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AGENDA
REGULAR MEETING OF TYBEE ISLAND CITY COUNCIL
FEBRUARY 9, 2017 7:00PM
Please silence all cell phones during Council Meetings
I. Consideration of Items for Consent Agenda 6:30PM
II. Executive Session
III. Opening Ceremonies
1 Call to Order
2 Invocation: Ken Douberly, St Michael’s
3 Pledge of Allegiance
IV. Recognitions and Proclamations
1 Rising TYde Food Pantry
2 Tybee Island Post Office – Don Hamilton and David Clark
3 Arbor Day
V. Consideration of the approval of the minutes of the regular meetings of the Tybee island City Council
1 City Council Minutes, January 12, 2017 with attachments
VI. Consideration of Boards, Commissions and Committee Appointments
1 Master Plan Implementation Committee (15 seats available)
i. Sue Bentley
ii. Alan Robertson
iii. Amy Gaster
iv. Dottie Kluttz
v. Keith Gay
vi. Charlene Grissom
VII. Reports of Staff, Boards, Standing Committees and/or Invited Guest. Limit reports to 10 minutes.
1 Duane McClain, Morehouse, Promotional Specialist
2 Julia Pearce, Donations for Sister City, Africa
VIII. Citizens to be Heard: Please limit comments to 3 minutes. Maximum allowable times if 5 minutes.
IX. Consideration of Approval of Consent Agenda
X. Public Hearings
XI. Consideration of Local Requests & Applications – Funding, Special Events, Alcohol License
1 Tybee Time Inc., dba Tybee Time Bar, Alcohol License Request: Sunday Sales
XII. Consideration of Bids, Contracts, Agreements and Expenditures
1 Request approval of the First Amendment to the Intergovernmental Agreement with GEFA
regarding the city’s cost for the Test of Deep Aquifer Production for Abatement of Saltwater
Intrusion. Increase of $115,100. Budget line Item: TBD – Sewer Department Reimbursement
2 2017 Memorandum of Agreement: Tybee Island Information (Info) Hut Partnership
3 Request City Council’s approval to apply for grant proceeds from the Georgia Emergency
Management Agency under their 404 and 406 Hazard Mitigation Program.
4 Marsh Hen Trail: Consider revising the scope of the project to eliminate the costly bridge
element from Hwy 80 to the Marsh Hen Trail Railroad Bed and approach the trail through the
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existing GDOT ROW and City ROW for connectivity. Engineering cost estimates from Thomas &
Hutton to re-design, apply for GDOT encroachment permits and bid out is $18,500.
XIII. Consideration of Ordinances, Resolutions
1 Resolution to Approve the Application for a GDNR Coastal Incentive Grant for the second phase
of the Carrying Capacity Study
2 Second Reading, 2017-3A, Alcohol Consumption
XIV. Council, Officials and City Attorney Considerations and Comments
1 Bubba Hughes
i. North Beach Grill Lease and Update
2 Barry Brown
i. FEMA restrictions with Placement of Hand Dryer
ii. Marsh Hen Trail
3 Wanda Doyle
i. Extend complimentary parking after 5:00PM through the month of February
XV. City Manager’s Report
XVI. Minutes of Boards and Committees
1 Development Authority/Main Street BOD Minutes, December 21, 2016
2 Historic Preservation Commission, Minutes November 21, 2016
3 Ethics Commission Minutes, December 12, 2016
XVII. Executive Session
1 Discuss litigation, personnel and real estate acquisition
XVIII. Possible vote on litigation, personnel and real estate acquisition discussed in executive session
XIX. Adjournment
*PLEASE NOTE: Citizens wishing to speak on items listed on the agenda, other than public hearings, should do so during the citizens to be heard section. Citizens wishing to place items on the council meeting agenda must submit an agenda request form to the City Clerk’s office by Thursday at 5:00PM prior to the next scheduled meeting. Agenda request forms are available outside the Clerk’s office
at City Hall and at www.cityoftybee.org.
THE VISION OF THE CITY OF TYBEE ISLAND
“is to make Tybee Island the premier beach community in which to live, work, and play.”
THE MISSION OF THE CITY OF TYBEE ISLAND
“is to provide a safe, secure and sustainable environment by delivering superior services through responsible planning, preservation of our natural and historic resources, and partnership with our community to ensure economic opportunity, a vibrant quality of life, and a thriving future.”
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PROCLAMATION
WHEREAS, on Friday, October 7th and Saturday October 8th, 2016 the City of Tybee Island and
Chatham County were hit with Category 2 hurricane winds and significant flooding from Hurricane
Matthew; and
WHEREAS, the volunteers of the Rising TYde Community Food Pantry volunteered their time and
efforts to raise money for those in our community who were hardest hit by the hurricane; and
WHEREAS, thanks to the assistance of Rising TYde, many in our community were able to recover
from the storm more quickly and completely; and
WHEREAS, Rising TYde has been and continues to be an important part of the fabric of our
community thanks to their ongoing efforts to assist those amongst us most in need; and
WHEREAS, the City of Ty bee Island wishes to honor the Tybee Island Rising TYde Community Food
Pantry and recognizes its Board of Directors for their efforts in lending critical aid to families in need
in the wake of Hurricane Matthew;
NOW THEREFORE, BE IT RESOLVED that I Jason Buelterman and members of the Tybee Island
City Council declare the week of January 23rd to January 27th 2017 as “Rising TYde Community Food
Pantry Week” on Tybee Island and urge our resident’s to thank their dedicated Board members and
volunteers for their support during Hurricane Matthew.
IN WITNESS WHEREOF, I hereto set my hand and cause the seal of the City of Tybee Island to be
affixed this 17th day of January 2017.
_________________________
Jason Buelterman, Mayor
Tybee Island, Georgia
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PROCLAMATION
Arbor Day
WHEREAS, Arbor Day was first observed with the planting of more than a million trees
in Nebraska on 1972; and
WHEREAS, trees can reduce the erosion of our precious topsoil by wind and water, cut
heating and cooling costs, moderated the temperature, clean the air, produce oxygen
and provide habitat for wildlife; and
WHEREAS, trees are a renewable resource giving us paper, wood for our homes, fuel
for our fires and countless other wood products; and
WHEREAS, trees in our city increase the property values, enhance the economic
vitality of business areas, and beautify our community; and
WHEREAS, caring for and preserving our natural environment is the responsibility of
every citizen;
NOW THEREFORE, I, Jason Buelterman, Mayor of the City of Tybee Island, do hereby
proclaim, Friday, April 28, 2017 as Arbor Day on Tybee Island and urge all citizens to
support the City of Tybee’s efforts to care for the island’s trees.
IN WITNESS WHEREOF, I hereby set my hand and cause the seal of the City of
Tybee Island be affixed this 9th day of February 2017.
_____________________
Jason Buelterman, Mayor
City of Tybee Island
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City Council Minutes 20161027
Consideration of Items for Consent Agenda
Mayor Buelterman called the consent agenda to order at 6:30PM on January 12, 2017. Those present were Julie Livingston, Monty Parks, John Major, Wanda Doyle, Barry Brown and Bill
Garbett. Also attending were Diane Schleicher, City Manager; Bubba Hughes, City Attorney;
George Shaw, Director, Community Development; and Janet LeViner, Clerk of Council.
Mayor Buelterman listed the following items on the consent agenda:
• Minutes, Special City Council Meeting November 30, 2016, As Amended
• Minutes, Special City Council Meeting, December 6, 2016
• Minutes, City Council Meeting, December 8, 2016
• Minutes, Special City Council Meeting, December 21, 2016
• Beachview Bed and Breakfast: Beer/Wine/Liquor – Sunday Sales by Drink for Consumption on Premises Only, 2017. Alcohol and Entertainment Licensing approved
for 2017 on December 8, 2016
• Intergovernmental Hold Harmless Agreement, Conditional Approval of Private Property Debris Removal
• North Beach Parking Lot Post Hurricane Restoration Project. Discussion: The
Infrastructure Committee recommended approval. Ms. Livingston asked Ms. Schleicher
to bring to the next council meeting the plan for the parking lot to show sidewalks, etc.
Ms. Schleicher confirmed.
• Water Line Replacement Project: Request for extended work hours (some night time
work during the weekdays) for this Public Works Project during the months of January, February, March and April of 2017 in order to get the section of the water line in the
parking lane on Highway 80 from the Curve to the North Campbell intersection before
the GDOT resurfacing project begins this spring. Discussion: Mayor Buelterman asked
Ms. Schleicher to get a written paving schedule from the Department of Transportation
to ensure paving is completed prior to the summer season. Ms. Schleicher confirmed.
• Resolution, Conditional approval of Private Property Debris Removal
• Second Reading, 2017-02-Sec 3-080, Off-Street Parking Mayor Buelterman called the regular meeting to order at 7:00PM. All those present for the
consent agenda were present.
