07-17-21 Final Agenda
City of Atlantic Beach
Agenda
Town Hall Meeting
Saturday, July 17, 2021 - 10:00 a.m.
Commission Chamber
Page(s)
CALL TO ORDER
1 TOPIC FOR DISCUSSION AND PUBLIC COMMENTS
1A.
COAB Adaptation Plan
Adaptation Plan
3 - 41
2 PUBLIC COMMENT - OPEN TOPIC
ADJOURNMENT
Any person wishing to speak to the City Commission on any matter at this meeting should submit a
request to the Recording Clerk. For your convenience, forms for this purpose are available at the
entrance to the Commission Chamber.
In accordance with the Americans with Disabilities Act and Section 286.26, Florida Statutes, persons
with disabilities needing special accommodation to participate in this meeting should contact the City
Clerk’s Office by 5:00 PM, the Wednesday prior to the meeting.
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Phase 1 Adaptation Plan
Planning & Community Development Department
800 Seminole Road
Atlantic Beach, FL 32233
June 14, 2021
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Phase 1 Adaptation Plan
City of Atlantic Beach
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Table of Contents
Executive Summary 1
Background 1-1
1.1 Location and History 1-1
1.2 Sea-Level Rise (SLR) Trend 1-1
1.3 Community Resilience 1-3
1.4 General Adaptation Planning 1-3
1.4.1 Protection 1-3
1.4.2 Accommodation 1-3
1.4.3 Strategic Relocation 1-3
1.4.4 Avoidance 1-3
1.4.5 Procedural 1-4
Legal Context 2-1
2.1 Comprehensive Planning 2-1
2.2 Litigation Risk 2-2
Coastal Vulnerability 3-1
3.1 Exposure 3-1
3.2 Sensitivity 3-2
3.3 Ranking 3-2
3.4 Public Input 3-8
3.5 Local Priorities 3-8
Adaptation Strategies 4-1
4.1 Range of Adaptation Strategies 4-1
4.1.1 Reducing Exposure 4-1
4.1.2 Reducing Sensitivity 4-1
4.1.3 Increasing Adaptive Capacity 4-2
4.2 Focus Areas for Adaptation 4-4
4.2.1 Citywide 4-4
4.2.2 Areas West of Mayport Road 4-4
4.2.3 Major Drainageways 4-5
4.2.4 Roadways 4-6
4.2.5 Critical Utility Infrastructure 4-6
4.2.6 Critical Public Facilities 4-6
4.3 Current Strategies and Existing Regulations 4-7
4.3.1 Existing Plans 4-7
4.3.2 Existing Development Regulations 4-7
4.3.3 Current Initiatives 4-8
4.4 Recommended Strategies for Focus Areas 4-9
4.4.1 Citywide 4-9
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4.4.2 Areas West of Mayport Road 4-11
4.4.3 Major Drainageways 4-12
4.4.4 Roadways 4-12
4.4.5 Critical Utility Infrastructure 4-13
4.4.6 Critical Public Facilities 4-13
Recommended Actions 5-1
5.1 Summary of Recommended Actions and Schedule 5-1
5.2 Monitoring and Evaluation 5-3
References 6-1
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Appendices
Appendix A – Inundation Scenarios and Maps
Appendix B – Public Workshop Comments
List of Tables
Table 3-1 – Exposure of Property by Scenario ........................................................................ 3-1
Table 3-2 – Degree of Exposure of Critical Facilities ............................................................... 3-3
Table 3-3 – Degree of Exposure of Major Roadway Segments ............................................... 3-4
Table 3-4 – Ranking of Exposed Critical Facilities & Infrastructure.......................................... 3-5
Table 3-5 – Ranking of Exposed Roadway Segments ............................................................. 3-6
Table 4-1 – Comparison of Exposure Reduction Strategies .................................................... 4-1
Table 4-2 – Comparison of Sensitivity Reduction Strategies ................................................... 4-2
Table 5-1 – Summary of Recommendations and Implementation Schedule ............................ 5-1
Table 5-2 – Areas West of Mayport Road Recommended Actions & Schedule ....................... 5-2
Table 5-3 – Major Drainageways Recommended Actions & Schedule .................................... 5-2
Table 5-4 – Roadways Recommended Actions & Schedule .................................................... 5-2
Table 5-5 – Critical Utility Infrastructure .................................................................................. 5-3
Table 5-6 – Critical Public Facilities ......................................................................................... 5-3
List of Figures
Figure 1-1 – Global Change in Sea Levels .............................................................................. 1-2
Figure 1-2 – Sea Level Trends at Mayport Bar Pilots Dock ..................................................... 1-2
Figure 3-1 – Critical Roadway Segment Ranking .................................................................... 3-7
Figure 4-1 – 2044 Nuisance and 100-Year Storm Flooding West of Mayport Road ................. 4-5
Figure 4-2 – Major Drainageways ........................................................................................... 4-6
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Phase 1 Adaptation Plan
City of Atlantic Beach
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Executive Summary
Coastal communities in Florida are already experiencing the effects of sea-level rise (SLR),
stronger coastal storms, and more intense precipitation events. As sea levels are projected to rise
at an accelerating rate in the coming years and decades, increases in flood frequency and flood
depth in coastal areas are expected, which could lead to increased flood insurance costs, market
value declines, and property damage. As a low-lying coastal community bordering the Atlantic
Ocean on the east and the Intracoastal Waterway to the west, Atlantic Beach is especially
vulnerable to storm surge, rainfall flooding, nuisance flooding, and SLR.
In 2019, Atlantic Beach completed a coastal vulnerability assessment that was updated this year
to include the City’s utility service area north of the City within City of Jacksonville city limits. In
this assessment, projected SLR, nuisance flooding, and 100-year recurrence interval flood risk
areas were modeled for 25-, 50-, and 100-year future scenarios. These models were then used
to assess potential risks to property, structures, and infrastructure and to identify focus areas
within the City. A vulnerability assessment such as this is a key step in the adaptation planning
process as the findings are used to inform the strategies discussed in this Plan. Further, a
vulnerability assessment fulfills a statutory requirement for designating Adaptation Action Areas
(AAAs) and forms the scientific basis for complying with the “Peril of Flood” statutory requirement.
The next step in the process is to complete an adaptation plan.
An adaptation plan identifies goals and strategies to best minimize risks and establishes a process
to implement those strategies. Becoming a more resilient community is not a one-time process of
planning and implementing. Rather, it is a continual process that will forever be a part of the City’s
future. According to the National Oceanic and Atmospheric Administration (NOAA), the ultimate
goal of an adaptation plan is to create coastal communities that are organized to take action, have
the tools to take action, and take action to plan for and adapt to the impacts of SLR and climate
change. This Phase 1 Adaptation Plan is the result of the first iteration of the City’s adaptation
planning process. This Plan contains general recommendations for adaptation strategies to be
applied to exposed areas of the City as well as a recommended implementation schedule.
Subsequent iterations of this living document will be completed after solicitation of public input
and will contain additional objective data, more specific strategies, and updated implementation
schedules as appropriate.
This project was made possible by a Resiliency Planning Grant provided by the Florida
Department of Environmental Protection’s Resilient Coastlines program. Special thanks to
Whitney Grey and Angel Baratta for their assistance. The following City of A tlantic Beach staff
provided content along with technical support from Jones Edmunds & Associates, Inc.:
Brian Broedell; AICP Candidate, Principal Planner
Amanda Askew; AICP, Director of Planning and Community Development
Steve Swann; PE, City Engineer
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Background
1.1 Location and History
The City of Atlantic Beach is one of three small coastal communities in northeast Florida that
make up the Beaches of Jacksonville. The City is approximately 4 square miles in size with a
population of around 14,000 and is located between the Atlantic Ocean on the east and the San
Pablo Creek/Atlantic Intracoastal Waterway (AICW) on the west. Atlantic Beach is a near fully-
developed municipality where the predominant land use is residential consisting of stable and
well-established neighborhoods.
As a low-lying coastal community, Atlantic Beach is especially vulnerable to flood risks as
experienced during Hurricane Irma, Hurricane Matthew, and the November 2015 Nor’easter.
Additionally, most of the City was developed before modern stormwater regulations for flood
protection, which has contributed to flooding issues in the City. Understanding these existing and
potential hazards, the City, with the assistance from the Florida Department of Environmental
Protection (FDEP) Resilient Coastline program, completed a vulnerability assessment in 2019,
which will inform this Adaptation Plan.
