Title: Proceedings: 11th Annual Conference of the Florida Planning and Zoning Association
Full Citation
Permanent Link: http://ufdc.ufl.edu/WL00001939/00001
 Material Information
Title: Proceedings: 11th Annual Conference of the Florida Planning and Zoning Association
Physical Description: Book
Language: English
Spatial Coverage: North America -- United States of America -- Florida
Abstract: Proceedings: 11th Annual Conference of the Florida Planning and Zoning Association, December 6-9, 1961
General Note: Box 9, Folder 15 ( SF-WMD Histories-FPZA about SFWMD-1961 - 1961 ), Item 1
Funding: Digitized by the Legal Technology Institute in the Levin College of Law at the University of Florida.
 Record Information
Bibliographic ID: WL00001939
Volume ID: VID00001
Source Institution: Levin College of Law, University of Florida
Holding Location: Levin College of Law, University of Florida
Rights Management: All rights reserved by the source institution and holding location.

Full Text




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plans for us. In the meantime, lets get busy with acquisition.

The Honorable Sam M. Gibbons
State Senator, Hillsborough County

It is presently being reported that this area of Florida is currently

punning some 34 percent under its normal rainfall. And, knowing what I do

know about Florida, I know that we must depend upon that rainfall almost dir-

directly for our water resources. Even with just a 34 percent shortage

this year, vast amounts of damage have occurred, not only

to the lawns and to the ornamentals but also to the truck and garden farms

of Florida. Reports also indicate that between 10 and 12 billion dollars have

been spent by Florida citrus growers for irrigation purposes and no relief is

yet in sight. No one knows exactly what this prolonged drought will do to our

economy or to our ability to recover industrially, and no one can predict, of

course, when the drought will end. We know from past experience, however,

that these droughts and excessive rainfalls come ii cycles and that, perhaps

in a year, two years, or five years from now, we'll be back to the same place

we were last year or the year before with excessive-amounts of rainfall. The

topic of controlling Florida's rainfall and preserving its water resources is

therefore most timely.

One thing that we need to know about Florida's history as far as water

and rainfall is concerned is that the supply is very irregular. Most of the rain-

fall comes during the four-month period of June through September. And

because we are a peninsular state, not only can the people run to the beaches


but so can the fresh water. So we have a very rapid runoff being a very

shallow state as far as rises in the geography are concerned. We have no real

natural places to impound large mounts of water. Betpg ae ry warm state,

we have tremendous amounts of evaporation.

We have been plagued by a history of ove ordralage, and a lack of

really understanding what Florida's ultimate water problem will be. There

have been many predictions about what Florida's future will hold as far as

population is concerned, and I don't intend to bore you further with what we're

going to have in 1970, 1980, and 1990. Suffice it to say that, even if the birth

rate remains as it is and there's no further migration into Florida, we're

going to have a whole lot more people. We can figure that it takes between

35,000 and 40,000 gallons of water per year per person just for our own pop-

ulation needs, to say nothing of the additional needs of water for industry and

for agriculture. As I have pointed out, the citrus industry is a very large user

of water for agricultural purposes during dry seasons when water is in shorter

supply. Our phosphate industries and our pulp industries are also tremendous

userd of water, and we hope that all of those industries I have named and other

industries as yet unnamed will continue to come into our state and provide jobs

for our people.

There are many adverse factors that are working against water con-

servation in Florida. First of all, I mentioned the low topography of the land

and the quick run-off; and yet, with the increasing population and the need for

pace to live, we have a shrinking area in which to store water mObt e surte.

This shrinking area is caused by roads, hot dog stands, roofs a houses, a


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the draining of places that never should have been drained so as to put addi-

tional subdivisions in. And the' because of this growth in population, we have

the increasing pollution factor brought about by sanitary water and industrial

waste. Indeed, these last two factors are and have been and will continue

to be a very important problem as far as regulating Florida's water resources.

If any of you are not yet convinced that Florida does have problems as

far as water resources are concerned, let me say that industrial concerns

who look ahead and have to spend billions of dollars of private capital realize

that it is now important to go out and acquire well fields large well fields -

and springs, and other natural supply points of good fresh water. Govern-

mental agencies have for quite some time been going out in Florida and pur-

chasing additional well field areas and springs. The farmer reports that the

well supplies of ground water have constantly been bothering them. I talked

to a citrus farmer the other day who told me that when he bought his groves

20 or 30 years ago he had a fine flowing artesian well on his grove that furn-

ished enough fine water for his grove even in the dry seasons; today, even with

a high-speed centrifugal pump, he cannot withdraw from that same well a

sufficient amount of water to water the grove. And, if there are still some

skeptics left, the U. S. Geological Survey reports to us that the piesometric

level of water in Florida has continually dropped and that we are in danger of

having in some areas and we have already'had in some areas a salt-water

intrusion by this drbp of water level.