Opening Ceremonies
• Call to Order
• In Memorial 2016
• Invocation Susan Hill
• Pledge of Allegiance
Recognitions and Proclamations Post Office, Tybee Island, GA. Deferred to February 2017
Consideration of Boards, Commissions and Committee Appointments (ballots attached)
Tybee Island Planning Commission (3 seats open).
• Marianne Bramble (re-appointment)
• John Branigin
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" J o h n B r a n i g i n r e c e i v i n g 2 v o t e s
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M a y o r B u e l t e r m a n v o t e d i n t h e a f f i r m a t i v e f o r C h a r l e s M a t l o c k .
B i l l G a r b e t t m a d e a m o t i o n t o a p p r o v e C h a r l e s M a t l o c k , D a v i d M c N a u g h t o n a n d A l a n
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" S a r a h B e r n z o t t
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" K a t h e r i n e G a r l i n g t o n r e c e i v i n g 5 v o t e s
" M i c h a e l P a p p a s r e c e i v i n g 5 v o t e s
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" F r a n c e s K a y S t r i c k l a n d r e c e i v i n g 5 v o t e s
" S h e l d o n T e n e n b a u m r e c e i v i n g 4 v o t e s
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V o t e w a s u n a n i m o u s , 6 - 0 .
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t h a n k e d M s . H u d s o n a n d h e r s t a f f f o r a l l t h e i r h a r d w o r k .
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2 0 1 7 0 2 0 9 A m e n d e d C i t y C o u n c i l P a c k e t P a g e 6 o f 2 2 6 2 0 1 7 0 2 0 9 / j r l
stated that Surveys can be found at City Hall and Tybee Island Library. Ms. Jones gave a brief
presentation on “Why We Focus on Preservation”. She explained that preservation gives a
sense of place for our citizens and provides economic stability. Mayor Buelterman thanked Ms.
Jones and Ms. Morton.
John Branigin approached Mayor and Council to speak in opposition of the proposed
Ordinance, 2017-3, Alcohol Consumption (attached). He expressed his concerns with the
enforcement of the proposed ordinance as currently other ordinances are in place which needs
to be enforced. Mayor Buelterman responded this is a result of not only past shootings but bad
behavior during the spring break months. Recommendations were brought forward in the past
to ban alcohol consumption which were not acted upon. He stated the does not have an issue
with spring breakers but does not want the City to become a spring break destination. His main concerns are with Orange Crush. Mayor Buelterman stated he wants to stop Orange Crush and
is open to other recommendations. Mr. Branigin responded that according to Chief Bryson,
alcohol is not a problem with Orange Crush; it is guns, drugs and lewd behavior. He
recommended that aggressive and effective enforcement of the current ordinances will send a message that Tybee Island will not tolerate bad behavior. Mayor Buelterman thanked Mr.
Branigin for his recommendations.
Kathryn Williams approached Mayor and Council to commend Angela Hudson and staff on a
positive 2017 Audit Report. Ms. Williams stated in the past there were numerous reportable
conditions regarding the audit and with the current Finance Director and Staff there is a
tremendous improvement. She would like to commend Ms. Hudson, the City Manager and staff
for their diligence and attention to these matters. Mayor Buelterman thanked Ms. Williams.
Monty Parks made a motion to approve the consent agenda. Wanda Doyle seconded. Vote
was unanimous, 6-0.
Public Hearings
1113 Venetian Drive, Minor Subdivision: Combine 3 lots and subdivide into 2 lots.
Zone R-2; PIN 4-0012-01-001; Christopher and Melissa Freeman. Mr. Shaw
approached Mayor and Council explaining the proposed Minor Subdivision. He stated it is the
petitioners desire to combine three lots and then subdivide into two. He indicated the Planning
Commission unanimously approved this request and Staff supports as well. Mr. Major confirmed this has previously been before Mayor and Council as the variance request has
expired and the plat was not recorded. Mr. Shaw stated this will now become an implied
variance in regards to the second lot and the only requirements the owner(s) would have to
meet are the set-back requirements with new construction. Barry Brown made a motion to
approve. John Major seconded. Vote was unanimous, 6-0.
Text Amendment: Sec 3-090, Schedule of Development Regulations to address height limitations. Mayor Buelterman stated it is his understanding the Planning
Commission is requesting the proposed ordinance be continued. Ms. Doyle commended the
Planning Commission for their due diligence. Monty Parks made a motion to send back to the
Planning Commission for additional review. Barry Brown seconded. Vote was unanimous, 6-
0.
Consideration of Bids, Contracts, Agreements and Expenditures
Bid #2016 – 691, Repairs to Gymnasium Building; Budget Line Item Number: 100-00-11-1999. Diane Schleicher stated this is being withdrawn as a separate roof bid is
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being done. Mayor Buelterman asked if there was any hurricane damage. Ms. Schleicher
responded that the damages to the gym building are due to the hurricane. She also confirmed
this is eligible for reimbursement. Mayor pro tem Brown stated the roof is leaking every time it
rains. Withdrawn, No Action Taken
Consideration of Ordinances, Resolutions Resolution, Comcast, Franchise Agreement. Mayor Buelterman asked Mr. Hughes for a
clarification. Mr. Hughes stated Comcast is currently paying the 5% franchise fee for video
service in addition to the cable service. The City is not currently in their franchise territory
under their State Certificate and this will be a benefit to the City as it will increase revenue. Wanda Doyle made a motion to approve. Monty Parks seconded. Vote was unanimous, 6-
0.
First Reading, 2017-A-03, Sec 6-8, Alcohol Consumption. Ms. Doyle stated the current
Tybee Island Police Department is doing the best possible job they can but with the influx of
Orange Crush and spring breakers on the beach and parking lots it is extremely hard to control the people. She does not recommend a ban of alcohol on the beach but does recommend
hiring qualified officers which can be sworn in and write tickets. Mr. Major expressed his
concerns with not banning alcohol and feels restricting alcohol is worth trying. He supports the banning of alcohol on the beach. Mayor Buelterman commended Chief Bryson for his diligence
in finding officers to work during Orange Crush to ensure public safety and crowd control.
Mayor pro tem Brown recommended stopping access to the Island when capacity is reached to
help with traffic. Mr. Garbett spoke in favor of the proposed ordinance and recommended moving forward with the control of alcohol consumption. Mr. Major expressed his concerns with
the size of the permitted container. Ms. Doyle stated she contacted several establishments and
they use 16 oz. containers. Mr. Parks stated his preference would be the proposed ordinance is
amenable to everyone. Ms. Livingston expressed her concerns as this could be a bad time for
the businesses with a possible ban, as the events could move to Memorial Park or other City
parks and away from their establishments. She stated Mayor and Council cannot continue to do
nothing. Other venues have put a ban in place to deter this behavior which will alleviate problems and hopefully avoid a tragedy. Mr. Garbett stated the proposed ordinance does not
ban alcohol from public parks, parking lots, streets and public beaches. Bill Garbett made a
motion to approve as amended to include parking lots adjacent to the beaches; to change
the container size to 18 oz.; and to extend through the first Saturday in May (March, April and
through the first Saturday in May). John Major seconded. Discussion: Mayor pro tem
Brown recommended more law enforcement; do not allow visitors on the Island when parking is
at capacity; and no parking on Butler Avenue which will give better police presence. Voting in favor were Julie Livingston, John Major and Bill Garbett. Voting against were Monty Parks,
Wanda Doyle and Barry Brown. Mayor Buelterman voting in the affirmative, motion passed 4-3.
First Reading, 2017-05, Sec 23-1, Ethics. Mr. Hughes stated there are significant changes which include the positions Mayor and Council control: City Attorney; City Judge; Clerk and City
Manager. Changes were made in regards to procedures which is included in the red-line
version in their packets before them. Mr. Hughes stated everyone is subject to the same standard of behavior and the distinction is where the complaint is directed. Complaints against
City employees are directed the City Manager and not to the Ethics Commission. He
continued, the only complaints that are heard by the Ethics Commission are Mayor and Council,
City Attorney, City Manager, Judge and City Clerk. Mayor Buelterman asked if attorney fees
would not be subsidized by the City. Mr. Hughes confirmed. Danny Hill approached Mayor
and Council to answer questions. Mr. Hill made reference to the memorandum sent to Mayor
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and Council outlining changes which is included in the packet before them. He made reference
to the time of year complaints could be filed and it is the recommendation of the Ethics
Commission there not be any time of the year ethics complaints cannot be filed. Delay would
deny the public knowledge of any pending ethics violation. Another recommendation from the
Ethics Commission is any member of another organization will be allowed to serve on the Commission. There might be an occasion when a member of the Ethics Commission would
recuse themselves from a complaint and would be considered on a case by case basis. Mr. Hill
stated the Ethics Commission also recommended that neither the party initiating the complaint
nor the respondent shall seek compensation or be granted compensation from the City for their
legal fees and expenses. Mr. Major asked Mr. Hughes for clarification of the payment of legal
fees. Mr. Hughes stated due to the City being responsible for legal fees in the past and not
being addressed, it was recommended clarification is needed. By definition, unethical behavior is outside the scope of the responsibility of the office. Ms. Doyle expressed her disappointment
in the proposed changes as she will not support the proposed ordinance as written. Ms.
