HomeMy Public PortalAbout201105 Tybee Island Wave Ecology Technical Report.pdf
TECHNICAL REPORT
Tybee Island
Wave Ecology & The Highway 80 Challenge
Prepared for Chatham County & The City of Tybee Island
May 2011
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Technical Report – May 2011
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Chatham County Board of Commissioners City of Tybee Island Mayor & Council
Pete Liakakis, Chairman Jason Buelterman, Mayor
Helen L. Stone, District 1 Shirley Sessions, Mayor pro tem
James J. Holmes, District 2 Wanda Doyle, Councilwoman
Patrick Shay, District 3 Bill Garbett, Councilman
Patrick K. Farrell, District 4 Frank Schuman, Councilman
Harris Odell, Jr., District 5 Kathryn Williams, Councilwoman
David M. Gellatly, District 6 Paul Wolff, Councilman
Dean Kicklighter, District 7
Dr. Priscilla D. Thomas, District 8
County Manager City Manager
R.E. Abolt Diane Schleicher
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Table
of
Contents
Executive Summary
vi
1.0 Introduction & Overview
1
1.1 The Highway 80 Challenge: Thinking Beyond the Highway
1
1.1.1 Wave Ecology & The Data Compilation
1
1.2.2 The Highway 80 Challenge Study Committee
2
2.0 Wave Ecology Study: Summary of Findings
3
2.1 Carrying Capacity – The Human Application
3
2.2 Carrying Capacity for the City of Tybee Island
4
2.2.1 Population, Affluence, and Technology Factors on Tybee Island
4
3.0 Solution Strategies – The Study and Committee Results
12
3.1.The CORE MPO Matrix of Challenges and Potential Solutions
13
3.2.1 Final Committee Strategy Report
14
4.0 Conclusion
17
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Tables
Table 1. Wave Ecology & The Highway 80 Challenge Committee Members
Table 2. Wave Ecology & The Highway 80 Challenge Working Sub-Committees
Table 3. Final Committee Strategy Report
Figures
Figure 1. Carrying Capacity – The Human Application
Figure 2. Tybee Island Weekly Traffic Counts January – July 2010
Figure 3. Flooding & Highway 80
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Appendices
Appendix A: Carrying Capacity Matrix
Appendix B: Wave Ecology Study Resulting Maps
Appendix C: Wave Ecology Sub-Committee Data Summary Sheets
Appendix D: CORE MPO Matrix of Challenges and Potential Solutions
Appendix E: Wave Ecology & Highway 80 Committee Full Strategy Report
Appendix F: Committee Meeting Summaries
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Executive Summary
The Wave Ecology and Highway 80 Challenge Study was commissioned by Chatham County to assist the
City of Tybee Island (and a committee of government and agency leaders) in defining localized solutions
to issues surrounding the safety of citizens and visitors. Recognizing that often there is greater
complexity to issues, and greater opportunity for solutions through a holistic study, the Chatham County
Board of Commissioners adopted and appropriated funding in July of 2010. This appropriation began
the process for a comprehensive study built upon principles of urban ecology and integrated the results
into the solution finding process of a committee coordinated by the Coastal Region Metropolitan
Planning Organization (CORE MPO). The integration of technology through the application of a website
maintained by the CORE MPO, www.thempc.org/Transportation/WaveEcologyStudy.html, was
instrumental in keeping the wealth of data and ideas organized.
Results included within this technical report reflect a variety of near-term strategies for addressing public
safety concerns along the Highway 80 corridor. These solutions provide a mix of opportunities for agency
collaboration, public/private partnerships, and public involvement through social media outlets. While a
number of strategies were proposed during this process, the committee selected the following five near-
term strategies to implement during Phase 1:
1. Install road signage to address special features related to safety concerns.
• Install “Road Narrows” signs in advance of bridges as a safety precaution for drivers.
• Install “Share the Road” sings along the Highway 80 corridor to warn vehicular traffic of
possible cyclists and pedestrians.
2. Establish a bus or shuttle service during special events and inter-island options during peak tourism periods.
3. Establish and maintain an ongoing bus/shuttle service through the Coastal Regional Commission.
4. Utilize signal timing and Intelligent Transportation Systems (ITS) during special events.
• Update signal-timing boxes on traffic light systems at Johnny Mercer & Hwy 80.
• Install ITS units during special events.
5. Utilize social media to disseminate information to the public.
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1.0 Introduction & Overview
1.1 The Highway 80 Challenge: Thinking Beyond the Highway
Solution finding processes for community planning often require thinking beyond the traditional
boundaries of one planning sector. Federal organizations, such as the Department of Transportation, the
Department of Housing and Urban Development, and the Environmental Protection Agency, recognize
this under the terminology of “Sustainable Communities.” This sustainability is derived from integrating
planning processes for transportation, economic development, housing, and the environment into one
holistic framework. This study, funded by Chatham County, sought to integrate this outside the box
thinking with a solutions oriented committee to determine near-term strategies that may be integrated on
a local level. The unique nature of this study assimilated an ongoing process of data collection and
analysis through urban ecosystem planning with the volunteer time of key community leaders.
