Conservation Element

COMPREHENSIVE PLAN CONSERVATION ELEMENT

Support Document CHAPTER 8: CONSERVATION ELEMENT

TABLE OF CONTENTS CONSERVATION ELEMENT...... 1 INTRODUCTION ...... 1 ENVIRONMENTAL SETTING ...... 2 INVENTORY AND ANALYSIS...... 4 WATER RESOURCES...... 4 NATURAL COMMUNITIES ...... 5 AIR QUALITY ...... 9 COMMERCIALLY VALUABLE MINERALS ...... 10 SOIL EROSION ...... 10 COMMERCIAL USE OF NATURAL RESOURCES ...... 10 CONSERVATION AND RECREATIONAL USE OF NATURAL RESOURCES...... 10 DEVELOPMENT PRESSURES...... 12 POLLUTION ...... 13 HAZARDOUS WASTE...... 15 WATER USE ...... 16 IMPLEMENTATION STRATEGIES...... 19 AIR QUALITY ...... 19 WATER QUALITY ...... 19 FLOODPLAINS ...... 20 WETLANDS ...... 21 WATER CONSERVATION ...... 21 SOIL EROSION ...... 22 THE URBAN FOREST ...... 22 NATURAL COMMUNITIES ...... 22 WASTE MANAGEMENT ...... 23

LIST OF TABLES

TABLE 1 – POPULATION AND FLOW PROJECTIONS

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INTRODUCTION

The City of Port Orange has played an important role in environmental protection and conservation in the Halifax area and intends to continue to remain active in these areas into the future.

The City's commitment to conservation and environmental protection has been reflected in its willingness to 1) protect floodplains through the Conservation land use designation and Floodplain-Conservation (F-C) Zoning District; 2) regulate tree and vegetation removal; 3) safeguard the purity of the air, water, and soil; 4) avoid the disturbance of wetlands; 5) identify and protect natural communities and endangered species; and 6) take a leadership role in the implementation of wastewater effluent reuse.

The purpose of the Element is to provide guidance for the conservation and protection of natural resources which are important to the local quality of life. The intent of the element is to protect the public health, safety and welfare through the retention and protection of "environmentally sensitive lands." Chapter 9J-24.002 F.A.C. defines environmentally sensitive lands as...

"...areas of land or water designated in the plan as being needed to serve the purpose of conserving or protecting natural resources or environmental quality and includes areas designated for such purposes as protection of soils, protection of quality or quantity of groundwater or surface water, shorelines, fisheries and wildlife management, protection of vegetative communities or protection of wildlife habitats."

There is an on-going need to protect the natural resources and environmental quality that attracted people to the area. This Element will help maintain and improve areas that are suited for development and guide new development away from areas that are not.

ENVIRONMENTAL SETTING

Port Orange lies in the coastal zone, just west of the Atlantic Ocean. The Halifax River is along its eastern border with Spruce Creek cutting through the southern part of the City. The City lies within the Halifax and Spruce Creek drainage basins. It is characterized by various ecosystems including hardwood hammocks, pine flatwoods, freshwater and saltwater marshes, mangrove swamps, xeric hammocks, wet prairies and cypress swamps. These varied ecosystems give the City a wide variety of habitats and landscapes to incorporate into its future growth pattern.

Existing Conditions The City of Port Orange has grown from 45,823 in 2000 to approximately 56,732 in 2009.

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The City of Port Orange is approximately 80% developed, with the majority of the undeveloped part of the City lying south of Spruce Creek and in the Planned Community- Westside area west of I-95 and north of Taylor Road. Much of the most suitable land has been developed and some of the remaining vacant land is prone to more environmental constraints. Most of Port Orange, like much of the coastal zone, has very little slope and therefore natural drainage is limited. Since the City is in the coastal zone, it is also subject to flooding caused by storm surge.

The majority of the future development activity is anticipated to occur in the west and southwest portions of the City. Both of these areas have a considerable amount of environmentally sensitive lands.

Water quality in the Halifax River, Spruce Creek, and Rose Bay has been a concern to local residents. Improved waste water treatment, reuse of wastewater effluent, new standards for stormwater retention, local wetland protection, and various capital improvements in targeted areas have helped to improve water quality in area waterways over the last several years.

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INVENTORY AND ANALYSIS

WATER RESOURCES

The City of Port Orange lies within two major drainage basins. The eastern portion of the City is within the Halifax drainage basin with the remainder of the western and southern portions of the City within the Spruce Creek drainage basin (see Figure 4-6).

The Halifax drainage basin is highly urbanized and includes portions of several coastal cities. The Spruce Creek basin is less densely populated and includes the larger tracts of undeveloped land within the City.

Other waterways also influence the City's drainage patterns. The B-19 canal begins north of Port Orange near the Daytona Beach International Airport, and flows south into Sweetwater Branch and eventually into Spruce Creek. The Halifax (Nova Road) Canal and the Cambridge Canal drain much of the eastern portion of the City. Both canals eventually empty into Rose Bay.

Unlike much of Florida, there are no naturally occurring lakes within the City. There are several small isolated ponds that are naturally occurring, but none of any major size or significant recreational value. The majority of the existing lakes are man-made, designed to satisfy local and state requirements for stormwater management.

Floodplains Floodplains are valuable resources that provide storage capacity for flood waters and diverse habitat for wildlife. They also have the ability to filter pollutants, provide breeding and feeding areas for many marine and freshwater species, and habitat for many threatened and endangered species.

Port Orange floodplains are associated with the Halifax River, Spruce Creek and the tributaries to these waterways. A large portion of the floodplain associated with the Halifax River has been developed, while the majority of the floodplains associated with Spruce Creek are undeveloped and are protected to some extent by local zoning.

The City has a Floodplain-Conservation (F-C) zoning designation in its Land Development Code that restricts development below a certain elevation along the Halifax River, Spruce Creek, and the tributaries associated with each. This particular aspect of the Land Development Code has been in place since the early 1970s and has successfully discouraged encroachment by development.

