HomeMy WebLinkAboutItem U09 BOARD OF COUNTY COMMISSIONERS
COUNTY of MONROE Mayor Michelle Lincoln,District 2
The Florida. Keys Mayor Pro Tem David Rice,District 4
p Craig Cates,District I
James K. Scholl,District 3
- Holly Merrill Raschein,District 5
Regular Meeting
July 15, 2026
Agenda Item Number: U9
26-32320
BULK ITEM: No DEPARTMENT: Planning and Environmental
Resources
TIME APPROXIMATE: STAFF CONTACT: Devin Tolpin
AGENDA ITEM WORDING:
A Public Hearing to Consider Approval of a Resolution Transmitting to the State Land Planning
Agency an Ordinance Amending Monroe County Comprehensive Plan Policy 701.1.6 and Adopting
the 10-Year Water Supply Facilities Work Plan Update to be Consistent with the South Florida Water
Management District Lower East Coast Water Supply Plan Update of 2024.
ITEM BACKGROUND:
The Monroe County Planning&Environmental Resources Department is seeking to amend the Monroe
County Year 2030 Comprehensive Plan to adopt a 10-year Water Supply Facilities Work Plan update,
in accordance with Florida Statutes Section 163.3177(6)(c), which requires that the Infrastructure
Element of the Comprehensive Plan incorporate a 10-Year Water Supply Plan that identifies alternative
water supply projects,traditional water supply projects, conservation and reuse to meet identified water
needs.
Adoption of this 10-year Water Supply Facilities Work Plan would also acknowledge the Monroe
County Board of County Commissioners' ("Monroe County's") existing and future population figures
through Year 2045, which are derived from the projections prepared by TischlerBise for and on behalf
of Monroe County as backup to analysis on the capacity of existing infrastructure within
unincorporated Monroe County (July 15, 2025) and the 2025 Bureau of Economic and Business
Research (`BEBR")population estimates. The memorandum documenting the base year functional
population calculation and 20-year projections for Monroe County and the Unincorporated Area is
included as Exhibit B. to the Work Plan.
Potable Level of Service ("LOS") Standard
Utilizing the BEBR Population Estimates for unincorporated Monroe County and PCUR included in
the Lower East Coat Water Supply Update, the Annual Average usage for Unincorporated Monroe
County from 2017 through 2021 is depicted below:
2017 2018 2019 2020 2021 Average
Population Population Population Population Population PCUR
2017-
2021
BEBR 36, 202 34,226 35, 294 36, 477 38, 689 -
PCUR* 106 103 105 109 124 109
*Calculated based on determining the percentage of Unincorporated Monroe County out
of Entire Monroe County Population and applying to PCUR
For the purpose of this 10-Year Water Supply Plan Update and to demonstrate consistency with
the Lower East Coast Water Supply Plan Update, unincorporated Monroe County shall confirm
potable water availability of at least 109 gallons/capita/day. The unincorporated Monroe County
2045 permanent population is projected as being 42,442. Therefore, 4.6 MGD or more of water
supply capacity is required for potable water within Unincorporated Monroe County.
Population and Potable Water Demand Projections
The population estimates and projections and the potable water demand projections for the entire
Florida Keys Aqueduct Authority ("FKAA") service area based on a planned LOS of 235
gal./capita/day are presented below in Table 1. These projections are based on permanent population
derived from BEBR medium population estimates.
Table 1. Population & Potable Water Demand Projections for FKAA Service Area
Year 2025 2030 2035 2040 2045
Permanent 84,707 87,200 88,900 90,100 90,900
Population
Projection
Water 19.9 20.5 20.9 21.2 21.4
Supply
Demand
(MGD)
In summary, FKAA's average daily water demand for the entire service area is expected to
increase from 19.9 MGD in 2025 to 21.4 MGD in 2045. FKAA's current Water Use Permit
provides an annual allocation of 8,751 Million Gallons ("MG") or 23.98 MGD,which is
sufficient to meet water demand projections.
Unincorporated Monroe County Permanent Population and Potable Water Demand
Projections:
The population estimates and potable water demand projections for Unincorporated Monroe County
are presented below in Table 2. The population projections as demonstrated in Exhibit B to the Work
Plan are adopted as part of the technical background and shall be incorporated into the comprehensive
plan by reference. The water demands are for finished water.
Table 2. Population Estimate and Projections for Unincorporated Monroe County
Years 2024-2045
Unincorporated 2024 2029 2034 2039 2044 2045*
Monroe County
Resident 38,546 40,828 41,692 429147 429404 429442
Population
Seasonal 18,280 18,873 19,272 17,482 19,601 19,662
Population
Lodging 5,468 5,641 5,814 5,988 69161 6,196
Population
Day Trippers 1,137 1,216 1,301 1,392 1,489 1,509
Functional 641431 66,558 68,079 69,008 69,655 69,809
Population
* Monroe County extrapolated 2045 population projections based on calculations
provided in TischlerBise Memorandum and BEBR Population Projections
The population estimates and projections and the potable water demand projections for the
permanent population of Unincorporated Monroe County based on a planned LOS of 109
gal./capita/day are presented below in Table 3.
Table 3. Population & Potable Water Demand Projections for
Unincorporated Monroe County
Year 2024 2029 2034 2039 2045
Permanent 38,546 40,828 41,692 42,147 42,442
Population
Projection
Water 4.2 4.5 4.5 4.6 4.6
Supply
Demand
(MGD)
Unincorporated Monroe County Functional Population and Potable Water Demand
Projections:
The functional population estimates and the potable water demand projections for Unincorporated
Monroe County are presented below in Table 4. The projections are through the year 2045.
Table 4. Functional Population & Potable Water Demand Projections
Year 2024 2029 2034 2039 2045*
0I1dk oir
Functional 64,431' 66,5581 68,0791 69,008' 69,8092 tap
Population
1"i e IY"e to
Projection* eriter
Water 7.0 7.3 7.4 7.5 7.6 text.
Supply
Demand
(MGD)
*Functional Population means total population comprised of resident population,
seasonal population, lodging population, and day tripper population.
(Source': Figure 7 -Functional Population Estimate and Projections for Monroe
County, July 15, 2025, TischlerBise)
(Source2: Extrapolated based on TischlerBise Calculations)
(September 23, 2024 LEC Plan Appendices)
PREVIOUS RELEVANT BOCC ACTION:
On April 13, 2016, the BOCC adopted Ordinance No. 007-2016, amending the Monroe County 2010
Comprehensive Plan to revise sections of the Potable Water Element and the Intergovernmental
Coordination Element regarding water supply concurrency, and adopting a 10-Year Water Supply
Plan.
On June 17, 2020, the BOCC adopted Ordinance No. 017-2020, amending the Monroe County
Comprehensive Plan and adopting the 10-Year Water Supply Plan update to be consistent with the
South Florida Water Management District Lower East Coast Water Supply Plan Update of 2018.
INSURANCE REQUIRED:
No
CONTRACT/AGREEMENT CHANGES:
N/A
PROFESSIONAL STAFF RECOMMENDATION:
Approval.
DOCUMENTATION:
2025-041 Staff Report
Exhibit 1 to SR_10-YR WATER SUPPLY PLAN UPDATE 2026
Exhibit A to Work Plan Update—See. 7.3_Five-Year Capital Improvement Funding.pdf
Exhibit B_Monroe County Functional Population.pdf
Exhibt C_Unincorporated Monroe County Functional Population Projection Extrapolations for
Year 2045.pdf
Ordinance_DRAFT.doc
Transmittal Resolution.docx
FINANCIAL IMPACT:
N/A
Effective Date: Click oi—tap 1'ieT-e W EM"a:e:'text,
Expiration Date:
Total Dollar Value of Contract:
Total Cost to County:
Current Year Portion:
Budgeted:
Source of Funds:
CPI:
Indirect Costs:
Estimated Ongoing Costs Not Included in above dollar amounts:
Revenue Producing: No If yes, amount:
Grant: No
County Match: No
"N"
1f
41
MEMORANDUM
MONROE COUNTY PLANNING&ENVIRONMENTAL RESOURCES DEPARTMENT
We strive to be caring,professional and fair
To: Monroe County Board of County Commissioners
From: Devin Tolpin, AICP, CFM, Senior Director of Planning and Environmental
Resources
Date: June 18, 2026
Subject: l 0-Year Water Supply Facilities Work Plan Update
Meeting: July 15, 2026
I. REQUEST
The Monroe County Planning & Environmental Resources Department is requesting to amend the
Monroe County 2030 Comprehensive Plan to adopt a 10-year Water Supply Facilities Work Plan
update, in accordance with Section 163.3177(6)(c) of the Florida Statutes, which requires that the
Infrastructure Element of the Comprehensive Plan incorporate a 10-Year Water Supply Plan that
identifies alternative water supply projects, traditional water supply projects, conservation and reuse to
meet identified water needs.
Adoption of this 10-year Water Supply Facilities Work Plan would also acknowledge the County's
existing and future population figures through Year 2045, which are derived from the projections
prepared by TischlerBise as backup to analysis on the capacity of existing infrastructure within
Unincorporated Monroe County (July 15, 2025) and the 2025 Bureau of Economic and Business
Research (BEBR) population estimates. The memorandum documenting the base year functional
population calculation and 20-year projections for Monroe County and the Unincorporated Area is
included as Exhibit B to the Work Plan.
II. PROPOSED AMENDMENT
Proposed text is shown as follows: additions are in underlined, deletions are stein.
Policy 701.1.6
Monroe County adopts the Monroe County 10-Year Water Supply Facilities Work Plan update, dated
, June, 2026 by reference, into the Comprehensive Plan. Monroe County shall update the
10-year Water Supply Work Plan every 5 years or within 18 months after the governing board of the
South Florida Water Management District approves an updated regional water supply plan. [F.S. §
163.3177(6)(c)3.] (Ord. No. 022-2009; Ord. No. 007-2016, Ord. No. 017-2020)
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III. BACKGROUND INFORMATION
Residents of Monroe County obtain their water directly from the Florida Keys Aqueduct Authority
(FKAA), which is responsible for ensuring that enough capacity is available for existing and future
customers. FKAA is the sole provider of potable water in the Florida Keys. Monroe County does not
control the water supply or water facilities; however, the County coordinates closely with FKAA.
The purpose of the Monroe County Water Supply Facilities Work Plan (Work Plan) is to identify and
plan for the water supply sources and facilities needed to serve existing and new development within the
local government's jurisdiction. Chapter 163, Part II, F.S., requires local governments to prepare and
adopt Work Plans into their comprehensive plans within 18 months after the water management district
approves or updates a regional water supply plan. The Lower East Coast Water Supply Plan Update was
approved by the South Florida Water Management District(SFWMD) on September 23, 2024.
The Work Plan references the initiatives already identified in FKAA's 20-year Water System Capital
Improvement Master Plan. According to state guidelines, the Work Plan and associated comprehensive
plan amendments must address the development of traditional and alternative water supplies, bulk sales
agreements and conservation and reuse programs that are necessary to serve existing and new
development for at least a 10-year planning period. The Monroe County Work Plan will have the same
planning time schedule consistent with the comprehensive plan and the Lower East Coast Water Supply
Plan Update.
Community Meeting
A community meeting was held on July 14, 2025, to discuss the proposed amendment to the Monroe
County Comprehensive Plan and provide for public participation in accordance with Monroe County
Land Development Code (LDC) Section 102-159(b).
Development Review Committee and Public Input
The Development Review Committee considered the proposed amendment at a regular meeting on
November 18, 2025. On November 19, 2025, the Chair of the DRC signed Resolution No. DRC 20-25,
recommending approval of the proposed amendment.
Planniniz Commission and Public Input
The Planning Commission considered the proposed amendment at a regular meeting on November 19,
2025. On November 19, 2025, the Chair of the Planning Commission signed Resolution No. P37-25,
recommending approval of the proposed amendment.
SFWMD Preliminary Review Comments
The proposed 10-year Water Supply Facilities Work Plan (WSFWP) has been provided to SFWMD for
preliminary review and comment. The comments provided from SFWMD are detailed below.
Clomments Received November 18, 2025
Section 2.2 Relevant Regional Issues:
l) The 2023-24 Lower East Coast Water Supply Plan Update (2024 LECWSP Update) states an
RO capacity to treat seawater as 10 mgd. The submitted Work Plan states the combined
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supply capacity of the Marathon and Stock Island reverse osmosis facilities is 5 mgd. Please
confirm the correct capacity.
Section 3.1 Population Information:
1) Population projections are only through 2035. The planning period should start with the year
the Work Plan is adopted and be based on the best available data. To the extent practicable,
the planning time frames in the Work Plan should be consistent with the 2023-24 Lower East
Coast Water Supply Plan Update (2024 LECWSP Update). The 2023-24 LECWSP Update
uses a 25-year planning horizon (2020 to 2045) with 2020 as the base year and projections
and estimates provided in 5-year increments. Section 163.3177(l)(f)3, F.S., directs local
governments to use the most current population estimates and projections from the Office of
Economic and Demographic Research or those generated by the local government using a
professionally acceptable method.
2) The Work Plan incorporates a functional population which is defined as the "permanent
population plus seasonal residents". A table should be incorporated differentiating the
permanent population and seasonal residents.
Section 3.3 Potable Water Level of Service (LOS) Standard:
1) This Work Plan uses a per capita water use (GPCD) of 100 gallons per day per person that
was established based on data from 2011 to 2012 and functional population. That was 13
years ago. The 2023-24 LECWSP Update used an average 2017-2021 GPCD finished water
use of 235 gallons per day person based on actual FKAA water use for that period and
permanent population. The Work Plan should be updated using a more recent per capita
usage rate.
Section 3.2 Maps of Current and Future Areas Served:
1) Page 5 states Figure l shows current and future service area boundaries. Figure 1 contains the
FKAA Transmission & Distribution System overview, not the service area boundaries.
Please submit updated service area maps.
Section 3.4 Population and Potable Water Demand Projections:
1) The population projections in Table 1 and 2 are based on projections from 2011. Pursuant to
Section 163.3177(l)(f)3, F.S., local governments should use the most current population
estimates and projections from the Office of Economic and Demographic Research or those
generated by the local government using a professionally acceptable method. Please revise
the population projections and corresponding demand projections using a current population
data source such as Bureau of Economic and Business Research (BEBR) report from 2025.
For example, BEBR Volume 58, Bulletin 201 was published in August 2025 and may be
used for the permanent population projections in Monroe County. Tables 1 and 2 should be
updated to include a breakdown of both permanent and seasonal populations.
2) Table 2 needs to be updated with more current years and data through 2045. The table
indicates a 2025 demand of 16.0 mgd, but in the paragraph under the table, it states a 2024
demand of 20.66 and an expected demand of 21.1 mgd in 2025.
Section 3.6 Water Supply Provided by Other Entities:
Table 6—Per Capita Water Use
1) This Work Plan uses a per capita water use of 100 gallons per day per person (GPCD) that
was established based on data from 2011 to 2012. That was 13 years ago. The 2023-24
LECWSP Update used an average 2017-2021 GPCD) finished water use of 235 gallons per
day person based on actual FKAA water use for that period and permanent population. Table
6 shows GPCD rates from 2000 to 2020 ranging from a 100 to 115 GPCD. The Work Plan
should be updated using a more recent per capita usage rate.
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Section 4.0 Capital Improvements
1) Crawl Key RO WTP is not referenced in this Work Plan. The project should be included in
the Work Plan with a status update.
In an effort to address the comments received by SFWMD, Monroe County Staff met with Florida Keys
Aqueduct Authority (FKAA) on April 10, 2026, to discuss the water supply per capita usage rate and
differences in population projection methodologies.
It became apparent during that meeting that the data SFWMD used to derive the LECWSP, was based
on the actual annual water usage and the BEBR medium population estimates for permanent population
of ALL of Monroe County whereas the LOS provided in Policy 701.1.1 of the Comprehensive Plan was
derived from population projection of Unincorporated Monroe County prepared by Fishkind and
Associates for the Monroe County 2030 Comprehensive Plan Update (March 15, 2011) along with
historical data from FKAA through 2011 as described through the Technical Document adopted as part
of the 2030 Comprehensive Plan update. The methodology for the preparation of these projections had
been approved by the state land planning agency and utilized functional population numbers.
In order to satisfy the comments provided by SFWMD, the Updated 10-Year Water Supply Plan was
revised so as to provide an unincorporated permanent population for 2045 based on our consultant's
projections (42,442 permanent for unincorporated) and a county-wide permanent population for 2045
based on BEBR medium projections for permanent population (90,900 permanent population
countywide, per table below from BEBR report published in February 2026). This equates a need of
21,361,500 gal/capita/day countywide in 2045.
Bureau of Economics and Business Research, Florida Population Studies, Bulletin 174
County Estmmmalt85 ProjettSom„April I
and 5taite APh11l 1„2025 2030 2035 2040 2045 20501
MiAWDADE 2„.514,927
Low 2,766,,300 2,747„7,00 2,714„600 2,673,900 2,631,900
aecduumm 2,916,400 2,994,400 3,054,200 3,100„9100 3,140,700
hNllglh 3,066,0100 3,241,2,00 3,393,00 3,5027„.900 3,649,500
CtiNRO[ 34,707
Low 91,900 80„300 79„400 76,200 74,100
Medium 87,200 88,900 901,100, 901,901p, 91,500
FNligih 92,600 97,S00 101,,8 105,500 18,900
On April 17, 2026, Planning Department Staff transmitted a revised Water Supply Plan update to
SFWMD staff for preliminary review and comment.