1.2 Sea-Level Rise (SLR) Trend
Scientists from around the world have been studying climate change and the resulting SLR
impacts for decades. Today, multiple sources of data are available to predict realistic scenarios
of future sea levels and their impacts on coastal communities. These projections are generally
based on global climate models (GCMs) that use assumptions regarding future human behavior
with respect to greenhouse gas emissions. On average globally, the sea level has risen by
approximately 8 inches since scientific recordkeeping began in 1880. This rate has increased in
recent decades to a little more than an inch per decade. Global average sea level has risen by
approximately 7 to 8 inches (16 to 21 cm) since 1900, with around 3 inches occurring since 1993.
In addition to the global average SLR, local SLR – sometimes called relative SLR – happens at
different rates in different places. Local SLR is affected by the global SLR, but also by local land
motions and the effects of tides, currents, and winds.
Figure 1-1 shows an increase in the global average sea level since 1880 in inches. The blue line,
which shows tide-gauge data, becomes steeper in more recent decades. This indicates an
increasing rate of change. The surrounding light-blue shaded area shows upper and lower 95-
percent confidence intervals, and the orange line shows sea level as measured by satellites for
comparison from 1993 through 2016 (US Global Change Research Program, 2017). As sea levels
have risen, the incidence of nuisance flooding or sunny day flooding during spring-tide events at
certain times of the year have increased five- to tenfold since the 1960s in several US coastal
cities, and rates of increase at over 25 long-term gage locations on the Atlantic and Gulf coasts
are accelerating. In Atlantic Beach, nuisance flooding resulting in overtopped roads is occurring
now in areas of Atlantic Beach such as Dutton Island Road and West Plaza. The closest NOAA
primary tidal gauge to Atlantic Beach is at the Mayport Bar Pilot’s Dock (NOAA tide gauge No.
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Phase 1 Adaptation Plan
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8720218) near the ferry slip. Figure 1-2 depicts the relative change in sea level at the Mayport
Bar Pilot’s Dock over the 90-year history of this station. The current local rate of sea-level change
is approximately 1 inch every decade (https://tidesandcurrents.noaa.gov/sltrends/).
Although the rate of change in SLR is uncertain, there is no uncertainty that sea level is rising in
our area. As sea levels rise, incidents of nuisance flooding will increase, and flooding due to
severe weather events will affect larger areas of the City. To aid in planning and assessing the
City’s potential vulnerability under future scenarios with higher sea levels, the City conducted a
rigorous technical analysis to determine what those effects may be and how they will impact
residents and critical infrastructure.
Figure 1-1 – Global Change in Sea Levels
Figure 1-2 – Sea Level Trends at Mayport Bar Pilots Dock
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1.3 Community Resilience
Resiliency is the ability to collaboratively prepare for, prevent, absorb, recover from, and more
equitably adapt for damage from chronic stressors (i.e., aging infrastructure and SLR) and
adverse events (i.e., hurricanes, coastal storms, and flooding). Resiliency in coastal communities
such as Atlantic Beach is especially important due to high population densities and coastal
hazards. A community that is informed and prepared will be more resilient and have a greater
opportunity to rebound quickly after an adverse event.
1.4 General Adaptation Planning
An adaptation plan is a sound and sensible method for Florida’s coastal communities to develop
and enhance their strategies for protecting coastal populations and infrastructure. An adaptation
plan identifies goals and strategies to best minimize risks and establishes a process to implement
those strategies. According to NOAA, the ultimate goal of an adaptation plan is to create coastal
communities that are organized to take action, have the tools to take action, and take action to
plan for and adapt to the impacts of SLR and climate change. A community can select from a
wide range of strategies in the following categories: Protection, Accommodation, Strategic
Relocation, Avoidance, and Procedural.
1.4.1 Protection
Protection strategies involve both hard and soft (gray or green) structurally defensive measures
to mitigate impacts of current and future flooding to maintain existing development. Examples
such as seawalls, revetments, and levees are examples of hard or gray protection strategies,
while examples such as beach renourishment and living shorelines are examples of soft or green
strategies.
1.4.2 Accommodation
Accommodation strategies do not act as a barrier to inundation but rather alter the design,
construction, and use of structures to handle periodic flooding. Examples include elevating
structures above flood stage and stormwater retrofits that improve drainage or use natural
features to soak up or store water and runoff (i.e., green infrastructure).
1.4.3 Strategic Relocation
Strategic relocation strategies consist of relocating existing development to safer areas through
voluntary or incentivized measures. Examples include redevelopment regulations, home buyout
programs, and rolling easements.
1.4.4 Avoidance
Avoidance strategies involve guiding new development away from vulnerable areas to safer, more
appropriate areas. Such measures include transfer of development rights, land conservation, and
increased setbacks/buffers.
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1.4.5 Procedural
Procedural strategies aim to generate vulnerability and adaptation information, increase
awareness of vulnerabilities and adaptation options, or incorporate such information into plans or
policies. Examples include vulnerability assessments, community outreach and education
activities, new comprehensive plan language addressing SLR, and real estate disclosures.
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Legal Context
2.1 Comprehensive Planning
Florida Statutes require every municipality in Florida to maintain a comprehensive plan, which
shall provide the principles, guidelines, standards and strategies for the orderly and balanced
future economic, social, physical, environmental, and fiscal development of the area… (Fla.
Stat. 163.3177(1)). Comprehensive plans contain different elements, some of which are required
by the state including a Future Land Use Element and a Conservation and Coastal Management
Element.
The Future Land Use Element, according to Florida Statute, shall establish the long-term end
toward which land use programs and activities are ultimately directed. This and several additional
statutes provide a solid legal basis for adding to or revising the Goals, Objectives, and Policies of
the Future Land Use Element for adaptation purposes. For example, statutory provisions
discouraging urban sprawl address protecting and conserving natural resources such as
wetlands, beaches, and floodplains.
The Conservation and Coastal Management Element is required by Florida Statute to address
SLR. Senate Bill (SB) 1094, enacted in 2015, requires coastal localities to include a
redevelopment component within this element and specified that the principles, strategies, and
engineering solutions described in the redevelopment component must address flood risk arising
from several sources, including SLR. The redevelopment component is the logical place to include
guidelines and restrictions that do not take effect until they are triggered by an event, such as
flooding of a particular depth. SB 1094’s requirements provide communities with a good reason
to adopt such measures and also with a potent tool for inoculating restrictions on development
against takings claims.
Comprehensive plans must be informed by analysis of relevant and appropriate data, which must
be gathered from professionally accepted sources or generated by the local government so long
as the methodologies for gathering data are professionally accepted. Florida law also requires
that changes to the comprehensive plan must be supported by analysis and that such analysis
must reflect reasonable and proportionate applications of the data cited. Scientific certainty is not
a required feature of supporting data or their analysis. This flexibility means that the City’s Coastal
Vulnerability Assessment will not operate as a floor or ceiling for planning purposes. If the City
refers to the Vulnerability Assessment as supporting particular language or parameters, the City
would only need to articulate a logical link between the Assessment and the action.
Planning timeframes also changed under SB 1094 in 2015 by allowing localities to incorporate
additional planning periods for specific components or projects rather than be limited to the 5- and
10-year periods previously required. This change has vital implications for plans involving assets
or facilities whose useful life exceeds 10 years and whose location makes them vulnerable to
SLR. Local governments can now ensure SLR projections inform their plans for such
infrastructure designs, planning restrictions, and capital investments. The University of Florida’s
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Conservation Clinic drafted model language to ensure adaptation planning employs an
appropriate timeframe:
Policy 1.2.1: [Planning Horizon] Utilize a (__) year planning horizon when considering the
adoption of any protection, accommodation, and managed retreat strategy within the
City/County.
The 2011 Comprehensive Planning Act authorized localities to designate Adaptation Action Areas
(AAAs), which are locations that experience coastal flooding due to extreme high tides and storm
surge and that are vulnerable to the related impacts of rising sea levels. This designation is to
prioritize funding and planning in these vulnerable areas.
2.2 Litigation Risk
As SLR shifts the operations of local government, the result is potentially a double-edged sword
situation regarding litigation risk. If local governments act to address SLR, they could be sued by
property owners claiming injury from limitations on the property’s use or adverse effects to
property values. On the other hand, local governments could also be sued for failing to address
SLR.
Takings Law protects private-property owners from government actions that fail to provide them
with just compensation for the condemnation or appropriation of their real property or for
regulations that deprive their real property of all or almost all of its use and economic value. In
Florida, two sources of Takings Law are available: the Fifth Amendment to the US Constitution
and the Bert Harris Private Property Rights Protection Act. Takings Law can be complex and
unpredictable in its application to particular cases and the source of highly fact-specific legal
disputes.
Local governments will face challenges legally when implementing particular adaptation
strategies. However, many state and local governments already use a multitude of strategies to
manage development in their communities. By using existing strategies in new ways,
governments may be able to minimize the complexities of adaptation.