Livingston commended the Ethics Commission for their work but feels the Commission can be
used in the negative. In researching other municipalities that have ethics ordinances, they have black-out dates, which would be used as a tool to possibly affect an election. Ms. Livingston
would like black-out dates included in the proposed ordinance. Mr. Major supports black-out
dates. Mr. Hill disagrees with a black-out period as an ethics claim needs to be heard when it is filed and not postponed until after the election cycle. Mr. Major disagreed as someone could
file an inaccurate charge which could affect the election. Mr. Hill clarified that with the
proposed ordinance there is a section that allows for an informal meeting to discuss the charge
prior to it going forward. Mayor pro tem Brown asked Mr. Hill if there was consequences for
anyone filing an inaccurate charge which could possibly affect a council member. Mr. Hill
responded no. Mayor Buelterman thanked Mr. Hill for his hard work. He recommended
putting a cap on legal fees; window which would be longer than qualifying through election;
and clarification of recusals if membership in political actions groups. Mr. Major questioned if an
ethics charge could be filed during the election cycle against a non-candidate. Mayor
Buelterman clarified it could be filed but not accepted during the black-out window if it is the
will of Mayor and Council. After a short discussion, Mayor Buelterman recommended acceptance of the changes as written but amend to provide for a window when those officials
who are up for election are not subject to complaints for a certain window of time. He feels the
window should be broader than qualification through the second Tuesday in November. Mr.
Major supports a cap on legal fees and should only be paid for those who had a complaint filed
against them. Mayor and Council agreed. John Major made a motion to approve as written
with the following amendments: (1) a time frame in included in which ethics complaints cannot
be filed against those city officials who are running for office, 30 days prior to qualification until election day; and (2) legal fees be covered for the city official against whom the complaint has
been filed with a cap of $5,000. Monty Parks seconded. Discussion: Ms. Schleicher
confirmed the proposed ordinance applies to all City committee members who might qualify for
office. Mayor Buelterman confirmed. Mr. Hughes stated the benefit of the black-out period is
to protect the election process and try to discourage individuals to use the ethics procedures for
political gain. Mr. Hughes stated he work on language and send to Mr. Barrow for his
comments and bring back to Mayor and Council. Mr. Major withdrew his motion. Mr. Parks withdrew his second. A lengthy discussion ensued regarding the black-out dates. No Action. Deferred until a future City Council meeting.
Second Reading, 2017-04, Special Events. Mayor Buelterman clarified this would be
deferred to February. No Action. Deferred until February 2017.
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Council, Officials and City Attorney Considerations and Comments Mayor Buelterman expressed his concerns with the lack of signage for sand bar on
south-end. Ms. Doyle responded the Public Safety Committee has spent hours to find a way
to alert beach goers of the dangers of the sandbar. Mayor Buelterman asked Ms. Schleicher to coordinate Chief Fields attending the January Public Safety Committee Meeting to give his
recommendations.
Mayor Buelterman recommended Ms. Schleicher develop plan for obtaining public feedback regarding City’s response to Hurricane Matthew whether it be a town hall
meeting, email survey or on the monthly water bill. In this way, the citizens can share their
feedback from the hurricane.
Wanda Doyle asked Mayor Buelterman to defer the discussion regarding Sec 6-1, Business
Hours Specified; Responsibility for Compliance – Sunday Sales (3) – (6) until the first meeting in February. Mayor Buelterman confirmed. Deferred till February 2017 meeting.
Ms. Doyle stated she has been in communication with Mr. Hughes regarding funding for Marine Science Center and her recommendation is to contact Chatham County Recreational
Authority for possible funding. She explained the Marine Science Center would qualify for
funding if there is a recreational concept with Center. Ms. Doyle is asking Mayor and Council
approve her moving forward in working with the County and Mr. Hughes for possible funding.
Mayor Buelterman expressed his concerns with repayment. Ms. Doyle confirmed she has a
funding source. Mr. Hughes will reach out to Mr. Hart for his recommendations.
Wanda Doyle made a motion to adjourn. John Major seconded. Vote was unanimous, 6-0.
Meeting adjourned at 9:55PM.
______________________
Janet LeViner, CMC
Clerk
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MAYOR
Jason Buelterman
CITY COUNCIL
Barry Brown Mayor pro tem
Wanda Doyle
Bill Garbett
Julie Livingston
John Major
Monty Parks
CITY OF TYBEE ISLAND
CITY MANAGER
Diane Schleicher
CITY CLERK
Janet LeViner
CITY ATTORNEY
Edward M. Hughes
P.O. Box 2749 – 403 Butler Avenue, Tybee Island, Georgia 31328-2749
(866) 786-4573 – FAX (866) 786-5737
www.cityoftybee.org
MASTER PLAN IMPLEMENTATION COMMITTEE
APPLICATION
Thank you for your interest in serving on the Master Plan Implementation Committee of
the City of Tybee Island.
The Master Plan Implementation Committee is charged with ensuring that the City’s
Master Plan is a vital resource in directing the City’s future. Its mission is to review the
current Master Plan of the City and Carrying Capacity Report, recommend strategies for
implementation of these reports and report quarterly to the City on their
implementation.
The Master Plan Implementation Committee will include 7 to 15 members. Meeting
frequency and times will be decided at an initial organizational meeting once the
membership is determined.
To apply for the Master Plan Implementation Committee opening, complete the
attached form and submit it with your resume to the Clerk of Council.
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P.O. Box 2749 – 403 Butler Avenue, Tybee Island, Georgia 31328-2749
(866) 786-4573 – FAX (866) 786-5737
www.cityoftybee.org
MASTER PLAN IMPLEMENTATION COMMITTEE MEMBER
APPLICATE QUESTIONS
Alan W Robertson
1. Why do you want to be a member of the Tybee Island Master Plan
Implementation Committee?
I have been an active member of the Master Plan Working Group and Carrying
Capacity Working Group. Last year, over the several months in which we developed
the Plan, I have come to understand and appreciate the opportunities and
challenges before our community, especially as it pertains to our resource.
It seems to me the Master Plan Implementation Committee (“MPIC”) is the
appropriate place for me to continue to work on behalf of the City Council to help
assure and promote a more sustainable community through energy efficiency, water
conservation, general and environmental needs, food security, and efficient
transportation.
2. What do you believe to be the most important aspect of the role of the Master
Plan Implementation Committee?
The Master Plan Implementation Committee (“MPIC”) should be the committee of
the City Council that offers the best, most effective venue to gather public input on
resource issues, sustainability, carrying capacity, and broad environmental issues. It
can also, over time and with experience, bring expertise to better inform Council in
its deliberation of these types of resource matters. I would expect the MPIC to
develop recommendations to Council for its consideration and be directed by Council
to explore a variety of important long-term issues. I also expect this committee
would undertake its work in close coordination with those bodies already in
existence whose purview may include any particular issue, most notably the
Planning Commission and the Beach Task Force.
Signature: ___________________________
Date: January 14, 2017
Address: PO Box 1417, Tybee Island, GA 31328
Telephone: 847-525-5040
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Damon L Phillips
Assistant Director of Development
Albany State University
504 College Drive
Albany, Georgia 31705
Mrs. Julia Pearce
Martin Luther King Jr. Parade Director
Tybee Island, Georgia 31328
RE: Recommendation for Mr. Duane McClain
This letter of recommendation is in full support of the marketing and management of the rebranded
Orange Crush to fall under the direction of Duane McClain. Mr. McClain is an established project
management professional with well over 10 years of experience branding and marketing products and
properties. His extensive knowledge of cross-integration of entertainment, event management and
culture mining would bring a new focus and energy to the Tybee Island community as they host Spring
Break.
He has managed numerous marketing programs, ranging from music industry events with Red Zone
Music to bringing new brands to market like Perfect Vodka. He has found a masterful expertise to blend
creativity and authenticity while maintaining the integrity of the vision of the client. He has the fiscal
and administrative knowledge to keep project on budget and on time.
Having learned of his desire to take on this project, I know that his vision for the new “Orange Crush”
will meet or exceed expectations and create opportunities for Tybee Island to attract other festivals and
events. He understands the historic challenges that have faced past events associated with Orange
Crush and will produce viable and sustainable solutions that produce a safe and enjoyable environment
for students and families.
I confidently recommend Mr. Duane McClain to serve as the event director for the new “Orange Crush”
spring break festival on Tybee Island. If you have any questions, do not hesitate to contact me at 678-
524-6526 or damonlphillips@gmail.com
Sincerely
Damon L. Phillips, MBA
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The Rebranding of Orange Crush
Tybee Island, GA: Where community, commerce,
and culture on Georgia’s Coast make the quality of life
exceptional!
