Item C14BOARD OF COUNTY COMMISSIONERS
AGENDA ITEM SUMMARY
Meeting Date: August 17, 2005 Division: Public Safety
Bulk Item: Yes X No Department: Emer2mcy-Mana2ement
Staff Contact ly" am", __Jr.
AGENDA ITEM WORDING:
Approval of a Resolution adopting the 2005 Revised Local Mitigation Strategy in order for Monroe
County to be eligible for and to access post -disaster and pre -disaster hazard mitigation grants
ITEM BACKGROUND: The Robert T. Stafford Disaster Relief and Emergency Assistance Act, as
amended by the Disaster Mitigation Act of 2000, requires local jurisdictions to adopt a mitigation plan
in order to be eligible for post -disaster and pre -disaster grants to implement certain mitigation projects.
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. The 1999 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.
PREVIOUS RELEVANT BOCC ACTION:
Monroe County adopted a Local Mitigation Strategy in 1999.
CONTRACT/AGREEMENT CHANGES: This is not a contract.
STAFF RECOMMENDATIONS: Approval
TOTAL COST: N/A
COST TO COUNTY: N/A
BUDGETED: Yes _._:. No _ N/A
SOURCE OF FUNDS:
REVENUE PRODUCING: Yes — No X AMOUNT PER MONTH.:. Year
APPROVED BY County Atty YES
DIVISION DIRECTOR APPROVAL:
DOCUMENTATION: Included
N;A Risk Management N/A
James R. "Reggie" Pains
Not Required
DISPOSITION: AGENDA ITEM #
�!do Y'
(` .)
ATTET, By
DANNYL. KOLUAGE, CLERK MAYOB,
I..aV,
T ty Clary
Monroe County and
Incorporated Municipalities
Key West, Marathon, Key Colony Beach, Layton,
and Islamorada Villaae of Islands
Local Mitigation Strategy
2005 Revision
PUBLIC REVIEW DRAFT June 2005
Table of Contents
Chapter 1 Introduction
1.1
Authority..........................................................................................................................
1.2
Work Group Membership................................................................................................
1.3
Acknowledgments...........................................................................................................
1.4
Key Terms.......................................................................................................................
1.5
Acronyms.........................................................................................................................
1.6
References........................................................................................................................
Chapter 2 The Planning Area
2.1 Geography & Planning Area...........................................................................................
2.2 Population........................................................................................................................
2.3 Land Use & Growth Trends............................................................................................
2.4 Economic Characteristics................................................................................................
2.5 Transportation..................................................................................................................
2.6 Critical Facilities..............................................................................................................
2.7 Environmental & Historic Resources..............................................................................
2.7.1 Environmental Resources.........................................................................................
2.7.2 Historic Resources....................................................................................................
Chapter 3 Mitigation Planning
3.1 Introduction..................................................................................................................... .
3.2 The Mitigation Planning Process.....................................................................................
3.3 Public Involvement In Mitigation Planning....................................................................
3.3.1 Public Meetings.........................................................................................................
3.3.2 Public Sessions Of The Jurisdictions........................................................................
Chapter 4 Mitigation Goals
4.1 Introduction..................................................................................................................... .
4.2 LMS Mitigation Goal......................................................................................................
4.3 Florida's Mitigation Vision & Mission Statement..........................................................
4.4 FEMA's Mitigation Goals...............................................................................................
Chapter 5 Hurricanes & Coastal Storms
5.1 Defining The Hazard.......................................................................................................
5.2 Hurricane Effects In Monroe County..............................................................................
5.3 Some Major Hurricanes...................................................................................................
5.4 Losses Due To Major Disasters.......................................................................................
5.5 Impacts Of Hurricanes.....................................................................................................
5.5.1 Buildings...................................................................................................................
5.5.2 Transportation Infrastructure....................................................................................
5.5.3 Communications.......................................................................................................
5.5.4 Water Supply.............................................................................................................
5.5.5 Electric Power...........................................................................................................
Monroe County LMS (Draft July 2005)
5.5.6 Wastewater Facilities................................................................................................
5.5.7 The Economy............................................................................................................
5.4.8 Environmental Resources.........................................................................................
5.5.8 Historic Resources....................................................................................................
Chapter 6 Other Hazards & Risks
6.1 Introduction..................................................................................................................... .
6.2 Severe Storms, Tornadoes & Water Spouts....................................................................
6.4 Rainfall/Fresh Water Flooding........................................................................................
6.5 Drought............................................................................................................................
6.7 Wildland Fire...................................................................................................................
6.8 Overview Of Monroe's Hazards & Risks........................................................................
Chapter 7 Monroe County
7.1 County Government Structure.........................................................................................
7.1.1 County Administrator/Department Of Emergency Management .............................
7.1.2 Growth Management Division..................................................................................
7.1.3 Public Works Department.........................................................................................
7.1.4 Division Of Public Safety.........................................................................................
7.1.5 Monroe County Health Department..........................................................................
7.1.6 Monroe County Management Services.....................................................................
7.1.7 Monroe County School Board..................................................................................
7.2 Regional Agencies & Organizations...............................................................................
7.2.1 South Florida Regional Planning Council................................................................
7.2.2 South Florida Water Management District...............................................................
7.2.3 Florida Keys Aqueduct Authority.............................................................................
7.2.4 Electric Utilities........................................................................................................
7.3 Planning & Development Processes................................................................................
7.3.1 Comprehensive Plan: Year 2010...............................................................................
7.3.2 Floodplain Management...........................................................................................
7.4 Communicating About Hazards......................................................................................
7.5 Recent And Near -Term Mitigation Actions....................................................................
Chapter 8 City of Key West
8.1 Overview Of Key West................................................................................................
8.2 City Organization And Agencies.................................................................................
8.3 Hazards And Risk In Key West...................................................................................
8.4 Damage Reduction Activities.......................................................................................
Table of Contents
Chapter 9 City of Layton
9.1 Overview Of Layton.....................................................................................................
9.2 City Organization And Agencies.................................................................................
9.3 Hazards And Risk In Layton........................................................................................
9.4 Damage Reduction Activities.......................................................................................
Chapter 10 City of Key Colony Beach
10.1 Overview Of Key Colony Beach..................................................................................
10.2 City Organization And Agencies.................................................................................
10.3 Hazards And Risk In Key Colony Beach.....................................................................
10.4 Damage Reduction Activities.......................................................................................
Chapter 11 Islamorada Village of Islands
11.1 Overview Of Islamorada..............................................................................................
11.2 Village Organization And Agencies.............................................................................
11.3 Hazards And Risk In Islamorada..................................................................................
11.4 Damage Reduction Activities.......................................................................................
Chapter 12 City of Marathon
12.1
Overview Of Marathon................................................................................................
12.2
City Organization And Agencies.................................................................................
12.3
Hazards And Risk In Marathon....................................................................................
12.4
Damage Reduction Activities.......................................................................................
Chapter 13 Mitigation Initiatives
13.1 Range Of Mitigation Initiatives.......................................................................................
13.2 Mitigation Initiatives.......................................................................................................
13.3 Initiatives for Work Group as a Whole............................................................................
13.4 Site -Specific Initiatives....................................................................................................
13.5 Site -Specific Initiatives....................................................................................................
13.6 Prioritizing Mitigation Initiatives....................................................................................
13.7 Potential Funding For Selected Initiatives.......................................................................
Chapter 14 Evaluation, Updates & Revisions
14.1 Distribution......................................................................................................................
14.2 Annual Evaluation & Updates.........................................................................................
14.3 Five -Year Revision..........................................................................................................
14.4 Incorporating Mitigation Plan Requirements Into Other Local Planning Mechanisms..
Appendix A Public and Critical Facilities
Appendix B Resolutions of Adoption
Monroe County LMS (Draft July 2005)
Appendix C Mitigation Initiatives — Tracking Spreadsheet
Appendix D Submission and Prioritization of Initiatives
Table of Contents
Resolution of Adoption
[XX this page will show thumbnails of all resolutions (each jurisdiction will have its own);
full-size copies of the resolutions will be included in Appendix B
Monroe County LMS (Draft July 2005)
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 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 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.
1.1 Authority
The Board of County Commissioners directed the Office of Emergency Management
(OEM) 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 in conformance with state and federal guidelines.
The LMS revision 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 the LMS Working Groups. In particular, Work 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 Work Group Membership
The LMS Work 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 February 15, 2005 for the specific purpose of initiating the revision of the
Local Mitigation Strategy (LMS).
The Work Group includes representatives from all incorporated municipalities in Monroe
County. Prior to the 1999 LMS, Work Group Agreements were established between
Monroe County LMS (Draft July 2005)
Monroe County and the municipalities. The City of Marathon joined upon its incorporation
in late 1999.
Representatives from following are designated members of the Work Group:
• Monroe County, Emergency Management (Chairman)
• Monroe County, Growth Management
• Monroe County, Health Department
• Monroe County School System and Public Board of Education
• Monroe County, Grants Coordinator
• Monroe County Extension Service
• City of Layton, City Administrator
• Village of Islamorada, Fire Chief
• City of Key Colony Beach, Building Official
• City of Key West, Assistant Engineer
• City of Marathon, City Planner
• Monroe County, Historic Florida Keys Foundation
• Habitat for Humanity of Key West and Lower Florida Keys
• City Electric
• FL Keys Electric Cooperative
• FL Keys Aqueduct Authority
The following were notified and invited to review and comment on the LMS before it was
finalized:
• Florida Department of Community Affairs
• Miami -Dade County and Collier County
• Florida Keys Community College
• Rotary Club
• Salvation Army
• Florida Keys Employment and Training Council
• Paradise Interfaith Network
• Innerspace Dive/FL Seacamp
• Monroe County Association for Retarded Citizen's
• American Red Cross
• Marathon Chamber of Commerce
Monroe County LMS (Draft July 2005)
• Century 21
• FL Keys Citizens Coalition
• State Representative Ken Sorensen, District 120
• Office of Congressional Representative Lleana Ros-Legtinen, 18th District
1.3 Acknowledgments
The revised LMS was supported by a planning grant administered by the Florida
Department of Community Affairs using funds provided by the Federal Emergency
Management Agency.
The revised 2005 LMS was prepared with the support of RCQuinn Consulting, Inc.,
Annapolis, MD. 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, Emergency Preparedness and Response
Directorate (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
Monroe County LMS (Draft July 2005)
inundation. The area predicted to flood during the 1% annual chance flood is
commonly called the "100-year" flood.
1.5 Acronyms
The following acronyms are used in the document:
• CRS — Community Rating System (NFIP)
• DCA — Florida Department of Community Affairs
• FEMA — U. S. Department of Homeland Security, Emergency Preparedness and
Response Directorate (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
• TAOS — The Arbiter of Storms
1.6 References
American Society of Civil Engineers. 2002. Minimum Design Loads for Buildings and
Other Structures (SEI/ASCE 7-02). 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.]
Federal Emergency Management Agency. 1997. Multi -Hazard Mitigation andRisk
Assessment. Washington, DC. Online at http://www.fema.gov/mit/tsd/ft—mhira.htm.
Florida Department of Community Affairs. Florida Hazardous Weather, a Preparedness
Guide.
Florida Sea Grant Program, University of Florida. July 1994. The Effect of hurricane
Andrew on Monroe County Businesses: Negative Economic Effects and Assistance Sought.
Monroe County LMS (Draft July 2005)
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 (Rev. #6, 2003).
Monroe County Cooperative Extension Service. August 1994. The Effect of Hurricane
Andrew on Monroe County's Natural Resources and Its Dependent Industries.
Monroe County LMS (Draft July 2005)
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 & 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 dangling from the mainland like "hurricane bait." 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).
[XX Insert Figure 2.1 Location Map
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 relative
high areas are several coral ridges in Key Largo are near Mile -Marker 106.
2.2 Population
The estimated projected population of Monroe County and the incorporated municipalities
for 2005, including incorporated municipalities, is just over 88,000 (see Table 2-1). The
permanent resident population is growing at about 0.6% per year. The area's population
varies considerably due to seasonal residents; at peak season, the seasonal population is
Monroe County LMS (Draft July 2005)
estimated at 73,737. All told, the Florida Keys receives approximately 3,000,000 visitors
per year.
Table 2-1. Populations Estimates
Permanent
Resident*
Seasonal
Functional (combined
permanent & seasonal)
Monroe County (unincorp)
40,816
35,518
76,334
Islamadora
7,897
8,735
16,632
Layton
221
169
390
Key Colony Beach
1,160
1,723
2,883
Key West
26,731
17,354
44,085
Marathon
11,480
10,238
21,718
Total
88,305
73,737
162,042
*The projected permanent population is based on a methodology created by The Division of Planning
and Environmental Resources, and is based on 1990 Census data
Approximately 15% of the total population is over the age of 65. As of mid-2005, the
Special Needs Registry includes approximately 363 people enrolled in the Special Needs
Hurricane Evacuation Program due to age, medical condition, or other factors 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.
Table 2-2. Special Needs Registry (2005)
Mile Marker
Registered Special Needs
0-12
183
13-40
39
41-72
57
73-92
31
93-113
53
Total
363
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.
Monroe County LMS (Draft July 2005)
The number of dwelling units (permanent and seasonal) which can be permitted in Monroe
County 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.
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.
The County's annual allocation was further reduced to 158 by the incorporation of
Islamorada and Marathon, which receive 22 and 24 allocations per year, respectively. This
number was further reduced by the incorporation of Marathon, which received a total of 24
new residential allocations.
The current allocation of 158 is divided into 127 "market rate" and 31 "affordable" units and
are distributed in unincorporated Monroe County as follows:
. 46 units in the Upper Keys service area,
. 7 units in the Middle Keys service area, and
74 units in the Lower Keys.
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
Monroe County LMS (Draft July 2005)
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.
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 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 Comprehensive Plan
(1999).
There are approximately 175 hotels and motels with a total of over 7,200 rooms, numerous
rental homes, 109 Mobile Home/RV parks, 6,100 individual mobile home parcels, and over
2,800 campsites. Services, dominated by hospitality (food and lodging), is the largest
Monroe County LMS (Draft July 2005)
segment of the private sector, followed by retail trade. These industries account for nearly
52% of total employment, and 67% of private
sector employment.
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.
Property Valuations*
Residential: $9.324 million
Commercial/Medical: $1.932 million
Medical: $154 million
Industrial: $203 million
Agricultural: $23 million
Education: $30 million
General Government: $68 million
Emergency Response: $15 million
Table 3.3.1*
Florida State Hazard Mitigation Plan (2004)
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.