Portions of Port Orange lie within the 100-year Floodplain, which means that each year those areas have a one percent chance of flooding. These areas have been designated under the Federal Emergency Management Agency (FEMA), which regulates the nation’s flood insurance programs. The City participates in the Federal Flood Insurance Program, and by doing so, requires builders to follow certain regulations to ensure protection from flooding. The intent of both the F-C zoning category and the FEMA requirements for building in the 100-year flood hazard area is to protect the public from flood damage, and the local

Page 8 - 4 CONSERVATION ELEMENT government, State and federal agencies from public expenditures to correct avoidable flooding problems. The City also participates in the National Flood Insurance Program's Community Rating System (CRS). This program is designed to provide discounts to residents on flood insurance premiums when the community implements increased regulations for building within flood hazard areas.

Protection of floodplains and flood-prone areas helps to assure natural flood control, reduce pollution and erosion, and maintain a quality environment and habitat for a large number of aquatic and terrestrial species.

Groundwater Resources Groundwater is the sole potable water supply source for the City of Port Orange. The Port Orange service area is underlain by two water-bearing aquifers, the upper unconsolidated or shallow (surficial) aquifer, and the confined limestone aquifer generally referred to as the Floridan Aquifer. The surficial aquifer is generally used for irrigation, some home wells, and wells to provide water for livestock. The Floridan aquifer is the sole-source aquifer for potable water for the Port Orange utility system.

In the Port Orange service area, the surficial aquifer extends from near ground surface to a depth of 70-90 feet. The source of water for the surficial aquifer is primarily local rainfall and is stored in the porous spaces in the sand, gravel, rock and limestone. Water leaves the shallow aquifer by filtering down into the Floridan Aquifer, through horizontal flow into rivers, lakes, and drainage ways, and by evapotranspiration. The amount of water available for withdrawal from the Volusia Floridan Aquifer is dependent upon the recharge from the surficial aquifer system. If more water is taken out of the Floridan Aquifer than is being recharged, the aquifer is subject to saltwater intrusion.

The City employs groundwater withdrawal practices and other conservation practices that are designed to avoid saltwater intrusion. These practices include the following:

(1) Monitoring the potentiometric surface of pumping wells and terminating operation when the surface elevation is not acceptable. (2) Spacing wells and utilizing yields that give consideration to interference draw down. (3) Reducing withdrawals through water conservation and increased use of reclaimed water. (4) Rotating wells in order to reduce withdrawal demand on individual wells.

One of the main objectives of groundwater resource management is the protection of prime groundwater recharge areas. Development in prime recharge areas must be carefully controlled in order to avoid contamination of the groundwater and a loss of recharge potential. Groundwater issues are covered extensively in the Groundwater Aquifer Recharge Sub-Element.

NATURAL COMMUNITIES

The natural ecological communities in Port Orange may be categorized according to their

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water drainage characteristics. The amount of water an area contains or retains throughout the year is a significant determinant of the types of plants and animals that live in that area.

Communities which contain standing water during most of any given year may be classified as wetlands. Wetland communities serve as flood retention areas, absorb pollutants, and provide breeding, feeding and habitat for numerous species of plants and animals. They also provide recreation opportunities and enhance the aesthetic quality of the urban environment. The wetland communities found most often in Port Orange include mangrove swamps, saltwater marshes, freshwater marshes and prairies, and freshwater swamps.

So-called "transitional" communities are those which contain standing water for only part of the year, and which are often found adjacent to wetlands and upland areas. Transitional communities include pine flatwoods, dry prairies, and hardwood hammocks.

The driest communities throughout the year are classified as uplands. They include scrub forests and sandhills, and serve as habitat for wildlife and provide many recreational opportunities.

The Florida Land Use and Cover Forms Classification System (FLUCFCS) was used to delineate various vegetated areas within the coastal zone. The FLUCFCS was created from aerial photographs of the entire coastal area. This information was incorporated into the Natural Resources Summary Report for the Volusia County Coastal Management Element.

Individual natural communities found in and around the city are inventoried below, with the corresponding categories from the FLUCFCS by the Florida Department of Transportation (FDOT), indicated adjacent to the natural community name, along with identifying characteristics regarding their location and major vegetative components. Table 1 lists the dominant vegetative species for each type of community, as well as any endangered, threatened, and special concern plants and animals (referred to as "listed vegetative species" and "listed animal species") which could be found inhabiting such an area.

The status of these species is indicated after their scientific name as the following categories: * E - Endangered * T - Threatened * T(S/A) - Threatened due to similarity of appearance, i.e., to other endangered or threatened species abroad, for trade reasons * SSC - Species of special concern * C - Commercially exploited

The state and federal agencies determining the listed species status are as follows: * FDA - Florida Department of Agriculture * USFWS - United States Fish and Wildlife Service * FGFWFC - Florida Game and Fresh Water Fish Commission

Protection of listed species is regulated by the Wildlife Code of the State of Florida and the Federal Endangered Species Act of 1973. Any additional species which are given the endangered, threatened, or species of special concern status, as a result of annual updating of

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the state and federal lists that are found in F.S. § 581.185 (Native Flora), Section 39-27, Florida Administrative Code, (Animals) and 50 CFR, Part 17.11, Federal Register (Animals) and 50 CFR, Part 17.12, Federal Register (Plants), have been incorporated in the following paragraphs and Table 1, below.

Wetlands Communities Mangrove Swamp Coastal forested hardwood communities of black mangroves are found in the Halifax River, which has estuary tidal shorelines not subject to wave action. Mangroves can withstand flooding and protect shorelines and adjacent areas from erosion. This ecosystem serves as nursery grounds for many fish and shellfish species and nesting/roosting sites for many bird species. Export of organic matter from the system to other wetland communities is important to the viability of such interconnecting communities. Mangroves are afforded legal protection under the Mangrove Trimming and Preservation Act.