On May 20, 2026, SFWMD provided the following preliminary review comments. Monroe County
Planning Department Staff response on how these comments are addressed in the proposed update are
included in red.
3.3 Potable Level of Service
1. The current usage rate based on permanent population (235 GPCD) seems high compared to
the potable water LOS rate (100 GPCD), based on historical data. Given this increase in
usage and as per Section 163.3177 (6)(c), F.S., the comprehensive plan would be
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strengthened by the inclusion of an analysis of the current usage rates or water conservation,
use, and protection as well as any plans,projects, or target goals.
The Lower Fast Coast hater Supply Plan Update calculated the per capita gallons per day usage
rate of Monroe County based on permanent population data derived from 1 EBR medium population
estimates and a 5-year average using finished water totals that had been reported by FKAA to FDEP,
as pictured in the table below:
Avewap
2017 2018 2B1 ll l 11117 118' 1011 2020 2021 Pal
P uladon PopuWdw lPopulado,n Papuuladm, Iftpulado.
IKUR, Pal R KUR PHi;11l1 KDR 2017
-
'2021
fKAA 716,491 16'gn 1°7379 117,823 8,26'7 226 231 231 733 251
F $7. 8 17.80 1 17,90 1.8.1E 19.64
The Lower East Coast Water Supply Plan Update appears to have calculated the per day
usage rate for the entirety of Monroe County and did not include a breakdown per capita
usage rate for Unincorporated Monroe County (Monroe County less theMunicipalities).
Utilizing the BEBR Population Estimates for Unincorporated Monroe County and PCUR
included in the Lower East Coat Water Supply Update, the Annual Average usage for
Unincorporated Monroe County from 2017 through 2021 is depicted below®
2017 2018 2019 2020 2021 Average
Population Population Population Population Population PCUR
2017-
2021
BEBR 36,202 34,226 35,294 36,477 38,689 -
PCUR* 106 103 105 109 124 109
*Calculated based on determining the percentage of Unincorporated Monroe County out of Entire Monroe County
Population and applying to PCUR
For the purpose of this 10®fear Water Supply Plan Update and to demonstrate consistency
with the Lower East Coast Water Supply Plan Update, Unincorporated Monroe County shall
confirm potable water availability of at least 109 gallons/capita/day® The Unincorporated
Monroe County 2045 permanent population is projected as being 42,442. Therefore, 4.6 MGD
or more of water supply capacity is required for potable water within Unincorporated Monroe
County.
3.6 Water Supply Provided by Other Entities
2. Note there is a typo on page 10 of the Work Plan. Water Use Permit 13-00005-W
is referenced as "13-00005-5-W". Please correct.
Comment addressed.
3.7 Conservation
3. The Work Plan references xeriscape. Section 373.185, Florida Statute, was revised in 2009 to
replace the term xeriscaping with Florida-friendly landscaping. Please update this reference
BOCC SR 07.15.2026
File #2025-041 Page 5 of I
to reflect Florida-friendly landscaping resources to ensure consistency with current District
practices.
Comment addressed.
3.8 Reuse
4. Section 3.8.2 states that irrigation standards have been established and that the County limits
clearing of native vegetation and requires native landscaping. The Work Plan may be
strengthened by providing additional discussion regarding the County's irrigation standards,
Florida-friendly landscaping principles, and irrigation efficiency measures, including any
coordination or consistency with applicable water conservation measures and landscape
irrigation requirements. Additional detail regarding implementation of native landscaping
requirements and related conservation practices may further support the County's long-term
water conservation objectives.
Comment addressed.
5. Section 3.8.2 of the Work Plan states that the County's 5-Year GreenKeys Sustainability
Action Plan includes indoor water conservation measures, such as installation of low-flow
fixtures within County facilities and coordination with FKAA regarding rebates and public
education efforts. The Work Plan may benefit from additional discussion regarding the
County's role in supporting indoor water conservation and public outreach initiatives,
including any ongoing coordination efforts, implementation strategies, or planned
educational activities that may contribute to long-term water use efficiency over the planning
horizon.
No changes to the Green Keys Sustainability Action Plan are proposed at this time.
6. The Work Plan states that sewage treatment facilities will have the capability to make gray
water available; however, limited demand from potential users has constrained
implementation. The Work Plan may benefit from additional discussion acknowledging that
opportunities for reclaimed water or gray water reuse may continue to be evaluated over time
in coordination with the utility provider as water supply needs, regulatory frameworks,
infrastructure considerations, or economic conditions evolve throughout the planning
horizon.
Comment addressed.
5.1 Potable Water Element
7. Policy 701.5.3 cited in the Work Plan indicates that Monroe County will coordinate with
FKAA to implement a leak detection program. The Work Plan may be strengthened by
providing additional discussion regarding the County's coordination with FKAA on water
loss reduction and leak detection efforts, including any available information related to
system loss metrics, ongoing initiatives, or program objectives. If available, inclusion
of anticipated program goals, implementation strategies, or performance measures may
further support the Work Plan's discussion of long-term water conservation and system
efficiency.
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No new programs proposed at this time. As referenced on Page 17 of the updated Work Plan,
FKAA is transitioning to smart meters which allow customers to electronically monitor
usage, which will also include leak status reports and aid in leak detection.
5.6 Enemy and Climate Element
8. As per Section 380.093(3)(d)3.b, F.S., a vulnerability assessment initiated after July 1, 2024
should include, at a minimum, the 2022 NOAA intermediate-low and intermediate sea level
rise scenarios or the statewide sea level rise projections developed pursuant to paragraph
(4)(a). The planning scenarios used by the County utilize the NOAA intermediate-high sea
level rise projection. A justification for using the NOAA intermediate-high sea level rise
projection should be included.
Monroe County's Sea Level Rise Vulnerability Assessment was originally conducted on
June 15, 2021. Monroe County is in the process of updating the Vulnerability Assessment,
IV.CONSISTENCY WITH THE MONROE COUNTY YEAR 2030 COMPREHENSIVE PLAN,
THE FLORIDA STATUTES, AND PRINCIPLES FOR GUIDING DEVELOPMENT
A. The proposed amendment is generally consistent with the following Goals, Objectives and
Policies of the Monroe County Year 2030 Comprehensive Plan. Specifically, it furthers:
The proposed amendment will support and enhance the level of service standards identified
within the Potable Water Element and ensure the availability of water supply as identified within
the Capital Improvements Element and the Intergovernmental Coordination Element.
B. The proposed amendment is consistent with Part 11 of Chapter 163, Florida Statutes (F.S.).
Specifically, the amendment furthers:
163.3177(l), F.S. - The comprehensive plan shall provide the principles, guidelines, standards,
and strategies for the orderly and balanced future economic, social, physical, environmental,
and fiscal development of the area that reflects community commitments to implement the plan
and its elements. These principles and strategies shall guide future decisions in a consistent
manner and shall contain programs and activities to ensure comprehensive plans are
implemented. The sections of the comprehensive plan containing the principles and strategies,
generally provided as goals, objectives, and policies, shall describe how the local government's
programs, activities, and land development regulations will be initiated, modified, or continued
to implement the comprehensive plan in a consistent manner. It is not the intent of this part to
require the inclusion of implementing regulations in the comprehensive plan but rather to
require identification of those programs, activities, and land development regulations that will
be part of the strategy for implementing the comprehensive plan and the principles that
describe how the programs, activities, and land development regulations will be carried out.
The plan shall establish meaningful and predictable standards for the use and development of
land and provide meaningful guidelines for the content of more detailed land development and
use regulations.
163.3177(6)c4, F.S. — Within 18 months after the governing board approves an updated
regional water supply plan, the element must incorporate the alternative water supply project or
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projects selected by the local government from those identified in the regional water supply
plan pursuant to s. 373.709(2)(a) or proposed by the local government under s. 373.709(8)(b).
If a local government is located within two water management districts, the local government
shall adopt its comprehensive plan amendment within 18 months after the later updated
regional water supply plan. The element must identify such alternative water supply projects
and traditional water supply projects and conservation and reuse necessary to meet the water
needs identified in s. 373.709(2)(a) within the local government's jurisdiction and include a
work plan, covering at least a 10-year planning period, for building public, private, and
regional water supply facilities, including development of alternative water supplies, which are
identified in the element as necessary to serve existing and new development. The work plan
shall be updated, at a minimum, every 5 years within 18 months after the governing board of a
water management district approves an updated regional water supply plan. Local
governments, public and private utilities, regional water supply authorities, special districts,
and water management districts are encouraged to cooperatively plan for the development of
multijurisdictional water supply facilities that are sufficient to meet projected demands for
established planning periods, including the development of alternative water sources to
supplement traditional sources of groundwater and surface water supplies.
C. Consistency with the Principles for Guiding Development in the Florida Keys Area of
Critical State Concern:
For the purposes of reviewing consistency of the adopted plan or any amendments to that plan with
the principles for guiding development and any amendments to the principles, the principles shall be
construed as a whole and no specific provision shall be construed or applied in isolation from the
other provisions.
(a) Strengthening local government capabilities for managing land use and development so that local
government is able to achieve these objectives without continuing the area of critical state concern
designation.
(b) Protecting shoreline and marine resources, including mangroves, coral reef formations, seagrass
beds, wetlands, fish and wildlife, and their habitat.
(c) Protecting upland resources, tropical biological communities, freshwater wetlands, native
tropical vegetation (for example, hardwood hammocks and pinelands), dune ridges and beaches,
wildlife, and their habitat.
(d) Ensuring the maximum well-being of the Florida Keys and its citizens through sound economic
development.
(e) Limiting the adverse impacts of development on the quality of water throughout the Florida
Keys.
(f) Enhancing natural scenic resources, promoting the aesthetic benefits of the natural environment,
and ensuring that development is compatible with the unique historic character of the Florida Keys.
(g) Protecting the historical heritage of the Florida Keys.
(h) Protecting the value, efficiency, cost-effectiveness, and amortized life of existing and proposed
major public investments, including:
1. The Florida Keys Aqueduct and water supply facilities;
2. Sewage collection, treatment, and disposal facilities;
3. Solid waste treatment, collection, and disposal facilities;
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4. Key West Naval Air Station and other military facilities;
5. Transportation facilities;
6. Federal parks, wildlife refuges, and marine sanctuaries;
7. State parks,recreation facilities, aquatic preserves, and other publicly owned properties;
8. City electric service and the Florida Keys Electric Co-op; and
9. Other utilities, as appropriate.
(i) Protecting and improving water quality by providing for the construction, operation,
maintenance, and replacement of stormwater management facilities; central sewage collection;
treatment and disposal facilities; and the installation and proper operation and maintenance of onsite
sewage treatment and disposal systems.
0) Ensuring the improvement of nearshore water quality by requiring the construction and operation
of wastewater management facilities that meet the requirements of ss. 381.0065(4)(1) and
403.086(10), as applicable, and by directing growth to areas served by central wastewater treatment
facilities through permit allocation systems.
(k) Limiting the adverse impacts of public investments on the environmental resources of the Florida
Keys.
(1) Making available adequate affordable housing for all sectors of the population of the Florida
Keys.
(m)Providing adequate alternatives for the protection of public safety and welfare in the event of a
natural or manmade disaster and for a post disaster reconstruction plan.
(n) Protecting the public health, safety, and welfare of the citizens of the Florida Keys and
maintaining the Florida Keys as a unique Florida resource.
Pursuant to Section 380.0552(7) Florida Statutes, the proposed amendment is consistent with the
Principles for Guiding Development as a whole and is not inconsistent with any Principle.
V. PROCESS
Comprehensive Plan Amendments may be proposed by the Board of County Commissioners, the
Planning Commission, the Director of Planning, or the owner or other person having a contractual
interest in property to be affected by a proposed amendment. The Director of Planning shall review
and process applications as they are received and pass them onto the Development Review
Committee and the Planning Commission.
The Planning Commission shall hold at least one public hearing. The Planning Commission shall
review the application, the reports and recommendations of the Department of Planning &
Environmental Resources and the Development Review Committee and the testimony given at the
public hearing. The Planning Commission shall submit its recommendations and findings to the
Board of County Commissioners (BOCC). The BOCC holds a public hearing to consider the
transmittal of the proposed comprehensive plan amendment, and considers the staff report, staff
recommendation, and the testimony given at the public hearing. The BOCC may or may not
recommend transmittal to the State Land Planning Agency. The amendment is transmitted to State
Land Planning Agency, which then reviews the proposal and issues an Objections,
Recommendations and Comments (ORC) Report. Upon receipt of the ORC report, the County has
180 days to adopt the amendments, adopt the amendments with changes or not adopt the
amendment.
BOCC SR 07.15.2026
File #2025-041 Page 9 of I
VI. STAFF RECOMMENDATION
Staff recommends approval.
VII. EXHIBITS
1. Monroe County 10-Year Water Supply Facilities Work Plan Update
2. Draft BOCC Ordinance
BOCC SR 07.15.2026
File #2025-041 Page 10 of I
Exhibit 1 to Staff Report
MONROE COUNTY, FLORIDA
10-YEAR WATER SUPPLY FACILITIES
WORK PLAN UPDATE
Prepared By:
Monroe County Planning & Environmental Resources Department
June, 2026
Page 1 of 34
TABLE OF CONTENTS
1.0 INTRODUCTION
1.1 Statutory History
1.2 Statutory Requirements
2.0 BACKGROUND INFORMATION
2.1 Overview
2.2 Relevant Regional Issues
3.0 DATA AND ANALYSIS
3.1 Population Information
3.2 Maps of Current and Future Areas Served
3.3 Potable Water Level of Service Standard
3.4 Population and Potable Water Demand Projections by Each Local Government Utility
3.5 Water Supply Provided by Local Government
3.6 Water Supply Provided by Other Entities
3.7 Conservation
3.7.1 Countywide Issues
3.7.2 Local Government Specific Actions, Programs, Regulations, or Opportunities
3.8 Reuse
3.8.1 Regional and Countywide Issues
3.8.2 Local Government Specific Actions, Programs, Regulations, or Opportunities
4.0 CAPITAL IMPROVEMENTS
4.1 Work Plan Projects
4.2 Capital Improvements Element/Schedule
5.0 GOALS, OBJECTIVES AND POLICIES
6.0 REGIONAL ISSUES IDENTIFIED IN REGIONAL WATER SUPPLY PLANS
6.1 Lower East Coast Water Supply Plan Update, September 23, 2024
6.2 Integrating Climate Change &Water Supply Planning In Southeast Florida., Southeast
Florida Regional Climate Change Compact, June 10, 2014
7.0 REFERENCES
8.0 EXHIBITS
Exhibit A Section 7.3 of the Florida Keys Aqueduct Authority 20-Year Water
System Capital Improvement Master Plan, December 2020
Page 2 of 34
Page 2 of 34
1.0 INTRODUCTION
The purpose of the Monroe County Water Supply Facilities Work Plan (Work Plan) is to
identify and plan for the water supply sources and facilities needed to serve existing and new
development within the local government's jurisdiction. Chapter 163, Part II, F.S., requires
local governments to prepare and adopt Work Plans into their comprehensive plans within 18
months after the water management district approves a regional water supply plan or its update.
The Lower East Coast Water Supply Plan Update was approved by the South Florida Water
Management District(SFWMD) on September 23, 2024.
Residents of Monroe County obtain their water directly from the Florida Keys Aqueduct
Authority (FKAA), which is responsible for ensuring that enough capacity is available for
existing and future customers.
The Monroe County Water Supply Facilities Work Plan (Work Plan) will reference the
initiatives already identified in FKAA's Water System Capital Improvement Master Plan,
December 2020. According to state guidelines, the Work Plan and associated comprehensive
plan amendments must address the development of traditional and alternative water supplies,
bulk sales agreements and conservation and reuse programs that are necessary to serve existing
and new development for at least a 10-year planning period. The Monroe County Work Plan
will have the same planning time schedule consistent with the comprehensive plan and the
Lower East Coast Water Supply Plan Update.
The County's Work Plan is divided into five sections:
Section 1 —Introduction
Section 2—Background Information
Section 3 —Data and Analysis
Section 4—Work Plan Projects/Capital Improvement Element/Schedule
Section 5— Goals, Objectives, Policies
1.1 Statutory History
The Florida Legislature has enacted bills in the 2002, 2004, 2005, 2011, 2012, 2015, and 2016
sessions to address the state's water supply needs. These bills, particularly Senate Bills 360
and 444 (2005 legislative session), significantly changed Chapter 163 and 373 Florida Statutes
(F.S.) by strengthening the statutory links between the regional water supply plans prepared
by the water management districts and the comprehensive plans prepared by local
governments. In addition, these bills established the basis for improving coordination between
local land use planning and water supply planning.
1.2 Statutory Requirements
Monroe County has considered the following statutory provisions when updating the Water
Page 3 of 34
Supply Facilities Work Plan (Work Plan):
1. Coordination of the local comprehensive plan with the comprehensive plans of
adjacent municipalities, the county, adjacent counties, or the region; with the
appropriate water management district's regional water supply plans approved
pursuant to s. 373.709; and with adopted rules pertaining to designated areas of
critical state concern shall be a major objective of the local comprehensive planning
process. To that end, in the preparation of a comprehensive plan or element thereof,
and in the comprehensive plan or element as adopted, the governing body shall
include a specific policy statement indicating the relationship of the proposed
development of the area to the comprehensive plans of adjacent municipalities, the
county, adjacent counties, or the region, as the case may require and as such adopted
plans or plans in preparation may exist. [Section 163.3177(4)(a), Florida Statutes.]