PF Mission: To execute a beach festival that offers
culturally enriching activities that brings awareness to
diversity, equality, and unity.
Paid Forward is an event planning agency specializing in
safe and strategic event planning for the demographic of 18-
25. The PF agency has strong networks in civic organizations,
college campuses, community outreach programs, music
labels, and top marketing companies in Georgia. The
executive staff of Paid Forward has over 30 years of
combined experience! We offer amazing events that are safe
from start to finish.
The new “Spring Crush” offer festival attendees a safe
environment to enjoy the beautiful Tybee Island beach and
take part in activities and events that showcase diversity,
equality, and unity. The original “Orange Crush” has been
tainted by past occurrences of isolated violence, unorganized
crowds, and lack of communication between event promoters
and the Tybee Island city officials.
“Spring Crush”- the new name of the annual beach
festival that attracts young spring breakers from the top
colleges and universities in Georgia. It will be a safe space
for fun in the sun! A 3 day itinerary of activities and events
highlighted by the Biggest Beach Foam Party in Georgia
and a Stop the Violence Unity Service and beach cleanup
on the last day.
• Spring Crush is safe and secure with checkpoints
• Spring Crush creates economic gains for the city
- Kickoff Event-
Networking
Mixer
- Mr. & Ms.
“Spring Crush”
pageant
- Fashion Show
- Foam beach
party
- Inflatable
Obstacle
course
- Vendors area(food/
artists)
- Step show
- Beach Volleyball
- Stop the Violence Rally
and beach cleanup
Proposed
Activities
Paid Forward Entertainment
Duane McClain
Atlanta, GA Phone (770) 896-3733
Spring
Crush
2017!!
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City Council Agenda Item Request
Agenda Item Requests and supporting documentation must be submitted to the Clerk of Council by 4:00PM on the Thursday prior to the next scheduled Council meeting. If this form is received after the deadline, the item will be listed on the next scheduled agenda.
Council Meeting Date for Request: 2.9.17
Item: Request Approval of the First Amendment to the Intergovernmental Agreement with GEFA regarding the
city’s costs for the Test of Deep Aquifer Production for Abatement of Saltwater Intrusion, GEFA- SD12014-02.
This is an increase of $115,100 to account for the additional costs of extending the WWTP outfall due to the
emergency nature of the project to accommodate the deep well schedule.
Explanation: Time Sensitive
Budget Line Item Number (if applicable): TBD – Sewer Department Reimbursement
Paper Work: __X___ Attached*
______ Audio/Video Presentation**
Submitted by: Diane D, Schleicher
Phone / Email: dsch@cityoftybee.org
Comments:
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City Council Agenda Item Request
Council Meeting Date for Request: February 9, 2017
Item: Request City Council’s approval to apply for grant proceeds from the Georgia Emergency Management
Agency under their 404 and 406 Hazard Mitigation Program.
Explanation: As a result of Hurricane Matthew in October of 2016, the Georgia Emergency Management Agency
(“GEMA”) received $10 million dollars to municipal and county government agencies in the Southeast region under
the 404 and 406 Hazard Mitigation Program. The process to receive notice of an award from GEMA may take up to
18 months. The process for applying for a grant includes the following:
• Identify and create a list of eligible projects;
• Have City Council approve the list of eligible projects and approve applying for the hazard mitigation
grant proceeds;
• Complete GEMA Pre-Application Worksheets;
• Request a letter of endorsement for the projects from the Chatham County Emergency Management
Agency’s (“CEMA”), EMA Director;
• On or prior to March 10, 2017, submit GEMA Pre-Application Worksheets and endorsement letter from
CEMA’s EMA Director to the GEMA agency;
• GEMA will review the City’s pre-application to determine if the projects are eligible to apply for Hazard
Mitigation grant;
• Upon approval GEMA’s approval of the pre-application, the City shall complete the formal application
and submit it to GEMA on or prior to October 10, 2017. The letter of notice of award from GEMA may
take up to a year.
A. The Water & Sewer Director identified two projects that are eligible for the Hazard Mitigation program.
The projects include the following:
• Purchase and install permanent generators for 12 sewer lift stations locations to ensure that the lift
stations continue operating during an electrical power failure. The installation of permanent lift
station generators will eliminate sewage backing up, and allow citizens and the government to
have toilet services during any electrical power outage event. The approximate cost of the project
is $500,000.
• Construct devices to attach the Aerator Motors to keeping the Aerator Motor from flipping over
when the equipment is flooded. The flooding caused by Hurricane Matthew caused the
equipment to flip over and become inoperative.
B. The Hazard Mitigation programs also provide funding to acquire storm shutters for specified buildings
owned by the City; therefore, the staff wishes to apply for funding to purchase storm shutters for as many
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City buildings as possible. Those buildings include the following:
• City Hall building
• Fire Department building
• Police Department building
• Water & Sewer building
• Marine Science Center building
• Campground manager’s house
• Campground store
• Public works office
Paper Work: X___ Attached* Already Distributed
Submitted by: Fire Department
February 1, 2017 Date given to Clerk of Council
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City Council Agenda Item Request
Agenda Item Requests and supporting documentation must be submitted to the Clerk of Council by 4:00PM on the Thursday prior to the next scheduled Council meeting. If this form is received after the deadline, the item will be listed on the next scheduled agenda.
Council Meeting Date for Request: 2.9.17
Item: Marsh Hen Trail: Consider revising the scope of the project to eliminate the costly bridge element from
Hwy 80 to the Marsh Hen Trail Railroad Bed and approach the trail through the existing GDOT ROW and City
ROW for connectivity. Engineering cost estimates from Thomas & Hutton to re-design, apply for GDOT
encroachment permits and bid out is $18,500.
Explanation: Project bids for project in October 2016 exceeded estimates due to the cost of the bridge element.
If the city were to use the existing public ROW’s instead of constructing an expensive bridge, the cost savings
would make the public project feasible. Recommend adding a privacy fence at the eastern entrance on the city
ROW with a gate to prevent trail users’ access to Estill Avenue at that location in Sandy Shores and North
Wave subdivision.
Budget Line Item Number (if applicable): 100-6230-54-140 (Cultural & Recreation – Parkways and
Boulevards Infrastructure)
Paper Work: __X__ Attached*
Submitted by: Diane D, Schleicher on behalf of Mayor Pro Tem Brown (chairman of the infrastructure
committee.