Saltwater Marshes Herbaceous materials in brackish areas adjacent to the Rose Bay, Strickland Bay, and Spruce Creek water bodies make up this community. This type of wetland contributes to flood control and water purification. The high productivity and cover of this environment provides nursery and feeding habitat for many marine invertebrates and other wildlife. This system also exports, with tidal action, organic matter for use by organisms in adjoining ecosystems. The vegetation in such a marsh will vary, depending on the degree of water salinity and the tidal action as it affects inundation depth and frequency.

Freshwater Marshes and Prairies Herbaceous emergent and floating submerged material, indicative of freshwater areas, are found along portions of Spruce Creek. In a flat area tributary to Spruce Creek, north of Pioneer Trail, wet prairies may also be found in isolated pockets or connected to the cypress swamps in pine flatwoods. Such wetland types contribute to flood control and water purification, and provide habitat for many wildlife species. The marshes tend to have more water and taller herbage than do the prairies. Water levels within the marshes may vary from six inches to six feet deep, with ensuing variations in the dominant plant species.

Freshwater Swamps A forested area with standing water (for a portion if not the entire year) characterizes this type of wetland. The dominating tree composition in such a forest may differ from one microclimate to another. Bottom land hardwood forests are found in floodplains along Spruce Creek, west of Interstate 95, while the remaining swamps are found as isolated pockets subject to seasonal fluctuations of the water table. Cypress, bay, and hardwood swamps are found mostly along Spruce Creek and in the western part of the city, along either side of Interstate 95, amongst pine flatwoods and dry prairies. Such areas are important for flood control, water purification, and wildlife habitat.

Transitional Communities Pine Flatwoods Flat sites with poor drainage, harboring mesic to wet trees and herbaceous material, make up this community which is found along either side of Interstate 95 in the western part of the

Page 8 - 7 CONSERVATION ELEMENT city. Wetland pockets are commonly found in depressions of the flatwoods community. Many wildlife species find habitat in such areas.

Dry Prairies Flat areas similar to pine flatwoods, except without the trees, make up this community, which may be found in isolated pockets in the western part of the city. Such areas are generally dry, but may withstand periodic flooding. Some bird and reptilian wildlife species find habitat here.

Hardwood Hammocks Forests with large broad-leaved oaks and other dominant hardwood species are called hammocks. The importance of pine trees as a component species varies from one type of hardwood forest to another. Wetter sites may have cypress trees also. Hammocks may be situated beside water bodies or on high, well-drained ground. Locally, they are found along Spruce Creek and Rose Bay. These communities are habitat to many wildlife species.

Upland Communities Scrub Forest Flat, dry, sandy ridge areas of pine forest, sand live oak, and/or heavy, clumpy underbrush characterize this community. Such an environment is found adjacent to hardwood hammocks to the south of Spruce Creek. This type of community serves as ground-water recharge areas and wildlife habitat.

Sandhills Stands of tall pine trees having a mid-story of xeric oak and an open understory can be seen east of Interstate 95, in association with uplands along Spruce Creek. The frequency of natural fires in these areas assures that the characteristic plant composition and groupings remain intact, with fewer hardwoods and shrubs than the scrub areas. Within this type of community, water recharge from rainfall takes place, as does inhabitation by many wildlife species.

Other Natural Areas A variety of other miscellaneous natural areas may be found adjacent to Port Orange. These areas include stands of pine, cabbage palm, wax myrtle, cypress, Atlantic White Cedar, and various hardwood tree species. Although not associated with any particular listed plant or animal species, they nonetheless should be considered significant open space resources. As with the natural communities described above, development within these areas should proceed with caution, utilizing the environmental protection policies and objectives of this Element.

Finally, the Halifax River and Spruce Creek are themselves important natural communities. Along with saltwater marshes, freshwater swamps, and mangrove swamps, these water bodies are home to numerous plant and animal species, including the Florida manatee. Conservation efforts to protect the manatee are described in greater detail in this Element as well as in the Coastal Zone Management Element.

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Protection of Natural Communities The upland and transitional communities have much less statutory protection under present laws than do most of the wetland communities. Many of the wetland communities associated with the Halifax River, Spruce Creek and their tributaries are protected through the City's Floodplain-Conservation (F-C) zoning district and various state, federal and regional requirements. Wetlands come under St. Johns River Water Management District (SJRWMD) regulations as well as the County's Minimum Standards for wetlands protection.

Sand pine communities and hardwood hammocks have become less prevalent in Port Orange because of the desirability of these areas for development. These areas are also habitat for several species of threatened or endangered plants and may need additional protection.

One of the most important aspects of protecting wildlife species is preserving their habitat in large enough quantities to ensure viable populations. Interconnection of conservation areas through corridors has been demonstrated to be one of the best methods to establish ways for wildlife to move into and out of conservation areas. Interconnecting varying habitat types also helps allow movement for species that spend different portions of their life cycles in different habitats.

The City is working with the County to interconnect City and County conservation areas and publicly owned lands together through the implementation of the Environmental Core Overlay (ECO) Map and policies. The ECO Map identifies environmental core lands that should receive the greatest degree of protection, and therefore suffer the least impact from development. These lands include the County’s Conservation Corridor, Florida Forever Priority “A” lands, portions of the County Environmental Systems Corridor, additional lands needed to ensure connectivity between large natural areas, and lands already in public ownership or under conservation easement. Care must be taken to ensure that development does not dissect or interrupt these environmental corridors.

AIR QUALITY

Port Orange is in the enviable position of not having any substantial air quality problems in the City or surrounding area. Because of prevailing winds from the adjacent Atlantic Ocean and no major point source emission from local industry, the air quality is very good. The Florida Department of Environmental Protection's (FDEP) Air Resources Management System shows one active permit issued within the City for a solvent blending and packaging company. Unless major industry locates in the City, auto emissions have the greatest potential to create air quality problems in the future. As long as the City can maintain its adopted roadway levels of service, and continue to promote the increased use of mass transit and other alternative transportation modes, air quality problems should not become a major threat to the City's quality of life.

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COMMERCIALLY VALUABLE MINERALS

There are no commercially valuable mineral deposits in the City. There are some limited borrow pit operations where shell and fill dirt is removed, but no significant mineral deposits that are commercially mined.

