
The City reviews all development proposals in
special flood hazard areas and enforces the
requirements of the ordinance. To ensure
continued compliance with the NFIP, the City
will continue to:
• Enforce the adopted floodplain management
ordinance, including inspection of permitted
development and unpermitted activities;
NFIP Flood Insurance Policies in
Layton: 101
Claims paid since 1978: 8
http://www.fema.gov/nfip/pcstat.shtm
(as of December 31, 2009)
• Maintain records pertaining to floodplain development, including flood maps
and Letters of Map Change, which shall be available for public inspection;
• Notify the public when there are proposed changes to the ordinance or Flood
Insurance Rate Maps;
• Implement activities recognized by the NFIP's Community Rating System;
and
• Promote the purchase of NFIP flood insurance policies as financial protection.
NFIP Floodplain Mapping
The National Flood Insurance Program (NFIP) prepared a Flood Insurance Rate Map for
Monroe County and incorporated municipalities (current effective map is dated February 18,
2005). Layton has participated in the National Flood Insurance Program (NFIP) since July
Monroe LMS (2010 Update) 9-5
1971. The FIRM delineates areas that have been determined to be subj ect to flooding by the
"base flood," the flood that has a 1-percent-annual chance of flooding in any given year
(commonly called the 100-year flood).
All land in Layton is subject to flooding; all buildings are subject to some degree of risk
depending on type of construction and elevation above grade. Areas designated as VE
Zones (coastal flood with velocity hazard wave action) are shown as exposed to flooding
ranging from 11-13 feet above MSL. Areas delineated as AE Zones (areas subject to
flooding but waves are predicted to be less than 3-feet in height) are exposed to flooding 8-9
feet above MSL.
NFIP Repetitive Loss Properties
Data provided by the Florida Division of Emergency Management identifies properties that
are or have been insured by the National Flood Insurance Program and that have received
two or more claims of at least $1,000. Based on data as of October 2009 there are no
repetitive loss properties in Layton.
Severe Storms, Tornadoes, Water Spouts and High Winds (Other than Hurricane)
Layton, like the rest of the Keys, has low-lying terrain. Section 6.2 characterizes the entire
area encompassed by Monroe County and the cities as having equal distribution of winds.
The risk of severe storms, tornadoes, water spouts and high winds in Layton does not vary
from the rest of the planning area. All new buildings, replacement buildings, and additions
to existing buildings must comply with the Florida Building Code's wind load requirements.
Rainfall/Ponding Flooding
Layton does not have any identified areas where rainfall/ponding flooding is so severe or
prolonged as to cause access problems or damage to buildings.
Drought Hazards
Drought hazards for the planning area are described in Section 6.4. Layton's risk due to
drought is comparable the drought risk throughout the area.
Wildland Fire Hazards
The Florida Forestry Department has not indicated that areas in Layton are likely to
experience significant risk of wildland or brush fires. The exception to this statement may
be along the city's boundary with Long Key State Park where natural vegetation may
increase fire hazards during some dry periods.
Monroe LMS (2010 Update) 9-6
Risk: Layton's Critical and Important Facilities
Figure 2-2 shows the locations of the City's facilities that are listed in Table 9-3.
Table 9-3. Important and Critical Facilities in Layton
Critical/Essential Facilities:
• City Hall/Fire Rescue Complex
• Bell South Mobility Towner
• Florida Keys Aqueduct Authority Pumping
Station (Mile -Marker 70, Long Key)
Hazardous Materials Sites (302 Facilities):
• None
Marinas:
• KT's Marina
9.4 Damage Reduction Activities
On -Going Activities
Other Facilities:
• Florida Keys Marine Laboratory
• U.S. Post Office
Mobile Home and Recreational
Vehicle Parks (as of October 1995):
• None
• The City's Comprehensive Plan policies include provisions for limiting
densities in the Coastal High Hazard Area, improving hurricane evacuation
timing, and protection of native vegetation and natural shorelines.
• Other measures dealing with hazard planning include the consideration of
mobile home restrictions and the need to increase the availability of
emergency generators for use in the City.
• The Building Department implements mitigation policies reflected in the
Building Code and Land Development Regulations, including standards to
reduce vulnerability to high wind load and enforcement of the "substantial
improvements" rule.
• The Planning Department implements mitigation measures reflected in the
Comprehensive Plan and Land Development Regulations, including
regulations designed to minimize damage to structures from wind and waves
resulting from storms and floodplain management controls.
• New construction must include storm shutters designed to resist design winds
of 159 mph and debris impacts.
• The Comprehensive Plan calls for engineering and other analyses to be
undertaken before post -disaster redevelopment is undertaken so that
appropriate building regulations can be adopted and design guidelines
established for replacement or repair of infrastructure.
Layton participates in the Community Rating System (CRS) of the National Flood Insurance
Program. The CRS recognizes actions that exceed the minimum requirements. In return,
Monroe LMS (2010 Update) 9-7
the City's property owners enjoy a 10% reduction in the cost of NFIP flood insurance.
Actions undertaken by the City include:
• Maintains elevation certificates
• Makes NFIP map determinations
• Requires new buildings to be elevated 3 feet above the BFE
• Limits enclosures below elevated buildings to 300 square feet
• Sends annual NFIP mailings to all local lenders, realtors, and insurance
companies
• Keeps NFIP library in City Hall
• Warns citizens of impending flooding
Recent Projects
In 2002, with a Federal -State Hazard Mitigation Grant, the City of Layton installed
hurricane retrofit measures to the City Hall/Fire Station to meet the 159 miles per hour
standards. The total cost was $75,000 (50% Federal, 25% State, 25% City).
Replacement culverts were installed under South Layton Drive to assist in tidal water flow
in the canals. Rip -rap storm water retention swales and native plants were included in the
project. The $60,000 project was funded locally.
9.5 2010 Updates
The City reviewed and updated the pertinent sections. Some of the more significant changes
include:
• Section 9.2: Added City Clerk and Administrative Assistant to the Mayor.
Reported on the number of issued permits.
• Section 9.3: Added description of damage from Hurricane Wilma. Added text
related to compliance with the NFIP. Updated NFIP policy and claims data.
• Section 9.4: Added two bullets to list of activities credited under the CRS.
Added recent project to replace culverts under South Layton Drive.
Monroe LMS (2010 Update) 9-8
Chapter 10. City of Key Colony Beach
10.1 Overview of Key Colony Beach
Geography
Key Colony Beach, a man-made island community built in 1957, comprises just 285 acres in
area. It is low-lying, with all land below about 5.5 feet above mean sea (MSL). The entire
south shore faces the Atlantic Ocean and the west shoreline faces Vaca Cut, which connects
the Atlantic to the Gulf of Mexico. The island, located approximately between Mile Marker
53 and Mile Marker 54, contains numerous dead-end canals, channels and bays that
experience flooding due to storm surges that may be higher than along flat shorelines.
Population
Key Colony Beach has a permanent resident population of 836. The seasonal population
increases by as much as 3,600. Current population projects indicate the permanent
population may grow to about 950 by 2010.
In 2004, the Monroe County Social Services registered 12 people in the area between Mile
Marker 53 and Mile -Marker 60 as having special needs for hurricane assistance.
Land Use & Economy
Key Colony Beach is a well -planned community comprised of single family, duplex, and
multifamily dwellings. These uses are served by limited commercial development,
including light retail, restaurants, offices and marinas. Just over 10% of the land area is used
or recreational purposes.
The City joined the National Flood Insurance Program in July 1971 and administers a
floodplain management ordinance that meets or exceeds the minimum federal requirements.
About 40% of the buildings were constructed prior to 1971.
Comprehensive Plan
The City of Key Colony Beach adopted its Comprehensive Plan in February 1992. The plan
includes nine elements pertaining to the future growth and development of the City.
Throughout the plan are numerous goals, objectives and policies that acknowledge hurricane
risks, especially related to evacuation, growth, ensuring safety, providing adequate facilities,
managing storm water, working with providers of water supply and wastewater services, and
requirement compliance with codes. The Infrastructure Element and the Conservation and
Coastal Element contain specific policies relevant to mitigation of future risk and damage.
The Infrastructure Element includes:
Monroe LMS (2010 Update) 10-1
• Complete a detailed engineering study of drainage and implement priority
storm water projects. As of 2010, the construction is 70% construction
complete with citywide storm water retention systems.
• On -site wastewater disposal facilities to minimize potential environmental
impacts. The City's wastewater treatment plant was installed in 1970 and has
been upgraded to 2010 standards.
• Establish and coordinate acquisition programs. The City has acquired several
properties over the past ten years.
The Conservation and Coastal Element includes:
• New development encroaching into the 100-year floodplain shall incorporate
elevation and flood protection measures sufficient to protect against the 100-
year flood.
• The City shall maintain consistency with program policies of the National
Flood Insurance Program.
• The City shall monitor new, cost-effective programs for minimizing flood
damage.
• Such programs may include modifications to construction setback
requirements or other site design techniques, as well as upgraded building and
construction techniques.
10.2 City Organization and Agencies
The City of Key Colony Beach is a Commission Form of Government. The City
Commission is composed of 5 members, including the Mayor who is selected by the
Commission to that office. The City Commission sets government policy and adopts
guidance documents, such as the Comprehensive Plan, the Land Development Regulation,
and ordinances establishing various codes and standards.
Key Colony Beach is organized into several departments, each with authorized
responsibilities that, as described below, have bearing on how natural hazards are
recognized and addressed.
Mayor/City Administrator. The Mayor of Key Colony Beach implements the policies of the
Commission and administers the overall operations of the City. With regard to floodplain
management the Mayor (or designee) is appointed to administer and implement these
provisions consistent with the requirements of the National Flood Insurance Program.
Key Colony Beach Planning and Zoning Committee. The Key Colony Beach Planning and
Zoning Committee is responsible for the development and maintenance of the City's
Comprehensive Plan and the Land Development Regulations. City personnel serve as staff
to the Committee and are involved in the following related to hazard mitigation:
Monroe LMS (2010 Update) 10-2
• Ensures that mitigation related items in the Comprehensive Plan, such as
floodplain management and natural resource management, are followed and
reflected in the City's Codes and Standards.
• Participates in post -disaster appraisals and may formulate additional mitigation
measures for use in the Comprehensive Plan.
• Works closely with the Building, Code Enforcement, and Fire Department to
ensure coordination of actions related to disaster planning, recovery, and
mitigation.
• Reviews construction plans for compliance to the NFIP regulations.
• Responsible for enforcing planning and zoning standards.
Key Colony Beach Building Department. The Building Department is responsible for
regulations of building construction pertaining to life safety, health, and environmental land
use zoning regulations. The department is staffed by the Building Official, a Building
Inspector, a Permit Clerk and an on -call State of Florida Registered Engineer. Related to
mitigation of hazards, the department is responsible for the following:
• Review of construction plans and issuing building permits
• Inspection and enforcement during construction
• Designated as coordinator for the National Flood Insurance Program.
Table 10-1. Key Colony Beach Permit Statistics for 2007, 2008,
2009
Permits Issued
CY
2007
CY
2008
CY
2009
New single-family, detached
0
4
1
Duplexes
1
0
0
Multi -family (3 or more)
0
0
0
Non-residential (all types)
0
0
0
Residential (additions, alterations, repairs)
280
270
280
Non-residential (additions, alterations, repairs)
14
21
11
Demolition
0
1
1
Relocation
0
0
0
Number of inspections
615
624
616
Key Colony Beach Public Works Department. The Public Works Department works under
the Building Official and is responsible for overseeing the maintenance of most city
facilities, including buildings, roads, and bridges. It operates and maintains City vehicles.
Monroe LMS (2010 Update) 10-3
Public Works is responsible for coordination and provision of emergency public works,
initial evaluation of infrastructure damage and preparation of documentation required for
federal reimbursement (including identification of mitigation components to be
incorporated), and coordination of emergency debris clearing.
In executing its disaster recovery responsibilities, Public Works coordinates with the Florida
Department of Transportation, Monroe County Department of Public Works, Florida Keys
Aqueduct Authority, and Florida Keys Electric Co-op. The department plans, coordinates
and initiates restoration of the serviceability of transportation routes, bridges, and assurance
as to the safety of affected public and private dwellings and structures.
Key Colony Beach Code Enforcement Board and Officer. The Code Enforcement Board
and Officer oversee after -the -fact code compliance issues pertaining to safety, health, and
environmental land use zoning regulations. The department is staffed by a Code
Enforcement Officer and an Administrative Assistant. Related to mitigation of hazards, the
department is responsible for: working closely with the Building, Planning, and Fire
departments to ensure coordination of actions related to disaster planning, recovery, and
mitigation; and participating in post -disaster appraisals.
City Clerk/Finance Administrator. The Finance Administrator is responsible for
overseeing the day-to-day financial requirements of the City, including establishment of
purchasing procedures for all agencies. To expedite preparation for, response to, and
recovery from disasters, the Finance Administrator may implement special emergency
procedures to expedite necessary purchase and payment before, during, and after a disaster.
Key Colony Beach Police Department. The Key Colony Beach Police Department is
responsible for overall law enforcement and protection of residents and visitors in the City
of Key Colony Beach. The department plays a key role in planning and response during
emergencies to include but not limited to: coordination with Florida Highway Patrol to
promote speedy and safe evacuation, communicates with base operations, field personnel,
and emergency shelters.
Marathon Fire Department. The City contracts with the Monroe County Fire Department
to provide emergency management assistance and direction to the City of Key Colony
Beach for all life safety in connection with other duties of fire control, fire prevention, and
fire and hurricane public education. The department plays a lead role in planning and
response for all emergencies. As required under U.S. Homeland Security Presidential
Directive 5, has adopted and uses the National Interagency Incident Management System
(NIIMS) and will adopt the National Fire Service Incident Management System (IMS)
Incident Command System (ICS) as the baseline incident management system. ICS is
Monroe LMS (2010 Update) 10-4
implemented for all fires, haz-mat incidents, rescues, structural collapse and urban search
and rescue operations, manmade and natural disasters, and EMS responses that require two
or more rescue companies.
10.3 Hazards and Risk in Key Colony Beach
Historic Storms that have affected the Key Colony Beach Area:
• 1929 Hurricane (September 22 to October 4) —The hurricane crossed over
Key Largo on a northerly course. Key Largo reported winds estimated at over
100 mph, a central barometric pressure of 28 inches, and tide levels of 8-9 feet
above MSL. Key West experienced tide levels of 5-6 feet above MSL and
winds of 66 mph.
• 1935, Hurricane (August 29-September 10) - The small, extremely violent,
Category 5 hurricane crossed the Florida Keys on a northwesterly track. The
Tavernier-Islamorada area reported winds estimated at 120 mph with gusts
from 190-210 mph. Tide levels in the Florida Keys ranged from 14 feet above
MSL in Key Largo to 18 feet above MSL in Lower Matecumbe Key. The
storm was so intense and tightly wrapped that Key West had tide levels of only
2 feet above MSL and average sustained winds of less than 40 mph. One of
the most tragic aspects of the 1935 storm was the unfortunate death of many
WWI veterans who were working on construction of the first Overseas
Highway.
• Hurricane Donna, 1960 (August 29-September 19) — Hurricane Donna curved
northwestward over the Middle Keys near Long Key/Layton and then traveled
northward toward the Gulf Coast towns of Naples and Fort Myers. Areas in
the vicinity of the storm experienced winds speed of 128 mph and a central
pressure of 28.44 inches. The storm affected the Everglades with estimated
winds of 150 mph. Tide levels were reported at Upper Matecumbe Key of
13.5 feet above MSL, at Plantation Key 10+ feet above MSL, and 8.9 feet
above MSL in Key Largo. As of 1992 Hurricane Donna, a Category 4 storm is
listed as the 61h most intense hurricane in the US.
Hurricane Betsy, 1965 (August 26-Septmber 12) —Hurricane Betsy passed
over Marathon while moving westward into the Gulf of Mexico. The lowest
central pressure was measured in Tavernier at 28.12 inches and wind speeds
were estimated to be 120 mph. Tide levels in Tavernier were 7.7 feet above
MSL and Key Largo had tide levels of around 9 feet above MSL. Betsy was a
Category 3 storm and is ranked 25th in intensity.
Ground Hog's Day Storm (February 2, 1998) involved multiple F-2 tornado
touchdowns resulting from severe thunderstorms characterized by dangerous
cells with high, cold cloud tops affecting the Florida Keys. Areas most
affected were primarily in the Middle Keys including Grassy Key and Valhalla
Beach in the vicinity of Duck Key. Several buildings were damaged. Also
significant problems occurred from the displacement of lobster traps that
contributed to seaborne debris and navigational problems; the fishing industry
suffered considerable loss of income.
Monroe LMS (2010 Update) 10-5
Severe thunderstorms (July 4, 1998). Severe thunderstorms with lightning and
high winds came up quickly in the Middle Keys. The Weather Service Office
in Key West recorded wind speeds up to 70 mph sustained. Because it was
July 4th, many boats were offshore celebrating and waiting for the fireworks.
Although, this event did not warrant a presidential disaster declaration, it did
result in loss of life.
Hurricane Georges, 1998 (September 25, 1998), a Category 2 when made
landfall in the Lower Keys, affecting the entire county to some extent.
Damage estimates approached $300 million, including insured and uninsured
damage and infrastructure loss. Maximum sustained winds at the Naval Air
Station (Boca Chica) near Key West were 92 mph; gusts up to 110 mph were
reported by the Emergency Operations Center in Marathon. According to the
Key West Weather Service, precipitation levels in the Lower Keys were as
8.65 inches on the south side of Sugarloaf Key, 8.38 inches at Key West
International Airport, and 8.20 inches on Cudjoe Key. Tavernier in the Upper
Keys recorded 8.41 inches. In Key Colony Beach storm surge flooding
exceeded six feet over normal high tide. All city streets and many buildings
were flooded, with approximately 125 damaged ground level dwelling units.
Tropical Storm Mitch, 1998 (November 4 and 5). Feeder bands from Mitch
containing dangerous super cells spawned several damaging tornadoes in the
Upper Keys. Sections with mobile homes were especially hard hit.
Islamorada experienced an F-1 tornado; Rock Harbor and Key Largo were hit
by F-2 tornadoes. According to the Department of Community Affairs,
damages were estimated at $11 million.
Hurricane Irene, October 1999. Hurricane Irene hit the Florida Keys and
Southeastern Florida. This Category 1 Hurricane dumped 10 to 20 inches of
rain resulting in severe flooding in the Florida Keys and Southeastern Florida
causing total damage estimated at $800 million
Tropical Storm Gabrielle, September 2001. Although it did not reach
hurricane strength, this storm hit the southwest coast of Florida and caused
flooding problems; Marathon did see some effects from the storm.
• In 2005, the city was affected by Tropical Storm Dennis, Hurricane Katrina,
and Hurricane Rita, each caused minor property damage, flooding, coastal
erosion, and generated debris (largely landscaping materials).
Some Costs of Recent Hurricane Disasters
Damage from Hurricane Georges is representative of Key Colony Beach's exposure to
tropical cyclones:
• Debris removal costs exceeded $300,000
• Repair of city street signage and parks cost $7,900
• Waterway cleanup, including buoy replacement, cost $8,300
• Manning the EOC, search and rescue, and emergency labor and supplies cost
$8,600
• Contract for structural engineering support was $16,300
Monroe LMS (2010 Update) 10-6
• Repairs to the wastewater treatment system cost $31,400
• Repairs to the storm water system cost $36,000
Damage sustained on private property included:
• Wind and flood damage was estimated at $4.4 million
• Approximately 10% of all residences were damaged, notably those that
predated the City's floodplain management requirements
• Approximately 5% of fiberglass roof singles and concrete the roofs were
damaged
• 4% of all structures sustained significant flood, wave and wind damage
• All businesses were closed or severely restricted due to structural damage and
power outages
• Tourist -based businesses were most affected
Hurricane Flooding as Predicted by SLOSH Modeling
The National Hurricane Center's surge model, called SLOSH (Sea, Lake, and Overland
Surges from Hurricanes), estimates surges associated with different characteristics of
tropical cyclones (track, forward speed, wind speed, etc.). The results can be combined with
topographic mapping to delineate inland areas subject to flooding (with a margin of error of
+/- 20%). The closest available predications are made for Marathon Mile -Marker 50 and
Duck Key Mile -Marker 61 (Table 10-2). Although storm surge flooding cannot be
predicted simply at any given location, these charts can be used to approximate surge
flooding in Key Colony Beach.
Table 10-2. SLOSH Maximum Predicted Water Depths (ft above MSL)
Ocean Side Mile -Marker 50
Ocean Side Mile Marker 61
Track
Direction
Storm Categories
Track
Direction
Storm Categories
1
2
3
4
5
1
2
3
4
5
WSW
4
5
6
7
8
WSW
4
5
6
7
8
W
4
5
7
8
9
W
4
5
7
8
9
WNW
4
6
7
8
9
WNW
4
6
7
9
10
WN
4
6
7
8
9
NW
4
5
7
8
10
NNW
4
5
7
8
9
NNW
4
5
7
8
9
N
4
5
7
8
9
N
4
5
6
8
9
NNE
4
5
6
7
9
NNE
4
5
6
8
9
NE
4
5
6
7
8
NE
4
5
6
7
9
ENE
3
5
6
7
8
ENE
3
5
6
7
8
E
3
4
5
6
7
E
3
4
5
1 6
8
Monroe LMS (2010 Update) 10-7
Floodplain Management & Compliance with the NFIP
The City entered the National Flood Insurance Program in 1971 by adoption of an ordinance
that complies with the requirements of the program. The City reviews all development
proposals in special flood hazard areas and enforces the requirements of the ordinance. To
ensure continued compliance with the NFIP, the City will continue to:
• Enforce the adopted floodplain management ordinance, including inspection of
permitted development and unpermitted activities;
• Maintain records pertaining to floodplain
development, including flood maps and Letters of
Map Change, which shall be available for public NFIP Flood Insurance
inspection; Policies in Key Colony
• Notify the public when there are proposed changes Beach: 1,227
to the ordinance or Flood Insurance Rate Maps;
• Implement activities recognized by the NFIP's
Community Rating System; and
• Promote the purchase of NFIP flood insurance
policies as financial protection.
NFIP Floodplain Mapping
Claims paid since 1978: 166
http://www.fema.gov/nfip/pcstat.shtm
(as of December 31, 2009)
The National Flood Insurance Program (NFIP) prepared a Flood Insurance Rate Map for
Monroe County and incorporated municipalities (current effective map is dated February 18,
2005). The FIRM delineates areas that have been determined to be subject to flooding by
the "base flood," the flood that has a 1-percent-annual chance of flooding in any given year
(commonly called the 100-year flood).
The entire City is located in areas designated as VE Zones (coastal flood with velocity
hazard wave action) and AE Zones. With land elevations averaging 4-7 feet, water depths
associated with the 1 %-annual chance flood can be expected to range from 4 to 9 feet. As
indicated by the predicted storm surge flood depths, even deeper flooding will occur during
more severe hurricanes. As such, all new development in the City is subject to the
floodplain management standards established in the City's Land Development Regulations.
NFIP Repetitive Loss Properties
Data provided by the Florida Division of Emergency Management identifies properties that
are or have been insured by the National Flood Insurance Program and that have received
two or more claims of at least $1.000. In 2005, 9 properties met the definition. As of
February 28, 2010, 15 individual properties have received 35 claims, totaling $1.8 million
(average payment of $46,800). Figure 10-1 shows property locations of those records that
were able to be plotted.
Monroe LMS (2010 Update) 10-8
Figure 10-1. Repetitive Loss Properties MM 48 — MM 53 .
Stormwater Management & Rainfall/Ponding Flooding
Key Colony Beach's Stormwater Management Master Plan, prepared in 1995, identifies
areas of localized flooding and specific engineered construction plans to minimize local
flooding that includes closed drainage systems, open swales, retention ponds, covered
trenches, and injection wells. This project is approximately 70% completed construction as
of early 2010.
Severe Storms, Tornadoes, Water Spouts and High Winds (Other than Hurricane)
Key Colony Beach, like the rest of the Keys, has low-lying terrain. Section 6.2 characterizes
the entire area encompassed by Monroe County and the cities as having equal distribution of
winds. The risk of severe storms, tornadoes, water spouts and high winds in Key Colony
Beach does not vary from the rest of the planning area. All new buildings, replacement
buildings, and additions to existing buildings must comply with the Florida Building Code's
wind load requirements.
Drought Hazards
Drought hazards for the planning area are described in Section 6.4. Key Colony Beach's
risk due to drought is comparable to the drought risk throughout the area.
Monroe LMS (2010 Update) 10-9
Wildland Fire Hazards
The Florida Forestry Department indicates that in the Key Colony Beach area, Grassy Key
(including Geiger and Boca Chica) is the area most prone to wildland/brush fires. Based on
data provided by Monroe County Property Appraiser, Grassy Key includes a total of 9,391
parcels of land of which 6,498 are improved. The total assessed value of improvements is
$1,562,786,704. It is important to note that this summary is not to imply that all properties
would be vulnerable in any given wildfire outbreak. Future development on Grassy Key is
influenced by property owner choices; all new construction must comply with
environmental restrictions.
Key Colony Beach's Important and Critical Facilities
Figure 2-2 shows the locations of the City's facilities that are listed in Table 10-3.
Table 10-3. Important and Critical Facilities in Key Colony Beach
Critical/Essential Facilities:
Other Public Facilities :
• City Hall-Police/Auditorium/Post Office
• Public Golf Courses
Complex
Public Tennis Courts
• Wastewater Treatment Plant and System
City Parks and Playground
• Stormwater System
• Public Works Building
Hazardous Materials Sites (302 Facilities):
Marinas:
• Wastewater Treatment Plant (chlorine and
• The Boat House (MM 53.5, Ocean side)
sulfuric acid)
Key Colony Beach Marina (MM53.7, Ocean
side)
10.4 Damage Reduction Activities
On -Going Activities
• Comprehensive Plan objectives and policies address the need to hold down
densities so as not to increase hurricane evacuation times. A stated objective
of the Plan is to: "Grant no land use amendments that would increase the land
use density and intensity, in order to assure that the projected `build -out'
hurricane evacuation traffic entering on U.S. 1 will not increase. Concurrent
policies address restrictions on population density "in order to avoid further
burdens on the hurricane evacuation plan".
• Plan policies advocate no City expenditures for infrastructure in the V zone
that would encourage increased private development.
• The City of Key Colony Beach Disaster Preparedness Committee, composed
of residents and City representatives, coordinates with the County on
emergency management activities such as planning, response, recovery, and
mitigation. It provides its own public information program, disaster command
center, and emergency supplies.
Monroe LMS (2010 Update) 10-10
• Post -disaster redevelopment is addressed in the Coastal Management Element
of the Comprehensive Plan, recognizing that redevelopment may require
greater building setbacks and elevations, and installation of dunes rather than
seawalls.