1.1.1 Wave Ecology & The Data Compilation
Urban ecosystems are not well understood, but they are absolutely critical to the health, economy, and quality of life
of people who live in urban areas.
- Charlie Lord, Former Executive Director of Urban Ecology Institute
The concept of wave ecology is rooted in a subfield of environmental studies titled urban ecology. This
school of thought seeks to understand the natural systems of urban areas and the threats that face them.
Knowing the relationships of the urban environment and the human impacts through pollution, over
development, and other pressures assists community planners and policy makers in designing healthier,
well-managed communities. The same is true for understanding the health and safety of citizens within
a community. These factors may relate to emergency management needs, as well as general day to day
operations. Many coastal communities across the world contend with tourism waves that stress the
capacity of a community. The fluctuation of Tybee’s variables or “waves” related to these population
changes (peak tourism) and the natural climate (tidal changes, sea level rise) led to the naming of this
study “wave ecology.”
This study integrated raw data analysis with visual, user-friendly geo-spatial and technological tools to
reveal the waves impacting Tybee Island. Through the integration of Geographic Information Systems
(GIS) and a variety of modeling software, multiple arrays of data were presented to bring clarity to the
question of “How many people can Tybee Island safely accommodate?”
Within this study the human application of carrying capacity is utilized to gain a consistent and clear
image of the City of Tybee Island, it’s citizen population, it’s natural resource limitations, and it’s existing
infrastructure. By understanding where the environment, the economy and the social community
overlap, innovative solutions on the health and sustainability for the island emerge.
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1.2.2 The Highway 80 Challenge Study Committee
The unique nature of this project began with the formation of a diverse volunteer committee comprised of
government leaders, agencies, and organizations throughout Chatham County and the coastal region.
This committee reviewed and assessed data resulting from the “Wave Ecology Study” as it emerged.
Insight was given and the growth of the study was able to be flexible to the backgrounds of committee
members. Summaries from committee meetings are included in Appendix F. A listing of committee
members is included in Table 1.0.
Table 1. Wave Ecology & The Highway 80 Challenge Committee Members
Committee Member Represented Agency/Organization Title/Role
Russ Abolt Chatham County County Manager
Jimmy Brown City of Tybee Island Tybee Emergency Management Coordinator
Robert Bryson Tybee Island Police Department Police Chief
Jason Buelterman City of Tybee Island Mayor
Leon Davenport Chatham County County Engineer
Wanda Doyle City of Tybee Island Council Member
Robert W. Drewry Chatham County Director Public Works & Park Services
Pat Farrell Chatham County Board of Commissioners County Commissioner
Rochelle Ferguson Low Country Regional Transportation Authority Executive Director
Anthony Gallo Savannah – Chatham Metro Police Department Sergeant of Police
William Garbett City of Tybee Island Council Member
Bill Greenwood Dafuskie Island Council Council Member
Jonathan Hagan Tybee Island Police Department Captain of Police
Ben Herron Savannah – Chatham Metro Police Department Captain of Police
Chris Hutton Low Country Regional Transportation Authority Board Member
Ethan Imhoff City of Tybee Island Director of Planning
Michael Izzo Savannah – Chatham Metro Police Department Traffic Division
Bethany Jewell Chatham County Personal Contract – Wave Ecology Study
William Lovett Savannah – Chatham Metro Police Department Chief of Police
Chantel Morton City of Tybee Island Better Hometown Coordinator
Chad Reese Chatham Area Transit Executive Director
C.L. Sasser Tybee Island Fire Department Fire Chief
Brad Saxon Georgia Dept. of Transportation District 5
Diane Schleicher City of Tybee Island City Manager
Clayton Scott Chatham Emergency Management Agency Director
Teresa Scott Georgia Dept. of Transportation District 5
Patrick Shay Chatham County Board of Commissioners County Commissioner
Tom Thomson Coastal Region MPO & Chatham – Savannah
Metropolitan Planning Commission
Executive Director
Wykoda Wang Coastal Region MPO Transportation Planner
Joe Wilson City of Tybee Island Director of Public Works
Paul Wolff City of Tybee Island Council Member
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2.0 Wave Ecology Study: Summary of Findings
Framing for the Wave Ecology Study was defined under the term of “carrying capacity.” This term,
utilized in the 2008 Tybee Island Master Plan (a component of the Tybee Island Comprehensive Plan),
allows a variety of variables to be analyzed to determine the health and long-term vitality of a
community. Understanding the human application for carrying capacity was chosen as a key principle to
assist committee members in developing economically feasible, near-term solutions to the challenges of
highway safety and community health for Tybee Island.