SOIL EROSION

There are no open field agricultural operations within the Port Orange city limits. There are small limited operations associated with horse breeding and stables, kennels, and ornamental nursery operations which are not subject to seasonal erosion problems.

The City's development regulations require erosion control measures during construction and sodding and/or seeding and mulching of disturbed areas at all construction sites, both commercial and residential. This requirement has sufficiently protected building sites and subdivisions from wind and water erosion.

The City has also maintained a stormwater management ordinance since 1981. This ordinance is designed to protect against flooding as well as help detain and filter stormwater before it enters area surface waters.

COMMERCIAL USE OF NATURAL RESOURCES

Aside from a small number of limited fishing operations, the only commercial use of natural resources within Port Orange is forestry. The majority of silviculture operations are in the undeveloped portions of the City, south of Spruce Creek. These areas are zoned for future mixed-use development that will occur at a later date. In most cases these areas are managed by professional foresters who follow best management practices for forestry. There are also limited forestry operations at the City's Central Recharge Wellfield, managed by a forester service contracted by the City.

CONSERVATION AND RECREATIONAL USE OF NATURAL RESOURCES

Floodplain-Conservation District The City has had a Floodplain-Conservation (F-C) zoning category since 1976. The F-C zone serves as a mechanism to protect the natural function of the floodplain and prevent flood damage to property. The zone also protects wetlands that provide various environmental and wildlife habitat functions. This category does not allow permanent structures below a 5-foot elevation on the Halifax River and its tributaries or below 10 feet along Spruce Creek and its tributaries. These areas are not suitable for development although limited elevated walkways, trails, and a variety of recreational uses are permitted. Limited agricultural activities may also be permitted in these areas, subject to City review, provided that their natural function is not adversely affected.

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Doris Leeper Spruce Creek Preserve The Doris Leeper Spruce Creek Preserve is located on the south side of Spruce Creek. This property was purchased through a joint effort of the Cities of Port Orange, Daytona Beach, New Smyrna Beach, and South Daytona, along with Volusia County and the FDEP. The original land area purchased was approximately 610 acres in size and has grown to its current size of approximately 2,265 acres. The original objective was to create a continuous corridor along the south side of the creek from U.S. 1 to Interstate 95. This was achieved with the City of Port Orange’s purchase of 225 acres of land (included in the ECO Map) located adjacent to the east of I-95 in December 2007. This purchase was made possible with the assistance of a Florida Communities Trust grant. The City of Port Orange is also looking for partners to assist in purchasing the 481 acres adjacent to the south of the 225 acres already purchased for addition to the Preserve.

Port Orange Wildlife Sanctuary The Port Orange Wildlife Sanctuary is divided into two tracts that consist of several parcels, including spoil areas MSA V-7 (Tract 313) and MSA 434-A (Tract 314). Many of the parcels are state-owned, but some are held by private landowners. The “centerpiece” of the sanctuary is the small island just south of the Dunlawton Bridge, identified on navigation charts as “Island #3”, and commonly referred to as “Pelican Island” by locals.

Though many of the spoil islands in the Halifax River are owned by the State, the Florida Inland Navigation District (FIND) has a perpetual easement over them for the placement of dredged materials from the maintenance of the Intracoastal Waterway (ICW). Environmental regulations enacted since the 1960's preclude FIND from using most of the islands today. Therefore, on February 26, 1960, at the request of the Florida Audubon Society, the Board of Commissioners of the FIND passed a resolution setting aside the subject spoil areas in MSA V-7 (Tract 313) and MSA 434-A (Tract 314) for management by the Florida Audubon Society as the Port Orange Wildlife Sanctuary. This designation was also approved by the former Department of Natural Protection, which has since been merged into the Department of Environmental Protection. The resolution requires the Audubon Society to post the island for “No Trespassing”.

The Halifax River Audubon Society has posted signs in the Halifax River at the northern and southern borders of the Port Orange Wildlife Sanctuary. The signs indicate to the public that they are entering and leaving the sanctuary. The posting of these signs put the Sanctuary in compliance with the resolution signed in 1960 by FIND that established the sanctuary.

The Volusia County Intracoastal Island Management Plan includes the islands in the Port Orange Wildlife Sanctuary. The City will continue to work with the County and the Halifax River Audubon Society to further the objectives of the proposed management plan, as well as the 1960 resolution that established the Port Orange Wildlife Sanctuary.

The Port Orange Wildlife Sanctuary, as well as and the Spruce Creek Preserve are identified on Figure 8-1.

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Wellfield Purchase In 1985, the City purchased 2,700 acres west of the City Limits for wellfield use. In 1989, the City added 4,200 acres to this area, some 1,900 acres of which were purchased jointly with Daytona Beach. In 1995, the City added an additional 400 acres to the wellfield site along with joint ownership of an additional 3,800 acres with Volusia County. In 2008, the City of Port Orange and the City of Daytona Beach mutually agreed to dissolve their partnership, and divided the land ownership equally by acreage. While this property is in the unincorporated area, the City and the County have entered into an interlocal agreement that provides the City with land use, zoning, and land development control over the land. It is the City’s intent to protect the property, allowing only limited forestry and recreational activities that are compatible with the wellfield use.

Coastal Management Element The City worked with the County in an effort to manage growth and protect coastal resources through the development of the original joint Coastal Management Element for the County and coastal cities. This was a joint effort to guide growth and protect the coastal resources that have no artificial jurisdictional boundaries. The Halifax River is an excellent example of a coastal resource that runs through almost a dozen jurisdictions, but which historically had not benefited from coordination as to its use, protection, or monitoring. However, the City has adopted policies into the Comprehensive Plan to implement the County’s Manatee Protection Plan (MPP), which addresses vessel speed zones, marina/boat facilities development, shoreline/submerged land development, habitat protection, law enforcement, educational programs, human-manatee interaction, and inter-governmental coordination. Although the purpose of the MPP is to provide county- wide protection for the Florida manatee and its habitat, it has also served as a broader coordination tool for natural resources like the Halifax River.