2.5 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 1, 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 41 bridges (combined total length of 19 miles of
bridge).
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.
Monroe County LMS (Draft July 2005)
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.
2.6 Critical Facilities
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.
Appendix A contains a database of public and critical facilities and certain private non-profit
facilities and basic information. Figure 2-2 shows locations of those facilities that, as of
mid-2005, can be plotted. Table 2-3 contains notes on selected critical facilities and Table
2-4 contains notes on selected infrastructure.
[Figure 2-2 placeholder for maps) to show the locations of the critical facilities for which
we have location data; County GIS has some layers (schools, fire, etc)
Monroe County LMS (Draft July 2005) M
Table 2-3. Notes on Selected Critical Facilities
Hospitals
N
• Florida Keys Health Systems (Depoo Hospital and Lower Florida Keys Health Center)
O
• 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.
.N
L
O
z
Nursing Homes
N
cC
• Bayshore Manor, Key West (Monroe County owned and operated)
Q
• Key West Convalescent Center (proprietary)
N
2
• Marathon Manor Nursing Home (proprietary)
• Plantation Key Convalescent Center (proprietary)
• All nursing homes must evacuate Monroe County in a storm of Category 3 or greater.
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:
• Key West High School, 2100 Flagler Ave., KW
a�
• Sugarloaf Elementary School, Mile -Marker 19, Sugarloaf Key
t
N
• Stanley Switlik Elementary School, Mile -Marker 48.5, Marathon
N
p
• Coral Shores High School, Mile -Marker 90 Plantation Key
O
• Key Largo School Cafetorium, Mile -Marker 105, Key Largo
N
Other facilities that may be used as hurricane shelters:
• Horace O'Bryant School, Key West
• Harvey Government Center, Key West
• Saint Justin Martyr Catholic Church, Key Largo
Other facilities critical/important for recovery:
L
• Habitat for Humanity of Key West and Lower Florida Keys, 30320 Overseas Highway (storage
0
for water, temporary roof coverings and supplies, client intake for emergency home reqpir
needs and staging area for volunteer coordination)
Table 2-4. Notes on Selected Infrastructure
Bridges
• 42 bridges connect primary roadway US 1.
• Two drawbridges, Jewfish Creek located at Mile -Marker 107 and 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)
Monroe County LMS (Draft July 2005)
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 Ke
Power Lines
• Electric Power supplied by Florida Keys Electric Cooperative (FKEC) Upper Keys to Marathon
• Electric Power supplied by Key West City Electric System (CES) 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.
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."
Monroe County LMS (Draft July 2005)
The Florida Department of Environmental Protection 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 Pennekamp 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)
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:
Monroe County LMS (Draft July 2005) '
• 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.
Monroe County LMS (Draft July 2005)
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 Department of Community Affairs, 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 and Chapter 6 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.
Five meetings were held during which the LMS revision was discussed; meeting agendas
and minutes are on file with the OEM:
• February 15, 2005. Overview of the process to revise the LSM, summarize
hazard events that have occurred since 1999, review the mitigation goals, and
request that Work Group members review and report on mitigation activities
initiated or completed since 1999.
• March 24, 2005. Discussed rationale for designating facilities as critical,
important or standard; data to be gathered for critical facilities; a database of
Monroe County LMS (Draft July 2005)
potential and past mitigation actions to simplify tracking; and options for
simplifying the process to put projects on the list and prioritizing them.
May 24, 2005. The LMS met to review the approval and adoption process for
the revised LMS and discussed the importance of having adoption scheduled
simultaneously in all jurisdictions. The Work Group reviewed the mitigation
goals formulated for the 1999 LMS (and made one minor addition) and the
process of adoption of a single document by multiple jurisdictions.
Importantly, it was decided to revise the process to identify and prioritize
initiatives in a two-step process; a tentative schedule was proposed. And
finally, the Work Group decided to set as an initiative, completion of the
Critical Facilities database.
• July 20, 2005. Review public comments; revisit Work Group initiatives;
approve LMS Revision and forward it to the State and FEMA for review and
subsequently, to governing bodies 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 County and city representatives to
review and revise the LMS.
• Coordinate. Prior to the February 15, 2005, meeting, other agencies and other
interested organizations were notified of the planning activity and invited to
participate.
• Hold Public Meeting. The February 15, 2005, meeting of the LMS Working
Group was advertised as a public meeting to introduce the process to revise and
update the LMS.
• Identify Hazards. The LMS Work Group reviewed the hazard identification
materials from the 1999 LMS and hazard events that have occurred, and
confirmed the priority ranking of natural hazards.
• Review how Natural Hazards are Addressed. Work Group members
reviewed brief descriptions of their agencies and on -going actions related to
hazards and provided updates. The results are summarized in Chapter 6
(Monroe County) and Chapters 8 through 12 for the cities of Key West, Key
Colony Beach, Layton, Islamorada and Marathon.
• Assess Risks. Summary materials on risks from the 1999 LMS were reviewed
and updated by the Work Group members.
• Confirm the Mitigation Goals. The mitigation goals were confirmed.
• 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. The Work Group
Monroe County LMS (Draft July 2005)
concurred with the importance of improving the method by which the list of
actions is maintained and updated periodically.
• Draft the Revised LMS. The revised LMS, formulated primarily from the
material developed for the 1999 LMS, was prepared in a format designed to
fulfill the planning requirements. The draft was circulated to LMS Working
Group members and 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.
• Hold Public Meeting. Notices of the public meeting and the availability of the
Public Review Draft LMS were published in The Keynoter, The Key West
Citizen, The Upper Keys Reporter, and The Free Press Newspaper, and the
Draft LMS was presented at the public meeting held on July 19, 2005.
Adopt LMS. The LMS 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 B.
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.
3.3.1 Public Meetings
The first public meeting on February 15, 2005, was advertised in The Keynoter and The Free
Press Newspaper and a notice was posted on the County's web page. Other than the Work
Group members and representatives from a number of non-profit organizations, the meeting
was not attended by the general public.
The Monroe County LMS (Public Review Draft) was scheduled for presentation to the
public at a meeting on June 19, 2005. Notice of the meeting was published in The Keynoter,
Key West Citizen, Upper Keys Reporter, and The Free Press Newspaper. Prior to the
meeting, copies of the Public Review Draft were made available to the public in the offices
of the cities, in the three County public libraries, and posted on the County's web page. A
notification letter was sent to adjacent communities, federal and state agencies, and
Monroe County LMS (Draft July 2005)
neighborhood associations. No members of the public attended and no comments were
submitted.
Monroe County LMS (Draft July 2005)
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.
Monroe County LMS (Draft July 2005)
4.3 Florida's Mitigation Vision & Mission
Statement
The Florida State Hazard Mitigation Plan was revised in 2004 and approved by FEMA in
2005. The Plan outlines the State's mitigation vision, primary goals and a wide variety of
actions.
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.
Monroe County LMS (Draft July 2005)
Chapter 5: Hurricanes &
Coastal Storms
Since 1965, eleven of the thirteen 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 (1965-2004)
DR#
Date of
Declaration
Event
Type of Assistance
Provided*
209
09/14/1965
Hurricane Betsy
IA,PA-ABCDEFG
337
06/24/1972
Tropical Storm Agnes
IA,PA-ABCDEFG
955
08/24/1992
Hurricane Andrew
IA,PA-ABCDEFG
982
03/22/1993
Tornadoes, Flooding, High Winds &
Tides, Freezing
IA,PA-ABCDEFG
1204
02/20/1998
Severe Storms, High Winds,
Tornadoes & Flooding
IA,PA-ABCDEFG
1223
06/19/1998
Extreme Fire Hazard
PA-ABCDEFG
1249
09/28/1998
Hurricane Georges
IA,PA-ABCDEFG
1259
11/06/1998
Tropical Storm Mitch
IA,PA-ABCDEFG
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
1 09/13/2004
1 Hurricane Ivan
I PA-B
* IA = Individual Assistance; PA = Public Assistance (and categories)
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. The flatness of the topography means
that heavy rainfall may accumulate due to slow runoff.
Monroe County LMS (Draft July 2005)
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-
Sampson Hurricane Scale (Table 5-2) which rates the
intensity of storms based on wind speed and
barometric pressure measurements. The scale is used
to predict potential property damage and flooding
levels from imminent storms. Actual impacts are
influenced by many variables that are not accounted
for in this summary, such as the influence of the tidal
cycle.
"A hurricane is when the wind
blows so hard, the ocean gets
up on its hind legs and walks
right across the land."
from the movie "Key Largo"
Table 5-2. Saffir-Sampson Scale and Typical Damages
Sustained
Wind Speeds
Category
(mph)
Surge (ft)
Pressure (mb)
Typical Damage
Tropical
<39
--
--
Depression
Tropical
39-73
3-5
--
Trees/foliage, unanchored mobile
Storm
homes, signs, flooding on barrier
islands/coastal roads, minor pier
damage, small craft torn from
moorings.
Hurricane 1
74-95
4-5
> 980
Minimal— Damage is done primarily
to shrubbery and trees, unanchored
manufactured homes are damaged,
some signs are damaged, no real
damage is done to structures on
permanent foundations.
Hurricane 2
96-110
6-8
965-980
Moderate — Some trees are toppled,
some roof coverings are damaged,
and major damage is done to
manufactured homes.
Monroe County LMS (Draft July 2005)
Table 5-2. Saffir-Sampson Scale and Typical Damages
Sustained
Wind Speeds
Category
(mph)
Surge (ft)
Pressure (mb)
Typical Damage
Hurricane 3
111-130
9-12
945-965
Extensive Damage — Large trees are
toppled, some structural damage is
done to roofs, manufactured homes
are destroyed, and structural
damage is done to small homes and
utility buildings.
Hurricane 4
131-155
13-18
920-945
Extreme Damage — Extensive
damage is done to roofs, windows,
and doors; roof systems on small
buildings completely fail' some
curtain walls fail.
Hurricane 5
> 155
> 18
< 920
Catastrophic Damage— Roof
damage is considerable and
widespread, window and door
damage is severe, there are
extensive glass failures, some
buildings fail completely.
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, virtually all areas shown on the
Monroe County LMS (Draft July 2005)
Flood Insurance Rate Maps (FIRMS) are impacted by coastal flooding, whether due to
hurricanes or other coastal storms.
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. FEMA's Multi -
Year Flood Hazard Identification Plan (MHIP) indicates that funding for the Monroe County
FIRMS was provided prior to Fiscal Year 2004.
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
February 18, 2005
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 5-4). 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 5-4. Probably Storm Tide Ranges*
Saffir-Simpson
Elevation (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 County LMS (Draft July 2005)
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. Between 1886 and 2004, 47 tropical cyclones of hurricane
intensity have passed within 125 miles of Marathon, in the Middle Keys, with an average of
one storm every 2.5 years. Hurricanes are most common in September and October,
although they have occurred in all months of hurricane season.
5.3 Some Major Hurricanes
The Florida Keys have experienced many hurricanes and tropical storms — too many to list.
Brief descriptions of some or the more significant storms (Table 5-5) are sufficient to
characterize the hurricane history of the area.
Table 5-5. 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 Tavernier-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
Monroe County LMS (Draft July 2005)
Table 5-5. Some Major Hurricanes that Affected Monroe County
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, was listed
as the 6th most intense hurricane in the U.S.
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.
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's 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.
Monroe County LMS (Draft July 2005) M
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 reimburses expenditures those associated with:
Public assistance for certain categories of damage/expenditures: debris
removal, emergency services, roads and bridges, flood control facilities, public
buildings and equipment, public utilities, and parks and recreational facilities;
and
• Assistance paid out for individual assistance grants, emergency food and
shelter, and other assistance to individuals.
Table 5-6 summarizes some costs associated with disaster recovery from just two significant
storms in the past decade, including estimates of some costs that were covered by insurance
(private wind coverage and federal flood insurance).
Table 5-6. Some 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
* Florida DCA, Recovery & Mitigation Section (pre-1999)
Monroe County LMS (Draft July 2005)
The Emergency Management Division of the Florida Department of Community Affairs
coordinates and administers aspects of FEMA's Public Assistance Program. For three major
disaster declarations that included Monroe County, Table 5-7 summarizes the amounts of
public assistance received by eligible recipients, including Monroe County, the cities, and
eligible non-profit organizations. The data were not available by category; thus, it is not
feasible to examine the types of damage and expenditures that resulted in the expenditures
which might reveal mitigation opportunities.
Table 5-7. FEMA Public Assistance Reimbursements for Recent Disasters
(as of June 2005).*
Recipient
Amount of Reimbursements
Hurricane
Georges
DR#1249
Hurricane
Mitch
DR#1259
Hurricane
Irene
DR#1306
Monroe County
$26,618,853
$2,337,920
$602,420
City of Key West
11,586,282
0
$8,020,253
City of Marathon
0
0
0
City of Key Colony Beach
0
0
0
City of Layton
0
0
0
Islamorada Village of Islands
$1,201,225
$291,483
0
Monroe County Housing Authority
$162,065
0
$3,381
Monroe County Mosquito Control
$18,247
0
0
Monroe County School District
$5,718,562
$131,733
$55,322
Key West Housing Authority
$117,094
0
0
Utility Board of Key West
$6,055,656
0
$219,031
Marathon Volunteer Fire & Rescue
$2,678
Florida Keys Electric Cooperative
$628,396
$260,512
$175,307
Florida Keys Aqueduct Authority
$601,763
0
0
Historic Florida Keys Foundation
$12,654
0
0
Key West Art & Historical Society
$16,562
0
0
Monroe Association for Retarded Citizens
$11,054
0
0
Florida Keys Children's Shelter
$1,286
0
0
Florida Keys Outreach
$2,500
0
0
Pigeon Key Foundation, Inc
$71,760
0
0
Venture Out at Cudjoe Cay
$256,603
0
0
$53,083,227
$3,021,647
$9,075,714
" Source: Florida Department of Community Affairs, Emergency Management, Public Assistance
Monroe County LMS (Draft July 2005)
5.5 Impacts of Hurricanes
To improve understanding of hurricanes and their impacts, the Florida Department of
Community Affairs developed "The Arbiter of Storms" (TAOS). TAOS is an integrated
hazards model that provides higher resolution data than are produced by the National
Hurricane Center's SLOSH model. The SLOSH model calculates storm surge for an area of
coastline called a basin. TAOS, which makes more extensive use of satellite and digital
terrain data, has a higher resolution. In addition to storm surge estimates, TAOS calculates
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 Department of
Community Affairs. The projections include the number of parcels by type, total improved
value, and six storm scenarios (tropical storm and all categories of hurricane). Anticipated
damage is included for floods, winds, and wave action.