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Coastal Vulnerability
Given the location of the City of Atlantic Beach between the AICW and the Atlantic Ocean and its
relatively low elevation, certain areas of the City are particularly vulnerable to SLR. The City of
Atlantic Beach Coastal Vulnerability Assessment was completed in June 2019 and updated in
April 2021 to include City-owned water and wastewater infrastructure outside the City limits. The
Vulnerability Assessment identified areas of the City that may be subject to increased flooding
due to SLR.
The Coastal Vulnerability Assessment also identified assets such as buildings, residences, and
critical infrastructure in these areas that could be impacted. The following sections of this report
describe the exposure of these assets to SLR as well as their sensitivity to this exposure.
3.1 Exposure
For coastal flooding, exposure is defined as the impact to an asset from extreme coastal storm
flooding and nuisance flooding using the SLR scenarios identified in the Coastal Vulnerability
Assessment. Extreme coastal storm flooding in the context of this analysis are 100-year storm
events caused by a temporary increase in water levels due to a combination of high tides, storm
surge, waves, and rainfall. Nuisance flooding is defined as water levels expected at least once
per year that are 1 foot greater than the mean higher high-water level. Appendix A to this Plan
provides maps depicting exposure under these conditions for current and future scenarios.
The coastal flooding analysis completed for the Coastal Vulnerability Assessment included
flooding from storm surge as well as rain-induced flooding for predicted sea levels in 25, 50, and
100 years. The results of this analysis identified the potential exposure of property and critical
infrastructure within the study area to flooding during a 100-year storm event. Table 3-1 provides
the results of the exposure analysis for the 25- and 50-year scenarios.
Table 3-1 – Exposure of Property by Scenario
2044 Scenarios
Number of Parcels
Impacted
(% of All Parcels)
Number of Buildings
on Impacted Parcels
Land Value of
Impacted Parcels
Building Value of
Impacted Parcels
Taxable Value of
Impacted Parcels
SLR Only 262 (4%) 391 $38,694,113 $87,283,163 $106,064,775
Nuisance Flooding 249 (4%) 372 $33,564,377 $90,415,917 $111,555,621
100-Year Flood 1,035 (17%) 1,085 $100,693,496 $191,438,845 $233,842,120
2069 Scenarios
Number of Parcels
Impacted (% of All
Parcels)
Number of Buildings
on Impacted Parcels
Land Value of
Impacted Parcels
Building Value of
Impacted Parcels
Taxable Value of
Impacted Parcels
SLR Only 391 (6%) 509 $48,601,525 $108,385,260 $134,427,495
Nuisance Flooding 797 (13%) 910 $82,899,477 $191,359,836 $241,442,753
100-Year Flood 2,191 (35%) 2,248 $246,920,675 $424,598,402 $576,235,059
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3.2 Sensitivity
Although the assets discussed above will potentially be exposed to flooding, some will be more
sensitive to exposure than others. In this context, sensitivity is how assets identified in the
exposure analysis respond or function during and after a flood impact. For example, a sewer
pump station can be sensitive to flood waters if the electrical components become inundated,
while a roadway that is flooded is less likely to suffer damage and is therefore less sensitive.
3.3 Ranking
The Coastal Vulnerability Assessment mapped critical assets within the City as well as water and
wastewater assets that the City of Atlantic Beach owns and operates, which are outside the City
limits. Tables 3-2 and 3-3 were developed from this mapping data and depict the exposure of
each asset to various current and future flooding conditions.
The degree of exposure of each asset was then combined with a qualitative assessment of the
sensitivity and consequence of flooding of each exposed asset based on considerations unique
to each asset category. The resulting matrix and ranking of critical assets are depicted in
Tables 3-4 and 3-5. Figure 3-2 graphically depicts the ranking of each critical roadway section
identified in Table 3-5.
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Table 3-2 – Degree of Exposure of Critical Facilities
FEMA
100-Yr
10-Year 25-Year 100-Year Current 2044 2069 2044 2069
Water Plant No. 1 469 11th Street N N N N N N N Y
Water Plant No. 2 2301 Mayport Rd N N N N N N N N
Water Plant No. 3 902 Assisi Ln N N N N N N N N
Water Plant No. 4 2848 Mayport Rd N N N Y N N Y Y
Wastewater Plant 1100 Sandpiper LN N N N N N N N N
Public Works Facility 1200 Sandpiper LN N N N N N N N N
Potable Water Well 2848 Mayport Rd N N N Y N Y Y Y
Potable Water Well 902 Assisi Ln N N N N N N N Y
Potable Water Well 2848 Mayport Rd N N N Y N Y Y Y
Potable Water Well 902 Assisi Ln N N N N N N N N
Potable Water Well 2301 Mayport Rd N N N N N N N N
Potable Water Well 2301 Mayport Rd N N N N N N N N
Potable Water Well 1100 Sandpiper LN N N N N N N N N
Potable Water Well 469 11th Street N N N N N Y N Y
Potable Water Well 1200 Sandpiper LN N N N N N N N N
Life Guard Station 1 Ahern St N N N N N N N N
City Hall 800 Seminole Rd N Y Y Y Y Y Y Y
Commission Chambers 800 Seminole Rd N Y Y Y Y Y Y Y
Police & Fire Department 850 Seminole Rd N Y Y Y Y Y Y Y
Adele Grage Community Center 716 Ocean Bv N N N N N N N N
Jordan Park Community Center 1671 Francis Av N N N N N N N N
Gail Baker Community Center 2072 George St N N N N Y Y N N
Public Utility Office 902 Assisi Ln N N N N N N N N
Atlantic Beach Elementary 298 Sherry Dr N N Y N Y Y N Y
Pump/Lift Station 425 11th St Y Y Y Y Y Y Y Y
Pump/Lift Station 1082 Ticonderoga St N N N N N N N Y
Pump/Lift Station 571 Coastal Oak Ln N N N N N N N N
Pump/Lift Station 302 Camelia St N N Y Y Y Y Y Y
Pump/Lift Station 858 Cavalla Rd Y Y Y Y Y Y Y Y
Pump/Lift Station 2595 America's Cup Cr E N N Y Y Y Y Y Y
Pump/Lift Station 1030 Mimosa Cove Ct E N Y Y Y Y Y Y Y
Pump/Lift Station 458 David St N N Y N Y Y Y Y
Pump/Lift Station 69 Donner Rd N Y Y N Y Y N N
Pump/Lift Station 2200 Fairways Villa Dr N N N N N N N Y
Pump/Lift Station 2301 Mayport Rd N N N N N N N N
Pump/Lift Station 995 Gavagan Rd N N N N N N Y Y
Pump/Lift Station 2121 Featherwood Dr W N N N N N N N N
Pump/Lift Station 2210 Aspin Ridge Dr N N N N N N Y Y
Pump/Lift Station 460 Palm Av Y Y Y Y Y Y Y Y
Pump/Lift Station 2632 St Rd A1A N Y Y Y Y Y Y Y
Pump/Lift Station 1998 Park St N N N N N N N N
Pump/Lift Station 1045 Monmouth Ct N N N N N N N Y
Pump/Lift Station 2544 Montreal St N N N N N N N N
Pump/Lift Station 2567 West End St N N N Y N N Y Y
Pump/Lift Station 2318 Barefoot Tr N N N N N N N Y
Pump/Lift Station 2294 Mayport Rd N N N N N N N N
Pump/Lift Station Dutton Island Rd W N N N N N N Y Y
Pump/Lift Station 799 Mayport Rd N N N N N N N N
Pump/Lift Station 914 Schooners Bay Dr N N N N N N N Y
Pump/Lift Station 2277 Seminole Rd Y Y Y N Y Y N N
Pump/Lift Station 1799 Selva Marina Dr N N Y N Y Y Y Y
Pump/Lift Station 404 20th St Y Y Y Y Y Y Y Y
Pump/Lift Station 481 Stewart St N N N N N N N N
Pump/Lift Station 739 Renault Dr N N N Y Y Y Y Y
Pump/Lift Station 1397 Camelia St N N N N N N N N
Pump/Lift Station 2885 Wonderwood Ln N N N N N N N Y
Future Conditions
100-Yr Return Period
Storm Surge InducedFacility Type Facility Address/Name
Existing Condition Rainfall
Induced (24-Hour Events)
Future Conditions
100-Yr Return Period
Rainfall Induced