2.1 Carrying Capacity – The Human Application
Carrying capacity is often utilized by ecologist to examine the maximum population of species that can be
sustained in their given environment. The human application of carrying capacity began in the 1960s and
gave rise to the equation I=PAT. This equation reveals that the carrying capacity for humans is not only
related to population size, but to many levels of consumption, which are in turn impacted by the
technologies and economies involved in the production of those consumer goods as outlined in Figure 1.
Variables within this equation have the opportunity to be impacted or reduced through regulatory and
policy choices related to the current and future use of Tybee Island. These offer solutions beyond costly
infrastructure investments, centering instead on growth management and a diversified tourist product.1
Figure 1. Carrying Capacity – The Human Application
1
Coccossis, Harry and Alexandra Mexa. 2004. The Challenge of Tourism Carrying Capacity Assessment.
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2.2 Carrying Capacity for the City of Tybee Island
Carrying capacity is not a scientific concept or formula of obtaining a number, beyond which development should
cease. The eventual limits must be considered as guidance. Carrying capacity develops with time and the growth of
tourism and can be affected by management techniques and controls.
-Alexis Saveriades, 2000, “Establishing the
social tourism carrying capacity for the
tourist resorts of the east coast of the
Republic of Cyprus.”
Within this study, carrying capacity will not reveal a definitive number. Instead this study should be
regarded more as a management tool to assist in understanding the framework around Tybee Island and
the policy choices that may impact that framework. The I=PAT formula illustrates the importance of
many factors in the health of a community and reveals opportunities for policy and planning decisions
that can increase the health, vibrancy and sustainability of Tybee Island. Further data on the carrying
capacity for Tybee Island can be found in the Carrying Capacity Matrix located in Appendix A.
2.2.1 Population, Affluence, and Technology Factors on Tybee Island
P - Factor (Population)
The population factor for tourist communities is a fluctuating variable. Unlike stable bedroom
communities that are primarily comprised of year-round residents, peak seasons and daily weather
patterns create an unpredictable population wave with crests and valleys. These waves greatly impact
the other variables of technology and affluence that help to comprise the human carrying capacity.
According to the 2000 Census, the City of Tybee Island had a resident population of 3,392. While this
number represents the municipality, a portion of the island not included within the municipal boundary
increased the population to 3,713. The percentage of household residents per each Census block on
Tybee Island ranges between 58% and 68% of the total housing units available on the Island, revealing the
significant tourist rental trade. These numbers are important for policy makers and private industries
when choosing how to smartly balance the footprint of the population on the ecosystem. However, as
discussed above, a legacy of tourism alters these numbers dramatically. Planning for infrastructure needs
based on 3,000 is much different than a high peak demand time where potential visitors can be much
greater. It is important to note that recent releases of the 2010 Census data show a small decline in these
population numbers.
According to numbers from the Tybee Island Tourism Council, tourist population numbers average
10,000 persons during the months of June, July, and August. These estimations are gathered from rental
units and their vacancy ratings. Missing, is the link of daytime tourists or “day-trippers” from
neighboring areas. Data revealed through traffic counts during this study showed large weekend
populations occurring from April through August for the year 2010 as depicted in Figure 2.
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Figure 2. Tybee Island Weekly Traffic Counts January - July 2010
As noted in Figure 2, the peak of July 3rd brought 16,173 vehicles onto Tybee Island. Making
assumptions from this data, beyond understanding the number of vehicles, would be erroneous.
However, after extensive discussion with the City of Tybee Island Police Department, it was determined
to utilize their simple hypothesis method to understand the potential population fluctuations for Tybee
Island. Utilizing a very basic assumption of two persons per vehicle, one could hypothesize over 30,000
persons on the island. While the accuracy of this number is questionable without conducting a survey, it
offers a picture of the large flux (3,000 to 30,000) policy makers on Tybee Island must consider when
choosing policies related to emergency management, general safety, and basic infrastructure needs such
as water supply and treatment.
Certainly a more extensive study should be conducted if policy makers seek to understand this variable
with large impacts on the island. Further data that could assist in gaining a clear picture of population
include surveys of persons per vehicle coordinated with detailed hourly traffic counts during peak
seasons that include directional flow both onto and off of the island, as well as correlating it with data
from the hotel and motel industry.
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A - Factor (Affluence)
As defined by the I=PAT equation, the carrying capacity for people is not only related to population size,
but must include the many levels of consumption for that community. This can include a variety of
variables from economic spending power to the actual consumption trends of a population.