• The Building Code requires buildings to be designed to withstand the forces of
150 mph winds (assumed in any direction and without regard to the effects of
shielding of other structures).
• Post -disaster assessments are required by the Building Department to
determine whether demolition versus repairs are appropriate given the level of
damage; buildings damaged more than 50% must be rebuilt to current codes,
including elevation requirements for construction in the floodplain.
• The Land Development Code requires that all existing mangroves be
maintained to state requirements; use of seawalls is restricted; new oceanfront
development shall include dune planting plans.
Key Colony Beach participates in the Community Rating System (CRS) of the National
Flood Insurance Program. The CRS recognizes actions that exceed the minimum
requirements. In return, the City's property owners enjoy a 10% reduction in the cost of
NFIP flood insurance. Actions undertaken by the City include:
• Maintains elevation certificates
• Makes NFIP map determinations
• Sends annual NFIP mailings to all local lenders, realtors, and insurance
companies
• Keeps library of NFIP materials in City Hall
• Constructs stormwater facilities
• Warns citizens of impending flooding
Recent Projects
• Since Hurricane Georges, the City has replaced its causeway bridge to
improve its ability to withstand storm surge.
• The City has its own sewage collection and treatment system, which is
operated by the Wastewater Treatment Plant Operator. The sewage treatment
plant is subject to storm surge flooding but has been recently retrofitted and
operating at 2010 requirements. A generating system has been added for
emergency operation and all of our effluent is converted to potable irrigation
through our reverse osmosis and storage system. All lift stations and lines are
continually being retrofitted and monitored for infiltration.
• The entire City Hall/Post Office complex has been retrofitted and floodproofed
to current requirements.
• Several properties were purchased by the City and converted to open space.
Monroe LMS (2010 Update) 10-11
• The City's master storm water control project includes swales, retention
ponds, and deep injection wells which were designed, installed, and monitored
by the South Florida Water Management District, FL Department of
Environmental Protection, and the U.S. Environmental Protection Agency. As
of early 2010, the citywide project is approximately 70% complete.
10.5 2010 Updates
The City reviewed and updated the pertinent sections. Some of the more significant changes
include:
• Section 10.1 and 10.4: Updated the status of construction of storm water
pro j ects .
• Section 10.2: Added number of permits issued in recent years.
• Section 10.3: Noted minor damage from 2005 storms. Added text related to
compliance with the NFIP. Updated NFIP policy and claims data. Updated
information on repetitive loss properties and added figure to show location of
those properties.
Monroe LMS (2010 Update) 10-12
Chapter 11. Islamorada, Village of Islands
11.1 Overview of Islamorada
Early settlers came to the islands from the Bahamas and New England. These people raised
and shipped thousands of pineapples to northern markets. One of these ships was named the
"Island Home" which was built on Plantation Key by Johnny Brush Pinder. It was from this
schooner that the Village took its name: "Isla Morada," which means Island Home in the
Spanish language.
Islamorada, Village of Islands (the "Village"), located in the Upper Florida Keys of Monroe
County, was incorporated as a municipality on December 31, 1997. House Bill No. 1265
created the Village and also gave the Mayor authority to sign and execute documents.
Islamorada is known as the "Sport Fishing Capitol of the World."
Geography
The Village is located in the 822-island archipelago known as the Florida Keys, surrounded
by the Atlantic Ocean and the estuarine waters of Florida Bay. The adjacent marine
environments support rich biological communities possessing extensive conservation,
recreational, commercial, ecological, historical, research, educational, and aesthetic values
that give this area special national significance.
As a part of the Florida Keys chain of islands, the Village's municipal boundaries extend
from Mile Marker 90.93 9 to Mile Marker 72.65 8 (along U.S. Highway 1), and consists of
four islands: Plantation Key, Windley Key, Upper Matecumbe Key and Lower Matecumbe
Key. The Village is approximately 18 linear miles long and no more than two or three
blocks wide, encompassing 11,748 acres.
Population
Islamorada has a permanent resident population of 6,846 (2000 Census). Tourism
sometimes doubles the population in the area. Current population projections indicate the
permanent population may grow to 8,200 by 2010. However the most recent BEBRs
estimation indicates a permanent population as of 2008 of 7,113 and a functional population
of approximately 10,882.
The Village's Comprehensive Plan mandates that its government manage the rate of
development and population growth to promote small-town ambiance, improve quality of
life for residents, enhance and protect natural resources and environmental quality unique to
the Florida Keys, comply with adopted level of service standards for public facilities,
effectively time public infrastructure and services according to the availability of public
funds and support safe and timely evacuation prior to a hurricane.
Monroe LMS (2010 Update) 11-1
Land Use & Economy
A significant portion of the waters adjacent to the islands have been designated as
Outstanding Florida Waters, and includes the 2,800-nautical square mile Florida Keys
National Marine Sanctuary, the second largest in the United States. The extraordinary
natural resources support the two primary industries of the Village tourism and
commercial fishing. Many residents earn their living through the fishing and diving
industries and the tropical island atmosphere generates tourism from around the world. As a
result, the health and welfare of the community are largely dependent upon the health of the
surrounding environment. Therefore, the Village has a responsibility to protect and preserve
its unique natural resources, which will in turn protect and foster its community character,
maintaining the health safety and welfare of its citizenry.
Much of the Village is developed with a mix of single family residences, multi -family
dwellings, tourist lodging (hotels, motels, inns), commercial retail, professional offices,
marine uses including commercial fishing, tourist -oriented recreational uses, and
government uses.
Three sites are listed by the Historic Florida Keys Foundation, Inc., or are listed on the
National Register of Historic Places: Windley Key Fossil Reef State Geological Site;
Hurricane Monument (MM 81.5); and LeBranch Fishing Camp (Upper Matecumbe) Indian
Key.
11.2 Village Organization and Agencies
Islamorada, Village of Islands is a "city manager" form of municipal government.
Appointed by the Village Council, the Village Manager (also Village Attorney) is
responsible for the management of the Village, and reports directly to the Village Council.
The governing body of the Village is the Village Council of Islamorada, Village of Islands.
The Village Council is composed of five members, including the Mayor who is appointed by
the Village Council body annually. Immediately after the initial election, the first Village
Council went to work quickly and composed the following Vision:
To Protect the residents' right to quiet enjoyment of life
To Plan for enhancing the Village character
To Preserve our community resources ... people, natural resources, pride and
To Provide basic service to support our quality of life.
The Village is a rural municipality, with 60 employees delivering basic services of
government including:
• Fire protection, emergency management and emergency medical services;
Monroe LMS (2010 Update) 11-2
Planning and zoning;
• Building and Code Compliance (permitting, inspection and code enforcement);
• Public works;
• Waste collection;
• Parks and conservation lands; and
• Recreation services
Police enforcement services are provided contractually by the Monroe County Sheriff's
Office. Solid waste services are also delivered contractually resulting from competitive bids
and contract negotiations.
The departments with primary responsibility for identifying natural and manmade hazards
are fire/rescue, planning, building and public works. These departments also take an active
role in addressing mitigation of identified hazards and the protection of public facilities and
infrastructure.
Table 11-1. Islamorada: Permits Issued (2007, 2008, 2009).
CY 2007
CY 2008
CY 2009
New single-family, detached
32
68
23
New single-family, attached
0
0
0
Multi -family (2 or more)
7
2
6
Non-residential buildings (all types)
2
3
2
Residential (additions, alterations, repairs)
45
18
6
Non-residential (additions, substantial)
0
0
1
Demolition
1
2
3
Relocation
0
0
0
Mobile home (permanent/temporary)
3
0
0
Total Permits Issued
90
93
41
Total Inspections Conducted
157077
37268
37532
11.3 Hazards and Risk in Islamorada
In the recent past, the Florida Keys has suffered from natural disasters of varying degrees.
In September 25, 1998, Hurricane Georges inundated the Keys. Following this, on
November 4-5, 1998, the Florida Keys suffered another blow from Tropical Storm Mitch.
The tropical storm was more severe than originally anticipated and spawned several
tornadoes. The Upper Keys, including the Village sustained serious amounts of damage.
The two-year period of 2004-2005 included eight hurricanes that had varying degrees of
impacts on the Village. Hurricane Wilma, (October 2005) had the most significant impact on
the Village.
Monroe LMS (2010 Update) 11-3
Historic Storms
The landfall location for the strongest hurricane recorded, the "Labor Day Storm" of 1935,
made landfall at Islamorada. It is remains one of the most intense category 5 and deadliest
hurricanes. Winds were estimated at 160 mph with gusts from 190-210 mph. Tide levels
ranged from 14 feet above MSL in Key Largo to 18 feet above MSL at Lower Matecumbe
Key. Despite its ferocity, it was a small storm causing water levels at Key West to rise only
two feet above MSL and sustained winds of less than 40 mph.
Florida has been devastated by several flood -related events over the years, caused by heavy
rainfall, tropical depressions and hurricanes. Between 1992 and 1994, the State of Florida
received six Presidential Disaster Declarations for natural disaster events, four of which
were flood related. Each year, there is a potential that Florida will suffer from tropical
storms, severe rain events or hurricanes.
Other significant storms:
• Hurricane Donna (August 29-September 19, 1960). A Category 4 hurricane,
this storm is listed among the most intense in U.S. history. It curved
northwestward over the Middle Keys before turning north towards the
mainland at Naples and Fort Myers. Wind speeds of 128 mph and central
pressure of 28.44 inches were measures. Tide levels ranged from 13.5 feet
above MSL ocean side at Islamorada (MM 80-83), +10 feet MSL ocean side
Upper Matecumbe Key (MM 83-84) and 9-10 feet MSL Bay side.
• Hurricane Betsy (August 26-September 12, 1965). A Category 3 hurricane,
Betsy passed over Marathon moving westward into the Gulf of Mexico. At
Tavernier, central pressure was recorded at 18.12 inches and wind speeds were
estimated at 120 mph. Flood levels were measures at 9 feet MSL in Key
Largo.
• Hurricane Georges (September 25, 1998). Near Islamorada at Mile -Marker
76.8, water rose to 4.5 feet above MSL and 6.1 feet at Mile -Marker 77.8. Near
Mile -Marker 84, the highway was affected by flooding, downed trees and
damage to road signs. Some beach erosion occurred.
Effect of Recent Hurricane Disasters
Damage from Hurricane Georges is representative of Islamorada's exposure:
• Debris Removal: $2.5 million
• Emergency Labor and Supplies: $12,000
• Manning of EOC and Search and Rescue: $8,000
• Waste Water Treatment System Repairs: $10,000
• Storm Water Systems Repair: $10,000
Monroe LMS (2010 Update) 11-4
Private property damage totaled approximately $5 million due to the effects of high winds,
driven rain, and flooding. The following is an account of damage in Islamorada as reported
in a special edition of the Miami Herald, September 27, 1998:
• Lower Matecumbe Key — Storm surge cut across U.S. 1 highway covering it
with sand, chunks of concrete, seaweed, and wood pilings. Bulldozers have
cleared a pathway for emergency vehicles. Water rose more than a foot high
in some homes.
• Windley Key — Holiday Isle Marina undamaged, but oceanside docks and tiki
huts were mostly destroyed. Rooftop air conditioning unit at the Dive and
Swim Center was damaged.
• Islamorada —Shoreline Motel lost 50-foot section of aluminum facing from the
roof. An Oceanside cottage at Cheeca Lodge (MM 82) lost some roofing. At
Island Christian School, a large ficus toppled and crushed a chain link fence.
• Plantation Key — Many mobile homes flooded at Ocean San Pedro Trailer
Park.
Despite being only a category 2 hurricane, all businesses were closed or severely restricted
from operating due to structural damage and power outages. Businesses related to tourism
and fishing and marine activities were most affected by Georges.
Damage from Hurricane Wilma
Hurricane Wilma produced bayside flooding that had significant impacts on several marinas
and notably the Village's administrative and planning departments that were located at
Founders Park. The flooding forced Village Hall into temporary accommodations for a
period of four years. Flooding was the primary impact although there was minimal wind -
damage to structures and vegetation. The secondary impact was associated with the entire
season of hurricanes (the most named storms in history) that destroyed or damaged hundreds
of docks in the Village.
Hurricane Flooding as Predicted by SLOSH Modeling
The National Hurricane Center's surge model, called SLOSH (Sea, Lake, and Overland
Surges from Hurricanes), estimates surges associated with different characteristics of
tropical cyclones (track, forward speed, wind speed, etc.). The results can be combined with
topographic mapping to delineate inland areas subject to flooding (with a margin of error of
+/- 20%). Table 11-2 shows the storm surge predications for four locations in Islamorada
(Islamorada MM82, Islamorada MM 83.5, Plantation Key MM 88.5, and Plantation Key
MM 90).
Monroe LMS (2010 Update) 11-5
Table 11-2. SLOSH Maximum Predicted Water Depths (ft above MSL)
Islamorada Mile -Marker 82 Ocean Side
Islamorada Mile -Marker 82 Bay Side
Track
Direction
Storm Categories
Track
Direction
Storm Categories
1
2
3
4
5
1
2
3
4
5
WSW
4
5
7
8
9
WSW
4
5
7
8
9
W
4
6
7
9
10
W
4
5
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8
9
WNW
4
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9
10
WNW
4
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7
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WN
4
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10
NW
3
4
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7
NNW
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NNW
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4
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3
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4
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ENE
3
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8
ENE
4
7
9
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11
E
3
4
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7
8
E
5
8
10
10
11
Plantation Key Mile -Marker 88.5 Bay Side
Plantation Key Mile -Marker 90 Ocean Side
Track
Direction
Storm Categories
Track
Direction
Storm Categories
1
2
3
4
5
1
2
3
4
5
WSW
4
6
8
9
10
WSW
4
5
7
8
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W
4
5
7
8
9
W
4
6
8
9
11
WNW
3
5
7
7
8
WNW
4
6
8
9
11
WN
3
5
6
7
8
NW
3
4
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7
NNW
3
5
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9
NNW
4
6
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N
3
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N
4
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9
NNE
3
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9
NNE
4
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NE
4
6
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9
10
NE
4
5
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8
9
ENE
5
8
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12
13
ENE
4
5
6
8
9
E
6
10
11
12
13
E
3
5
6
7
8
Monroe LMS (2010 Update) 11-6
Floodplain Management & Compliance with the NFIP
The Village entered the National Flood Insurance
Program when it incorporated in 1997 by adoption of
an ordinance that complies with the requirements of the
program. The Village reviews all development
proposals in special flood hazard areas and enforces the
requirements of the ordinance. To ensure continued
compliance with the NFIP, the Village will continue to:
• Enforce the adopted floodplain management
ordinance, including inspection of permitted
development and unpermitted activities;
NFIP Flood Insurance
Policies in Islamorada 2,975
Claims paid since 1978: 163*
http://www.fema.gov/nfip/pcstat.shtm
(as of December 31, 2009)
*records prior to incorporation included
in claims for Monroe County
• Maintain records pertaining to floodplain
development, including flood maps and Letters of
Map Change, which shall be available for public inspection;
• Notify the public when there are proposed changes to the ordinance or Flood
Insurance Rate Maps; and
• Promote the purchase of NFIP flood insurance policies as financial protection.
NFIP Floodplain Mapping
The National Flood Insurance Program (NFIP) prepared a Flood Insurance Rate Map for the
Monroe County and incorporated municipalities (current effective map is Monroe County's
Flood Insurance Rate Map dated February 18, 2005). The FIRM delineates areas that have
been determined to be subject to flooding by the "base flood," the flood that has a 1-percent-
annual chance of flooding in any given year (commonly called the 100-year flood). The
majority of land in Islamorada is subject to flooding. Areas noted as VE Zone, subject to
high velocity wave action, are shown with flood levels ranging from 10 to 14 feet above
MSL. Areas noted as AE Zone, where waves are expected to be less than 3-feet in height,
flood levels are predicted to range from 6 to 10 feet above MSL.
The area along U.S. Route 1 and commercial properties that front on the highway, plus
Plantation Key, Windley Key, and Upper Matecumbe Key, have some areas with ground
elevations higher than the predicted 100-year flood elevation. Sections around Coral Shores
High School are also shown as outside of the mapped floodplain.
NFIP Repetitive Loss Properties
Data provided by the Florida Division of Emergency Management identifies properties that
are or have been insured by the National Flood Insurance Program and that have received
two or more claims of at least $1.000. In 2005, only three properties met the definition. As
of February 28, 2010, 14 individual properties have received 42 claims totaling $1.1 million
Monroe LMS (2010 Update) 11-7
(average payment of $26,500). Figures 11-1 and 11-2 shows property locations of those
records that were able to be plotted (end of chapter)
A subset of the NFIP's Repetitive Loss Properties includes those that meet the Federal
definition for "severe repetitive loss." One property in Islamorada is designated as a Severe
Repetitive Loss Property, having received 4 claims totaling $80,800. A Severe Repetitive
Loss Property is is defined as a residential property that is covered by an NFIP flood
insurance policy and (a) that has at least four claim payments (including building and
contents) over $5,000 each, and the cumulative amount of such claims exceeding $20,000;
or (b) for which at least two separate claim payments (building only) have been made with
the cumulative amount exceeding the market value of the building. For both (a) and (b), at
least two of the qualifying claims must have occurred within any 10-year period.
Severe Storms, Tornadoes, Water Spouts and High Winds (Other than Hurricane)
Islamorada, like the rest of the Keys, has low-lying terrain. Section 6.2 characterizes the
entire area encompassed by Monroe County and the cities as having equal distribution of
winds. The risk of severe storms, tornadoes, water spouts and high winds in Layton does
not vary from the rest of the planning area. All new buildings, replacement buildings, and
additions to existing buildings must comply with the Florida Building Code's wind load
requirements.
Rainfall/Ponding Flooding
Islamorada does not have any identified areas where rainfall/ponding flooding is so severe
or prolonged as to cause access problems or damage to buildings.
Drought Hazards
Drought hazards for the planning area are described in Section 6.4. Islamorada's risk due to
drought is comparable to the drought risk throughout the area.
Wildland Fire Hazards
The Florida Forestry Department has not indicated that areas in Islamorada are likely to
experience significant risk of wildland or brush fires.
Islamorada's Important and Critical Facilities
Table 11-3 lists the City's important facilities, some of which are shown in Figure 2-2.
Monroe LMS (2010 Update) 11-8
Table 11-3. Important and Critical Facilities in Islamorada
Critical/Essential Facilities: Other Facilities:
= Village of Islands Government Center U.S. Coast Guard Station
• Monroe Sheriff's Sub -Station (Roth Building) Florida Keys Electric Cooperative Sub -Station
• Founder's Park Island Christian School
• Islamorada Fire- Rescue HQ Station #20/EOC Florida Keys Children's Shelter
• Islamorada Fire Station #19 Comcast Cable
• Islamorada Fire Station #21 Bell South
• Coral Shores High School (County) Cingular Cell
• Plantation Key Elementary School (County)
• Monroe County Gov./Courthouse
Marinas:
• Bud N Mary's Marina
• Max's Marine, Inc.
• Caribee Boat Sales and Marina
• Cobra Marine, Snake Creek
• Coconut Cove Resort and Marina
• Coral Bay Marina
• FWC Marina
• Holiday Isle Resorts and Marina
• Islamorada Boat Center
• Islamorada Yacht Basin/Lorelei
• La Siesta Marina
• Matecumbe Yacht Club
• Plantation Yacht Harbor Marina
• Robbies Marina
• Smuggler's Cove Marina
• Whale Harbor Marina
• World Wide Sportsmen Marina
• Caloosa Cove Marina (Lower Matecumbe)
Hazardous Materials Sites (302 Facilities):
• Bell South Telecommunications Facility
• Monroe County Plantation Key Public Works
• Plantation Key Colony Water Treatment Plant
• Islamorada Founder's Park Water Treatment Plant
• North Plantation Kev Wastewater Treatment Plant
Mobile Home and Recreational Vehicle Parks:
• Coral Bay Trailer Court
• Harris Ocean Park Estates, 1 St Addition
• Key Lantern Travel MH Park
• Peaceful Palms Mobile Homes (Windley Key)
• Windley Key Trailer Park
• Sea Breeze Trailer/RV Park (Plantation Key)
• San Pedro Trailer Park (Plantation Key)
• Plantation Tropical Park (Plantation Key)
• Vacation Village
• Village Mobile Park
Monroe LMS (2010 Update) 11-9
11.4 Damage Reduction Activities
On -Going Activities
• Continue the inspection of enclosures below elevated lowest floors, as required
by FEMA.
• Continue to identify and implement hazard mitigation projects for critical
infrastructure.
Projects Completed Before 2005
• Completed renovations to Islamorada Fire Station 20 which included an
emergency operations center.
• Completed the Lower Matecumbe Stormwater Improvement Project which
provided drainage infrastructure for flood mitigation and protection of a
section of the island that experiences heavy flooding during mild storm events.
• Completed the Upper Matecumbe Stormwater Improvement Project which
provided drainage infrastructure for flood mitigation and protection of a
section of the island that experiences heavy flooding during mild storm events.
Projects Completed 2005-2009
• Completed the new Village Hall and the new Fire Station #21 and Islamorada
Sheriff's Substation (one building).
• Completed North Plantation Key Wastewater Treatment Plant.
• Lower Matecumbe Key Fire Station # 19.
• The Tollgate Shores Stormwater Improvement Project provides drainage
infrastructure for flood mitigation and protection for households in a section of
the Lower Matecumbe Key Island that experiences heavy flooding during mild
storm events.
• Completed a study to mitigate the exposure and vulnerability of U.S. 1 located
at Sea Oats Beach from the effects of a hurricane. This area will always be
inundated by storm surge from any category hurricane and suffer significant
damage resulting in segmentation of the Keys. This study resulted in some
remedial action including the placement of artificial substrate and vegetation
along the entire length of Sea Oats Beach to mitigate erosion.
• Permanently installed emergency generators in Coral Shores High School.
• The Village adopted a staged evacuation plan and coordinates implementation
with Monroe County and other municipalities. The staged evacuation plan
contains several strategies for facilitating evacuation, including two
northbound lanes where possible, traffic control markers and revised timing
for signals along U.S. 1.
Monroe LMS (2010 Update) 11-10
Projects Planned or Under Way
• Provide a new LIDAR Mapping of the Village to update the flood base and
storm surge vulnerability information. This should be a countywide project in
conjunction with FEMA's Map Modernization effort. This is an on -going
project with the goal of establishing a more accurate SLOSH model for the
Village and Monroe County.
• Provide permanently installed emergency generators in Island Christian
School (a primary shelter).
11.5 2010 Updates
The Village reviewed and updated the pertinent sections. Some of the more significant
changes include:
• Section 11.1: Updated population
• Section 11.2: Reported on the number of issued permits.
• Section 11.3: Noted storms during 2004-05 and added description of damage
from Hurricane Wilma. Added text related to compliance with the NFIP.
Updated NFIP policy and claims data. Described repetitive loss properties and
noted that one "severe repetitive loss" property is located in the Village; added
figures to show location of these properties.
• Section 11.4: Updated projects completed between 2005 and 2009 and
planned
Monroe LMS (2010 Update) 11-11
rMM 79
Repetitive Loss Properties
MM 72—MM 79 A MM 78
Lower Matacumbe (Islaborada)
MM 77
r
r
rv1M 76
r
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r US Hvy+1 mile markers ,+ COUNTY
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1 inch = 3,000 feet
Figure 11-1. Repetitive Loss Properties (MM 72 — MM 79).
rvH36
■
Repetitive Loss Properties
rrlrrl 8s
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MM79—MM86
Upper Matacumbe (Islamorada)
ryrrr s�
r
r
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MM 82
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rMM 81
MM 80
r
Legend MONROE
repetitive loss property locations
■ US Hvvy+1 mile markers ! COUNTY
Hryl 79 parcels
■ 1 inch = 3,000 feet
Figure 11-2. Repetitive Loss Properties (MM 79 — MM 86).
Monroe LMS (2010 Update) 11-12
Chapter 12. City of Marathon
The City of Marathon, incorporated in November 1999, is located in the Middle Keys and
consists generally of previously unincorporated areas of Monroe County known as
Marathon, Marathon Shores, and Grassy Key. The corporate boundaries of the city are as
follows:
"from the East end of the Seven Mile Bridge (approximately Mile Marker 47) to the West
end of the Tom's Harbor Bridge (approximately Mile Marker 60), including, but not
limited to, the entire islands of Knight Key; Hog Key; Vaca Key; Stirrup Key; Boot Key;
Crawl Key; East Sister's Island; West Sister's Island; Fat Deer Key; Long Point Key;
Deer Key; Little Deer Key; Little Crawl Key; Grassy Key; the unincorporated areas of
Monroe County commonly known as Marathon and Coco Plum; all land filled in between
the islands, including all islands connected by U.S. 1, Overseas Highway and roadways
connecting thereto; and all adjacent islands not connected by roadways within the
boundaries of Monroe County between Mile Marker 47 and Mile Marker 60, specifically
excluding all areas within the boundaries of the City of Key Colony Beach, all of the
above being within the boundaries of Monroe County, Florida."
12.1 Overview of Marathon
Geography
Marathon is located between the Gulf of Mexico and the Atlantic Ocean. Marathon is
approximately 8,320 acres consisting of a number of islands. Elevations in Marathon range
from approximately 2 feet above mean sea level to approximately 7 feet above mean sea
level.
Several keys make up the City and they vary greatly in size. Marathon is essentially a string
of low coral islands with flat terrain. The long and narrow configuration creates a risk for
storm surge from both sides of the island chain.
Marathon has no inland areas; all locations are equally vulnerable to high wind effects. The
"friction factor", which causes winds from storms to decrease over land, does not apply in
the Keys.
Population
According to the U.S. Census, The City Marathon has a permanent resident population of
10,255. The seasonal population increases by as much as 4,931, for a total "functional
population" of 15,186 occupying 6,786 residential housing units of various configurations.
Population estimates and projections to 2010 for the permanent residents estimate an
increase to 10,496 and the seasonal population increase to 5,078 for a total of 15,574.
Monroe LMS (2010 Update) 12-1
In 2009, the Monroe County Social Services registered 2 people as having special needs for
hurricane evacuation assistance within the City of Marathon.
Land Use & Economy
Marathon's development is a mix of single family residences, multifamily dwellings, tourist
lodgings (hotels, motels, and destination resorts), tourist -oriented uses (museums, research
center, attractions), marine -related and recreational uses, commercial uses (restaurants, retail
sales, banks, Realtors), medical facilities and offices, and government uses.
Future growth is limited through the Rate of Growth Ordinance (ROGO) adopted by
Monroe County in 1992 to implement portions of its Comprehensive Plan. Within the City
of Marathon, this is now known as the Building Permit Allocation System (BPAS). BPAS
establishes a building permit allocation system for residential construction. The purpose is to
encourage in -fill of platted lots served by existing infrastructure and to limit growth to
enable safe and timely hurricane evacuation. Pursuant to the BPAS Ordinance and an
agreement between the City, County and the department of Community Affairs, the annual
allocation for Marathon is thirty (30) permits per year for residential dwelling units.
