City of Milton City of Milton City of Milton I. INTRODUCTION
A variety of natural resources are found within the City of Milton that contribute to
the social and economic value of the community, and are an important consideration in
the planning process. When allowed to function naturally, these resources provide
benefits to everyone at no cost; however, when development significantly alters natural
resources, the effects are often disastrous and far-reaching. The purpose of this
element is to establish guidelines for development that ensure the wise conservation,
use, and protection of natural resources.
The Conservation Element identifies and analyzes the natural resources of
Milton. Impacts on these resources from human activities are identified and needs for
DATA AND ANALYSIS Natural Resource Inventory and Analysis Surface Water Resources
The surface water resources of the City of Milton include the Blackwater River
and Locklin Lake. The Blackwater River borders Milton on the east. It is a 58 mile river
originating north of Bradley, Alabama and discharging south of Milton into the
Blackwater Bay. Locklin Lake was formed by the construction of a dam as part of a
subdivision development. It is a private lake located near the center of Milton and is
linked to the Blackwater River by Collins Mill Creek.
City of Milton
Water quality information for the Blackwater River was obtained from the Florida
Department of Environmental Regulation’s “1986 Florida Water Quality Assessment,
305(b) Technical Report.” The Blackwater River is designated as having “good” overall
water quality, meaning that the quality of the water meets its designated use. Two point
sources of pollution affect the river. The Milton Sewage Treatment Plant discharges
into the river near Blackwater Bay. The Whiting Field Sewage Treatment Plant
discharges into Clear Creek, a tributary of the Blackwater River.
Locklin Lake is currently experiencing water quality problems due to over-
nutrification and siltation. The City has a Stormwater Management Sub-Committee
established to address the issue of stormwater runoff entering Locklin Lake.
Additionally, the City currently has a Comprehensive Stormwater Development Plan
underway that will provide a review of drainage and water quality issues impacting
Milton. This study is scheduled to be completed in October 1990.
Surface Water Classification
The Department of Environmental Regulation classifies State waters according to
their present and future most beneficial uses. Section 17-3.081 F.A.C. identifies these
Class II – Shellfish propagation or harvesting
Class III – Recreation; propagation and maintenance of a healthy, well-balanced
Class IV – Agricultural water supplies
Class V – Navigation, utility, and industrial use
City of Milton
Locklin Lake is classified as a Class III Water. In addition to this classification
system, the DER administers the Outstanding Florida Waters Program which
designates a special category of water bodies in the State worthy of special protection.
The designation requires that the existing ambient (naturally occurring) water quality be
maintained and that the DER cannot issue permits that would lower the ambient water
quality. The Blackwater River has been designated as an Outstanding Florida Water
and has, therefore, been designated as a natural reservation on the Existing and Future
The Florida Department of Environmental Regulation (DER) has not identified
any air quality problems in the Milton area. The DER previously maintained air quality
station in the area, but discontinued this practice due to continued excellent air quality
3. Floodplains
Floodplains are defined here as those areas identified by the Federal Emergency
Management Agency (FEMA) on its Flood Insurance Rate Maps as “A” zones. “A”
zones are defied as “special flood hazard areas inundated by the 100 year flood.”
Floodplains encompass the eastern border of Milton along the Blackwater River.
This location makes them vulnerable to development effects which could impede their
City of Milton
natural functions, minimize public and private losses due to floods, and promote public
4. Minerals
The predominant mineral resources in the Milton region are sand, gravel, and
petroleum. The “Florida Mining Atlas” identifies only one active mine the immediate
Milton area. This is the Gault City Pit, a sand pit located near the south border of the
Petroleum is produced from the Jay Oil Field in Northwest Santa Rosa County.
Although, not produced within the City of Milton, this resource is mentioned here due to
Soil Erosion Problems
The U.S.D.A Soil Conservation Service has not identified areas experiencing soil
erosion problems in the City of Milton. The “1980 Santa Rosa County Soil Survey”,
together with the “1987 Soil Survey Legend,” identifies specific soils that are highly
erodible. This information is useful in formulating development plans and should be
referred to prior to any construction activity.