Services and Commodities
While many of the daily human needs for citizens may be met on Tybee Island, they all rely on one
modality source external to the municipal boundaries of the City. Services such as food, fuel, medical
personnel and consumption commodities do exist within the City’s boundaries, but in order to have a
daily presence they must travel the Highway 80 corridor. While less of a concern for inland
municipalities with multiple connection points to neighboring services, this unique situation presents
concerns on the sustainability of Tybee Island. Maps located in Appendix B illustrate the fragile nature
of the current quality of life citizens and tourists depend on via the Highway 80 corridor.
Variables related to the affluence of a society travel beyond the locations of stores and commodities.
They must include income levels, employment opportunities, and a clear understanding of which
economic sectors drive the affluence of the community. As a resort destination, Tybee Island has three
NAICS code sectors employing over 20 people according to the 2002 Economic Census. These include the
retail trade sector (59 employees), real estate/rental sector (23 employees) and the accommodation and
food service sector (322 employees). While linked to the tourism market, these economic engines also
rely on a specific tourist product and goods imported via the Highway 80 corridor. Further assessments
on the ratio of annual residents employed in these sectors will reveal greater detail on the economic
picture.
The Power of Per Capita
According to the 2000 Census, the per capita income for annual residents on Tybee Island ($32,406) lies
above the national average ($21,587) and nearly double the City of Savannah average ($16,921).
Purchasing power cannot be concluded based simply on the per capita income for a region, yet it remains
important to note this affluence factor. Based on this same Census data, the median for monthly mortgage
payments for owner-occupied housing on Tybee Island was $1,261. When viewing this data as a
percentage of total household income the two largest percentages are opposing. Mortgage payments for
36.6% of citizens is less than 15% of their total household income, while mortgage payments for 20.3% of
citizens is 35% or more of their income. This data may indicate a variety of factors related to real estate
values and suggests potential economic home-ownership retention issues for the over 20% of citizens
paying 35% or more of their monthly income on a mortgage. A close examination of the recently
released 2010 Census data may offering greater insight into changes related to the housing market
downturn that occurred between 2008-2010.
The influx of a tourist population, and the clear indicators of tourism as the main economic engine for
Tybee Island reveal that affluence factors may fluctuate in the same manner as population variables since
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the affluence of a society is directly linked to the population demographics of that society.
T - Factor (Technology)
As noted earlier, applying carrying capacity to many American communities may almost be deemed
pointless. In many ways municipalities are structured in a global society far beyond the capacity of one
community. For Tybee Island this is certainly true. The infrastructure (technology factor) of energy
sourcing, medical services, solid waste disposal, economic engines, emergency response, and consumer
goods for the expected quality-of-life are all currently being imported or exported. While this
community pattern occurs in many areas, there is one stark difference. The City of Tybee Island must
rely upon two bridges and one six-mile roadway for connectivity, rather than the flexibility of multiple
roadway connectors, train, shipping, and airline infrastructure of most areas.
Taking a closer look at what infrastructure is available to the community, and what infrastructure has
future development potential, may assist in understanding this question of carrying capacity. Each T-
Factor sub-category described below is supported by a variety of maps and data available at Appendix B.
Water & Sewerage
One of the most fundamental infrastructure factors for a community is the development of their water
supply and treatment. Tybee Island, like most of the coastal South Carolina, Georgia, and Florida region
relies on groundwater from the Upper Floridan aquifer system.
Prior to the population growth and industrial development of the 20th century, the aquifer systems of
Georgia, including the Upper Floridan aquifer, were fed by recharge areas from an east-southeast
direction, extending in a broad arc from Valdosta to Waynesboro. This groundwater system eventually
discharged offshore. After World War II well systems were implemented to pump this pristine water
supply for development needs. By the 1970s urban centers around Hilton Head Island, Savannah,
Brunswick, Jesup, Riceboro, St. Marys, and Jacksonville were pumping at large rates that formed cones of
depression in the potentiometric surface. As a result, the water flow direction changed, bringing oceanic
or salt water into the aquifer system.
This concern over water supply and the intrusion of saltwater into the Upper Floridan aquifer led to the
development and adoption of the Georgia Water & Wastewater Plan for Managing Salt Water Intrusion
in 2006. Within this plan the City of Tybee Island (Chatham County) is located in a Sub-Region 1 Red
Zone, which adopted a no net increase goal for extraction from the Upper Floridan aquifer.
As of January 2011, Tybee Island’s water withdrawal permit allots for a daily withdrawal of no more than
914,000 GPD (gallons per day) not to exceed an annual average of 0.96 MGD (million gallons per day)
related to concerns over continued saltwater intrusion. According to EPA estimations, 914,000 GPD
services just under 10,000 persons. While not a direct concern when considering the residential
population, the introduction of a tourist population stresses this permit limit.