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Table 3-3 – Degree of Exposure of Major Roadway Segments
FEMA
100-Yr
10-Year 25-Year 100-Year Current 2044 2069 2044 2069
MAIN ST A1 N N N N N N N N
MAIN ST A2 N N Y N Y Y N N
MAIN ST A3 Y Y Y N Y Y N N
MAIN ST A4 N N N N N N Y Y
MAIN ST A5 N Y Y Y Y Y Y Y
MAIN ST A6 N N N N Y Y Y Y
MAIN ST A7 N N N N N N Y Y
MAIN ST A8 N N N Y N N Y Y
MAIN ST A9 N N N N N N Y Y
DUTTON DR B1 N N N N N N Y Y
DUTTON DR B2 N N N N N N N N
CHURCH RD B3 N N Y N Y Y N Y
CHURCH RD B4 Y Y Y N Y Y N Y
DUTTON DR B5 N N N N N N N N
LEVY RD C1 N N N Y N N Y Y
LEVY RD C2 N N N N N N Y Y
LEVY RD C3 N N N N N N N Y
LEVY RD C4 N N N N N N N N
W PLAZA D1 N N N N N N N N
PLAZA DR E1 N N N N N N N N
PLAZA DR E2 N N Y N Y Y N N
PLAZA DR E3 N N N N N N N N
PLAZA DR E4 N N N N N N N Y
PLAZA DR E5 N N Y Y Y Y Y Y
PLAZA DR E6 Y Y Y N Y Y N Y
PLAZA DR E7 N N N N N N N N
SEMINOLE RD F1 N N N N N N N N
SEMINOLE RD F10 N N Y Y Y Y Y Y
SEMINOLE RD F11 N N N N N Y N Y
SEMINOLE RD F12 N N N N N N N Y
SEMINOLE RD F13 N N Y N Y Y N Y
SEMINOLE RD F14 N N N N N N N Y
SEMINOLE RD F2 Y Y Y N Y Y N Y
SEMINOLE RD F3 N N N N N N N N
SEMINOLE RD F4 N N N N Y Y N N
SEMINOLE RD F5 N N N N N N N N
SEMINOLE RD F6 N N N N N N N Y
SEMINOLE RD F7 N N Y N Y Y N Y
SEMINOLE RD F8 N N N N N N N Y
SEMINOLE RD F9 N N Y N Y Y N Y
SELVA MARINA DR G1 N N Y Y Y Y Y Y
SELVA MARINA DR G2 N N N N N N N Y
SELVA MARINA DR G3 N N Y Y Y Y Y Y
SELVA MARINA DR G4 N N N N N N N Y
SHERRY DR H1 N N Y Y Y Y Y Y
SHERRY DR H2 N N N N N N N Y
Future Conditions
100-Yr Return Period
Storm Surge InducedRoadwaySegment
Existing Condition Rainfall
Induced (24-Hour Events)
Future Conditions
100-Yr Return Period
Rainfall Induced
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Table 3-4 – Ranking of Exposed Critical Facilities & Infrastructure
Sensitivity Adaptive
Capacity
Average
Score
Environ-
mental Social Economic Average
Score
Water Plant No. 1 469 11th Street 4 5 3 4 1 5 5 4 11.7
Water Plant No. 2 2301 Mayport Rd 1 5 3 4 1 5 5 4 8.7
Water Plant No. 3 902 Assisi Ln 1 5 3 4 1 5 5 4 8.7
Water Plant No. 4 2848 Mayport Rd 8 5 3 4 1 5 5 4 15.7
Sewer Plant 1100 Sandpiper LN 1 5 3 4 5 5 5 5 10.0
Public Works Facility 1200 Sandpiper LN 1 3 3 3 3 3 5 4 7.7
Potable Water Well 2848 Mayport Rd 8 5 3 4 1 5 3 3 15.0
Potable Water Well 902 Assisi Ln 4 5 3 4 3 5 3 4 11.7
Potable Water Well 2848 Mayport Rd 8 5 3 4 2 5 3 3 15.3
Potable Water Well 902 Assisi Ln 1 5 3 4 5 5 3 4 9.3
Potable Water Well 2301 Mayport Rd 1 5 3 4 5 5 3 4 9.3
Potable Water Well 2301 Mayport Rd 1 5 3 4 3 5 3 4 8.7
Potable Water Well 1100 Sandpiper LN 1 5 3 4 2 5 3 3 8.3
Potable Water Well 469 11th Street 5 5 3 4 1 5 3 3 12.0
Potable Water Well 1200 Sandpiper LN 1 5 3 4 2 5 3 3 8.3
Neptune Beach PS NA 3 5 3 4 5 3 3 4 10.7
Life Guard Station 1 Ahern St 3 1 1 1 1 1 1 1 5.0
City Hall 800 Seminole Rd 9 3 3 3 1 3 3 2 14.3
Commission Chambers 800 Seminole Rd 9 3 3 3 1 3 3 2 14.3
Police & Fire Department 850 Seminole Rd 9 3 3 3 1 5 3 3 15.0
Adele Grage Community Ctr 716 Ocean Bv 1 3 3 3 1 1 3 2 5.7
Jordan Park Community Ctr 1671 Francis Av 1 3 3 3 1 1 3 2 5.7
Gail Baker Community Ctr 2072 George St 6 3 3 3 1 1 3 2 10.7
Office Building 902 Assisi Ln 1 3 3 3 1 1 3 2 5.7
Atlantic Beach Elementary 298 Sherry Dr 8 3 5 4 1 5 5 4 15.7
Pump/Lift Station 425 11th St 10 5 3 4 5 3 3 4 17.7
Pump/Lift Station 1082 Ticonderoga St 4 5 3 4 5 3 3 4 11.7
Pump/Lift Station 571 Coastal Oak Ln 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 302 Camelia St 8 5 3 4 5 3 3 4 15.7
Pump/Lift Station 858 Cavalla Rd 10 5 3 4 5 3 3 4 17.7
Pump/Lift Station 2595 America's Cup Cr E 8 5 3 4 5 3 3 4 15.7
Pump/Lift Station 1030 Mimosa Cove Ct E 9 5 3 4 5 3 3 4 16.7
Pump/Lift Station 458 David St 8 5 3 4 5 3 3 4 15.7
Pump/Lift Station 69 Donner Rd 9 5 3 4 5 3 3 4 16.7
Pump/Lift Station 2200 Fairways Villa Dr 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 2301 Mayport Rd 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 995 Gavagan Rd 6 5 3 4 5 3 3 4 13.7
Pump/Lift Station 2121 Featherwood Dr W 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 2210 Aspin Ridge Dr 6 5 3 4 5 3 3 4 13.7
Pump/Lift Station 460 Palm Av 10 5 3 4 5 3 3 4 17.7
Pump/Lift Station 2632 St Rd A1A 9 5 3 4 5 3 3 4 16.7
Pump/Lift Station 1998 Park St 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 1045 Monmouth Ct 4 5 3 4 5 3 3 4 11.7
Pump/Lift Station 2544 Montreal St 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 2567 West End St 8 5 3 4 5 3 3 4 15.7
Pump/Lift Station 2318 Barefoot Tr 4 5 3 4 5 3 3 4 11.7
Pump/Lift Station 2294 Mayport Rd 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station Dutton Island Rd W 6 5 3 4 5 3 3 4 13.7
Pump/Lift Station 799 Mayport Rd 3 5 3 4 5 3 3 4 10.7
Pump/Lift Station 914 Schooners Bay Dr 4 5 3 4 5 3 3 4 11.7
Pump/Lift Station 2277 Seminole Rd 10 5 3 4 5 3 3 4 17.7
Pump/Lift Station 1799 Selva Marina Dr 8 5 3 4 5 3 3 4 15.7
Pump/Lift Station 404 20th St 10 5 3 4 5 3 3 4 17.7
Pump/Lift Station 481 Stewart St 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 739 RENAULT DR 8 5 3 4 5 3 3 4 15.7
Pump/Lift Station 1397 Camelia St 1 5 3 4 5 3 3 4 8.7
Pump/Lift Station 2885 Wonderwood Ln 4 5 3 4 5 3 3 4 11.7
Facility AddressFacility Type Total Score
Vulnerability ConsequenceFlood
Exposure
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Table 3-5 – Ranking of Exposed Roadway Segments
Vulnerability
Rating
Total
Roadway
Length (ft.)High 5,079
MAIN ST A1 949 1 Low High 16,230
MAIN ST A2 517 8 Moderate-High Moderate-High 16,230
MAIN ST A3 184 10 High Moderate 3,253
MAIN ST A4 326 6 Moderate Moderate-Low 10,219
MAIN ST A5 691 9 High Low 15,465
MAIN ST A6 695 7 Moderate-High
MAIN ST A7 684 6 Moderate
MAIN ST A8 696 8 Moderate-High
MAIN ST A9 688 6 Moderate
DUTTON DR B1 650 6 Moderate
DUTTON DR B2 1719 1 Low
CHURCH RD B3 425 8 Moderate-High
CHURCH RD B4 925 10 High
DUTTON DR B5 647 1 Low
LEVY RD C1 244 8 Moderate-High
LEVY RD C2 250 6 Moderate
LEVY RD C3 773 4 Moderate-Low
LEVY RD C4 2165 1 Low
W PLAZA D1 861 1 Low
PLAZA DR E1 443 1 Low
PLAZA DR E2 549 8 Moderate-High
PLAZA DR E3 2427 1 Low
PLAZA DR E4 328 4 Moderate-Low
PLAZA DR E5 624 8 Moderate-High
PLAZA DR E6 2443 10 High
PLAZA DR E7 205 1 Low
SEMINOLE RD F1 3586 1 Low
SEMINOLE RD F10 969 8 Moderate-High
SEMINOLE RD F11 213 5 Moderate
SEMINOLE RD F12 437 4 Moderate-Low
SEMINOLE RD F13 809 8 Moderate-High
SEMINOLE RD F14 931 4 Moderate-Low
SEMINOLE RD F2 836 10 High
SEMINOLE RD F3 1660 1 Low
SEMINOLE RD F4 442 6 Moderate
SEMINOLE RD F5 803 1 Low
SEMINOLE RD F6 761 4 Moderate-Low
SEMINOLE RD F7 909 8 Moderate-High
SEMINOLE RD F8 741 4 Moderate-Low
SEMINOLE RD F9 619 8 Moderate-High
SELVA MARINA DR G1 1045 8 Moderate-High
SELVA MARINA DR G2 2967 4 Moderate-Low
SELVA MARINA DR G3 6103 8 Moderate-High
SELVA MARINA DR G4 2096 4 Moderate-Low
SHERRY DR H1 2025 8 Moderate-High
SHERRY DR H2 1185 4 Moderate-Low
Road Name Segment
ID
Segment
Length
Vulnerability
Rating
Flood
Exposure
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Figure 3-1 – Critical Roadway Segment Ranking
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3.4 Public Input
The City conducted five public meetings during the development of the Coastal Vulnerability
Assessment to discuss the technical approach to assessing vulnerability, present the findings of
the assessment, and to solicit public comments and concerns relating to current and future coastal
flooding.