5.5.1 Buildings
Property values throughout Monroe
County have increased significantly
in recent years. Figure 5-1 shows
how the average and median sale
prices of single family homes have
changed since 1965. When the 1999
LMS was prepared, the average
property value was $120,000; as of
mid-2005, the average value had
climbed to $281,000. Similar
increases have been experienced in
the values of other types of
Exposure to Hurricane Wind*
Residential Property: $9.3 million
Commercial Property: $2.1 million
Annualized Losses from Hurricane Wind**
Residential Losses: $137 million
Commercial Losses: $31 million
Tables 3.3.6* & 3.5.2**
Florida State Hazard Mitigation Plan (2004)
properties. The average sale prices of mobile homes on single lots have risen from about
$100,000 to nearly $250,000; condominiums have gone from about $200,000 to about
$450,000.
Monroe County LMS (Draft July 2005) '
$800, 000
avg sale price
$700,000
med sale price
$600, 000
$500, 000
$400, 000
$300, 000
$200, 000
$100, 000
$
1960 1965 1970 1975 1980 1985 1990 1995 2000 2005 2010
Figure 5-1. Single Family Home Values in Monroe County (Monroe County
Property Assessment Office)
The Monroe County Property Appraisal Office reports that there are 109 mobile
home/recreational vehicle parks (land owned by park operator) and over 6,000 parcels of
land are identified as "individual manufactured housing" lots. New mobile home parks have
not been approved since 1987. Installation of new or replacement units must comply with
current codes.
Three hundred sixty-six parcels of land are recorded as "hotel/motel" and it is estimated that
there are over 8,900 available rooms (including guest houses). 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. Table 5-9 indicates the number of housing units that were
determined to have been destroyed or to have sustained major or minimal damage.
Monroe County LMS (Draft July 2005)
Table 5-9. Monroe Housing Units Affected by Hurricane
Georges & Tropical Storm 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 covers the entire county and does 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.
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 or projected damage. For
example:
• 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. 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
8,565
16,618
16,618
16,618
16,618
16,618
Damaged
0) �
Total
Structure
243
686
1,066
1,571
2,248
2,946
m o
o�
Structure
100
245
413
620
848
1,128
Flood
Monroe County LMS (Draft July 2005)
Table 5-10. TAOS Damage Projections: Single -Family Homes
(Total Parcels = 16,618; Improved Value = $3.01 billion, 1998 dollars)
Structure
0
50
188
492
1,102
2,380
Wind
Structure
139
40
518
657
830
10,819
Wave
Total
63
169
3,295
696
1,217
1,487
Content
Table 5-11. 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
116
169
235
304
308
308
Structure
0
Structure
26
52
80
110
155
221
o
Flood
Structure
Wind
9
51
135
297
308
308
m
Structure
92
111
123
137
155
183
o
Wave
Total
11
46
99_-]
152
153
154
Content
Table 5-12. 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
0
Structure
6
14
17
43
61
84
o
Flood
Structure
Wind
0
4
15
40
90
196
m
Structure
8
22
28
36
47
66
o
Wave
Total
3
10
19
49
94
123
Content
Monroe County LMS (Draft July 2005)
Table 5-13. 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
186
496
809
1,292
2,018
2,262
Structure
0
Structure
68
136
262
411
617
826
o
Flood
Structure
Wind
13
101
284
654
1,335
2,250
0
Structure
106
281
350
419
518
691
o
Wave
Total
37
102
288
633
1,057
1,126
Content
Table 5-14. TAOS Damage Projections: Commercial
(Total Parcels = 1,431; Improved Value = $409 million, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
1,287
1,431
1,431
1,431
1,431
1,431
Damaged
Total
43
107
163
250
366
409
Structure
o
Structure
15
30
49
74
106
142
o
0
Flood
Structure
Wind
4
20
56
128
259
409
m
Structure
25
64
77
93
115
149
o
Wave
Total
10
24
59
121
189
203
Content
Table 5-15. TAOS Damage Projections: Institutional
(Total Parcels = 155; Improved Value = $80 million, 1998 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
Damaged
142
155
155
155
155
155
0) o
m �
Total
Structure
5
17
28
45
70
80
Monroe County LMS (Draft July 2005)
Structure
1
4
74
12
18
26
Flood
Structure
1
4
11
25
51
80
Wind
Structure
Wave
4
9
11
15
18
24
Total
0.5
2
9
22
36
40
Content
Table 5-16. TAOS Damage Projections: Hotels
(Total Parcels = 215; Improved Value = $614 million, 1988 dollars)
Tropical
Hurricane Category
Storm
1
2
3
4
5
Parcels
155
215
215
215
215
215
Damaged
Total
Structure
22
72
170
320
563
614
0
Structure
5
9
54
97
147
201
o
Flood
Structure
Wind
6
30
85
195
396
614
m
Structure
11
35
40
49
63
90
o
Wave
Total
3
7
57
158
294
306
Content
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.
Monroe County LMS (Draft July 2005)
• 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.
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.
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.
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;
Monroe County LMS (Draft July 2005)
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
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
Monroe County LMS (Draft July 2005) M
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
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.
5.5.5 Electric Power
Electric power is supplied by Florida Keys Electric Cooperative from the Upper Keys to
Marathon, and by Key West City Electric System from Marathon to Key West. The two
agencies cooperate to provide the best service for the area. Both utilities purchase power
from larger suppliers.
City Electric has the capability to generate electricity at its plant in Key West. The Electric
Cooperative 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
Monroe County LMS (Draft July 2005)
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
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 Key West City Electric System.
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.
5.5.6 Wastewater Facilities
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 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
Monroe County LMS (Draft July 2005)
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.
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.
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
Monroe County LMS (Draft July 2005)
municipal governments were affected by a reduction in sales, infrastructure, and bed tax
revenues immediately after the storm, resulting from business slow -downs
5.4.8 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
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.
Monroe County LMS (Draft July 2005)
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.
5.5.8 Historic Resources
In recent years, properties and sites that are listed on the National Register of Historic Places
have not sustained major damage due to 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.
Monroe County LMS (Draft July 2005)
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, and wildland fires.
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. There is anecdotal
evidence from a 1755 account of conditions in Havana that were thought to be associated
with a hurricane that may possibly have been due to a tsunami wave generated by an
earthquake in Lisbon, Portugal. In addition, the U.S. Geology Survey's report on
earthquake history of Florida states "In January 1880, Cuba was the center of two strong
earthquakes that sent severe shock waves through the town of Key West, Florida."
(http://neic.usgs.gov/neis/states/florida/florida history.html) Because seismic and/or
tsunami events have been so rare, they are not further considered in this plan.
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 35°F at Coral Key Village). The greatest
effect of an unusually low temperature would be a resulting low wind chill factor and the
National Weather Service 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).
Monroe County LMS (Draft July 2005) M
6.2 Severe Storms, Tornadoes & Water Spouts
The term "severe storms" is used to cover weather events that exhibit all or some of these
characteristics: high winds (including tornadoes), heavy rainfall, lightning, and hail.
Thunderstorms are convective storms produced when warm moist air is overrun by dry cool
air. As the warm air rises, thunderhead clouds form and generate strong winds, lightning,
thunder, hail and rain. 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.
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 3/4 inch in diameter, winds of at least 58 miles per
hour, or tornadoes).
Thunderstorms produce lightning - a greater threat to people than tornadoes. 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.
Nationally, - Fl- '
1
lightning causes y, _ ''
ea amr
extensive damage;. 10
to buildings and .°""L, '1�12d �"
*
structures kills or 130m* F `��°'_ LM
` YWm
injures people and
livestock, starts
many forest fires
and wildfires, and
disrupts
electromagnetic
transmissions.
Figure 6-1 shows
Figure 1609 from
the Florida
Building Code
(2004 draft) which
1] Values are n nrnal design, 3-second gust wind speeds
irs miles per hour (mph) at 33 Feet (10 m) abovegnwnd
for Exposure C Category-
2] This map is accurate W the county. Local "mments
eslabish specific wind speedWrd-borne debris Ines
usng physical landmarks such as major roads, canals,
rivers, and shorelines.
3) IsOiands and coastal areas outside the last oanlourshall
use the tasiwipcdspeed owtour of the coastal area.
4) Mountainous temmn, gorges, ocean promontories, and
special wind regions shall be examined for Lousual
wind 0: xn bons.
5) Wind speeds are American Sodety of Civil Engineers
Standard (ASCE 7-W) f%-iMyear peak gusls-
Monroe County LMS
Figure 6-1. Wind -Borne Debris & Basic Wind Speed
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.
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 Fujita Scale
classifies tornadoes by wind speed and degree of damage (Table 6-1)
A water spout is a violent rotating column of air that touches the water, often resulting from
thunderstorms. 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. The Fujita Scale
Wind Speeds
Scale
(miles per hour)
Damage
Frequency*
F-0
40 to 72
Some damage to chimneys, TV antennas,
29%
roof shingles, trees and windows
F-1
73 to 112
Automobiles overturned, carports destroyed,
40%
trees uprooted
Roofs blown off homes, sheds and
F-2
113 to 157
outbuildings demolished, mobile homes
24%
overturned
Exterior walls and roofs blown off homes.
F-3
158 to 206
Metal buildings collapsed or are severely
6%
damaged. Forests and farmland flattened.
Few walls, if any, standing in well-built
F-4
207 to 260
homes. Large steel and concrete missiles
2%
thrown far distances.
Homes leveled with all debris removed.
Schools, motels and other larger structures
F-5
261 to 318
have considerable damage with exterior
Less than 1 %
walls and roofs gone. Top stories
demolished.
The typical tornado path is relatively short — on the U.S. mainland, paths range from four
miles to as long as 300 miles. Path widths average 300-400 yards, but severe tornadoes
Monroe County LMS (Draft July 2005) M
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.
Severe Storm &Tornado Experience and Probability
According to "Florida Hazardous Weather, a Preparedness Guide," published by the Florida
Department of Community Affairs, most tornado deaths occur during the fall, winter, and
spring seasons when stronger dynamics are present in the atmosphere capable of producing
`supercell'/mesocyclone thunderstorms." The Wind Speed Maps generated through the
TAOS model show an equal distribution of winds over the entire area of the Keys for each
storm scenario. This demonstrates that the low-lying terrain and narrow islands do not
appreciably slow onshore winds.
Based on the NCDC online database, between 1950 and late 2004, numerous events with
winds between 50 and 85 knots were reported. Property damage over the 54 year period
was reported at less than $30,000 (not verified) and one death occurred after a boat was
capsized.
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 6-2).
Table 6-2. Lightning Deaths/Injuries for Monroe
County (1959-2005)
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
Monroe County LMS (Draft July 2005) M
Table 6-2. Lightning Deaths/Injuries for Monroe
County (1959-2005)
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
Total
5
10
Average of 0.1 deaths and 0.2 injuries per year
Source: NWS Warning Meteorologists, Miami & Key West
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.
Table 6-3 summarizes tornadoes that affected Monroe County from 1959 to 1995 and Table
6-4 lists detail on tornadoes that hit the area between 1996 and 2004. During the 45 year
span reflected in the two tables:
• A tornado of intensity FO or F1 occurs, on average, about once each year; and
• F2 tornadoes, much rarer with only 4 reported associated with two hurricanes,
caused most injuries and, by far, the most property damage.
Table 6-3. Tornadoes: 1959 - 1995
Fujita
# Tornadoes
Cumulative Damage
Scale
Reported
Deaths
Injuries
(not adjusted)
F-0
22
0
0
$153,000
F-1
14
0
11
$1,058,000
F-2
2
0
40
$742,000 (both associated
with Hurricane Agnes in
June1972
Table 6-4. Tornadoes: 1996 — 2004
Location
Affected
Date
Fujita
Scale
Deaths
Injuries
Damage
Key Largo
May 1996
F-0
0
0
Monroe County LMS (Draft July 2005) M
Table 6-4. Tornadoes: 1996 — 2004
Location
Affected
Date
Fujita
Scale
Deaths
Injuries
Damage
Grassy Key
May 1997
F-1
0
0
$150,000
Long Key
August 1997
F-0
0
0
Duck Key
September 1997
F-0
0
0
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
Source: NCDC online; NWSKW Warning Meteorologist
A significant non -tropical weather event
that affected Monroe County was the
"Storm of the Century," a severe, mega -
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.
Exposure to Tornado*
Population: 79,589
Residential: $9.3 million
Commercial: $2.1 million
Annualized Losses from Tornado **
Total Losses: $1.7 million
Tables 3.3.7* & 3.5.3**
Florida State Hazard Mitigation Plan (2004)
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
Monroe County LMS (Draft July 2005) M
touchdowns resulting from severe thunderstorms characterized by dangerous cells with high,
cold cloud tops. 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 occurred from the displacement of lobster traps which contributed to
seaborne debris and navigational problems. The fishing industry suffered considerable loss
of income.
Another significant 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-I 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.
[XX Request County GIS if locations ofMobile Home/RV Parks can be plotted: Monroe
County Property Appraiser's Office (Robbie Shaw) identified 109 Mobile Home/RV Parks
and 6,100 individual Mobile Home parcels.
6.4 Rainfall/Fresh Water Flooding
Flooding due to the accumulation of rainfall generally is not a problem in most of Monroe
County and the municipalities 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; some low areas do not drain well, resulting in ponding.
• The City of Marathon has identified several locations where ponded water
causes access problems and can affect older, non -elevated, buildings.
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.
The storm, known as the "Veteran's Day Storm," resulted from the influence of a stalled
cold front and Tropical Storm Jenne 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
Monroe County LMS (Draft July 2005) M
though the water was pouring out into the neighboring oceans, 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.
6.5 Drought
The 1998 Monroe County Comprehensive Emergency Management Plan defines drought as
"a prolonged period of dry weather during which there is an inadequate supply of water to
meet water demands." It continues that, "this prolonged lack of water can have severe
effects on people animals, and plants." It is noted that this situation could result in massive
impact to life and property and could severely affect commerce. "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.
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. 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 underwater 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.
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 Key West Weather Service indicated that drought periods in the Keys
Monroe County LMS (Draft July 2005) M
have not been prolonged or widespread and thus drought is not considered to be a significant
hazard for Monroe County.
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.
6.7 Wildland 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
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, and windy) and lack of fire suppression capability
due to remoteness or other limitations.
The Monroe County Comprehensive Emergency Management Plan notes that the threat of
brush and wildland fires is minimal for the majority of Monroe County. The exceptions are
the Everglades National Park in mainland Monroe, and on Big Pine and Sugarloaf Keys in
the Lower Keys.