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Housing
According to the 2008 Tybee Island Comprehensive Plan, the City of Tybee Island has closely reached it’s
build-out potential. While density changes from single-family residential to multi-family can increase the
population size and opportunity for carrying capacity related to housing, the availability of undeveloped
land is limited, as noted in the 2008 Existing Land Use Map from the Tybee Island Master Plan.
According to the 2000 Census, there were 2,859 housing units on Tybee Island. Only 41.75 percent of
these units are owner occupied, with 40.35 percent of the units vacant or utilized as short-term rentals.
Thus, the large economic engine of tourism emerges once again. Making a simple population extraction
based upon the current household size and existing housing units (includes owner occupied and
second/rental homes), a housing capacity of 5,918 persons emerges.
Mobility
The history of mobility onto Tybee Island reveals many modes and methods that frequently overlap to
meet the service needs of citizens and visitors. The current mobility infrastructures for the Island are
discussed below.
Island Access
Roadway/Auto:
Determining the roadway capacity requires a number of variables related to the specific corridor under
examination. Issues such as travel speed, ingress and egress points onto the roadway, as well as lane
shifts and turns are all calculated to provide a vehicle capacity number. Conducting such a study for the
Highway 80 corridor is not a direct scope for this report. However, defining a relatively accurate variable
is critical in gaining clarity on the carrying capacity for Highway 80. After consultation with traffic
engineers, the Highway Capacity Manual v.2000 and several studies on similar roadways, a capacity level
of 12,000 vehicles per day per direction was chosen.2
According to traffic count data maintained by the City of Tybee Island, approximately 11 percent of the
time (23 days) between January and July 2010 the highway exceeded its capacity. Friday, Saturday, and
Sunday comprise the majority of these days.
However, it remains important to note that roadway capacity on a daily basis, may result in a much
different performance when assessed at an hourly rate. For example, traffic counts over the Labor Day
Weekend (September 3rd-6th) revealed that the highway capacity was exceeded, based on the
assumption of 12,000 vehicles per day. Analyzing fifteen minute intervals on the hourly
Volume/Capacity Ratio (v/c) revealed that while the daily capacity was breeched, at no one set time did
2
Numbers given are for estimation purposes. Exact highway capacity would need further calculation and traffic count data collected from two-lane
portion of the roadway. Traffic count data presented represents the four lane capacity area where two lane capacity of the Lazaretto Creek bridge
turns into four lane. Since few ingress and egress points are located between the two-lane to four-lane conversion, the data may sill be utilized for
estimation purposes.
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the v/c ratio reveal maximum capacity. This result indicates that while a daily examination of the
corridor exposes a stressed roadway during times of peak tourism, the actual flow capacity for Tybee
Island may not be breeched. Utilizing detailed traffic counts that assess time intervals over an extended
period of months may help bring clarity to understanding the annual capacity.
Roadway/Bike:
Bicycle access was noted as an important mobility option in the 2008 Tybee Island Master Plan. Existing
infrastructure on the McQueen’s Island Bike Trail offers the opportunities for recreational, as well as
commute cycling uses. However, two disconnect points exist within this infrastructure at the Lazaretto
Creek Bridge and the Bull River Bridge, where cyclists must share travel lanes with automotive traffic.
Both Highway 80 and the McQueen’s Island Bike Trail remain threatened by high tides and sea level rise.
According to the Chatham County Shallow Coastal Flooding Model roadway capacity is impacted at 9.2
feet MSLW and completely impassible by automobile at 10 feet MSLW. A brief movie of the model
depicting these impacts of tidal rise on the roadway can be accessed by visiting
www.thempc.org/Transportation/WaveEcologyStudy.html. Figure 3 outlines the frequency at which the
Highway 80 corridor was impacted due to tidal levels over the past year. Repeat flooding on a roadway
often reduces the lifespan of the infrastructure.
Figure 3. Flooding & Highway 80
Note that all infrastructure for mobility onto the island currently requires private ownership of an
automobile or boat. In 2010, the City of Tybee Island launched a partnership with the Coastal Regional
Commission to provide twice-daily public transportation from downtown Savannah to Tybee Island.
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Marinas:
Communities, such as Tybee Island, have the potential for multiple modes of transport beyond land.
Fostering this mode of transport from a recreational base to commuter base requires an evaluation of the
infrastructure in existence, as well as an evaluation of the larger connectivity points to bus or shuttle
routes. A detailed study for the coastal Georgia/South Carolina region was conducted with results
compiled into an interactive Google map with public access. This map may be found by visiting
www.thempc.org/Transportation/WaveEcologyStudy.html. Currently two marinas offering dock space
are located on Tybee Island near the Lazaretto Creek Bridge.3
When assessing waterways for mobility rather than simply recreation, fuel sourcing, repair services, and
connectivity to alternative transport (bus, van shuttle, pedestrian, bike, etc.) must be considered. Looking
closely at the existing infrastructure offers many potential public /private partnerships to enhance this
form of mobility for Tybee Island.