6. Fisheries
The City of Milton is bordered by the lower river segment of the Blackwater River
system. Characteristic fish of this area are the Chain pickerel, Largemouth bass,
Warmouth, Bluegill, Readear sunfish, Coastal shiner, and Brook silverside. Overall fish
City of Milton
production in this river segment is less than found in other warmwater streams as is
indicated by the low numbers of largemouth bass and bream. Table V-1 lists the fish
species known to be in the Blackwater River system.
Only one known endangered fish species inhabits the Blackwater River system.
This fish, the Blackmouth Shiner, is the rarest freshwater fish in Florida and is endemic
to the Blackwater River and, possibly, the Yellow River.
City of Milton TABLE V-1
Fish Species of the Blackwater River System
City of Milton TABLE V-1 (CONTINUED) City of Milton TABLE V-1 (CONTINUED) 7. Vegetative Communities
The City of Milton has developed within the vegetative community known as
Longleaf Pine – Turkey Oak Hills. The dominant natural plant species of this
community is the longleaf pine (Pinus palustris). Next in abundance is the turkey oak
(Quercus leavis). Table V-2 lists plant species that are characteristic of the community.
Note that the majority of land area within the City of Milton is developed; therefore,
much of the naturally occurring vegetative community has been altered. Areas of
unaltered vegetation are found along the Blackwater River, in local conservation areas,
City of Milton 8. Wildlife
Animals are commonly referred to in terms of the vegetative communities to
which they have adapted. Wildlife that is characteristic of the Longleaf Pine-Turkey Oak
Hills vegetative community are listed in Table V-2. Development within vegetative
communities will drive out all but the most adaptive forms of wildlife. Wildlife, that can
be found within the City of Milton include the fox squirrel, the fence lizard, the scrub jay,
9. Marine Habitats
There are no marine habitats within the City of Milton.
10. Endangered
Recognizing the value of the diversity of Florida’s fish, wildlife and plants, the
State of Florida adopted the “Florida Endangered Species Act of 1977” and the
“Preservation of Native Flora of Florida Act.” These acts prohibit the destruction or
harm of any species identified by the Florida Game and Fresh Water Fish Commission,
the Department of Natural Resources, the Department of Agriculture, or the U.S.
Department of the Interior as being endangered or threatened.
Endangered species are those species which are so few in number that they are
in imminent danger of extinction. Threatened species are those species that are likely
to become endangered in the foreseeable future. A third designation, Species of
Special Concern, applies to those species that are in danger of becoming threatened,
already meet certain criteria for designation as a threatened species, have not
City of Milton
SPECIES CHARACTERISTIC OF, OR KNOWN TO OCCUR IN,
City of Milton
Sources: "26 Ecological Communities of Florida," U.S.D.A., Soil Conservation Service, 1985
"201 Facilities Plan for South Escambia and Santa Rosa Counties," Flood and Associates, Inc.; Consoer, Townsend and Associates; Baskerville-Donovan Engineers, Inc.; Tom Justice and Associates Consulting Engineers; and Theta Analysis Inc., Environmental Consultants, 1978 Lt. Ken Watson, Florida Game and Fresh Water Fish Commission, Interview 6/11/87. City of Milton
sufficiently recovered from a past population depletion, or whose decline would result in
significant adverse affects to other species. In addition to these designations, the
Florida Department of Agriculture includes a Commercially Exploited category and the
U.S. Fish and Wildlife Service includes a series of designations for those species under
review for federal listing. Table V-3 identifies the threatened and endangered species
that are characteristic of, or known to occur in the Longleaf Pine – Turkey Oak Hills
11. Wetlands
No wetlands are identified on the USGS 7.5 Minute Quadrangle Maps within the
Commercial, Recreation and Conservation Uses
There are few direct commercial uses of natural resources in the City of Milton.
Groundwater is used for commercial purposes and a sand pit is mined outside the City
limits. In addition, natural resources provide indirect commercial uses. This is
especially true along the Blackwater River where development and redevelopment
efforts are centered around the aesthetic value of this resource.