A primary cause of fires is arson, especially vandalism by school age children. 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 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 fires are small and contained
quickly. On rare occasion, incidents are more serious. For the most part, fires in the
Monroe County LMS (Draft July 2005) M
Everglades do not threaten residential properties although heavy smoke can lead to road
closures. Some notable recent events include:
. In the early 1990s, wildfire on No Name Key threatened a few homes.
• Due to very dry conditions, a fire on Big Pine Key in mid-1999 involved 7
acres; although some residences are located in the affected area, no homes were
lost.
• Big Pine Key's 2002 wildfire outbreak reached about 6 acres in size and several
homes were evacuated.
. A 2003 wildfire in Cudjoe Acres threatened several homes.
The 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 6-5 indicates the total number of platted
lots, the number of lots with improvements, and the value of those improvements. It is
important to note that this summary of all properties is not to imply that all properties would
be vulnerable in any given wildfire outbreak.
Table 6-5. 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
2,741
$444,130,421
Sugarloaf Key
2,284
1,033
$252,653,244
Cudjoe Key
2,952
1,521
$251,845,233
Big Coppitt Key (including
Geiger and Boca Chica)
2,627
1,289
$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)
Existing Mitigation Measures. Monroe County has a program 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 following preventive measures are
recommended by the Department of Forestry:
. Educational programs, especially for children.
Monroe County LMS (Draft July 2005) M
• Clearing of brush, particularly vegetation close to buildings.
• 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.
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.
6.8 Overview of Monroe's Hazards & Risks
The descriptions of hazards, hazard histories, and impacts are summarized as "relative"
vulnerabilities in Table 6-6.
Table 6-6. 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
Tornado
Moderate
Moderate
1-2 per year
Countywide
Wildfire
Moderate
Moderate
Less than 1
Selected
per year
areas
Drought
Low
Low
1-2 per
Countywide
decade
Monroe County LMS (Draft July 2005) M
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 does not characterize functions
dealing 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 1824, 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. The Monroe County Comprehensive Emergency Management Plan details the
emergency responsibilities of the BOCC and the myriad procedures that flow from those
responsibilities. Emergency responsibilities include:
• Declaring states of local emergency,
• Issuing emergency orders and recommendations,
• Setting policy, providing guidance to the Incident Commander, and
• Authorizing the issuance of protective action recommendations.
The primary objective of the County's emergency planning and response functions is to
protect public safety, and virtually every department has preparedness, response and
recovery responsibilities that are outlined in the County's emergency plans (Emergency
Support Functions). In contrast, the primary objective of mitigation is to reduce risks and
damage due to natural hazards.
For administrative purposes and to conduct the work of the County, the BOCC has
organized the County into five functional divisions each with several departments (Table 7-
1). Selected departments that have direct or indirect roles in addressing natural hazards are
described below.
Monroe County LMS (Draft July 2005)
Table 7-1. Monroe County's Functional Divisions
Mitigation Role
Direct
Indirect
None
Division
Departments Supervised
County Administrator
Airport Services
✓
Fire Rescue Services
✓
Veterans Affairs
✓
Public Safety
Emergency Management
✓
Communications
✓
Solid Waste
✓
Marathon Airport
✓
Public Works
Engineering
✓
Facilities Maintenance
✓
Fleet Management
✓
Roads and Bridges
✓
Card Sound Toll Authority
✓
Animal Control
✓
Growth Management
Planning & Environmental
✓
Resources
✓
Building Code Enforcement
✓
Marine Resources
✓
GIS/Maps
✓
Community Services
Social Services
✓
Library Services
✓
Extension Services
✓
Management Services
Administrative Services
✓
Technical Services
✓
7.1.1 County Administrator/Department of Emergency Management
The County Administrator implements the policies of the Commission and administers the
overall operations of the County. The Administrator serves as Director of Management
Services and:
• May participate in conducting analyses and providing recommendations to the
BOCC for hazard mitigation options, including relocation and reconstruction of
damaged public facilities.
• Participates in intra and inter -governmental disaster planning efforts.
• Participates in post -disaster assessment and may develop mitigation initiatives
to address reduction of future loss.
Monroe County LMS (Draft July 2005)
• Oversees the Grants Manager in the Hazard Mitigation Grant Process.
• Reviews 406 hazard mitigation components of the federal Public Assistance
Program.
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. Emergency
management agencies have jurisdiction over and serve an entire county, including the
elements of preparedness, response, recovery, and mitigation. The Monroe County
Department of Emergency Management prepares the documents required to carry on its
program including the Comprehensive Emergency Management Plan, Hurricane
Evacuation, Shelter, and Refuge of Last Resort Plan, Turkey Point Nuclear Power Plant
Emergency Plan, and numerous 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, regarding emergency
preparedness.
• Emergency Management conducts an annual training program for all county
departments (including Volunteer Fire Departments), agencies (including the
American Red Cross and Salvation Army) and personnel which includes, but is
not limited to EOC operations, departmental and personnel preparedness.
• Monroe County 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 and print media 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 (ARC,
Salvation Army or HAM Radio).
• 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, and oil spill response. These
exercises are usually scheduled in conjunction with the State Division of
Emergency Management, and various County, state, and federal agencies.
• All agencies that would be responding in an actual event participate in annual
exercises and drills. Drills and exercises test emergency systems such as the
Emergency Alert System, HURREVAC, HURRTRAK, ESATCOM, Inland
Monroe County LMS (Draft July 2005)
Wind Storm Tracking/Damage Assessment Systems (TAOS), as well as
SLOSH modeling software (Sea Lake Overland Surge from Hurricanes).
The Monroe County Department of Emergency Management 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 Zoning Department is under the Division's jurisdiction. Planning staff assists
in the development of the County's Comprehensive Plan.
The Building, Planning, and Zoning Department is responsible for reviewing construction
plans, issuing building permits, 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 totals for permits issued
between January 1, 1999 and December 31, 2004 (along with annual averages). The
Division serves as the coordinator for the National Flood Insurance Program and assists the
public in identifying and implementing flood damage prevention measures.
Monroe County LMS (Draft July 2005)
Table 7-2.
Permits Issued Between January 1, 1999 and January 31, 2004
Activity
Total (average)
New single-family, detached
930 (230/yr)
Multi -family (2 or more)
852 (210/yr)
Non-residential (all types)
98 (25/yr)
Residential (additions, alterations, repairs)
6,561 (1,640/yr)
Non-residential (additions, alterations, repairs)
899 (225/yr)
Demolition
439 (110/yr)
Mobile home (permanent/temporary)
3 (1/yr)
Total
9,782 (2,445/yr)
Source: Monroe County Building Department
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.
• 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.
Monroe County LMS (Draft July 2005)
• Environmental Resources monitors environmental provisions in regulations,
codes, and plans and coordinates with other agencies as needed.
7.1.3 Public Works Department
The Public Works Department 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 department operates and maintains the County's heavy
equipment, vehicles, repair shop, and fueling stations. The County's engineering operations
function under the Public Works Department.
The Public Works Department 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 91).
• Allocate, prioritize, and coordinate public and private transportation resources
for the conveyance of goods, materials, and services within the affected areas.
• Assist with re-entry and respond to assistance requests from municipal
agencies.
• Conduct initial or preliminary assessments to provide early estimates of
damage.
• 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.).
• Plan, coordinate and initiate restoration of the serviceability of transportation
routes, bridges.
• Assist with inspection of damaged private buildings to determine stability, level
of damage, and safety with respect to reoccupation.
• Coordinate emergency contracting and emergency repair of drainage and solid
waste facilities.
7.1.4 Division of Public Safety
The Division of Public Safety has administrative responsibility for Waste Management,
Communications, the Marathon Airport, and the Office of Emergency Management.
Monroe County LMS (Draft July 2005) M
Monroe County Fire/Rescue, is comprised of Emergency Medical Services, and the County
Fire Marshall's Office. During an emergency these agencies are responsible for firefighting,
medical services, and urban search and rescue.
The Division of Public Safety (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 Board
• Manage shelters
• Coordinate with the Florida Department of Forestry, U.S. Navy, Boca Chica,
Florida Marine Patrol, 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.
Monroe County LMS (Draft July 2005)
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.
• 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
both in -county and out -of -county hurricane sheltering operations.
7.1.6 Monroe County Management Services
Management Services includes the Office of Management and Budget, the Purchasing
Department, and the Finance Department. The day-to-day financial management and
satisfying fiscal requirements, including grants management functions are overseen by
Management Services.
Management Services is responsible for the following disaster -related activities:
• Assist all departments 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.
• To reduce confusion and expedite the supply process during an emergencies,
establishes pre -arranged contracts with vendors.
• Establishes financial management procedures in conformance with State and
federal requirements specific to funding sources.
7.1.7 Monroe County School Board
The Monroe County School Board 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 Board's mitigation and response activities include:
• The Board's construction standards among the strictest in the State; new
construction is required to meet 150 mile per hour wind -load standards.
Monroe County LMS (Draft July 2005)
The Board and school system is a participating member on the Local Mitigation
Strategy Working Group.
• The Board 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. [XX Which schools were retrofitted (and
source/amount of funds)]
• A Generator Shelter Retrofit Grant is to be submitted in 2005; the schools will
be Key West High School, Sugarloaf Elementary, Switlik School, Coral Shores
High School, Key Largo Elementary, and the St. Justin's the Martyr Catholic
Church.
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.
Monroe County LMS (Draft July 2005) '
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".
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:
• The South Florida Water Management District analyses and recommends water
control measures to mitigate hazards such as floods and droughts.
• 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:
Monroe County LMS (Draft July 2005)
• 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. After Hurricane Andrew in 1992,
power failures in Homestead suspended pumping and prevented the flow of
water to the Keys. The Authority works to find ways to deal with disruption,
including identification of alternative sources when water cannot be supplied
through the pipeline.
• 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.
7.2.4 Electric Utilities
The electric utilities that serve Monroe County are the Florida Keys Electric Cooperative
(FKEC), the Key West City Electric System (KWCES), 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,
potable water, and other forms of energy and fuel, which affect or may affect
significant numbers of citizens and visitors.
• Restoration of 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.
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 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.
Monroe County LMS (Draft July 2005)
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
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 stormwater 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
Monroe County LMS (Draft July 2005)
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.
• 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 stormwater management system
which protects real and person properties, and which promotes and protects
ground and nearshore water quality.
• 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
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
Monroe County LMS (Draft July 2005)
are identified as those expected to be inundated by the 1%-annual chance flood (commonly
called the "100-year flood").
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 NFIP Flood Insurance
subject to flooding. The FIRMS show the anticipated flood Policies in Monroe
elevations (referenced to mean sea level). County: 21,728
The County's Floodplain Management Ordinance specifies Claims paid since
standards for residential and non-residential construction and 1978: 3,676*
water supply and sanitary sewer systems that are located in http:llwww.fema.gov/nfip/pcs
areas of special flood hazard. It prohibits the alteration of tat.shtm
(as of December 31, 2004)
sand dunes, mangrove stands or wetlands if such alterations
'includes properties now in
would increase the potential for flood damage. Placement of Marathon
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 floodplain 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
Monroe County LMS (Draft July 2005)
written. As of mid-2005, over 600 properties had been inspected and nearly 500 had been
brought into compliance.
Section 9.5-319 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 the Florida Department of Community Affairs 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. Within unincorporated Monroe County there are 161
repetitive loss properties (based on data as of October 2003). The cumulative payments
(claims paid on building damage and on contents damage) range from just over $2,000 to
more than $238,000. Figures 7-1 show the locations of the property addresses that were
mappable (XX insert number of addresses that were not able to be mapped using the
addresses provided). It is notable that [XX describe clusters?
[XX insert Figure 7-1 NFIP Repetitive Loss Properties (as of 10-2003). Requested 6/24
(may be six pages)
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 Category 1 Hurricane is
considered to represent a good approximation of locations predicted to experience
destruction or severe damage during storms 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."
Monroe County LMS (Draft July 2005)
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
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
Coastal High Hazard Area
recognize the importance of informing residents and
Areas which have historically
visitors about hurricanes, evacuation, public safety,
experienced destruction or
and minimizing damage. The following are some key
severe damage, or are
scientifically predicated to
ways that communications are undertaken:
experience destruction or severe
• The front page of the Monroe County website has damage from storm surge,
links for emergency management and emergency waves, erosion, or other
bulletins, manifestations of rapidly moving
• The emergency management page offers or storm -driven water.
information about hurricane preparedness, the
Special Needs Registry, what to bring to shelters,
and several links to pertinent sites,
• Emergency bulletins are posted when storm activity increases,
Monroe County LMS (Draft July 2005) M
• People can request e-mail notification whenever emergency bulletins are 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 includes several hazard -related
pages, including one on floodplain management in the Keys (see graphic), and
• American Red Cross does some public service announcements.
Hurricane wind and flood hazards are well -recognized throughout the Keys, but the
importance of awareness is emphasized in the Floodplain Management Ordinance (at
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".
Monroe County LMS (Draft July 2005)
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
and compliance with various regulations. As of mid-2005, the following characterize some
of these activities:
• Public Works is developing a work order system which will automate issuance
of instructions for periodic hurricane inspections of County buildings and
facilities.
• The Key West Airport Authority is planning to replace a portion of the
terminal, including a new tower. The facility must meet the wind resistance
provisions of the Florida Building Code.
• Engineering is preparing to issue a solicitation for study of revetments that
protect the shorelines of various County properties.
• A Public Works facility is being planned for Rickland Key. It will be designed
as an "essential facility," which exceeds minimum design requirements for this
type of building.
• Some County buildings have been retrofit under the State Shelter Retrofit
Program.
Monroe County LMS (Draft July 2005)
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 wood frame structures 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 27,000 (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 County LMS (Draft July 2005)
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.
Comprehensive Plan
Key West Comprehensive Plan includes such mitigation policies as restoration of the dune
system using natural, indigenous vegetation for beach renourishment projects. The City
applies performance criteria and regulatory techniques for hazard mitigation and loss
reduction, such as prohibition in the Coastal High Hazard area of construction of sewage
treatment plants, industrial holding ponds, and other point sources of pollution. Non-
residential development must meet storm and floodproofing standards that exceed the
minimums established by the National Flood Insurance Program.
The Coastal Management Element includes policies to restrict development in the Coastal
High Hazard Area, including prohibition of construction of new sewage treatment plants,
holding ponds, and other point sources of pollution. Non-residential development must
meet storm and floodproofing standards that exceed minimums established by the National
Flood Insurance Program.
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.