DEVELOPMENT PRESSURES

Based on the population projection data that was developed prior to the economic recession that began in 2008, the City of Port Orange is anticipated to continue growing at an average rate of approximately 11% a year reaching an eventual population of around 84,300 by 2025. However, based on the current economic climate, it is probably more likely that the average annual growth rate will be closer to 1.5 – 2%. This means that areas of the City that were less desirable for building because of environmental constraints will begin to experience greater development pressures, but at a slower rate.

Existing Protection Mechanisms The City has developed a variety of regulations to help guide growth into areas where it is more appropriate, based on the policies of this Comprehensive Plan. These include zoning regulations that limit development in floodplains and require compensatory storage; public purchase of sensitive areas for recreational use; stormwater management requirements; and tree and vegetation preservation mechanisms. The City also requires development to be served by central water and sewer systems with utility lines extended at developer's expense. This tends to promote a more compact growth pattern and restrain urban sprawl.

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Areas Facing Development Pressure The west and southwest portions of the City are expected to face more intense development pressures as remaining vacant land in the easterly part of the City is developed.

The areas south of Spruce Creek and west of Interstate 95 have greater environmental constraints than do most of the areas currently developed. There are significantly more wetlands in the undeveloped portions of the City. Drainage outlets in many of these areas are limited and concerns regarding adequate drainage will have to be carefully addressed. Retention of wildlife habitat and native vegetation will need to be given greater priority as development moves into these more sensitive areas.

The City will need to continue to take great care to protect Spruce Creek as development pressure increases in the Spruce Creek drainage basin. Spruce Creek is designated an Outstanding Florida Water by the State; therefore, areas that drain into Spruce Creek must be developed with more stringent stormwater management requirements.

The area west of I-95 and north of Taylor Road also presents greater environmental constraints than other previously developed areas within the City. Much of this land is part of the Interlocal Planning Agreement area mentioned earlier in this Element. Again, there are several wetlands within this area and thus, developers will have to recognize the limitations inherent in building adjacent to these environmentally sensitive zones. Because of the lack of drainage outfalls within this area, there is a greater concern for increased run- off and storage, which will need to be addressed.

POLLUTION

Surface Waters The State has five classifications for surface waters according to designated uses. All surface waters in Port Orange are presently listed as Class III waters. Spruce Creek has the added designation of Outstanding Florida Water (OFW). The authority for this designation comes under specific authority of Chapter 403.061, Florida Statues and is outlined in Chapter 62-3 F.A.C. as follows:

CLASS I Potable Water Supplies CLASS II Shellfish Propagation or Harvesting CLASS III Recreation, Propagation, and Maintenance of a Healthy, Well-balanced Population of Fish and Wildlife CLASS IV Agricultural Water Supplies CLASS V Navigation, Utility, and Industrial Use

Each water classification has specific water quality criteria and parameters such as bacteriological quality, biological integrity, dissolved oxygen (DO), trace metals, nutrients, pesticides, and herbicides. Generally, Class I waters have the most stringent water quality standards and Class V the least stringent.

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Rivers There has been a long history of concern over the perceived water quality decline in the Halifax River. Previous studies dealing with water quality in Volusia County suggested that urbanization and poor water circulation are the leading causes of reduced water quality. A water quality monitoring system has been initiated by the Volusia County Health Department in cooperation with the County Environmental Management Department. The Health Department has deployed monitoring stations along the Halifax River, Spruce Creek, and Rose Bay. The monitoring program has showed a steady improvement in the water quality of these water bodies over the last several years. This improvement in quality can be attributed to advanced treatment of discharge, wider utilization of reclaimed water, and the completion of stormwater management projects identified in the Capital Improvements Element, the Capital Improvements Program (CIP) and the Stormwater Master Plan. The City will continue to cooperate with the Health Department, Volusia County Environmental Management, and the coastal cities to maintain this water quality monitoring system.

Spruce Creek has been designated an Outstanding Florida Water. The creek is a natural brown color caused by tannic acid and a large amount of detritus material entering the creek from the surrounding wetlands and swampy areas. The water quality in the creek has also suffered from the agricultural run-off generated by the farming community of Samsula located at the headwaters of the Creek. The FDEP completed a study in December 2007 to determine the pollutant loading of the streams and water bodies in the State. Two areas in the Spruce Creek Basin were identified as locations where the pollutant loading is in excess of the total maximum daily loads (TMDL) – the maximum amount of a pollutant that a water body can receive and still meet water quality standards, and an allocation of that load among the various sources of that pollutant. The lower Spruce Creek area TMDL addresses Dissolved Oxygen and Nutrient impairments. The upper Spruce Creek basin area is identified for Fecal Coliform impairments. It will be the responsibility of the various political jurisdictions within this basin (i.e. Port Orange, Volusia County and New Smyrna Beach) to work with the FDEP to develop a Basin Management Action Plan to address the impairments.

Spruce Creek provides important wildlife habitat for numerous species, including many that are listed as endangered, threatened, or of special concern. Because of limited development in the Spruce Creek watershed and along the banks, much of the natural aesthetics of the creek still remain. This particular quality is becoming more difficult to find in urbanized areas.

Wetlands As shown on the Natural Communities Map (Figure 8-2), the City of Port Orange and surrounding area contains a high number of wetlands. Wetlands, which may include estuaries, isolated swamps, and floodplains, provide breeding and feeding areas for many marine and freshwater species, and are the habitat for many threatened and endangered species. Wetlands also have the ability to filter pollutants, especially those carried in stormwater runoff. The filtering capacity of wetlands is especially critical in preventing pollutants from entering widely-used regional water resources such as the Halifax River and the Floridan Aquifer. Thus, it is important for the City to ensure the long-term health and quality of the wetlands adjacent to these resources.

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The FDEP's Integrated Water Quality Assessment for Florida measures the water quality of surface waters and watersheds throughout the state. The study includes both toxic pollutant and non-point source assessments. The study analyzes the data collected according to 12 criteria, and categorizes surface waters as either "Good" (meets designated use), "Fair" (partially meets designated use), "Threatened," and "Poor" (does not meet designated use). SJRWMD publishes a map of this data in its Local Government Water Resource Atlas.