Recreation uses of natural resources in Milton center around its water resources.
The Adrian Carpenter’s Park is located on the Blackwater River and provides access for
boating and fishing. Riverwalk Park, located in downtown Milton, is a linear riverfront
park. This facility is currently being extended through the use of state grant funds. City of Milton
ENDANGERED AND THREATENED PLANTS AND ANIMALS - CHARACTERISTIC OF, OR KNOWN TO OCCUR IN,
E - ENDANGEREDT - THREATENEDSSC - SPECIES OF SPECIAL CONCERNC - COMMERCIALLY EXPLOITED
NDER REVIEW FOR LISTING, BUT SUBSTANTIAL EVIDENCE OF BIOLOGICAL VULNERABILITY AND/OR THREAT IS LA
SOURCES: "26 ECOLOGICAL COMMUNITIES OF FLORIDA, " U.S.D.A., SOIL CONSERVATION SERVICE, 1985;
LT. KEN WATSON, FLORIDA GAME AND FRESHWATER FISH COMMISSION, INTERVIEW 6/11/87;"OFFICIAL LIST OF ENDANGERED AND POTENTIALLY ENDANGERED FAUNA AND FLORA IN FLORIDA,"FLORIDA GAME AND FRESHWATER FISH COMMISSION, 1985;"ENDANGERED AND THREATENED WILDLIFE AND PLANTS," DEPARTMENT OF THE INTERIOR,U.S. FISH AND WILDLIFE SERVICE, 1986. City of Milton
Land areas within the City limits currently designated for conservation use
include the following two conservation corridors. The Rails to Trails corridor is part of a
state-wide program converting abandoned rail corridors to conservation or passive
recreation use. The Collins Mill Creek corridor is an undeveloped utility corridor linking
Locklin Lake with the Blackwater River along Collins Mill Creek. Additionally, the
publicly-owned land located south of Collins Mill Creek adjacent to the Blackwater River
and the parcel located just south of the City Sewage Treatment Plant adjacent to the
River, provides a total of approximately 24 undeveloped acres of conservation land
within the City of Milton. Conservation areas are further protected through the various
federal, state and local regulatory programs. These programs are listed in Table V-4.
In surrounding Santa Rosa County, substantial conservation areas are located in
the immediate vicinity of Milton. They include the Blackwater River State Forest and
Wildlife Management Areas, and the Eglin Wildlife Management Area. Additionally, the
Gulf Island National Seashore (Naval Live Oaks) is located nearby in southern Santa
C. Pollution Problems
Milton’s most significant pollution problem is the water quality of Locklin Lake.
Problems with the lake include over-nutrification and siltation stemming from non-point
pollution sources. Improved stormwater management is needed to restore and protect
petroleum storage tanks are a threat to the potable water
supply of Milton. An underground storage tank with a leak as small as a quarter of an
City of Milton
inch can leak a gallon an hour, depending on soil conditions. One gallon of gasoline
can contaminate one million gallons of water to an undrinkable level. The Department
of Environmental Regulation (DER) has identified 13 leaking underground petroleum
A potential hazardous waste problem exists with the generation of small
quantities of wastes by various businesses within the City. Examples of these wastes
include waste oil, dry cleaning filters and photo processing chemicals. The Water
Quality Assurance Act of 1983 requires each county to identify potential small quantity
hazardous waste generators within their jurisdiction and to annually verify the
hazardous waste management practices of at least 20-percent of those identified. The
West Florida Regional Planning Council is currently performing this assessment for
City of Milton
DER - Rules 17-3, 17-4, 17-12, and 17-45 F.A.C.
DNR - manage and protect state lands and control beach erosion
Research, and Sanctuaries Act of 1972; Federal Fish and Wildlife Coordination Act of 1958; National Environmental Policy Act of 1969; Title 32, Section 209.320-209.330 C.F.R.