Monroe County LMS (Draft July 2005)
• 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. Department personnel
serve as staff to the City's Planning Commission and, 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.
• Participates in post -disaster appraisals and may formulate additional mitigation
measures for use in the Comprehensive Plan.
• Works closely with building and zoning staff to ensure coordination of actions
related to disaster planning, recovery, and mitigation.
• Incorporates mitigation recommendations, especially those based on direct
disaster experience, in the Evaluation and Appraisal Reports (EAR) required for
the Comprehensive Plan.
Key West Building and Zoning Department The Building and Zoning Department
recommends and implements policies provided in the City's Comprehensive Plan and Land
Development Regulations. It also reviews construction plans, issues permits, and inspects
projects for compliance. The Department is responsible for enforcing zoning and building
standards. Department personnel serve as staff to the City's Historic Architectural Review
Commission and:
• Supervise implementation of floodplain management controls and zoning
regulations 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.
• Implements zoning and development polices for the City's redevelopment areas
(Bahama Village and Key West Bight), including mitigation measures
Monroe County LMS (Draft July 2005)
characterized in the Comprehensive Plan as follows "Within the Key West
Bight Area, in order to curtail the likelihood of future property damage and/or
exposure to the perils of storm driven tides, wind, and waves, the land
development regulations shall include performance criteria which restrict
building mass and building intensity at strategic locations vulnerable to storm
surge .
Participates in the Post -Disaster Recovery Task Force.
Table 8-1.
Permits Issued in 2003 & 2004
Type of Development
Calendar Year
2003
Calendar Year
2004
New single family
1,072
417
New other (commercial, industrial, religious, etc.)
66
66
New multi -family (2 or more)
14
20
Commercial (additions, renovation, conversions)
697
597
Residential (additions, renovation, conversions)
1,737
1,800
Other
2,983
2,686
Demolition
36
45
Relocation
0
0
Manufactured home (permanent, temporary)
7
12
Totals
6,612
5,643
Key West Historic Architectural Review Commission (HARC). Key West includes
numerous historic resources, including a National Register Historic District. HARC reviews
activities that impact historic structures and the historic district. The guidelines used by
Monroe County LMS (Draft July 2005)
HARC incorporate the principles of the Secretary of the Interior's Standards for
Rehabilitation, along with local controls related to landscaping, signs, etc.
Because historic properties in Key West are treasures that require special treatment and
contribute to the City's character which enhances tourism, it is important that the City
consider policies that apply to reconstruction after damaging events. HARC developed a
"Hurricane Preparation and Recovery Guide" specifically designed for the Key West
National Register Historic District. It addresses application of flood height standards, codes,
and use of materials that may be considered non -conforming, and requirements if the
historic building would receive damage in excess of 50% of the value.
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.
Key West 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.
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.
Key West Public Works Department. The Public Works Department is responsible for
overseeing the maintenance and operation of all city facilities, including buildings, roads
and bridges. Public Works 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.
Monroe County LMS (Draft July 2005)
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 City Electric Incorporated. 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 Utilities Director. 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.
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.
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.
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
Monroe County LMS (Draft July 2005) M
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.
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.
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 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.
Monroe County LMS (Draft July 2005)
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 11, 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 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.
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
Monroe County LMS (Draft July 2005)
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.
Damages due to Hurricane Georges
Table 8-2 summarizes reimbursements received by the City from FEMA's disaster
assistance program (see also Table 5-7 for reimbursements received by others). 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 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 8-2. FEMA Reimbursements for Hurricane
Georges (DR#1249)
Amount of
FEMA Category of Damage Reimbursements
Monroe County LMS (Draft July 2005) : '
Table 8-2. 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
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 8-3. SLOSH Maximum Predicted Water Depths 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
1 6
8
1 9
10
WNW
4
7
1 8
10
1 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
5
7
8
10
E
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
Monroe County LMS (Draft July 2005)
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 day. Damage to private
structures and contents and the costs of clean up are not NFIP Flood Insurance
estimated. The most susceptible locations include: Policies in Key West:
• The north section of Old Town bounded by the Gulf of 8,345
Mexico and Whitehead and Green Streets, some
buildings experience flooding above finished floor Claims paid since
elevation flooding approximately twice a year; 1978: 621
• Palm Avenue and Eaton Street (at White Street) which http:llwww.fema.gov/nfip/pcs
can reroute 5,000 vehicles per day during heavy rains, tat.shtm
affects businesses, and causes stranding of residents of (as of December 31, 2004)
the adjacent housing authority homes;
• Sirugo Avenue and Sunshine Drive, which has floods above finished floors in
residences annually;
• United Street and Thompson Street basin, which has causes flooding of
residences finished floor;
• North Roosevelt Boulevard (US Highway 1) which floods two outbound lanes
completely during heavy rain storms 2 to 3 times each year, negatively
impacting businesses and causing significant traffic rerouting;
• Fourth Street at Patterson Avenue floods frequently, causing commercial
business and residential traffic disruptions;
• Blanch, Dennis and Duncombe Streets causing school bus disruptions and
flooding above finish floors of residences;
• Duck Street and 20th Street, causing traffic disruptions and flooding above
finish floors of residences;
• Various very localized flooding spots causing water infiltration into homes and
businesses can be found around town.
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
15, 2002. 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). 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:
Monroe County LMS (Draft July 2005)
• 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 Department of Community Affairs 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. Within unincorporated Key West there are 51
repetitive loss properties (see Figure 7-1; based on data as of October 2003). The
cumulative payments (claims paid on building damage and on contents damage) range from
just over $5,000 to more than $598,000.
Tornadoes in Key West
Table 8-4 includes information on tornadoes that have affected Key West since the late
1950s. Fortunately, no deaths or injuries have resulted.
Table 8-4. 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
Source: NWS Key West Warning Meteorologist
Monroe County LMS (Draft July 2005)
Key West's Important and Critical Facilities
Figure 8-5 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 8-5. Important and Critical Facilities in Key West
Critical/Essential Facilities:
• 6 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, 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
Hazardous Materials Sites (302 Facilities):
• Bell South, 530 Southard Street
• KES 1001 James Street
• Key West Wastewater Treatment Plant, Trumbo
Point Annex, Fleming Key
• Naval Air Station, Trumbo Point
Marinas:
• A & B Marina
• Galleon Marina
• Garrison Bight Marina
• Hilton Haven Marina
• Key West Seaport
• Key West Yacht Club Marina
• Land's End Marina
• Truman Annex Marina
• City Marina
• Ocean Kev House
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
• Keys Energy Services Main Office & Substation
• Florida Keys Aqueduct (FKAA) Authority Main
Office, Water Towers, Storage Facility, Pump
Station
Mobile Home and Recreational Vehicle Parks (as
of October 1995):
• Key West Villas (Poinciana) LTD Mobile Home
Park
• Stadium Mobile Home Park
• Key West Trailer Court
• Mastic
Cruise Ship and Ferry Ports:
• Mallory Square
• Outer Mole
• Pier B
• KW Ferry Terminal
Monroe County LMS (Draft July 2005)
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. In mid-2005, the Key West Planning Department determined to seek reinstatement
which, if approved, will yield a reduction in the cost of federal flood insurance.
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 8-6 lists projects completed between 1999 and 2004.
Table 8-6. Key West Mitigation Projects (1999-
2004)
Mitigation Project Location
Key West Transfer/SWTE
L
E
DOT Building
L }i
FDS Gym
U)
Fire Station #1
HMGP
Grinnel Street (Backflow preventers)
William Street
N
Elizabeth Street
3 E
Green Street
0 o
Duval Street
U) E
Ashby Street Pump Station
Simonton Street (Duval/Front Pump Station)
Major Pipe Cleaning Project
—
White Street
Kamien Subdivision
U
o •o
Fort Street
U
a
Reynold Street
Searstown/Donald Ave
Monroe County LMS (Draft July 2005)
Table 8-6. Key West Mitigation Projects (1999-
2004)
Mitigation Project Location
2005 Project: 26 Locations
Margaret Street
Olivia Street
N
Rest Beach Berm
Dog Beach Berm
U
South Beach Berm
Co
06
Simonton Beach Berm
Smathers Beach Berm
Seawall Additional Length
Co
South Beach Pier
Monroe County LMS (Draft July 2005)
eKte9@
ei
j/
Monroe County !MS (Draft alymo)! : .
Monroe County LMS (Draft July 2005)
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 192. 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 exceed the minimum federal requirements.
Monroe County LMS (Draft July 2005) '
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. In fulfilling these duties, the City Manager:
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.
Table 9-1. Layton: Permits Issued (2003, 2004).
Calendar
Year 2003
Calendar
Year 2004
New single-family, detached
0
8
New single-family, attached
0
0
Multi -family (2 or more)
0
0
Non-residential (all types)
0
0
Monroe County LMS (Draft July 2005) '
Table 9-1. Layton: Permits Issued (2003, 2004).
Calendar
Year 2003
Calendar
Year 2004
Residential (additions, alterations, repairs)
19
23
Non-residential (additions, alterations, repairs)
0
0
Demolition
0
0
Relocation
0
0
Mobile home (permanent/temporary)
0
0
Total Permits Issued
19
31
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).
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:
Monroe County LMS (Draft July 2005) '
• 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.
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.
Table 9-2. SLOSH Maximum Predicted Water Depths 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
NFIP Floodplain Mapping
Layton has participated in the National Flood Insurance Program (NFIP) since July 1971.
The City's current effective Flood Insurance Rate Map, prepared by FEMA, is dated
February 19, 2005. The FIRM delineates areas that have been determined to be subject to
Monroe County LMS (Draft July 2005) '
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 NFIP Flood Insurance
to some degree of risk depending on type of construction and Policies in Layton: 99
elevation above grade. Areas designated as VE Zones (coastal
Claims paid since
flood with velocity hazard wave action) are shown as exposed to 1978: 4
flooding ranging from 11-13 feet above MSL. Areas delineated
as AE Zones (areas subject to flooding but waves are predicted to http:llwww.fema.gov/nfip/pcsta
t.shtm
be less than 3-feet in height) are exposed to flooding 8-9 feet (as of December 31, 2004)
above MSL.
NFIP Repetitive Loss Properties
Data provided by the Florida Department of Community Affairs 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 2003 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 6.6. 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
Monroe County LMS (Draft July 2005) '
be along the city's boundary with Long Key State Park where natural vegetation may
increase fire hazards during some dry periods.
Risk: Layton's Critical and Important Facilities
Table 9-2. 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.
Monroe County LMS (Draft July 2005) M
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,
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 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).
Monroe County LMS (Draft July 2005) '
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
for 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.
Monroe County LMS (Draft July 2005)
The Infrastructure Element includes:
Complete a detailed engineering study of drainage and implement priority
storm water projects. As of mid-2005 date, the City is 50% 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 five 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.
Monroe County LMS (Draft July 2005)
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 and are involved in the following 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.
• 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.
• 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 10-1. Permit Statistics for 2004.
Permits Issued
CY
2004
New single-family, detached
3
Duplexes
4
Multi -family (3 or more)
1
Non-residential (all types)
0
Residential (additions, alterations, repairs)
304
Monroe County LMS (Draft July 2005)
Table 10-1. Permit Statistics for 2004.
Permits Issued
CY
2004
Non-residential (additions, alterations, repairs)
3
Demolition
2
Relocation
0
Number of inspections
901
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.
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.
Monroe County LMS (Draft July 2005)
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 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 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
Monroe County LMS (Draft July 2005)
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 6th 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 25 h 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 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 that 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
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, 8.3 8 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.
Monroe County LMS (Draft July 2005) M
• 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.
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
• 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 tile 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
Monroe County LMS (Draft July 2005)
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 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
13
14
15
16
17
JE
13
14
15
16
18
NFIP Floodplain Mapping
The National Flood Insurance Program (NFIP) prepared a Flood Insurance Rate Map for
Monroe County (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 Flood Insurance
Policies in Key Colony
Beach: 1,213
Claims paid since
1978: 128
http://www.fema.gov/nfip/pcsta
t.shtm
(as of December 31, 2004)
♦
Monroe County LMS (Draft July 2005)
NFIP Repetitive Loss Properties
Data provided by the Florida Department of Community Affairs 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. Within unincorporated Key Colony Beach there are 9
repetitive loss properties (see Figure 7-1; based on data as of October 2003). The
cumulative payments (claims paid on building damage and on contents damage) range from
just over $7,000 to more than $348,000.
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 50% completed construction as
of this date.
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 10-1 shows the locations of the City's water treatment and sewer facilities, city
buildings and emergency facilities that are listed in Table 10-2.
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)
Monroe County LMS (Draft July 2005) I '
Table 10-3. Important and Critical Facilities in Key Colony Beach
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.
• 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.
• 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
Monroe County LMS (Draft July 2005)
• Makes NFIP map determinations
• Sends annual NFIP mailings to all local lenders, realtors, and insurance
companies
• Keeps NFIP library in City Hall
• Constructs stormwater facilities
• Warns citizens of impending flooding
Recent Projects
• Since Hurricane Andrew, the City has reconstructed 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.
The City's master storm water control project that 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 this date, the citywide project is approximately 50% complete.
Monroe County LMS (Draft July 2005)
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 corporate boundaries extend
from Mile Marker 90.939 to Mile Marker 72.658 (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. The highest elevation is 18 feet above mean sea
lever at Lignum Vitae Key.
Population
Islamorada has a permanent resident population of 6,846 (2000 Census). Tourism
sometimes doubles the population in the area. Current population projects indicate the
permanent population may grow to 8,200 by 2010.
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 County LMS (Draft July 2005)
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. The citizens of the Village depend upon the ocean for many basic
needs. The lack of affordable housing sanctions the use of marine vessels for housing for
many residents. 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, tourist -oriented recreational uses, and government uses.
The Village joined the National Flood Insurance Program in October 1996 and administers a
floodplain management ordinance that meets or exceeds the minimum federal requirements.
Four 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); Indian Key; and Lignum Vitae 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.
Monroe County LMS (Draft July 2005)
The Village is a rural municipality, with 60 employees delivering basic services of
government including:
■ Fire protection emergency medical services;
■ 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 Village's primary departments that have responsibilities that have bearing on how
natural and manmade hazards are recognized and addressed and with active roles in
mitigation and protection of public facilities are the fire, building, planning and public works
departments.
Table 11-1. Islamorada: Permits Issued (2003, 2004).