The City conducted a public meeting regarding adaptation planning and resiliency on April 6 and
May 24, 2021, to solicit input from the public and respond to comments and concerns. Input from
the City’s Environmental Stewardship Committee was solicited at their April 14 meeting and the
preliminary findings were presented to this group on May 12 and June 2. Input from all meetings
have been incorporated into the plan.
In addition to local City of Atlantic Beach public meetings regarding vulnerability and adaptation
planning, City staff have worked closely with the City of Jacksonville (COJ) and have participated
in the City’s Adaptation Action Area Working Group, Storm Resilience and Infrastructure
Development Review Committee, and the City Council Special Committee on Resilience.
3.5 Local Priorities
The adopted 2021 priorities of the City Commission relating to adaptation planning include the
following:
Continuing efforts to understand the potential impacts of local SLR and work towards
improving community resilience.
Update/adopt a long-term capital improvement plan (CIP) to include adaptation, resiliency,
and stormwater.
Ensure equitable spending throughout the community.
Continue to foster productive partnerships with neighboring municipalities and state and
local agencies.
The City is also actively working to protect natural areas that may improve storm defenses and
supports the continued reauthorization of the Duval County Shore Protection Project (DCSPP)
that results in periodic beach renourishment.
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Adaptation Strategies
4.1 Range of Adaptation Strategies
Adaptation strategies can be implemented through regulations, policies, or capital projects and
integrated into existing or new plans such as comprehensive plans, post-disaster redevelopment
plans, CIPs, and in this case, adaptation plans. Adaptation strategies can be implemented to
reduce exposure, reduce sensitivity, or increase adaptive capacity. The following sections
describe these adaptation strategy categories and provide examples of general strategies within
each category.
4.1.1 Reducing Exposure
In the context of SLR, exposure refers to the likelihood and timing of when an asset might
experience flooding due to the combination of rising sea levels and extreme rainfall and/or coastal
surge events. The goal of exposure-reducing adaptation strategies is to reduce or eliminate the
chances of an asset experiencing flooding in the future. This requires removing the asset from
the future floodplain or altering the drainage system to limit future water levels d uring extreme
events. Table 4-1 provides a qualitative comparison of common strategies that could be effective
for reducing asset exposure to future flooding in the City.
Table 4-1 – Comparison of Exposure Reduction Strategies
Adaptation Strategy Implementation
Cost
Environmental
Impact
Societal
Impact
Construction
Feasibility Service Life
Retreat from Vulnerable Areas
Land Acquisition/Conservation
Seawall Improvements
Stormwater Improvements
(i.e., check valves, dams, pumps)
Raising Critical Infrastructure
(i.e., roads, buildings)
Coastal Dune Maintenance
Marsh/Vegetative Buffer
Maintenance
*Note: Green shaded boxes indicate strategies with lower costs, minimal environmental/societal impacts, relatively simple
implementation, or longer service life. Yellow shaded boxes indicate strategies with moderate costs, some environmental/socie tal
impacts, complex but feasible implementation, or moderate service life. Red shaded boxes indicate strategies with high costs,
significant environmental/societal impacts, extremely complex, or short service life.
4.1.2 Reducing Sensitivity
Sensitivity refers to the degree to which an asset’s functionality is affected by exposure to a
hazard. In this case, the hazard is flooding and the goal of sensitivity-reducing adaptation
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strategies is to reduce or eliminate impacts that flooding has on an asset’s ability to function during
or immediately after flooding. Table 4-2 qualitatively compares common strategies that could be
effective for reducing asset sensitivity to future flooding in the City.
Table 4-2 – Comparison of Sensitivity Reduction Strategies
Adaptation Strategy Implementation
Cost
Environmental
Impact
Societal
Impact
Construction
Feasibility Service Life
Flood Proofing Water/Sewer
Infrastructure
Flood Proofing Emergency
Service Operations (Police,
Fire, City Hall)
Flood Proofing Businesses
and Homes
Flood Recovery Strategies to
Reduce Flood Durations
Backup Power Generation
for Critical Services (Water,
Sewer, Emergency Services)
*Note: Green shaded boxes indicate strategies with lower costs, minimal environmental/societal impacts, relatively simple
implementation, or longer service life. Yellow shaded boxes indicate strategies with moderate costs, some environmental/socie tal
impacts, complex but feasible implementation, or moderate service life. Red shaded boxes indicate strategies with high costs,
significant environmental/societal impacts, extremely complex, or short service life.
4.1.3 Increasing Adaptive Capacity
Adaptive capacity is the ability to adjust to or live with the impacts of SLR and changes in extreme
storm events. The adaptive capacity of existing infrastructure is often fairly confined to its inherent
ability to be adjusted, so increasing the adaptive capacity of existing infrastructure is challenging.
Strategies for increasing the adaptive capacity of a community are forward-looking and involve
policies, regulations, and strategies to enhance the adaptability of a community. The following are
examples of strategies to enhance adaptive capacity:
Public Outreach and Education – As residents become more aware of future SLR and its
associated flood risks, they will be more likely to support local adaptation efforts and will
have the opportunity to make educated decisions that have positive impacts on the
adaptability of the community.
CIP – Local governments may choose to consider future flooding risks when developing
projects in their CIP or discourage investment in projects that may be vulnerable to flood
risks. The local government may also discontinue maintenance and repairs to
infrastructure that is repetitively damaged and relocate or retrofit existing infrastructure to
be more flood resilient.
Pursuing Funding for Adaptation Projects – Implementing adaptation strategies can be
very expensive. Several federal and state grant funding programs exist that can provide
funds for implementing adaptation strategies.
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Transfer of Development Rights (TDR) – This strategy is meant to limit or reduce
development within vulnerable areas by allowing one property owner to sever
development rights in exchange for compensation from another property owner who would
like their development rights to increase. The receiving area is then allowed to have
increased density or dwelling units per acre. A TDR program serves as an incentive for a
property owner to avoid developing on vulnerable property by providing compensation for
lost privileges.
Cluster Development – Cluster development encourages developers to concentrate
development in upland/desirable areas on a tract of land while preserving/avoiding
vulnerable areas, which maximizes protection of future structures, preserves vulnerable
areas, and often saves developers money.
Setbacks and Buffers – Setbacks and buffers are building restrictions that establish a
distance from a boundary line where landowners are prohibited from building structures.