Section 380.06 F.S. Rules 9B- To facilitate orderly and well-
procedure for developments that would impact more than one county
City of Milton
To plan for and regulate solid All resource and recovery
and hazardous waste disposal management facilitiesactivities
Chapters 17-3, 17-4, & 17-22 quality of water in the stateF.A.C.
Chapter 403 F.S.; Rules 17-3, To protect and conserve the
17-4, 17-6 F.A.C. & Chapters quality of water in the state
including stormwater, industrial, and domestic waste discharge.
To ensure proper utilization of Construction, alteration or
and excess drainage, preserve or reservoir worknatural resources, prevent harm to water resources
DER - Section 373.306 F.S.; Control, conserve and protect Certain groundwater,
groundwater resources of the monitoring, and injection state
Law 92-500 and Section 401, quality of waters in the U.S. City of Milton
HRS - Section 381-272 F.S.; HRS - To supervise and
cooperate with municipal and sewage disposal facilities county officials in enforcing the with less than 5000 GPD state health laws, rules, and
regulations promulgated by HRS and to ensure consistency with local health regulations and ordinances.
Section 403.087, F.S.; Rules To protect and enhance the air Construction, modifications, 17-2 & 17.4 F.A.C.
expansion, and operation of any facility or development that will emit pollutants into the air
waste is transported, disposed facilitiesof, stored, and treated in a manner adequate to protect human health, safety, and welfare of the environment
DACS & USFWS - Section581 F.S.; EndangeredSpecies Act of 1973
City of Milton
FEMA Flood Insurance Act of To regulate development in
Protection Act of 1973; Milton - safety and minimize damage
encourage development of oil oil and gas development
Ch. 211, part II, F.S.; Ch. 378, To provide a mechanism for
the reclamation and restoration mining of solid materials for of lands disturbed by mining by commercial usetaxing mine owners to create a land reclamation trust fund
DACS - Rule 5I-2 F.A.C. Ch. 75-22, Sec. 8,Laws of FLCh. 590 F.S. DOF - Rule 17-5 F.A.C.
Q10, 16Q-11, 16Q-15, 16Q-16, 16Q-18, 16Q-20, 16Q-21
City of Milton
To regulate underground and Facilities which receive,
above ground pollutant storage store, or use petroleum facilities to protect ground and products in excess of 1,000 surface water resources from gallons in any one calendar contamination
month or more than 10,000 gallons in any calendar year
development which include the City of Miltonprotection of natural resources
sedimentation, and runoff from specifically exempteddevelopment
DER - Department of Environmental RegulationDNR - Department of Natural ResourcesCOE - U.S. Army Corps of EngineersDCA - Department of Community AffairsDOF - Division of ForestryDACS - Department of Agriculture and Consumer ServiceFGFWFC - Florida Game and Freshwater Fish CommissionUSFS - U.S. Fish and Wildlife ServiceFEMA - Federal Emergency Management AgencyNWFWMD - Northwest Florida Water Management District
"State of Florida Regulatory and Review Procedures for Land Development," Department of Environmental Regulation, November 1984. "Laws and Regulations Affecting Endangered and Potentially Endangered Species in Florida", Florida Game and Freshwater Fish Commission, July 1985. Florida Administrative Code Rules
City of Milton Potential for Conservation, Use and Protection
A basic framework for the conservation, use and protection of natural resources
is provided by the system of existing regulatory programs established by the State,
Federal and local agencies for this purpose. Table V-4 identifies in general terms the
type of program, the administrative agency, the statutory authority, the purpose of the
program and the types of activities regulated. The conservation of water sources is
further promoted through adherence to the Water Conservation Act of 1982. This Act
requires specific water conservation practices to be utilized in all new buildings
constructed after September 1, 1983. Additionally, the City has plans to adopt
procedures for emergency conservation of water resources in accordance with the
plans of the Northwest Florida Water Management District.