Inter-Island Access/Activity Hubs
Land use patterns for the City of Tybee Island expose areas with concentrated activity resulting from the
tourism industry. The current tourist products for Tybee Island link to historical areas, such as the Tybee
Island Lighthouse, the oceanfront, and the Strand Downtown Historic Business District. Festivals and
activities are typically located in these areas, with the majority of events being held in the Strand
Downtown Historic Business District, as depicted in maps located in Appendix B.
Parking and inter-island mobility has been an issue in the past for the City of Tybee Island. With a
current public parking space limit of 2,121 and a vehicle count exceeding 12,000 daily during peak tourist
times, the capacity for Tybee Island to maintain the level of tourism sought with current infrastructure is
strained. Many communities faced with this issue are seeking to diversify their tourist product by
integrating mobility both onto the island, as well as inter-island into their tourism economy
Solid Waste
The City of Tybee Island relies on areas external to their boundaries for handling municipal waste. Both
solid waste and recycling are all handled through a private contract with Waste Pro. These items are
transferred via the Highway 80 corridor. As noted earlier, the sensitivity of the roadway to flooding may
offer the opportunity to engage public policy and emergency management in a backup plan to assist in
the management of waste in the instance that the connectivity is severed for a period of time.
Electricity Supply
When considering the carrying capacity for an area related to the current quality of life, electricity
consumption becomes a key element. Currently, for both the municipal and community use, the vast
majority of electricity is supplied external to the area. Georgia Power provides grid electricity to Tybee
Island through the International Paper Savannah Mill and Plant Kraft. These facilities receive coal
supplied from Scott’s Branch Mountain in Kentucky.
3
Data compiled from Dozier’s Waterway Guide Atlantic ICW 2010.
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Currently municipal strategies are being enacted by the City of Tybee Island to promote localized,
alternative energy sourcing through loan financing programs. These programs will assist in restructuring
the energy supply.
Further Data
Further data not presented within this summary is located at the study website:
http://www.thempc.org/Transportation/WaveEcologyStudy.html.
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3.0 Solution Strategies – The Study and Committee Results
The solutions-finding process of the committee utilized the wealth of information gathered from the
Wave Ecology Study, Carrying Capacity Matrix, and the CORE MPO Matrix of Challenges and Potential
Solutions. Based upon key issues outlined within the CORE MPO Matrix, committee members divided
into four sub-committees to develop action items implementable at the local level. Data from the Wave
Ecology Study was then tailored for each group of issues. This information was instrumental in linking
the data revealed during the study to the issues at hand. The sub-committee leaders, issues, and brief
summaries of the Wave Ecology data findings related to each issue are identified in Table 2. Full data
summary sheets are available at Appendix C.
Table 2. Wave Ecology Data Findings & The Highway 80 Challenge Working Sub-Committees
Sub-Committee Issues to Address Committee Leader
1 Traffic Congestion/Lack of
Access/Mobility Issues During Special
Events and Peak Tourism
Wanda Doyle
Data exposed the missing link of diversity in the tourist product currently causing congestion issues
for the Highway 80 corridor. There is great potential for unique public/private partnerships that may
build new infrastructure for Tybee and mitigate some of the access issues during peak travel times.
These include opportunities for alternative transportation, such as bike sharing systems with hubs
located at key event/activity centers on the Island, utilization of existing dock slip space through
public/private or event sponsored partnerships for commuting to the island promoted through local
organizations such as the Tybee Island Tourism Council, and possible private partnerships that
provide incentives for tourists utilizing alternative transportation methods in crossing the Highway
80 corridor onto Tybee Island (reduced hotel lodging or dining rates, etc).
2 Incident/Accident (Stalled Vehicles on
Highway 80) / Narrow Bridges Lack of
Shoulders / Public Safety
Paul Wolff
Data exposed the missing link of inter-agency coordination and long-term planning for emergency
management services along the Highway 80 corridor. Data also revealed the potential for a variety of
safety strategies to assist in minimizing the likelihood of traffic accidents not currently in place. These
include the reduction of speed limits before bridges on bridges, primarily the Lazaretto Creek bridge.
In addition, the usage of safety signage prior to crossing a bridge could warn drivers for the need of
added attention.