Phone / Email: dsch@cityoftybee.org
Comments:
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MARSH HEN TRAIL HISTORIC PEDESTRIAN GREENWAYABSTRACT OF BIDSContracted Work - US 80 Shoulder Work and High Bridge to Rail BedItem No. DescriptionQuantity Units Unit Price TotalThey say Unit Price Total Unit Price Total150-1000 Traffic Control1 LS 7,692.00$ 7,692.00$ 7,692.00$ 7,000.00$ 7,000.00$ 10,000.00$ 10,000.00$ 163-0232 Temporary Grassing0.4 AC 4,615.00$ 1,846.00$ 185.00$ 1,400.00$ 560.00$ 1,000.00$ 400.00$ 163-0300 Construction Exit2 EA 3,846.00$ 7,692.00$ 7,692.00$ 2,520.00$ 5,040.00$ 1,600.00$ 3,200.00$ 165-0010 Maintenance of Temporary Silt Fence Type A305 LF0.77$ 234.85$ 235.00$ 1.05$ 320.25$ 1.00$ 305.00$ 165-0030 Maintenance of Temporary Silt Fence Type C1660 LF1.50$ 2,490.00$ 2,490.00$ 4.20$ 6,972.00$ 1.50$ 2,490.00$ 165-0101 Maintenance of Construction Exit2 EA 769.00$ 1,538.00$ 1,538.00$ 1,120.00$ 2,240.00$ 600.00$ 1,200.00$ 167-1000 Water Quality Monitoring and Sampling2 EA 308.00$ 616.00$ 616.00$ 420.00$ 840.00$ 500.00$ 1,000.00$ 167-1500 Water Quality Inspections6 MO 308.00$ 1,848.00$ 1,848.00$ 700.00$ 4,200.00$ 1,300.00$ 7,800.00$ 171-0010 Temporary Silt Fence Type A330 LF5.00$ 1,650.00$ 1,650.00$ 1.75$ 577.50$ 2.50$ 825.00$ 171-0030 Temporary Silt Fence Type C1660 LF9.00$ 14,940.00$ 14,940.00$ 4.25$ 7,055.00$ 3.50$ 5,810.00$ 210-0100 Grading Complete1 LS 70,769.00$ 70,769.00$ 70,769.00$ 26,600.00$ 26,600.00$ 15,000.00$ 15,000.00$ 310-5060 Graded Aggregate Base Course, 6", Incl Matl770 SY29.00$ 22,330.00$ 22,330.00$ 28.00$ 21,560.00$ 23.00$ 17,710.00$ 402-3130 Recyc. Asph. Conc. 12.5 mm, GP 2 Only, Incl. Bitum56.5 TN 362.00$ 20,453.00$ 20,453.00$ 420.00$ 23,730.00$ 100.00$ 5,650.00$ 441-0104 Concrete Sidewalk, 4"233 SY85.00$ 19,805.00$ 19,805.00$ 49.00$ 11,417.00$ 36.00$ 8,388.00$ Stamped Concrete Sidewalk, 4"78 SY 146.00$ 11,388.00$ 11,388.00$ 56.00$ 4,368.00$ 50.00$ 3,900.00$ 441-5004 Concrete Header Curb, 10", Typ 4106 LF45.00$ 4,770.00$ 4,770.00$ 28.00$ 2,968.00$ 20.00$ 2,120.00$ 456-2012 Indention Rumble strips-Grnd-in-Place (continuous)0.15 GLM 76,920.00$ 11,538.00$ 11,535.00$ 140,000.00$ 21,000.00$ 5,000.00$ 750.00$ 500-3201 Class B Concrete (gravity wall)45 CY 923.00$ 41,535.00$ 41,535.00$ 630.00$ 28,350.00$ 600.00$ 27,000.00$ 636-5500Signage (incl. sign plate, refl. matl & post furnished & installed)11 EA 615.00$ 6,765.00$ 6,765.00$ 231.00$ 2,541.00$ 55.00$ 605.00$ 653-1704 Thermoplastic Solid Traffic Stripe, 24", White31 LF58.00$ 1,798.00$ 1,798.00$ 42.00$ 1,302.00$ 8.00$ 248.00$ 653-1804 Thermoplastic Solid Traffic Stripe, 8", White380 LF34.00$ 12,920.00$ 12,920.00$ 4.90$ 1,862.00$ 3.00$ 1,140.00$ 700-6910 Permanent Grassing0.4 AC 6,154.00$ 2,461.60$ 246.00$ 1,400.00$ 560.00$ 1,820.00$ 728.00$ 700-7000 Agricultural Lime0.4 TN 308.00$ 123.20$ 123.00$ 700.00$ 280.00$ 125.00$ 50.00$ 700-8100 Fertilizer Nitrogen Content12 LB 154.00$ 1,848.00$ 1,848.00$ 4.25$ 51.00$ 4.50$ 54.00$ 900-1000 High Timber Boardwalk (w/ Railing)122 LF 1,575.00$ 192,150.00$ 192,150.00$ 1,204.00$ 146,888.00$ 175.00$ 21,350.00$ Construction Total461,200.65$ 457,321.00$ 328,281.75$ 137,723.00$ Contingency (10%)13,772.30$ Total 151,495.30$ This is a true and correct Abstract of Bids received on October 31, 2016.Project ManagerE & D Contracting ServicesYes, NavigatorsYes, 1, 2, & 3GCC0000862Contractor License No.Reciept of AddendaGCQA005312All Required DocumentsYes, 1, 2, & 3Savannah Construction & Preservation, LLCBid BondAmerican SouthernBIDDEREngineers Opinion of Probable Construciton CostZ:\23987\23987.0000\Documents\Specifications\23987 Abstract.xlsx20170209AmendedCityCouncilPacket Page 43 of 226 20170209/jrl
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City of Tybee Island
Historic Bicycle/Pedestrian Greenway Trail Improvement Project
Design 12,600$
Assistance During Bidding 3,000$
Permitting 2,900$
Total Fee 18,500$
SUMMARY
Thomas & Hutton 1 of 1 2/1/2017
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City of Tybee Island
Historic Bicycle/Pedestrian Greenway Trail Improvement Project
Design
Project ManagerProject EngineerEngineering TechnicianClericalField RepresentativeHourly Rate 160$ 140$ 115$ 80$ 125$ Hours FEE
ITEM TASK Sub-Total Sub-Total
1 Revise Geometric Layout 1 4 5 600$
2 Revise Profile Grade 1 4 5 600$
3 Revise Cross Sections 4 4 460$
4 Revise Quantity Take-Off &Cost Estimate t 1 4 2 7 950$
5 Revise Cover 1 1 115$
6 Review & Revise Index 1 1 115$
7 Revise General Notes & Legend 1 1 115$
8 Revised Typical Section Sheets- 2 each 1 1 115$
9 Revise and update 3 of 7 Construction Plan Sheets 1 6 7 830$
10 Revise and update 2 of 4 Profile Sheets 1 4 5 600$
11 Revise Cross Section Sheets 3 of 11 1 6 7 830$
12 Revise Erosion, Sedimentation Control plans - 11 of 23 Sheets 2 5 7 855$
13 Utility Coordination 4 4 560$
14 QC/QA Review 1 2 4 3 10 1,275$
15 Meeting #1 with City 2 2 4 600$
16 Review & Update Details 1 2 3 370$
17 QC/QA Review 1 2 5 8 1,065$
18 Meeting #2 with City 2 2 4 600$
19 Revise Specifications 1 4 6 11 1,200$
Sub-Total - Personnel 8 28 45 6 8 95 11,855$
Sub-Consultants
-$
Sub-Total - Sub-Consultants -$
Reimbursables
Printing, Travel, Materials, Reproduction (Approx 6% of Personnel Cost)730.00$
Total - Design 12,600.00$
Design Tasks
Construction Plan Tasks
Miscellaneos Design Tasks
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City of Tybee Island
Historic Bicycle/Pedestrian Greenway Trail Improvement Project
Assistance During Bidding
Project ManagerProject EngineerClericalHourly Rate 160$ 140$ 80$ Hours FEE
ITEM TASK Sub-Total Sub-Total
1 Revised Bid Package 1 2 3 6 680$
2 Attend Pre-Bid Conference 2 2 4 600$
3 Answer Contractor Quesitons 1 3 3 7 820$
4 Evaluate Bids 1 2 2 5 600$
Sub-Total - Personnel 5 9 8 22 2,700$
Reimbursables
Printing, Travel, Materials, Reproduction (Approx 10% of Personnel Cost)270.00$
Total - Bidding 3,000.00$
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City of Tybee Island
Historic Bicycle/Pedestrian Greenway Trail Improvement Project
Permitting
Project ManagerProject EngineerEngineering TechnicianField RepresentativeHourly Rate 160$ 140$ 115$ 125$ Hours FEE
ITEM TASK Sub-Total Sub-Total
1 Revise Permit Application and Submittal Package 1 4 4 1,180$
2 Permit Coordination, Revisions, Approvals 1 6 4 1,460$
2 10 0 0 2,640$
Reimbursables
Printing, Travel, Materials, Reproduction (Approx 6% of Personnel Cost)200.00$
Total -Permitting 2,900.00$
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City Council Agenda Item Request
Agenda Item Requests and supporting documentation must be submitted to the Clerk of Council by 4:00PM on the Thursday prior to the next scheduled Council meeting. If this form is received after the deadline, the item will be listed on the next scheduled agenda.
Council Meeting Date for Request: 2.9.17
Item: Resolution to Approve the Application for a GDNR Coastal Incentive Grant for the second phase of the
Carrying Capacity Study – Implementation Phase – Tasks for this grant are described in the attached pre-
application exhibit. Time sensitive to meet grant deadline.
Year One Year Two (if multi-year project)
Federal Funds Requested $ 55,000 $ 45,000
In-Kind Match Provided $ 55,489 $ 45,386
(Match MUST be 1:1 for each year)
Total Cost Per Year: $ 110,489 $ 90,386
Budget Line Item Number (if applicable): TBD
Paper Work: X Attached*
______ Audio/Video Presentation**
Submitted by: Diane D, Schleicher
Phone / Email: dsch@cityoftybee.org
Comments:
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State of Georgia
City of Tybee Island
RESOLUTION OF THE MAYOR AND CITY COUNCIL OF TYBEE ISLAND IN
SUPPORT OF GRANT FUNDS FOR IMPLEMENTATION OF THE TYBEE ISLAND
CARRYING CAPACITY STUDY
WHEREAS, Tybee Island is a national tourism destination which results in a significant increase the overnight and day trip populations during the peak season;
WHEREAS, protection of the islands natural, cultural and historic resources is vital to
Tybee Island’s economy, environment, and quality of life;
WHEREAS, the City of Tybee Island was previously awarded a Coastal Incentive Grant
to completed a Carrying Capacity Study to better understand the carrying capacity of the
island’s resources;
WHEREAS, the City of Tybee Island Carrying Capacity Study recommended several action items that are of immediate importance to sustainable management of tourism and
growth on the island;
WHEREAS, the City of Tybee Island is desirous of obtaining a Coastal Incentive Grant
City to implement the recommendations of the Carrying Capacity Study;
NOW THEREFORE BE IT RESOLVED, that the City of Tybee Island Council does
hereby endorse an application for grant assistance through the Department of Natural
Resources – Coastal Resources Division and agrees to provide matching funds necessary
to ensure grant implementation and completion.