These are regulatory tools that can be established through zoning and floodplain codes
or conservation easements and serve to protect existing or new structures and inhabitants
by allowing inland migration of shorelines and preservation of wetlands, dunes, estuaries,
and other environmentally sensitive areas.
Conservation Easements – A conservation easement is a strategy used by local
governments for the permanent conservation of private lands by placing a limitation on the
uses and/or allowable amount of development on a property to protect its associated
resources while still allowing the owner to live, retain, and develop the property with limited
use. The easement can apply to all or a portion of a property. Usually, a conservation
easement preserves a portion of property in its natural state.
Floodplain Regulations – Floodplain regulations are a tool that a coastal community could
amend to impose additional restrictions on development in floodplains above the National
Flood Insurance Program (NFIP) minimum standards, such as use restrictions within the
100-year floodplain areas (only allow limited residential, recreational, or agricultural uses),
and/or impose design requirements in the 500-year floodplain areas that are currently not
required (elevation requirements).
Building Codes and Standards – Building codes establish minimum requirements for
building construction. Under the Florida Building Code Act, all local codes were replaced
by the Florida Building Code in 2002. However, local governments may adopt more
stringent regulations where local conditions warrant. Additional regulations governing
construction include flood-protection regulations pursuant to NFIP and the state Coastal
Construction Control Line (CCCL) permitting standards. A coastal community may look
into applying flood-resistant code standards to currently unregulated areas that may be
vulnerable to flooding in the future, such as the 500-year floodplain.
Redevelopment Standards – Redevelopment standards are regulatory tools a community
can use to limit, or even in some cases prohibit, what is allowed to be rebuilt on a property
that has been damaged or destroyed by natural hazards. Communities can limit
redevelopment of repetitive loss structures and/or other storm-damaged structures in
highly vulnerable areas.
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Real Estate Disclosures – Governmental bodies (e.g., state or local agencies) could
compile data, erosion maps, inundation models, and other relevant information and make
this information accessible to potential property buyers and developers. Governments
could require sellers to disclose to potential buyers that a property is in an area vulnerable
to flooding.
4.2 Focus Areas for Adaptation
Predicted SLR over the next 25 years has a fair degree of certainty and less certainty over a
50-year time horizon. 100-year predictions in SLR are extremely uncertain. From a planning
perspective and given increasing uncertainty over time, the City’s adaptation planning efforts will
focus on the 25-year time horizon with consideration given to the 50-year predictions. Based on
the exposure and sensitivity analyses over these timeframes, the focus areas identified for
adaptation planning are provided below.
4.2.1 Citywide
The City of Atlantic Beach is considered by COJ to be in an AAA. As discussed in Section 2.1,
the 2011 Comprehensive Planning Act authorized localities to designate AAAs, which are
locations that experience coastal flooding due to extreme high tides and storm surge and that are
vulnerable to the related impacts of rising sea levels. COJ opted to define AAAs in Duval County
as areas that are subject to inundation from a 500-year flood event or a Category 3 hurricane
storm surge. The NOAA predicts that virtually all of the City of Atlantic Beach could be inundated
by a Category 3 storm; hence, the entire city is considered to be in an AAA.
Although no return interval is assigned to a Category 3 storm, unlike a 100-year flood event, the
entire community can still be considered to have potential exposure. Accordingly, all of the City
of Atlantic Beach is considered to be a focus area for adaptation primarily from a planning and
policy perspective.
4.2.2 Areas West of Mayport Road
As indicated by the future 100-year flood maps shown in Figure 4.2, many residential and
commercial areas west of Mayport Road are predicted to be impacted from rising sea levels.
These areas are expected to be subject to the chronic condition of nuisance flooding as well an
increasing likelihood of inundation due to storm surge and rainfall-induced flooding during a
100-year storm event. Figure 4-2 depicts the expected extent of flooding due to the 100-year
storm event in 2044.
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Figure 4-1 – 2044 Nuisance and 100-Year Storm Flooding West of Mayport Road
4.2.3 Major Drainageways
East of Mayport Road, minimizing the extent and duration of flood events depends largely on the
ability of the major drainageways to manage the stormwater runoff discharging into them.
Adaptation measures will be required to ensure that the major drainageways function properly
and will not be adversely impacted by rising sea levels.
Figure 4-2 shows that the major drainageways serving the City include Hopkins Creek, Sherman
Canal, Puckett Creek, and Sherman Creek.
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Figure 4-2 – Major Drainageways
4.2.4 Roadways
As discussed in Section 3, many of the major ingress and egress routes from the City may be
affected by rising sea levels. These roadways will be considered a focus area for adaptation
planning. The two busiest roads in the City are Mayport Road and Atlantic Boulevard. Both
roadways are managed by the Florida Department of Transportation (FDOT), not the City of
Atlantic Beach.
4.2.5 Critical Utility Infrastructure
Critical infrastructure that will be a focus area for adaptation planning to include numerous lift
stations, two of the City’s water plants, and four potable water wells.
4.2.6 Critical Public Facilities
Public facilities expected to be exposed to future flooding conditions will also be focus areas for
adaptation planning efforts. These include City Hall, the Police and Fire Departments, and several
of the City’s community centers.
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4.3 Current Strategies and Existing Regulations
Assessing existing strategies and regulations is recommended by the FDEP before identifying
adaptation strategies and recommendations. This includes looking at the City’s current plans,
development regulations, and other initiatives that may be used or modified for adaptation
purposes.
4.3.1 Existing Plans
Coastal Vulnerability Assessment
This assessment used existing and projected conditions to model 25-, 50-, and 100-year
scenarios for SLR and future flood hazards. The models were then used to identify
vulnerable areas, properties, and infrastructure.
2018 Stormwater Master Plan Update
This update built on the previous 1995, 2002, and 2012 plans and modeled existing and
projected hydrologic conditions within the City and includes recommended stormwater
improvement projects in identified locations.
2030 Comprehensive Plan
In 2019, the City updated the Comprehensive Plan to comply with the Peril of Flood
statute, which required local governments to incorporate SLR planning into their
redevelopment policies. In addition, the plan contains numerous goals, objectives, and
policies related to adaptation.
4.3.2 Existing Development Regulations
Finished Floor Elevation (FFE)
All lots and building sites shall be developed so that habitable space is constructed at a
minimum FFE of 8.5 feet above mean sea level or with 2.5 feet of freeboard (above the
base flood elevation), whichever is greater.
Base Flood Elevations
Development that encroaches into a regulated floodway must demonstrate that the
development will not cause any increase in base flood elevations.
Floodplain Storage
Development within the 100-year floodplain must create storage onsite to mitigate for any
filling of volume onsite to accomplish no net loss of storage.
Onsite Storage of Stormwater
Development that exceeds 50 percent of the market value of all improvements or which
increases the impervious surface on a site by more than 250 square feet must provide
onsite storage of stormwater.
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Impervious Surface Area
In 2019, the maximum impervious surface area for properties within residential zoning
districts was reduced from 50 to 45 percent.
Grading and Drainage
All development sites must be graded so that stormwater drains to the adjacent street,
existing natural element, or a City drainage structure after meeting on-site stormwater
storage requirements. Except as required to meet coastal construction codes or as
required to meet applicable flood zone or stormwater regulations, the elevation or
topography of a development site shall not be altered.
Wetland Mitigation
Any impacted wetlands on a development site must be replaced elsewhere on the site or
within the City so that no net loss of jurisdictional wetlands occurs within the City.
Wetland Buffer
New development must maintain a 50-foot buffer from jurisdictional wetlands adjacent to
water bodies connected to the Intracoastal Waterway and a 25-foot buffer from other
jurisdictional wetlands. This buffer is reduced to 25 feet for single-family lots platted
before 2002.
Special Planned Area (SPA)
An SPA zoning district may be applied for or required by the City where a proposed
development has unique characteristics or special environmental features. This zoning
district provides flexibility and creates opportunities for preservation (i.e., cluster
development).
4.3.3 Current Initiatives
Federal Emergency Management Agency’s (FEMA’s) Community Rating System (CRS)
The City participates in the CRS program, which provides reductions in flood insurance
premiums for cities that implement activities that exceed the minimum criteria for FEMA’s
NFIP.
Leadership in Energy and Environmental Design (LEED) Certification
The City of Atlantic Beach became LEED for Cities certified in 2019. Cities with this
certification aim to ensure a more sustainable future by creating a healthier environment.
Urban Forestry
Since 2019, over 450 trees have been planted in public spaces throughout the City.
Additionally, the City is working to strengthen its tree protection ordinance to preserve and
regenerate the urban canopy.
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Street Sweeping and Stormwater Inlet Cleaning
Street sweeping and inlet cleaning help reduce localized flooding by removing debris that
blocks drainage infrastructure.