All new construction, reconstruction, and improvements to existing buildings must comply
with the current building code requirements.
The City joined the National Flood Insurance Program in October 2000 and administers a
floodplain management ordinance that meets or exceeds the minimum federal requirements.
Comprehensive Plan
The City of Marathon adopted its Comprehensive Plan in March 2005. The plan includes
nine elements pertaining to the future growth and development the City. Throughout the
plan are numerous goals, objectives and policies that acknowledge hurricane risks,
especially related to evacuation, growth, ensuring safety, providing adequate facilities,
managing stormwater, working with providers of water supply and wastewater services, and
requirement compliance with codes. The Infrastructure Element and the Conservation and
Coastal Element contain specific policies relevant to mitigation of future risk and damage:
• The Infrastructure Element includes such mitigation policies as:
• Completing a detailed engineering study of drainage and implement priority
storm water projects.
• On -site wastewater disposal facilities to minimize potential environmental
impacts.
• Establish and coordinate acquisition programs.
Monroe LMS (2010 Update) 12-2
The Conservation and Coastal Element of the Comprehensive Plan includes such mitigation
policies as:
• New development encroaching into the 100-year floodplain shall incorporate
elevation and flood protection measures sufficient to protect against the 100-
year flood.
• The City shall maintain consistency with program policies of the National
Flood Insurance Program.
• The City shall monitor new cost effective programs for minimizing flood
damage.
• Such programs may include modifications to construction setback
requirements or other site design techniques, as well as upgraded building and
construction techniques. The City discourages development in the High
Velocity Area and regulates redevelopment of structures non -conforming to
the required base flood elevation.
12.2 City Organization and Agencies
City of Marathon is a Council Form of Government. The City Council is composed of 5
members, including the Mayor who is selected by the Council to that office. The City
Council sets government policy and adopts guidance documents, such as the Comprehensive
Plan, the Land Development Regulation and ordinances establishing various codes and
standards.
Marathon is organized into several departments, each with authorized responsibilities that,
as described below, have bearing on how natural hazards are recognized and addressed.
City Manager. The City Manager of Marathon implements the policies of the Council and
administers the overall operations of the City. With regards to the floodplain management,
the City Manager has a FEMA Coordinator appointed to administer and implement the
provisions consistent with the requirements of the National Flood Insurance Program.
Marathon Planning Department. The Marathon Planning Department is responsible for
the development and maintenance of the City's Comprehensive Plan and the Land
Development Regulations. Department personnel (Director, Planners, Planning Technician,
Biologist) serve as staff to the City's Planning Commission and are involved in the
following activities related to hazard mitigation:
• Ensures that mitigation related items in the Comprehensive Plan, such as
floodplain management and natural resource management, are followed and
reflected in the City's Codes and Standards.
Monroe LMS (2010 Update) 12-3
• Participates in post -disaster appraisals and may formulate additional mitigation
measures for use in the Comprehensive Plan.
• Works closely with the Building, Code Compliance, and Fire Department to
ensure coordination of actions related to disaster planning, recovery, and
mitigation.
• Reviews construction plans for compliance to the NFIP regulations.
• Responsible for enforcing planning and zoning standards.
Marathon Building Department. The Building Department is responsible for regulations of
building construction pertaining to life safety, health, and environmental land use zoning
regulations. The department is staff by the Building Official, a Building Inspector, and
Permit Clerks. Related to mitigation of hazards, the department is responsible for the
following:
• Review of construction plans and issuing building permits.
• Inspection and enforcement during construction.
• Designated as coordinator for the National Flood Insurance Program.
• Assist the public in identifying and implementing flood damage prevention
measures.
• Participate in post -disaster appraisals.
• Work closely with the Planning, Fire, and Code Compliance Department to
ensure coordination of actions related to disaster planning, recovery, and
mitigation.
Table 12-1. Permits Issued & Inspections Conducted in 2008
Fiscal Year 2008
New single-family (Market Rate & Affordable)
47
Transient Residential Use
(not reported)
Building Permits
285
Electric Permits
332
Plumbing Permits
184
Mechanical Permits
233
Marathon Code Compliance Department. The Code Compliance Department oversees
after -the -fact code compliance issues pertaining to safety, health, and environmental land
use and zoning regulations. The department is staffed by a Code Compliance Supervisor,
Code Officers, and an Administrative Assistant. Related to mitigation of hazards, the
department is responsible for: working closely with the Building, Planning, and Fire
departments to ensure coordination of actions related to disaster planning, recovery, and
mitigation; and participating in post -disaster appraisals.
Monroe LMS (2010 Update) 12-4
Marathon Finance Department. The Finance Department (contracted) is responsible for
overseeing the day-to-day financial requirements of the City, including establishment of
purchasing procedures for all agencies. To expedite preparation for, response to, and
recovery from disasters, the Finance Department may implement special emergency
procedures to expedite necessary purchase and payment before, during, and after a disaster.
Marathon Community Services. The Community Services Department has a Director, a
Community Services Coordinator, Grants Coordinator and houses the Parks and recreation
Department. It provides technical assistance for City projects which require design,
construction, and operation of economical and efficient structures, equipment, and systems.
Marathon Public Works Department. The Public Works Department works under the
direction of the Public Works Director and is responsible for overseeing the maintenance of
all city facilities, including buildings, roads, and bridges. The Department also operates and
maintains City vehicles, with the exception of Fire Department vehicles.
Public Works is responsible for coordination and provision of emergency public works,
initial evaluation of infrastructure damage and preparation of documentation required for
federal reimbursement (including identification of mitigation components to be incorporated
during recovery), and coordination of emergency debris clearing.
In executing its disaster recovery responsibilities, Public Works coordinates with the Florida
Department of Transportation, Monroe County Department of Public Works, Florida Keys
Aqueduct Authority, and Florida Keys Electric Co-op. The department plans, coordinates
and initiates restoration of the serviceability of transportation routes, bridges, and assurance
as to the safety of affected public and private dwellings and structures.
Monroe County Sheriff's Office: Marathon Division. The Sheriff's Office (contracted) is
responsible for overall law enforcement and protection of residents and visitors in the City
of Marathon. The department plays a key role in planning and response during emergencies
to include but not limited to: coordination with Florida Highway Patrol to promote speedy
and safe evacuation, communicates with base operations, field personnel, and emergency
shelters.
Marathon Fire Department. The Fire Department is responsible for all life safety in
connection with duties that include fire control, fire prevention, emergency medical services,
emergency public education, and emergency management. Within the Department is the
Emergency Management Division. It plays the lead role in planning and response for all
emergencies. During a declared State of Local Emergency, the Emergency Management
Director serves in the capacity of the Incident Manager under the direct control of the City
Monroe LMS (2010 Update) 12-5
Manager. This holds true for all four phases of emergency management: Preparedness,
response, recovery and mitigation. Additionally, the Emergency Management Director is
responsible for the year round program management as well as development and
maintenance of all emergency and/or disaster related plans and procedures, including this
document.
12.3 Hazards and Risk in Marathon
Historic Storms that have affected the Marathon Area:
• 1929 Hurricane (September 22 to October 4) —The hurricane crossed over
Key Largo on a northerly course. Key Largo reported winds estimated at over
100 mph, a central barometric pressure of 28 inches, and tide levels of 8-9 feet
above MSL. Key West experienced tide levels of 5-6 feet above MSL and
winds of 66 mph.
• 1935, Hurricane (August 29-September 10) - The small, extremely violent,
Category 5 hurricane crossed the Florida Keys on a northwesterly track. The
Tavernier-Islamorada area reported sustained winds estimated at 120 mph with
gusts from 190-210 mph. Tide levels in the Florida Keys ranged from 14 feet
above MSL in Key Largo to 18 feet above MSL in Lower Matecumbe Key.
The storm was so intense and tightly wrapped that Key West had tide levels of
only 2 feet above MSL and average sustained winds of less than 40 mph. One
of the most tragic aspects of the 1935 storm was the unfortunate death of many
WWI veterans who were working on construction of Henry Flagler's Overseas
Railroad.
Hurricane Donna, 1960 (August 29-September 19) — Hurricane Donna curved
northwestward over the Middle Keys near Long Key/Layton and then traveled
northward toward the Gulf Coast towns of Naples and Fort Myers. Areas in
the vicinity of the storm experienced winds speed of 128 mph and a central
pressure of 28.44 inches. The storm affected the Everglades with estimated
winds of 150 mph. Tide levels were reported at Upper Matecumbe Key of
13.5 feet above MSL, at Plantation Key 10+ feet above MSL, and 8.9 feet
above MSL in Key Largo. As of 1992 Hurricane Donna, a Category 4 storm is
listed as the 61h most intense hurricane in the US.
Hurricane Betsy, 1965 (August 26-Septmber 12) —Hurricane Betsy passed
over Marathon while moving westward into the Gulf of Mexico. The lowest
central pressure was measured in Tavernier at 28.12 inches and wind speeds
were estimated to be 120 mph. Tide levels in Tavernier were 7.7 feet above
MSL and Key Largo had tide levels of around 9 feet above MSL. Betsy was a
Category 3 storm and is ranked 25th in intensity.
Ground Hog's Day Storm (February 2, 1998) involved multiple F-2 tornado
touchdowns resulting from a severe thunderstorms characterized by dangerous
cells with high, cold cloud tops affected the Florida Keys. Areas most affected
were primarily in the Middle Keys including Grassy Key and Valhalla Beach
in the vicinity of Duck Key. Several buildings were damaged. Also
significant problems occurred from the displacement of lobster traps which
Monroe LMS (2010 Update) 12-6
contributed to seaborne debris and navigational problems; the fishing industry
suffered considerable loss of income.
Severe thunderstorms (July 4, 1998). Severe thunderstorms with lightning and
high winds came up quickly in the Middle Keys. The Weather Service Office
in Key West recorded wind speeds up to 70 mph sustained. Because it was
July 41h, many boats were offshore celebrating and waiting for the fireworks.
Although, this event did not warrant a presidential disaster declaration, it did
result in loss of life.
• Hurricane Georges, 1998 (September 25, 1998), a Category 2 when made
landfall in the Lower Keys, affecting the entire county to some extent.
Damage estimates approached $300 million, including insured and uninsured
damage and infrastructure loss. Maximum sustained winds at the Naval Air
Station (Boca Chica) near Key West were 92 mph; gusts up to 110 mph were
reported by the Emergency Operations Center in Marathon. According to the
Key West Weather Service, precipitation levels in the Lower Keys were as
8.65 inches on the south side of Sugarloaf Key, 8.38 inches at Key West
International Airport, and 8.20 inches on Cudjoe Key. Tavernier in the Upper
Keys recorded 8.41 inches.
• Tropical Storm Mitch, 1998 (November 4 and 5). Feeder bands from Mitch
containing dangerous super cells spawned several damaging tornadoes in the
Upper Keys. Sections with mobile homes were especially hard hit.
Islamorada experienced an F-1 tornado; Rock Harbor and Key Largo were hit
by F-2 tornadoes. According to the Department of Community Affairs,
damages were estimated at $11 million.
• Hurricane Irene, October 1999. Hurricane Irene hit the Florida Keys and
Southeastern Florida. This Category 1 Hurricane dumped 10 to 20 inches of
rain resulting in severe flooding in the Florida Keys and Southeastern Florida
causing total damage estimated at $800 million
• Tropical Storm Gabrielle, September 2001. Although it did not reach
hurricane strength, this storm hit the southwest coast of Florida and caused
flooding problems; Marathon did see some effects from the storm.
• Hurricane Wilma, October 2005. During the night of October 23 to 24,
Hurricane Wilma visited Monroe County, resulting in at least 2 injuries and at
least $33 million in damage countywide. Over the Upper Keys from Craig Key
to Ocean Reef, maximum winds were measured at 65 knots with gusts to 79
knots. Overall, average winds across the inhabited Lower Keys were estimated
at 70 to 80 mph with gusts up to 90 mph with general Category 1 Saffir-
Simpson Damage noted. Wilma primarily produced one storm tide along the
bayside of the Upper Keys, ranging from 4 to 5 feet above sea level with the
worst in Lower Matecumbe Key. U.S. Route 1 north of Key Largo was
temporarily flooded at least 3 inches at maximum surge during the afternoon
hours on October 24.
Monroe LMS (2010 Update) 12-7
Hurricane Flooding as Predicted by SLOSH Modeling
The National Hurricane Center's surge model, called SLOSH (Sea, Lake, and Overland
Surges from Hurricanes), estimates surges associated with different characteristics of
tropical cyclones (track, forward speed, wind speed, etc.). The results can be combined with
topographic mapping to delineate inland areas subject to flooding (with a margin of error of
+/- 20%). The predicted storm surges that may affect the Marathon area for various storm
categories and tracks are shown in Table 12-2.
Table 12-2. SLOSH Maximum Predicted Water Depths (ft above MSL)
Ocean Side Mile -Marker 50
Ocean Side Mile Marker 61
Track
Direction
Storm Categories
Track
Direction
Storm Categories
1
2
3
4
5
1
2
3
4
5
WSW
4
5
6
7
8
WSW
4
5
6
7
8
W
4
5
7
8
9
W
4
5
7
8
9
WNW
4
6
7
8
9
WNW
4
6
7
9
10
WN
4
6
7
8
9
NW
4
5
7
8
10
NNW
4
5
7
8
9
NNW
4
5
7
8
9
N
4
5
7
8
9
N
4
5
6
8
9
NNE
4
5
6
7
9
NNE
4
5
6
8
9
NE
4
5
6
7
8
NE
4
5
6
7
9
ENE
1 3
5
6
7
8
ENE
3
5
6
7
8
E
3
4
5
6
7
E
3
4
5
6
8
Floodplain Management & Compliance with the NFIP
The City entered the National Flood Insurance Program
when it incorporated in 2000 by adoption of an
ordinance that complies with the requirements of the
program. The City reviews all development proposals in
special flood hazard areas and enforces the requirements
of the ordinance. To ensure continued compliance with
NFIP Flood Insurance Policies
in Marathon 3,029
Claims paid since 1978: 800*
the NFIP, the City will continue to: http://www.fema.gov/nfip/pcstat.shtm
• Enforce the adopted flood lain management (as of December 31, 2009)
p p g
ordinance, including inspection of permitted *records prior to incorporation included
un development and ermitted activities; in claims for Monroe County
p p
• Maintain records pertaining to floodplain
development, including flood maps and Letters of Map Change, which shall be
available for public inspection;
• Notify the public when there are proposed changes to the ordinance or Flood
Insurance Rate Maps; and
Monroe LMS (2010 Update) 12-8
Promote the purchase of NFIP flood insurance policies as financial protection.
NFIP Floodplain Mapping
The National Flood Insurance Program (NFIP) prepared a Flood Insurance Rate Map for
Monroe County and incorporated municipalities (current effective map is dated February 18,
2005). The FIRM delineates areas that have been determined to be subject to flooding by
the "base flood," the flood that has a 1-percent-annual chance of flooding in any given year
(commonly called the 100-year flood).
The entire City is located in areas designated as VE Zones (coastal flood with velocity
hazard wave action) and AE Zones (areas subject to flooding but waves are predicted to be
less than 3-feet in height). As such, all new development in the City is subject to the
floodplain management standards established in the City's Land Development Regulations.
NFIP Repetitive Loss Properties
Data provided by the Florida Division of Emergency Management identifies properties that
are (or have been) insured by the National Flood Insurance Program and that have received
two or more claims of at least $1,000. In 2005, no properties met the definition. As of
February 28, 2010, 31 individual properties have received 67 claims, totally $3.6 million
(average payment of $54,300). Figure 12-1 and Figure 12-2 (end of chapter) show property
locations of those records that were able to be plotted. Some of the repetitive loss properties
that are listed for Monroe County may fall within Marathon; because the data cannot be
geocoded based on the addressing, the actual number is unknown.
Severe Storms, Tornadoes, Water Spouts and High Winds (Other than Hurricane)
Marathon, like the rest of the Keys, has low-lying terrain. Section 6.2 characterizes the
entire area encompassed by Monroe County and the cities as having equal distribution of
winds. The risk of severe storms, tornadoes, water spouts and high winds in Marathon does
not vary from the rest of the planning area. All new buildings, replacement buildings, and
additions to existing buildings must comply with the Florida Building Code's wind load
requirements.
Rainfall/Ponding Flooding
Unlike most areas in Monroe County and the other cities, Marathon has areas that are
subject to rainfall or Ponding flooding. This type of flooding results from longer duration
storms, which occur almost annually. As a result, residents experience access problems and
water has damaged some older, non -elevated, buildings. The area with the most significant
problem is 107th Street to 1091h Street. Access to about 200 buildings is limited during
heavy and prolonged storms. While many of the buildings are elevated, about 50 older
Monroe LMS (2010 Update) 12-9
buildings are built on -grade and have experienced flooding. In Hurricane Georges, water up
to one -foot deep caused damage.
Marathon's Stormwater Management Master Plan, prepared in 2002, identifies areas of
localized flooding and a generalized overview of suggested methods to minimize local
flooding such as closed drainage systems, exfiltration/slab covered trenches, and injection
wells. The priority areas identified include 391h Street and Sombrero Boulevard.
Because all of Marathon is snapped as Special Flood Hazard Area, all new buildings and
replacement buildings must comply with the floodplain management ordinance and be
elevated or floodproofed (nonresidential only). Therefore, this type of flood damage is
unlikely to affect buildings built in the future.
Marathon's Engineering Department, responsible for roads and drainage, designs all new
and improved storm drainage facilities to hand the 25-year frequency rainfall.
Drought Hazards
Drought hazards for the planning area are described in Section 6.4. Marathon's risk due to
drought is comparable the drought risk throughout the area.
Wildland Fire Hazards
The Florida Forestry Department indicates that in Marathon, Grassy Key is the area that is
most prone to wildland/brush fires.
The Florida Forestry Department indicates that in Marathon, Grassy Key is the area that is
most prone to wildland /brush fires. Based on data provided by Monroe County Property
Appraiser in 2005, Grassy Key includes a total of 9,391 parcels of land of which 6,498 are
improved. The total assessed value of improvements is $1,562,786,704. It is important to
note that this summary is not to imply that all properties would be vulnerable in any given
wildfire outbreak. All new construction must comply with environmental restrictions.
Marathon's Critical and Important Facilities
Figure 2-2 shows the locations of the City's facilities that are listed in Table 12-3.
Monroe LMS (2010 Update) 12-10
Table 12-3. Critical and Important Facilities in Marathon
Critical/Essential Facilities:
Marinas: (from the draft Marine Siting Plan)
• City Hall
• 7 Mile Grill
• Fisherman's Hospital
• Abaco Sails & Marine
• Florida Keys Electric Co-op
Banana Bay Marina
• Schools (Stanley Switlick, Marathon Middle, and
Blackfin Resort and Marina
Marathon High)
The Boat House
• Marathon Airport
Bonefish Bay Motel
• City Marina
• Bonefish Yacht Club and Marina
• Florida Keys Aqueduct Authority
Boot Key Harbor City Marina
• Crawl Key Sewer Treatment Plant (future)
Border Patrol
• Fire Station #14 and #15 (completed 2008)
0 Burdines Water Front
• 33Id Street Fire Station (future)
Cannon Marine & Harbor Point
• Monroe County Operation Center
Captain Hook's Marina
• Little Venice Sewer Treatment Plant
Captains Three Fisheries
• Coco Plum Marina &Storage, Inc.
Hazardous Materials Sites (302 Facilities):
• Coconut Cay Resort &Marina
• Monroe County Mosquito Control
• Florida Keys Aqueduct Authority
Monroe LMS (2010 Update) 12-11
Table 12-3. Critical and Important Facilities in Marathon
Mobile Home and Recreational Vehicle Parks (as
• Coconut Palmas, Inc.
of January 2008):
Coral Island Yachts
• Aloha Trailer Park
Crystal Bay Resort & Marina
• Farnsworth Trailer Park
D & D Seafood
• Galway Bay RV and Mobile Home Park
0 Driftwood Marina & Storage
• Jolly Roger Travel Park
0 Faro Blanco Resort Gulfside
• Key RV Park
Faro Blanco Resort Oceanside
• Knights Key Campground
Galway Bay Trailer Park and Marina
• Lion's Lair Travel Park
Grassy Key Marina of Marathon
• Ocean 25 Company, Inc.
Hidden Harbor
• Ocean Breeze Park West
0 Holiday Inn
• Ocean Breeze Trailer Park
Jolly Roger RV Park
• Old Towne Village
Keys Boat Works, Inc.
• Palms Subdivision Trailer
Keys Fisheries Market & Marina
• Pelican Motel & Trailer Park
Keys Fisheries (Joe's Stone Crab)
• Sundance
• Kingsail Resort Motel
• Terra Marine Park
Knight's Key Campground
• Trailer Ranch by the Sea
Lion's Lair RV Park
• Trailerama Park
Marathon Marina & Boat Yard
• Whispering Pines
Marathon Yacht Club
• Trailers by the Sea
Marie's Yacht Harbor & Marina
• Ocean Breeze RV Park & Marina
• Oceanside Marine Service, Inc.
• Outta The Blue Marina
• Pelican Resort
• Pancho's Fuel Dock
• Rainbow Bend Resort & Marina
• Royal Hawaiian Motel/Botel
• Sea Cove Motel
• Seascape Resort
• Seven Mile Marina
• Shelter Bay Marine
• Sombrero Marina & Dockside
• Sombrero Resort Lighthouse Marina
• Vaca Key Marina
• Valhalla Beach
• Yardarm Motel
Monroe LMS (2010 Update) 12-12
12.4 Damage Reduction Activities
On -Going Activities
• Participate in public awareness activities, including
distribution of the "Official Hurricane Information Guide."
• Administer the stormwater utility that was implemented as
part of construction in six wastewater management service
areas. Tax revenues received by the utility have been
utilized to construct a stormwater management system for
all streets within the City. This system was installed
simultaneously with the wastewater management system.
On -Going Stormwater and Wastewater Initiatives
In July 2005 the City of Marathon entered into an agreement :l, -s'` t,.i
with Weiler Engineering for design of the City's wastewater
treatment system. The proposed project provides an affordable,
long-term solution to meeting the City's 2010 wastewater treatment goals. Weiler examined
various technologies and service areas within the City of Marathon and determined that no
single type of system was best for the entire City. Instead, the recommendations addressed
the most practical and cost effective system for various neighborhoods. As a result, projects
will be implemented in seven separate Service Areas.
• Service Area l:
Knight's Key (Entire Island)
• Service Area 2:
Boot Key (Entire Island)
• Service Area 3:
Vaca Key West (1 lth St to 39th St)
• Service Area 4:
Vaca Key Central (39th St to 60th St)
• Service Area 5:
Vaca Key East (60th St to Vaca Cut)
• Service Area 6:
Fat Deer Key West —Coco Plum (Vaca Cut to Coco Plum)
• Service Area 7: Grassy Key (Fat Deer Key East through Grassy Key)
Concurrent with the City's wastewater project construction, the City is also constructing
stormwater management facilities and repaving City roads in these seven areas. A water re-
use component is included for large users.
Past and Recent Projects
These projects are intended to reduce rainfall/ponding flooding and improve overall
drainage and water quality of stormwater runoff:
• Sombrero Beach Injection Well: under drain in the park area leading to a 24'
injection well in the parking lot. (Completed September 2004)
• 39th Street Drainage Improvements: was designed to improve existing
drainage conditions at the location of 3 9th Street (2nd Ave), which will provide
a means for discharge through two drainage wells and thereby allow bleed -
Monroe LMS (2010 Update) 12-13
down of the ponding areas. Because the wells will serve as a source for
discharge during storm events, the proposed system will help to alleviate the
extent of ponding. Runoff will be collected through a series of inter -connected
swales, ditches and bubble up structures and converged to two drainage wells.
(Completed March 2005)
• 20th Street Gulf (Boot Key Road): designed to improve existing drainage
conditions on 20th Street Gulf. The work included grading shoulders, grading
the drainage swales at north end of the project, place drainage structures on
both sides of the road and 100 linear feet of French Drain. (Completed March
2005)
• 4th Ave Gulf Drainage: designed to improve existing drainage conditions on
4th Ave Gulf. The work included installing a catch basin at the low point of
the intersection; 15" pipe installed across 4th Ave to 24" injection well.
(Completed March 2005)
• 46th Street Gulf: designed to improve existing drainage conditions on 46th
Street Gulf. The work included installing a catch basin and 150 linear foot
French drain at the low point of the road. (Completed March 2005)
• 42nd Street Gulf: designed to improve existing drainage conditions on 42nd
Street Gulf. The work included installing a catch basin and 150 linear foot
French drain. (Completed March 2005)
• Ave D Drainage: designed to improve existing drainage conditions on Ave D.
The work included installing a 24" Injection well and one double chamber
Baffle Box. (Completed March 2005)
• 107thto 1091h Street Stormwater Improvement Project: includes the
installation of drainage and retention structures to minimize the impacts from
rainfall/flood events with a 25-year frequency. (Completed 2006/07)
• West lOSthto 116th Street Stormwater Improvement Project: includes the
installation of drainage and retention structures to minimize the water quality
impacts from rainfall/flood events with a 25-year frequency. (Completed
2006/07)
12.5 2010 Updates
The City reviewed and updated the pertinent sections. Some of the more significant changes
include:
• Section 12.1: Updated population. Revised reference to the Building Permit
Allocation System.
• Section 12.2: Reported on the number of issued permits. Added description of
Community Services and revised descriptions of Public Works and the Fire
Department.
• Section 12.3: Added description of damage from Hurricane Wilma. Added
text related to compliance with the NFIP. Updated NFIP policy and claims
data. Updated text on repetitive loss properties and added location figures.
Monroe LMS (2010 Update) 12-14
Added identification of areas prone to wildland/brush fires. Updated the
critical facilities list.
• Section 12.4: Updated ongoing outreach activity. Noted implementation of
storm water utility. Reported on on -going storm water and wastewater
initiatives. Updated completed projects.
References:
City of Marathon, Comprehensive Plan (2005).
City of Marathon, Stormwater Management Master Plan (October 2002).
City of Marathon Comprehensive Emergency Management Plan (June 2008)
Repetitive Less Properties.
MM 48— MM 53
Marathon/Key Colony Beach MM N
MM 53
aMW 51
JL
MM do
MR 4
t
WM �B
MONROE
� �vrwrrw�r�r.�
i 4�Nw�rlr�nfrliFrc � ��J17 ■ ■
Figure 12-1a. Repetitive Loss Properties (MM 48 — MM 53).
Monroe LMS (2010 Update) 12-15
Repetitive Loss Properties
MM 55— MM 61
Marathon (Grassy)
PIN -
NI ON RO E
Figure 12-1b. Repetitive Loss Properties (MM 55 — MM 61).