The City used this data to analyze the water quality of known wetland areas within and adjacent to the city boundary (see Figure 1-5). The City's analysis shows that with the exception of three tributaries of Spruce Creek and one of the Halifax River, the wetlands adjacent to these surface water bodies are in "Fair" condition. All four of these tributaries are in urbanized or developed areas, and may be subject to the runoff and other non-point pollution sources described above. The City must ensure that the quality of these wetlands and surface waters is not further degraded. The strategies that are being employed to achieve this are discussed in the Implementation section below.

Man-made Lakes/Retention Ponds Port Orange has no significant naturally occurring lakes or ponds. The majority of what are considered lakes have been designed and built as retention ponds. These man-made lakes designed to retain and filter stormwater as required by state, regional, and local law. As these retention areas become more prevalent, problems associated with water quality in them may become a concern. There are techniques that can be used in the design and development of man-made lakes that can help maintain their quality. These techniques are discussed in the Drainage Sub-Element.

Groundwater Port Orange, like the rest of Volusia County, gets its potable water from the Volusia Floridan Aquifer. The City has purchased wellfield areas west of Interstate 95 in order to maintain a constant, clean supply of water for the City's service area. The City has also been a leader in promoting a regional approach to planning for the protection and conservation of the water supply.

The protection of sites of high water recharge is becoming a matter of concern for the entire County. Generally, the areas considered best for recharge are the sandy ridges, which are also seen as highly desirable development sites. For example, the Port Orange Central Recharge Wellfield is located on the Rima Ridge, just west of the City. Because of the importance of this area to the region's water supply, the City has purchased thousands of acres and designated them Conservation on the Future Land Use Map and shall continue to work with the State, County, and Regional Water Authorities in identifying and protecting water recharge areas.

HAZARDOUS WASTE

Hazardous waste has become a greater concern as more information has become available regarding its effects on the health, safety, and welfare of citizens. In Florida, the greatest concern stems from the vulnerability of the groundwater to leaching from landfills and other

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dump sites. The Florida Resource Recovery and Management Act requires county-wide assessment of hazardous waste.

Collection & Disposal of Hazardous Waste Volusia County has a hazardous waste collection facility located at the Tomoka Landfill and the West Volusia Transfer Station. These facilities presently accept hazardous waste year- round from small quantity generators (households) and recycle or transport this waste out of the state to a licensed facility. There are two amnesty days each year where off-landfill sites are provided throughout the County. Hazardous waste disposal is not permitted within the State of Florida.

Public awareness of the problems and damage caused by improper disposal of hazardous waste has generally been low. The State of Florida has mandated recycling plans, including a major public education component, which could also be used to heighten public awareness regarding hazardous waste. To promote compliance with proper disposal, the locations for County acceptance of hazardous waste is publicized to Port Orange residents through the City's quarterly newsletter. The City's policies regarding hazardous waste may be found in the Solid Waste Sub-Element.

Abandoned Landfill Sites The City of Port Orange has one known closed landfill site which has been reclaimed as part of the City Center Sports Complex. This site was operated until 1981 as a disposal facility for yard trash, old white goods and construction debris. Concurrently, the City operated a household garbage incinerator at the site until 1979. However, household garbage was never deposited at this site. Because of the limited types of debris accepted at that location, it has been assumed that there was little cause for concern. This site is not listed on any state or federal list requiring any clean up activities.

There is also an old construction and debris site on the southeast corner of Clyde Morris Boulevard and Reed Canal Road. The City has designated this property as a Brownfield site through the Florida Brownfield Redevelopment Program, which is designed to provide financial and regulatory incentives to encourage voluntary cleanup and redevelopment of sites.

WATER USE

The City of Port Orange gets its potable water supply from the Volusia Floridan Aquifer. Water from the surficial aquifer is used in many instances for lawn irrigation and the limited agricultural uses still being conducted in the City. The average rainfall in the City is approximately 50-52 inches per year. Through evapotranspiration an average of 35 inches is lost per year with the remainder available for surface water enhancement and groundwater recharge.

Current Demand The City of Port Orange operates its own potable water system that is currently capable of producing 15 million gallons of treated water per day. The finished water distribution system serves approximately 66,300 customers and includes approximately 2,100,000

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linear feet (LF) of distribution piping and three remote storage tank/pump station sites. The demand for water in 2009 averaged 5.82 million gallons per day (MGD), with a peak daily demand of 7.70 MGD. Water treatment systems are designed to meet peak day demand. The plant’s rated capacity is 15 MGD, with all three 5.0 MGD process trains fully operational. With one train out of service, the effective capacity is 10.0 MGD. Prudent planning provides for capacity availability with one train down. Peak week flows are expected to exceed 10.0 MGD during 2020. A 2.0 – 3.0 MGD plant expansion is recommended before that time to allow for utilization of lower quality groundwater. Additional capacity will provide greater operational flexibility and redundancy. It is a long-range capital improvement, (> 10 years).

Projected Demand Future service area demand projections for potable water are based on the City's level-of- service standard of 180 gallons per day per equivalent residential unit (ERU) per day. This standard was derived from historical trends and has decreased over time within the service area with the increased use of the reclaimed water system. The majority of the demand is for residential consumption. As discussed previously, there is very little agricultural demand for water and no existing local industry that places unusual demand on the City's water system. The projected demand for potable water is shown in Table 1.

TABLE 1 Population and Flow Projections (2003-2025) Estimated Average Peak Day Peak Week Year Population Demand Demand Demand (MGD) (MGD) (MGD) 2003 62,300 6.2 8.9 7.48 2005 67,655 6.7 9.4 8.03 2010 70,163 7.1 10.7 8.81 2015 74,842 7.6 11.4 9.36 2020 78,540 8.2 12.3 9.87 2025 85,920 9.0 13.5 10.37 Source: Quentin L. Hampton Associates, Inc., 2007.