Calendar
Year 2003
Calendar
Year 2004
New single-family, detached
31
28
New single-family, attached
0
0
Multi -family (2 or more)
2
1
Non-residential (all types)
10
15
Residential (additions, alterations, repairs)
209
188
Non-residential (additions, alterations, repairs)
41
10
Demolition
36
41
Relocation
0
0
Mobile home (permanent/temporary)
1
0
Total Permits Issued
330
283
Total Inspections Conducted
515
533
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.
Monroe County LMS (Draft July 2005)
The tropical storm was more severe than originally anticipated and spawned several
tornadoes. The Upper Keys, including the Village sustained serious amounts of damage.
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 intense5and deadliest hurricanes.
Winds were 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 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.
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.
Florida has been devastated by several flood -related events over the years, caused by heavy
rainfall, tropical depressions and hurricanes. Between 1992-1994, 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.
Monroe County LMS (Draft July 2005)
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
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 the 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.
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.
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 11-1 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 County LMS (Draft July 2005)
Table 11-2. SLOSH Maximum Predicted Water Depths 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
7
8
9
WNW
4
6
7
9
10
WNW
4
5
6
7
8
WN
4
6
7
9
10
NW
3
4
6
7
7
NNW
4
5
7
8
9
NNW
3
4
6
7
8
N
4
5
7
8
9
N
3
4
6
7
8
NNE
4
5
6
8
9
NNE
3
5
6
7
8
NE
4
5
6
7
8
NE
4
5
7
8
9
ENE
3
5
6
7
8
ENE
4
7
9
10
11
E
3
4
6
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
10
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
6
7
7
NNW
3
5
6
7
9
NNW
4
6
7
9
10
N
3
5
7
8
9
N
4
5
7
8
9
NNE
3
5
7
8
9
NNE
4
5
7
8
10
NE
4
6
8
9
1-
NE
4
5
6
8
9
ENE
5
8
10
12
13
ENE
4
5
6
8
9
E
6
10
11
12
13
E
3
5
6
7
8
Monroe County LMS (Draft July 2005) M
NFIP Floodplain Mapping
The National Flood Insurance Program (NFIP) prepared a Flood
Insurance Rate Map for the Village of Islamorada (current
effective map is Monroe County's Flood Insurance Rate Map
dated February, 2002). 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.
NFIP Flood Insurance
Policies in Marathon
7,266
Claims paid since 1978:
8*
http://www.fema.gov/nfip/pcstat
.shtm
(as of December 31, 2004)
'records prior to incorporation
included in claims for Monroe
County
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 Department of Community Affairs 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. Within unincorporated Islamorada there are 3 repetitive loss
properties (see Figure 7-1; based on data as of October 2003). The cumulative payments
(claims paid on building damage and on contents damage) range from just over $3,000 to
more than $75,000.
Islamorada's Important and Critical Facilities
Table 11-2 lists the City's important facilities, some of which area shown in Figure XX-XX.
Table 11-2. Important and Critical Facilities in Islamorada
Critical/Essential Facilities:
Other Facilities:
Village of Islands Government Center (under
U.S. Coast Guard Station
design)
Plantation Key Convalescent Center
Monroe Sheriff's Sub -Station
Florida Keys Electric Cooperative Sub -Station
Founder's Park
Island Christian School
Islamorada Fire -EMS Station #20/EOC
Florida Keys Children's Shelter
Coral Shores High School (County)
Comcast Cable
Monroe County LMS (Draft July 2005)
Plantation Key Elementary School (County)
Marinas:
Papa Joe's Marina
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
11.4 Damage Reduction Activities
On -Going Activities
Mobile Home and Recreational Vehicle Parks (as
of October 1995):
Coral Bay Trailer Court
Key Lantern Travel Trailer Park
Peaceful Palms Mobile Homes (Windley Key)
Windley Key Trailer Park
Airstream Road & Village Street (Plantation Key)
Mobile Home Park
Sea Breeze Trailer Park (Plantation Key)
San Pedro Trailer Park (Plantation Key)
Plantation Tropical Park (Plantation Key)
• Continue the inspection of enclosures below elevated lowest floors, as required
by FEMA.
Recent Projects
[XX this section is to list recent discrete projects to reduce damage, such as retrofits of
specific public buildings and facilities (with or without FEMA funding; if with FEMA
funding, provide amount and source (e.g., 406, HMGP, FMA).
Monroe County LMS (Draft July 2005)
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 situated in a precarious physical location 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. Storm surge can be expected to be from 2
feet in a category 2 or 3 hurricane to as much as 14 feet in a category 4 or 5 hurricane. The
City of Marathon would be flooded in a Category 4 or 5 hurricane, worst -case storm surge.
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.
Monroe County LMS (Draft July 2005)
Population
According to the 2000 U.S. Census, The City Marathon has a permanent resident population
of 10,255. The seasonal population increases by as much as 4,931. There are 6786
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.
In 2004, the Monroe County Social Services registered 11 people in the Marathon area as
having special needs for hurricane evacuation assistance.
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 adopted by Monroe County
in 1992 to implement portions of its 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 Marathon is twenty-four 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
Monroe County LMS (Draft July 2005)
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.
• The Conservation and Coastal Element 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 (or designee) is appointed to administer and implement these provisions
consistent with the requirements of the National Flood Insurance Program.
Monroe County LMS (Draft July 2005)
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, Planner, Planning Technician,
Biologist) serve as staff to the City's Planning Commission and are involved in the
following which are 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.
• 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,
Executive Plans Coordinator, and three 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
(2002, 2003)
Fiscal Year
Fiscal Year
2002
2003
New single-family (Market Rate &
23
24
Affordable)
Transient Residential Use
N/A
69
Monroe County LMS (Draft July 2005)
Table 12-1. Permits Issued & Inspections Conducted
(2002, 2003)
Fiscal Year
2002
Fiscal Year
2003
Building Permits
904
910
Electric Permits
237
179
Plumbing Permits
163
418
Mechanical Permits
216
249
Number of inspections
2,366
4,783
Marathon Code Compliance Department The Code Compliance Department oversees
after -the -fact code compliance issues pertaining to safety, health, and environmental land
use zoning regulations. The department is staffed by a Code Compliance Supervisor, a
Code 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.
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 Engineering Department. The Public Works Division works under the direction
of the Engineering Department and is responsible for overseeing the maintenance of all city
facilities, including buildings, roads, and bridges. It manages the stormwater program,
including design and construction of stormwater facilities. The Department also operates
and maintains City 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
Monroe County LMS (Draft July 2005)
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 provides emergency management
assistance and direction to the City of Marathon 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.
The department, 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 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.
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
Monroe County LMS (Draft July 2005) M
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 6th 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 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
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, 8.3 8 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
Monroe County LMS (Draft July 2005)
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 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 at mile markers close to the Marathon area for various
storm categories and tracks are shown in Table 12-2.
Table 12-2. SLOSH Maximum Predicted Water Depths 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
6
8
NFIP Floodplain Mapping
The National Flood Insurance Program (NFIP) prepared a Flood Insurance Rate Map for
Monroe County (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
Monroe County LMS (Draft July 2005)
has a I -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 Department of Community
NFIP Flood Insurance
Policies in Marathon
2,682
Claims paid since
1978: 0*
http://www.fema.gov/nfip/pcsta
t.shtm
(as of December 31, 2004)
'records prior to incorporation
included in claims for Monroe
County
Affairs 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. Within unincorporated Marathon [XX complete this
text if the GISplot indicates any are within corporate boundaries (some of the NFIP's older
records predate Marathon's incorporation); if yes, refer to Figure 7-1
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 109th Street. Access to about 200 buildings is limited during
heavy and prolonged storms. While many of the buildings are elevated, about 50 older
buildings are built on -grade and have experienced flooding. In Hurricane Georges, water up
to one -foot deep caused damage.
Monroe County LMS (Draft July 2005) '
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 City has instituted a stormwater fee which will support continued evaluation,
engineering and construction of drainage improvements.
Because all of Marathon is mapped 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 6.6. 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 and Key Colony Beach, Grassy
Key (including Geiger and Boca Chica) is the area that is most prone to wildland or 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 ROGO and property owner choices; all new construction
must comply with environmental restrictions.
Marathon's Critical and Important Facilities
Table 12-3 lists the City's important facilities (XX if we get a map from GIS to show some
of these, refer to it here).
Monroe County LMS (Draft July 2005)
Table 12-3. Critical and Important Facilities
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
• Nursing Home
• Boot Key Harbor City Marina
• Florida Keys Aqueduct Authority
• Border Patrol
• Crawl Key Sewer Treatment Plant (future)
• Burdines Water Front
• Fire Station #14
• Cannon Marine & Harbor Point
• 33rd Street Fire Station (future)
• Captain Hook's Marina
• Monroe County Operation Center
• Captains Three Fisheries
• Little Venice Sewer Treatment Plant
• Coco Plum Marina & Storage, Inc.
• Coconut Cay Resort & Marina
Hazardous Materials Sites (302 Facilities):
• Per Comprehensive Plan policy 3-3.3.1, the City
• Coconut Palmas, Inc.
will identify Hazardous Material Locations
• Coral Island Yachts
Monroe County LMS (Draft July 2005)
Table 12-3. Critical and Important Facilities
Mobile Home and Recreational Vehicle Parks (as
. Crystal Bay Resort & Marina
of January 2005):
• D & D Seafood
• Aloha Trailer Park
• Driftwood Marina & Storage
• Farnsworth Trailer Park
• Faro Blanco Resort Gulfside
• Galway Bay RV and Mobile Home Park
• Faro Blanco Resort Oceanside
• Jolly roger Travel Park
Galway Bay Trailer Park and Marina
• Key RV Park
Grassy Key Marina of Marathon
• Knights Key Campground
Hidden Harbor
Holiday Inn
• Lion's Lair Travel Park
Jolly Roger RV Park
• Ocean 25 Company, Inc.
Keys Boat Works, Inc.
• Ocean Breeze Park West
Keys Fisheries Market & Marina
Keys Fisheries (Joe's Stone Crab)
• Ocean Breeze Trailer Park
Kingsail Resort Motel
• Old Towne Village
Knight's Key Campground
• Palms Subdivision Trailer
Lion's Lair RV Park
• Pelican Motel & Trailer Park
Marathon Marina & Boat Yard
Marathon Yacht Club
• Sundance
Marie's Yacht Harbor & Marina
• Terra Marine Park
Ocean Breeze RV Park & Marina
• Trailer Ranch by the Sea
Oceanside Marine Service, Inc.
Outta The Blue Marina
• Trailerama Park
Pelican Resort
• Whispering Pines
Pancho's Fuel Dock
• Trailers by the Sea
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
12.4 Damage Reduction Activities
On -Going Activities
• 107th to 109a` 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. (Construction expected 2005/2006)
• West 105a` to 116th Street Stormwater Improvement Project: includes the
installation of drainage and retention structures to minimize the water quality
Monroe County LMS (Draft July 2005)
impacts from rainfall/flood events with a 25-year frequency. (Construction
expected 2005/2006)
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 39th Street (2nd Ave), which will provide a means
for discharge through two drainage wells and thereby allow bleed -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" Inj ection well and one double chamber
Baffle Box. (Completed March 2005)
References:
City of Marathon, Comprehensive Plan (2005).
City of Marathon, Stormwater Management Master Plan (October 2002). Calvin -Giordano
& Associates.
Monroe County LMS (Draft July 2005)
Monroe County LMS (Draft July 2005)
Chapter 13: Mitigation Initiatives
Hurricanes and their associated hazards (high wind and surge flooding) are described in
Chapter 5 and other hazards are overviewed in Chapter 6 (severe storms/tornadoes,
rainfall/fresh water flooding, drought and wildland fire). For the purposes of actively
pursuing damage reduction activities, the Monroe County LMS Work Group determined
that it is appropriate to focus on the hazards that have relative vulnerability ranking of
"high" and "moderate" (Table 13-1). Ongoing activities related to hurricane/tropical storm
and flooding (administering codes and regulations, etc.) will continue. Ongoing activities
related to tornadoes (monitoring and warning) and wildfire (cooperation with State services,
maintaining fire suppression capabilities) will continue.
Table 13-1. Hazards: Relative Vulnerability
Hazard
Vulnerability
Hurricane/Tropical Storm
High
Flooding (rainfall ponding)
High (locally)
Tornado
Moderate
Wildfire
Moderate
13.1 Range of Mitigation Initiatives
In the State Mitigation Plan the Florida Department of Community Affairs uses six general
categories or approaches to mitigation (Table 13-2). The members of the Monroe County
LMS Work Group considered 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 desiqn requirements
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
Monroe County LMS (Draft July 2005)
Table 13-2. Categories of Mitigation Initiatives.
• Elevation of structures in floodplains
• Retrofit of structures in high wind zones
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 safety
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
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 and outreach
• Technical assistance for property owners
• Real estate disclosure information
• Environmental education programs
13.2 Mitigation Initiatives
Elements of the Monroe County LMS Goals highlight the importance of reducing potential
damage to critical facilities (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
Monroe County LMS (Draft July 2005)
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 cities 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. For example, every
jurisdiction issues building permits and administers a floodplain management ordinance.
New buildings and infrastructure must comply with current Florida Building Code and
regulations which 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. Key West and Marathon pursue projects to improve
drainage in areas subject to rainfall flooding.
Monroe County and the cities 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 Key West City Electric 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.
13.3 Initiatives for Work Group as a Whole
The Monroe County LMS Work Group identified two programmatic initiatives that relate to
improving its own functions and responsibilities and one initiative that involves all
jurisdictions to improve NFIP data on repetitively -flooded properties (Table 13-3).
Table 13-3. High Priority Mitigation Initiatives: Work Group
Jurisdiction/Entity Monroe County and cities of Key West, Marathon, Key Colony
Beach, Layton, and Islamorada; all participating non-profit
entities/utilities
Description 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 in Appendix XX
is designed to help entities collect the data. As part of the
annual LMS update, participants will review and update the
Monroe County LMS (Draft July 2005)
Table 13-3. High Priority Mitigation Initiatives: Work Group
data to reflect changes.
Hazards
All
Potential Funding Sources
Staff time
Estimated Time Frame
By December 31, 2006
Jurisdiction/Entity
Monroe County and cities of Key West, Marathon, Key Colony
Beach, Layton, and Islamorada; all participating non-profit
entities/utilities
Description
The Work Group's experience with the previously -adopted
process for the 2005 HMGP applications indicated a need to
modify the process by which potential mitigation initiatives are
submitted and, when funding becomes available, how the
Work Group establishes priorities among the initiatives that
proponents wish to submit for funding. At the May 24, 2005
Work Group meeting it was determined appropriate to develop
a 2 or 3-step process. This initiative will complete
development of the forms and scheme that will be used to
prioritize initiatives when future funding becomes available
(which will be inserted in Appendix XX). This action also
involves completion of the tracking spreadsheet with data
deemed appropriate by each entity (Appendix XX).