Monroe LMS (2010 Update) 12-16
Chapter 13. Mitigation Initiatives
13.1 LMS Goals and Priority Hazards
Earlier chapters describe Monroe County and its incorporated municipalities, identify
hazards and characterize risk, summarize how the local governments address hazards in their
development processes and other functions, and establish mitigation goals:
Monroe County Local Mitigation Strategy Goals
1. Preservation of sustainability of life, health, safety and welfare.
2. Preservation of infrastructure, including power, water, sewer and
communications.
3. Maintenance and protection of roads and bridges, including
traffic signals and street signs.
;t. Protection of critical facilities, including public schools and
public buildings.
5. Preservation ofproperty and assets.
6. Preservation of economy during and after disaster, including
business viability.
7. Preservation and protection of the environment, including natural
and historic resources.
Hurricanes and their associated hazards (high wind and surge flooding) are described in
Chapter 5 and other hazards are overviewed in Chapter 6 (strong storms, tornadoes and
water spouts; rainfall/fresh water flooding; drought; wildland fire; and coastal erosion). For
the purposes of actively pursuing damage reduction activities, the Monroe County LMS
Work Group focuses on initiatives that address one or more of the mitigation goals and that
address the hazards that have relative vulnerability ranking of "high" and "moderate" (Table
13-1, which is identical to Table 6-7).
Table 13-1. Hazards: Relative Vulnerability
Hazard
Vulnerability
Impact
Frequency
Distribution
Hurricane/Tropical Storm
High
Moderate
1-2 per year
Countywide
to Severe
Flooding (rainfall ponding)
High (locally)
Moderate
6-12 times
Key West &
each year
Marathon
Strong Storms/
Moderate
Moderate
1-2 per year
Countywide
Tornado/Lightning
Wildfire
Low
Moderate
Less than 1
Selected
per year
areas
Drought
Low
Low
1-2 per
Countywide
decade
Monroe LMS (2010 Update) 13-1
Table 13-1. Hazards: Relative Vulnerability
Hazard
Vulnerability
Impact
Frequency
Distribution
Coastal Erosion
Low
Low
1-2 per year
Limited
(with coastal
selected
storms)
areas
13.2 Range of Mitigation Initiatives
Six general categories or approaches to mitigation are described in Table 13-2. The list is
not intended to be exhaustive; other activities may meet the intent but not be listed. The
members of the Monroe County LMS Working Group consider these categories when
identifying initiatives within their jurisdictions. Each participating local government
undertakes a number of these activities on an ongoing basis.
Table 13-2. Categories of Mitigation Initiatives.
PREVENTIVE MEASURES keep problems from getting started or getting worse.
When hazards are known and can be factored in to development decisions early in the
process, risks are reduced and future property damage is minimized. Building, zoning,
planning, and/or code enforcement officials usually administer these activities:
• Planning and zoning
• Open space preservation
• Building codes and enforcement
• Infrastructure design requirements
• Clear defensible space for wildfire
PROPERTY PROTECTION measures are actions that go directly to permanently
reducing risks that are present due to development that pre -dates current codes and
regulations and include:
• Property acquisition in floodplains
• Relocation out of hazard -prone areas
• Elevation of structures in floodplains
• Demolition and reconstruction of structures in floodplains
• Retrofit of structures in high wind zones and/or floodplains
• Safe rooms and shelter hardenina
EMERGENCY SERVICES MEASURES are taken immediately before or during a
hazard event to minimize impacts. These measures are the responsibility of city or
county emergency management staff, operators of major and critical facilities, and other
local emergency service organizations and include:
• Alert warning systems
• Hazard/weather monitoring systems
• Emergency response planning
• Evacuation
• Critical facilities protection
• Preservation of health and safe
Monroe LMS (2010 Update) 13-2
Table 13-2. Categories of Mitigation Initiatives.
STRUCTURAL PROJECTS are usually designed by engineers and managed and
maintained by public entities. They are designed to reduce or redirect the impact of
natural disasters (especially floods) away from at -risk population areas:
• Levees, floodwalls, dunes and berms
• Drainage diversions
• Storm water management facilities, including injection wells
• Shoreline protection against erosion
NATURAL RESOURCE PROTECTION projects preserve or restore natural areas or
their natural functions. Park and recreation organizations, conservation agencies or
wildlife groups may implement such measures:
• Wetland protection or restoration
• Beach and dune protection
• Erosion and sediment control
PUBLIC INFORMATION PROGRAMS advise property owners, potential property
owners, and others of prevalent hazards and ways to protect people and property. A
public information office usually implements these activities, often with private partner
support:
• Flood maps and data
• Public information, brochures, and outreach
• Technical assistance for property owners
• Real estate disclosure information
• Environmental education programs
13.3 Mitigation Initiatives
Elements of the Monroe County LMS Goals highlight the importance of reducing potential
damage to critical facilities such as public schools and public buildings, infrastructure
(power, water, sewer, communications, roads and bridges), and the economy, including
damage to privately owned homes and businesses. Progress is made toward those goals
through implementation of ongoing actions and responsibilities of local governments as well
as through initiatives undertaken explicitly to reduce future impacts.
It is important to recognize and acknowledge that Monroe County and the municipalities all
have on -going programs and activities that contribute to disaster resistance even if those
actions were not initiated in response to the Local Mitigation Strategy process. Examples
include:
• Every jurisdiction issues building permits and administers a floodplain
management ordinance. New buildings and infrastructure must comply with
the Florida Building Code and other regulations; those regulations are deemed
to be sufficient to minimize future damage to due hurricanes, high winds and
flooding.
• Every jurisdiction maintains its roads, which reduces the likelihood of washout
damage.
Monroe LMS (2010 Update) 13-3
• Every jurisdiction cooperates with water suppliers during periods of drought
and issues notices about water restrictions.
• Key West and Marathon pursue projects to improve drainage in areas subject
to rainfall flooding.
Monroe County and the municipalities participate in public information and outreach,
encouraging residents and visitors to be aware of the potential for hurricanes and actions to
take both to reduce property damage and to facilitate safe evacuation.
Similarly, the utilities have on -going responsibilities intended to reduce the impacts of
natural hazards. The Florida Keys Aqueduct Authority has contingencies for drought. The
Florida Keys Electric Cooperative, the Keys Energy System, and Florida Power and Light
take steps to minimize damage to their infrastructure and distribution systems to be able to
recover as quickly as possible after hurricanes.
13.4 Initiatives for Working Group as a Whole
13.4.1 Working Group Initiatives: 2010
At the April 26, 2010 meeting, three possible new initiatives for the Working Group "as a
whole" were discussed. Two initiatives were accepted and are shown in Table 13-3, along
with one that is an ongoing effort to verify NFIP data.
After discussion, it was decided that the third suggestion should not be identified as a
separate initiative because it is part of the ongoing work of the LMS Working Group
members. The suggestion was: "The Working Group will do a comprehensive review of
the websites of all local jurisdictions to identify content related to natural hazards (hurricane,
flood, tornado, drought, and wildfire. Recommend revisions to improvement content and
for consistency. Explore whether a single site would be more effective, with other
webpages linked to it."
Table 13-3. High Priority Mitigation Initiatives: Working Group
Initiative 2010-001
Establish LMS Working Group Procedures
Jurisdiction/Entity
Monroe County and municipalities
Description
The Working Group will review how at least two other LMS
Working Groups manage their regular business (e.g., written
procedures / by-laws), determine if it is appropriate for the
Monroe LMS Working Group to develop operating procedures,
and if determined appropriate, develop such procedures.
Operating procedures might address such items as posting
public notices of meetings, basis for not holding a required
quarterly meeting, basis for determining when a meeting may
be held by conference call, location and scheduling of
meetings, composition of the project ranking subcommittee,
submission of updates to the LMS coordinator to compile for
Monroe LMS (2010 Update) 13-4
Table 13-3. High Priority Mitigation Initiatives: Working Group
the State -required annual report, etc. Concurrently, review
how other LMS WG handle requests from private property
owners. The Working Group will talk with DEM and other
counties to determine how they prioritize and process many
requests. Monroe County has a checklist that homeowners
use to gather building -specific information; this checklist will
be reviewed and modified if appropriate.
Hazards
All
Potential Funding Sources
Staff time
Estimated Time Frame
2011-2012
Initiative 2010-002
Evaluate Hazard Identification and Risk Assessment
Tools
Jurisdiction/Entity
LMS Working Group
Description
The Working Group will evaluate the Hazard Identification and
Risk Assessments that were prepared for at least two other
counties and determine whether using different tools (e.g.,
FEMA's Hazards US) would significantly improve the
outcomes reflected in the 2010 Update. The anticipated
update of the Sea, Lake, and Overland Surge from Hurricanes
(SLOSH) projections may also influence future updates of the
HIRA.
Hazards
All
Potential Funding Sources
Staff time to evaluate (external funding will be required if it is
determined appropriate to undertake new HIRA analyses)
Estimated Time Frame
2011-2014
Initiative 2010-003
Continue to Verify and Improve Repetitive Flood Loss
Data
Jurisdiction/Entity
Monroe County and municipalities
Description
The National Flood Insurance Program maintains records of
past flood insurance claims and tracks properties that have
received multiple claims (referred to as "repetitive loss"
properties). These properties present likely opportunities for
mitigation, such as elevation -in -place, and FEMA funding may
be available to support cost-effective measures. The NFIP
records date to the mid-70s and are known to contain
inconsistencies. Verifying the data serves two purposes: it
helps the NFIP improve its records, and it results in an
accurate list of the area's most flood -prone properties.
Owners of these properties may be interested in reducing their
exposure and working with the communities to seek mitigation
funds.
Hazards
Flooding (coastal surge and ponding)
Potential Funding Sources
Staff time for data verification
Estimated Time Frame
I Annually (if new properties added to FEMA's list)
Monroe LMS (2010 Update) 13-5
13.4.2 Status of Working Group Initiatives 2005
In 2005, the Monroe County LMS Work Group identified four initiatives for the Work
Group as a whole. Table 13-4 describes those initiatives and reports on their status as of
early 2010.
Table 13-4. 2005 —High Priority Mitigation Initiatives: Work Group
Initiative 2005-001: Complete Critical Facilities
Spreadsheet
The Work Group determined the nature of data that,
ideally, is valuable to have to help identify facilities that
are expected to perform well and to identify
vulnerabilities that may indicate opportunities for
mitigation. The spreadsheet (Appendix A) is designed to
help entities collect the data. As part of the annual LMS
update, participants will review and update the data to
reflect changes.
Status as of 2010: Completed
The LMS Work Group Coordinator
maintains a secure list of selected critical
facilities. Changes to the list are
required to be reported to DEM (9G-22).
At the end of each jurisdiction's chapter
is a list of facilities that it deems to be
critical or essential — this list may vary
from the secure list maintained by the
LMS Work Group Coordinator.
Initiative 2005-002: Revise Scheme to Prioritize
Status as of 2010: Completed
Initiatives
The process described in the 2010
The Work Group's experience with the previously-
Update reflects the revised process and
adopted process for the 2005 HMGP applications
the forms are included in Appendix E.
indicated a need to modify the process by which
The LMS Work Group Coordinator
potential mitigation initiatives are submitted and, when
maintains a master spreadsheet of
funding becomes available, how the Work Group
initiatives. The list of initiatives may
establishes priorities among the initiatives that
change at least quarterly, when entities
proponents wish to submit for funding. At the May 24,
have the opportunity to "bank" projects.
2005 Work Group meeting it was determined appropriate
The list of prioritized initiatives is revised
to develop a 2 or 3-step process. This initiative will
after major disasters and when NOFAs
complete development of the forms and scheme that will
be used to prioritize initiatives when future funding
are issued. The list of completed (or
becomes available (which will be inserted in Appendix
removed) initiatives is updated at least
D). This initiative includes revising and updating the
annually.
spreadsheet included in Appendix C [in 2005, this
appendix contained "Appx_C_Mitigation Initiatives.xls"]
Initiative 2005-003: Verify and Improve Repetitive
Status as of 2010: Ongoing
Flood Loss Data
The National Flood Insurance Program maintains
records of past flood insurance claims and tracks
properties that have received multiple claims (referred to
as "repetitive loss" properties). These properties present
likely opportunities for mitigation, such as elevation -in -
place, and FEMA funding may be available to support
cost-effective measures. The NFIP records date to the
mid-70s and are known to contain inconsistencies.
Verifying the data serves two purposes: it helps the
NFIP improve its records, and it results in an accurate list
of the area's most flood -prone properties. Owners of
these properties may be interested in reducing their
exposure and working with the communities to seek
mitigation funds.
Monroe LMS (2010 Update) 13-6
Initiative 2005-004: Request FEMA staging of
Status as of 2010: Completed
emergency roofing materials
In 2007, Habitat for Humanity coordinated
Recovery activities after hurricanes have indicated that
with the LMS to provide pallets of tarps
the limitations on transportation into the Keys can cause
(three sizes) at three locations:
lag time getting roofing repair materials into affected
KW: 5701 College Road
areas. Because of typical weather during hurricane
Middle Keys: Habitat for Humanity
season, lack of emergency roofing materials means
buildings that have sustained roof damage continue to
Upper Keys: Magnolia Blvd., Key
be exposed to further damage. Low income families can
Largo (Conex in Recycling Yard)
be particularly impacted when available supplies of
emergency roofing materials are limited.
13.5 Community-Specific Initiatives
13.5.1 Community -Specific Initiatives: 2010
In 2010, the County and municipalities did not identify any community -specific
"programmatic" initiatives that are not already listed in the initiatives list (see Section 13.6).
13.5.2 Status of Community -Specific Initiative 2005
In 2005, the City of Key West identified one programmatic initiative, to seek reinstatement
in the NFIP's Community Rating System. It was subsequently determined that the City did
not have sufficient staff capacity to complete this initiative.
13.6 Site -Specific Initiatives
Mitigation projects or initiatives are actions that focus on specific locations such as public
buildings, public infrastructure, or privately -owned property. Examples of project initiatives
that have been or are likely to be implemented in Monroe County and the municipalities
include, but are not limited to:
• Wind retrofit of public buildings and facilities.
• Wind retrofit of private non-profit buildings and low income homes.
• Installation of storm drainage improvements.
• Floodproofing or mitigation reconstruction of public buildings and facilities.
• Elevation, mitigation reconstruction, or acquisition of private homes in
floodplains.
The Monroe County LMS Work Group maintains an evolving list of project initiatives that
includes many site -specific initiatives (Appendix E, as of mid -July, 2010). This list may be
modified periodically. The list has three distinct "tabs" that result from distinct steps in the
process (illustrated below and described in more detail in Section 13.7):
• Step One: Preliminary Identified Mitigation Initiatives —Notice of Intent
(initiatives may be placed on the list with a minimum amount of information).
Monroe LMS (2010 Update) 13-7
• Step Two: Prioritized Mitigation Initiatives (when an entity is prepared to
seek funding and has sufficient detail, the Characterization Form is completed
and the LMS Ranking Subcommittee develops the prioritization ranking).
• Step Three: Completed/Removed/Unconfirmed Mitigation Initiatives
(initiatives that have been completed, with or without external funding, or
which have been removed/dropped, or for which the entity has not provided
sufficient information to keep it on one of the other lists).
Quarterly
• Step One: Accept NOIs to "bank" projects
• LMS WG Coordinator updates spreadsheet (Tab One)
Post -Disaster or When NOFA Issued
Step Two: Entities electing to move projects from the "bank"
to the prioritized list submit Characterization Forms
Ranking Subcommittee reviews Characterization Forms and
completes Prioritization Form
LMS WG Coordinator updates Prioritized list (Tab Two)
Annually
• Step Three: Entities asked to review lists (Tab One and Tab
Two) to identify projects that are completed, to be removed,
orto be retained
• LMS WG Coordinator updates spreadsheet (all tabs)
• LMS WG Coordinator reports to DEM (9G-22)
13.7 Prioritizing Mitigation Initiatives
Florida Rule 9G-22 delegates to the LMS Work Group the authority to set priorities and
identify projects. The Florida Division of Emergency Management encourages Work
Groups not only to pre -identify (and "bank") projects, but to gather initial data to facilitate
the priority setting process in part to help with more rapid consideration in the post -disaster
period. As indicated in Step One (NOI), detailed cost estimates and engineering are not
necessary in order to bank potential projects because long periods of time may elapse
between initial identification of an initiative and actual application for funds (Step Two).
Initiative proponents are responsible for providing information on which the prioritizations
are based.
Monroe LMS (2010 Update) 13-8
The Monroe LMS does not outline how each jurisdiction or non-profit organization decides
to prioritize its own projects. It is expected that initiatives will be identified based on
available hazard information, past hazard events, the number of people and types of property
exposed to those hazards, and the feasibility and cost-effectiveness of the measure.
Initiatives are expected to be consistent with current policies and regulations, technically
feasible, likely to have high political and social acceptance, and be achievable using existing
authorities and staff.
The Work Group adopted the phased process described here for identification and
prioritization of mitigation initiatives The process results in the evolving list of initiatives in
Appendix E, which also includes the forms. This list is maintained by Monroe County
Emergency Management on behalf of the Work Group.
Step One: Preliminary Identified Mitigation Initiatives (Notices of Intent)
Initiatives may be placed on the list by any eligible entity that provides minimum
information. The Work Group anticipates allowing submission on at least a quarterly basis
so that eligible entities are not constrained by an annual opportunity to identify and pursue
projects and funding. Initiative proponents are encouraged to bank initiatives by submission
of notices of intent. The NOI form (Appendix E) requires the following minimum
information:
• Name of owner/entity;
• Name of the initiative/project ;
• Brief description of initiative/project, project type, and any special
considerations ;
• "Best estimate" of project costs; and
• Identification of the mitigation goal(s) and the hazards addressed.
Step Two: Prioritized Mitigation Initiatives (Characterization Form)
Implementation of site -specific mitigation initiative usually is dependant upon the
availability of funding (see Section 13.7 for sources of funding). A project that is on the
Step One (NOI) list is moved to the Step Two (Prioritized) list when the owner/entity
anticipates developing and submitting the formal application to DEMA and FEMA, and
when the Work Group is charged with prioritizing projects for available funding. Notices of
Funding Availability (NOFA) may be issued annually (e.g., for FEMA's Flood Mitigation
Assistance Program or the Pre -Disaster Mitigation Program) or after disasters that yield
Hazard Mitigation Grant Program (HMGP) funds, in which case NOFAs usually are issued
within 90 days. Whether on an annual basis or post -disaster, the Work Group members
Monroe LMS (2010 Update) 13-9
would be notified and eligible entities would then decide whether they are prepared to
formalize initiatives that are on the Step One (NOI) list.
Pursuant to State requirements (Chapter 9G-22.006) the LMS Work Group is charged with
developing a prioritized list of initiatives. At any given time, priorities may change due to
various factors such as recent damage, availability of non-federal cost share, or changes in
priorities of the funding agency.
When a NOFA is anticipated or received, the LMS Coordinator will notify entities that have
initiatives in the Step One (NOI) list. In order to have an initiative forwarded to the funding
agency, detailed data specified in the Characterization Form (Appendix E) are required so
that the Work Group's Ranking Subcommittee can process and determine priorities (Step
Two list). The following minimum information will be required:
• Name of owner/entity and the point of contact responsible for providing the
detailed information;
• Initiative/project title, description of the project, whether it benefits a critical
facility; and whether the applicant has the legal authority to undertake the
project;
• Estimate of how quickly the project could be started and how long it would
take to complete;
• The LMS goals addressed a(scope of work) and need, and the hazard(s) and
problem(s) it would address;
• Identification of the mitigation goal(s) and the hazards addressed;
• Description of general benefits, including number of people impacted,
economic benefits, social benefits, environmental benefits, and whether
historic resources are affected;
• Estimated total project costs and whether a formal Benefit -Cost Analysis has
been prepared or if the estimated benefits are based on the worksheet to
approximate a Benefit -to -Cost Ratio;
• Statements regarding feasibility; consistency with other plans, policies, codes
and ordinances; permits and approvals necessary; level of effort to implement;
and likely reception by the community (i.e., the public);
• Identification of potential funding sources; and
• An attachment to approximate benefits and costs.
Step Three: Completed/Removed/Unconfirmed Mitigation Initiatives
In order to maintain records that demonstrate progress towards the Mitigation Goals, the
Work Group recognizes that it is important to track completed initiatives, as well as
initiatives that are completed or removed from the list, including those for which sufficient
information was not provided in order to retain on one of the other lists. At least once a year
Monroe LMS (2010 Update) 13-10
entities that have undertaken mitigation initiatives (regardless of source of funding) will
report to the Work Group. At any time, entities may request that an initiative be removed
from the Step One (NOI) list or the Step Two (Prioritized) list, in which case it is moved to
the Step Three list.
13.8 Potential Funding for Selected Initiatives
Funding to support mitigation initiatives may be available from several sources, each with
its own timing and requirements. The list in Table 13 -5 is not intended to be exhaustive, but
to characterize the variety of funding. The State Hazard Mitigation Plan includes a more
detailed list of potential funding sources. The LMS Work Group will endeavor to maintain
familiarity with funding sources and availability. The Florida Division of Emergency
Management is the primary contact for notifications and processing of federal funds,
especially those that derive from the U.S. Department of Homeland Security (FEMA).
FEMA publishes annual guidance for its programs. The guidance summarizes
programmatic changes and limitations which may vary from year to year.
Table 13-5. Primary Potential Funding for Mitigation
Program
Fund Source Contact
Hazard Mitigation Grant Program (HMGP)
Source: FEMA
To prevent future losses of lives and property due to disasters; to implement
State or local hazard mitigation plans; to enable mitigation measures to be
Contact: Florida Division of
implemented during immediate recovery from a disaster; and to provide
Emergency Management (DEM)
funding for previously identified mitigation measures to benefit the disaster
area. Eligible projects include but are not limited to:
• Property acquisition or relocation
• Structural and non-structural retrofitting (e.g. elevation, storm shutters and
hurricane clips)
• Minor structural hazard control (e.g. culverts, floodgates, retention basins)
• Localized flood control projects that are designed to protect critical facilities
and are not part of a larger flood control system
• Other feasible and cost-effective measures
Ineligible activities include:
• Major flood control projects
• Engineering designs not integral to a proposed project
• Feasibility and drainage studies that are not integral to a proposed project
• Flood studies that are not mapping
• Response and communication equipment (e.g., warning systems, generators
that are not integral to a proposed project)
Pre -Disaster Mitigation (PDM) Competitive Grants
Source: FEMA
The PDM program was authorized by Section §203 of the Robert T. Stafford
Disaster Relief and Emergency Assistance Act (Stafford Act), as amended by
Contact: DEM
Section §102 of the Disaster Mitigation Act of 2000, to assist communities to
implement hazard mitigation programs designed to reduce overall risk to the
population and structures before the next disaster occurs. Annual guidance is
issued and may include national priorities. See HMGP for eligible activities.
Monroe LMS (2010 Update) 13-11
Table 13-5. Primary Potential Funding for Mitigation
Program
Fund Source Contact
Flood Mitigation Assistance Program
Source: FEMA
To fund cost effective measures implemented by States and communities to
reduce or eliminate the long term risk of flood damage to buildings,
Contact: DEM
manufactured homes, and other structures uninsurable by the National Flood
Insurance Program. See flood -related activities under PDM.
Severe Repetitive Loss Program
Source: FEMA
To fund cost effective measures to reduce or eliminate the long-term risk of
flood damage to specific buildings that qualify under the federal statutory
Contact: DEM
definition for "severe repetitive loss" properties. SRL properties are primary
residences that are covered by an NFIP flood insurance policy, that have
received 4 or more claims of at least $5000 or at least 2 claims that exceed
the value of the property. Eligible activities include elevation, relocation,
demolition, and floodproofing (non-residential only), demolition and rebuilding
(also called "mitigation reconstruction"), and minor physical localized flood
control projects.
Repetitive Flood Claims Program
Source: FEMA
To fund cost effective measures to reduce or eliminate the long-term risk of
flood damage to individual properties for which one or more NFIP flood
Contact: DEM
insurance claim has been paid, provided FEMA determines the activity is in
the best interest of the NFIP and cannot be funded under the Flood Mitigation
Assistance Program.
Residential Construction Mitigation Program (RCMP)
Source/Contact: DEM
Funds from the Florida Hurricane Catastrophe State to harden homes and tie -
down mobile homes.
Community Development Block Grant
Source: HUD
The Community Development Block Grants (CDBG) provide for long-term
needs, such as acquisition, rehabilitation or reconstruction of damaged
Contact: Community Planning and
properties and facilities and redevelopment of disaster -affected areas. Funds
Development
may also be used for emergency response activities, such as debris clearance
and demolition, extraordinary increases in the level of necessary public
services. Eligible projects include:
• Voluntary acquisition or if appropriate, elevation of storm damaged
structures (can be used as match for FEMA mitigation projects in low income
areas)
• Relocation payments for displaced people and businesses
• Rehabilitation or reconstruction of residential and commercial buildings
• Assistance to help people buy homes, including down payment assistance
and interest rate subsidies
• Improvement to public sewer and water facilities
Community Facilities Loan Program (10.423)
Source/Contact: Florida Rural
To construct, enlarge, extend, or otherwise improve community facilities
Economic and Community
providing essential services to rural residents.
Development
Conservation and Recreation Lands (CARL)
Source/Contact: Florida
This grant program is intended to conserve environmentally endangered lands
Department of Environmental
and provide resource conservation measures for other lands.
Protection, Division of State Lands
Florida Communities Trust (FCT)
Source/Contact: Florida
Facilitates the purchase of lands for conservation and/or recreation purposes
Department of Community Affairs,
by local governments; helps to implement conservation, recreation, open
Communities Trust
space, and coastal elements of local comprehensive plans. The Board of
Florida Communities Trust has latitude to consider innovative financing
arrangement, loans, and land swaps. However, most of the Trust's funding is
for land acquisition. Land acquisition projects in which matching funds are
available will receive more favorable consideration, although a portion of
Monroe LMS (2010 Update) 13-12
Table 13-5. Primary Potential Funding for Mitigation
Program
Fund Source Contact
available funds may be awarded as outright grants.
Community Development Block Grants/Entitlement Grants
Source: HUD
To develop viable urban communities by providing decent housing and a
suitable living environment, and by expanding economic opportunities,
Contact: Office of Block Grant
principally for low to moderate income individuals.
Assistance
Community Development Block Grants/State Program
Source: HUD
To develop viable urban communities by providing decent housing and a
suitable living environment, and by expanding economic opportunities,
Contact: Small Cities Division,
principally for low to moderate income individuals.
Office of Block Grant Assistance
Economic Injury Disaster Loans (EIDL)
Source: SBA
To assist business concerns suffering economic injury as a result of certain
presidential, Secretary of Agriculture, and/or Small Business Administration
Contact: Office of Disaster
declared disasters.
Assistance
Emergency Shelter Grants Program (ESG)
Source/Contact: Florida Housing &
To provide financial assistance to renovate or convert buildings for use as
Urban Development; Community
emergency shelters for the homeless. Grant funds may also be used to
Planning & Development
operate the shelter (excluding staff) and pay for certain support services.