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Sub-Committee Issues to Address Committee Leader
3 Lack of Parking Space During Special
Events
William Garbett
Data exposed a total of 2,121 public parking spaces. These do not include the special event private
lots that may be available. The Strand Historic Downtown Business District typically utilized for
special events holds approximately 500 spaces within a narrow, walkable parameter. However, it is
important to note that this count includes an area commonly blocked off during event times in order
to accommodate event space. Other major parking areas located in the North Beach Neighborhood
near the Tybee Island Lighthouse, Jacyee Park, and the City Hall/Memorial Park offer potential for
diversifying the tourist product through inter-island transport. As with inter-island transport, data
also revealed potentials for public/private partnerships that may offer external island connection via
both roadway and waterway. The study also revealed a heavy dependency upon tourism for
economic sustainability. Diversifying the product offered, the times of year offered, and the
infrastructure need for each product may reduce some parking infrastructure stresses. Internal
sourcing and business development for tourist/festival needs, rather than externally imported
businesses may increase revenues and foster potential business growth for the community.
4 Emergency Situation and Evacuation Clayton Scott
In a community, the roles of various agencies and governments must be very succinct in their
purpose, coordinating well to ensure the sustained life of the community. This proves critical in
situations such as Tybee Island with only one entrance and exit point governed by multiple
jurisdictions. At the onset of this study data revealed great need in inter-agency coordination with
police, fire, emergency management, emergency dispatch, and municipal boundaries all occurring at
differing points. Throughout the course of these working groups, coordination and planning has
taken place in preparation for future emergency situations. In addition to agency roles, data also
revealed areas where speed limits do not reflect the safety concerns for the bridge infrastructure.
Increased storm intensity and sea level rise are both factors of climate change that prove critical in
planning for emergency situations along this corridor that experiences regular tidal flooding.
3.1.The CORE MPO Matrix of Challenges and Potential Solutions
The original matrix developed by the CORE MPO summarized a variety of concerns that had been raised
over the course of committee meetings. As stated earlier, this Matrix was utilized to evaluate pros and
cons in conjunction with the Wave Ecology data. This Matrix is included at Appendix D.
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Technical Report – May 2011
14
3.2 Final Results: Strategies for Near-Term Solutions
The following table outlines the variety of strategies, agencies involved, timeframe, estimated cost, and
the implementation methods recommended by the committees. During the April 18, 2011 meeting, sub-
committee leaders identified three priority strategies chosen by their sub-committees. These strategies
were then voted upon by the full committee to identify five near-term strategies to implement during a
phase one implementation.
3.2.1 Final Committee Strategy Report
The Final Committee Strategy Report, outlined in Table 3 below, establishes the priority strategies
identified by each of the four sub-committees. During the course of evaluation and voting some
strategies were combined, reducing the overall total of priority strategies for each sub-committee. Table 3
includes data on the strategy, key agencies towards implementation, timeframe, cost, and
implementation method. The five near-term strategies selected to implement during Phase 1 are
highlighted in green within the table. All potential strategies developed by the sub-committees are
located in Appendix E.
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Table 3. Final Committee Strategy Report
Sub-Committee 1 Leader: Wanda Doyle – Traffic Congestion / Lack of Access / Mobility Issues During Special Events and Peak Tourism
Proposed
Solution/Strategy
Lead Agency Participant Timeframe Cost Implementation Method Committee
Comments
1. Utilize social
media to disseminate
information to the
public.
-City of Tybee
Island
-City of Tybee
Island
May 2011 NA
1) City of Tybee Island will continue
utilizing existing staff and capacity
to disseminate information through
social media outlets during special
events and peak tourism periods.
2) City of Tybee Island, Better
Hometown Tybee, and Tybee Island
Tourism Council will market the
advantages of parking along Butler
between 2nd and 14th Street via
Facebook and Twitter.
Continue use of
current tools
including the City’s
website, the City’s
Tourism Council
website (TITC),
Facebook, and
Twitter.
2. Establish a bus or
shuttle service during
special events and
peak tourism periods
for travel from the
mainland to the
Island.
-City of Tybee
Island
-Better
Hometown
Tybee
-Tybee Island
Tourism
Council
-Coastal
Regional
Commission
-Chatham
Area Transit
May 2011 X 1) City of Tybee Island and Better
Hometown Tybee will continue to
work with the Coastal Regional
Commission to bring a shuttle
service from downtown Savannah
to Tybee Island twice per day.
2) City of Tybee Island will
continue exploring the CAT
Special Event bus proposal with
future event organizers.
Item 1 has recently
been completed
and results will
continue to be
tracked.
3. Utilization of
signal timing and
Intelligent
Transportation
Systems (ITS) during
special events.
-City of Tybee
Island
-Tybee Island
Police
-SCCMPD
Near Term TBD 1) The full implementation
method is yet to be determined.