Now what are the tools that Florida has to work with to control this

water. Actually, until about 1957 we had no tools other than the common laws.

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hi common law was grossly inadequate; it dealt primarily with individual

remedies. Occasioally you could get an injunction against a user who was

using and drafting water for his own use to the detriment of bit neighbors, but

that was about all We had drainage laws going back into the late 1800's for

the establishment of small drainage districts, And, of course, as you know,

we established the Everglades Drainage Dstrict, and then finally the Central

and South Florida Flood Control District in 1949. These areas were at

first devoted primarily to drainage. It is now only 2S percent complete and

already the great emphasis in that district is on conservation and control of

water rather than on drainage.

The 1957 Legislature enacted a water policy for Florida. It was a very

controversial step even though it was a small step. I remember sitting on the

committee and hearing people many well-meaning people who said that the

State was going socialistic and that this was something we shouldn't fool with *

de ry that there resly was no need for this type ao legbt ation. The legislalinc

tha we came up with was in my opinion quite timid and inadequate, but at

least it was a start. If it did nothing other than set up The Division of Water

Resources and Conservation, which has been so ably headed by John Wakefield,

it as really a substantial step in the right direction. Mr. Wakefield has used

his time and talents to great advantage to bring to the people ao Florida the

message of the need for additional water resources control. The State has

mnthe r agency, the Division of Geology headed by Mr. Robert Vernon, that

has also done a tremendous ob in this field particularly in the area of

grmnd water.

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The floods of 1960 in this area of Florida brought to us a new problem,

and I think that we were able to capitalize on that problem and to start water

management in a much more constructive and broader concept. As a result

of these floods, some 18 counties handed together, first oa all as a volunteer

agency and secondly as a result of legislation introduced and passed in 1961 to

form what is now known as the Southwest Florida v/ater Management District.

You will notice that it uses the term "'Nwater Management District" and not

"Flood Control District" or "Drainage District". I think that that connotation

alone is enough to show you that this district believes that we are going to have

to do something to manage water, not just to drain it off. The 14-county dis-

trict which finally resulted is designed to control the operation of four of the

major rivers in Florida and to control the operation of the major recharge or

resevoir area of Florida. This district has only recently come into establish-

ment by appointments of the board members by the governor; and the district

completed its third or fourth formal meeting yesterday in Brookaville. Its

headquarters are established there, and it is now employing a staff and con-

Suiting engineers to get to work. This new water management district has some

concepts in it other than just the concept of banding together just to manage

water. It also envisions the concept of dividing the state into natural geographic

areas. In a state that has as flat a topography as Florida has, it's a little

difficult to do that and sometimes some of these divisions must also be made

on political lines but it has a concept of there being a large basin or district

board to govern this 14-county area and then sub-dividing that into some six or

Seven major basins based upon the natural flow of the water and following the

water flow lines.

The tax rate and the tax structures in each of these areas will be differ-

ent. For instance, the district can levy up to three tenths of a mill, district-

wide, for district-wide purposes. That millage will not always be even.

Though the maximum to be levied is set at three tenths of a mill, the district

maximum levied in each county may be different because the formula of setting

up this tax base recognizes that counties are set differently and tries to make

adjustments for those variations in village under an adjustment formula The

same thing holds true for the tax in the basins and a basin can touch as many

as three or four counties. These basins can levy up to one mill for water

management purposes and for construction, and each county although it may

be paying a maximum of one mill would have a different tax rate, because

this law recognizes the difference in these tax rates and uses the Railroad

Assessment Board figures as being a standard and adjusts upon that.

I would have to predict that it would take about anywhere from five to

seven years for this district to become fully operative, and for the results of

it to become known. It will need substantial federal and state appropriations

to ever carry out and to manage the water, as we know the problem now is.

Any discussion of this entire topic of conserving Florida's water

resources would be short if it didn't cover the fine work that is being done by

the Soil Conservation Districts in Florida. These conservation districts are

primarily oriented to soil conservation practices. These people long ago

recognized that water, and the control of water, was one of the best ways to.

conserve our soil. These districts are doing wonderful jobs throughout many -


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areas of Florida in conserving not only soil but water.