Physical Disaster Loans (Business)
Source: SBA
To provide loans to businesses affected by declared physical type disasters
for uninsured losses; may include costs to mitigate future damage.
Contact: Office of Disaster
Assistance
Post -Disaster Public Assistance Program
Source: FEMA
To provide supplemental assistance to States, local governments, and certain
private non-profit organizations to alleviate suffering and hardship resulting
Contact: DEM
from major disasters or emergencies declared by the President. Costs for
feasible and cost-effective mitigation can be included.
Flood Plain Management Services
Source: U.S. Army Corps of
To promote appropriate recognition of flood hazards in land and water use
Engineers
planning and development through the provision of flood and flood plain
related data, technical services (such as floodproofing evaluations of public
Contact: Jacksonville District COE
buildings), and guidance.
13.9 LIVIS Actions to Support Grant Applications
Table 13 -6 illustrates that certain mitigation grant programs require that projects "be in
conformance with" or be "consistent with the goals and objectives" in local hazard
mitigation plans (regulations cited below the table). Specific actions are required when
post -disaster Hazard Mitigation Grant Program funds become available and if an eligible
subapplicant elects to submit an application for FEMA's Pre -Disaster Mitigation grant
program.
Monroe LMS (2010 Update) 13-13
Table 13-6. LMS Actions to Support Grant Applications
Program
State Requirement
Federal Requirement
Hazard Mitigation Grant
LMS WG to prioritize
• Subapplicant to provide
Program (FEMA)
projects [9G-22.006(1)(a)]
evidence of consistency
• LMS WG to provide
with LMS [§ 206.435]
endorsement letter [9G-
22.007(4)]
Pre -Disaster Mitigation
None
LMS WG coordinator to
(FEMA)
provide endorsement
letter with ranking [HMA
Guidance]
Flood Mitigation
. None
Subapplicant to provide
Assistance (FEMA)
evidence of consistency
with LMS [§ 79.6 and
HMG Guidance]
Severe Repetitive Loss
. None
Subapplicant to provide
(FEMA)
evidence of consistency
with LMS [§ 79.6 and
HMA Guidance]
Repetitive Flood Claims
. None
• Subapplicant to provide
(FEMA)
evidence of consistency
with LMS [HMA Guidance]
Residential
. None
Not applicable (State
Construction Mitigation
program)
Program (State)
State Regulations:
9G-22.006 County Allocations and Project Funding.
(1)(a) Eligible and submitted projects for each county included in the relevant presidential
disaster declaration will be funded in order of priority as outlined in the LMS until the
allocated funds are exhausted, or all eligible projects are funded, whichever occurs first.
9G-22.007 Application.
(4) A letter shall accompany each application from the Chairperson or Vice -Chairperson of
the LMS Working Group endorsing the project. The endorsement shall verify that the
proposed project does appear in the current LMS and state its priority in relation to other
submitted projects. Applications without this letter of endorsement will not be considered.
Federal Regulations & Guidance:
HMGP: § 206.435 Project identification and selection criteria.
(a) Identification. It is the State's responsibility to identify and select eligible hazard
mitigation projects. All funded projects must be consistent with the State Mitigation Plan.
Hazard Mitigation projects shall be identified and prioritized through the State, Indian tribal,
and local planning process.
Monroe LMS (2010 Update) 13-14
FMA & SRL: § 79.6 Eligibility.
(d) Minimum project criteria. In addition to being an eligible project type, mitigation grant
projects must also:
(1) Be in conformance with mitigation plans approved under part 201 of this chapter for
the State and community where the project is located;
HMA Guidance (FY2010): D.5.1 Conformance with Hazard Mitigation Plans
Projects submitted for consideration for HMA funding must be consistent with the goals and
objectives identified in the current, FEMA-approved State or Tribal (Standard or Enhanced)
Hazard Mitigation Plan and local or Tribal hazard mitigation plan for the jurisdiction in
which the activity is located.
13.10 2010 Updates
• Section 13.1: Added the Mitigation Goals for easy reference. Added Table
13-1, the updated the list of hazards covered in Chapter 6 (identical to Table 6-
7).
• Section 13.3: Added that every jurisdiction cooperates with water suppliers
during periods of drought.
• Section 13.4: Added new initiatives for the Work Group as a whole and
reported on the status of the Work Group's 2005 initiatives.
• Section 13.5: Added new community -specific initiatives and reported on the
status of Key West's 2005 initiative.
• Sections 13.6 and 13.7: Revised the text to be consistent with the revised
forms used by the Work Group to submit projects for the initiatives list.
• Section 13.8: Added FEMA's Severe Repetitive Loss and Repetitive Flood
Claims grant programs to the list of funding sources. Noted that FEMA
publishes annual guidance for mitigation grant programs.
• Section 13.9: Added new section to summarize LMS Working Group actions
required to support grant applications.
Monroe LMS (2010 Update) 13-15
Monroe LMS (2010 Update) 13-16
Chapter 14. Evaluation, Updates & Revisions
14.1 Distribution
Upon adoption, the LMS 2010 Update will be posted on the Monroe County Emergency
Management Department's web site and notices of its availability will be distributed to the
federal and state agencies that were notified and the organizations, agencies, and elected
officials who received notices of public meetings.
14.2 Annual Evaluation & Updates (Monitoring)
As required by State statute (Chapter 9G-22) and to ensure that the Local Mitigation
Strategy is current and continues to serve the interests of residents and visitors, the LMS
Working Group will perform an evaluation and, if appropriate, prepare revisions every year.
Minor revisions may be handled by addenda. If revisions are prepared they are to be
submitted to the Florida Division of Emergency Management no later than the last workday
of each January.
The Monroe County Emergency Management Department, the LMS Coordinator, will
monitor hazard events, reports of damage, and progress on implementation of projects that
Working Group members report are undertaken. The LMS Coordinator will coordinate the
annual review and preparation of revisions that may be identified. The participating
Working Group members are responsible for recommending revisions pertinent to their
jurisdiction or organization. Revisions may be appropriate due to:
• Hazard events that have occurred that prompt a change in the characterization
of risk.
• Significant changes to the critical facilities list (addition or deletion of
facilities).
• Changes to the NFIP's list of Repetitive Loss Properties (if the list is provided
for this purpose).
• Changes in knowledge and understanding of the people and property that are
at risk which may be reflected in hazard maps.
• Changes to the list of mitigation initiatives (addition of new initiatives,
deletion or completion of previously -listed initiatives).
• Changes in department organization, regulations, comprehensive plans, and
the like.
• Changes necessary to comply with State and federal program requirements.
The following monitoring schedule will be followed (subject to changes as a function of
hazard events):
Monroe LMS (2010 Update) 14-1
• By the end September of each year, the LMS Coordinator will notify Working
Group members of the need to review the LMS and identify revisions;
Working Group members will submit proposed revisions to Emergency
Management which will be discussed at a Working Group meeting.
Emergency Management will compile the proposed revisions and, with
Working Group approval, will forward the revisions to the Department of
Community Affairs by the last working weekday of January.
• On a quarterly basis the Working Group will report on the status of active
initiatives in order to maintain currency of the list.
• On a quarterly basis the Working Group will accept new initiatives to be
placed on the list of Preliminary Identified Mitigation Initiatives.
Between 2005 and 2010, the Monroe County LMS Working Group coordinator submitted
annual reports as required. A number of facilities were added to the list of critical facilities
and progress was noted on some grant -funded projects to mitigate repetitive loss properties.
14.3 Five -Year Revision
The LMS Working Group will conduct a comprehensive review of and revisions to the LMS
on a five-year cycle. In part, this revision will be to incorporate the material collected for
the previous four annual updates. Because the LMS is adopted in 2010, it will enter the next
evaluation and review cycle sometime in 2014, with adoption and publication anticipated in
2015.
Based on the mitigation planning process outlined in Section 3.2, the LMS Working Group
anticipates the following activities will be undertaken as part of the 2015 Update:
• An evaluation to determine whether newer, GIS-based risk assessment tools
should be used to update the information about the impacts of hurricanes and
coastal storms, or existing knowledge about the nature, extent, and magnitude
of potential building damage is sufficient for the purposes of the LMS.
• The LMS Coordinator will notify the LMS Working Group and All interested
parties on the e-mail listserve when the five-year revision cycle is initiated and
when each subsequent meeting or conference call is scheduled.
• An initial meeting to review the update process, State and federal
requirements, and the major steps, assignments, and schedule. All members
will contribute to updating hazard information and events. Each local
government member will be responsible for ensuring that their chapters are
reviewed and reflect current organization and procedures.
• The mitigation initiatives lists will be reviewed and revised (if not already
accomplished in the annual reports and updates).
• The Working Group will review all changes and concur with making the
Public Review Draft available for public review. The LMS will be made
Monroe LMS (2010 Update) 14-2
available for public review and citizens will be encouraged to comment. A
public meeting will be held.
The Working Group will review and address public comments and comments
received from DEM and FEMA review.
• Each local jurisdiction will formally adopt the LMS Update.
14.4 Incorporating Mitigation Plan Requirements
into Other Local Planning Mechanisms
The effects of high winds and storm surge flooding associated with hurricanes are
recognized by everyone in Monroe County as significant hazards. All local governments
acknowledge those risks in all local plans. Chapters 7 through 12 describe how Monroe
County and the cities of Key West, Marathon, Key Colony Beach, Layton, and Islamorada
address hazards as part of their current planning mechanisms and processes, including
comprehensive plans, land development, infrastructure design, and public outreach. The
2010 Update of the LMS did not reveal any significant gaps in how hazards are addressed in
existing planning mechanisms and processes.
To assure continued incorporation of the goals of the LMS, the LMS Working Group
members from the local jurisdictions will participate in the internal processes that each
jurisdiction will follow to review and revise its comprehensive plan, comprehensive
emergency management plans, and wildfire protection plans.
Many mitigation initiatives are capital projects. Implementation of site -specific projects
usually is dependant upon the availability of funding (see Section 13.7 for sources of
funding). When those initiatives are prioritized and funding is sought, each jurisdiction will
comply with its existing rules regarding inclusion of projects in its Capital Improvement
Plan or other budget and planning document or process.
14.5 2010 Update
The LMS Working Group reviewed and updated the pertinent sections. Some of the more
significant changes include:
• Section 14.2: Noted that annual reports were submitted.
• Section 14.3: Outlined steps in the update process.
• Section 14.4: Noted the LMS Working Group members will contribute to
their respective comprehensive planning processes to ensure that hazards
and mitigation objectives are incorporated.
Monroe LMS (2010 Update) 14-3
Monroe LMS (2010 Update) 14-4
APPENDIX A: LMS Working Group Agendas &
Meeting Minutes
MEMORANDUM
TO: Monroe County LMS Workgroup
FROM: Jerry O' Cathey, Chair, Monroe County LMS
Rebecca Quinn, planning consultant
DATE: August 3, 2009
RE: LMS Update Memo # 1
LMS 5-Year Update Process
As we discussed at the last meeting, this year we need to start the process to update the
LMS. The current LMS was approved by FEMA on November 16, 2005. The State of
Florida requires counties and municipalities to develop local mitigation strategies to be
eligible for various mitigation grant funds, including all of FEMA' s mitigation grant
programs. The Federal statutory authorities for those programs also require that local
mitigation plans be updated every five years in order to maintain specifies that to
continue eligibility.
FEMA's guidance for local mitigation planning offers the following summation (online
at http://www.fema.gov/libr4a/viewRecord.do?id=3336):
Plan Updates
The mitigation planning regulations at , 0-1. (d)(3) directs the update of Local Mitigation Plans:
to ca I jurisdiction m us t re vie w a nd re visa its plan to refle ct changes in de velop m en t,
,progress in focal mitigation efforts, and changes in priorities, and resubmit it for approval
within 5 years in order to continue to be eli ible for mitigadon project grant fun din g.
Local Mitigation Plans must he updated and resuhrritted to FEMA for approval every five ()
years in order to continue eligibility for FEMA hazard mitigation assistance prograrn . Plan
updates must demonstrate that progress has been made in the past 5 years for Local Mitigation
Plans to °fulfill commitments outlined in the previously approved plan. Th is involves a
comprehensive review and update of each section of the Local Mitigation Plan and a discussion
of the results of evaluation and monitoring activities detailed in the Plan A aintenance section of
the previously approved plan. Plan updates may validate the inforrnation in the previously
approved plan, or may involve a major plan rewrite. A plan update is NOT an annex to the
previously approved plan: it stands on its own as a complete and current plan.
Section 14.3 of the LMS is shown below; it anticipates the Work Group will begin the
evaluation and review 2009. Further below is an overview of the update process and a
target schedule. Attachment A shows the Scope of Work for consultant services. We're
pleased to announce that Rebecca Quinn will once again work with us to revise and
update the LMS.
LMS Update Memo 1 (update process, August 37 2009)
14.3 Five -Year Revision
A c onipreliensive review f nd rev sion s to the LM S w111 be conducted on a five-v.ear
cycle. hi part., this revi s ion will be to iiic o ij) of -ate the material collected for the annual
updates. Because the LMS is adopted in 2005. it will enter the next eva huati oil aiid review
cycle s omet ime in .210 029, w itli a dopti oil aiid pub 11 c ati oil anti c ip a t e d In 0 10.
The Moiiroe Cmuity LMS Work Group will hivo lve the public in the LMS revision p ro c e s s
in the same ma imer used duriti 2 the 2 00 5 revs si on. Tire pub 1i c wvi 11 b e iioti Ii c d when the
revi s ion pro c e s s i -s stai°te d aiid p1.0�- ide d the opportun ity to review air d c oi�� lent oil chunize
to the LMS. It is expected that a c of-iYb ina tion of in tormati oiial public Y-leetin g s . sury ev s and
qua sti mia ire s. draft doc ui-imis posted on the web site. an di'o r pitb li c Council meetings may
be m dertak e i.
Overview of LMS Update Process and Requirements (summarized from FEMA's plan
review crosswalk):
1. Follow the same multi -step process.
2. Extend opportunity for "agencies, businesses, academia, nonprofits, and other
interested parties to be involved."
3. Update the hazard history to capture events that occurred since the previous plan.
Andrew Devanas with the National Weather Service Office Key West has offered
assistance.
4. Determine whether the risk assessment is adequate for the specific purposes of the
LMS (FEMA encourages — but does not require — risk assessments to "describe
vulnerability in terms of the types and numbers of existing and future buildings,
infrastructure, and critical facilities ... in terms of an estimate of the potential
dollar losses").
5. Explicitly "document how the planning team reviewed and analyzed each section
of the plan and whether each section was revised."
6. Update description of each jurisdiction's participation in the NFIP and "identify,
analyze and prioritize actions related to continued compliance with the NFIP."
7. Include content for each community to "describe vulnerability in terms of the
types and numbers of repetitive loss properties."
8. Identify the completed, deleted or deferred mitigation actions as a benchmark for
progress, and if activities are unchanged/deferred, describe why no changes
occurred.
9. Extend opportunity to the public to comment on the plan during drafting and prior
to approval.
10. Adopt the revised plan (required, even if only minor revisions are made).
LMS Update Memo 1 (update process, August 37 2009) 2
Target Schedule for the LMS Update (also refer to Attachment A):
■ August Meeting: Review schedule for the update; discuss the update process and
requirements (see below); and make initial assignments.
■ September: Workgroup members will review existing content (Chapter 5 and
Chapter 6); local government members will review the "Hazards and Risk"
sections in their specific chapters. Discuss with and report to consultant.
■ October: Local government members will review their specific chapters
(Chapter 7 through Chapter 12). Discuss with and report to consultant.
■ November Meeting: Discuss Mitigation Goal Statement. Review and discuss
revisions to Chapters 1 through 12 resulting from reviews. Discuss progress on
mitigation actions and identification of new actions to consider.
■ December/January: Circulate draft for review and comment.
■ February Meeting: Final discussion and prioritization of mitigation actions.
■ March: Make draft updated plan available for public comment; hold public
meeting.
■ April 1, 2010: Target date to deliver the updated plan to DEM for review (while
resolutions of adoption are being processed).
■ June 1, 2010: Target date to deliver updated plan to FEMA for review and
approval.
■ November 16, 2010: Deadline for receipt of FEMA's approval.
Assignments for the Work Group:
Assignments will be distributed according to the Target Schedule. The first assignment
will be distributed before September 1, 2009. Work Group members will work directly
with Rebecca on these assignments, leading the drafts and decision items that we will
take up at future meetings.
LMS Update Memo 1 (update process, August 37 2009) 3
Attachment A
Monroe County Local Mitigation Strategy Update
Consultant's SOW Tasks
Status Notes
(as of xx/xx/09)
Task 1 — Hazard Identification and Risk Analysis (HIRA)
1. Review the H IRA and identify areas that need revision
2. Collect events since adoption of the LMS
3. Consider whether need to expand content about technological
hazards
4. Determine if the HIRA inventory adequately captures historic
and cultural resources
5. Determine if aspects of the risk assessment need to be updated
(performing GIS-based updates is not anticipated)
Task 2 — Capability Assessment & Other Plans
1. Review capability assessments that describe agency functions
and how hazard are addressed, interview appropriate county
and city staff, identify changes in programs and policies, review
other plans of the county and cities
2. Review LMS annual reports for revisions to incorporate
3. Review State Hazard Mitigation Plan to identify updates
appropriate for consistency
4. Draft revisions to pertinent sections of the LMS
Task 3 — LMS Work Group Meeting #1 & Mitigation Actions
1. Work Group meeting #1: review HIRA and revisions; review
Mitigation Goal Statement, review changes in capability
assessment
2. Review progress on mitigation actions
3. Incorporate revisions in the LMS and circulate for comment
Task 4 — LMS Work Group Meeting #2 & Draft LMS Revisions
1. Work Group meeting #2: review all revisions; summarize
substantive comments; consider new programmatic actions and
prioritize
2. Prepare final draft revised LMS
3. Make LMS available for public review and solicit comments
4. Hold public meeting, report comments to LMS and address, if
necessary
Task 5 — Final Draft LMS and LMS Adoption
1. Prepare LMS for submission to the Board of County
Commissioners and City Councils for adoption.
2. Submit LMS to Florida DEM for review and comment;
incorporate
3. Initiate adoption process; submit to FEMA for review and
approval
4. Deliverables: digital and hardcopies
LMS Update Memo 1 (update process, August 3, 2009)
RE: Minutes of the August 20 Conference Call
Monroe County LMS
Participants:
Jerry O' Cathey:
Monroe County Emergency Management
Lisa Watson:
City of Marathon Fire Rescue / Emergency Management
Jerry Buckley:
Village of Islamorada, Principal Planner
Dianne Bair:
Monroe County Growth Management, Flood Plain Mgr.
Laura Herbert:
FDEM, Mitigation- Planner IV
Rebecca Quinn:
RC Quinn, Inc., LMS consultant
This conference call was scheduled to review the LMS Update Memo # 1 distributed on
August 4. The memo provides an overview of the LMS update process, a target
schedule, and the form that Rebecca will submit to Jerry to track progress. The following
items were discussed:
1. Both FEMA and State regulations require that local mitigation strategies be
updated every 5 years. The work group must examine each section, and a
summary of the update process must be included. The entire updated plan must
be adopted by every jurisdiction, not just a summary of the updates.
2. FEMA's guidance for updates is available on the Monroe County webpage, (4�
(http://monroecofl.virtualtownhall.net/Pa,!2�es/MonroeCoFL_Emergency/LMS)
along with the plan review crosswalk that both DEM and FEMA use.
3. A new requirement is to address "continued compliance with the NFIP." DEM
distributed a memo that offers suggestions for addressing this requirement.
4. FEMA puts emphasis on the requirement for public notice and involvement.
Jerry will assure that notice of the November LMS meeting is made public
through print media dissemination. Rebecca suggests that the government
members submit a notice to their councils to advise the public that the update
process has been initiated and how to get more information (a draft of this item
will be offered).
5. Rebecca will soon distribute the first assignments for the government work group
members, requesting that they review their specific chapters (chapters 7 through
12). This should be done in September.
6. Jerry noted that Andy Devanas of the Key West National Weather Service office
offered to help. He is reviewing Chapter 5 (Hurricanes & Coastal Storms),
Chapter 6 (Other Hazards & Risks), and subsections ".3" in each of the
community chapters. His suggested changes will be provided for review by the
work group, which will be the second assignment, which should be done in
October.
7. Dianne and Jerry will check that the County's GIS will provide support for maps.
We will reexamine hazard information that is available and that can be displayed
on a map (e.g., FEMA flood maps). We will have maps that show the locations of
properties that FEMA identifies as "repetitive loss" properties (have received 2 or
more flood insurance claim payments).
8. Appendix A of the 2005 LMS lists the data fields to be completed for "critical
facilities." At some point, the government members will need to review whatever
data have been input to that spreadsheet and the maps in the 2005 LMS will be
updated (Figs 2.2a-f).
9. Rebecca will work with Jerry and DEM to obtain data on events that have
occurred since 2005.
10. The next LMS Work Group meeting has been confirmed to be:
Thursday, November Local Mitigation Strategy This meeting will be at the Marathon Fire Station,
121 2009 - 9:30 AM to Working Group (LMSWG) Department Meeting Room, 8900 Overseas Highway
Noon Meeting (Bayside), Marathon
11. The target schedule as outlined in the August 4 memo anticipates having a final
draft available for public comment and a public meeting in March 2010, with
delivery to DEM by April 1, 2010.
12. LMS Working Group members who were unable to participate in this conference
call will be contacted by Rebecca Quinn on another scheduled conference call or
on an individual basis.
These minutes will be distributed to the LMS Working Group for their edification and
reference.
Monroe
County
Emergency
Management
• Introductions
r
..............
490 63rd Street
yJ•
Ocean Suite 150
Marathon, FL 33050
•Valk Bus: 305 289-6018
Fax: (305) 289-6333
MINUTES
Local Mitigation Strategy Working Group Meeting
Marathon Fire Station
8900 Overseas Highway
Marathon
Thursday, November 12, 2009
9:30AM - NOON
Working Group Discussion consisted of the following:
• Purpose of meeting, i.e., 2010 LMS update / revision
• Importance of LMS WG participation and contribution was stressed
• Importance of LMS WG members to inform their respective commissioners, or boards, that the
LMS Plan is currently undergoing its FEMA required 5-year revision and that their
participation and contributions are important to future HMGP applications. It was suggested
that for those that have not already done so, the date at which the notification was to be
presented to these entities be forwarded to Rebecca Quinn, LMS Consultant, for inclusion in
the LMS updated plan.
• The date, place, and time of the next, and future, LMS WG meetings, will be placed, not only
on the Monroe County Emergency Management Website(http:monroecofl.virtualtownhall.net
/Pages/MonroeCoFL_Emergency/LMS) as a Public Notice, but also, in the local print media as
a public service.
• LMS approval process: Formal adoption of the plan may be completed prior to submission to
FEMA for review, by formal resolution, or some other approved documentation indicating
adoption, and then submitted to FEMA and DEM with Letters of Approval. If approved, a
signed FEMA approval letter will follow.
• WG was cautioned about accurately identifying hazards or vulnerabilities within their
jurisdiction(s) and the new FEMA requirement identifying the actions which have been taken
to counter, or mitigate, these threats, e.g. Wildfire vulnerability.
• Request of the Working Group, particularly the jurisdictions, to review the Chapter 5 & 6
homework "strikethroughs" and provide, to Rebecca Quinn, the appropriate and correct input
• It was noted that while 9G-22 (Hazard Mitigation Grant Program) requires "A list of repetitive
loss structures," this directive is, in fact, prohibited by the Privacy Act.
• In the next 5 years, newly evolving FEMA derived Risk Assessment Models will be used for
LMS Working Group planning and analysis.
• For Tables 5-9 to 5-17 (TAOS Damage Projections) it was recommended, for purposes of
clarity and illustration, that a breakdown be requested from the County Tax Assessors Office
by which to provide the conversion from numerical values to percentage representations. Table
5-9, SMIIP Summary: Impacts of Hurricanes in Monroe County (2007) and Figure 5-3, Single
Family Home Values in Monroe County needs the inclusion of Hurricane Wilma figures.
• Where appropriate (in Chapters 5 & 6) include the effects of 2005 Hurricane Wilma on
incorporated and unincorporated Monroe County, e.g. utilities, communication, transportation,
etc.
• The accuracy of selected Coastal Erosion (6.6) locations is questioned, regarding DEP selective
input vs. more realistic, all -county exposure and vulnerability. Further inquiry by RC Quinn
Consulting will follow.
• Questions regarding Public Assistance (PA) data should be directed to the FDEM, Monroe
Coordinator, Ms. Lorraine Foley Stuart (�.) Office: 407-790-6590 / E-mail: lorraine.
Cfoley-
stuart ,em.my orl a.com
•
• In response to questions regarding current Monroe County Water Restrictions please reference
attached November 2009 Restriction Guidance.
PLEASE FIND ATTACHED A ROSTER OF THOSE WHO WERE ABLE TO ATTEND THIS
MEETING. THE EFFORT TAKEN TO ATTEND, AND THE PARTICIPATION PROVIDED, IS
MOST APPRECIA TED AND NECESSAR Y TO O UR MITIGA TION FUNDING INITIA TI VES.
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MEMORANDUM
TO: Monroe County LMS Working Group
FROM: Jerry O' Cathey, Chair, Monroe County LMS
Rebecca Quinn, planning consultant
DATE: April 19, 2010
RE: Agenda for LMS Working Group meeting on April 26
The Monroe County LMS Working Group will meet on April 26, 2010 at 9:3 0 a.m. at the
Marathon Regional Government Center, 2798 Overseas Highway.
Please review the Draft Chapter 13 that was distributed with the announcement of the meeting.
Also please review the following agenda before the meeting:
(A) Review draft Chapter 13, which describes the process used to maintain the list and also
lists actions for the Working Group as a whole.
(B) Review status of 2005 Mitigation Actions reported in Chapter 13.
(C) Discuss possible new actions for the Working Group as a whole (please review the
suggestions below before the meeting).
(D) Review the revisions to the two forms that we use to put projects on the list and the
"LMS Project Prioritization Form." The most significant changes are in the
"Characterization Form" which we're proposing be simplified considerably, especially for
projects that don't yet have a computed Benefit to Cost Ratio, the form is set up so that an
approximate B:C is estimated.
(E) Review the instructions to update the current mitigation projects lists. Hardcopies of
the initiatives list (and instructions) will be distributed and updates should be returned by
May 7.