Vulnerable Property Acquisition
Multiple properties have been purchased by the City over the years for preservation
purposes including the Tide Views, Dutton Island, and River Branch Preserves. Recently,
the City purchased Selva Preserve and an approximately 2-acre parcel west of Lily Street
providing preservation of wetlands, maintenance of stormwater storage capacity, and
storm-surge protection for adjacent properties.
Duval County Shore Protection Project (DCSPP)
The DCSPP, which is the federal program established for beach renourishment, is critical
to maintenance and restoration of beach and dune systems, providing protection to the
Atlantic Ocean coastline in Duval County.
4.4 Recommended Strategies for Focus Areas
The following adaptation strategies have been developed for the identified vulnerable focus areas
within the study area. These recommendations and associated timeframes are based on best
available information and shall be updated as new information becomes available or additional
adaptation strategies are identified.
4.4.1 Citywide
The following relate to recommended changes and updates of policies, ordinances, etc. to better
help the City manage and adapt to changing vulnerability and flooding potential throughout the
City. These apply to the chronic stressor of SLR and the acute stressor of a major storm event.
Ensure that every CIP implemented by the City is examined through the lens of resilience.
Review building and zoning codes of other Florida cities and counties for resilience and
adaptation-related elements and determine if the City of Atlantic Beach’s building and
zoning codes should be updated to reflect similar elements.
Craft policies that do not disincentivize property owners from making repairs and
renovations for resiliency purposes because such repairs may currently trigger a
requirement for full compliance with all current codes.
Reinforce the value of trees for absorbing stormwater runoff.
Explore ways to disclose flood zone and prior flooding information on real estate
transactions and lease agreements.
Establish education and public engagement tools such as user-friendly websites,
newsletters, social media platforms, and resource guides to reach diverse audiences.
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Establish a community relief center to enable and provide assistance to citizens to deal
with stressors related to water inundation.
Keep shorelines natural by implementing a 6-foot low-maintenance buffer (no mowing,
fertilizer, pesticide, or herbicide application) along public lands adjacent to waterways and
drainage ditches. This should also be encouraged along waterways on private property
through education and outreach.
Partner with COJ, Jacksonville Port Authority (JAXPORT), and the US Army Corps of
Engineers (USACE) to develop a program for the beneficial reuse of dredged material
through Thin Layer Placement (TLP), or other methods of strategic placement. This may
be especially important to the City’s marsh system. TLP may help to build the marsh up
ahead of SLR and prevent marsh areas from converting to open waters, resulting in a
reduction of wave energy reaching the upland shoreline.
Work with COJ to establish an outreach program to provide voluntary property vulnerability
assessments in vulnerable areas of the City. Provide property owners with suggested
adaptation actions they may wish to undertake to increase resiliency to SLR, storm surge,
and extreme tides while simultaneously providing habitat and water-quality benefits.
Map riparian areas subjected to invasive species (i.e., Brazilian Pepper), develop a
program to eradicate species on public property, and provide guidance to owners of
infested private properties. Invasive species often do not provide the degree of protection
from erosion and wave attenuation that native species do.
Ensure that the DCSPP remains funded and provides for continuous beach and dune
restoration on an as-needed basis.
Incorporate Environmental Protection Agency (EPA) Green Streets concepts such as
green infrastructure and drainage into medians, sidewalks, and landscaped areas during
the planning and design of roadway transportation projects.
Seek state and federal assistance, when available, to help pay for removing remaining
septic tanks on the west side of the City, and work with COJ for removing septic tanks
within the Public Utilities service area that fall outside the City’s limits.
Incentivize low-impact design (LID) practices. LID can include rain gardens, recessed
planting beds, bio-swales, green roofs, or simply planning for a greater pervious surface
in site design.
Review minimum off-street parking requirements. Today, off-street parking minimums for
residential and commercial developments artificially inflate the number of parking spaces;
therefore, impervious surface areas must be developed. This contributes to the amount of
stormwater runoff generated from developments and increases flooding potential,
especially in areas that do not have space to add stormwater ponds.
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Consider revising minimum FFEs for areas in a 500-year flood zone on the current FEMA
Flood Insurance Rate Map. The extents of a 500-year flood event are similar to the
predicted extents of a 100-year flood event in 2044. Minimum FFEs in these areas could
be revised to 2.5 feet above the nearest adjacent 100-year base flood elevation to provide
for future protection. Building height limitations in these areas could also be revised to be
based on the required FFE, similar to Sec. 24-81(n)(a). The current minimum FFE in an
area impacted by a 100-year flood event (Special Flood Hazard Area) is 2.5 feet above
the base flood elevation.
These recommendations are primarily near-term recommendations (i.e., within 12 months). A
specific implementation schedule should be developed to further prioritize, evaluate, refine, and
consider for implementation.
4.4.2 Areas West of Mayport Road
As verified by the Coastal Vulnerability Assessment, the marsh-facing areas west of Mayport
Road will be particularly vulnerable to flooding events given higher sea levels in the future. Many
residents in this area are already impacted by nuisance flooding that is projected to get worse.
Commission a study within the next 12 to 36 months to evaluate the most cost-effective
means of protecting this area of the City. This evaluation should result in the development
of a 25-year plan for managing nuisance flooding and storm surge in this area to maximize
protection of affected residential and commercial properties, critical facilities, and
infrastructure and roadways. The plan shall include implementation triggers, expected
timeframes, and probable costs for proposed improvements.
Improvements that are expected to be evaluated include but are not limited to the
following:
o Strategically raising centerline road elevations to protect inland properties.
o Installing check valves in drainage ditches to prevent storm surges from entering
inland areas.
o Extending water and sewer utilities where needed to ensure continuity of service.
o Raising vulnerable structures to a safe elevation.
o Identifying and conserving properties strategically located along the marsh edge to
maintain or develop the ability to reduce wave impacts on the immediately adjacent
upland areas.
o Evaluate the rate and extent of marsh erosion and develop plans to stem the loss of
marsh and commensurate loss of storm protection benefits.
Complete a marsh baseline study within the next 12 months. Little quantitative information
is available regarding the health of the marsh system within the City limits. As part of this
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effort, the City should complete a marsh baseline study to determine the current condition,
extent, and elevation of the marsh so that future changes can be monitored. Periodically
monitoring changes in the marsh will provide valuable information regarding the speed
and extent of local impacts of SLR and will be a useful tool for future adaptation planning.
4.4.3 Major Drainageways
Of significant importance to the City of Atlantic Beach residents east of Mayport Road is the
performance of the major drainageways during severe storm events. Performance of these
systems is crucial regarding limiting the extent and duration of a flooding event. The City
completed a Stormwater Master Plan Update in 2018 and staff have been implementing the
recommendations in this plan as funding allows.
The Coastal Vulnerability Assessment resulted in the prediction of future flooding associated with
SLR and continued redevelopment within the City. This work was completed subsequent to the
Stormwater Master Plan Update; therefore, the potential impacts from SLR are not wholly
reflected in the recommended CIP resulting from the Stormwater Master Plan Update:
Within the next 12 months, initiate a study to evaluate the major drainageway projects
included in the current stormwater CIP regarding the increasing flooding due to SLR. This
study should include development of a plan of action to account for these future conditions.
This process will ensure that all major drainage infrastructure projects and improvements
can be adapted to future conditions and will be complementary to potential future projects,
such as stormwater pump stations, that may become necessary as sea level and flooding
conditions change.
Within the next 12 to 36 months, engage a consultant to develop a 50-year plan for
managing the major drainageways to maximize protection of affected residential and
commercial properties, critical facilities, infrastructure, and roadways. This plan should
include a local, COJ, state, and federal agency coordination plan, implementation triggers,
expected timeframes, and probable costs for proposed improvements.
The 2018 Stormwater Master Plan Update and subsequent Coastal Vulnerability Assessment
concluded that the box culvert on SR A1A at Puckett Creek is severely undersized and contributes
to poor performance of the Puckett Creek and Sherman Canal watersheds. This culvert is outside
the City limits and is owned by FDOT; therefore, the City of Atlantic Beach has no jurisdiction over
it. However, the City has initiated discussions with FDOT regarding upsizing the box culvert to
improve drainage. City staff must continue communicating with FDOT and lobbying for the
culvert’s replacement.
4.4.4 Roadways
The roadways evaluated as part of this effort include major ingress and egress roads within the
City limits, excluding Atlantic Boulevard and Mayport Road, which are controlled by FDOT. The
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ranking presented in Section 3.3 provides a roadmap in order of importance regarding each
vulnerable road segment. Recommendations related to these roadway segments are as follows:
Review the current pavement management plan and update it as necessary to reflect the
roadway segment ranking within the next 12 months.