The City is a participant of the Pensacola Bay Surface Water Improvement and
Management (SWIM) Program administered by the Northwest Florida Water
Management District. This project involves data collection and analysis on a basin-wide
basis. The City will consider the conclusions and any recommendations contained in
the SWIM work products in development of their revised Land Development
In order to ensure intergovernmental coordination and protection among adjacent
municipalities, the City actively participates on the Interlocal Action Committee which
provides representation from all jurisdictions in Santa Rosa County, including Eglin
A.F.B., State Forest and Wildlife Management Areas, local governments, etc. This
committee will provide a forum to consider developments having impacts on more than
City of Milton
one jurisdiction, including such topics as the protection of unique vegetative
The Blackwater River, as an Outstanding Florida Water, is designated as a
natural reservation. Protection of this resource will provide protection for the one known
endangered fish species which inhabits the Blackwater River System, the Blackmouth
Shiner. In order to protect the water quality of the Blackwater River and other water
resources, the City will ensure the availability of sanitary sewer services in currently
unsewered areas with soil conditions that are severely limited for septic tank absorption
fields (as defined in the Soil Conservation Service, Soil Survey for Santa Rosa County)
prior to authorizing new development and/or redevelopment activity. Furthermore, the
City will require conversions from existing septic tank use to sanitary sewer facilities
within 150 feet of the Blackwater River. In areas with soil conditions that are acceptable
for septic tank absorption fields, the City will allow septic tank use provided that 150 foot
setbacks from the Blackwater River are met.
In order to protect the Blackwater River from encroachment by development
activity, the revised Land Development Regulations will require at a minimum that the
existing development setback requirements from the Blackwater River are met or
exceeded. These setback standards are contained in the existing Zoning Ordinance.
Areas of concern that will require additional effort by the City include stormwater
management, hazardous waste disposal, and tree protection. Stormwater management
issues are currently being addressed by the City, both in terms of quantity and water
quality, through the development of a Comprehensive Stormwater Development Plan.
This study is expected to be completed in October 1990. The City is committed to
City of Milton
implementing the Plan’s recommendations to ensure the protection of the City’s surface
waters from non-point source pollution. Additionally, the City will require the use of Best
Management Practices (BMP’s) during construction activity to protect sensitive soils
from erosion and prevent sedimentation of surface water bodies. Techniques that can
be used include silt fences, turbidity curtains, hay bales placed on the site periphery,
and so on. Contingencies for the transfer and disposal of hazardous wastes need to be
developed to protect human health and natural resources. The third area of concern,
tree protection, is currently being considered by the City. A Tree Protection and
Landscape Ordinance will be developed in conjunction with revised Land Development
Regulations, and will include requirements such as providing vegetative buffer zones,
where possible, between conflicting land uses and restrictions on tree removal. These
ordinances will serve to buffer the impacts of noise and lights, in addition to providing for
wildlife habitat, preserving native vegetative communities and maintaining air quality.
Current and Projected Water Needs and Sources Potable Water Users
The City of Milton is the owner and operator of the potable water supply for the
City. Within the systems’ franchise area, there are presently about 4,280 water system
customers which on the average consume approximately 51.0 million gallons per month
or 1.7 million gallons per day (mgd). The design capacity of the system is 4.2 mgd.
The water source for the City is the Sand and Gravel Aquifer. The location of potable
water wells are indicated on the Potable Water Well Locations Map. Water quality
City of Milton
information related to the Sand and Gravel Aquifer is contained in the Natural
Groundwater Aquifer Recharge Sub-Element.
Table D-4 of the Potable Water Sub-Element of this plan provides the following
average water demand projections for the City of Milton during the planning timeframe:
1990 – 848,000 gallons per day; 1995 – 910,000 gallons per day; 2000 – 959,000
gallons per day. Additionally, demand projections for unincorporated areas are as
follows: 1990 – 798,000 gpd; 1995 – 856,000 gpd; 2000 – 902,000 gpd. These figures
indicate capacity surpluses throughout the planning period, therefore, the provision of
potable water is not expected to be a problem for the City.
2. Industrial
Data provided by the Northwest Florida Water Management District indicates that
no Consumptive Use Permits for industrial water uses have been issued within the City
of Milton. Based on historical trends and conditions depicted on the Future Land Use
Map, it is not anticipated that future industrial wastewater users requiring a consumptive