Hazards
All
Potential Funding Sources
Staff time to participate in Work Group
Estimated Time Frame
By December 31, 2005
Jurisdiction/Entity
Monroe County and cities of Key West, Marathon, Key Colony
Beach, Layton, Islamorada
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 (surge and ponding)
Potential Funding Sources
Staff time for data verification
Estimated Time Frame
By December 31, 2007
Jurisdiction/Entity
XX
Description
Hazards
Potential Funding Sources
Monroe County LMS (Draft July 2005)
Table 13-3. High Priority Mitigation Initiatives: Work Group
Estimated Time Frame
Monroe County LMS (Draft July 2005)
13.4 Community -Specific Initiatives
The City of Key West determined that one programmatic initiative will be pursued (Table
13 -4).
Table 13-4. High Priority Mitigation Initiatives: Key West
Jurisdiction/Entity
City of Key West
Description
With 8,345 NFIP flood insurance policies, Key West
property owners will benefit if the City achieves
reinstatement in the CRS (savings of 5% of current paid
premium amount is $312,000).
Hazards
Flood
Potential Funding Sources
Staff time
Estimated Time Frame
By December 31, 2006
13.5 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 cities 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 of public buildings and facilities.
• Elevation or acquisition of private homes in floodplains.
The Monroe County LMS Work Group maintains an evolving list of project initiatives
(Appendix Q. This list may be modified periodically upon action by the Work Group. The
list has three distinct parts that result from distinct steps in the process:
• Step One: Preliminary Identified Mitigation Initiatives (which are placed
on the list with a minimum amount of information, see Section 13.6).
• Step Two: Prioritized Mitigation Initiatives (which have sufficient detail
that an overall ranking can be performed, see Section 13.6).
• Step Three: Completed Mitigation Initiatives (which have been undertaken,
with or without external funding or which have been removed/dropped).
Monroe County LMS (Draft July 2005) M
13.6 Prioritizing Mitigation Initiatives
Florida Rule 9G-22 delegates to the LMS Work Group the authority to set priorities and
identify projects. DCA encourages Work Groups not only to pre -identify 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. Because long periods of time may elapse between
initial identification of an initiative and application for funds, detailed cost estimates or
engineering are not necessary for the purpose. Initiative proponents are responsible for
providing information on which the prioritizations are based.
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 achievable using existing
authorities and staff.
The Work Group adopted a phased process for identification and prioritization of mitigation
initiatives that results in the evolving list of initiatives in Appendix C. This list is
maintained by Monroe County Emergency Management on behalf of the Work Group.
Step One: Preliminary Identified Mitigation Initiatives
Initiatives may be placed on the list by any eligible entity that provides minimum
information. The Work Group anticipates allowing submission on a quarterly basis so that
eligible entities are not constrained by an annual opportunity to identify and pursue projects
and funding. To be placed on the list, the following minimum information will be required:
• Name of owner/entity;
• Name and location of project/building;
• Brief description of project and need and the hazard and problem(s) it would
address; and
• Rough cost estimate based on the best available information, including a
description of how the estimate was made. This estimate is explicitly not
intended to be used for the benefit: cost analysis (see Step Two).
Section 13.3 identifies a high priority action for the Work Group to improve its processes.
As part of that action, the information that is required to submit an initiative may change.
Monroe County LMS (Draft July 2005)
When that action is completed, a form for submittal will be prepared and inserted in
Appendix D.
Step Two: Prioritized Mitigation Initiatives
A proj ect that is on the Step One list is moved to the Step Two priority list when the
owner/entity is prepared to develop and submit the formal application to DCA and FEMA
and when the Work Group is charged with prioritizing projects for available funding.
Notices of Funding Availability may be issued annually, e.g., for FEMA's Flood Mitigation
Assistance Program or the Pre -Disaster Mitigation Program. After disasters that yield
Hazard Mitigation Grant Program funds, Notices of Funding Availability usually are issued
within 90 days. Whether on an annual basis or post -disaster, the Work Group would be
notified and eligible entities would then decide whether they are prepared to formalize
initiatives that are on the Preliminary List.
Pursuant to State law (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 Notice of Funding Availability is anticipated or received, the LMS Coordinator will
notify entities that have initiatives in the Step One list. In order to have an initiative
forwarded to the funding agency, detailed data are required so that the Work Group 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;
• Name and location of project/building;
• Detailed description of project (scope of work) and need, and the hazard and
problem(s) it would address;
• Explanation of how the initiative satisfies the Mitigation Goals (see Section
4.2);
• Number and description of the population served;
• Project costs and a description of how those costs were estimated;
• Description of project benefits, including how benefits can be quantified;
• Description of economic, social, and environmental benefits;
• Estimate of period of time the project is expect to take to complete; and
• A statement regarding availability of the non-federal cost share.
Monroe County LMS (Draft July 2005) :
Section 13.3 identifies a high priority action for the Work Group to improve its processes.
As part of that action, the information that is required in order for an initiative to be
prioritized may be augmented. When that action is completed, a form for submittal will be
prepared and inserted in Appendix D. Further, when that action is completed, the
prioritization method that the Work Group adopts will be formalized (e.g., the factors and
weights assigned to those factors) and inserted in Appendix D.
Step Three: Completed 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 removed from the list. At least once a year entities that have undertaken
mitigation initiatives (regardless of source of funding) will report to the Work Group.
13.7 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 LMS Work Group will endeavor to maintain
familiarity with funding sources and availability. The Florida DCA is the primary contact
for notifications and processing of federal funds, especially those that derive from the U.S.
Department of Homeland Security (FEMA).
Table 13-5. Potential Funding for Mitigation
Program I Fund Source Contact
Hazard Mitigation Grant Program (HMGP)
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 implemented during immediate recovery from a disaster;
and to provide funding for previously identified mitigation measures to
benefit the disaster area. Eligible projects include:
• 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
Source: FEMA
Contact: Florida
Department of Community
Affairs (DCA)
Monroe County LMS (Draft July 2005)
Table 13-5. Potential Funding for Mitigation
Program
Fund Source Contact
• 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 and 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
Contact: DCA
amended by 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 HMGO for eligible activities.
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
Contact: DCA
buildings, manufactured homes, and other structures uninsurable by the
National Flood Insurance Program. See flood -related activities under
PDM.
Community Development Block Grant
Source: HUD
The Community Development Block Grants (CDBG) provide for long-
term needs, such as acquisition, rehabilitation or reconstruction of
Contact: Community
damaged properties and facilities and redevelopment of disaster -affected
Planning and Development
areas. Funds 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
To construct, enlarge, extend, or otherwise improve community facilities
Rural Economic and
providing essential services to rural residents.
Community Development
Conservation and Recreation Lands (CARL)
Source/Contact: Florida
This grant program is intended to conserve environmentally endangered
Department of
lands and provide resource conservation measures for other types of
Environmental Protection
lands.
Division of State Lands
Florida Communities Trust (FCT)
Source/Contact: Florida
Facilitates the purchase of lands for conservation and/or recreation
Department of Community
purposes by local governments; helps to implement conservation,
Affairs, Communities Trust
recreation, open 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,
Monroe County LMS (Draft July 2005)
Table 13-5. Potential Funding for Mitigation
Program
Fund Source Contact
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 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
principally for low to moderate income individuals.
Grant 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
principally for low to moderate income individuals.
Division, 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
Contact: Office of Disaster
Administration declared disasters.
Assistance
Emergency Shelter Grants Program (ESG)
Source/Contact: Florida
To provide financial assistance to renovate or convert buildings for use
Housing & Urban
as emergency shelters for the homeless. Grant funds may also be used
Development; Community
to operate the shelter (excluding staff) and pay for certain support
Planning & Development
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
Contact: Office of Disaster
damage.
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
Contact: DCA
resulting 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
To promote appropriate recognition of flood hazards in land and water
of Engineers
use planning and development through the provision of flood and flood
plain related data, technical services (such as floodproofing evaluations
Contact: Jacksonville
of public buildings), and guidance.
District
Monroe County LMS (Draft July 2005)
Chapter 14: Evaluation, Updates & Revisions
14.1 Distribution
Upon adoption, the LMS will be posted on the Monroe County Office of Emergency
Management'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
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
Work Group will perform an evaluation and, if appropriate, prepare revisions every year.
Minor revisions may be handled by addenda. Revisions are to be submitted to the Florida
Department of Community Affairs no later than the last workday of each January.
The Monroe County Office of Emergency Management, the LMS Coordinator, will
coordinate the review and preparation of revisions that may be identified. The participating
Work 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 schedule will be followed (subject to changes as a function of hazard events):
• By the end September of each year, the LMS Coordinator will notify Work
Group members of the need to review the LMS and identify revisions; Work
Group members will submit proposed revisions to Emergency Management
which will be discussed at a Work Group meeting. Emergency Management
will compile the proposed revisions and, with Work Group approval, will
Monroe County LMS (Draft July 2005)
forward the revisions to the Department of Community Affairs by the last
working weekday of January.
• On a quarterly basis the Work Group will accept new initiatives to be placed on
the list of Preliminary Identified Mitigation Initiatives.
14.3 Five -Year Revision
A comprehensive review of and revisions to the LMS will be conducted on a five-year
cycle. In part, this revision will be to incorporate the material collected for the annual
updates. Because the LMS is adopted in 2005, it will enter the next evaluation and review
cycle sometime in 2009, with adoption and publication anticipated in 2010.
The Monroe County LMS Work Group will involve the public in the LMS revision process
in the same manner used during the 2005 revision. The public will be notified when the
revision process is started and provided the opportunity to review and comment on changes
to the LMS. It is expected that a combination of informational public meetings, surveys and
questionnaires, draft documents posted on the web site, and/or public Council meetings may
be undertaken.
14.4 Incorporating Mitigation Plan Requirements
into Other Local Planning Mechanisms
Chapters 7 through 12 describe how Monroe County and the cities of Key West, Marathon,
Key Colony Beach, Layton, Islamorada and address hazards as part of their current planning
mechanisms and processes, including comprehensive plans, land development, infrastructure
design, and public outreach. The 2005 revision of the LMS did not reveal any significant
gaps in how hazards are addressed in existing planning mechanisms and processes.
Many mitigation initiatives are capital projects. 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.
Monroe County LMS (Draft July 2005)
Appendix A: Public and Critical Facilities
The database of public and critical facilities, including certain facilities owned by private
non-profit organizations, will contain the following fields. Each jurisdiction and entity is
responsible for preparing the data to the level that it deems appropriate. At a minimum, the
"Owner' and "Location" fields will be completed.
Description of Data Requested
Data Field
(complete as much as possible)
Name
Name of entity that owns the facility
ry
Owner's Number
If you have an internal numbering system, use it; otherwise
w
create a numbering system, e.g., KCB01 might be Key
Colony Beach's city hall.
O
Name of Facility
Common name, e.g., City Hall, Public Works Shop
Rating (C/I/S/Other)
C = Critical; I = Important; S = Standard; O = Other
Q z
Address (street/city)
p
GPS/Lat-Long
Input physical location determined using GPS or Latitude
J
and Longitude
Primary Use (describe)
Brief description, e.g., offices, workshop/storage, residential,
fire station, etc.
Date of construction
Original construction (and date of any major addition or
renovation)
Number of stories
p
Describe type of construction
Examples: concrete frame with unreinforced masonry infill
>_
walls; wood frame on pilings
_J
Gross area (sf)
Estimate or obtain from insurance documents
Q
Building value/valuation date/basis
Note basis of the valuation, e.g., whether it is the
replacement cost, market value, assessed value. Note date
of the valuation. Best source may be insurance policy.
Contents value/valuation date/basis
Note basis of valuation, e.g., whether it is the value used for
insurance purposes or replacement cost. Note the date of
the valuation.
Existing Protection: Windows/Doors
Briefly describe if the building has any measures for wind
protection, e.g., "built to meet Building Code" or "hurricane
shutters installed in 1999." State if no protection. If the
existing protection is a retrofit measure that was funded with
FEMA/DCA funds, be sure to complete the "Mitigation
Initiative Number" field.
Existing Protection: Mechanicals
Briefly describe exposed mechanical service equipment,
N
e.g., "this building has no rooftop equipment" or "rooftop
=
equipment built to meet Building Code" or "two HVAC units
0
on roof but not know if existing anchoring is adequate".
z
Past Events (date, describe
Note if affected by multiple events; describe at least the
damage/cost to repair or damage
most recent.
avoided)
Mitigation Needs
Describe identified or likely mitigation measures; need not
be detailed or based on rigorous analysis.
Mitigation Initiative Number (if
This is a cross-reference number with the Mitigation
applicable)
Initiatives Spreadsheet.
Monroe County LMS (Draft July 2005)
Description of Data Requested
Data Field
(complete as much as possible)
FIRM Panel #, Zone & Base Flood
Could also insert predicted storm surge elevations (which
Elevation
often exceed the BFE shown on the Flood Maps).
Existing Protection (describe elevation,
Briefly describe, e.g., "partially elevated on crawlspace" or
foundation type)
"slab -on -grade 6" above ground" or "elevated 1-foot above
ry o
BFE on columns" etc.
QPast
Event (date, describe damage
Note if affected by multiple events; describe at least the
=
avoided or actual damage and cost to
most recent.
p
repair)
pMitigation
Needs
Describe identified or likely mitigation measures; need not
LL
be detailed or based on rigorous analysis.
Mitigation Initiative Number (if
Note if (a) not adequately protected (if applicable, identify
applicable)
proposed project #); or (b) mitigation has been done (identify
completed project #, describe measures, indicate year,
source of funds, and project cost)
Monroe County LMS (Draft July 2005)
Appendix B: Resolutions of Adoption
[XX this will contain full sized scans of all of the resolutions of adoption
Monroe County LMS (Draft July 2005) i
Appendix C: Mitigation
Initiatives - Tracking Spreadsheet
M
PRELIMINARY MITIGATION INITIATIVES
1.
Name of owner/entity;
2.
Name project/building (and location/address)
3.
Brief description of project and need and the hazard and problem(s) it would
address; and
4.
Rough cost estimate based on the best available information, including a description
of how the estimate was made.
5.
Date submitted for Preliminary list
6.
Date confirmed to remain on the Preliminary list
PRIORITIZED MITIGATION INITIATIVES
1.
Name of owner/entity
2.
Point of contact responsible for providing the detailed information;
3.
Name of project/building (and location/address)
4.