2. Revise the Potable Water Sub-Element to adopt a water supply facilities work plan
covering at least a 10-year planning period to meet existing and projected demand.
The work plan must address those water supply facilities for which the local
government has responsibility and include the facilities needed to develop alternative
water supplies. The work plan must also identify conservation and reuse measures to
meet future needs. [Section 163.3177(6)(c), Florida Statutes.]
3. Revise the Conservation Element to assess current and projected water needs and
sources for at least a 10-year planning period. The analysis must consider the existing
levels of water conservation, use, and protection, the applicable policies of the water
management district, and the district's approved regional water supply plan. In the
absence of an approved regional water supply plan, the analysis must consider the
district's approved water management plan. [Section 163.3177(6)(d)3, Florida
Statutes.]
4. Revise the Capital Improvements Element to identify capital improvements projects
to be implemented in the first 5 years of the work plan for which the local
government is responsible, including both publicly and privately funded water supply
projects necessary to achieve and maintain adopted level of service standards; and
adopt a five-year schedule of capital improvements to include those projects as either
funded or unfunded, and if unfunded, assign a level of priority for funding. [Section
163.3177(3)(a)4, Florida Statutes.]
5. Revise the Intergovernmental Coordination Element to adopt principles and
guidelines to be used to coordinate the comprehensive plan with the regional water
supply authority (if applicable) and with the applicable regional water supply
plan. [Section 163.3177(6)(h)l, Florida Statutes.]
Page 4 of 34
6. During the Evaluation and Appraisal review, determine if comprehensive plan
amendments are necessary to reflect statutory changes related to water supply and
facilities planning since the last update to the comprehensive plan. If necessary, adopt
the plan amendments to incorporate the statutory changes as appropriate. [Section
163.3191(1) and(2), Florida Statutes.]
2.0 BACKGROUND INFORMATION
2.1 Overview
Monroe County was incorporated in 1824,making it one of the first counties established in the
State of Florida. Monroe County includes an approximately 112-mile long string of islands
served by Highway US 1, an area of approximately 1,200,344 acres bounded by the Atlantic
Ocean to the east and south, the Gulf of Mexico and Florida Bay to the west, and Miami-Dade
County to the north. Incorporated municipalities within Monroe County encompass 12,678
acres,which include Key West,Marathon,Key Colony Beach,Layton, and Islamorada.A non-
contiguous uninhabited mainland portion of Monroe County totaling 944,275 acres is located
within Everglades National Park with another 126,437 acres located within Big Cypress
National Park. Fort Jefferson/Dry Tortugas National Parks total almost 64,379 acres. The
remaining Unincorporated area totals 51,747 acres or approximately 81 square miles.
Monroe County has limited or restricted growth potential. Future development potential and
population growth is limited by linear geography, the amount of land already in public
ownership, and the scarcity of vacant and developable land, together with growth restrictions
dictated by the County's Residential Rate of Growth Ordinance (ROGO) and Non-Residential
Rate of Growth Ordinance (NROGO). These growth ordinances were developed following
designation of the Florida Keys Area of Critical State Concern and the completion of the
Florida Keys Carrying Capacity Study. The Unincorporated County's total ROGO annual
allocation for new residential building permits is 62 dwelling units per year,47,083 square feet
of new floor area for nonresidential uses will conclude in July, 2026. Monroe County is
currently in the process of amending its Comprehensive Plan in order to provide for an
allocation of 657 new residential building permits as authorized by the Florida Administration
Commission and a maximum of 157,023 square feet of new floor area for nonresidential uses
over the next 10 years. This provides the FKAA with a firm basis for predicting future water
supply allocation needs.
Existing land use data in the 2011 Technical Document of the Monroe County Comprehensive
Plan reveals that 4,988 acres or 6.8% of the total gross acreage in the Unincorporated County
(outside the mainland portion) is dedicated to residential uses. The remaining gross acreages
are allocated to nonresidential uses such as commercial(1.2%); industrial(0.6%); institutional
(0.2%);recreational(1.8%);military(5.5%); conservation(75.9%);and vacant or undeveloped
(3.2%). The County does not anticipate substantial increases in land area in the near future,
unless there is a policy decision from the municipalities for dissolution. In the meantime, the
residential and nonresidential growth rate is anticipated to be minimal for the next 10 years
due to ROGO and NROGO.
Page 5 of 34
2.2 Relevant Regional Issues
As the state agency responsible for water supply in the Lower East Coast(LEC)planning area,
the SFWMD plays a pivotal role in resource protection, through criteria used for Consumptive
Use Permitting. As pressure increased on the Everglades ecosystem resource, the Governing
Board initiated rule-making to limit increased allocations dependent on the Everglades system.
As a result, the Regional Water Availability Rule was adopted by the Governing Board on
February 15, 2007, as part of the SFWMD's water use permit program. This reduced reliance
on the regional system for future water supply needs and mandates the development of
alternative water supplies and an increase in the use of conservation and reuse techniques.
The LEC Planning Area relies on fresh groundwater and surface water for urban, agricultural,
and industrial uses. However, traditional freshwater sources in the LEC Planning Area are not
sufficient to meet projected 2045 water demands. Analyses indicate increases in allocations of
fresh groundwater from the surficial aquifer system (SAS) and surface water from Lake
Okeechobee are not available to meet the growing needs of the LEC Planning Area during 1-
in-10 year drought conditions.
The regional issues identified for 2045 in the Lower East Coast Water Supply Plan Update
(adopted September 23, 2024) include:
1. Construction of potable water supply development projects by Public Supply utilities.
2. Implementation of Comprehensive Everglades Restoration Plan (CERP) Restoration
Strategies and other water resources development projects to provide additional
storage.
3. Implementation of Lake Okeechobee System Operating Manual and construction of
CERP capital projects identified in minimum flow and minimum water level (MFL)
prevention and recovery strategies.
The sole source provider of potable water to Monroe County is FKAA, whose wellfield is
located in Florida City. The limited availability of SAS withdrawals presents a potential risk
to the water supply for all of Monroe County. FKAA is a permitted Floridan Aquifer User,
which should offset any anticipated drought-driven saltwater intrusion event. FKAA also
operates reverse osmosis facilities in Marathon and Stock Island, with a combined supply
capacity of 5 MGD, as an alternative water source for the county. Within this 10-year planning
horizon, there is one new reverse osmosis facility proposed in Crawl Key, which will be able
to produce up to 4 MGD. Also, there are plans to expand and rehabilitate the existing Stock
Island Plant, adding another 2 MGD of potable water capacity at that facility. It is anticipated
that the Marathon reverse osmosis facility will be decommissioned, resulting in a total of
reverse osmosis capacity within the 10 year planning horizon of 10 MGD.
Other regional water issues have been identified by the Southeast Florida Regional Climate
Change Compact, which includes Palm Beach, Broward, Miami-Dade and Monroe Counties.
The Compact communities have agreed to use a sea level rise prediction of between 10 and 17
inches by 2040, and between 21 and 54 inches by the year 2070 for planning purposes in the
Southeast Florida region until more definitive information on future sea level rise is available
Page 6 of 34
(the Compact's A Unified Sea Level Rise Projection for Southeast Florida, December, 2019).
The potential landward movement of the saltwater intrusion line resulting from the impact of
sea level rise may affect future decisions regarding the implementation of capital
improvements,requiring adaptation mitigation strategies to preserve the potable water supply.
Monroe County's climate change and sustainability consultants have summarized hydrologic
modeling by the United States Geological Survey that suggests relatively low risk to the FKAA
wellfields in Florida City under even the worst-case 2060 sea level rise scenarios. However,
FKAA continues to monitor the most current data and analysis regarding this issue.
3.0 DATA AND ANALYSIS
3.1 Population Information
The County's existing and future population figures are derived from the projections prepared
by TischlerBise as backup to analysis on the capacity of existing infrastructure within
Unincorporated Monroe County (July 15, 2025) and the 2025 Bureau of Economic and
Business Research (BEBR) population estimates. The memorandum documenting the base
year functional population calculation and 20-year projections for Monroe County and the
Unincorporated Area is included as Exhibit B to this Work Plan. These updated population
figures shall be adopted by reference into the 2030 Comprehensive Plan. Table 9 of this report
identifies unincorporated functional population (permanent and seasonal) projections from
2024-2045. In 2024,the unincorporated functional population was calculated as being 64,431.
This is projected to increase to 66,558 in 2029; 68,079 in 2034; 69,008 in 2039; 68,655 in
2044; and 68,809 in 2045. The projection reflects a total increase of 4,378 in population with
predicted increases in permanent, seasonal population, lodging, and day tripping populations.
The relatively minor increase in population growth is reflective of the fact that County
development is substantially constrained, with future development potential and population
growth limited by the amount of land in public ownership and the scarcity of vacant
developable land, together with growth restrictions dictated by the County's Residential Rate
of Growth Ordinance (ROGO) and Non-Residential Rate of Growth Ordinance (NROGO).
These growth ordinances were developed following designation of the Florida Keys Area of
State Critical Concern and the completion of the Florida Keys Carrying Capacity Study.
3.2 Maps of Current and Future Areas Served
A map depicting current and future County boundaries served by the FKAA is included as
Figure 1 on page 9 of this document.
3.3 Potable Water Level of Service (LOS) Standard
Pursuant to Policy 701.1.1 of the 2030 Comprehensive Plan, Monroe County currently has an
adopted Potable Water LOS of 100 gallons/capita/day, which was based on historical data
through December 2011 and provided by FKAA in December 2012 and a calculation that
combined nonresidential uses and the functional population (permanent plus seasonal based
on population projections developed by Fishkind and Associates in March, 2011)
Page 7 of 34
However, the Lower East Coast Water Supply Plan Update calculated the per capita gallons
per day usage rate of Monroe County based on permanent population data derived from BEBR
medium population estimates and a 5-year average using finished water totals that had been
reported by FKAA to FDEP, as pictured in the table below:
1017 2018- 1plp Z020, 2021 1017 2018 1011p 2920 1011 PCK
Population PoWation Ploaulalion Pa poWanu Population PCOR PCIUR PCORKM1@& KUR 2017
-
2021
FKAA
The Lower East Coast Water Supply Plan Update appears to have calculated the per day
usage rate for the entirety of Monroe County and did not include a breakdown per capita
usage rate for Unincorporated Monroe County (Monroe County less the Municipalities).
Utilizing the BEBR Population Estimates for Unincorporated Monroe County and PCUR
included in the Lower East Coat Water Supply Update, the Annual Average usage for
Unincorporated Monroe County from 2017 through 2021 is depicted below:
2017 2018 2019 2020 2021 Average
Population Population Population Population Population PCUR
2017-
2021
BEBR 36, 202 34,226 35, 294 36, 477 38, 689 -
PCUR* 1 106 1 103 1 105 1 109 1 124 1 109
*Calculated based on determining the percentage of Unineorporated Monroe County out of Entire Monroe County
Population and applying to PCUR
For the purpose of this 10-Year Water Supply Plan Update and to demonstrate
consistency with the Lower East Coast Water Supply Plan Update, Unincorporated
Monroe County shall confirm potable water availability of at least 109 gallons/capita/day.
The Unincorporated Monroe County 2045 permanent population is projected as being
42,442. Therefore, 4.6 MGD or more of water supply capacity is required for potable
water within Unincorporated Monroe County.
3.4 Population and Potable Water Demand Projections
The population estimates and projections and the potable water demand projections for the
entire FKAA service area based on a planned LOS of 235 gal./capita/day are presented below
in Table 1. These projections are based on permanent population derived from BEBR medium
population estimates.
Table 1. Population & Potable Water Demand Projections for FKAA Service Area
Page 8 of 34
Year 2025 2030 2035 2040 2045
Permanent 84,707 87,200 88,900 90,100 90,900
Population
Projection
Water 19.9 20.5 20.9 21.2 21.4
Supply
Demand
MGD
In summary, FKAA's average daily water demand for the entire service area is expected to
increase from 19.9 MGD in 2025 to 21.4 MGD in 2045. FKAA's current Water Use Permit
provides an annual allocation of 8,751 Million Gallons (MG) or 23.98 MGD, which is
sufficient to meet water demand projections.
Unincorporated Monroe County Permanent Population and Potable Water Demand
Projections:
The population estimates and potable water demand projections for Unincorporated Monroe
County are presented below in Table 2. The population projections as demonstrated in Exhibit
B are adopted as part of the technical background of this work plan and shall be incorporated
into the comprehensive plan by reference. The water demands are for finished water.
Table 2. Population Estimate and Projections for Unincorporated Monroe County
Years 2024-2045
Unincorporated
Monroe Count
Resident 38,546 40,828 41,692 42,147 42,404 42,442
Population
Seasonal 18,280 18,873 19,272 17,482 19,601 19,662
Population
Lodging 5,468 5,641 5,814 5,988 6,161 6,196
Population
Day 1,137 1,216 1,301 1,392 1,489 1,509
Trippers
Functional 64,431 66,558 68,079 69,008 69,655 69,809
Population
* Monroe County extrapolated 2045 population projections based on calculations provided in
TischlerBise Memorandum and BEBR Population Projections
The population estimates and projections and the potable water demand projections for the
permanent population of Unincorporated Monroe County based on a planned LOS of 109
gal./capita/day are presented below in Table 3.
Table 3. Population & Potable Water Demand Projections for
Unincorporated Monroe County
Year 2024 2029 2034 2039 2045
Page 9 of 34
Permanent 38,546 40,828 41,692 42,147 42,442
Population
Projection
Water 4.2 4.5 4.5 4.6 4.6
Supply
Demand
MGD
Unincorporated Monroe County Functional Population and Potable Water Demand
Projections:
The functional population estimates and the potable water demand projections for
Unincorporated Monroe County are presented below in Table 4. The projections are through
the year 2045.
Table 4. Functional Population & Potable Water Demand Projections
Year 2024 2029 2034 2039 2045*
Functional 64,4311 66,5581 68,0791 69,0081 69,8092
Population
Projection*
Water 7.0 7.3 7.4 7.5 7.6
Supply
Demand
MGD
*Functional Population means total population comprised of resident population,seasonal population,lodging
population,and day tripper population.
(Sources:Figure 7-Functional Population Estimate and Projections for Monroe County,July 15,2025,
TischlerBise)
(Source: Extrapolated based on TischlerBise Calculations)
(September 23,2024 LEC Plan Appendices)
3.5 Water Supply Provided by Local Government
Monroe County does not supply potable water to Unincorporated Monroe County and its
municipalities.
3.6 Water Supply Provided by Other Entities
The Florida Keys Aqueduct Authority (FKAA) is the sole provider of potable water in the
Florida Keys, established by Special Legislation, Chapter 76-441, L.O.F. (as amended).
FKAA's primary water supply is the Biscayne Aquifer, a shallow groundwater source. The
FKAA's wellfield is located within an environmentally protected pine rockland forest west of
Florida City. The location of the wellfield near Everglades National Park, along with
restrictions enforced by state and local regulatory agencies, contributes to the unusually high
water quality. These wells contain some of the highest quality groundwater in the state,
meeting all regulatory standards prior to treatment. Additionally, the FKAA is continually
Page 10 of 34
monitoring, assessing, and working to eliminate potential hazards to our water source,
including inappropriate aquifer utilization,unsuitable land uses, and the potential for saltwater
intrusion.
The groundwater from the wellfield is treated at the FKAA's Water Treatment Facility in
Florida City, which currently has a maximum water treatment design capacity of 29.8 million
gallons per day (MGD). The primary water treatment process is a conventional lime
softening/filtration water treatment plant and is capable of treating up to 23.8 MGD from the
Biscayne Aquifer. The secondary water treatment process is the newly constructed reverse
osmosis (RO) water treatment plant which is capable of producing 6 MGD from the brackish
Floridan Aquifer. The product water from these treatment processes is then disinfected and
fluoridated. The FKAA treated water is pumped 130 miles from Florida City to Key West
supplying water to the entire Florida Keys.
The FKAA maintains storage tank facilities which provide an overall storage capacity of 45.2
million gallons system wide. The sizes of tanks vary from 0.2 to 5.0 million gallons. These
tanks are utilized during periods of peak water demand and serve as an emergency water
supply. Since the existing transmission line serves the entire Florida Keys (including Key
West), and storage capacity is an integral part of the system, the capacity of the entire system
must be considered together, rather than in separate service districts.
Additionally, two saltwater RO plants, located on Stock Island and Marathon, are available to
produce potable water under emergency conditions. The RO desalination plants have design
capacities of approximately 5.0 MGD.
At present, Key West and Ocean Reef are the only areas of the County served by a flow of
potable water sufficient to fight fires. Outside of Key West, firefighters rely on a variety of
water sources, including tankers, swimming pools, and salt water either from drafting sites on
the open water or from specially constructed fire wells. Although sufficient flow to fight fires
is not guaranteed, new hydrants are being installed as water lines are replaced to make water
available for fire-fighting purposes, and pump station/tank facilities are being upgraded to
provide additional fire flow and pressure. A map of the key FKAA transmission and
distribution facilities is shown in Figure 2.