Adopted, the ____day of ________, 2017
MAYOR AND CITY COUNCIL CITY OF TYBEE ISLAND, GEORGIA
______________________________________
Attest:_________________________
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GEORGIA COASTAL INCENTIVE GRANT
2017-2018FY Cycle 20 CIG CERTIFICATIONS FORM
On behalf of
(Applicant)
and in support of
(Project Name)
I certify that:
(1) no person shall be discriminated against on the basis of race, color, sex, religion,
national origin, age, or physical or mental handicap for any program, activity, or
facility sponsored, operated, or constructed under the grant project;
(2) all project activities will be conducted in a manner that is consistent with the
mission, goals, and policies of the Georgia Coastal Management Program;
(3) any user fees charged to the public for use or participation in any program, activity,
or facility sponsored, operated, or constructed under the grant project will not be so
large as to be exclusionary;
(4) any facility or on-going service or program included as a component of this
proposed project will be maintained as part of the community’s infrastructure for a
reasonable length of time after grant money is no longer available;
(5) no protected or endangered species or historic or cultural resource will be adversely
impacted;
(6) all necessary local, state, and federal permits will be obtained before commencing
work;
(7) Applicant will not hold the State of Georgia liable for any injuries or damage that
may result from activities conducted under projects funded by Coastal Incentive
Grants;
(8) Applicant (governmental organization) will comply with 2 CFR 200 Uniform
Guidance: Uniform Administrative Requirements, Cost Principles and Audit
Requirements for Federal Awards; and 48 CFR 31.2 (as applicable);
(9) Applicant (educational institution) will comply with 2 CFR 200 Uniform Guidance:
Uniform Administrative Requirements, Cost Principles and Audit Requirements for
Federal Awards; and 48 CFR 31.2 (as applicable);
(10) Applicant will comply with any other provisions of statuary law that apply
to receiving funds;
(11) Applicant has reported all sources of funding for completing this project
and certifies that completion is not dependent on future funding from another
source;
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(12) all other sources for funding for the project have been disclosed, and that
Applicant will notify the Georgia Coastal Management Program of any awards of
additional funding from other sources during the duration of this project;
(13) Applicant will adhere to the reporting requirements outlined in the RFP and
will submit required status reports in a timely manner, to the Georgia Coastal
Management Program. Failure to comply with the reporting requirements of the
Coastal Incentive Grants Program may result in revocation of the Applicant’s
funding.
Typed Name Title
Signature Date
Subscribed and affirmed before me this _______ day of __________________, 20__
Notary Public
_______________________________
My Commission expires:__________
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Georgia Department of Natural Resources
Coastal Incentive Grant Program
2017-2018 FY Cycle 20 Application Cover Sheet
Project Title: Tybee Island Carrying Capacity Study Implementation
Applicant Information (Contracting Organization)
Applicant (Institution): City of Tybee Island, GA Federal Employer ID #: 58-6000661
Contact Name (receives contract notices): Diane Schleicher
Street Address: 403 Butler Ave City: Tybee Island State: GA Zip Code: 31328 Phone: 912.472.5070 Email: dschleicher@cityoftybee.org
Financial Contact (invoicing and payment): Angela Hudson Street Address: 403 Butler Ave City: Tybee Island State: GA Zip Code: 31328
Phone: 912.472.5021 Email: ahudson@cityoftybee.org
Project Manager/Principal Investigator (If different from above) Name: George Shaw Title: Planning & Zoning Manager Street Address: 403 Butler Ave
City: Tybee Island State: GA Zip Code: 31328
Phone: 912.472.5031 Email: gshaw@cityoftybee.org
Year One Year Two (if multi-year project)
Federal Funds Requested $ 55,000 $ 55,000
Match Provided $ 55,489 $ 55,489
(Match MUST be 1:1 for each year) Total Cost Per Year: $ 110,489 $ 110,489
Primary Funding Theme (select one):
Oceans and Wetlands Disaster Resiliency and Coastal Hazards Non-Point Source Pollution
Sustainable Communities Public Access and Land
Conservation
Typed Name of Authorizing Official: Diane Schleicher Title of Authorizing Official: City Manager
Signature of Authorizing Official: ______________________________Date: 12/02/16
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A. Background & Justification 1. Project Overview:
Tybee Island is a premier regional and national tourism destination and an important
economic engine for the Savannah metropolitan area. However, because of the wealth of community resources, there is also great development pressure facing this island. The City’s water, sewer, and roadway infrastructure systems, as well as City functions such as
solid waste removal and energy usage, are severely strained by the massive increase in
summer population. Further compounding these issues are threats posed by rising sea
levels and climate change, which are likely to increase flooding risk, shrink the amount of buildable land, affect egress on and off the island via U.S. Highway 80, and further limit the amount of development the island can support.
In order to understand the full scope of these issues, the City of Tybee Island applied for,
and received, a Coastal Incentive Grant (CIG) Cycle 18 to conduct a Carrying Capacity Study (CCS). This study, completed in September 2016, was designed to quantify (where possible) the island’s resources and to better understand how much development these
limited resources can support without degrading the quality of life that makes Tybee such
a unique coastal community.
Through a robust community engagement effort, the CCS identified the resources, issues, and infrastructure systems essential to supporting the economy and quality of life of
Tybee Island. The study projected the maximum amount of resident, overnight and
daytime populations that Tybee Island currently experiences, as well as the maximum
amount of people that can be supported with existing resources and infrastructure. Some of the key issues related to population growth and seasonal variability that were
identified by this analysis are as follows: 1) Limit in the permitted water withdrawal from
the Floridan Aquifer; 2) Significant increases in water withdrawal, wastewater discharge,
and solid waste/litter generation during tourism season; 3) Effects of king tides and sea level rise on the stormwater drainage system; 4) Development pressure in the R-2 zoning district, the highest density residential district which is also subject to king tide flooding;
and 5) Energy usage by the City in its daily operations.
It is imperative that the City begin to address carrying capacity issues sooner rather than later, in an effort to protect the City’s resources and infrastructure from the impact of future growth and seasonal population variability. The overall approach recommended by
the CCS is twofold:
1) Make improvements to the City’s existing infrastructure systems to provide additional capacity to accommodate more growth in a more sustainable manner, and
2) Identify ways to better manage future growth to limit stresses on infrastructure
and environmental impacts from future development.
The City Council has recently adopted an ordinance creating the citizen Master Plan Implementation Committee (MPIC) to oversee and track implementation of the Islands
Masterplan and CCS. In fact, the City has already begun to implement some of the
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recommendations, mostly related to water supply and the wastewater treatment plant capacity upgrades. It is the goal of this grant application to provide the resources necessary for the MPIC to complete their proposed mission and implement the priority
recommendations of the CCS over the next two years, as outlined in the CCS Work Plan.
2. Coastal Management Relevance The newly-formed MPIC will guide the process, but other project partners will also be
invited to participate as needed, depending on the task at hand. Other project partners
who participated in development of the CCS, and who will be asked to continue to
contribute their time and expertise as the CCS is implemented include: Tybee Island Tourism Council, local Real Estate/Rental agencies, Tybee Island Beach Task Force, Chatham County – Savannah Metropolitan Planning Commission (MPC), Georgia
Department of Community Affairs (DCA), University of Georgia (UGA), and the Coastal
Resources Division (CRD). By including local stakeholders in a relevant and meaningful
manner, the City will be more likely to successful accomplish the tasks outlined in the CSS. Community buy-in is essential to ensuring that the recommendations are implemented through future outreach, planning and development regulation efforts by the
City.
An important achievement of the CCS was to create a protocol for performing a CCS that was shared with other communities. Many communities in Coastal Georgia, such as Jekyll Island and St. Simons Island, are experiencing similar challenges with regard to
future planning and the management of anticipated growth with geographically-limited
community resources. The City of Tybee Island wants to further expand the tools that can
be shared with other island communities to include model ordinances, strategies to better manage solid waste, and educational materials targeted at beach litter and sustainable behaviors for recycling and water use in a vacation destination.
This project touches on all of the funding themes adopted by the Coastal Advisory
Council for 2016-2017, though the primary scope of the project falls within the purview of the Sustainable Communities theme. A sustainable community is one that does not stress its resources beyond their ability to rebound. The key to planning for sustainability
is first to understand the limits of a community’s resources, which is precisely what the
CCS did. Implementation of the CCS recommendations will achieve the following goals
of the CRD’s Sustainable Communities theme:
• Increasing communities’ ability to achieve sustainable development goals,
improve quality of life, and become more economically and environmentally
sustainable;
• Strengthening local capacity to implement sustainable approaches;
• Increasing the understanding of costs and benefits associated with sustainable
approaches to coastal development; and
• Implementing and evaluating of coastal management practices in support of sustainable development.