Detailed description of project (scope of work) and need, and the hazard and
problem(s) it would address;
5.
Explanation of how the initiative satisfies the Mitigation Goals (see Section 4.2);
6.
Number and description of the population served;
7.
Project costs and a description of how those costs were estimated;
8.
Description of project benefits, including how benefits can be quantified;
9.
Description of economic, social, and environmental benefits;
10.
Estimate of period of time the project is expect to take to complete; and
11.
A statement regarding availability of the non-federal cost share.
INITIATIVES THAT ARE COMPLETED OR REMOVED
1.
Name of owner/entity
2.
Name of project/building (and location/address)
3.
Brief description of the project
4.
Date completed
5.
Source of funds
6.
Date removed from further consideration
7.
Reason for removal
Monroe County LMS (Draft July 2005)
Appendix D: Submission
and Prioritization of Initiatives
NOTE: these procedures were established in the 1999 LMSS, The 2005 Revised
LMS calls for the Work Group to revise these procedures (see Section 13.3), at
which time this appendix will be replaced.
The following criteria have been selected and prioritized by the Working Group to evaluate
mitigation initiatives. Weighting factors have been assigned to certain criteria.
Other criteria are included to provide necessary project information.
The Local Mitigation Strategy is a "work in progress". As such, the Working Group may
make adjustments to this section as the process continues.
Recommended Local Mitigation Strategy Project Evaluation and Prioritization Criteria
1. Meeting LMS Goals and Objectives (Consistency with Guiding Principles) and
Number of Goal(s) met- Points awarded from Goals and Objectives List to a
maximum of 150 points.
2. Percentage of population served by the project (permanent population) - 20 points if
up to 10% served, 40 points if up to 25%, 60 points if up to 40%, 80 points if up to
65%, 100 points if up to 80%, 130 points if up to 100%.
3. Type and Number of Hazards Addressed. — points awarded from Hazard List
priorities to a maximum of 110 points (listed below).
4. Cost Effectiveness - Based on Cost/Benefit Analysis developed by the applicant
using LMS Criteria provided below*). A ratio of 1 to 1 will receive 20 points,
thereafter, each increase will receive an additional 10 points e.g. 1 to 2 ratio will
receive 20 points, etc.)
5. *Economic Benefits — 30 points if economic benefit is demonstrated
6. **Social Benefits - 20 points if social benefit is demonstrated.
7. Environmental Benefits — 20 points if environmental benefit is demonstrated.
8. Time Frame - 20 points if 6 months or less. 10 points if 6 months to one year. 5
points if one to two years. 0 points if more than two years.
9. Financial Feasibility — Yes/No
10. Technical Feasibility — Yes/No
11. Funding Availability — Yes/No,
12. Legal Authority — Yes/No
13. Consistency with Plans, Codes, Ordinances, Policies, etc. - Yes/No
*Economic Benefits are those that would stabilize or reduce loss of economic functions such
as business operations. For example, such a benefit would accrue from a project to improve
debris removal and reduce the time needed for businesses to become accessible to their
customers.
Monroe County LMS (Draft July 2005)
"Social Benefits are those that contribute to the general welfare of the population, such as
installing shutters in a community center to protect it from damage, or projects that reduce
hazard impacts in public parks.
Monroe County LMS Goals and Objectives
1. Preservation and Sustainability of Life Health, Safety, and Welfare (most important
goal)
50 points
2. Preservation of Infrastructure From Hazard -Related Damage, including
• Utilities
• Power
• Water
• Sewer
• Communications
30 points
3. Minimize Damage and Maintain Roads and Bridges During a Disaster, including
• Traffic Signals
• Street Signs
30 points
4. Protection of Critical Facilities From Hazard -Related Damage, including
• Public Buildings/Schools
10 points
5. Preservation of Property and Assets From Future Losses.
10 points
6. Preservation of Economy During Times of Disaster, including
• Business Viability
10 points
7. Preservation and Protection of the Environment
• Natural
• Historic
10 points
Monroe County LMS (Draft July 2005)
Elements for LMS Cost/Benefit
Land -Based, Construction and/or Equipment Projects
1. Estimated Project Cost:
2. Expected Useful Life of the Project
3. Frequency of the hazard the project is designed to address, and if applicable
accumulated cost of past repairs from emergency events both declared and
undeclared
4. Estimate of direct and indirect benefits
• Casualties —Estimate the number of deaths and injuries, which could be
avoided by the mitigation action.
• Damage —Estimate the amount of physical damage for both structural and
non-structural portions of the project.
• Contents Damage —Provide an estimate of the physical damage to a
building's contents.
• Displacement Cost— Estimate the projected amount of rental and other
costs incurred when the facility is not in use.
Monetary Value
• Assign a dollar value to primary damage, including contents.
• Assign dollar values to ancillary damage such as social benefits,
environmental damage, and loss of function.
6. Disaster Frequency —Document the years of repeated occurrence of the hazard
also indicate declared disasters.
7. Determine cost/benefit ratio and include in project proposal.
Non -Construction Projects, e.g. Planning Studies, Maps, Public Information and
Education, etc.
1. Estimated Project Cost:
2. Frequency of the hazard the project is designed to address, and if applicable
accumulated cost of past repairs from emergency events both declared and
undeclared
Monroe County LMS (Draft July 2005)
3. Estimate of direct and indirect benefits
• Describe Economic Benefits of project and provide approximate percentage of
benefits.
• Describe Social Benefits, of project and provide approximate percentage of
benefits.
• (For example, studies relating to ways to address disaster -related business loss
may have 100% economic benefit, etc.)
• Describe Environmental Benefits of project and provide approximate percentage
of benefits.
• Disaster Frequency —Document the years of repeated occurrence of the hazard
also indicate declared disasters.
5. Determine cost/benefit ratio
Monroe County LMS Working Group Hazards List (revised pursuant to Hazard
Identification Process. October 1999)
1. Tropical Cyclones, Hurricanes, Tropical Storms, Tropical Depressions, and other
Severe Weather — 20 points
• Floods
• Tornadoes
• Wind
2. Utility Outages/Disruption — 15 points
• Electric Power
• Water
• Sanitation
3. Transportation Disruption — 10 points
4. Economic Emergencies — 10 points
5. Communications Disruption - 10 points
6. Mass Immigration — 5 points
7. Wild Land Fires — 5 points
8. Hazardous Materials Incidents — 5 points
9. Coastal Oil Spills - 5 points
10. Radiological Emergencies — 5 points
11. Epidemiological Emergencies — 5 points
12. Drought — 5 points
13. Terrorism/Civil Disturbance — 5 points
14. Military Conflict — 5 points
Monroe County LMS (Draft July 2005)
After the completion of the Evaluation Process, the projects receiving the highest total
points will be given preference for LMS Working Group recommendation.
Hypothetical Examples:
Scores are based on "Procedures to Prioritize Municipal and County Mitigation Initiatives".
Example Number 1: Proposal to conduct professional county -wide study to determine the
short and long-term effects of salt water on local landscaping, including recommendations
for ways to prevent future vegetation loss.
1. Meeting LMS Goals and Objectives (Consistency with Guiding Principles)
Points awarded from Goals and Objectives List to a maximum of 150 points. Project
meets Preservation of Property and Assets, Preservation of the Economy — 20 points
2. Percentage of people served by the project (permanent population) — Percentage of
people served — 100% of county population — 130 points
3. Type and Number of Hazards Addressed. — Number of points awarded from Hazard
List Priorities. Addresses Hazard #1 for 20 points and Hazard #12 for 5 points — 25
points
4. Cost Effectiveness - Based on Cost/Benefit Analysis developed by the applicant
using LMS Criteria provided below*). A ratio of 1 to 1 will receive 10 points,
thereafter, each increase will receive an additional 10 points e.g. 1 to 2 ratio will
receive 20 points, etc.) — 1/3 cost benefit ratio = 30 points
5. Economic Benefits — 30 points if economic benefit is demonstrated — Project is
designed to identify means of preserving landscape a vital part of the county's allure
for tourism — 30 points
6. Social Benefits - 20 points if social benefit is demonstrated - the entire Key's society
could benefit from protection of county vegetation — 20 points
7. Environmental Benefits —20 points if environmental benefit is demonstrated — saving
trees and plants is critical to the environment.
8. Time Frame - 20 points if 6 months or less. 10 points if 6 months to one year. 5
points if one to two years. 0 points if more than two years. — Project time frame is
two years — 5 points
9. Financial Feasibility — Yes/No — Yes
10. Technical Feasibility — Yes/No - Yes
11. Funding Availability — Yes/No - Yes
12. Legal Authority — Yes/No- Yes
13. Consistency with Plans, Codes, Ordinances, Policies, etc. - Yes/No- Yes
Total Number of Points = 280
Monroe County LMS (Draft July 2005)
Elements for LMS Cost/Benefit Anal
Non -Construction Projects, e.g. Planning Studies, Maps, Public Information and
Education, etc.
Example #1: Proposal to conduct professional countywide study to determine the short and
long-term effects of salt water on local landscaping. The study will include
recommendations for prevention of future loss of vegetation.
1. Estimated Project Cost: $30,000
2. Frequency of the hazard the project is designed to address, and if applicable
accumulated cost of past repairs from emergency events both declared and
undeclared
Local vegetation is affected by salt -water spray in events involving high winds,
especially hurricanes and serious storms. This problem occurred from Hurricane
Georges, September 1998 and Tropical Storm Mitch, November 1998 and will occur
in any future wind event. Such events have a high frequency of occurrence.
3. Estimate of direct and indirect benefits
•Describe Economic Benefits of project and provide approximate percentage of
benefits- Protection of vegetation from the detrimental effects of salt water could
result in 100 % benefit due to reduction in loss of landscaping.
•Describe Social Benefits, of project and provide approximate percentage of
benefits. - Protection of vegetation from the detrimental effects of salt water
could result in 100 % benefit due to prevention of landscaping loss.
•Describe Environmental Benefits of project and provide approximate percentage of
benefits. - Protection of vegetation from the detrimental effects of salt water
could result in 100 % benefit due to protection of natural landscaping.
4. Disaster Frequency —Document the years of repeated occurrence of the hazard also
indicate declared disasters. — Hurricane Andrew, August 1992,Hurricane Georges,
September 1998 and Tropical Storm Mitch, November 1998 and will occur in any
future wind event. Such events have a high frequency of occurrence.
5. Provide dollar value estimate of long-term benefit — Determining a means to protect
or prevent negative effects of salt water on county vegetation could result in saving
approximately $1 million dollars of lost landscaping.
6. Determine cost/benefit ratio (divide project cost by benefit cost) — 1/3
Example Number 2 - Proposal by Municipality X to install emergency generators in all local
business establishments within the municipality's jurisdiction.
Monroe County LMS (Draft July 2005) M
1. Meeting LMS Goals and Objectives (Consistency with Guiding Principles)
Points awarded from Goals and Objectives List to a maximum of 150 points. Project
meets Preservation of Property and Assets and Preservation of the Economy — 20
points
2. Percentage of people served by the project (permanent population) — Percentage of
people served — 100% of municipal population — 130 points
3. Type and Number of Hazards Addressed. — Number of points awarded from Hazard
List Priorities. Addresses Hazard #1 for 20 points, Hazard #2 for 15 points, and
Hazard #6 for 10 points — 45 points
4. Cost Effectiveness - Based on Cost/Benefit Analysis developed by the applicant
using LMS Criteria provided below*). A ratio of 1 to 1 will receive 10 points,
thereafter, each increase will receive an additional 10 points e.g. 1 to 2 ratio will
receive 20 points, etc.) — 1/3 cost benefit ratio = 30 points
5. Economic Benefits — 30 points if economic benefit is demonstrated — Project is
designed to identify means of preventing business closures from power losses after a
disaster. — 30 points
6. Social Benefits - 20 points if social benefit is demonstrated — If businesses could
remain open this would assist the local population by providing stores, restaurants,
etc. for them to use following a disaster. — 20 points
7. Environmental Benefits —20 points if environmental benefit is demonstrated — No
environmental benefits — 0 points.
8. Time Frame - 20 points if 6 months or less. 10 points if 6 months to one year.
5 points if one to two years. 0 points if more than two years. —Project time frame is
six months — 20 points
9. Financial Feasibility — Yes/No - Yes
10. Technical Feasibility — Yes/No - Yes
11. Funding Availability — Yes/No - Yes
12. Legal Authority — Yes/No- Yes
13. Consistency with Plans, Codes, Ordinances, Policies, etc. - Yes/No- Yes
Total Number of Points = 295
Monroe County LMS (Draft July 2005)
Elements for LMS Cost/Benefit Analysis
Land Based, Construction and/or Equipment Projects
Example #2: Proposal by Municipality X to install emergency generators in all local
business establishments within the municipality's jurisdiction
1. Estimated Project Cost: $750,000
2. Expected Useful Life of the Project— 20 years
3. Frequency of the hazard the project is designed to address, and if applicable
accumulated cost of past repairs from emergency events both declared and undeclared
— Municipal power outages are likely to occur from high winds, especially hurricanes,
serious storms, and tornadoes. This problem occurred from the tornadoes that
occurred in 1997, Hurricane Georges, September 1998 and Tropical Storm Mitch,
November 1998 and will occur in any future wind event. Such events have a high
frequency of occurrence.
4. Estimate of direct and indirect benefits
• Casualties —Estimate the number of deaths and injuries, which could be avoided by
the mitigation action. — 0
• Damage —Estimate the amount of physical damage for both structural and non-
structural portions of the project. - 0
• Contents Damage —Provide an estimate of the physical damage to a building's
contents. - 0
• Displacement Cost — Estimate the projected amount of rental and other costs
incurred when the facility is not in use. — If businesses could not be used for two
weeks following an event because of lack of power, estimated economic losses for
municipal businesses are approximately $1 million
5. Monetary Value
Assign a dollar value to primary damage, including contents. - 0
Assign dollar values to ancillary damage such as social benefits, environmental
damage, and loss of function. - $1.5 million including economic loss and social
benefit to residents.
6. Disaster Frequency —Document the years of repeated occurrence of the hazard also
indicate declared disasters. - This problem occurred from the tornadoes that occurred
in 1997, Hurricane Georges, September 1998 and Tropical Storm Mitch, November
1998 and will occur in any future wind event. All of these events resulted in declared
disasters.
Monroe County LMS (Draft July 2005)
7. Determine cost/benefit ratio (divide costs by benefits dollar) value and include in
project proposal. - $750,000 divided by 2,500,000 = 1/3
Monroe County LMS (Draft July 2005)