Figure 1.FKAA Service Areas
Page 11 of 34
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Page 12 of 34
Demand for Potable Water
Tables 5 and 6 provide a historical overview of the water demands in the FKAA service area
including Water Use Permit (WUP) allocation limits, yearly percent changes, and remaining
water allocations. In March 2008, South Florida Water Management District (SFWMD)
approved the FKAA's modification of WUP 13-00005-5-W for a 20-year allocation from the
Biscayne and Floridan Aquifers. This modified WUP provides an annual allocation of 8,751
Million Gallons (MG) or 23.98 MGD and a maximum monthly allocation of 809 MG with a
limited annual withdrawal from the Biscayne Aquifer of 6,492 MG or 17.79 MGD and an
average dry season (December 1st-April 30th) of 17.0 MGD.
In order to meet the requirements of this limitation, the FKAA constructed a new Floridan
Aquifer Reverse Osmosis (RO) water treatment system. This RO water treatment system is
designed to withdraw brackish water from the Floridan Aquifer, an alternative water source
approximately 1,000 feet below the ground surface and treat the water to drinking water
standards. The RO water treatment plant provides added capability to limit Biscayne aquifer
withdrawals and is designed to meet current and future water demands. The RO water
treatment system provides an additional 6.0 MGD of potable water.
Along with the new reverse osmosis water treatment plant, compliance with withdrawal limits
can also be accomplished by using other alternative water sources (blending of the Floridan
Aquifer, reclaimed water and operation of the RO desalination plants), pressure reduction,
public outreach, and assistance from municipal agencies in enforcing water conservation
ordinances.
Table 5.Annual Water Withdrawals 2002-2024
Annual Wup Limit WUP+/-Annual
Year WithdraWal %Change �(MG) Allocatioift(MG)
2002 6,191 10.03% 7,274 1,083
2003 6,288 1.57% 7,274 986
2004 6,383 2.74% 7,274 813
2005 6,477 0.16% 7,274 803
2006 6,283 -2.49% 7,274 964
2007 5,850 -7.35% 7,274 1,428
2008 5,960 1.89% 8,751 2,791
2009 5,966 0.09% 8,751 2,785
2010 5,919 -0.79% 8,751 2,832
2011 6,327 6.89% 8,751 2,424
2012 6,042 -4.50% 8,751 2,709
2013 6,105 1.04% 8,751 2,646
2014 6,377 4.46% 8,751 2,374
2015 6,530 2.40% 8,751 2,221
2016 6,462 -1.04% 8,751 2,289
2017 6,324 -2.13% 8,751 2,427
2018 6,526 3.10% 8,751 2,225
Page 13 of 34
2019 1 6,809 4.34% 1 8,751 1,942
2020 6,737 -1.06% 8,751 21014
2021 7,296 8.30% 8,751 1,455
2022 7,505 2.86% 8,751 1,246
2023 7,422 -1.11% 1 8,751 1,329
2024 7,563 1.90% 1 8,751 1,188
Source:Florida Keys Aqueduct Authority,2025
Table 6. 2024 Potable Water Demand Summary
Florida Keys Aqueduct Authority
Potable Water Demand Summary-New Water Demand,Actual Water Demand,and expected Water Demand
Year2024 Year2025
New Water Service Metered Water Water Demand Expected Water
Gal/Year Gal/Year Gal/Year Demand
Gal/Year
Unincorporated Monroe County 1,099,879 2,388,152,815 3,336,986,291 3,415,181,749
City of Key West 2,380,812 1,557,579,300 2,176,418,837 2,227,418,767
City of Marathon 3186880 615,105,664 859,492,389 879,632,838
City of Key Colony Beach 52006 117,484,794 164,162,504 168,009,317
City of Layton 0 13,407,091 18,733,843 19,172,832
Village of Islamorada 1685369 693,740,350 969,369,306 992,084,496
Entire Florida Keys 8,404,946 5,385,470,014 7,525,163,170 7,701,500,000
SFWMD WUP Annual Allocation 8,751,000,000 8,751,000,000
Source:Florida Keys Aqueduct Authority,2025
Figure 2 illustrates projected water supply availability vs projected water demand. Demand for
potable water is influenced by many factors, including the number of permanent residents,
seasonal populations and day visitors, the demand for commercial water use, landscaping
practices, conservation measures, and the weather.
Page 14 of 34
Figure 2. FKAA Water Supply Available vs.Water Demand Projections
M,
20 Pwfomu!fl 0nIpaci
VINN, ?Ion'
4Imducflmi flom I wmtiii Aqwifeli
um ORMI F+i rdrn Imn fro ry lii,r Aqi,fiYi
d A,,(Iz,I>ry D..........I
iJ
2024 ':(12', 'NI26 202 202B 202,'l 203fl 20M 20J) 2033 2014 N X)Vr 203 2038 20:M 2040 2041 204,? 204 2044 X)4h
yn yr
As shown in Table 7, in 2024, the FKAA distributed an annual average of 17.4 MGD from the
Biscayne Aquifer plus 3.27 MGD from Floridan RO Production. This table also provides the
water treatment capacities of the emergency RO plants. Since the emergency RO plants utilize
seawater, a WUP is not required for these facilities.
Table 7- Projected Water Demand in 2025 (in MG)
FKAA 2025 Water
Permit 2024 Water Demand
'thresholds Demand Projected ,
Annual Allocation
Average Daily Demand 23.98 20.66 21.1
Maximum Monthly Demand 809.01 686 693
Annual Demand 8,751 7,525 7,702
Biscayne Aquifer Annual
Allocation/Limitations
Average Daily Demand 17.79 17.4 17.79
Annual Demand 16,492 6,367 6,492
Floridan RO Production
Average Daily Demand 16.00 13.27 12.21
Emergency RO WTP Facilities
Ken-nit L. Lewin Design Capacity 4.00 21.84 1.00
(MGD) MGY
Marathon RO Design Capacity MGD) 0.00 (MGY) 0.00
All figures are in millions ofgallons
Source: Florida Keys Aqueduct Authority, 2025
Page 15 of 34
The 2024 figures and projections for 2025 indicate a slight increase in annual average daily
demand from 20.66 to 21.1 MGD and an increase in maximum monthly demand from 686
MGD to 693 MGD. Preliminary projections from FKAA for 2026 indicate a negligible
increase in annual average daily demand to 21.3.
Improvements to Potable Water Facilities
FKAA has a Water System Master Plan for water supply,water treatment, transmission mains
and booster pump stations, distribution mains, facilities and structures, information
technology,reclaimed water systems, and Navy water systems.
In 2023, FKAA began replacing aging transmission mains and will continue upgrading the
entire 130-mile system over the coming decades. The Florida Keys Aqueduct Authority
(FKAA) is implementing major upgrades to help make its drinking water distribution more
resilient against climate change. The improvements are reflected in the 5-Year Capital
Improvement Plan.
Table 8 provides the schedule and costs projected for the capital improvements to the
portable/alternative water systems planned by the FKAA. The total cost of the scheduled
improvements is approximately $389 million over the next 5 years. These projects are to be
funded by the water rate structure, long-term bank loans, and grants.
Table 8—FKAA Proiected 5 Year Capital Improvement Plan
escripticln 2026 2027 2029 20D 2030 5Ye,arTataI
Water P'roj�ecR:s�
1-1 iral:hon Cuislorner.i xr yr e 500,11.100 BC.BdU..B.00 4UICUBB ICUICUBB °u,ICUICUBB,ICUICUBB !s,iCUoo,iC oln BB..ain..00n
J iota,arl:Dean Menibu.me Frealrn;nl:I .acilll:,(('( `iSi 5,000,11.100 2I5..000..000 Uq.B„ICDICDo,inICDBB ;U u,l(DICDBB.I(DICDBB ".:U!!:u.,oniCU.,oinill
111 rr ihon(Cum,,l Key. Reverse 17 rnpsis FacilRy 10,000,11.100 2I5.000..000 Z v ICUICUBB ICUICUBB ei,ICUICUBB.ICUICUBB 5.,olnICU.,oln U '
Kai i NO F I...;win f';rr.,e,,r.,(...I...,ri i:a;>I,:f i;h l..allll: l:ic:ir B„B.B Ud:V„IiB Ud:V L000,000 2500.11110 7500„I11110 5.I000.I000 Uk"..0011,000
,J.Ficabei..Dean a..r i::;rJ•,r :al:ew7 kee"Foi cx i main 720..000 7211.000
J.f' Berl:Dean V/TF' Diesel f'i imp LJpa:.Jra le.s B,!!.u00,ICB110 2,500,010 110 �R..S.BBBICU.,011 U
J.(' Berl:I)ean V,71'(:Icx:kri:al lrnpr v ern nl: (('hale?) 4,000,ICB00 ... ... ... ... 4„B.BNICD„oleo
"Iaraal:hon,(i,arnro:::l an...l Key Was[Pump.E31i akion E:i IeCJFIC d L..1F, 750,11.B00 750..000 B..!!:uBDICU..B.BfBkU '
Fr insrnissi an FIelocalion(k lori I Cil:yj 7..000..000 7 I(DICDBB I(DICDBB Bk.00in.,oln U
Fr.ansrni.ssi.an F I:anli:ahon Keay(r,Ik1l 86 91) 30.000,11.100 ... ... ... ... ;:n..B.BBDICD..B.Bon '.........
Fr masrcri,,,i,n I cwrer lleladecuirnbe Key (11r11 l 73 r':al 1,000,11.100 ZBB ICUICUBB ICUICUBB 3o,inino,inino aB.ICDBBfB.ICDoln 711..B.BBDICD..B.on
Fr inasrni;:si an Subacluieous Crossings(1'rlM r':il) 1.000,11.100 8.000..000 B.B I(DICDBB I(DICDBB V..B.0in..00n
�r naru.,,.i an -h rarh m (Knig:ghs Key) B,B.BFUV:V,ICBFUV:V ... ... ... ... 1..00111.000
;arh i.::lic i'I cAeo6on ;:. e n I:Iep;au,and limn ovei nenl a 200,1100 2..000..000 2..2011,000
rransmissi an^inak,Creek Suibaclueouis I;r sing V";,.B00,ICB110 ... ... ... ... V";,.BBDICU„S.BBU&U '
Fransrnission C1 I I Ek,ibaciueouis Crossing 1500,I1.100 15Ae00„000 ... ... ... 6.n in.,olno '........
:Jesaalinaaki:an"31i oraage Faanl< 1,2110,11.100 ... ... ... ... 1,,20in„B.BfBkU
Ocean Reef: Fenk.R ehabilil:aho 500,11.100 ... ... ... ... siniCD..B.BfBkU
Di.,krit.uli in Fvdn I....ik. s Key I.....arg o 500,11.100 ... ... ... ... sini(D..B.BfBkU
Key /e I:Siorage Lank(i pl,a;rrnenk 1.000,11.100 4.000..000 i„ICDICDo,inICDBB V"";..B.BBDICD..00n '
Di;kri h:nu i n L Jl agr ac l;,s 1.500,11.100 1,50kD..B.00 i!!ino ICDICDBB i,,.6ii DBB.1(DICDBB i,!PoB:BfB.ICDoln 7,!!:Min.,oln U '
i;kril::;ution",ilorr age Tank Rep lac rnenr l::ravg Key 2.000.I000 ... ... ... ... 2..00111.000 '
vlaaraal:hon i::r..mp..;":Raal:ion 2,600,IC100 B..1500..000 4.1011.000
Valve Fiep:alaac;ernenl:i:li ograrri 800,I1.100 800..000 8I00,11.1100 8I00,11.1100 800,1000 a B..B.B0ICB..B.B0d:V
vWl:er C iaale!•%aay 21110,I1.100 200,000 B.00 2ICUBB„ICUICUBB Q.WiCD„B.on
J .i Key a eEt Baca Chi ca l iel I ( :ir ('i..arnpin...g.iN li n 1,:.00,ICB00 2,500,000 3.,00in.oleo
`Jr`,.;I onn::ki in A <.f;Diakrib d:i in Boca Chi::a 1,400,11.100 8..-400..000 2..00in.,oln U '
Tnfl:aJl water prcrj,ectts r~,7 u0,11.B00 B.U!:U 5irBll..B.BfBkll'... 96,9ICDB.B,1(DICDB.B aot,eiCDB.B.I(DICDBB .B;P,:.Uoln,ICDoln .BkBrU..J:YICU..B.BfBin
In summary, based on current conditions and projects, an adequate supply of water to meet
current and future demands is provided by the following: The Biscayne permitted water supply
Page 16 of 34
of 17.79 MGD, the 6.0 MGD RO water treatment plant, the new reclaimed water systems, and
the ability to operate the 5.0 MGD RO desalination plants during emergency situations. The
FKAA continues to monitor and track conditions and events that could negatively impact the
existing water supply. Any such impacts will be evaluated to determine future changes
necessary to continue servicing Monroe County with adequate water supply.
3.7 Conservation
One method of reducing water use and increasing the availability potable water is the
implementation of Best Management Practices for water use. Mandatory outdoor water
restrictions, water rate pricing and Florida-friendly landscaping that utilizes native flora can
all assist in reducing potable water demand and the impacts of future growth.
3.7.1 County-Wide Issues
Water conservation is one method available to promote the reduction of use and increase of
availability of potable water. FKAA implements a high base water rate for water use, which
effectively deters wasteful water use. Implementation of mandatory year-round watering
restrictions also aid in conserving water. Additionally, FKAA is transitioning to smart meters
which allow customers to electronically monitor usage, this will also include leak status
reports.
3.7.2 Local Government Specific Actions, Programs, Regulations, or Opportunities
Monroe County will coordinate future water conservation efforts with the FKAA and the
SFWMD to ensure that proper techniques are applied. In addition, the County will continue to
support existing goals, objectives and policies in the comprehensive plan that promotes water
conservation in a cost-effective and environmentally sound manner. The County will also
continue to actively support the SFWMD and FKAA in the implementation of new regulations
or programs that are structured to conserve water during the dty season.
Monroe County has also adopted an Interlocal Agreement between FKAA and Monroe
County, that will ensure the availability of potable water prior to the issuance of a building
permit. This agreement is referenced in the Goals, Objectives and Policies of the Monroe
County 2030 Comprehensive Plan Policy 1301.1.10, which states:
Monroe County, shall maintain an interlocal agreement with the FKAA which
establishes a mechanism whereby the FKAA and the County identify the availability
of water supply needed to serve existing and new development within the
Unincorporated Area, monitor the utilization of water supply, and implement such
alternative water supply projects, traditional water supply projects, conservation
projects, and reuse necessary to meet Monroe County's water supply needs. (Ord.
No. 022-2009)
Page 17 of 34
3.8 Reuse
Water reuse is a method for supplementing water availability. Desalination at the source
through reverse osmosis is presently incorporated within the design of new water treatment
facilities that tap into the Floridan Aquifer. Some local communities, such as Key Colony
Beach,use recycled water to irrigate its municipal golf course.However,the cost of developing
a centralized collection, treatment, and distribution system for recycled water in a county such
as Monroe that is less than 5 miles wide and 112 miles long, creates significant feasibility
challenges.
Monroe County, together with FKAA and the Key Largo Sanitary Sewer District, has
implemented a public infrastructure program to construct and operate central sewer collection
and treatment systems. Sewage treatment facilities will have the capability to make available
gray water for non-potable water applications, such as irrigation for County parks and
landscaped rights-of-way. However, the lack of possible users has inhibited the necessary
investment to create and maintain a viable reuse water distribution system. Opportunities for
reclaimed water or gray water reuse may continue to be evaluated over time in coordination
with FKAA and Key Largo Sanitary Sewer District as water supply needs, regulatory
frameworks, infrastructure considerations, or economic conditions evolve throughout the
planning horizon.
3.8.1 Regional and County-wide Issues
State law supports reuse efforts. For the past years, Florida's utilities, local governments, and
water management districts have led the nation in implementing water reuse programs that
increase the quantity of reclaimed water used and public acceptance of reuse programs. Section
373.250(1)F.S.provides that"water reuse programs designed and operated in compliance with
Florida's rules governing reuse are deemed protective of public health and environmental
quality."In addition, Section 403.064(1), F.S.,provides that, "reuse is a critical component of
meeting the State's existing and future water supply needs while sustaining natural systems."
3.8.2 Local Government Specific Actions, Programs, Regulations, or Opportunities
The County will support the SFWMD and FKAA water reuse projects and implementation of
new regulations or programs designed to increase the volume of reclaimed water used and
public acceptance of reclaimed water. As a conservation measure, FKAA is transitioning to
smart meters which allow customers to electronically monitor usage,this will also include leak
status reports. To further encourage water conservation, FKAA is exploring reorganizing their
rate structure.
The County has implemented Potable Water Conservation Standards through application of
Land Development Code Section 114-46:
All development shall make adequate provision for water conservation. To the greatest
extent practical, developments shall incorporate the following standards into site and
building design:
Page 18 of 34
1) Planting of native vegetation to reduce need for use of potable water for
landscape watering; and
2) Installation of alternative water source systems such as reverse osmosis,
cisterns, water re-use and on-site stormwater collection for irrigation and
other safe uses.
The County has established regulations limiting the clearing of native habitat and requiring
landscaping consisting of native plants, which are more drought tolerant and demand less
irrigation than most non-native species. As provided for in Section 114-99 of the Monroe
County Land Development Code:
Plant species shall conform at a minimum to the standards for Florida No. I or better,
as given in "Grades and Standards for Nursery Plant," State Department of
Agriculture and Consumer Services, Division of Plant Industry, Tallahassee. All plant
material shall be free of disease, invasive pests, and invasive fungi and shall be one of
the species shown in Section 114-105 or shall be certified by the county biologist as
native.