(F) Review schedule to complete the LMS Update by the deadline: Must be adopted and
approved by FEMA before mid -November
1. Return comments on today's assignments and incorporate into the document. 2
weeks
2. Distribute the entire LMS with major changes shown in <track changes>; convene
a conference call of LMS WG members to concur with release of the update for
public review. 1 week
3. Place the Public review Draft on the County's webpage and send hardcopies to
the County & cities to make available for public review. 1 week
4. Send to DEM for initial review.
5. Select date of public meeting; publish availability of the Public Review Draft in
local papers; issue press release. How much lead time? Usually 2 weeks
6. Hold public meeting; collect all comments from public review. 1 week
7. Respond to public comments and DEM comments; prepare final LMS. 1 week (3
weeks)
8. Submit to FEMA for review (FEMA will review and may tentatively approve
pending final adoption by all jurisdictions).
9. County and cities to determine when to initiate formal process for adoption (draft
resolutions of adoption to be provided).
(G) Comments by the public.
THE FOLLOWING SUGGESTIONS for the Working Group as a whole are phrased as actions
for the purpose of discussion. The Working Group will decide whether to accept any specific
action.
1. The Working Group will review how at least two other LMS Working Groups manage
their regular business (e.g., written procedures), determine if it is appropriate for the
Monroe LMS Working Group to develop operating procedures, and if determined
appropriate, develop such procedures. Operating procedures might address such items as
posting public notices of meetings, basis for not holding a required quarterly meeting,
basis for determining when a meeting may be held by conference call, location of
meetings, composition of the project ranking subcommittee, submission of updates to the
LMS coordinator to compile for the State -required annual report, etc.
2. The Working Group will do a comprehensive review of the websites of all local
jurisdictions (and nonprofit?) to identify content related to natural hazards (hurricane,
flood, tornado, drought, and wildfire. Recommend revisions to improvement content and
for consistency. Explore whether a single site would be more effective, with other
webpages linked to it. [NOTES: This would make a good project for a college intern.]
3. The Working Group will evaluate the Hazard Identification and Risk Assessments that
were prepared in at least three other counties and determine whether using different tools
would likely significantly improve the outcomes reflected in the 2010 Update, which
continues to use the TAOS results from 1999. [NOTES: Keep in mind the purpose of the
hazard identification and risk assessment — largely to help prioritize efforts. The
rationale we've used to retain the previous HIRA is found in text proposed for chapter S,
which states that "The Working Group discussed the fact that the hurricane "risk
assessment' information in this Chapter is based on the 1998 TAOS damage projections
and concluded that those estimates remain acceptable for the purpose of indentifying and
prioritizing mitigation actions. It was also noted that the results of the update of the
hurricane storm surge modeling (SLOSH) are expected some time in 2010."
MINUTES
Local Mitigation Strategy Working Group Meeting
Marathon Fire Station
8900 Overseas Highway
Marathon
April 26, 2010
9:30AM - NOON
Working Group Discussion consisted of the following:
■ Draft Chapter 13 (Initiatives) was distributed with the announcement of the meeting. Chapter
13describes the process used to maintain the mitigation initiatives lists which includes
initiatives submitted by Working Group members and also lists actions for the Working Group
as a whole.
■ Reviewed the status of 2005 Mitigation Actions reported in draft Chapter 13.
■ Discussed possible new actions for the Working Group as a whole (see below for suggestions
discussed).
■ Reviewed the revisions to the two forms that we use to put projects on the list and the "LMS
Project Prioritization Form." The most significant changes are in the "Characterization Form"
which we're proposing be simplified considerably, especially for projects that don't yet have a
computed Benefit to Cost Ratio, the form is set up so that an approximate B:C is estimated.
■ Reviewed the instructions to update the current mitigation projects lists. Excel files with each
members initiatives will be distributed.
■ Discussed mitigation grants, noting that HMGP is post -disaster, FMA and SRL are funded
each year, and PDM is annual but extremely competitive (only 5 projects from Florida are
submitted by the State;, of those, at least one project is funded).
■ Recent "repetitive loss property" data from the NFIP were shared. In the County and towns, a
total of 912 properties, of which 289 currently are not insured by the NFIP. To be eligible for
FEMA grants, properties must have a federal flood insurance policy at the time the grant is
submitted.
■ A question about including individual properties on the Initiatives List was discussed. The
County, and municipalities, may submit individual properties to the Initiatives Lists.
However, only for projects submitted for the HMGP and PDM grant programs is the Working
Group required to indicate that the project is ranked, and consistent, with the LMS Goals.
■ Reviewed schedule to complete the LMS Update by the deadline. The LMS must be adopted
and approved by FEMA before mid -November. The major steps include:
1. Return comments on today's assignments and incorporate into the document.
2. Distribute the entire LMS with major changes shown in <track changes>; convene
a conference call of LMS WG members to concur with release of the update for
public review.
3. Place the Public review Draft on the County's webpage and send hardcopies to
the County & municipalities to make available for public review.
4. Concurrent with making it available for public review, send to DEM for review.
5. Select date of public meeting; two weeks in advance, and, publish availability of
the Public Review Draft in local papers and issue press release to that effect.
6. Hold public meeting; collect all comments from public review.
7. Respond to public and DEM comments; prepare final LMS.
8. Submit to FEMA for review (FEMA will review and may tentatively approve
pending final adoption by all jurisdictions).
9. County and municipalities will determine when to initiate formal process for
adoption (draft resolutions of adoption to be provided).
Comments by the public (Mr. John November and Mr. Mike Stazzone) included questions
about specific properties and eligibility under specific grant programs. Subsequent to the
LMS Working Group meeting County staff met with two citizens to address their
respective inquiries
THE FOLLOWING SUGGESTIONS for the Working Group as a whole are phrased as Actions
for the purpose of discussion. The Working Group discussed as follows:
1. The Working Group will review how at least two other LMS Working Groups manage
their regular business (e.g., written procedures / by-laws), determine if it is appropriate
for the Monroe LMS Working Group to develop operating procedures, and if determined
appropriate, develop such procedures. Operating procedures might address such items as
posting public notices of meetings, basis for not holding a required quarterly meeting,
basis for determining when a meeting may be held by conference call, location and
scheduling of meetings, composition of the project ranking subcommittee, submission of
updates to the LMS coordinator to compile for the State -required annual report, etc.
CONCLUSION: Agreed. The discussion also covered the need to address establishing a
procedure to handle many requests for private property owners. The Working Group will
talk with DEM and other counties to determine how they prioritize and process many
requests. Monroe County has a checklist that homeowners use to gather building -specific
information; this checklist will be reviewed and modified if appropriate.
2. The Working Group will do a comprehensive review of the websites of all local
jurisdictions (and nonprofit?) to identify content related to natural hazards (hurricane,
flood, tornado, drought, and wildfire. Recommend revisions to improvement content and
for consistency. Explore whether a single site would be more effective, with other
webpages linked to it. CONCLUSION: Do not call out as separate action because this is
part of ongoing work by all LMS members.
3. The Working Group will evaluate the Hazard Identification and Risk Assessments that
were prepared in at least three other counties and determine whether using different tools
would significantly improve the outcomes reflected in the 2010 Update, which have
continued to use the TAOS results from 1999. The 2010 Update will, per the National
Weather Service Office, Key West, Science and Operations Officer, Andrew Devanas,
reflect the fact that all future hurricane "risk assessment' information in this Chapter
will be based on the updated Sea, Lake, and Overland Surge from Hurricanes (SLOSH)
damage projections for the purpose of indentifying and prioritizing mitigation actions.
Page 1 of 2
From:
Ocathey-Jerry
To:
Ocathey-Jerry
Date:
7/13/2010 2:05:09 PM
Subject: LMS Government Working Group Members
LMS Working Group Partners,
We are nearing the end of the 2010 LMS Update process - which must be completed before
November in order to maintain eligibility for certain FEMA funding.
We have scheduled a conference call of the LMS Working Group government members for
Friday, July 23rd at 9:30 am. The call -in number is 213-289-0500 PIN 513989. The purpose
of the call is to discuss any substantive changes you may have to the Public Review Draft, and
to get concurrence for releasing the draft for public review. Please flan to join the call - we
must have at least four of the 6 local governments participate before we can take the next step.
Download the LMS by clicking here {NOTE -this file will be available for only one week -
please download it now!} http://`vww.floodmaps.net/efts/files/898294067_MG
LMS2010UpdatePublicRevie`vDraft071310.pdf
The Public Review Draft of the LMS shows the more significant new/revised texts in
underlined and red text. If you have minor, editorial comments, or substantive
comments please email them to Rebecca Quinn at rcquinn(a,earthlink.net. or FAX to (320) 514-
3513. She will compile the substantive comments for discussion on the 23rd. After the
Working Group approves making it available to the public, we will accept all changes to create a
"Clean" document. For public review, the LMS Update will be posted on the County's
webpage. Hardcopies will be placed in the public libraries and each city will receive a hardcopy
to have available to any citizen who wishes to view it in person.
The public meeting will be during the week of August 16. We will distribute the specifics when
we have them.
Thank you,
Jerry
Jerald L. O'Cathey, FPEM, CPM, MA
Emergency Management Administrator
Office: (305) 289-6012
Cell: (305) 797-1167
E-Mail: Ocathey-j erry(i�monroecounty-fl.gov
file: //C:\Documents and Settings\Administrator\Local Settings\Temp\5E2AB 105-DBA5-4... 8/29/2010
MINUTES
Local Mitigation Strategy Working Group Meeting
Conference Call
July 26, 2010
9:30AM
Representatives on the call:
Monroe County (Emergency Management &Growth Management)
Islamorada
Key Colony Beach
Layton
This call was originally scheduled for July 23; representatives not able to join the call because of
pending emergency situation: Marathon, Key West.
Workiniz Group Discussion consisted of the following:
■ The "Public Review Draft" was circulated to the LMS WG about a week before the call.
Two members identified minor changes.
■ There will be another chance to make changes, because (a) we'll consider comments
submitted by the public; and (b) we'll get comments from DEM.
■ The Public meeting is scheduled for August 16 at 3 :3 0pm at the Monroe County EOC in
Marathon. The presentation will be brief.
■ Press release will be posted on the County's webpage and distributed to news papers,
who will be asked to run the announcement.
■ Hardcopies will be provided to each government member to make available for public
comment.
■ Hardcopies will be sent to the five public libraries; Jerry O' Cathey has asked that they be
accessible to the public.
■ The Public Review Draft will be accessible online.
■ Next steps:
1. Print the hardcopies and deliver; post on the web
2. Send to DEM for review.
3. Hold public meeting and receive comments no later than August 20
4. Address comments; LMS concurrence
5. Deliver to DEM to transmit to FEMA for review
6. Provide government members the draft resolution for adoption; initiate adoption
process
7. Receive and address FEMA comments
8. LMS WG concurrence with changes
9. Adoption & final approval by FEMA
Page 1 of 1
From: Tezanos-Jose
To: Ron Sutton; marstonc(4 keywestcity.com; Haring -Skip; cherylcioffari; Watson, Lisa MARFR
Cc: Ocathey-Jerry; rcquinn@earthlink.net
Date: 9/28/2010 10:43:34 AM
Subject: FW: For LMS conf call - to be scheduled
Dear LMS Working Group:
We are coming to the end of the planning process to update the LMS by mid -November 2011.
The draft update you saw last was provided to DEM for review and we have received DEM's
comments. The attached PDF includes only the chapters that have suggested edits prepared to
address those comments. The edits are shown in <track changes>. The edits in Chapter 11
were made at the request of Cheryl Cioffari.
Please attend a brief conference call on Wednesday October 6th, 2010 at 9:30 a.m., DIAL -IN
1-213-289-0500, CODE 513989. The purpose of this call is to allow you to ask questions about
the proposed changes and to approve the changes for the purpose of forwarding the LMS to
FEMA for review. During the call we will also review the draft resolution of adoption, which
I'll send in a separate email.
Thank you,
Jose and Jerry
Please take a moment to complete our Customer Satisfaction Survey:
http://monroecofl.virtualtownhall.net/Pages/MonroeCoFL_WebDocs/css Your feedback is
important to us!
Please note: Florida has a very broad public records law. Most written communications to or from
the County regarding County business are public record, available to the public and media upon
request. Your e-mail communication may be subject to public disclosure.
file: //C:\Documents and Settings\Administrator\Local Settings\Temp\CABB589B-OB60-4... 9/28/2010
MINUTES
Local Mitigation Strategy Working Group Meeting
Conference Call
October 6, 2010
9:30AM
Representatives on the call:
Monroe County (Emergency Management &Growth Management)
Islamorada
Key Colony Beach
Key West
Layton
Working Group Discussion consisted of the following:
Prior to the conference call the government members were provided a copy of the LMS with all
proposed changes shown in <track changes> and a draft resolution of adoption.
■ The revisions prepared in response to comments and recommendations made by the
Florida Division of Emergency Management were explained. The revisions are
essentially non -substantive and do not change the priority hazards identified by the LMS.
■ A minor duplication of text was pointed out and corrected.
■ The members present concurred with the changes.
■ Pending receipt of one piece of information on average acreage of wildfires experienced
since 2000 and largest area affected since 2000, the LMS will be finalized and provided
to the Working Group for moving forward with adoption.
■ The draft resolution of adoption was reviewed and no questions were asked.
■ Regarding initiating adoption:
■ Monroe County will initiate the adoption process when the final LMS is provided
■ Key Colony Beach is scheduled to adopt on October 14
■ Layton is scheduled to adopt on November 4
■ Islamorada will initiate the adoption process when the final LMS is provided
■ Key West will parallel the County's adoption process
■ Marathon was not present
■ Next steps:
1. Finalize the LMS and deliver to the Working Group for adoption
2. Transmit the LMS to DEM to forward for FEMA review
3. Incorporate signed resolutions of adoption as they are received
4. Receive and address FEMA comments, if necessary before FEMA issues final
approval letter.
APPENDIX B: PUBLIC NOTICES
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From: Ocathey-Jena!
Date: 41' 15..."2 0 10 9 - 4 0:2 9 AM
S ii bj e c t -. Mo aro e C muity LM S Fees s Re I e a s e Request
Media partners,
It will be greatly appri--cliated if, tiblic service, you 1
�vOuid publish the follow mg amiouncement in Y. otir
re s,Pectl�'-e publications.
If th e re 1 s aliy ffirther in foiiiia tioll you would 11 lie t cl J�'� -e ''0 ard' g this request, i Strategy
ill or the Local Mitigation
' fevi�-11011 PrOce-ss, please contact iiie at the ent�losed vn'-illber or einI address.ai
W'e th'.i nk -vnii in a n c e- for you r c o ntlmi e d a tn -- i I,-.-r -. 1i e � e Ile c e '9- i-V ii-ledia releases.
.1 le s s a ge will r ea J -F
The Moni.oe Coitnty D,-)cal Mitlaatioii Strategy Wiarking CTroiip will be convening 9t thfollowilig locatioll. date.
and tinae, ill order- tO I-e- 41 e- W L fo r uF dat e piiij) o s e s. our F E MA rrehired. 2 010 L-N -1 S Re vi � 1 o n:
Loc.afioii- Marathon Regional Govei-iiiiient Celiter
2 7 9 8 0 v en ea s H i ghv-ay
Secoild Floor, EEO"
Marathon, FL
Date: Moliday. April 2 6, 2010
Time: 9:30 AM to 12 Noon
As iioted. this iiieetin!a will be held for the prilliary pllrpore of address1:i,-----r tLe i:fmaining., required, steps for the
L M S update pro c ess. Follow. ink receipt of tde requested in fol-iiia tioll. a -public rev 1 ew " LIDS draft -ill be create
d
to b e fo How ect by a me et iii is to solicit i npia from the ptib li c at I arge.
For ffirth.-Ii: infol-i'liatioli. please colitzact Jerry O'Cathey. Administrator. Monroe Comity Emergeiicy Management
I-
Dep,gi:nilent, at (305) 289-6012 or. Oc.,�itlicy-er lLi T�;.�-iiionroecoiiiity-fl.gov.
PRESS RELEASE
For immediate release:
Re end August 10, 2010
For more information, contact:.
Jeroid L. O'Cathey
49063 rd Street, Ocecin, Ste. #150
Marathon, FL.
Office: (305) 289-6012
E-rnoil: Ocathey-jerrVOmorirceco-unty-ft..qov
Public Meetin g to Review and Comment on Draft Local Miffigation Strategy
MARATHON, FL —The Monroe County Local Mitigation Strategy Working Group invites citizens and
residents to attend a public meeting to review and comment on the draft Local Mitigation Strategy. The
meeting will be on August 16, 2010, 3:30 p.m. to 5 p.m., at Marathon Board of County Commissioners
co n f e re n ce room located bayside, at the Region a I Govern rn e n t sae me r, 2 798 Overseas H ighway,
Marathon, Florida.
The draft strategy is required by the State and the Federal Emergency N1 a n age rn e nt Arena , It is am
update to the strategy that was adol3ted it) 2005. The �JrategV vfas prepared by a vforking crrIDU P of
County agencies and officials from Islarnocada, Key Colony Geach, Key West, Layton, and Marathon that
are involved in various facets of hazard m itigation, cl isaster resiDonse a nd recovery operati Ons. Copies of
the draft document will be available f[Dr revi e%,:- at t h e M 0 rl FiDe. C_ ou n ty E rne rge n cV M a n age m ent
Departmentlocated at 490 63 rd Street, Oc ea n. Su ite #150, M a rat h on, a n d i n t h e city ha I I o r
administrative building of each city. C- o 13 iies ve- i I I also be placed i ri the C C1 Li ntV's five p u 1) 1 ic libraries, It
may also be viewed on the Courat y'� hornepage at
http://monroecefl.virtualto�6inlea ll.iiet/Pages`/MoriroeCoFL — Emergency/LMS, from this poinro t, scll
dovin to LMS Toolbox and select the last itemand look under LMS 2010 Update Public Review Craft
072610.
Please submit comments bv A,igList 20, 2010. C-ornments may be submitted by FAX to RC10,Consulting at
(320) 514-3513 or, by sending at) e-mail to. at RebeCi_� (__. QL]i[M �t r,cl--Il-l'll,-i@ear-thlink.iiet.
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Revising the
Local Mitigation Strategy
For 2010
Why Mitigation Planning?
• Required by State rules
• Build on federal and State support
• Reduce impacts of disasters
M" • Prepare now for future
disasters
air�Y
• Qualify for programs
and funding
Public Meeting Agenda
• Planning Process
• Identified Hazards
• Proposed Mitigation Actions
• Opportunity to Comment
What is Mitigation?
• Actions taken to reduce or
eliminate the long-term risk to life
and property from hazards.
• Actions intended to reduce the
need for emergency response — as
opposed to improving the ability to
respond.
LMS Work Group Members
• Work Group includes:
— Monroe County
— Key West, Key Colony Beach, Layton,
Marathon and Islamorada
— Electric utilities
— FL Keys Aqueduct Authority
— Several non-profit organizations
1
The Planning Process
• Identify hazards
• Identify at -risk people & property
• Evaluate what we're doing now
to reduce future damage
• Consider alternatives — what else
can be done?
• Get input from citizens
Uncounted Costs of Disasters
• "Little" events don't qualify for
federal assistance
• Home and business disaster
grants don't cover all costs
• Lost tourism income
• Environmental damage
Notable Hazard Events (48 yrs)
2008: Tropical Storm Fay
2005: Hurricanes Dennis, Katrina, Wilma
2004: TS Bonnie, Hurricanes Charley, Ivan
2003: Severe Cold Weather
2000: Storms & Flooding
1998: Hurricane Georges & TS Mitch
1998: Fire Hazard
1998: Tornadoes & Flooding
1992: Hurricane Andrew
1972: Tropical Storm Agnes
1965: Hurricane Betsy
1960: Hurricane Donna
Public Costs of Big Disasters
• Local government covers
too . i up to 25% of costs to
r . clean-up, repair damage,
and overtime
• County & City employees
tied up by recovery
• Federal & state taxes
help pay for recovery
Bigdir;4#k+r4 LFedr divawfa
Fvdoral 0 ! c:.3
Monroe/Keys Hazards
• Area -wide:
—Wind (Hurricane, Tornado)
—Surge Flooding
• Localized Impacts:
—Drainage problems
—Wildland fire
For Each Hazard ...
• We look at what is being done now
to reduce future damage — and
what else might we do?
Wind Generated Missiles
i r
it
t � i
Flood Hazards
M9
• What do we know about flood -prone
people and property?
—The majority of buildings in the Keys are
in the mapped floodplain
—About 36,700 are covered by Federal
flood insurance
—Worst-case storm surge would likely
affect nearly every part of the Keys
Wind Hazards
• Every building in the Keys is
exposed to high winds
• Code requirements for new
buildings:
— Requires design for 159 mph wind speed
— Impact resistant windows & doors
— Manufactured home tie -downs
Example of Wind Mitigation
• Install window protection (shutters,
barriers, impact resistant assemblies
• Improve "load path" (roof -building -
foundation)
• Anchor roof -mounted equipment
Surge Affects Everyone
3
Flood Hazards
• Monroe County & Cities administer
floodplain management regulations
—New construction & major
improvements/additions must meet code
—Elevation above predicted flood level
—Special requirements for enclosures
Examples of Flood Mitigation
• Elevate older homes, or build new 2nd
floor and convert ground level
• Minor measures (relocate utilities,
change use of flood -prone space,
replace with flood resistant materials)
• Retrofit floodproof non-residential (not V
Zone)
• Stormwater/drainage improvements
LIVIS Goals
1. Preservation of sustainability of life,
health, safety and welfare.
2. Preservation of infrastructure, including
power, water, sewer and
communications.
3. Maintenance and protection of roads
and bridges, including traffic signals
and street signs.
Flood Insurance, Mitigation & You
Increased Cost of Compliance (ICC)
USE I F I I ICl'' CA A I1A 10:
W.
Elevate an your loP
. I Demolish rind rebuild
Fhe ho rse
Ve, the house to
high gmu;nd
• Triggered by
Substantial
Damage (50%)
• $30,000 is a lot of
money
• You are already
paying for this
coverage
LIVIS Goals (continued)
4. Protection of critical facilities, including
public schools and public buildings.
5. Preservation of property and assets.
6. Preservation of economy during and
after disaster, including business
viability.
7. Preservation and protection of the
environment, including natural and
historic resources.
Proposed Work Group Initiatives
• Work Group Initiatives:
1. Establish LMS Working Group
Procedures
2. Evaluate Hazard Identification and
Risk Assessment Tools (plan for 2015
update)
3. Continue to Verify and Improve
Repetitive Flood Loss Data
List of Initiatives
• Certain Federal funding sources
require projects to be "consistent"
with the LMS
• Presence on the list does not
guarantee funding
Wrap Up
• Questions? Comments?
• Submit by August 20
— Leave with us tonight
— E-mail: rcquinn _earthlink.net
— FAX: (320) 514-3513
List of Initiatives
• LMS participants submit possible
projects
• LMS Work Group maintains list
• Many initiatives deal with public
buildings, non-profit buildings
• Some initiatives anticipate projects
for private buildings
Finishing The Plan
• What comes next:
—Consider public comments
—Seek State & FEMA approval
—Finalize the LMS
— County and municipalities adopt the
LMS before mid -November
Comments & Questions
■ Public Review Draft copies are
available for review
■ Submit comments by August 20,
2010
2010 Local Mitigation Strategy Update
Comments Due August 20, 2010
PLEASE LET US KNOW YOUR THOUGHTS AND COMMENTS
Thank you for taking the time to join us to review the Local Mitigation Strategy (2010 Update).
We believe the plan not only satisfies state and federal requirements, but it will help us achieve
goals while reducing future damage.
Copies of the draft document are available for review at the Monroe County Emergency
Management Department, located at 490 63rd Street, Ocean, Suite # 150, Marathon, and in the
city hall or administrative building of each city. Copies are also available in the County's five
public libraries. It may also be viewed on the County's homepage at
http://monroecofl.virtualtownhall.net/Pages/MonroeCoFL Emergency/LMS, from this point,
scroll down to LMS Toolbox and select the last item and look under LMS 2010 Update Public
Review Draft 072610.
(attach additional pages if needed)
OPTIONAL:
Name:
Address:
Phone # and/or email:
EMAIL COMMENTS TO: rcquinn(iOarthlink.net
FAX TO: 320-514-3513
MAIL TO: Monroe LMS c/o RCQuinn
104 4t" St NE #2
Charlottesville, VA 2290
Monroe County & Municipalities: 2010 LMS (Comment Form)
APPENDIX C: RESOLUTIONS OF ADOPTIONS
Monroe County (adopted , 2011)
Islamorada Village of Islands (adopted , 2010)
Key Colony Beach (adopted October 14, 2010)
Key West (adopted , 2011)
Layton (adopted November 4, 2010)
Marathon (adopted November 9, 2010)
A RESOLUTION 4F THE CITY OF KEY COLONY BEACH, FLORIDA,
TO ADOPT THE 2010 UPDATE OF THE LOCAL MITIGATION
STRATEGY AS REQUIRED BY STATE AND FEDERAL REGULATIONS
TO QUALIFY FOR CERTAIN MITIGATION GRANT FUNDING
WHEREAS, the City of Key Colony Beach adopted a Local Mitigation Strategy LMS
in 1999 and an update of the LMS in Zoo ; and
WHEREAS, Monroe County and the cities of Key West, Key Colony Beach, Layton,
lslarnorada and Marathon have experienced hurricanes and other natural hazard events that pose
risk to public health and safety and which may cause serious property damage; and
WHEREAS,, the Robert T. Stafford Disaster Relief and Emergency Assistance Act as
amended by the Disaster Mitigation Act of 20005 as amended, require local jurisdictions to adopt
mitigation plans in order to be eligible for post -disaster and pre -disaster grants to implement
certain mitigation projects; and
WHEREAS, the National Flood Insurance Reform. Act of 1994 and the Flood Insurance
Reform. Act of 2004 require local jurisdictions to adopt a mitigation plan in order to be eligible
for grants to implement certain flood mitigation projects, and
WHEREAS, pursuant to Florida Administrative Code Section G-22, the County must
have a formal LMS working Group and the LMS Working Group must review and update the
LMS every five years in order to maintain eligibility it for mitigation grant programs; and
WHEREAS, the 'LMS Forking Group composed of representatives of Monroe County,
the cities of Key Nest, Key Colony Beach, Layton, Islamorada and Marathon, and a number of
nonprofit organizations haire reviewed and updated the LIVES; and
WHEREAS, the 2010 LMS Update identifies mitigation initiatives that will improve the
process used to identify and manage mitigation initiatives intended to minimize and reduce
safety threats and damage to private and pudic property; and
WHEREAS, the draft 2010 LMS Update was made available to the public and a public
meeting was held by the Local Mitigation Strategy Working Group in Marathon, Florida, on
August 1 , 2010, to solicit questions and comments and to present the LMS; and
Resolution 2010 — 09 LMS date Pa
WHEREAS, the draft 2010 LMS Update has been submitted to the Florida Division of
Emergency Management and FEMA for final review; final approval by F MA will be withheld
until the LMS is adopted.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COMMISSION of THE
CITY of KEY COLONY BEACH, FLORIDA, that:
1. The 2010 LMS Update is adopted as an official play. of the City of Key Colony Beach,
Florida.