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3. Project Goals It is the goal of this grant to provide the resources necessary for the MPIC to continue the
work of the original CIG-funded CCS through completion of the following
recommendations of the CCS over the next two (2) years.
a) Work with the Real Estate/Rental companies to create education campaign that addresses water conservation, energy efficiency, recycling, and litter/pollution
prevention.
b) Perform a water & sewer rate study to address needed infrastructure improvements
and "peak usage rates" to encourage water conservation during peak tourism season, and to prepare for future needed infrastructure investments. c) Draft revisions to the City’s code that will reduce stormwater impacts from new
development.
d) Implement a solid waste reduction initiative that addresses beach litter, recycling
contamination, and improvement to solid waste disposal programming for residential, commercial and public areas. e) Draft revisions to the City’s code that will reduce the density and impact of future
development in the R-2 District, and direct it away from areas of King Tide flooding.
If awarded this grant project will include continued coordination with the Tybee Island Comprehensive Plan 2016 process. This plan was developed in collaboration with the CCS and many of the recommendations so the CCS correspond to the Community Work
Program. The Comprehensive Plan set the City’s vision, objectives and implementation
strategies for land use; infrastructure; transportation; natural, historic and cultural
resources; housing, etc. for the next ten (10) years, and implementation of the CCS is key to achieving this vision.
While the CCS was under development, UGA Mar Ex and Stetson University completed
and issued the “Tybee Island Sea Level Adaptation Plan”. This plan made several
recommendations with regards to the impacts of sea level rise and King Tides on the City’s stormwater drainage system. Achieving the goals outlined above will allow the City to begin taking the initial steps necessary to prepare for these impacts.
B. Task Descriptions
Year One Task 1: Master Plan Implementation Committee (MPIC)
Task 1 Description: The City will convene the MPIC bi-monthly to provide information,
represent various community interests, provide input on the implementation of the CCS, and to foster community support. The MPIC will provide guidance to City staff and contractors throughout the process, as the official body of the City charged with
implementation of the CSS. The MPIC will work with the City to allocate resources and
funding to the various tasks outlined within this grant, and will help identify the most
successful methods for outreach and community involvement. Additional project partners will also be invited to participate in the process as needed. Agendas, meeting presentations and materials, and meeting summaries will be generated by the City for
each meeting.
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Deliverables: Agendas, meeting presentations and materials, and meeting summaries. Anticipated Date of Completion: September 2019
Task 2: Sustainable Tybee Education Campaign Task 2 Description: The City of Tybee will work with the MPIC, the Tybee Tourism Council, Real Estate/Rental companies, and marketing professionals to build on the existing “Keep Tybee Tidy” education effort and create a comprehensive education
campaign that addresses opportunities for recycling, litter/pollution prevention, water use
efficiency, and energy efficiency. This campaign will target multiple audiences including
day trippers, overnight guests, Island residents, City employees, and Island business. The Tybee Island Youth Council will be included to assist with development of materials/messaging targeting children. Issues to be addressed include:
• Reducing beach litter
• Encouraging recycling participating and reducing recycling contamination
• Alternatives to single use/disposal items
• Opportunities to retrofit residences and businesses to reduce water and energy
usage
Avenues for outreach will include point of sale, point of contact, point of disposal, point
of entry, and direct distribution. Deliverables will likely include signage, stickers, in-
property educational materials (for short term rentals), and materials/inserts for local
tourism publications. As part of this activity, the City will identify the locations of existing educational messages and signage, and where this can be improved and/or
expanded.
Deliverables: Hard copies and original electronic files for all educational materials.
Anticipated Date of Completion: September 2018
Task 3: Water & Sewer Rate Study
Task 3 Description: A water and sewer utility rate structure should provide enough
revenue to operate and upgrade its infrastructure as necessary to meet new regulatory permitting standards and engineering best practices now and in the future. The City will
work with a consultant to perform a rate study to ensure that the City’s current and future
water and sewer rate structure will generate the revenue necessary to construct and
operate the Cretaceous well, or other water system improvements, and the recommended
wastewater treatment plan upgrades. The rate study will also consider "peak usage rates," increasing block rates, and other tools to encourage water conservation during the peak
season. “Aid to construction” and tap fees will be reviewed, and other innovative rate
methodologies will be considered. The study will provide recommended updates to the
City’s rate structure and will also provide draft utility ordinance amendments for
consideration by the City Council. Deliverables: A Water and Sewer Rate Study, draft ordinance amendments, and
presentation of revised ordinance to City Council.
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Anticipated Date of Completion: September 2018 Year Two
Task 4: City Code Updates Task 4 Description: The City will work with the MPIC, planning consultants, and legal staff to draft revisions to the City’s code that will reduce stormwater impacts from new development and to mitigate flood risk to current and future structures in areas subject to
King Tide flooding. This task will include drafting revisions to the City’s code that will
a) reduce impervious surface related to new development and b) reduce the density and
impact of future development, directing it away from areas of King Tide flooding. These draft revisions will be presented to the Planning Commission and the City Council for their consideration.
Deliverables: Draft ordinance amendments, a presentation to Planning Commission, and
a presentation to City Council. Anticipated Date of Completion: September 2019
Task 5: Solid Waste Initiatives Task 5 Description: The City will work with the MPIC and other project partners to implement various initiatives to address beach litter and litter in general, reduce waste generation, reduce recycling contamination, and increase recycling participation.
Activities to be accomplished as part of this task include:
• Development of a solid waste/recycling receptacle masterplan for the beach, commercial areas, and residential district. This will include an assessment of the suitability and effectiveness of the current number and location of trash and
recycling containers, as well as the method and schedule for pickup. This
masterplan will take industry and professional standards into account to formulate
a map for future locations of trash can and recycling containers on the beach, along commercial corridors, and in residential areas where parking is allowed and tourist traffic exists. This masterplan will be utilized by the City to seek funding
and allocate resources to ensure that there are enough containers, and a sufficient
collection process to maximize litter disposal and recycling participation.
• Researching alternative for glass recycling, now that it can no longer be accepted, and preparing recommendations for council.
• Working with the City’s solid waste contractor to identify ways to improve
service to more effectively manage solid waste and recycling on the island.
Specific issues to be reviewed include, but are not limited to seasonal pick up schedule, and the cost/benefit of segregated recycling.
Deliverables: Solid Waste/Recycling Receptacle Masterplan, Recommendations on
Glass Recycling, Recommendations on changes to Solid Waste Contract Services,
Presentation to City Council
Anticipated Date of Completion: September 2019
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C. Estimated Budget
Budget Category
(YEAR 1)
CIG Request
(Federal)
Match Provided
(Non-Federal)
Total (Federal +
Non Federal)
Personnel $38,650 $38,650
Fringe $10,158 $10,158
Travel
Supplies $5,000 $5,000
Subcontract $50,000 $50,000
Other $1,800 $1,800
Indirect (10%) $4,881 $4,881
TOTAL $55,000 $55,489 $110,489
Budget Category (YEAR 2) CIG Request (Federal) Match Provided (Non-Federal) Total (Federal + Non Federal)
Personnel $38,650 $38,650
Fringe $10,158 $10,158
Travel
Supplies $5,000 $5,000
Subcontract $50,000 $50,000
Other $1,800 $1,800
Indirect (10%) $4,881 $4,881
TOTAL $55,000 $55,489 $110,489
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City of Tybee Island
Carrying Capacity Study
September 2016
35 Abercorn Street, Suite 210
Savannah, Georgia 31401
www.ecologicalplanning.net
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TYBEE ISLAND CARRYING CAPACITY STUDY i
Acknowledgements
This study was prepared by the City of Tybee Island under a Coastal Incentive Grant awarded from
the Georgia Department of Natural Resources (DNR) and from the Office for Coastal Management
(OCM), National Oceanic and Atmospheric Administration (NOAA). The statements, findings,
conclusions, and recommendations are those of the author(s) and do not necessarily reflect the
views of DNR, OCM or NOAA.
Ecological Planning Group, LLC assisted the City of Tybee Island with preparation of this report.
Many thanks to the elected and appointed City officials, as well as the citizens, business owners
and visitors who dedicated their time, expertise and resources for this project. Their assistance
and participation in the planning process and data gathering exercises made this study possible.
A special thanks to the Georgia DNR, Coastal Resources Division. This project would not have been
possible without the funding and assistance provided through the Coastal Management Program.