The County has also established incentives to increase water conservation,biological diversity,
and sustainable landscaping, subject to approval by the County Biologist. The following
activities are encouraged through application of Land Development Code Section 114-105:
a) Butterfly gardens consisting of at least two (2) larval host plants, and two (2) nectar
source plants shall allow the reduction of one (1) required understory tree. Pursuant to
approval from the County Biologist, additional reductions may be allowed for plant
species that benefit native butterfly species that are endangered, threatened, or
otherwise protected.
b) Replacement of turf grass or sod areas with artificial turf or a native plant bed shall
allow the reduction of three (3)required shrubs.
c) In addition to the Low Impact Development (LID) strategies outlined in 114-100, the
addition of managed cisterns or rain barrels may be incorporated into the site
stormwater management facilities. A site's stormwater retention requirements may be
reduced by the capacity volume of plumbed and managed systems that
provide irrigation and/or other non-potable applications.
Irrigation standards have also been established which all proposed systems must meet. As
provided for in Section 114-101 of the Monroe County Land Development Code:
Water can be conserved through the use of a properly designed, managed, maintained,
and timed irrigation system. Irrigation systems shall only provide coverage to target
areas, and shall be installed in such a manner as to minimize spray upon public
sidewalks, streets, or adjacent properties. Irrigation systems shall include the use of
low volume, low pressure, subsurface irrigation systems, and other such methods
which encourage water conservation. All automatic lawn or
landscape irrigation systems shall be equipped with and operate a moisture sensor or
approved automatic switch which overrides the irrigation cycle when adequate rainfall
and/or soil moisture level has occurred.
Page 19 of 34
Incentives for the installation of cistern rain collection systems are also encouraged, such as
the granting of positive points in the Rate of Growth Ordinance permit allocation system.
As part of the County's 5-Year Greenkeys Sustainability Action Plan, recommended projects
such as low-flow water fixtures installed throughout County facilities, County employee
training program on water conservation office practices, and collaboration with FKAA on
rebates and public education all aim to conserve water. Additionally, Monroe County along
with municipalities within the County and FKAA are collaborating to create and implement
future programs, policies and/or regulations to further conservation efforts.
3.9 Climate Change and Sea Level Rise
Southeast Florida is widely considered one of the most vulnerable regions to the impacts of
climate change and sea level rise. This is especially true of the Florida Keys, a 112-mile string
of offshore islands connected by US 1 to Miami-Dade County. As discussed earlier, potential
landward movement of the salt water intrusion line resulting from the impact of sea level rise
may affect future decisions regarding the implementation of capital improvements, requiring
adaptation mitigation strategies to preserve the potable water supply.Monroe County's climate
change and sustainability consultants have recently summarized hydrologic modeling by the
United States Geological Survey that suggests relatively low risk to the FKAA wellfields in
Florida City under even the worst-case 2060 sea level rise scenarios. However, FKAA
continues to monitor the most current data and analysis regarding this issue.
3.10 Local Government Specific Actions, Programs, Regulations, or Opportunities
FKAA presently operates two reverse osmosis (RO) plants within Monroe County, in
Marathon and Stock Island,which have a combined production capacity of 5 MGD.A Floridan
wellfield and RO water treatment facility were constructed by FKAA in Florida City and have
been operational since the fall of 2009. This RO water treatment plant treats the brackish water
of the Floridan Aquifer and has a production capacity of 6 MGD. Storage facilities maintained
by the FKAA have a total storage capacity of 45.2 MG; of this amount, there is 12 MG of
storage available in above ground storage reservoirs at Florida City. The remaining capacity is
obtained from tanks located throughout the transmission and distribution system that provide
an additional 33.2 MG of storage capacity. It is therefore anticipated that FKAA will be well
positioned to accommodate Monroe County's future water demands as sea level rise impacts
South Florida's regional water supply.
4.0 CAPITAL IMPROVEMENTS
4.1 Work Plan Projects
The FKAA Water System Master Plan 2020 identifies all proposed work projects within
Monroe County (See Exhibit A: Section 7.3 of the FKAA master plan).
4.2 Capital Improvements Element/Schedule
Page 20 of 34
The Monroe County 2030 Comprehensive Plan has adopted a LOS of 100 gallons/capita/day.
The County will continue to work with FKAA to ensure that the adopted LOS is maintained.
Adoption by reference of Section 7.3 Five-Year Capital Improvement Funding of the FKAA
Water System Master Plan 2020 (see Exhibit A) will link water availability and programmed
improvements with the County's Concurrency Management System through the establishment
of a permit review and approval process that requires evidence of water supply availability
prior to the issuance of a building permit and certificate of occupancy
Exhibit 7-2 of the FKAA Water System Master Plan 2020 will serve as Monroe County's 10-
year Water Supply Plan and CIE for potable water (see Exhibit A).
FKAA's planned Capital Improvement Projects and their tentative schedule are included in the
image below:
Project Flame 2626 2027 20,23 20,29 2030
Kermit H Lewin Reverse Osmosis Rehabilitation
Crawl Key Reverse 6rsrmrtam Facility(with SMG tank)
Ji.Robert Dean WTP Diesel Pump Upgrades
Ji.Robert Dean WTP Electrical Improvements(Phase2)
Ji.Robert Deans Membrane Treatment(PFtA3),
Maratiaon,Ramrod and Key West Puurnp Statieln Electrical Upgrades
M eter gateways
Transmission Pw aflon Key(MMI 86-91)
Transmission Marathon(KnilghtsKey),
TransrmissionSnakeGreek Crossing(Directional IDid1l)
Transmission C111 Crossing(Directional tlDriii)i
Transmission Lower Mlatecul m hue Key(MIMI 73-79),
Transmission Subaqueous Crossings,(MM 72-79),
Cathodic Protection System Repair and I mproverments
Distribution Twin Lakes Key Largo
Distribution Upgrades
Distribution Storage Tank Replacement 6ravA Key
Maratiaon Pump Station
Densal Storage Tank.
Ocean Reef Tank Rehabilftation
Key West Storage Tank Replacement
Distribution System Valves
5.0 GOALS, OBJECTIVES AND POLICIES
The adopted and presently effective Monroe County Year 2030 Comprehensive Plan includes
several Goals, Objectives and Policies (GOPs) that implement water supply concurrency and
conservation. These GOPs are located within the Potable Water Element, Intergovernmental
Coordination Element, Conservation and Coastal Management Element, Future Land Use
Element and Capital Improvements Element.
5.1 Potable Water Element
GOAL 701
Page 21 of 34
Monroe County shall support FKAA 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. [F.S.
§163.3177(6)(c), F.S., §163.3177(6)(c)2.]
Objective 701.1
Monroe County shall ensure that at the time a certificate of occupancy or its functional
equivalent is issued, adequate potable water supply, treatment, and distribution
facilities are available to support the development at the adopted level of service
standards. [F.S. §163.3177(6)(c)]
Policy 701.1.1
Monroe County hereby adopts the following level of service standards to
achieve Objective 701.1 and shall use these standards as the basis for
determining facility capacity and the demand generated by a development.
[F.S. §163.3180(l)(b), F.S., §163.3180(2), F.S. §163.3177(3)(a)3]
Level of Service Standards
1. Quantity:
100 gal./capita/day*
*Note: Based on historical data through December 2011; provided by
FKAA, December 2012.
2. Minimum Pressure:
20 PSI at customer service
3. Minimum Potable Water Quality:
Shall be as defined by Chapter 62-550 F.A.C.
Policy 701.1.2
Monroe County shall maintain land development regulations which provide a
Concurrency Management System (See Capital Improvements Policy
1401.4.5). The Concurrency Management System shall ensure that no
certificate of occupancy or its functional equivalent will be issued for new
development unless adequate potable water supply, treatment, and distribution
facilities needed to support the development at the adopted level of service
standards are available. [F.S. § 163.3177(3)(a)3., (6)(c); F.S. § 163.3180(l)(b),
(2), (3)(a)3., (6)(c)]
Policy 701.1.3
The Concurrency Management System adopted in accordance with 701.1.2
shall specify procedures for updating facility demand and capacity information,
utilizing data provided by the FKAA as potable water facilities are installed or
upgraded. [F.S.§163.3180(2)]
Page 22 of 34
Policy 701.1.4
Monroe County shall implement a concurrency management system that is
consistent with the South Florida Water Management District Lower East Coast
Regional Water Supply Plan and Florida Keys Aqueduct Authority 20 year
Water System Capital Improvement Master Plan. (Ord. 022-2009)
Policy 701.1.5
Monroe County shall prepare and maintain a 10-year Water Supply Work Plan
that identifies alternative water supply projects, traditional water supply
projects, conservation, and reuse necessary to meet the Monroe County
Unincorporated Area water supply needs, consistent with the South Florida
Water Management District Lower East Coast Regional Water Supply Plan and
the Florida Keys Aqueduct Authority 20year Water System Capital
Improvement Master Plan. [F.S. §163.3177(6)(c)3] (Ord. 022-2009)
Policy 701.1.6
Monroe County adopts the Monroe County 10-Year Water Supply Facilities
Work Plan update, dated February 2026, by reference, into the
Comprehensive Plan. Monroe County shall update the 10-year Water Supply
Work Plan every 5 years or within 18 months after the governing board of the
South Florida Water Management District approves an updated regional water
supply plan. [F.S. §163.3177(6)(c)3.] (Ord. 022-2009; Ord.No. 007-2016; Ord.
No. 017-2020)
Obiective 701.2
Monroe County shall work cooperatively with the FKAA, South Florida Water
Management District (SFWMD), Miami-Dade County, and the Cities of Layton, Key
Colony Beach, Marathon, Key West and the Village of Islamorada to ensure the
protection and availability of an adequate raw water supply at the Florida City Wellfield
to meet the needs of Monroe County through the year 2030. [F.S. §163.3177(6)(h)l.]
Policy 701.2.1
Monroe County shall work closely with FKAA in their renewal of the Florida
City Wellfield consumptive use permit issued by SFWMD.
Policy 701.2.2
Monroe County shall encourage the use of alternative water sources such as
reverse osmosis, cisterns and water re-use, and shall evaluate the feasibility of
using such alternative sources in the event that the necessary withdrawals from
the Biscayne Aquifer are limited.
Policy 701.2.3
Monroe County shall coordinate with the FKAA for the consumptive use
permitting process. This coordination shall include providing information
regarding future land use growth patterns,population trends, growth
Page 23 of 34
management policies and demand projections to ensure consistency between
the FKAA permitting process and the Monroe County Comprehensive Plan.
Policy 701.2.4
Monroe County shall coordinate with FKAA and SFWMD on updating the
Biennial Public Facilities Capacity Report(PFCR)prepared in accordance with
Capital Improvements Policy 1401.4.9. These PFCR reports shall include the
latest information on land use, population trends, and growth management
policies as well as facility capacity analyses using data supplied by service
providers. (Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
Policy 701.2.5
Monroe County shall coordinate and provide comments on the SFWMD plans,
such as water supply, cost, needs and sources, and water conservation plans, as
they are developed.
Policy 701.2.6
Monroe County shall continue to coordinate with the Cities of Layton, Key
Colony Beach, Marathon, Key West, the Village of Islamorada, and FKAA as
necessary to facilitate system-wide compatibility on such potable water-related
issues as potable water levels of service, consumption projections, water
conservation programs, and emergency management.
Objective 701.3
Monroe County shall work cooperatively with Miami-Dade County to encourage land
use planning and development controls which shall protect the recharge area of the
Florida City Wellfield from potential sources of groundwater contamination, saltwater
intrusion and overextraction. [F.S. §163.3177(6)(c), (h)l.]
Policy 701.3.1
Protection of the Florida City Wellfield shall be accomplished through the
Miami-Dade County Wellfield Protection Ordinance and the SFWMD Water
Supply Policy Document.
Policy 701.3.2
Monroe County shall maintain an interlocal agreement with FKAA and Miami-
Dade County. This agreement shall provide Monroe County with an
opportunity to comment on land use and regulatory issues related to the Florida
City Wellfield, aquifer and aquifer recharge area. It shall set forth procedures
for review of land use and regulatory activities identified as having potentially
significant impacts on the aquifer recharge and water supply systems especially
concerning hazardous waste generation. Criteria for determination of
significant impacts shall be included in the interlocal agreement.
Objective 701.4
Page 24 of 34
Monroe County shall continue to coordinate with FKAA to ensure adequate capacity
is available to provide for fire flows for protection of the public health, welfare and
safety. [F.S. §163.3177(3)(a)3.]
Policy 701.4.1
Monroe County shall coordinate with the FKAA, in accordance with its Capital
Improvements Program, to continue upgrading the distribution system toward
the goal of providing fire flow capabilities throughout Florida Keys as funds
and land are available. Fire flows shall meet the provisions of the Florida Fire
Prevention Code.
All commercial facilities not along U.S. 1 shall provide "on site" fire abatement,
unless identified in the Agreement Between Monroe County and the Florida
Keys Aqueduct Authority for Installation and Maintenance of Fire Hydrants in
Unincorporated Monroe County.
Policy 701.4.2
Monroe County shall require that at the time a construction permit is issued,
adequate fire flow is supplied to the site in accordance with the Florida Fire
Prevention Code.
Obiective 701.5
Monroe County shall continue to assist the FKAA with water conservation efforts and
assist in implementing the FKAA's Water Conservation Plan consistent with
SFWMD's Water Shortage Plan and Comprehensive Water Conservation Program.
The County shall implement Policies 701.5.1 to further conserve potable water use.
Policy 701.5.1
Monroe County shall maintain and implement a landscape ordinance consisting
of water conservation measures, including required landscaping material shall
be native species, as specified in LDC Section 114-100 and may also include
Florida Friendly provisions. (Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
Policy 701.5.2
During the development of updated land development regulations, Monroe
County shall coordinate with the FKAA to evaluate building codes, utility
regulations, landscaping ordinances, and public education programs for
implementation of water conservation measures. [F.S. §163.3177(6)(c)]
Policy 701.5.3
Monroe County shall coordinate with the FKAA in accordance with their Water
Conservation Plan to implement a leak detection program and a conservation
rate structure. Monroe County shall coordinate with the FKAA, the SFWMD,
and other affected organizations, to formulate and initiate implementation of a
joint public education program for water conservation.
Page 25 of 34
Policy 701.5.4
Monroe County shall continue to comply with SFWMD water use restrictions
including all Phase I and Phase 1 (modified) water use restrictions when water
shortages are declared by the SFWMD.
Policy 701.5.5
Monroe County shall coordinate with the Florida Department of Health(DOH)
to permit utilization of reclaimed water storage systems and utilization for all
exterior irrigation and flushing purposes. Upon receipt of authorization,policies
shall be developed to implement the use of reclaimed water storage systems
where economically feasible.
Policy 701.5.6
Monroe County shall permit and encourage rainwater capture for all non-
potable uses and for safe household potable uses. [F.S. §163.3177(6)(c)]
Policy 701.5.7
As the water conservation measures set forth in Policies 701.5.1 through
701.5.7 are implemented,Monroe County shall re-evaluate the adopted potable
water levels of service through the evaluation and appraisal report process.
(Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
Objective 701.6
In coordination with the FKAA, Monroe County shall continue to maximize the use of
existing facilities and discourage urban sprawl. [F.S. §163.3177(6)(c)2.]
Policy 701.6.1
Monroe County shall annually evaluate proposed FKAA capital improvements
for inclusion in the annual update of the County's CIE Schedule.
Policy 701.6.2
Existing facilities shall be maximized by encouraging capital developments in
already developed areas and discouraging extension of facilities to undeveloped
areas.
5.2 Natural Groundwater Aquifer Recharge Element
GOAL 1101
Monroe County shall protect the quality and quantity of water in the potable water aquifer and
in the freshwater lens systems so as to ensure public health, conserve the public water supply,
and preserve ecosystems dependent upon freshwater. [F.S. §163.3 177(6)(c)],
Objective 1101.1
Monroe County shall work cooperatively with Miami-Dade County to encourage land
use planning and development controls which shall protect the recharge area of the
Page 26 of 34
Florida City Wellfield from potential sources of groundwater contamination, saltwater
intrusion from sea level rise and over-extraction. (See Potable Water Objective 701.4
and related policies.) [F.S. § 163.3177(6)(d)]
Obiective 1101.2
Monroe County shall provide for the protection of groundwater within the
Unincorporated areas, with the recognition that these resources may be increasingly
impacted by tidal flooding and sea level rise. (Ord. No. 013-2022, § 2(Exh. 1), 8-17-
2022)
Policy 1101.2.1
Monroe County shall undertake activities which shall reduce pollutant entry
into groundwater, summarized as follows:
1. Monroe County shall develop and implement permitting,inspection and
enforcement procedures designed to reduce pollutant discharges into
groundwater from:
a) on-site disposal systems (See Sanitary Sewer Goal 901 and
related objectives and policies);
b) secondary sewage treatment plants and injection wells (See
Sanitary Sewer Goal 901 and related objectives and policies);
c) stormwater runoff(See Drainage Element Objective 100 1.1 and
related policies);
d) pesticides used for mosquito control — Monroe County shall
coordinate with the Florida Keys Mosquito Control District to
promote mosquito control techniques which will reduce the
entry of pollutants from aerial pesticide applications into
groundwater);
e) fuel storage tanks — Monroe County shall coordinate with the
Department of Health(DOH) to continue undertaking activities
designed to reduce pollutant discharges into ground and surface
waters from aboveground and underground fuel storage tanks
(See Conservation and Coastal Management Objective 202.12
and related policies); and
f) hazardous wastes —Monroe County shall continue to undertake
activities which support existing state and federal laws
pertaining to the handling, transportation and disposal of
hazardous wastes (See Solid Waste Objective 801.5 and related
policies.)