I would also like to point out that under that Water Management Law,

or that water policy law that was enacted in 1957, we did give the State Board

SConservation the power to regulate the withdrawal of water from lakes and

streams and from ground water sources. And right here in this area that we

are in today the first Water Resource Regulation District has been set up. This

District is designed to help manage or at least to referee the management

of a portion of the water in the northwest part of this County where the

people who own the land there have found or certainly believe that much

of their water is being withdrawn and piped off to the City of St. Petersburg

and other parts of Pinellas County for use there. Let me tell you as a legis-

lator that it is really a vexatious problem to try to settle the differences

between yourconstituents and somebody who lives outside the boundaries of

your constituency when it comes to the division of the water resources. I

hope that this Water Resource Regulation District No. 1 will serve as a model

for the problem that is bound to come up in other areas of the State. From

having talked to other legislators,, I know that they are beginning to experience

that problem in their end of the State.

Another thing we have done here and I'm sure it has been done in

other areas to regulate water resources is to insert provisions in our plat-

ting laws which we hope will discourage the platting of submerged subdivisions.

We have seen in the past many subdivisions platted that never should have been

withdrawn from their natural state. Our platting laws here locally prohibit the

platting of subdivisions in areas that are susceptible to periodic flooding. We've

also passed a law that requires our county engineer to establish and to mark

out on maps to the County those areas that are susceptible to periodic flood-

ing; and we've also required and allowed the City and County to prohibit the

issuance of building permits in those areas.

No discussion of the tools that we have available for water management

and water resources would be complete without mentioning the federal par-

ticipation in this program. Right now there is a massive study going on -

known as the Southeast River Basin Study touching the northern part of Florida,

the eastern part of Alabama, practically all of Georgia, part of South Carolina

and about two hundred square miles into North Carolina. This study will be

completed in 1963 and will highlight the development of the water resources of

those basins. The federal government is also authorizing a tremendous amount

of state compacts, or interstate compacts, to set up regulatory bodies under

Congressional supervision but working at a state level to work out the water

resource problems of the United States. Senator Kerr from Oklahoma con-

ducted a very extensive study throughout the United States and has written a

report dealing with all of the water resource problems of the United States.

Its summaries and conclusions are very significant, and I would suggest in

your planning activities.that you get hold of a opy of some of Senator Kerr's

material. President Kennedy has orgenised a Natural Resource Advisory

Committee. I have had the pleasure of participating in several meetings of

this Committee and can tell you that there are big plans ahead for the future.

Now, what can we do as Floridians to work on this problem? First

of all, I think we have to resolve to make better use of the tools that we have.

Ive mentioned these things such as water management districts and water

regulatory districts that can be set up under the State Board of Conservation.

I think one at the problems that we have and certainly one that I have recog-

nized most in the Legislature is the matter of lack ao education on this matter

of water resources in Florida. I often hear people from the canning industry

and from the citrus industry and from other agricultural pursuits those people

whose very lifeblood depends upon adequate supplies of surface water and

ground water come and complain to the Legislature that they didn't want any

regulation as far as wells were concerned or as far as withdrawal of water

was concerned. I mention this particular problem of wells because we have

had so many wells in Florida become highly mineralized because of poor well

construction. The Florida Legislature even enacted a bill requiring the capping

af all artesian wells in Florida a few years ago. Had that bill ever been

implemented we would probably have polluted a great many wells because many

of these old artesian wells cannot simply be capped but must be plugged. The

water that now flows from these artesian wells is highly mineralized in some

cases and has a high percentage of salt in it, not too salty for agricultural

purposes, but too salty for other purposes; and these wells, geologists tell us,

are becoming more mineralized. Therefore, these wells cannot be capped

helter-skelter, but each well must be analyzed properly; and a great expense is

going to have to be laid out to plug some of these wells. But, I've had people

from industry as recently as this last session of Legislature say they just

don't want the well drilling regulated, which actually throws them open to the

poasibiblity of allowing someone on adjacent property to sink a horrible well

that's not cased and that could pollute their entire Wource of water. That has

happened in Florida and will continue to happen until we have effective well


We are going to have to set aside additional areas for storage. We are

attempting that in this Southwest Florida Water Management District. We

hope to set aside a great portion of this 800-square-mile Green Swamp area

back into public use; and we hope to build additional water storage areas where

this water that comes down to us as rain can be stored and allowed to trickle

off into our underground apertures for the use of all the people of Florida.

