ENVIRONMENTAL ASSESSMENT ISSUANCE OF AN INCIDENTAL TAKE PERMIT TO ESCAMBIA COUNTY, FLORIDA FOR TAKE OF PERDIDO KEY BEACH MOUSE, SEA TURTLES, AND PIPING PLOVERS INCIDENTAL TO PRIVATE DEVELOPMENT AND ESCAMBIA COUNTY OWNED LANDS AND INFRASTRUCTURE IMPROVEMENTS ON PERDIDO KEY, FLORIDA PREPARED BY: PBS&J 2401 EXECUTIVE PLAZA PENSACOLA, FLORIDA 32504 FINALIZED BY: U.S. FISH AND WILDLIFE SERVICE ECOLOGICAL SERVICES DIVISION 1601 BALBOA AVENUE PANAMA CITY, FLORIDA 32405 June 23, 2011 i TABLE OF CONTENTS TABLE OF CONTENTS ................................................................................................. ii ABBREVIATIONS .......................................................................................................... iv TABLES ............................................................................................................................ vi 1.0 INTRODUCTION....................................................................................................... 1 2.0 PURPOSE OF THE PROPOSED ACTION ............................................................ 3 3.0 NEED FOR THE PROPOSED ACTION ................................................................. 3 4.0 PRIVATE DEVELOPMENT ALTERNATIVES, INCLUDING PROPOSED ACTION............................................................................................................................. 7 4.1 Alternatives Considered but Not Analyzed Further............................................ 7 4.2 Alternative 1: Take Avoidance .............................................................................. 8 4.3 Alternative 2: Development of Individual HCPs (No Action Alternative) ........ 8 4.4 Alternative 3: Issuance of ITP in Conjunction with Perdido Key Programmatic Habitat Conservation Plan and Minimization of Impacts (The Preferred Alternative) .................................................................................................. 9 5.0 ESCAMBIA COUNTY OWNED LANDS and INFRASTRUCTURE ALTERNATIVES, INCLUDING THE PROPOSED ACTION ................................ 26 5.1 Alternatives Considered but Not Analyzed Further.......................................... 26 5.2 Alternative 1: Take Avoidance ............................................................................ 27 5.3 Alternative 2: Development of Individual HCPs (No Action Alternative) ...... 27 5.4 Alternative 3: Issuance of the ITP in Conjunction with Perdido Key Programmatic Habitat Conservation Plan and Minimization of Impacts (The Preferred Alternative) ................................................................................................ 27 6.0 AFFECTED ENVIRONMENT ............................................................................... 41 6.1 Habitat, Structure and Function ......................................................................... 42 6.2 Migratory Birds .................................................................................................... 50 6.3 Protected Species ................................................................................................... 51 6.4 Demographics and Economy ............................................................................... 74 6.5 Public Infrastructure ............................................................................................ 76 6.6 Land Use and Development of Perdido Key ...................................................... 77 6.7 Recreation .............................................................................................................. 80 6.8 Air Quality ............................................................................................................. 81 6.9 Noise ....................................................................................................................... 82 6.10 Coastal Construction Control Line ................................................................... 83 6.11 Coastal Zone Management Act.......................................................................... 84 6.12 Human Safety ...................................................................................................... 92 7.0 ENVIRONMENTAL CONSEQUENCES .......................................................... 92 7.1 Private Development Alternatives, Including Proposed Action ....................... 92 7.1.1 Alternative 1: Take Avoidance ..................................................................... 92 7.1.2 Alternative 2: Development of Individual HCPs (No Action Alternative) ................................................................................................................................... 