Reclaimed Water The City embarked on a plan to reuse treated wastewater effluent in 1986. The initial use of this reclaimed water was for irrigating the City Center Complex. The City has expanded the reclaimed water program into single-family neighborhoods and non-residential developments for use in irrigation.

A major program to expand the reclaimed water system was implemented during 1995 and placed in service during early 1996. The results of the program were dramatic. The initial response to the reclaimed water program was a reduction in surface water discharge of 1.4 MGD during the year 1996. Since then, the reclaimed water system has evolved into a complex collection of pumps, pipes, valves and structures serving more than

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6,000 customers. Typical daily use ranges between 3.5 and 5 MGD. A detailed discussion of the City’s reclaimed water program is included in the Public Facilities Element.

Water Conservation Water supply is a major issue for all communities in Volusia County. Concern centers on draw-downs in the aquifer, saltwater intrusion, periodic droughts, protection of recharge areas, and overall consumption rates. The SJRWMD is charged with regulating consumptive use in this area. It has also designed an emergency water use program for times of declared drought. The City of Port Orange adheres to this emergency water program, but also has the ability to enact its own emergency use plan when needed, which has been done in the past.

There are various water conservation methods the City uses, such as water-restrictive plumbing requirements, a low-flush toilet retrofit rebate program, restricted use of irrigation water, Florida Friendly landscaping, a conservation water rate structure, the reclaimed water system, and purchase and protection of wellfields, which will be discussed in the implementation section of this Element.

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IMPLEMENTATION STRATEGIES

AIR QUALITY

The greatest potential threat to the reduction of air quality in Port Orange is most likely to come from vehicle emissions. As long as the City is careful to maintain the accepted level of service on its transportation network and strive to reduce overall vehicle miles traveled, air quality should not become an issue. Maintaining reasonable travel times on roadways, promoting the increased use of mass transit, alternative transportation modes, a mixed land use that will foster a more walkable community, and designing buffers between residential areas and main roadways should protect the local air quality well into the future.

WATER QUALITY

Halifax River The City has been a longtime advocate of the need to reverse the deterioration of water quality in the Halifax River, its tributaries, and adjacent surface waters. The City will continue to cooperate with federal, state, regional and local entities in implementing a water monitoring system for the entire Halifax River Estuary. Accurate data is needed to assess existing water quality, locate point and non-point sources of pollution, and monitor activities intended to enhance the water quality in the river. The City will also need to monitor development along the estuary to prevent further degradation of the shoreline or destruction of wetlands associated with the estuary.

The City has worked to reduce the use of septic tanks adjacent to local waterways, floodplains, and wetlands. The City requires existing homes to connect to the central sewer system if it is available within 100 feet of the property. The City also prohibits the installation of new septic tanks on lots smaller than one acre.

The City continues to support a watershed approach to stormwater management in the Halifax drainage basin. The City commissioned a special purpose drainage study in 2009 to address the major flooding and road closure that occurred during an extreme rain event in May 2009. The City is also participating with the cities of South Daytona, Daytona Beach, Holly Hill, Ormond Beach, and Volusia County to construct flood control projects at three primary outfalls to the Nova Canal System. The Halifax Canal comprises the southern outfall from the Nova Canal System and will be the site of a future stormwater pump station.

Spruce Creek The City endorsed the designation of Spruce Creek as an Outstanding Florida Water (OFW). It has participated in efforts to purchase endangered and sensitive lands, and will continue to lobby the County and State to acquire additional related properties. The City will continue to work with the County in an effort to see that land uses allowed near the headwaters of Spruce Creek do not further adversely impact the water quality and habitat functions of the creek. The City should also initiate a discussion with the County regarding a plan to clean up agricultural run-off entering the creek from the farming communities near the creek's headwaters.

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Given the designation of Spruce Creek as an Outstanding Florida Water, and its importance to the overall health and biological diversity of the Halifax River estuarine system, the City established the "Spruce Creek environmental corridor." The corridor is protected through a conservation easement dedicated to the City on all lots abutting Spruce Creek that were created after November 1, 1990. The corridor is meant to supplement the Floodplain- Conservation zoning district, and encompasses the area within 50 feet landward from the top of the river bank. In places where the top of the bank is not discernable, either the mean high water line or the upland/wetland boundary is used, whichever is greater. Development within the corridor is limited to water-dependent uses only. The buffer also provides for the preservation of existing native vegetation, as well as the planting of native vegetation in places where it has been disturbed. The buffer and associated regulations were incorporated into the City's Land Development Code in 1991.

The City supports a regional approach to protecting the water quality of Spruce Creek. The City is working with the County to interconnect City and County conservation areas and publicly owned lands together through the implementation of the Environmental Core Overlay (ECO) Map and policies. The ECO Map identifies environmental core lands that should receive the greatest degree of protection, and therefore suffer the least impact from development. This overlay includes lands along the creek to ensure protection of the estuary.

Wellfield Protection The City has already taken steps to protect its water supply by purchasing several thousand acres of land surrounding the wellfield site. The City's wellfields function as wildlife habitat preserves with little or no development allowed. Some passive recreational uses are permitted such as hunting and horseback riding. Limited forestry management is also permitted. The City will need to continue monitoring of the County landfill that is within 1- 1/2 miles of the City property. The County has been supplying all monitoring information to the City for review.

FLOODPLAINS

The City has had a Floodplain-Conservation (F-C) zoning category in its Land Development Code since 1976. This designation limits development below the 5-foot elevation along the Halifax River and the 10-foot elevation along Spruce Creek. However, there are large portions of Port Orange that are shown on FEMA 100-year flood hazard maps that do not enjoy the additional protection regarding fill or alteration to the flood storage capacity of these areas. Often large amounts of fill are required in floodplains to place buildings at an acceptable level above flood height as required by building codes, resulting in massive loss of vegetation and flood storage capacity. The City requires compensatory storage to be created in conjunction with filling activities in floodplain areas. The City also encourages the public acquisition of floodplains whose functional values have been degraded or destroyed through human intervention.