I hate to mention trying to teach something about this in school. The

schools have got more problems than they'can now cope with, but I think it's

essential that we at least educate our leaders in planning and in government

that Florida does have water resource problems, and that we need wise and

respected use of our water resources. I suggest that, in our colleges, our

junior colleges, in forums, and in short courses, at least a few hours of dis-

cussion be given to this essential problem.

The State also needs a better water resource law. As I said, the 1957

beginning was a very timid one. It is not clearly written and it demands, I

think, a complete rewriting. The Division-of Water Resources has never had

an adequate appropriation so as to adequately sta itself and tocarry on it

work; and, therefore, I mention that adequate appropriations are always


There's also a need for greater coordination of our efforts in water

resource control. The Road Department plays an important part in the diversion

of ground and of surface waters. By planning roads we ca actually effect

iLke areas to hold back the anm-off of surface waters. Development of

recreation area. is also an effective way of providing fishing and sightseeing

areas for our people while also providing recharge areas for our underground

water supplies. The development of part of our waterwayif system for trans-

portation offers us the advantage of being able to create larger storage areas.

This old Barge Canal that has beensoa controversial in Florida will provide -

we are now told additional water storage area in Central Florida by virtue

of the one dam and the five lock systems that will be necessary to control the

operation of the Oklawaha River and the Withlacoochee Rivers. Greater need

must be placed upon subdivision regulations to keep the ambitious developer

from taking marginal lands and placing them in subdivisions, and roads that

will prevent the adequate recharge of our underground apertures.

Now, I think that you as planners and I think that most of you have

already thought about this, and I'm sure that some of you are already doing it *

must realize, that there is really no substitute for nature's supply of water;

that cloud-seeding is, at best, extremely risky, and probably very inadequate

for supplying water; that salt water conversion although it is possible and

has always been possible is extremely expensive even under the very best

of circumstances. We must profit by our mistakes. Let us not destroy our

water resources as we destroyed our timber resources. You can regrow a

tree in some 15 or 20 years, but if we allow salt to intrude in our water

resources, if we dry them up on the surface, if we destroy them underground,

it will take centuries to restore them; and we certainly cannot wait that long

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tor aotber drink ao water. So, it aoy o your planning a Ues, hep. water

oremost in your mind. It hbould be oe ot the top itema In playing today.


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Roy R. Akroyd
Wilton Manors, Florida

Franklin B. Albert
Orlando, Florida

., D. Alexander
Ft. Pierce, Florida

RyJ. Amos
o Florida

William T. Arnett
Gainesville, Florida

R C. Badger, Jr.
Oca, Florida

red H. Bair
Auburndale, Florida

Edward Bandblow
Lake Worth, Florida

Robert M. Berg
Ft. Lauderdale, Florida

Sidney A. Berkowitz
Jacksonville, Florida

L, M. Blain
Plant City Florida

Frank Blandford
Tampa, Florida

Joseph Bonnean
Sforth Miami, Florida

- E. Booth
Cocoa, Florida

Frank Branan
Tallahassee, Florida

Valentyne E. Brennan
Boca Raton. Florida

Bob Brockway
West Palm Beach, Florida

Mrs. Margaret Brown
Tampa, Florida'

Sylvan B. Burdick
West Palm Beach, Florida

H. 4,. Burke
Daytona Beach, Florida

John H, Bush
Miami, Florida

Lawrence W. Carroll
Orlando, Florida

James E. Cavanah
Lakeland, Florida

Nowman S. Clayton
St. Petersburg Beach. Florida

William H. Coster, Jr.
Washington, D.C.

Robert E. Crosland
Punta Gorda. Florida

Gerald L. Dake
Jacksonville, Florida

William R. Dale
West Palm Beach, Florida

Russell J. Ebker
Oakland Park, Florida

George F, Emery
Ft. Lauderdale, Florida



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Andrew L. Fabens
Delray Beach, Florida