Policy 1]01.2.2
Page 27 of 34
Monroe County shall continue to restrict the percentage of impervious surfaces
on development sites through application of the Open Space Requirements in
the Land Development Code. These regulations shall be met or exceeded in
order to minimize impervious areas and to protect freshwater lens recharge
areas. [F.S. §163.3177(6)(c)]
Policy 1101.2.3
Monroe County shall consider altering the minimum required open space ratios,
and other development regulations, to protect the quantity and quality of
groundwater in the freshwater lens systems. [F.S. §163.3 177(6)(c)]
Policy 1101.2.4
Monroe County shall maintain land development regulations that prevent
groundwater contamination during resource extraction operations. Such
regulations shall require onsite retention, and point source pollution controls
meeting FDEP and ACOE requirements.
5.4 Conservation and Coastal Management Element
GOAL 211
Monroe County shall conserve and protect potable water resources and cooperate with
regional efforts to ensure the continued availability of high quality potable water. [F.S.
§163.3177(6)d.2.b.,c.]
Objective 211.1
Monroe County shall encourage the use of water conservation strategies, including,but
not limited to cisterns, on-site stormwater collection systems used for irrigation and
bio-swales, and work cooperatively with FKAA and Miami-Dade County to encourage
water conservation efforts and assure that land use planning and development controls
are maintained which protects the recharge area of the Florida City Wellfield from
potential sources of groundwater contamination and saltwater intrusion. (See Potable
Water Objective 701.3 and related policies). [ES. § 163.3177(6)d.2.b., c.]
Policy 211.1.1
Monroe County shall continue to assist the FKAA with water conservation
efforts, including implementing the FKAA's Water Conservation Plan,
consistent with SFWMD's Water Shortage Plan and Water Consumption
Guidelines, and shall implement measures to further conserve potable water.
(See Potable Water Objective 701.5 and related policies). [F.S.§
163.3177(6)d.2.b., c.]
Policy 211.1.2
Monroe County has identified the freshwater lens system and associated
recharge areas of the Florida Keys as noted within Water Resources of Big
Pine Key, Florida, (Hanson, 1980). Monroe County shall maintain land
development regulations that regulate the storage and use of hazardous
Page 28 of 34
materials in recharge areas,prohibiting new water withdrawals, and phasing
out existing water withdrawals to protect freshwater lenses. [F.S. §
163.3177(6)d.2.b., i.] (Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
5.4 Future Land Use Element
GOAL 101
Monroe County shall manage future growth to enhance the quality of life, ensure the safety of
County residents and visitors, and protect valuable natural resources. [F.S. §163.3177(1).]
Obiective 101.1
Monroe County shall ensure that all development and redevelopment taking place
within its boundaries does not result in a reduction of the level-of-service requirements
established and adopted by this comprehensive plan. Further, Monroe County shall
ensure that comprehensive plan amendments include an analysis of the availability of
facilities and services or demonstrate that the adopted levels of service can be
reasonably met. [F.S. §163.3177 ; F.S. § 163.3180]
Policy 101.1.1
Monroe County shall maintain level of service (LOS) standards for the
following public facility types required by Chapter 163, F.S.: sanitary sewer,
solid waste, drainage, and potable water. Additionally the County shall
maintain LOS for roads, and parks and recreation. The LOS standards are
established in the following sections of the Comprehensive Plan:
2. The LOS for potable water is established in Potable Water Policy
701.1.1;
Policy 101.1.3
Facilities for potable water, sanitary sewer, solid waste and drainage shall be in
place and available to serve new development no later than the issuance of the
certificate of occupancy or its functional equivalent. If facility improvements
are needed to ensure that the adopted level-of-service standards are achieved
and maintained,prior to commencement of construction,a developer is required
to enter into a binding and legally enforceable commitment to the County to
assure construction or improvement of the facility. [F.S. § 163.3180]
5.5 Capital Improvements Element
Obiective 1401.4
Monroe County shall coordinate land use decisions and fiscal resources with a schedule
of capital improvements in order to maintain the adopted level of service (LOS)
standards for both issued development orders and future development. [F.S.
§l 63.3177(3)(a)3.]
Page 29 of 34
Policy 1401.4.1
Monroe County shall adopt and maintain level of service (LOS) standards for
the following public facility types: roads, sanitary sewer, solid waste, drainage,
potable water, and parks and recreation. The LOS standards are established in
the following sections of the Comprehensive Plan:
2. The LOS for potable water is established in Potable Water Policy
701.1.1;
Policy 1401.4.4
Public facilities and services needed to support development shall be available
in accordance with the adopted levels of service referenced in Policy 1401.4.1.
Development approval may be phased to allow the provision of public facilities
and services necessary to maintain the adopted levels of service.
Policy 1401.4.5
Monroe County hereby adopts a Concurrency Management System to ensure
that facilities and services needed to support development are available
concurrent with the impact of development. The Concurrency Management
System shall ensure that the County shall issue no development order or permit
which results in a reduction in the level of service (LOS) below the adopted
LOS standards referenced in Policy 1401.4.1 for those public facilities that are
subject to the system.The guidelines established in Policies 1401.4.6, 1401.4.7,
1401.4.8, 1401.4.9, and 1401.4.10 shall ensure that concurrency is successfully
implemented.
Policy 1401.4.6
The following guidelines identify the stages in the development review process
when the test for concurrency must be met.
1. Preliminary Development Order Stage - A preliminary development
order is a development order that precedes the issuance of a building
permit, such as a subdivision plat, development plan, certificate of
compliance, conditional use permit, or development of regional impact
development order. A proposed development must receive a conditional
concurrency determination prior to receiving a preliminary
development order.
2. Final Development Order Stage - A final development order is a
building permit or any other development permit authorizing the
construction or expansion of a structure, an increase in development
intensity, or a change of use requiring a new certificate of occupancy. A
proposed development must receive a final concurrency determination
prior to receiving a final development order.
Page 30 of 34
Policy 1401.4.8
The following guidelines identify the minimum criteria necessary to meet the
concurrency requirements of each public facility type.
1. The concurrency requirements for potable water, solid waste, sanitary
sewer, and drainage facilities and services shall be satisfied if one or
more of the following conditions are met:
a) the necessary facilities and services are in place at the time a
development permit is issued; or
b) the necessary facilities and services are in place at the time a
certificate of occupancy, or its functional equivalent is issued.
2. The concurrency requirements for recreational facilities shall be
satisfied if one or more of the following conditions are met:
a) conditions 1(a) or 1(b) listed above or, in the case of acreage for
parks and recreational facilities, which shall be dedicated to or
acquired by the County prior to issuance of a building permit, or
funds in the amount of the developer's fair share are committed
no later than the approval to commence construction; or
b) an enforceable development agreement guarantees that the
necessary facilities and services will be in place with the
issuance of the applicable development permit. An enforceable
development agreement may include, but is not limited to,
development agreements pursuant to section 163.3220, F.S., or
an agreement or development order issued pursuant to Chapter
380, F.S.
3. The concurrency requirements for roads shall be satisfied if one or more
of the following conditions are met:
a) conditions 1(a) or 1(b) listed above; or
b) a binding executed contract is in place at the time the
development permit is issued which provides for the
commencement of the actual construction of the required
facilities or provision of services; or
c) an enforceable development agreement guarantees that the
necessary facilities and services will be in place with the
issuance of the applicable development permit. An enforceable
development agreement may include, but is not limited to,
development agreements pursuant to section 163.3220, F.S., or
Page 31 of 34
an agreement or development order issued pursuant to Chapter 380, F.S.
Policy 1401.4.10
Monroe County shall use the following guidelines for interpreting and applying
level of service standards to development order applications. For the purposes
of this policy,reserve capacity refers to the capacity of existing public facilities
plus the capacity of public facilities which do not exist but which meet the
applicable requirements of Policy 1401.4.7, less the existing demand for those
facilities and the demand expected to be created for those facilities by approved
but unbuilt development as determined by the databases in Policy 1401.4.9.
1. Potable Water- The County shall not render a final concurrency
determination unless the quantity of water available under the FKAA
Consumptive Use Permit meets or exceeds the estimated water demand
of the proposed development together with the estimated water demand
of all existing and committed development.
5.6 Energy and Climate Element
Policy 1502.1.5
By 2025, Monroe County shall initiate an inventory of existing and planned
infrastructure up to the 2045 horizon, based upon the vulnerability mapping,
updated elevation data, the Countywide Roads and Stormwater Vulnerability
Assessment, the Watershed Management Plan, the GreenKeys Plan and other
appropriate vulnerability information for capacity to accommodate projected
sea-level rise over the life expectancy of that infrastructure. Monroe County
shall identify the infrastructure within those areas, its useful life and any
retrofits or capital projects necessary to address the impacts of sea level rise.
These strategies may include defense, accommodation, or and relocation
projects, or not building planned infrastructure in vulnerable locations, to
address the impacts of sea level rise. Monroe County will consider developing
design criteria, in conjunction with a broader asset management planning
process. (Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
Policy 1502.1.6
Monroe County shall utilize a planning, design and permitting standard for
infrastructure and public facilities that includes a sea level rise (SLR)
assumption of 10" 17" by 2040, based on a year 2000 baseline, as developed
by the Southeast Regional Climate Compact (2019 update). Adaptation and
resiliency planning strategy development shall also consider this sea level rise
projection. The County shall continue to review and update sea level rise
projections when new and pertinent data is available. (Ord. No. 013-2022, §
2(Exh. 1), 8-17-2022)
Page 32 of 34
Policy 1502.1.7
Monroe County shall ensure that new, renovated and replacement public
facilities and infrastructure, such as streets and bridges, water and wastewater
treatment plants,police stations and fire stations, and any other public facilities
that the County has authority over, are designed in a manner which considers
the useful life of public facilities and infrastructure. The County shall also
consider the potential impacts from climate change, including rising sea levels
and shoreline stabilization needs, on its infrastructure and public facilities.
(Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
Policy 1503.1.5
Consistent with the Lower East Coast Regional Water Supply Plan, Monroe
County shall encourage FKAA to continue expanding water auditing programs
to increase the scope of the audits and identify opportunities to reduce system
leaks and promote water conservation retrofitting.
Policy 1503.1.6
Within one (1) year, Monroe County shall consider developing policies to
increase water conservation, which may include the adoption of additional
recognized standard such as the South Florida Water Management District's
"Water Star" or EPA's "Water Sense" programs. (Ord. No. 013-2022, § 2(Exh.
1), 8-17-2022)
Policy 1503.1.7
Monroe County shall determine the appropriate climate change considerations
(including but not limited to, emergency management, flood risk, storm surge,
potable water supply, the potential for changing habitat and landscapes, the
need for shoreline stabilization and the potential impacts to infrastructure
necessary to serve proposed uses) to evaluate when reviewing land use
amendments. (Ord. No. 013-2022, § 2(Exh. 1), 8-17-2022)
6.0 REGIONAL ISSUES IDENTIFIED IN REGIONAL WATER SUPPLY PLANS
6.1 Lower East Coast Water Supply Plan Update, September 23, 2024
The sole source provider of potable water to Monroe County is FKAA, whose wellfield is
located in Florida City. The limited availability of SAS withdrawals, presents a potential risk
to the water supply for all of Monroe County. FKAA is a permitted Floridan Aquifer User,
which should offset any anticipated drought-driven salt water intrusion event. FKAA also
operates reverse osmosis facilities in Marathon and Stock Island.
6.2 Integrating Climate Change & Water Supply Planning In Southeast Florida,
Southeast Florida Regional Climate Change Compact, November, 2022
The Southeast Florida Regional Climate Change Compact, which includes Palm Beach,
Broward, Miami-Dade and Monroe Counties,predicts that the sea level will rise (the
Page 33 of 34
Compact's A Unified Sea Level Rise Projection for Southeast Florida [December, 2019]
predicts that the sea level will rise between 21 and 54 inches by the year 2070). This may have
implications regarding the ability of the local utility to provide fresh potable water from the
Biscayne Aquifer to Monroe County as the saltwater intrusion line shifts westward towards
the FKAA wellfield. Monroe County's climate change and sustainability consultants have
recently summarized hydrologic modeling by the United States Geological Survey that
suggests relatively low risk to the FKAA wellfields in Florida City under even the worst-case
2060 sea level rise scenarios. However, FKAA continues to monitor the most current data and
analysis regarding this issue.
7.0 REFERENCES
• Florida Keys Aqueduct Authority, 20-Year Water System Capital Improvement Master
Plan, 2020
• Florida Keys Aqueduct Authority, Annual Water Demand Update Through 2030
• Florida Keys Aqueduct Authority, Annual Water Demand Update by Municipal
Boundary
• Florida Keys Aqueduct Authority Projected 5-Year Capital Improvement Plan
• Keith and Schnars, P.A. and Fishkind and Associates, Monroe County 2010-2030
Population Projections, March 15, 2011
• Monroe County Growth Management, Monroe County 2030 Comprehensive Plan
• South Florida Water Management District, Lower East Coast Water Supply Plan Update,
September 23, 2024
• Southeast Florida Regional Climate Change Compact, A Unified Sea Level Rise
Projection for Southeast Florida, December, 2019
• Southeast Florida Regional Climate Change Compact, Integrating Climate Change &
Water Supply Planning In Southeast Florida, November, 2022
8.0 EXHIBITS
Exhibit A: Section 7.3 of the Florida Keys Aqueduct Authority 20-Year Water System
Capital Improvement Master Plan, 2020.
Exhibit B: Functional Population Estimate and Projections for Monroe County, July
15, 2025, TischlerBise)
Exhibit C: Monroe County Planning and Environmental Resources Department
Extrapolated Population Estimates based on TischlerBise Calculations
Page 34 of 34
7.3 Five-Year Capital Improvement Funding
This section represents an update of the 5-year capital funding analysis. The 5-year
funding analysis reflects specific funding for each project identified during this period. The
major funding sources for projects during the next 5 years include the use of available water
reserves, funds from additional water rate increases, and funds from the issuance of additional
revenue bonds. Other potential sources of funding being pursued include a loan through the
Water Infrastructure Finance and Innovation Act (WIFIA), state appropriations, and other
grants for infrastructure repair and construction.
Table 7-2 shows the planned funding sources for each water project planned through Fiscal
Year 2024. The 5-year estimated total cost to complete the projects identified from Fiscal Years
2020-2024 is $140.5 million, as shown on Table 7-2.
Section 7 Page 7-2 Water Distribution System
TABLE 7-2
Five-Year Capital Improvement Funding Plan
'' III III
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CAPITAL COSTS-WATER SYSTEM 1 III III 2020 2021 2022 2023 2024 ' 2020-2024
C �n
iu uul uui uui uui uu
Key West Administration) Series
1 9,000,000 $9,000,000 $4,364,000 $22,364,000
Building Replacement 2019A
2 Stock Island garage RR $420,000 $ 420,000
replacement
3 + Total Water Supply $9,000,000 $9,000,000: $4,364,000 - $420,000 $22,784,000 i
um of uuoiuu
1.
IIIIIIIIIIIIIIIIIIIIIIIIIIV��m�����I�� u ������ui�� ul I Ik�����W����l IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIII
RR&
4 SIRO Facility Series $3,000,000 $14,000,000 $18,000,000 $15,000,000 - $50,000,000
2021
5 Total Water Treatment $3,000,000 $14,000,000 $18,000,000 $15,000,000 -
Plant
uii I i umi.
il. ..
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6 Grassy Key transmission line Series $g 000,000 - $ 8,000,000
replacement 2019A
Transmission Terminus
7 RR $s4o,000 $3,360,000 $ 4,200,000
rehabilitation i
Islamorada transmission Series
8 line replacement 2019A $2,670,000 $13,350,000 $10,680,000 - $26,700,000
&RR
9 Total Water Transmission $10,670,000 $13,350,000 $10,680,000 $840,000 $3,360,000 $38,900,000
System
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IIIIIIIIIIII�III������������������������� ����ll�� ���� IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIII
Simonton,Front and
Whitehead Streets
10` RR $750,000 $1,250,000 $ 2,000,000
Distribution Line
Replacement
11 Ocean Reef distribution and RR - $3,200,000 $3,900,000 $ 7,100,000
storage improvements
New distribution system at
12 RR $2,600,000 $ 2,600,000
No Name Key
13 Total Distribution Mains $3,350,000 $3,200,000 $5,150,000 $11,700,000
F I I Ilu
IIIIIIII � 11
Box girder bridge
14 coating/coupling RR $3,870,000 $3,870,000
replacement
Generator control panel
1s RR $ 500,000 $ 500,000
replacement at Florida City
16 Stock Island pump station RR $ 7,000,000 - $ 7,000,000
and generator replacement
Repair/upgrade
17 RR $ 2,000,000 $ 2,000,000
subaqueous crossing
18 Repair/upgrade cathodic RR $ 2,700,000 $ 2,700,000
protection
Repair/Upgrade electrical
19 RR $ 1,000,000 - - - - $ 1,000,000
and instrumentation
20 Total Distribution Pump $12,700,000 $4,370,000 $17,070,000
Station&Storage
r u i i
ilm'im'iiuuuumuu um uu�� �nl� muu um um� � m �� � m �� �������mmm�mm m �m ��omumYuumMnum Illlllllllllmuu uuu i� �mm�
22 Revenue and reserves RR $19,756,400 $17,532,000 $ 2,825,600 $ 4,040,000 $13,300,000 $ 57,454,000
23 Series 2019A Bonds Series $18,963,600 $18,818,000 $12,218,400 - ' - $ 50,000,000
2019A
24 Future Revenue Bonds Series - - $18,000,000 $15,000,000 - $ 33,000,000
2021
25 TOTAL WATER SYSTEM $38,720,000 $36,350,000 $33,044,000 $19,040,000 $;13,300,000 $140,454,000
FUNDING SOURCES'
Section 7 Page 7-3 Water Distribution System
The total five-year funding sources are summarized on Table 7-3.