Before repaving or making major improvements to any vulnerable roadway segments,
determine improvements that can be made to increase the roadway segment’s resilience
and ability to function during predicted 2044 100-year flooding conditions.
Evaluate minor arterial roadways on a case-by-case basis to identify potential
improvements resulting in better performance due to chronic and acute flooding
conditions.
Ensure that City staff share vulnerability data with FDOT to help inform their adaptation
planning regarding Atlantic Boulevard and Mayport Road.
The initial planning required to implement these recommendations should commence within
12 months, and these recommendations should be implemented within 24 months or before any
major capital expenditures relating to improvements of any ranked roadway segment.
4.4.5 Critical Utility Infrastructure
Vulnerable City-owned critical utility infrastructure within and outside the City limits include sewer
pump stations, potable water plants, and several potable water wells. The Public Utilities
Department shall implement the following recommendations to ensure continuity of service under
all conditions:
Within the next 12 months, retain a consultant to evaluate all identified exposed critical
utility infrastructure with a ranking of 15 or higher to identify improvements required to
protect these assets from expected 100-year event flood levels in 2044. These
improvements shall be implemented within 12 months of completion of the evaluation or
sooner as funding becomes available.
Within the next 24 months, retain a consultant to evaluate all identified exposed critical
utility infrastructure with a ranking of less than 15 to identify improvements required to
protect these assets from expected 100-year event flood levels in 2044. These
improvements shall be implemented within 36 months of completion of the evaluation or
sooner as funding becomes available.
4.4.6 Critical Public Facilities
Several vulnerable critical public facilities must be addressed to ensure continuity of government
and community services. The City shall implement the following recommendations:
Within the next 12 months, evaluate all identified exposed critical public facilities with a
ranking of 15 or higher to identify improvements required to protect these assets from
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expected 100-year event flood levels in 2044. These improvements shall be designed and
implemented as soon as possible after completion of the evaluation.
Within the next 24 months, evaluate all identified exposed critical public facilities with a
ranking of less than 15 to identify improvements required to protect these assets from
expected 100-year event flood levels in 2044. These improvements are to be designed
and scheduled for implementation as funding becomes available.
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Recommended Actions
This Preliminary Adaptation Plan is the result of the first iteration of the City’s adaptation planning
process. This Plan contains general recommendations for adaptation strategies to be applied to
exposed areas of the City as well as a recommended implementation schedule. Subsequent
iterations of this living document will be completed after solicitation of public input and will contain
additional objective data, more specific strategies, and updated implementation schedules as
appropriate.
5.1 Summary of Recommended Actions and Schedule
Table 5-1 summarizes the recommendations for adaptation strategies identified in each focus
area with a recommended timeframe for implementation. The timeframes for initiation are based
on the following criteria:
Ongoing Actions currently being undertaken by staff
Immediate Upon adoption of Adaptation Plan
Near-Term <12 months
Mid-Term 12-36 months
Long-Term 36-48 months
Table 5-1 – Summary of Recommendations and Implementation Schedule
Recommendation Action Timeframe for
Initiation
Review all capital projects in context of
adaptation Incorporate into project planning procedures Immediate
Building and zoning code review Initiate review process and produce report of
recommended actions Near-Term
Policies to encourage homeowner
resiliency projects Establish policies Mid-Term
Reinforce value of trees for absorbing
runoff
Develop educational materials; coordinate
with COJ efforts Near-Term
Real estate disclosures Initiate discussions with Property Appraiser
and develop approach for implementation Mid-Term
Education and Public Engagement Tools Develop/adapt educational materials Near-Term
Low maintenance buffers on City
property Establish policy Immediate
Marsh restoration partnering w/ COJ,
JAXPORT, USACE
Begin planning, discuss with relevant
agencies, determine funding sources Long-Term
Work with COJ on vulnerability outreach
program
Begin coordination and development of
outreach materials Mid-Term
Invasive species mapping in riparian
areas Complete map and develop eradication plan Near-Term
Maintain federal authorization for beach
renourishment
Maintain contact with USACE, COJ and
FDEP to assure authorization is maintained Ongoing
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Incorporate EPA Green Streets into
planning & projects Incorporate in to Complete Streets program Near-Term
Seek funding to phase out septic tanks Initiate discussions with COJ, FDEP and
SJRWMD to identify funding opportunities Ongoing
Incentivize LID practices Develop LID guide and update code as
necessary to incentivize Near-Term
Review minimum off-street parking
requirements
Review and update applicable sections of
code Near-Term
Revise minimum FFEs in exposed areas Evaluate impact of change and implement
code change Mid-Term
Table 5-2 – Areas West of Mayport Road Recommended Actions & Schedule
Recommendation Action Timeframe for
Initiation
25-Year plan for SLR protection Commission evaluation and present options
to the community Mid-Term
Marsh baseline study Commission study Near-Term
Table 5-3 – Major Drainageways Recommended Actions & Schedule
Recommendation Action Timeframe for
Initiation
Evaluation of current CIPs Initiate review of projects Near-Term
50-year drainage plan Engage consultant to develop 50-year plan;
incorporate findings in to the CIP Long-Term
Table 5-4 – Roadways Recommended Actions & Schedule
Recommendation Action Timeframe for
Initiation
Rank roads in pavement management
plan
Review & update pavement management
plan Near-Term
Improve resilience of vulnerable
roadways prior to repaving or making
major improvements
Evaluate roadway projects as they arise Ongoing
Minor arterial roadway evaluation Evaluate in response to inspections and
complaints Ongoing
Atlantic Boulevard and Mayport Road
resiliency Coordinate w/ FDOT Ongoing
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Table 5-5 – Critical Utility Infrastructure
Recommendation Action Timeframe for
Initiation
Evaluate and upgrade exposed
infrastructure w/ ranking >=15
Evaluate and implement recommended
improvements Near-Term
Evaluate and upgrade exposed
infrastructure w/ ranking <15
Evaluate and implement recommended
improvements Mid-Term
Table 5-6 – Critical Public Facilities
Recommendation Action Timeframe for
Initiation
Develop plan for exposed facilities with
ranking >= 15
Complete plan; design and schedule
recommended improvements Near-Term
Develop plan for exposed facilities with
ranking <15
Complete plan; design and schedule
recommended improvements Mid-Term
5.2 Monitoring and Evaluation
This Adaptation Plan is a living document and the recommendations and implementation
schedule contained in the Plan must be routinely visited and updated as necessary. SLR
predictions are subject to change as new information and data become available. These changes
must be incorporated into the exposure and sensitivity analyses to reveal any significant changes
that must be accounted for. This Plan is also expected to be revised as additional data, such as
marsh baseline data, are obtained.
The analyses described in the Coastal Vulnerability Assessment should be revisited every 5 years
at a minimum using the most recent sea levels and SLR predictions available. Subsequent to
updating these analyses, this Adaptation Plan should be revised to add additional adaptation
strategies as necessary and to move projects and actions listed in Section 4.3 to Section 4.4 as
they are implemented or completed.
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References
2015 Unified Sea Level Rise Projection for Southeast Florida, Southeast Florida Regional
Climate Change Compact Sea Level Rise Work Group, 2015
Adaptation Action Area Workgroup Report and Recommendations, City of Jacksonville,
November 2019
City of Atlantic Beach Coastal Vulnerability Assessment, Revision April 2021
City Council Special Committee on Resiliency Final Report, City of Jacksonville, April 2021
City of Jacksonville Storm Resiliency and Infrastructure Development Review Committee Final
Presentation, June 25, 2019
Climate Science Special Report: Fourth National Climate Assessment, U.S. Global Change
Research Program, 2017
Florida Adaptation Planning Guidebook, FDEP, June 2018
Global and Regional Sea Level Rise Scenarios for the U.S., NOAA Technical Report NOS CO-
OPS 083, 2017
Global Sea Level Rise Scenarios for the United States, NOAA Technical Report OAR CPO-1
National Climate Assessment, 2012
Incorporating Sea Level Changes in Civil Works Programs, USACE Engineer Regulation
(ER) 1100-2-8162, 2013
NOAA Tides & Currents – Water Levels (https://tidesandcurrents.noaa.gov/sltrends/)
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Appendix A
Inundation Scenarios and Maps
Inundation scenarios and maps have been moved online as interactive maps for ease of access
and viewing. This information can be accessed through the following link:
Resiliency and Adaptation - Current and Future Flood Mapping
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Appendix B
Public Workshop Comments
No public comments have been received to date. As this is a living document that will be
updated often as additional information becomes available, comments received from
planned public meetings will be incorporated as appropriate in to the document and will be
added to this appendix.
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