William W. Fagan
Miami, Florida

H. Pierce Ford
Tallahassee, Florida

George B. Foss, Jr.
St. Petersburg, Florida

Paul Funderburk
Tampa, Florida

J. Martin Gainer
Tallahassee, Florida

John N. Gibson
Miamsi Florida

Mrs. Truman Green
Tampa, Florida

Don Greer
Tampa, Florida

Rudy Grossei
Wilton Manors, Florida

Eddie Hatner
Tallahassee, Florida

A. W. Hagan
Ocala Florida

Karl H. Haller
West Palm Beach, Florida

William Harkness, Jr.
Tampa, Florida

LaRue John Hastings
Ocala, Florida

Charles B. Henderson
West Palm Beach, Forida

Frances W. Henderson
West Palm Beach, Florida

Ford Holland
Cocoa, Florida

Walter R. Hooker
Belle Glade, Florida

Richard A. Hopke
Ormond Beach Florida

W. J. Huffman
Miami Springs, Florida

James N. Hutchinson
Neptune Beach, Florida

Russ Jacobsen
Clearwater, Florida

George S. Jenkins
Tampa, Florida

Mrs. Beth Johnson
Orlando, Florida

Warren Johnson
Sarasota, Florida

C. B. Jones
Tampa, Florida

L. M. Jones
N. Miami Beach, Florida

Roscoe H. Jones
Miami, Florida

Elias I. Keloey
Temple Terrace, Florida

F. W. Kessler
west Palm Beach, Florida

Mrs. Pegg Kitchens
Tampa, Florida


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Ocar QKlein
Vilton Manors, Florida

Dael P. Krume1
Pensacola, Florida

Arthur M. Kruse
Clearwater, Florida

W. B. Leonard
lt, Lauderdale, Florida

olenn Luzier
ampa, Florida

il Lynch
ampa, Florida

Lake Lytal
West Palm Beach, Florida

Philip McGuire
arasota Florida

chard W. Madaus
eptune Beach, Florida

B. B. Marshall
Coral Gables, Florida

Jesse J. Martin
Hollywood, Florida

Lee Maxwell
Deland, Florida

Robert D. MaxweU
South Miami, Florida

Veronica S. Market
West Palm Beach, Florida

Bill Miller
St. Petersburg Beach, Florida

Irving Moss
North Miami Beach, Florida

Owen M. Moss -
Largo, Florida

Bernie Munsey
West Palm Beach, Florida

James G. Pace
Miami, Florida

John G. Page, Jr.
Largo, Florida

A, G. Pattillo
Orlando, Florida

George L Paver
St. Petersburg Beach,


R. W. Pavitt
Sarasota, Florida

Philip W. Pitts
Tallahasee, Florida

G. A. Prine
Tampa, Florida

Quinton C. Vrooman, Jr.
West Palm Beach. Florida

Mike Reuben
Miami Beach, Florida

E. Gene Rich
Orlando, Florida

Bruce Robbins, Sr. :
Tampa, Florida

John Robbins
Sebring, Florida

Jack Rodriques
Tampe, Florida

William C. Roop
Ft Lauderdale, Florida


Howard R Ilybolt
Orlando, Florida

George A. Satnor4
Lakeland, Florida

Robert F. Savadge
Bradenton, Florida

Edwin S. Schmucker
Vero Beach, Florida

Robert Selg
Oakland Park, florida

George W.. flva
SOrmond Beach Florida

Jack Silverman
Miami, Floridi

Alexander Simon
Lake Worth, Florida

George W. Simons, Jr.
Jacksonville, Florida

David Simpson, Jr.
.iami, Florida

Martin l. Smith, Jr.
Tampa.. Florida

Milo Smith
Tampa. Florida

Haley Sotge
Miami, florida

Frank F. Stearns
Miami, Florida

Don Stonebraker
Hollywood, Florida

D. B. Stonebreaker
Orlando, Flrida.

- I


Albert Stovr, Jr.
St. Petersburg Florldi

Jack Tallent
Clearwater, lorida

Charles P. Tracy
Ormond Beach, Florida

W. H. Turner
Everglades, Florida

W. W. Upham
St. Petersburg Beach, Florida

Bil Vines
arasota, Florida

John E. Vinant
Miami, Florida

Aubrey t Waddell
Vero Beach, Florida

Charles Walker
St Petereburg Beach Florida

John Wallace
St. Petersburg. Florida

Harry Weedon
Tampa, Florida

Charles Weinberg
Miami Beach. Florida

Glen Westrom
W-iami, Florida

Richard W. White
Pensacola, Florida

D. Vincent Wilder
Bradenton, Florida

Jack S. Willson, Jr.
West Palm Beach, Florida


~;y~ss~i -' .ameys~ -~~

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Walter V. Winchester
Dunedin Florida

George E. Wingerter
Miami, Florida

Jack Wolle
Clearwater, Florida

Fred J. Wysor
Tampa, Florida

M. A. Yelvingsr-
Sanford, Florida

G. E. Youngberg, Jr.
Venice, Florida

R. E. Yonge
Ocala. Florida

Don J. Zanca
Wilton Manors, Florida

Jess Yarborough
Miami. Florida



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