96 7.1.3 Alternative 3: Issuance of the ITP in Conjunction with Perdido Key Programmatic Habitat Conservation Plan and Minimization of Impacts (The Preferred Alternative) .......................................................................................... 101 ii 7.2 Escambia County Owned Lands and Infrastructure Alternatives, Including the Proposed Action .................................................................................................. 112 7.2.1 Alternative 1: Take Avoidance ................................................................... 112 7.2.2 Alternative 2: Development of Individual HCPs (No Action Alternative) ................................................................................................................................. 117 7.2.3 Alternative 3: Issuance of the ITP in Conjunction with Perdido Key Programmatic Habitat Conservation Plan and Minimization of Impacts (The Preferred Alternative) .......................................................................................... 122 8.0 Cumulative Effects .................................................................................................. 133 9.0 Comparison of Alternatives ................................................................................... 136 10.0 References .............................................................................................................. 141 11.0 Appendix ................................................................................................................ 146 iii ABBREVIATIONS Act Endangered Species Act AQI Air Quality Index BMP Best Management Practices BO Biological Opinion BOCC Escambia County Board of County Commissioners CCCL Coastal Construction Control Line CFR Code of Federal Regulations Comp Plan Escambia County Comprehensive Plan CZ Conservation Zone CZMA Coastal Zone Management Act DCA Florida Department of Community Affairs DO Development Order DRC Escambia County Development and Review Committee DU Dwelling Units EA Environmental Assessment ECAT Escambia County Area Transit ECEMS Escambia County Emergency Medical Services ECUA Emerald Coast Utilities Authority EIS Environmental Impact Statement FATPO Florida-Alabama Transportation Planning Organization FDCA Florida Department of Community Affairs FDEP Florida Department of Environmental Protection FDOT Florida Department of Transportation FNAI Florida Natural Areas Inventory FFWCC Florida Fish and Wildlife Conservation Commission FHWA Federal Highway Administration GUIS Gulf Islands National Seashore HCP Habitat Conservation Plan ITP Incidental Take Permit LU Lodging Units MBTA Migratory Bird Treaty Act MHWL Mean High Water Line MLW Mean Low Water MSBU Municipal Services Benefit Unit NEPA National Environmental Policy Act PCE Primary Constituent Elements PD&E Project Development and Environment PK Perdido Key PKBM Perdido Key Beach Mouse PKNP Perdido Key Neighborhood Plan PKSP Perdido Key State Park SEIR State Environmental Impact Report Service United States Fish and Wildlife Service WRF Water Reclamation Facility iv FIGURES Figure 1 HCP Plan Area…………………………………………………………………5 Figure 2 Diagram of typical cross section from the Gulf of Mexico to upland dune communities……………………………………………………………………………..43 Figure 3A County Roads……………………………………………………………….44 Figure 3B County Roads……………………………………………………………….45 Figure 4A USFWS PKBM Critical Habitat…………………………………………..55 Figure 4B USFWS PKBM Critical Habitat…………………………………………...56 Figure 4C USFWS PKBM Critical Habitat…………………………………………..57 Figure 4D USFWS PKBM Critical Habitat…………………………………………..58 Figure 4E USFWS PKBM Critical Habitat…………………………………………...59 Figure 4F USFWS PKBM Critical Habitat…………………………………………...60 Figure 4G USFWS PKBM Critical Habitat…………………………………………..61 Figure 4H USFWS PKBM Critical Habitat…………………………………………..62 Figure 4I USFWS PKBM Critical Habitat……………………………………………63 Figure 5A Escambia County 1975 CCCL……………………………………………..85 Figure 5B Escambia County 1975 CCCL……………………………………………..86 Figure 5C Escambia County 1975 CCCL……………………………………………..87 Figure 5D Escambia County 1975 CCCL……………………………………………..88 Figure 5E Escambia County 1975 CCCL……………………………………………..89 Figure 5F Escambia County 1975 CCCL……………………………………………..90 Figure 5G Escambia County 1975 CCCL…………………………………………….91 v TABLES Table 1 Minimization Measures Summary .................................................................. 15 Table 2 List of Species and Listing Status .................................................................... 51 Table 3 Critical Habitat Units for the Perdido Key Beach Mouse ............................. 54 Table 4 Dwelling Units on Perdido Key as of October 1, 2008 ................................... 75 Table 5 Lodging Units on Perdido Key (as of May 2009) ........................................... 75 Table 6 Comparison of Alternatives ..........................................................................