2. The City staff is directed to report at the earliest possible meeting to the City Commission
when final State and FEMA eo=eats are received and whether such comments require
significant modification and the proposed changes that staff reco=ends be incorporated
into the 20 10 LIDS Update to address those comments.
. Any initiatives identified in the LMS shall be subject to, and contingent upon, budget
approval, if required, which shall be at the discretion of the City Commission, and this
resolution shall not be interpreted so as to mandate any such appropriations.
. The City staff is directed to coordinate with appropriate County departments and to
perfonn the Dual report requirements set forth in the Florida Administrative Code
Chapter G-22.
The Clerk is directed to mail a copy of this resolution to the Monroe County Emergency
Management LMS Administrator, 490 63rd Street, ocean, Suite 150, Marathon, FL 33050.
This Resolution shall become effective upon the date of its adoption herein.
-PASSED AND ADOPTED by the City Commission of the City of Key Colony Beach,
Florida at its regular meeting held on October 14, 2010.
Ronald A. Sutton, Mayor
.Attest: Vickie Z Bollinger City Clerk
Emergency Management
RESOLUTION NO. I -11- 1
A RESOLUTION OF THE CITY COUNCIL OF THE
CITY OF LAYTON, FLORIDA, ADOPTING A REVISED
LOCAL MITIGATION STRATEGY
WHEREAS, the City of Layton adopted a Local Mitigation Strategy LMS in .dune of
2 O ; and
WHEREAS, Monroe County and the cities of Key Nest, Key Colony reach, Layton,
Isla orada and Marathon have experienced hurricanes and other natural hazard events that pose
nsl s to public health and safety and which may cause serious property damage; and
NVHEREAS, the Robert T. Stafford Disaster Relief and Emergency Assistance Act as
amended by the Disaster Mitigation Act of 20 require local jurisdictions to adopt a mitigation
plan in order to be eligible for post -disaster and pre -disaster grants to implement certain
mitigation projects; and
WHEREAS, the National Flood Insurance Reform Act of 1994 and the Flood Insurance
Reform .Act of 2004 require local jurisdictions to adopt a mitigation plan in order to be eligible
for grants to implement certain flood mitigation projects; and
WHEREAS, the planning process required by the Mate of Florida and the Federal
Emergency Management Agency offers the opportanity to consider natural hazards and risks,
and to identify mitigation actions to reduce Ritme *IMP
acts of such hazards- and
WHEREAS, the Mate of Flo da has provided federal mitigation funds to support the
development of the Local Mitigation Strategy; and
V�HEREAS, the 2005 Monroe County LMS has been revised by the LMS Work Group
composed of representatives of Monroe County, the cities of Key west, Key Colony Beach,
Layton, Islamorada and Marathon, and a number of nonprofit organizations; and
"ERAS, the revised LMS identifies mitigation initiatives that will improve the
process used to identify and manage mitigation initiatives intended to inh e and reduce
safety threats and damage to private and public property; and
WHEREAS, the LIMB draft revisions was made available to the public M4 July 2 0 1.0 and
a public hearing was held on November 04, 20 10 to solicit questions and comments and t
present the LMS.
WHEREAS, the County' s ability to access hazard mitigation grant fonds is limited until
the revised LMS is adopted; and
WHEREAS, the revised LMS has been submitted to the State and FEMA for final
review; final approval by the State and FEMA will be withheld until the LMS is adopted.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY
OF LAYT N IN MONROE COUNTY, FLORIDA, that:
Emergency Management
l . The Office of Emergency Management is directed to report to the City Council of
the City of Layton when final State and F MA comments are received and
whether such comments require s grtifica .t modification xcation of the revised LMS.
2. Any initiative identified in the LMS shall he subject to and contingent upon
budget approval, if required, which shall be at the discretion of the City council o
the City of Layton, and this resolution shall not he interpreted so as to mandate
any such appropriations.
3. The Office of Emergency Management is directed to coordinate with appropriate
City of Layton departments and to perform the annual report requirements set
forth in the Florida Administrative Code Chapter -22.
The City Clerk is directed to mail copies of this resolution to the Florida Department of
Community Affairs, the Federal Emergency Management gement Agency, the Mayor of Monroe County
and the Mayors of municipalities within Monroe County.
This Resolution shall become effective upon the date of its adoption herein.
PASSED AND ADOPTED by the City Council of the City of Layton, Monroe County,
Floe da at a regular meeting of said Council held on November o, 2010.
Seat I - Councilman John Cromartie YES
Seat 2- Councilman Snow YES
Seat -- vice Mayor Dilley YES
Seat - Councilwoman Katie Scott YES
Seat 5- Councilman Philip Porter Absent
B
i
are Anderson, Mayor �.
On Behalf of the Council
ATTEST: T :
Mari ie. arment r, City Clerk
Sponsored : Hernstadt
CITY OF MARATHON, A` HON, IDA
RESOLUTION 2 I -I1
RESOLUTION OF THE CITY COUNCIL OF THE CITY OF MARATHON,
FLORIDA ADOPTING A MULTI -JURISDICTIONAL LOCAL
MITIGATION STRATEGY PLAN AS REQUIRED BY TAE FLORIDA
DEPARTMENT OF COMMUNITY AFFAIRS AND THE FEDERAL
EMERG NCY MANAGEMENT AGENCY IN ORDER. TO BE ELIGIBLE
FOR CERTAIN STATE T AND FE DERAL ASSISTANCE; AND PROVIDING
OR AN EFFECTIVE DATE
WHEREAS, Monroe County and the cities of Key West, Key Colony Beach, Layton,
Islamorada, and Marathon have experienced hurricanes and other natural hazard everts that pose
risks to public health and safety and which may cause serious property damage; and
WHEREAS, the Robert T, Stafford ord Disaster Relief and Emergency Assistance Act, as
amended by the Disaster Mitigation Act of 2000, require local jurisdictions to adopt a mitigation
plan it order to be eligible for pre- disaster and post -disaster grants to implement certain mitigatio
projects; and
WHEREAS, the National Mood Insurance Reform Act of 1994 and the Flood Insurance
Reform Act of 2004require local jurisdictions to adopt a mitigation plan in order to be eligible for
grants to implement certain flood mitigation projects; and
WHEREAS, the planning process required by the State of Florida and the Federal
Emergency Management Agency offers the opportunity to consider natural hazards and risks, and
identify mitigation actions to reduce future impacts of such hazards; and
WHEREAS, the State of Florida has provided Federal Mitigation funds to support
development of the Local Mitigation Strategy (the "LMS"'); and
WHERE, AS, the 2005 Monroe County LMS has been revised by the LMS Work Group
composed of representatives of Monroe County, the cities of Key West, Key Oolong Beach, Layton,
islamorada, and Marathon, and a number of nonprofit organization; and
WHEREAS, the 2010 LMS identifies mitigation initiatives that will help minimize and
reduce safety greats and damage to private and public buildings; and
WHEREAS, a pub is meeting was held on August 16, 20 10 to present the LMS and to
solicit questions and comments concerning its contents.
4
W, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY.
OF MARATHON, FLORIDA, THAT:
Section 1, The above recitals are true hd correct and are incorporated herein
Section 2. The 20 10 Mulfi-j urisd iction LMS Flan, a copy ofwhich is ached as ExhiW
is. her6y approved and adop: y the City,
Section 3. Any initiative -ide ified in the LMS Plan shall be subject to and contingent
upon budget .approval, if funding is required, and this resolution may n.0t be interpreted so as to
niandate a any such appropriatiofts.
Section 4. The City Phi gear or h is designee is directed to coordi.nateit -other offices
and entities. and shall periodically 'poet. on the ac ivjties, accomplishments,. and progress i
-i a l r r ti e MS'Plan, a ..shall prepare a . annual. update. .the. MS ' i , s .re � it d y- ie
Florida Department of C nity Affairs.
,.
Section 5. This -rmlutio -shall take effect immediately upon its adoption.
PASSED AND APPROVEDTHE CITY COUNCIL. OF THE CITY OF
MARATHON, . THIS 9'h' DAY OV NOVEMBER, 2.
THE CITY OF MARATHON, FLORIDA
Gins Snead, Mayor
AYES:
NOES:
-ABSENT:
ABSTAIN:
AT'ATTB S :
Diane Clavier, city clerk
(City seat)
APPROVED AS 4 FqRM AND LEG LITY FOR THE USE
AND RELIANC U 1 E CITY OF ARATHON, FLORIDA ONLY:
City Attorney
APPENDIX D: NWS Hurricane Wilma in the Florida
Keys
Hurricane Wilma in the Florida Keys
KENNARD "CHIP" KASPER
National Oceanic and Atmospheric Administration (NOAA)/National Weather Service (NWS) Weather Forecast Office (WFO) Key West, Florida
1. Introduction
Hurricane Wilma was the 25th tropical cyclone and 12th hurricane of the hyperactive 2005
season, and the fifth tropical cyclone in as many months to have a significant impact on the
Florida Keys. Hurricane Wilma moved across the extreme southeastern Gulf of Mexico and
southern Florida peninsula during the morning hours of Monday, 24 October 2005, bringing
hurricane -force winds to the Florida Keys and the highest storm surge observed in the Keys since
Hurricane Betsy, on 8 September 1965. Figure 1 shows inundation of North Roosevelt
Boulevard in Key West near the time of peak storm tides. The core of category -three Hurricane
Wilma passed just north of the Florida Keys (Fig. 2), sparing the Keys island chain from the
highest winds and heaviest rain. However, the ocean surrounding the Keys archipelago rose
rapidly on the morning of the 24th, inundating many island communities, and causing millions of
dollars in property damage.
f�k t'Aff
Fig. 1. North Roosevelt Boulevard, Key West, FL, inundated by a storm tide of near 6 feet (ft) above mean sea
level, at approximately 0900 Eastern Daylight Time (EDT), 24 October 2005. The boulevard runs east
to west, parallel to the line of coconut palm trees, on the north side of Key West (photograph by Mike Hentz of
The Key West Citizen).
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Fig. 2. Hurricane Wilma's track across the southeastern Gulf of Mexico and south Florida. The lighter red track
indicates Saffir/Simpson category two intensity (maximum sustained winds 83-95 knots), and the darker red track
indicates Saffir/Simpson category three intensity (maximum sustained winds 96-113 knots). Hurricane Wilma made
landfall near Cape Romano, Florida as a Saffir/Simpson category three hurricane, with maximum sustained winds
in the hurricane core near 105 knots (Image courtesy of the NOAA Coastal Services Center).
2. Storm History
Hurricane Wilma grew from a rather nondescript area of surface low pressure that was first
evident near Jamaica on 14 October. The area of low pressure became sufficiently organized to
be classified as a tropical depression by 1400 EDT, 15 October. Slow strengthening ensued over
the next day and a half, and the depression was upgraded to Tropical Storm Wilma at 0200 EDT,
17 October. Further strengthening occurred, and the storm was upgraded to a hurricane at 0800
EDT, 18 October. After several days of slow, meandering motion over the western Caribbean
Sea southwest of Jamaica, the system began moving northwestward.
Explosive intensification took place late on 18 October, with Wilma transforming from a 60-knot
tropical storm to a 150-knot category five hurricane in less than 24 hours. A minimum central
pressure of 882 millibars (26.04 inches of mercury) was measured by reconnaissance aircraft at
0800 EDT, 19 October over the northwestern Caribbean Sea. This surface pressure is the lowest
ever observed in the Atlantic Basin, breaking the previous record set by Hurricane Gilbert (888
millibars or 26.22 inches of mercury) in 1988.
Hurricane Wilma moved northwestward over the next few days, weakening slightly before
making landfall as a category four hurricane around 1700 EDT, 21 October at Cozumel, Mexico.
The storm slowed down and spent over a day moving across the extreme northeastern portion of
the Yucatan peninsula, producing torrential rains and extensive damage. Finally, a weakened
(category one) Hurricane Wilma emerged off the north coast of the Yucatan peninsula around
2000 EDT, 22 October. Wilma then turned northeast, accelerated, and intensified as it moved
across the southeastern Gulf of Mexico toward the southern Florida peninsula. Figure 3 is a
radar image of Hurricane Wilma at 0219 EDT, 24 October from the Key West (KBYX) Weather
Surveillance Radar 1988-Doppler (WSR-88D). Note the large eye (approximately 50-60
nautical miles in diameter). Hurricane Wilma made landfall as a category three hurricane near
Cape Romano in Collier County on the southwestern coast of the Florida peninsula at 0630 EDT,
24 October. Figure 4 shows the complete track of Hurricane Wilma.
Fig. 3. KBYX WSR-88D composite reflectivity image of Hurricane Wilma at 0219 EDT, 24 October 2007.
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Hurricane Wilma
15-25 October 2005
Hurricane
- - - - - Tropical Storm
--------- Tropical Dep.
Extratropical
- - - - - Subtr. Storm
--------- Subtr. Dep.
- - - Low / Wave
• 00 UTC Pos/Date
O 12 UTC Position
PPP Min. press (mb)
-85 -80 -75 -70 -65 -60 -55 -50 -45
Fig. 4. Best track positions for Hurricane Wilma, 15-26 October 2005 (Pasch et al. 2006)
3. Evacuations, Local Preparedness Actions
A local state of emergency was declared by Monroe County Emergency Management officials at
0800 EDT, Wednesday, 19 October, followed by a mandatory evacuation order for all Florida
Keys visitors and non-residents at 1200 EDT, due to the threat posed by Hurricane Wilma.
During the next couple of days, Monroe County Emergency Management officials encouraged
all Florida Keys residents to evacuate the island chain voluntarily. At 1100 EDT, Saturday, 22
October, a Hurricane Watch was issued for all of the Florida Keys and adjacent waters, including
the Dry Tortugas, and a mandatory, phased evacuation of residents commenced at 1200 EDT.
The Hurricane Watch was upgraded to a Hurricane Warning at 2300 EDT, 22 October.
4. Meteorological Observations
The weather across the Florida Keys and adjoining waters during the daylight hours on Sunday,
23 October was characterized by increasing high cloudiness and scattered showers. Fresh to
strong southeast breezes of 20-3 0 knots (kt) prevailed over the lower Florida Keys and adjacent
waters, whereas moderate to fresh breezes of 10-20 kt prevailed over the middle and upper
Florida Keys and adjacent waters. By 1100 EDT, Hurricane Wilma was centered north of the
Yucatan Channel, and was moving northeastward at 7 kt. Maximum sustained winds were 85 kt
with gusts to 105 kt. Figure 5 is a satellite image of Hurricane Wilma taken at 1215 EDT by the
Moderate Resolution Imaging Spectroradiometer (MODIS) instrument aboard the Terra satellite.
An outer spiral rainband can be seen approaching the lower Florida Keys from the southwest. A
long-lived mesocyclonic waterspout developed a few hours later from a convective cell
associated with this rainband, and moved within a few miles west of Key West around 1600
EDT.
Winds began to exceed tropical storm force (34 kt) in squalls over portions of the lower Florida
Keys shortly after 1600 EDT, 23 October. Sustained tropical storm -force winds developed from
west to east over the entire Keys archipelago and surrounding waters between 1900 EDT, 23
October and 0100 EDT, 24 October. Hurricane -force winds then developed from west to east
across the Keys island chain between 0100-0600 EDT, 24 October, and ended, again from west
to east across the island chain, between 0700-1200 EDT.
a. Wind
Peak recorded wind speeds across the Florida Keys during Hurricane Wilma varied according to
instrument location, exposure, height, and averaging period (see Table 1). In addition, several
instrument systems failed before or during the period of highest winds. Figure 6 is a wind
analysis graphic from the NOAA/Atlantic Oceanographic and Meteorological Laboratory
(AOML) Hurricane Research Division (HRD), valid at 1030 UTC (0630 EDT), 24 October.
This analysis shows sustained (one -minute average), 10-meter wind speeds of 60-80 kt across the
Florida Keys near the time of landfall (on the southwest Florida coast) and closest approach of
the hurricane core to most of the Keys. The HRD analysis was produced by compositing all
available observations relative to the storm center, including Air Force and NOAA aircraft,
ships, buoys, Coastal -Marine Automated Network (C-MAN) platforms, and surface airways.
(Powell et al., 1998). All data were quality controlled and then processed to conform to a
common framework for height, exposure, and averaging period. Therefore, the HRD hurricane
wind analysis is an excellent product for attaining a realistic, comprehensive view of the surface
wind field across the Florida Keys during Hurricane Wilma.
b. Atmospheric Pressure
Minimum mean sea level (MSL) pressure reports were unavailable from the Automated Surface
Observing System (ASOS) platforms at Key West International Airport (KEYW), Boca Chica
Naval Air Station (KNQX), and Florida Keys Marathon Airport (KMTH), due to storm surge
flooding -induced communications failures. Fortunately, however, the National Ocean Service
(NOS) tide gages at Key West Harbor and Vaca Cut remained operational throughout the storm,
and provided minimum sea level pressure readings of 977.2 millibars (28.86 inches of mercury;
0418 EDT) and 983.0 millbars (29.03 inches of mercury; 0524 EDT), respectively, on 24
October. In addition, minimum MSL pressure readings of 983.4 millibars (29.04 inches of
mercury; 0600 EDT), 982.2 millibars (29.00 inches of mercury; 0700 EDT), and 982.3 millibars
(29.01 inches of mercury; 0800 EDT) were recorded at the C-MAN platforms at Sombrero Key,
Long Key, and Molasses Reef, respectively.
c. Rainfall
Storm total rainfall was quite low for a tropical cyclone across the Florida Keys, averaging only
1-2 inches. The low rainfall amounts can primarily be attributed to the rapid acceleration of
Hurricane Wilma as it approached Florida. Much larger storm total rainfall amounts were
Fig. 5. Satellite image of Hurricane Wilma at 1215 EDT, 23 October 2005. Approximate area of tropical storm -
force winds (one -minute average, 10-meter wind speeds greater than or equal to 34 kt) shaded in red; an outer spiral
rainband denoted by bold yellow line east of storm center. Image courtesy of MODIS Rapid Response Project at
NASA/GSFC.
observed over central Florida (see Fig. 7) where rich tropical moisture from Wilma interacted
with a frontal system.
TABLE 1. Surface wind observations in the Florida Keys, 24 October 2005.
Location Source
Peak Wind Date/Time
Peak Gust
Date/Time
(kt) (EDT)
(kt)
(EDT)
Garden Key, Dry Tortugas National Park Service a
116
24/0115
Key West Harbor NOS Tide Gage b
51 c 24/0436
74
24/0436
Key West International Airport NWS ASOS d
62 e 24/0216 f
729
24/0216
Cudjoe Key Bela Zeky h
107
24/0513
Sombrero Key NWS C-MAN platform'
76' 24/0540
91 9
24/0522
Duck Key William A. Wagner, Jr. k
75
Unknown
Long Key NWS C-MAN platform'
57' 24/0650
769
24/0527
Upper Matecumbe Key Islamorada Fire Rescue Station m
94
24/0526
Molasses Reef NWS C-MAN platform'
66' 24/0820
819
24/0834
a Anemometer height 75 ft above MSL, located at Fort Jefferson National Monument
b Anemometer height 21 ft above MSL
6-min average
d Anemometer height 44 ft above ground level (AGL)
e 2-min average
f Communication line to ASOS failed before maximum winds
9 5-s average
h Anemometer (Davis Vantage Pro 2) height 25 ft AGL
1 Anemometer height 159 ft above MSL
' 10-min average
k Anemometer height 30 ft AGL
1 Anemometer height 23 ft above MSL
m Anemometer (R.M. Young Model 05103 Wind Monitor) height 50 ft AGL
n Anemometer height 52 ft above MSL
Hurricane Wilma 10 30 U T 4 0 CT 2 005
Max I -nihi smait1 ied surface %inn s (kt) for marhie exposure
Valid. for marine exposure over hater, open (err-ain exposures over land
Azidly2ils bwwd on CNIAN from V7120 - 1029zg N1001RED BUOY frum U729 - 1020 Zi
GCES-SVVIR from 1002 - )(102 z; VCMP-TO�'NTR- LD-TO froin 0731 - 1024 zP
A!;{ ) So - AFIJ) - T() frouk Cr727 - 1029 7t- G 1ISSON DF. - 1sFC Evora 07531D - 1018 7.; RES adj. to surface from ine-an height 282V m frum U725 - 1V2S z,P QSCAT frum 1010 - I U 1:2
Gl?!SSDND E'.-�Sl 150 from 0750 - I (11 � z6p GAk-1-LD-T0 from 0729 - 14)2!) z;
CTSS0ND P.-N.1 BI- FrOnl 0 T730 - 101 S
1030 z position inter la Led from 1014 Vurtex-1, ms1p = 95 1.0 mb
P
5 j —
3Ci
Wr 40
-LL
11
VIP
%
U 0
b i I P i \i i i i 1 11 11 Lll---ell 11 1 1 V1 I F
Obscrw txl Max._ 5 ur[wcu Wind: 100 kLs, YJ run SE of venier bimed pan 1025z AFRES :sfc measurtanuni
Aridj�-ZLXJL Ntax. Wind; IOU kts;, 4U nm SE of cf--ntcr
Experimental ru-scarch PrOlILICluf; N020i I AOML i I lurric-une IRcsCUrch Divisl'031
Fig. 6. Experimental surface wind analysis from NOAA/Hurricane Research Division, 0630 EDT, 24 October
2005.
H rrica e ilm
Oct 389 si?4120 5 r +
5
10 � Track
Maxim 13.26"
Ken edy Spa e Center, FL
10+
�w
Op
7+
t
so ! \eo
Fig. 7. Hurricane Wilma storm total rainfall map (22-24 October 2005), constructed using data provided by NWS
River Forecast Centers and WFOs. (Image courtesy of NOAA/NWS/Hydrometeorological Prediction Center).
5. Storm Surge
Real-time observations and post -storm high water mark surveys throughout the Florida Keys
revealed two storm surge events associated with the passage of Hurricane Wilma (FEMA 2006).
The first event occurred mainly along southern shores of the Keys as Hurricane Wilma
approached the island chain from the southwest. The second event occurred with the onset of
westerly winds as Hurricane Wilma made landfall along the southwestern coast of the Florida
peninsula. The second event was more severe, and resulted in the worst storm surge inundation
throughout most of the Florida Keys since Hurricane Betsy on 8 September 1965.
a. First storm surge event
Water levels along the southern and western shores of the lower Florida Keys first rose
significantly above astronomically predicted values around 2000 EDT (Sunday evening), 23
October. Figure 8 is a water level plot from a tide gage located on the west side of Key West.
Coastal flooding in Key West typically commences when water levels reach 3 ft above MSL.
This threshold was met just after 0100 EDT according to Figure 8. Indeed, WFO Key West
received its first report of coastal flooding at 0131 EDT (City of Key West officials reported
flooding of South Roosevelt and Atlantic Boulevards on the south side of Key West). By 0230
EDT, Key West International Airport was flooded, with the runway complex inundated and the
airport terminal flooded with six inches of salt water. At 0252 EDT, communications to the
KEYW ASOS platform (located on the east end of the airport runway complex) were rendered
inoperable due to storm surge flooding. At 0301 EDT, Flagler Avenue east of First Street was
flooded with 1-2 ft of salt water. Parking lots on the southeast side of Key West were flooded
with 2-3 ft of salt water. Some homes on the south side of Stock Island, as well as the
intersection at U.S. Highway 1 and Cross Street, were flooded with up to 4 ft of water. At 0330
EDT, a report was received indicating that the NOAA Weather Radio transmitter on Sugarloaf
Key had ceased operation (it was later discovered that the generator fuel tank floated away). At
0526 EDT, Sea Oats Beach at mile marker 74 was inundated. Canals throughout the lower
Florida Keys began overflowing between 0500 and 0600 EDT.
NOAA/ OS/CO-OPS
Verified
Water Level vs. Predicted Plot
8724580 Key Westa FL
from
2005/10/23 - 2005/10/24
5.000
4.000
co
14t
3.000
� W
X
2.000
4
+
�
1.000
+
k:
0.000
-1.000
10/23 10/23
10/23
10/24 10/24 10/24 10/25
00:00 08:00
16:00
00:00 08:00 16:00 00:00
Date/Time (Local)
Predicted AIL
(Obs-Fr ed) Observed WL
Fig. 8. Plot of predicted (blue), observed (red), and difference between observed and predicted (green) water level
in feet relative to MSL from 0000 EDT, 23 October 2005 to 2400 EDT, 24 October 2005 at the NOAA/NOS tide
gage, Key West Harbor.
For the first event, maximum storm tides of 5-6 ft above MSL were estimated in Key West, 4-5
ft above MSL throughout the rest of the lower Florida Keys, 3 ft above MSL in Marathon and
the middle Florida Keys (numerous streets flooded, but water did not reach U.S. Highway 1),
and 2-3 ft above MSL in the upper Florida Keys.
This first storm surge event was enhanced by strong southerly winds producing wave setup in
Hawk Channel and wave run-up along the southern shores of the Keys.
b. Second storm singe event
Observations from NWS forecasters and spotters, City of Key West and Monroe County
officials, and the public indicated that the second storm surge event began in northern sections of
Key West around 0700 EDT, 24 October. However, an analysis of data from the Key West
Harbor tide gage (Fig. 8) reveals that peak storm tides occurred around 0400 EDT, with a
gradual drop in water levels thereafter. In addition, residents on Waddell Street near South
Beach reported peak storm tides early in the morning (prior to sunrise), with falling tides
thereafter. These observations suggest that the higher elevation areas on the western side of Key
West (elevations above 8 ft MSL throughout much of Old Town; see Fig. 9) blocked southward -
moving sea water from reaching areas to their immediate west and south. Peak storm tides, up to
6.5 ft above MSL in parts of Key West, occurred around 0900 EDT. Inundation originated along
the Old Town Key West waterfront, Garrison Bight, and North Roosevelt Boulevard (see Fig. 1).
Flooding crossed the island from north to south, meeting Hawk Channel (Atlantic side) at the
west end of South Roosevelt Boulevard. Figure 10 shows storm surge flooding in southern
portions of Key West just after its peak. City of Key West officials estimated that about 60
percent of Key West was inundated, and up to 35 percent of municipal vehicles were flooded.
Duck Avenue
<..,,
WFO
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r-
-
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, 2 IN
S70RM TIDE a STORM SUFraE * ASWCN01AI TIDE
Waddell Street
Fig. 9. Storm surge flood potential map of Key West, FL. Areas shaded in orange, red, yellow, blue, green, and
purple are likely to flood with storm surges of 3, 4, 5, 6, 7, and 8 ft, respectively. During Hurricane Wilma, storm
tides peaked at 4.5-6.5 ft above MSL throughout Key West. Predicted astronomical tides at Key West Harbor
during Hurricane Wilma ranged from 1.1 ft above MSL (0234 EDT, 24 October) to 0.4 ft below MSL (1027 EDT,
24 October), and peak storm surge values across Key West ranged from 4.0-6.0 ft above MSL, resulting in the
inundation of more than 50 percent of the island. The NOS tide gage, Waddell Street, NWS WFO, and Duck
Avenue are indicated by black arrows and referenced in the text (map courtesy of City of Key West Department of
Engineering Services).