TABLE 7-3
Five-Year Capital Funding Sources
III III(I�II II IIII IliiijIII''��f��������� ����������� IIIIII IIII IIIIII IIIIII�IIII�III(I�II
Revenue and Reserves $ 57,454,000 40.91%
Series 2019A Bonds $ 50,000,000 35.60%
Series 2021 Bonds $ 33,000,000 23.50%
Total $ 140,454,000 100.00%
As shown above, the capital funding plan through Fiscal Year 2024 is dependent on the issuance
of additional revenue bond financing (Bond4) as summarized in Table 7-4.
TABLE 7-4
Issuance of Additional Revenue Bonds
IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIRIIW' ° °' IIIIIPIIII uuuuuuuuuuuuuuuuuuuuuuuuuuuuuuu
Principal Amount $ 50,000 000
Project Funds
$ 50,000,000
Available
Issuance Date Jun-20
Figure 7-1 illustrates the annual debt service for existing debt for FKAA's water system. The
issuance of additional debt is contingent on the ability of FKAA water revenues to meet the debt
service payments and other bond covenants of existing and future debt instruments. Previous
analyses have indicated the need to increase water rates over a several-year period. This process
began with an initial water rate adjustment implemented by FKAA effective October 2019.
FIGURE 7-1
Annual Debt Service
12 000 000
$10,000,000 .,...
$8,000,00011/110
/
$6,000,000 ! ... ��i
if o1r o1r� mrPb «r/r 0� «rG orl Irr���i mr ! ma pru�� rrr //�
oJrpp,G,� 6Jrpp,G,� aria v0!
$2,000,000 .,, ..,.. ..,..
$0
2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037
IIIIIII Series 2008 IIIIIII Series 2013A :Series 2013B IIIIIII Series 2014A SO Series 2015A Series 2015B iiiiiiiiiii Series 2019A
Section 7 Page 7-4 Water Distribution System
Table 7-5 illustrates future projected water rate adjustments beyond October 2019. As shown
below, additional rate adjustments of 3 percent annually are projected for Fiscal Year 2020
through Fiscal Year 2022 (October 2019 through October 2021) in addition to annual rate
adjustments set forth in the FKAA Rules. These rate adjustments are consistent with previous
projections completed prior to issuance of the Series 2019 Bonds. The financial forecast
supporting the rate projections will be reviewed prior to the issuance of additional bonds and the
initiation of the rulemaking process in each year to determine the actual water rate levels
necessary.
TABLE 7-5
Projected Water Rate Adjustments
II III IIIII IIIIII III IIIIII, II II �III IIII IIIIII I II I I II IIII °'Y��� ppppppp1lll!!!!!�uu�w „ �9!!!����������������u,uoluuq°g�88888888888888888
IIIIIII I� � ,. � � � �� m ...� - ' IIIIIIIIIIIIIII I
Illlllilll IIIII lil�l IIII Ililill iiilll ll IIIII ICI IIIIII IIIIIIIII IIIIIIII IIII�IIIIIIIIIII IIII IIIII Ill llll�ill IIIIIIIII�II�II I�III���lli IIII�IIIIIIII I�II�I�II�ill ll�lllll IIIII IIIII II IIIII illlllllllllll lllllll III IIIIII IIIIII�III IIIIII IIIIII III IIIII �!I�����m����� ��
2020 2.50% 3,00% 5.50%
2021 1.50% 3.00% 10.00%
2022 1.50% 3.00% 14.50%
2023 1.50% 0.00% 16.00%
2024 1.50% 0,00% 17.50%
'Amounts reflects projected annual rate indexing as set forth in the FKAA Rules.
'Additional rate adjustments are calcualted based on rates effective October 2019. Additonal rate adjustments shown are assumed to become
effective in October at the beginning of the fiscal year(e.g.,the Fiscal Year 2020 rate adjustment of 5.5%is assumed to become effective
October 2020).
Based on similar financial assumptions used in the financial feasibility of the Series 2019 Bonds,
the projected rates are expected to adequately fund the cash needs of the FKAA Water System
and exceed the minimum debt service coverage ratios required to satisfy the revenue bond
obligations. The projected debt service coverage under the proposed rates is summarized on
Table 7-6.
Other factors that could adversely (or positively) affect the results and financing strategy during
the next 5 years include the following:
• Changes in interest rates prior to issuance of additional bonds
• Construction and other cost changes above or below projected levels
• Operating cost increases due to inflation and other factors
• Amount of grant funds or other outside revenue sources available
• Regulatory or other changes to operating conditions
• Changes to customer growth patterns and water demand projections
In addition to the factors above, FKAA staff will continue to pursue debt reduction strategies,
financing alternatives, or other initiatives in order to mitigate future rate adjustments. Such
factors have not been quantified as part of the financial forecast used to project future water
rates and debt financing.
Section 7 Page 7-5 Financial Plan
TABLE 7-6
Projected Debt Service Coverage'
(IIIIIII II uuuuugpuuuuugpuu4 uuuuuuuuuuuuuu II III I it IllliillilliillilliillllllIIIII III II
IIIIII ,.� uG �, � Illllhmlui�m, i_ q��tl li.liil mn IIIIIIIIII U IIIIII � V � U IIIIIII
������ � IIIIIII(IIII III IIIIII��� V����V� I,�Im �I � uw��,� S s IIII. . • - III � �� _I I I�kw,111
IIM'MII IIII IIII ms ��M IIIIII � IIIIII �. ,IIII i IIII.
Illmll�ll III Illlm IIIIIIIIII IIIIIII � III ml r I a.
2020 1.37 1.48
2021 1.66 1.77
2022 1.48 1.57
2023 1.56 1.64
2024 1.63 1.71
Min. Required 1.1 1.2
'Debt service coverage equals Water System net revenues divided by the total Water System annual debt service. Amounts are based on the
water rate adjustments projected herein.
Section 7 Page 7-6 Findings and Recommendations
I u
RISEN
MINOR
ENRON
TischilerBise
FISCAL I ECONOMIC I PLANNING
4701 Sangamore Road I Suite S240 I Bethesda, MD 20816
301.320.6900
www.tischlerbise.com
MEMORANDUM
TO: Emily Schemper,AICP, CFM, Growth Management Director
Monroe County, Florida
FROM: Julie Herlands, AICP, Vice President and Michael Gillooly, Fiscal/Economic Analyst
TischlerBise
DATE: July 15, 2025'
RE: Functional Population Estimate and Projections for Monroe County
TischlerBise is under contract with Monroe County, Florida, to develop the county's current functional
population estimate as well as 20-year projections. Functional population(also known as peak population)
seeks to estimate the total amount of persons who consume county services on an average day.The figure
is comprised of component parts including permanent/year-round residents; short-term residents in the
county for a portion of the year(i.e., seasonal residents); even shorter-term residents staying in hotel and
motel rooms (i.e., lodging population); and persons visiting the county for the day, "day trippers." The
component parts together produce functional population.
This memo provides documentation of the base year functional population calculation and 20-year
projections for Monroe County and the unincorporated area.
1 Finalized September 24,2025; no changes from July 15, 2025,version.
1
FISCAL I ECONOMIC I PLANNING
Functional Population Projections
Monroe County, Florida
FUNCTIONALPOPULATION
This section details current estimates and future projections of functional population for Monroe County.
Functional population seeks to estimate the total amount of persons who consume county services on an
average day and is comprised of the following components, each of which is described in more detail
below:
• Resident Population
• Seasonal Population
• Lodging Population
• Day Tripper Population
OCCUPANCY By HOUSING TYPE
Household size data is necessary to project population in Monroe County. According to the U.S. Census
Bureau, a household is a housing unit occupied by year-round residents. Occupancy calculations require
data on population and the types of units by structure. The 2010 census did not obtain detailed
information using a "long-form" questionnaire. Instead,the U.S. Census Bureau switched to a continuous
monthly mailing of surveys, known as the American Community Survey (ACS), which has limitations due
to sample-size constraints. For example, data on detached housing units are combined with attached
single units (commonly known as townhouses, which share a common sidewall, but are constructed on
an individual parcel of land). For occupancy estimates in Monroe County, single-family units include
detached units, attached units, and mobile home units. Multi-family units include duplexes, structures
with two or more units on an individual parcel of land, recreational vehicles, and all other units.
Figure 1 below shows the occupancy estimates for Monroe County based on 2019-2023 American
Community Survey 5-Year Estimates. Single-family units averaged 2.43 persons per household and multi-
family units averaged 2.00 persons per household.
Figure 1:Occupancy by Housing Type
Persons peHousing r Housing Persons per Housing Vacancy Persons Households
Unit
Single-Family1 61,842 25,424 2.43 39,420 1.57 72.9% 35.50%
Multi-Fa mil z 17,759 8,893 2.00 14,685 1.21 27.1% 39.40%
Total 79,601 34,317 2.32 54,105 1.47 100.0% 36.60%
Source: U.S.Census Bureau,2019-2023 American Community Survey 5-Year Estimates
1. Includes detached,attached (i.e.,townhouses),and mobile home units.
2. Includes dwellings in structures with two or more units.
2
FISCAL I ECONOMIC I PLANNING
Functional Population Projections
Monroe County, Florida
RESIDENT POPULATION
Resident population is estimated using 2024 Bureau of Economic and Business Research (BEER)
population estimates. In 2024, the countywide population was estimated to be 84,147 residents, with
39,546 residents living in unincorporated Monroe County.
Countywide resident population is projected using BEBR's Projections of Florida Population by County,
2025-2050. Compound annual growth rates are calculated based on the 'Medium' population
projections. To determine how much of this growth will occur in unincorporated Monroe County, this
analysis uses data from the Florida Department of Commerce December 2023 Florida Keys Hurricane
Evacuation Modeling Report. Shown below in Figure 2, this data indicates that of the 7,954 total vacant
properties in Monroe County, 6,086 of these are in the unincorporated county. Based on this information,
76.51 percent of the future resident population growth is allocated to the unincorporated county.
Figure 2: Monroe County Growth Potential
Growth Potential
Total Vacant Properties' 7,954
Unincorporated Vacant Properties' 6,086
of Properties in the Uninc. County 76.51%
1: Florida Department of Commerce December 2023 Florida Keys
Hurricane Evacuation Modeling Report
SEASONAL POPULATION
To account for seasonal residents,the analysis includes vacant households used for seasonal,recreational,
or occasional use.According to 2019-2023 ACS estimates shown in Figure 3, Monroe County's year-round
vacancy rate is 36.60 percent, and of these vacant units, seasonal units account for 67.61 percent.
Applying these rates to the 2024 base year housing unit estimate results in a seasonally-occupied housing
unit estimate of 14,164 units (57,243 housing units X 36.60 percent year-round vacancy rate X 67.61
percent seasonal use ratio). Applying Monroe County's occupancy rate of 2.32 persons per household to
seasonal households provides a seasonal population estimate of 32,861 persons (2.32 persons per
household X 14,164 households).
3
FISCAL I ECONOMIC I PLANNING
Functional Population Projections
Monroe County, Florida
Figure 3:Seasonal Population Calculation
Population2024 Seasonal
Resident Population' 84,147
Housing Unitsz 57,243
Persons per Housing Unit3 1.47
Year-Round Vacancy Rate 36.60%
Vacant Housing Units (Year-Round) 20,951
Seasonal Vacancy Ratio3 67.61%
Vacant Housing Units (Seasonal, Recreation, or Occasional Use) 14,164
Resident Households4 36,292
Seasonal Households 14,164
Adjusted Households 50,456
Resident Population 84,147
Seasonal Population 32,861
Peak Population in Housing Units 117,008
1: 2024 BEBR Population Estimates
2:TischlerBise Calculation (Population/Persons per Housing Unit)
3: U.S.Census Bureau, 2019-2023 American Community Survey,5-Yr Estimates.
4:TischlerBise Calculation (Housing Units-Year Round Vacant Units)
This analysis splits seasonal residents between the unincorporated and incorporated county using the
ratio of seasonally vacant housing in unincorporated Monroe County. According to 2019-2023 ACS
estimates shown in Figure 4Figure 4, of the 13,378 seasonally vacant homes in Monroe County, 7,442 are
of located in the unincorporated areas of the county.
Figure 4: Unincorporated Seasonal Population
PopulationSeasonal
Countywide Seasonal Vacant' 13,378
Incorporated Seasonal Vacant' 5,936
Unincorporated Seasonal Vacant 7,442
Seasonal%in Unincorporated 55.63%
1: U.S. Census Bureau, 2019-2023 American Community Survey,5-
Yr Estimates.
To project seasonal population in Monroe County it is assumed that the ratio of seasonal to permanent
residents will remain the same going forward.
4
FISCAL I ECONOMIC I PLANNING
Functional Population Projections
Monroe County, Florida
LODGING POPULATION
To calculate base year lodging population,this analysis first uses 2024 estimates of the current inventory
of lodging units from Costar data for Monroe County. This total is then multiplied by the 2024 average
occupancy rate and the 2024 persons per room estimate (10,731 lodging rooms X 74.0%occupancy rate
X 3.00 persons per room). This results in a base year lodging population estimate of 23,823 persons.
Lodging population for the unincorporated county is estimated using the same methodology. According
to Costar estimates, of the 10,731 total lodging units in the county, 8,268 are in the incorporated areas.
The unincorporated lodging unit estimate of 2,436 is multiplied by the average occupancy rate and the
persons per room, resulting in a base year lodging population estimate of 5,468 persons in the
unincorporated county.
Figure 5: Lodging Population
Lodging Population
Current Lodging Inventory Estimate1 10,731
Average Occupancy Rate 74.0%
Persons per Room3 3.00
Lodging Population 23,823
1: Costar Data
2: 2024 Smith Travel Report
3: 2024 Monroe County TDC Visitor Profile Study
Lodging population is projected by using CoStar construction estimates for the Florida Keys market.
Monroe County is projected to add 68 new lodging units per year. The increase in lodging units is
multiplied by the average occupancy rate and the persons per year to get the growth in lodging
population. To project growth in the unincorporated county, the current ratio of lodging units between
the incorporated and unincorporated county is applied to the increase in the lodging population.
Y TRIPPER POPULATION
The final component of the functional population calculation is day trippers. According to data provided
by The Florida Keys& Key West Tourist Development Council there are approximately 588,000 yearly day
trips to Monroe County. This is divided by 365 days and multiplied by 3 persons per trip to get a
countywide day tripper population estimate of 4,955. To estimate the day tripper population in the
unincorporated areas of the county, this analysis applies the lodging population ratio for the
unincorporated county to the day tripper population.
The day tripper population is projected using historical tourist growth trends from The Greater Key West
Chamber of Commerce 2024 Demographic Update. To project the growth in the unincorporated county,
the current ratio of day trippers between the incorporated and unincorporated county is applied to the
increase in the day tripper population.
5
FISCAL I ECONOMIC I PLANNING
Functional Population Projections
Monroe County, Florido
FUNCTIONAL POPULATION PROJECTIONS
Below are the base year functional population estimates and 20'year projections for Monroe County and
the unincorporated county. Each population type is projected using the following methodology:
* Resident Population:A compound annual growth rate for Monroe County is calculated from the
'Medium' BEBR 2025-2050 Population Projections (0.39 percent from 2025 to 2030, 0.23 percent
from ZU3Uto303S,0.11 percent from 2U3Sto2U40,and 0.07 percent from IU4Uto2O4S).Growth
is split between the incorporated and unincorporated county using the Florida Department of
Commerce December 2023 Florida Keys Hurricane Evacuation Modeling Report (Figure 2).
* Seasonal Population: It is assumed that the ratio of seasonal to permanent residents will remain
the same going forward.
° Lodging Population: Monroe County is expected to add 6D new lodging units per year according
to [oStar market data for the Florida Keys. This is multiplied by the average occupancy rate and
the persons per year to get the growth in lodging population (68 units per year X 74 percent
occupancy rate X 3 persons per room). To project growth in the unincorporated county, the
current ratio of lodging units between the incorporated and unincorporated county is applied to
the increase in the lodging population.
* DayTripper Population:The Greater Key West Chamber of Commerce 2024 Demographic Update
growth rate countywide growth rate is used (136 percent). To project the growth in the
unincorporated county, the current ratio of day trippers between the incorporated and
unincorporated county is applied to the increase in the day tripper population.