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WETLANDS

Wetlands along floodplains connected to the Halifax River, Spruce Creek, and their tributaries have some protection under the F-C zoning category. There are also existing Federal, State, and Regional laws that offer protection to certain wetlands. In addition, the City has participated in the formulation of minimum County-wide standards for wetland protection, which were mandated by a County charter amendment authorized by the voters in 1986.

Since 1989, wetlands regulations have increased significantly. The federal government, through the U.S. Army Corps of Engineers (ACOE), instituted a policy of "no net loss" that is implemented during permit review of projects with proposed wetland impacts. At the State level, the SJRWMD consolidated its wetlands review criteria under the Environmental Resource Permit program in 1995. The official State policy regarding wetlands protection is to avoid the introduction of incompatible uses in and around wetlands, relying upon mitigation and "no net loss" of wetlands function only as a last resort. These State and Federal regulatory criteria therefore provide the basis for protection of wetland resources within the City. The City requires submittal of an Environmental Assessment Report during its development review process, and this assessment addresses the status of Federal and State approvals related wetlands development issues.

One facet of wetlands protection that the City has explored is off-site mitigation. The City has historically directed off-site wetlands mitigation activities to the City’s Wetland Mitigation Bank located at the Central Recharge Wellfield property, which is west of the City limits near Interstate 4. The creation or restoration of wetlands there is coordinated with the SJRWMD, and is further guided by the policies set forth in this Element.

WATER CONSERVATION

The City utilizes various water conservation methods, such as water-restrictive plumbing requirements, a low-flush toilet retrofit rebate program, restricted use of irrigation water, Florida Friendly landscaping, a conservation water rate structure, and the reclaimed water system. The central program promoting water conservation has been the expansion of the City's reclaimed water system, especially into single-family residential areas. The biggest obstacle facing future expansion of the reclaimed water program is maintaining supply during peak demand periods. All new developments are required to connect to the reclaimed water system, where determined to be available, or install irrigation systems designed for alternative water sources.

The City will continue to follow the requirements of the SJRWMD's emergency water use plan and help educate local residents about water conservation. This is important because most of Volusia County, including the area encompassing the City of Port Orange, has been designated a Priority Water Resource Caution Area, as shown on Figure 4-10.

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SOIL EROSION

Through enforcement of existing requirements for ground cover and stormwater management for new construction, the City has been able to successfully contain local soil erosion problems. The City's Environmental Preservation Ordinance that limits clearing of vegetation and requires permits for most changes of grade has been responsible to a great extent for the prevention of local erosion. All clearing activities are required to limit the amount of exposed ground surface area. Such areas must be seeded, sodded, and mulched if exposed for an extended period of time. The City also considers the inherent limitations and development potential of existing soil types when reviewing proposed development plans. The City requires development activities to minimize the disturbance of hydric and highly erodible soils, and directs development away from areas containing such soils where possible.

THE URBAN FOREST

The City has established the use and retention of native vegetation as part of its site plan requirements. Priority is given to retaining existing vegetation. When that cannot be done, replacing the vegetation lost with as much native vegetation as possible is required.

The City also requires, through the development review process, that specimen and historic trees be saved, as well as a minimum amount and number of natural vegetation and non- specimen trees throughout the site. Such trees and areas are required to be granted to the City through tree conservation easements. These regulations are consistent with the County's minimum standards and with the City's Comprehensive Plan. In addition to these regulations, the City will continue to maintain its Tree City USA status and will seek to increase the tree canopy throughout the City.

NATURAL COMMUNITIES

The City has established certain ecological communities as areas requiring special protection due to their function as habitat for various threatened and endangered species. Special consideration is given to natural communities that function as breeding, nesting, and feeding areas for species that are endangered, threatened or of special concern.

The City enforces state and federal regulations prohibiting the harming, pursuit, or harassment of protected wildlife species on all development projects. If such species are discovered on sites under development, the developer is required to halt construction activities and notify the City and appropriate state and federal agencies.

The City will need to periodically update the protection plan for its City-owned properties, specifically its wellfield property. Priority should be given to managing these areas for wildlife habitat in conjunction with the goal of groundwater protection. In addition, the City has developed a Forestry Management Plan for the wellfield property.

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The City will continue to work closely with the County's land acquisition programs to protect significant local ecological communities. The City will continue to work with the County and any other state, federal, and regional agencies to promote the establishment of an environmental corridor linking the Spruce Creek Preserve site with other public lands along Spruce Creek.

The City will continue to work with the County to implement the Environmental Core Overlay (ECO) map and policies.

The City will continue to promote the clustering of development away from sensitive areas. Buffering criteria for sensitive ecological communities has been incorporated in the Land Development Code along with limits on the fragmentation of large ecological communities and the provision of management plans to restore designated areas to their natural function.

WASTE MANAGEMENT

Hazardous Waste The City continues to notify citizens of hazardous waste collection at the Tomoka Landfill and the West Volusia Transfer Station in the quarterly newsletter published by the City. Making citizens aware of this opportunity helps eliminate hazardous waste from being placed in garbage cans and eventually ending up in the landfill, being poured down storm sewer and household drains; or being dumped on the ground to eventually contaminate the underground water supply. Through the City’s continued involvement in the EPA’s National Pollutant Discharge Elimination System (NPDES), the amount of hazardous materials that are not properly disposed of will decrease through public education and other Best Management Practices.

Mandatory Recycling In 2008, the Florida Legislature passed the Energy, Climate Change, and Economic Security Act that establishes a statewide recycling goal of 75% to be achieved by the year 2020. Although the County is the designated agency responsible for recycling, it is incumbent on the area cities that rely on the County landfill to cooperate on an area wide plan in order to accomplish the required 75% recycling goal.

The City implemented a recycling program in 1991. Recycling allows less contaminants into the landfill and extends the useful life of the landfill. A private contractor is responsible for the collection and disposal of the City's recycled material. In FY 2008/09, approximately 9.5% of the City’s solid waste collected consisted of recycled items. The City of Port Orange will continue to work with the County in a cooperative effort to promote recycling and reduce the amount of material going into the landfill.

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