Fig. 10. Storm surge flooding around 1030 EDT, 24 October, Bertha Street and Atlantic Boulevard
intersection, Key West, FL (photograph by Chip Kasper)
The author finished his operational shift at WFO Key West around 0800 EDT, 24 October, and
subsequently observed the second storm surge event at its peak in portions of Mid Town Key
West, between United Street and Atlantic Boulevard, and between White Street and First/Bertha
Streets. The WFO Key West is located on a compound bordered by United Street on the north,
White Street on the west, and Seminary Street on the south. The main building is within 50 ft of
White Street, at an elevation of 7 ft above MSL (the operational floor of the building is raised to
an elevation of approximately 15 ft above MSL). By 0900 EDT, sea water had moved inland to
a point on United Street at 6 ft above MSL, less than 15 ft from the northeastern boundary of the
WFO Key West compound. At this time, most of Key West east of White Street was inundated
(greater than 50 percent of the island surface area). Waters rose very quickly, 2-3 ft in less than
15 minutes. Island terrain significantly modulated water levels and currents over the island.
Floating debris, tree branches, and household goods were ubiquitous, and accumulations of
debris and other flotsam caused constrictions in the current resulting in very turbid flow locally,
some of which was reminiscent of river rapids (see Fig. 11). In shallower depths, fish and other
marine wildlife were visible swimming beneath the water surface, and numerous island residents
reported dead fish and eels for days after the flood waters receded.
Major flooding occurred on Stock Island where sea water up to 3 ft deep was reported in the
residential streets of the Key West Golf and Country Club. Maximum storm tides of 5-8 ft above
MSL were estimated throughout most of the lower Florida Keys, between Boca Chica Key and
Big Pine Key. Numerous homes were flooded, and thousands of vehicles were total losses. U.S.
Highway 1 flooded in the Saddlebunch Keys.
l
1OIL-
- - _ --- � • ..may �-_ ,. �-� �' � � ���.. _ -
X
Fig. 11. Photograph of South Roosevelt Boulevard -Bertha Street intersection in Key West, FL around 1100 EDT, 24
October 2005. Note water flowing toward Hawk Channel (Atlantic Ocean) through large slabs of asphalt
(photograph by Chip Kasper).
Maximum storm tides of 5-8 ft above MSL were estimated between 1100-1300 EDT in
Marathon and throughout the middle Florida Keys. Figure 12 shows a water level plot recorded
by the NOS tide gage at Vaca Cut (about one mile east of KMTH) during 23-24 October. U.S.
Highway 1 was flooded at several locations. In addition, numerous homes, businesses, and
Florida Keys Marathon Airport were flooded (see Figure 13 for a picture of storm surge
inundation in Marathon).
NOAA/NOS/CO-OFS
Verified Water Level vs. Predicted Plot
8723970 Vaoa Key a FL
from 2005/10/23 - 2005/10/24
7.000
6.000
5.000
co
� 4.000
� W
;M 3.000
2.000
1.000
0.000
-1.000
10/23 10/23 10/23 10/24 10/24 10/24 10/25
00:00 08:00 16:00 00:00 08:00 16:00 00:00
Date/Time (Local)
Predicted AIL ( Obs-Fred ) Observed WL +
Fig. 12. Plot of predicted (blue), observed (red), and difference between observed and predicted (green) water level
in feet relative to MSL from 0000 EDT, 23 October 2005 to 2400 EDT, 24 October 2005 at the NOAA/NOS tide
gage, Vaca Cut, Marathon, FL.
Maximum storm tides of 5 ft above MSL were estimated around 1500 EDT in Islamorada with
most homes along Florida Bay flooded. In the upper Florida Keys, maximum storm tides of 4.5
ft above MSL were estimated at U.S. Highway 1 near Jewfish Creek, and at mile marker 110
where the road was flooded with several inches of water.
Fig. 13. Storm surge flooding around 1100 EDT, 24 October, Keys Fisheries on Gulf View
Avenue in Marathon, FL (photograph by Carmen Watmuff, image courtesy of Keynoter
Publishing Company, Inc.)
6. Tornadoes
Hurricane Wilma produced 10 tornadoes over the Florida peninsula on 23-24 October, but there
were no confirmed tornadoes in the Florida Keys. However, a long-lived, mesocyclonic
waterspout associated with a supercell thunderstorm was visible from Key West by NWS
forecasters and other residents during the afternoon of 23 October (Fig. 14). This violent
waterspout moved within three miles of the west end of Key West at closest approach, around
1600 EDT. Waterspout movement was estimated by Doppler radar to be near 40 kt toward the
north-northwest. The parent convective cell of this vortex was associated with a large outer
spiral rainband of Hurricane Wilma. This waterspout would have resulted in significant property
damage, had the path tracked just a few miles farther east, over Key West or an adjacent island
community in the lower Florida Keys.
Fig. 14. Photograph of a violent waterspout, located over Hawk Channel about four miles southwest of Key West,
FL at approximately 1600 EDT, 23 October 2005. The man standing is near a seaweed patch on Smathers Beach,
seaward of the coconut palm trees. White Street Pier is visible in the background, in front of the waterspout (image
courtesy of Keynoter Publishing Company, Inc.).
7. Casualties and Damage
No fatalities directly related to storm conditions were reported. However, one fatality occurred
during the evacuation of a special needs patient. No major injuries were reported to the NWS.
a. Wind damage
Scattered trees and numerous large branches were blown down throughout the Florida Keys.
General damage was reported to shingles, lightweight material roofing, vinyl membrane roofing,
and foam -board roof coverings. Isolated damage was reported to exterior wall coverings. An
unknown number of mobile or prefabricated houses were damaged or destroyed. Naval Air
Station Key West reported roof damage to an aircraft hanger and a technology building. A
prefabricated office building housing a commuter airline collapsed at Key West International
Airport, and metal siding was torn off the Air Traffic Control Tower. Widespread loss of cable -
hung traffic signals was reported. Most commercial signs of various sizes were either knocked
down or blown out. Extensive power outages occurred to distribution circuits and secondary
lines, and complete power failure occurred throughout all of the lower Florida Keys, including
Key West. However, power was restored quickly by utility crews (within 36 hours at most
locations).
The vegetation in the Florida Keys looked "scorched" for several months after Hurricane Wilma
owing to a combination of wind damage, salt damage, and the onset of a record -breaking dry
season. In addition, during the next spring, most of the Royal Poinciana trees in the Keys failed
to bloom. Usually, these trees begin flowering in April, peaking in late May and early June,
rendering a spectacular display of orange -red flowers.
b. Storm surge damage
The primary damage throughout the Florida Keys from Hurricane Wilma was from storm surge
flooding. Numerous vessels broke loose from moorings with losses in numerous marinas,
including Boca Chica Marina. Several sailboats grounded on the shoulder of U.S. Highway 1 on
Big Pine Key. Numerous ground -floor slab or block homes and businesses flooded throughout
the Keys. Downstairs storage enclosures, sheds, and utility rooms of elevated stilted homes also
flooded. Some complete home and business losses occurred. The propane tank for the NOAA
Weather Radio transmitter generator fuel tank on Sugarloaf Key floated away (the supports were
either blown off or collapsed in the storm surge). Several medium to large boats washed ashore
along the Saddlebunch Keys. Thousands of vehicles were rendered permanently inoperable by
the high storm tides. In addition, numerous house and vehicle fires occurred throughout the
Florida Keys for several days after Hurricane Wilma, owing to electrical malfunctions. Clothes
washing and drying machines and other appliances lined driveways and roadways throughout the
Florida Keys for many weeks after the storm.
Significant damage occurred to the Florida Keys commercial fishing industry, particularly to the
spiny lobster and stone crab trappers. The strong winds and rough seas destroyed or scattered
hundreds of thousands of traps. Those traps that were recovered soon acquired abnormal
accumulations of barnacles, apparently due to the mixing of fresh water from the Everglades
with salt water from the Gulf of Mexico and Straits of Florida. Many of the remaining traps
were thus locked shut by the barnacles, and extra labor was then required to access the catch,
with the traps in many cases being subsequently destroyed.
The high winds, seas, and currents associated with Hurricane Wilma pushed most marine
navigational buoys out of position. Subsequently, the Port of Key West was closed, and
recreational boating remained hazardous for several days after Hurricane Wilma.
Key West International Airport and Florida Keys Marathon Airport were both closed for several
days after Hurricane Wilma, with reduced operations lasting well into November 2005.
c. Beach erosion
Severe beach erosion occurred along the Atlantic shores of the Florida Keys, with severe erosion
noted on Gulf side beaches in Key West as well. Most beaches were completely inundated near
time of maximum storm tide. Breaking waves of six feet were estimated along the upper Florida
Keys. South Roosevelt Boulevard in Key West was closed to traffic for nearly three weeks,
while crews removed tons of sand and large pieces of seawall from the road (see Fig. 15).
Fig. 15. Photograph of South Roosevelt Boulevard near Smathers Beach in Key West, FL during the late afternoon
of 24 October 2005, looking toward the east (photograph by Jim Lee).
d. Economic impacts
Total insurance claim payments made totaled $208,810,412 for Hurricane Wilma in Monroe
County, Florida (Florida Office of Insurance Regulation Hurricane Summary Data, 2006). In
addition, Hurricane Wilma occurred just days before the height of "Fantasy Fest", Key West's
annual autumn street festival, attended by up to 100,000 people. The event was postponed until
December. However, attendance was less than a third of the normal October attendance, and the
local economy lost millions of dollars in hotel, restaurant, and retail revenues. The Florida Keys
tourism economy suffered for several months after Hurricane Wilma. Finally, the commercial
fishing industry also suffered huge economic losses.
Acknowledgements
Monroe County Emergency Management provided information regarding both wind and storm
surge damage from Hurricane Wilma. The U.S. Coast Guard Sector Key West provided
information regarding damage to marine navigational aids. Many thanks go to General
Forecasters Jim Lee, Laura Kasper, and Senior Forecaster William South of WFO Key West for
their reviews of the draft versions of this report. Their reviews improved the substance and the
clarity of the final draft. In addition, helpful discussions with WFO Key West Science and
Operations Officer Andrew Devanas and Warning Coordination Meteorologist Jonathan Rizzo
improved the paper as well. Finally, WFO Key West Meteorologist -in -Charge Matt Strahan is
acknowledged for his support and interest in this publication.
8. References
Federal Emergency Management Agency (FEMA), 2006: Final Coastal High Water Mark
Collection for Hurricane Wilma in Florida. FEMA-1609-DR-FL, Task Order 460, URS Group,
Inc., Gaithersburg, MD.
Pasch, R.J., E.S. Blake, H.D. Cobb III, and D.P. Roberts, 2006: Tropical Cyclone Report,
Hurricane Wilma, 15-25 October 2006. NOAA/NWS/Tropical Prediction Center/National
Hurricane Center, Miami, FL, http://www.nhc.noaa.gov/pdf/TCR-AL252005 Wilma.pdf.
Powell, M.D., S.H. Houston, L.R. Amat, N. Morisseau-Leroy, 1998: The HRD real-time
hurricane wind analysis system. Wind Engineer. And Indust. Aerodyn. 77-78, 53-64.
Corresponding author address: Kennard "Chip" Kasper, NOAA/National Weather Service,
1315 White Street, Key West, FL 33040
E-mail: kennard.kaspergnoaa.gov
APPENDIX E: MITIGATION INITIATIVES — FORMS
AND TRACKING SPREADSHEETS
Step One: Preliminary Identified Initiative (Notice of Intent)
Step Two: Characterization Form
LMS Project Prioritization Form
2010 Update: Initiative Tracking Spreadsheets
MONROE COUNTY 2010 LMS
STEP ONE: PRELIMINARY IDENTIFIED INITIATIVE
(NOTICE OF INTENT)
Name of Entity: Date Submitted:
Contact Name: Phone:
E-mail:
Initiative/project title:
Initiative/project description:
Type of Project
❑ Acquisition
❑ Reconstruction
Other:
Special Consideration:
❑ V Zone
Other:
❑ Elevation F-1 Relocation
❑ Retrofit (wind) F-1 Retrofit (flood)
❑ Special Needs Population
Best Estimate of Total Project Cost: $
❑ Drainage
2010 Mitigation Goals addressed by the initiative (select all that apply):
❑
1.
Preservation of sustainability of life, health, safety and welfare.
❑
2.
Preservation of infrastructure, including power, water, sewer and communications.
❑
3.
Maintenance and protection of roads and bridges, including traffic signals and street signs.
❑
4.
Protection of critical facilities, including public schools and public buildings.
❑
5.
Preservation of property and assets.
❑
6.
Preservation of economy during and after disaster, including business viability.
❑
7.
Preservation and protection of the environment, including natural and historic resources.
1
Hazards addressed by the initiative (select all that apply):
Natural Hazards
Technological Hazards
Societal Hazards
�
Hurricane/tropical storm
(winds &surge flooding)
�
Hazardous materials
�
Transportation
❑
Flooding (rainfall ponding)
Utility outage or disruption
❑
Terrorism/civil disturbance
❑
Severe Storm/tornado
❑
-Loss of electric service
❑
Economic crisis
❑
Wildfire
❑
-Loss of water service
❑
Military conflict
F-I
Drought
�
-Loss of wastewater
service
�
Mass immigration
❑
Coastal erosion
❑
-Communications
❑
Epidemiological emergency
El
Oil spill
❑
Radiological accident
Received By: Date:
MONROE COUNTY 2010 LMS
STEP TWO: CHARACTERIZATION FORM
This form is used to submit information necessary for the LMS Work Group to score and prioritize an
initiative relative to other initiatives and projects. It is to be completed by the entity or owner who is
responsible for the project when that entity or owner is prepared to move a project forward and seek
funding.
When the Florida Division of Emergency Management issues a Notice of Funding Availability (NOFA)
for Hazard Mitigation (HMGP) and Pre -Disaster Mitigation (PDM) funds, the LMS Work Group 's
Ranking Subcommittee is charged with developing a list of prioritized initiatives using the LMS Project
Prioritization Form. The more complete the information, the better the basis for ranking this initiative
relative to other initiatives.
Name of Entity: Date Submitted:
Contact Name: Phone:
E-mail:
Is the initiative/project on the Step One (NOI) list? Yes ❑ No ❑
Initiative/project title:
Initiative/project description: JOE
Does the initiative/project benefit a "critical facility"? Yes ❑ No ❑
Location map is attached? Yes ❑ No ❑
Does the applicant have the legal authority to under take the project? Yes ❑ No ❑
If no, describe coordination necessary in order for the project to move forward _
How quickly could the initiative be started after award?
❑ Six months or less F-1 Six months to one year F-1 one to two years
How long after award would it take to complete the initiative?
❑ Less than two years F-1 Two to three years F-1 More than three years
Describe the problem the Initiative/project will solve and the direct and indirect impact on the facility,
system, or community if a "worst case" hazard scenario occurs. E
Monroe County: LMS Characterization Form (2010) Page 1 of 6
2010 Mitigation Goals addressed by the initiative (select all that apply):
El
1.
Preservation of sustainability of life, health, safety and welfare.
❑
2.
Preservation of infrastructure, including power, water, sewer and communications.
❑
3.
Maintenance and protection of roads and bridges, including traffic signals and street signs.
❑
4.
Protection of critical facilities, including public schools and public buildings.
❑
5.
Preservation of property and assets.
❑
6.
Preservation of economy during and after disaster, including business viability.
❑
7.
Preservation and protection of the environment, including natural and historic resources.
Hazards addressed by the initiative (select all that apply):
Natural Hazards
Technological Hazards
Societal Hazards
�
Hurricane/tropical storm
(winds &surge flooding)
�
Hazardous materials
�
Transportation
❑
Flooding (rainfall ponding)
Utility outage or disruption
❑
Terrorism/civil disturbance
❑
Severe Storm/tornado
❑
-Loss of electric service
❑
Economic crisis
❑
Wildfire
❑
-Loss of water service
❑
Military conflict
❑
Drought
❑
-Loss of wastewater service
❑
Mass immigration
❑
Coastal erosion
❑
-Communications
❑
Epidemiological emergency
❑
Oil spill
❑
Radiological accident
GENERAL BENEFITS
Use this section to provide a "big picture" description of the benefits of the initiative. These general
benefits are not the same quantifiable benefits that are determined using FEMA's formal Benefit -to -
Cost Analysis tools.
How many people might be injured, sickened or killed in the "worst case" scenario without this
initiative? 16M injured L sickened 1h killed ❑ don't know ❑ not applicable
What percentage of the jurisdiction's permanent population is served by the Initiative/project?
F-1 Up to 10% F-1 26 to 40% F-1 66 to 80%
F-1 11 to 25% F-1 41 to 65% F-1 81 to 100%
Describe the economic benefits of the project.
Describe the social benefits of the project. 4M
Monroe County: LMS Characterization Form (2010) Page 2 of 6
Describe whether the project protects cultural or historic resources.
Describe the environmental benefits of the project. EL
COMPARISON OF BENEFITS TO COSTS
The worksheet in Attachment A may be used to approximate a Benefit -to -Cost Ratio for the purposes
of moving a project to the Prioritized List. The worksheet can also be used to characterize the benefits
and costs of initiatives that are not traditional "FEMA-eligible" projects (e.g., structure elevation, facility
retrofit, drainage improvement).
IMPORTANT NOTE: An initiative that is expected to be submitted for FEMA funding can be put on
the Prioritized List based on an approximate Benefit -to -Cost Ratio. However, as part of a formal
application, applicants for traditional "FEMA-eligible" projects will be required to satisfy all application
requirements, including development of a Benefit -to -Cost Ratio using FEMA's Benefit -Cost Analysis
tools.
Estimate the total cost to implement (e.g., including design, construction, construction management,
purchase of equipment, etc.). $
Has a formal Benefit -Cost Analysis been prepared? Yes ❑ No ❑
If yes, what is the computed Benefit -to -Cost Ratio?
If no, use the worksheet in Attachment A and insert the Approximate Benefit -to -Cost Ratio:
FFASIRII ITY
Check the statement that most applies to this project regarding its consistency with other
applicable plans, programs, policies, ordinances and codes of the jurisdiction or proposing
entity.
❑ The proposal is highly consistent (e.g., listed in multiple other documents)
❑ The proposal is consistent (e.g., listed in at least one other document)
❑ The proposal is not listed in other documents, but is consistent with intent
❑ The proposal conflicts with other documents or policies
❑ The proposal may be in conflict, needs more analysis
Permits and approvals likely to be needed for implementation.
❑ Zoning approval/change
❑ Concurrence/budget approval by local jurisdiction
❑ Building permit
❑ State permits (list)
❑ Federal permits (list)
❑ None required
Monroe County: LMS Characterization Form (2010) Page 3 of 6
❑ Other (list)
Check the statement that most accurately describes technical feasibility.
❑ No engineering is necessary to document technical feasibility (e.g., buyouts)
❑ An engineer has preliminarily determined that the project is technically feasible (e.g.,
based on similarity with similar projects)
❑ An engineering analysis will have to prepared to document technical feasibility
Check the statement that most accurately describes implementation effort.
❑ The proposal would be relatively easy to accomplish
❑ The proposal is not anticipated to be difficult to accomplish
❑ The proposal will be somewhat difficult to accomplish
❑ The proposal will be difficult to accomplish
❑ The proposal will be very difficult to accomplish
Check the statement that most accurately describes how the community would likely react to
implementation.
❑ The proposal is likely to be endorsed by the entire community
❑ The proposal would benefit those directly affected; minimal adverse reaction from others
❑ The proposal would be somewhat controversial
❑ The proposal would be strongly opposed by some
❑ The proposal would be strongly opposed by most
If the proposal is expected to be generally acceptable, are there special interest groups or
stakeholders that would likely oppose the initiative? Yes ❑ No ❑
FUNDING SOURCE(S)
Check the statement that most accurately defines the funding situation:
❑ No potential funding source (federal or non-federal) has been identified
❑ The only source of funding is federal mitigation grant programs
❑ Partial funding could be accomplished with local matching funds (budget or grants)
Federal/State Mitigation Grant Source
Non -Federal Source
❑
Hazard Mitigation Grant Program (HMGP)
❑
Local government funds
❑
Pre -Disaster Mitigation (PDM)
❑
Non-profit funds
❑
Flood Mitigation Assistance (FMA)
❑
Private owner funds
❑
Severe Repetitive Loss (SRL)
❑
CDBG
❑
Repetitive Flood Claim (RFC)
❑
Other:
❑
Residential Construction Mitigation (RCMP)
❑
Other:
❑
Other:
❑
Other:
Monroe County: LMS Characterization Form (2010) Page 4 of 6
ATTACHMENT A — APPROXIMATION OF BENEFITS AND COSTS
Do not use this worksheet if a formal Benefit -to -Cost Ratio has been developed.
This simplified method to approximate benefits and costs is intended to be used if a formal Benefit -to -
Cost Analysis has not been prepared and for initiatives other than traditional FEMA-eligible projects.
The result of this approximation can help entities determine whether to pursue grant funding. The
result can be used by the LMS Ranking Subcommittee to prioritize initiatives in Step Two (to put
initiatives on the "Prioritized" list). Acceptance by the LMS Ranking Committee does not indicate
acceptance by FEMA and this approximation does substitute for a formal analysis.
COSTS
For FEMA-eligible projects, see FEMA's Hazard Mitigation Guidance (published every year) for
guidance on project costs and eligibility. In the total cost to implement a project, include all
reasonably anticipated costs. For example, retrofitting a facility can reasonably be expected to have
costs associated with design (architect/engineer), permits, construction and materials and, depending
on the size of the project, construction management. FEMA's guidance indicates typical "useful life"
for many types of projects. Recipients of federal grants are expected to maintain grant -funded
projects. The "annual cost to maintain the project" are those costs necessary to ensure the project
functions as intended. Thus, costs to maintain a retrofitted facility might include the annual check of
windows/shutters, anchored roof -mounted equipment, and roofing.
Estimate the total cost to implement the initiative/project. $
What is the anticipated useful life of the project (see FEMA guidance) years
What is the anticipated annual cost to maintain the project. $
Multiple the useful life (in years) by the annual cost to maintain (to estimate the total cost to maintain
the project). $
Add the total cost to implement and the total cost to maintain the project. $ q1 Use this number as
the "Total Project Cost" in the section below, COMPARISON OF BENEFITS TO COSTS
BENEFITS
For FEMA-eligible projects, see FEMA's Hazard Mitigation Guidance (published every year) for
guidance on project benefits. The most basic benefits of an initiative/projects are avoided damage (if
damage is avoided, then repair costs are avoided, disruption of facility use is avoided, etc.). One way
to estimate avoided direct loss (physical damage) is to imagine a "worst case" event and estimate
how much damage would occur (where the amount of damage is measured in terms of how much it
would cost to repair). Similarly, consider the less tangible effects of a "worst case" event to come up
with an estimate of indirect losses.
Describe the total direct loss (physical damage) to the facility, system, or community if a "worst case"
hazard scenario occurs and estimate the dollar value of that loss. =A
What is the estimated the dollar value of that total direct loss $ 44M
Describe the total indirect loss (other costs associated with damage, e.g., cost to rent replacement
facility, lost services, loss of jobs, etc.) if a "worst case" hazard scenario occurs. K
Monroe County: LMS Characterization Form (2010) Page 5 of 6
What is the estimated dollar value of that total indirect loss $
Combine the total direct loss and the total indirect loss $ Unless modified by the next question,
use this number as the "Total Project Benefits" in the section below, APPROXIMATING THE BENEFIT -
TO -COST RATIO.
Will the initiative avoid or prevent all of the direct and indirect losses? Yes ❑ No ❑
If yes, the combined total direct loss and the total indirect loss is the estimate of total benefits.
If no, describe anticipated losses that will be avoided:
Based on the description of anticipated losses that will be avoided, estimate what percentage
of all direct and indirect losses would be avoided:
Multiply the percentage of losses that would be avoided by the combined total direct loss and
the total indirect loss: $ h—g Use this number as the "Total Project Benefits" in the section
below, APPROXIMATING THE BENEFIT -TO -COST RATIO.
APPROXIMATING THE BENEFIT -TO -COST RATIO
What are the "Total Project Benefits" from above? $
What is the "Total Project Cost" from above? $
Divide the benefits by the costs to get the "Approximate Benefit -to -Cost Ratio" r Use this
number as the "Approximate Benefit -to -Cost Ratio" in the main section, COMPARISON OF
BENEFITS TO COSTS.
Monroe County: LMS Characterization Form (2010) Page 6 of 6
LMS PROJECT PRIORI TIZA TION FORM ao 1 oR)
Used by the LMS Ranking Subcommittee to review Characterization Forms to rank
initiatives for placement on the Tab Two "Prioritized" list.
Points
Award
A. Meeting LMS Goals and Objectives
1. Preservation & Sustainability of Life Health, Safety & Welfare
50
2. Preservation of infrastructure from hazard -related damage
30
3. Minimize damage & maintain roads & bridges during a disaster
30
4. Protection of critical facilities from hazard -related damage
10
5. Preservation of property & assets from future losses
10
6. Preservation of economy during times of disaster
10
7. Preservation and protection of the environment
10
B. Percentage of permanent population served by the project:
1. Up to 10%
20
2. 11 to 25%
40
3. 26 to 40%
60
4. 41 TO 65%
80
5. 66 to 80%
100
6. 81 to 100%
130
C. Type and number of hazards addressed:
1. Hurricanes and other severe weather
20
2. Utility outages or disruption
15
3. Transportation disruption
10
4. Economic Emergencies
10
5. Communications disruption
10
6. Mass immigration
5
7. Hazardous materials incidents
5
8. Coastal oil spills
5
9. Radiological emergencies
5
10. Epidemiological emergencies
5
11. Drought
5
12. Wildland fires
5
13. Terrorism/Civil disturbance
5
14. Military conflict
5
D. Cost effectiveness based on Cost/Benefit Analysis:
1. Ratio of 1 to 1
10
2. Ratio of 1 to 2
20
3. Ratio of 1 to 3
30
4. Ratio of 1 to 4 etc.
40
E. Economic Benefits
1. If economic benefit demonstrated
30
F. Social Benefits
1. If social benefit is demonstrated
20
G. Environmental Benefits
1. If environmental benefit demonstrated
20
H. Time Frame
1. Six (6) months or less
20
2. Six (6) months to one year
10
3. One to two years
5
I. Financial) feasible?
YES
NO
J. Technically feasble?
YES
NO
K. Funding Available?
YES
NO
L. Have legal authority:
YES
NO
M. Consistency with Plans, Codes, Ordinances, Policies, etc.
YES
NO
TOTAL (Possible) POINTS
895
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