F\gureG:Countywide Base Year Functional Population and Projections
Seasonal Population 32,861 33,515 33,956 34,188 34,32071,095 1,459
z:oson2n24 Population Estimate,zozs'zosnoson Population Projections
z:ri,cme,oi»eCalculation
»:cvstar,nomermu,Calculation
4:Florida Keys a Key West Tourist Development Council,Greater Key West Chamber of Commerce aoa4 Demographic Update
�� ��N �& -
FISCAL I ECONOMIC I PLANNING
w �����m mm����������
Functional Population Projections
Monroe County, Florida
Figure 7: Unincorporated Base Year Functional Population and Projections
Unincorporated Monroe 11111111111RILOPM
County Base Year 5 10 15 20 .. - im
Resident Population' 39,546 40,828 41,692 42,147 42,404 2,146 2,858
Seasonal Population z 18,280 18,873 19,272 19,482 19,601 992 1,321
Lodging Population 5,468 5,641 5,814 5,988 6,161 346 693
Day Trippers4 1,137 1,216 1,301 1,392 1,489 164 351
Functional Population 64,431 66,558 68,079 69,008 69,655 3,648 5,223
1:BEBR 2024 Population Estimate,TischlerBise Calculation
2:TischlerBise Calculation
3:CoStar,TischlerBise Calculation
4:TischlerBise Calculation
7
FISCAL I ECONOMIC I PLANNING
Unincorporated Monroe County Functional Population Projection Extrapolations for Year 2045
Population Type Population �, Calculation Data Source(s)
Resident Population 42,442' 42,147*0.07 compound annual growth rate per TB
Seasonal Population 19,6622 90,500 Med. Population Projection per BEBR/ 1.47= 61,564.63
*36.60 vacancy rate=22532.65*67.61 seasonal units= 15,234.33
seasonal housing units. It is assumed that 55.63% of these units
are Uninco orated= 8,474.86*2.32=19,662
Lodging Population 6,195.63 22.7%units are in Unincorporated Monroe. = 15.4 new units/
year *74% occupancy rate=11.4*3 persons= 34.2 people/year
=171 people every 5 years. TB came up w/ 34.6/year
Day Tripper Population 11509.34 1 =1,489+1.36 growth rate
Functional Population 69,808.9
1: Calculated per TischlerBise Compound Annual Growth Rate
2: Calculated per TischlerBise Seasonal Population Calculation
3: Calculated per TischlerBise 34.6/Year
4: Calculated per TischlerBise
2 ,Y / 18 3
3
5
6
7
8 MONROE COUNTY BOARD OF COUNTY COMMISSIONERS
9
10 RESOLUTION NO. - 2026
11
12 A RESOLUTION APPROVING TRANSMITTAL, TO THE STATE
13 LAND PLANNING AGENCY, AN ORDINANCE AMENDING THE
14 MONROE COUNTY COMPREHENSIVE PLAN; AND ADOPTING
15 THE 10-YEAR WATER SUPPLY PLAN UPDATE TO BE
16 CONSISTENT WITH THE SOUTH FLORIDA WATER
17 MANAGEMENT DISTRICT LOWER EAST COAST WATER
18 SUPPLY PLAN UPDATE OF 2024; PROVIDING FOR
19 SEVERABILITY; PROVIDING FOR REPEAL OF CONFLICTING
20 PROVISIONS; PROVIDING FOR TRANSMITTAL TO THE STATE
21 LAND PLANNING AGENCY AND THE SECRETARY OF STATE;
22 PROVIDING FOR INCLUSION IN THE MONROE COUNTY
23 COMPREHENSIVE PLAN; PROVIDING FOR AN EFFECTIVE
24 DATE.
25
26
27 WHEREAS, Florida Statutes Section 163.3180(2)(a) requires local governments to
28 consult with water suppliers to ensure that adequate water supplies will be in place and available
29 to serve new development no later than when the local government issues a certificate of
30 occupancy. Local Governments should update their comprehensive plans and land development
31 regulations to address this concurrency requirement; and
32
33 WHEREAS, the Monroe County Comprehensive Plan and Land Development Code
34 already have adopted policies and regulations requiring concurrency; and
35
36 WHEREAS, pursuant to Florida Statutes Section 163.3177(6)(c) local governments that
37 are subject to a regional water supply plan must update their adopted 10-year water supply facilities
38 work plan within 18-months of the adoption of the regional water supply plan update; and
39
40 WHEREAS, the South Florida Water Management District ("SFWMD") updated its
41 Lower East Coast Water Supply Plan on September 23, 2024, which identifies areas where water
42 supply, demand, and shortages are projected to occur within the next 20 years; and
43
44 WHEREAS,the service provider for potable water in Monroe County is the Florida Keys
45 Aqueduct Authority ("FKAA") and the FKAA has coordinated with the professional staff of the
46 Monroe County Board of County Commissioners "(BOCC" or "Monroe County") to ensure that
Page 1 of 3
BOCC Transmittal:Department File No.2025-017
47 the current potable water supply and projected demands are incorporated within the Monroe
48 County 10-year Water Supply Facilities Work Plan Update; and
49
50 WHEREAS,the FKAA's 20-year Water System Capital Improvement Master Plan serves
51 as the unincorporated Monroe County water supply plan; and
52
53 WHEREAS, the FKAA demand and supply data project adequate water supply; and
54
55 WHEREAS, adoption of this 10-year Water Supply Facilities Work Plan would also
56 acknowledge the County's existing and future population figures through Year 2045, which are
57 derived from the projections prepared by TischlerBise as backup to analysis on the capacity of
58 existing infrastructure within Unincorporated Monroe County(July 15,2025)and the 2025 Bureau
59 of Economic and Business Research (BEBR) population estimates. The memorandum
60 documenting the base year functional population calculation and 20-year projections for Monroe
61 County and the Unincorporated Area is included as Exhibit B to the Work Plan; and
62
63 WHEREAS, a community meeting was held on July 14, 2025, to discuss the proposed
64 amendment to the Monroe County Comprehensive Plan and provide for public participation in
65 accordance with Monroe County Land Development Code ("LDC") Section 102-159(b); and
66
67 WHEREAS, at a regularly scheduled meeting held on the 18"' day of November, 2025, the
68 Monroe County Development Review Committee ("DRC") considered the proposed amendment;
69 and
70
71 WHEREAS, at a regularly scheduled meeting held on the 19"' day of November, 2025, the
72 Chair of the DRC signed Resolution No. DRC 20-25, recommending approval of the proposed
73 amendment; and
74
75 WHEREAS, at a regularly scheduled meeting held on the 19`' day of November, 2025, the
76 Monroe County Planning Commission held a public hearing for the purpose of considering the
77 proposed amendment and recommended approval to the Board of County Commissioners,
78 memorialized by Planning Commission Resolution No. P37-25; and
79
80 WHEREAS, at a regular meeting held on the 151" day of July, 2026, the Monroe County
81 Board of County Commissioners held a public hearing to consider the transmittal of the proposed
82 text amendment, considered the staff report and provided public comment and public participation
83 in accordance with the requirements of state law and the procedures adopted for public
84 participation in the planning process; and
85
86 NOW THEREFORE, BE IT RESOLVED BY THE BOARD OF COUNTY
87 COMMISSIONERS OF MONROE COUNTY, FLORIDA:
88
89 Section 1. Recitals. The foregoing recitals, findings of fact and conclusions of law are true
90 and correct and are hereby incorporated as if fully stated herein.
91
Page 2 of 3
BOCC Transmittal:Department File No.2025-017
92 Section 2. The Board of County Commissioners (`BOCC" or`Board") does hereby adopt the
93 recommendation of the Planning Commission to transmit the draft ordinance,
94 attached as Exhibit A., for review of the proposed Comprehensive Plan Text
95 amendment.
96
97 Section 3. The BOCC does hereby transmit the proposed amendment to the State Land
98 Planning Agency for review and comment in accordance with the State Coordinated
99 Review process pursuant to Section 163.3184(4), Florida Statutes.
100
101 Section 4. BOCC professional staff is/are hereby expressly given authority to prepare and
102 submit the required transmittal letter and supporting documents for the proposed
103 amendment in accordance with the requirements of Section 163.3184(4), Florida
104 Statutes.
105
106 Section 5. The Clerk of the Board is hereby directed to forward a certified copy of this
107 resolution to the Director of Planning.
108
109 PASSED AND ADOPTED by the Board of County Commissioners of Monroe County,
110 Florida, at a regular meeting held on the 151h day of July, 2026.
III
112 Mayor Michelle Lincoln, District 2
113 Mayor Pro Tem David Rice, District 4
114 Commissioner Craig Cates, District 1
115 Commissioner James K. Scholl, District 3
116 Commissioner Holly Merrill Raschein, District 5
117
118 BOARD OF COUNTY COMMISSIONERS
119 OF MONROE COUNTY, FLORIDA
120
121 By:
122 Mayor Michelle Lincoln
123
124 (SEAL)
125 126 ATTEST: KEVIN MADOK CLERK
rror RO COU
P, lu) Rrµc ORM
127
128
129 By:
130 AS DEPUTY CLERK
Page 3 of 3
BOCC Transmittal:Department File No.2025-017
f 11,18 ,)i
1 'gd)ll
3
4
5
6 ORDINANCE NO. -2026
7
8 AN ORDINANCE BY THE MONROE COUNTY BOARD OF COUNTY
9 COMMISSIONERS AMENDING THE MONROE COUNTY
10 COMPREHENSIVE PLAN; ADOPTING THE 10-YEAR WATER SUPPLY
11 PLAN UPDATE TO BE CONSISTENT WITH THE SOUTH FLORIDA
12 WATER MANAGEMENT DISTRICT LOWER EAST COAST WATER
13 SUPPLY PLAN UPDATE OF 2024; PROVIDING FOR SEVERABILITY;
14 PROVIDING FOR REPEAL OF CONFLICTING PROVISIONS;
15 PROVIDING FOR TRANSMITTAL TO THE STATE LAND PLANNING
16 AGENCY AND THE SECRETARY OF STATE; PROVIDING FOR
17 INCLUSION IN THE MONROE COUNTY COMPREHENSIVE PLAN;
18 PROVIDING FOR AN EFFECTIVE DATE.
19
20
21 WHEREAS, Section 163.3180(2)(a). F.S. requires local governments to consult with
22 water suppliers to ensure that adequate water supplies will be in place and available to serve new
23 development no later than when the local government issues a certificate of occupancy. Local
24 Governments should update their comprehensive plans and land development regulations to
25 address this concurrency requirement; and
26
27 WHEREAS, the Monroe County Comprehensive Plan and Land Development Code
28 already have adopted policies and regulations requiring concurrency; and
29
30 WHEREAS,pursuant to Section 163.3177(6)(c), F.S., local governments that are subject
31 to a regional water supply plan must update their adopted 10-year water supply facilities work
32 plan within 18-months of the adoption of the regional water supply plan update; and
33
34 WHEREAS, the South Florida Water Management District (SFWMD) updated its
35 Lower East Coast Water Supply Plan on September 23, 2024, which identifies areas where water
36 supply, demand, and shortages are projected to occur within the next 20 years; and
37
38 WHEREAS, the service provider for potable water in Monroe County is the Florida
39 Keys Aqueduct Authority (FKAA) and the FKAA has coordinated with Monroe County staff to
40 ensure that the current potable water supply and projected demands are incorporated within the
41 Monroe County 10-year Water Supply Facilities Work Plan Update; and
42
43 WHEREAS, the FKAA 20-year Water System Capital Improvement Master Plan serves
44 as the Monroe County water supply plan; and
45
46 WHEREAS, the FKAA demand and supply data project adequate water supply; and
File: 2025-041 Page 1 of 4
I WHEREAS, adoption of this 10-year Water Supply Facilities Work Plan would also
2 acknowledge the County's existing and future population figures through Year 2045, which are
3 derived from the projections prepared by TischlerBise as backup to analysis on the capacity of
4 existing infrastructure within Unincorporated Monroe County (July 15, 2025) and the 2025
5 Bureau of Economic and Business Research (BEBR) population estimates. The memorandum
6 documenting the base year functional population calculation and 20-year projections for Monroe
7 County and the Unincorporated Area is included as Exhibit B to the Work Plan; and
8
9 WHEREAS, a community meeting was held on July 14, 2025, to discuss the proposed
10 amendment to the Monroe County Comprehensive Plan and provide for public participation in
11 accordance with Monroe County Land Development Code (LDC) Section 102-159(b); and
12
13 WHEREAS, at a regularly scheduled meeting held on the 181h day of November, 2025, the
14 Monroe County Development Review Committee considered the proposed amendment; and
15
16 WHEREAS, at a regularly scheduled meeting held on the 191h day of November, 2025, the
17 Chair of the DRC signed Resolution No. DRC 20-25, recommending approval of the proposed
18 amendment; and
19
20 WHEREAS, at a regularly scheduled meeting held on the 19th day of November, 2025, the
21 Monroe County Planning Commission held a public hearing for the purpose of considering the
22 proposed amendment and recommended approval to the Board of County Commissioners,
23 memorialized by Resolution No. P37-25; and
24
25 WHEREAS, at a regular meeting held on the 15th day of July, 2026, the Monroe
26 County Board of County Commissioners held a public hearing to consider the transmittal of the
27 proposed text amendment, considered the staff report and provided public comment and public
28 participation in accordance with the requirements of state law and the procedures adopted for
29 public participation in the planning process; and
30
31 WHEREAS, at the July 15, 2026, public hearing, the BOCC considered the proposed
32 Ordinance and approved transmittal of the proposed text amendment to the State Land Planning
33 Agency; and
34
35 WHEREAS, the State Land Planning Agency reviewed the amendment and issued an
36 Objections, Recommendations and Comments (ORC)report on received by the
37 County on ; and
38
39 WHEREAS, the ORC report <did/did not> identify any objections, recommendations,
40 or comments; and
41
42 WHEREAS, the County has 180 days from the date of receipt of the ORC to adopt the
43 proposed amendment, adopt the amendment with changes or not adopt the amendment; and
File: 2025-041 Page 2 of 4
I WHEREAS, at a regularly scheduled meeting on the day of 11 the
2 BOCC held a public hearing to consider adoption of the proposed Comprehensive Plan text
3 amendment;
4
5 WHEREAS, based upon the information and documentation submitted, the BOCC made
6 the following findings of fact and conclusions of law:
7 1. The proposed amendment is consistent with the Goals, Objectives and Policies of the
8 Monroe County Year 2030 Comprehensive Plan; and
9 2. The proposed amendment is consistent with the Principles for Guiding Development
10 for the Florida Keys Area of Critical State Concern, Sec. 380.0552(7), F.S.; and
11 3. The proposed amendment is consistent with Part 11 of Chapter 163, Florida Statute;
12 and
13
14 NOW, THEREFORE, BE IT ORDAINED BY THE BOARD OF COUNTY
15 COMMISSIONERS OF MONROE COUNTY, FLORIDA:
16
17 Section 1. The text of the Monroe County Comprehensive Plan is hereby amended as
18 follows (Deletions are shown str-ike thr-ough; additions are shown underlined):
19
20 Policy 701.1.6
21 Monroe County adopts the Monroe County 10-Year Water Supply Facilities
22 Work Plan update, dated August, 2Ot9, June, 2026 by reference, into the
23 Comprehensive Plan. Monroe County shall update the 10-year Water Supply
24 Work Plan every 5 years or within 18 months after the governing board of the
25 South Florida Water Management District approves an updated regional water
26 supply plan. [ES. § 163.3177(6)(c)3.] (Ord. No. 022-2009; Ord. No. 007-2016,
27 Ord. No. 017-2020)
28
29
30 Section 2. Severability. If any section, subsection, sentence, clause, item, change, or
31 provision of this ordinance is held invalid, the remainder of this ordinance shall
32 not be affected by such validity.
33
34 Section 3. Repeal of Inconsistent Provisions. All ordinances or parts of ordinances in
35 conflict with this ordinance are hereby repealed to the extent of said conflict.
36
37 Section 4. Transmittal. This ordinance shall be transmitted by the Director of Planning to
38 the State Land Planning Agency pursuant to Chapter 163 and 380, Florida
39 Statutes.
40
41 Section 5. Filing and Effective Date. This ordinance shall be filed in the Office of the
42 Secretary of the State of Florida but shall not become effective until a notice is
43 issued by the State Land Planning Agency or Administration Commission finding
File: 2025-041 Page 3 of 4
I the amendment in compliance with Chapter 163, Florida Statutes and after any
2 applicable challenges have been resolved.
3
4 Section 6. Inclusion in the Comprehensive Plan. The text amendment shall be
5 incorporated in the Monroe County Comprehensive Plan. The numbering of the
6 foregoing amendment may be renumbered to conform to the numbering in the
7 Monroe County Comprehensive Plan.
8
9 PASSED AND ADOPTED by the Board of County Commissioners of Monroe County, Florida,
10 at a regular meeting held on the day of
11
12 Mayor Michelle Lincoln, District 2
13 Mayor Pro Tenn David Rice, District 4
14 Commissioner Craig Cates, District 1
15 Commissioner James K. Scholl, District 3
16 Commissioner Holly Merrill Raschein, District 5
17
18
19 BOARD OF COUNTY COMMISSIONERS
20 OF MONROE COUNTY, FLORIDA
21
22 BY:
23 MAYOR MICHELLE LINCOLN
24
25 (SEAL)
26
27 ATTEST: KEVIN MADOK, CLERK
28
29
3o AS DEPUTY CLERK
31
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