X
Sub-Committee Leader 2: Paul Wolff – Accidents (Stalled Vehicles on Highway 80) / Narrow Bridges / Lack of Shoulders / Public Safety
Proposed
Solution/Strategy
Lead Agency Participant Timeframe Cost Implementation Method Committee
Comments
4. Reduce the speed
limit along the
Highway 80 corridor
to 45 mph.
-GDOT -City of Tybee
Island
-Chatham
County
Near Term $1,000
-
$2,000
per
sign
1) The City of Tybee Island and
Chatham County will coordinate
with GDOT to reduce the speed
limit to 45 mph east of Bull River
and west of Lazaretto Creek to
reflect safety concerns on roadway.
2) GDOT will work in coordination
with City of Tybee Island and
Chatham County to install new
speed limit signs.
X
5. Install road
signage to address
special features
related to safety
concerns: a) Install
“Road Narrows” signs
in advance of bridges as
a safety precaution for
drivers. b) Install
“Share the Road” sings
along the Highway 80
corridor to warn
vehicular traffic of
possible cyclists and
pedestrians.
-City of Tybee
Island
-Chatham
County
-GDOT
-CORE MPO
Near Term TBD 1) The City of Tybee Island and
Chatham County will coordinate
with GDOT to install road
signage to address special
features related to safety
concerns.
X
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Technical Report – May 2011
16
*Rows highlighted in green reflect the five chosen near-term strategies selected for implementation during Phase 1.
Sub-Committee Leader 3: Clayton Scott – Emergency Situations Including Emergency Evacuation
Proposed
Solution/Strategy
Lead Agency Participant Timeframe Cost Implementation Method Committee
Comments
6. Establish advanced
contracts with a wrecker
/towing service
company prior to peak
events that will remain
onsite in the event of a
traffic emergency.
Tybee Island
Police
-City of Tybee
Island
-Chatham
County
Near Term TBD 1) Tybee Island Police will
coordinate with a private company
to ensure service on the Tybee
portion of Highway 80.
2) Tybee Island Police will
coordinate with Chatham County
and SCCMPD to ensure service
along the inland portion of Highway
80.
X
Sub-Committee Leader 4: William Garbett – Lack of Parking Space During Special Events
Proposed
Solution/Strategy
Lead Agency Participant Timeframe Cost Implementation Method Committee
Comments
7. Establish inter-island
bus or shuttle service to
maximize available
parking during special
events.
-City of
Tybee Island
-Better
Hometown
Tybee
-Tybee Island
Tourism
Council
May 2011 TBD 1) City of Tybee Island will
update the Special Event
Application to require a parking
plan for organizers utilizing a
parking lot and an on-island
shuttle service to accommodate
the parking space loss.
The special event
application has recently
been updated.
8. Increase parking
accommodations and
infrastructure on Tybee
Island to include the
usage of private parking
lots.
-City of
Tybee Island
X Ongoing TBD 1) City of Tybee Island will
inform Special Event Organizers
of potential private parking
areas.
2) City of Tybee Island will
continue to add legal parking
spaces and identify future
spaces.
3) City of Tybee Island and TITC
will encourage event organizers
to contact private landowners of
large lots near any special event
for use as parking, allowing for
private partnerships to fulfill
parking needs.
X
9. Utilize better way-
finding and directional
signage to ensure easier
traffic flow during
special events.
-City of
Tybee Island
-Better
Hometown
Tybee
X Ongoing TBD 1) City of Tybee Island will
review the existing sign
ordinance for needed
modifications and work with
special event organizers to
develop a signage plan for ease
in traffic flow.
X
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Technical Report – May 2011
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4.0 Conclusion
Extensive committee dialog facilitated by CORE MPO staff resulted in the development of five near-term
strategies for implementation during Phase I. These are briefly defined below.
1. Install road signage to address special features related to safety concerns.
• Install “Road Narrows” signs in advance of bridges as a safety precaution for drivers.
• Install “Share the Road” sings along the Highway 80 corridor to warn vehicular traffic of
possible cyclists and pedestrians.
2. Establish a bus or shuttle service during special events and inter-island options during peak tourism periods.
3. Establish and maintain an ongoing bus/shuttle service through the Coastal Regional Commission.
4. Utilize signal timing and Intelligent Transportation Systems (ITS) during special events.
• Update signal-timing boxes on traffic light systems at Johnny Mercer & Hwy 80.
• Install ITS units during special events.
5. Utilize social media to disseminate information to the public.
The resulting five strategies outlined above, as well as others outlined in this Technical Report, will need
continued cross-agency collaboration for implementation. Prior to the development of this report, several
strategies emerged through agency partnerships resulting from this committee dialog. These
partnerships will continue in the future. The documents included herein are to be considered as living,
malleable documents to assist the City of Tybee Island, committee members, as well as other local
planning councils and committees in ensuring the health and safety of all citizens and the environmental
wellbeing of Tybee Island.