35 Abercorn Street, Suite 210
Savannah, Georgia 31401
www.ecologicalplanning.net
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TYBEE ISLAND CARRYING CAPACITY STUDY ii
TABLE OF CONTENTS
1. INTRODUCTION .............................................................................................................. 1
1.1. BACKGROUND ..................................................................................................................... 1
1.2. STUDY SCOPE OF WORK ........................................................................................................ 2
1.2.1 Technical Advisory Group (TAG) ................................................................................. 2
1.2.2 Community Resource Assessment & Inventory ........................................................... 2
1.2.3 Analysis of Community Resource Limitations ............................................................. 3
1.2.4 Recommendations & Implementation ........................................................................ 3
1.2.5 Presentation of the Carrying Capacity Study .............................................................. 4
1.3. WHAT IS CARRYING CAPACITY? ............................................................................................... 4
1.4. CARRYING CAPACITY STUDY GOALS ......................................................................................... 4
2. COMMUNITY ENGAGEMENT .......................................................................................... 6
2.1. TECHNICAL ADVISORY COMMITTEE .......................................................................................... 6
2.2. PUBLIC PRESENTATIONS ........................................................................................................ 6
3. POPULATION DYNAMICS ON TYBEE ISLAND.................................................................... 7
3.1. RESIDENT POPULATION ......................................................................................................... 8
3.2. OVERNIGHT POPULATION ...................................................................................................... 9
3.3. DAYTIME POPULATION ........................................................................................................ 12
3.4. POPULATION SUMMARY ...................................................................................................... 14
4. RESOURCE LIMITATIONS .............................................................................................. 15
4.1. WATER WITHDRAWAL & WATER USE .................................................................................... 15
4.1.1 Correlation of Overnight Population with Water Usage .......................................... 16
4.1.2 Tybee Island Water Withdrawal Permit Limitations................................................. 17
4.1.3 Water Distribution Infrastructure System ................................................................. 19
4.1.4 Alternative Water Supply .......................................................................................... 20
4.2. WASTEWATER DISCHARGE ................................................................................................... 21
4.3. TRANSPORTATION & PARKING .............................................................................................. 23
4.3.1 U.S. Highway 80 (US 80) Capacity and Road Network Capacity .............................. 23
4.3.2 Parking ...................................................................................................................... 26
4.4. STORMWATER QUALITY AND QUANTITY ................................................................................. 32
4.4.1 Tybee Island Sea Level Rise Adaptation Plan ............................................................ 33
4.5. SOLID WASTE .................................................................................................................... 40
4.5.1 Solid Waste Collection ............................................................................................... 40
4.5.2 Disposal Trends ......................................................................................................... 41
4.6. ENERGY USE ..................................................................................................................... 42
4.6.1 Solarize Tybee ........................................................................................................... 43
4.6.2 Greenhouse Gas (GHG) Emissions Inventory ............................................................ 44
4.7. ZONING ............................................................................................................................ 47
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4.7.1 Zoning Analysis ......................................................................................................... 48
4.7.2 Methodology ............................................................................................................. 49
4.7.3 Analysis ..................................................................................................................... 49
4.7.4 Population in the R-2 District Based on Current Development ................................. 50
4.7.5 Full Build-Out Scenario .............................................................................................. 51
4.7.6 Additional Population Based on Build-Out Scenario ................................................. 53
4.7.7 Zoning Assessment Findings ..................................................................................... 53
5. RECOMMENDED STRATEGIES AND WORK PLAN ........................................................... 55
5.1. CARRYING CAPACITY WORK PLAN .......................................................................................... 63
6. BIBLIOGRAPHY ............................................................................................................. 73
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1. INTRODUCTION
Ecological Planning Group (EPG) has prepared this report to present the findings of the City’s
Carrying Capacity Study. The purpose of this Carrying Capacity Study is to determine the
population size that can be supported by the City of Tybee Island, the limiting factors for
population growth, and how the City can prepare for future growth. Primary limiting factors can
be either resource-based, i.e. available water supply, or infrastructure-based, i.e. the ability of
the sanitary distribution and treatment system to safely convey and adequately treat domestic
wastewater.
This study is also intended to inform the City’s concurrent Master Planning Process. The City’s
2008 Master Plan is being updated in accordance with the requirements of the Georgia
Department of Community Affairs (DCA) Rules Chapter 110-12-1: Minimum Standards and
Procedures for Local Comprehensive Planning. The purpose of the masterplan is to present the
City’s Vision for the Future and to provide a framework for achieving that Vision. The data, goals,
issues and strategies presented herein have been incorporated into the City’s Master Plan, as
appropriate, and this report
should be considered one
element of the overall City
Master Plan.
1.1. BACKGROUND
Tybee Island is a premier regional
and national tourism destination
and an important economic
engine for the Savannah
metropolitan area. Whether it is
families visiting the beach,
people enjoying the various eco-
tourism opportunities, history
buffs exploring Ft. Pulaski or the
Tybee Lighthouse, or visitors
supporting the local artisan
community, the unique resources of
the island play a significant role in driving the tourism industry. However, because of the wealth
of community resources, there is also great development pressure facing Tybee Island. The City’s
water, sewer, and roadway infrastructure systems are severely strained by the massive seasonal
fluctuations in population. Further compounding this issues are threats posed by rising sea levels
and climate change, which are likely to increase flooding risk, shrink the amount of developable
land, affect egress on and off the island, and further limit the amount of development the island
can support.
The City of Tybee Island is in a unique position as one of the few locally-governed, developed
barrier islands in Georgia, and as such has strong local influence over the management and
Tybee Island Historical Society
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TYBEE ISLAND CARRYING CAPACITY STUDY 2
preservation the island. As such, the City of Tybee Island applied for a Coastal Incentive Grant
(CIG) through the Coastal Resources Division (CRD) of the Georgia Department of Natural
Resources (DNR) to conduct a Carrying Capacity Study to gain a better understanding of the
island’s resources and how much development these limited resources can support without
degradation of the quality of life that makes Tybee Island such a unique coastal community.
Through a comprehensive stakeholder engagement program, the Carrying Capacity Study will
identify which resources are essential to supporting the economy and quality of life of Tybee
Island, and what, if any limitations there are on those resources. The study will identify the
maximum amount of resident, overnight and daytime populations that can be supported with
existing services/infrastructure. The study will also attempt to identify upgrades to infrastructure
that may be necessary to support future increases in population.
1.2. STUDY SCOPE OF WORK
The scope of work for the Carrying Capacity Study is outlined below.
1.2.1 Technical Advisory Group (TAG)
The City implemented a community engagement program that consisted of numerous public
meetings in an effort to provide an opportunity for the citizens of Tybee Island and any other
interested parties to participate in this process. Participants at these meetings were afforded the
opportunity to provide information, represent community interests, and to provide input on the
planning process and results. This public and transparent process was designed to foster
community support for the findings and recommendations of the study.
Participation in the TAG was not restricted. Meetings were open to the public and advertised on
the City’s website and posted at City Hall.
1.2.2 Community Resource Assessment & Inventory
The City performed an assessment of existing community resources in an effort to inventory and
identify limitations. The following community resources were analyzed:
• Population dynamics, including trends and impacts of the on-island resident
population, overnight/short term rental population, and daytime population.
• Water supply capacity, including existing water distribution infrastructure, Floridan
Aquifer water withdrawal permit limits, and the impact of the future proposed
Cretaceous well.
• Capacity of the City’s wastewater plant (Water Pollution Control Plant or WPCP),
future required upgrades, effluent limits and assimilative capacity of receiving
waterways.
• Stormwater infrastructure condition, needed upgrades, flooding issues, king tides and
the effects of sea level rise on infrastructure capacity.
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TYBEE ISLAND CARRYING CAPACITY STUDY 3
• Current roadway capacity and level of service, including the proposed Georgia
Department of Transportation (GDOT) Highway 80 project and its impact on roadway
level of service.
• Parking limitations and availability of alternative modes of transportation
• Energy consumption including greenhouse gas footprint of City operations,
alternative energy sources, availability and cost of fuel, and any known energy grid
concerns.
• Capacity of solid waste services, beach litter, and participation in the City’s curbside
recycling program and its impact on solid waste collection.
• Development regulations, and the impact of additional development on island
resources.
1.2.3 Analysis of Community Resource Limitations
After completion of the community resources inventory and assessment, the City reviewed
availability, level of service and future limitations of the inventoried community resources. This
analysis included the following:
• The projected limit of resident, overnight and daytime populations that can be
supported by existing infrastructure systems based on commonly accepted metrics.
• Upgrades, capital projects, etc., that would be necessary to increase these limits,
where feasible.
• Measures to regulate development and/or protect environmental resources.
1.2.4 Recommendations & Implementation
Based on the inventory and assessment of resources and the limitations that were identified, the
City and the TAG worked together to identify recommendations to encourage more sustainable
development and protect island resources that included the following:
• Future land use/zoning amendments
• Capital improvements for water, sewer, stormwater and transportation
• Additional protection for environmental resources
The recommendations have also been incorporated into the City’s Comprehensive Master Plan,
which is due to be updated by October 2016. It was the desire of the City and the TAG to integrate
the Carrying Capacity Study process with the Comprehensive Planning process, as much as
possible, such that the results of this project will be included in both the Community Vision and
Future Land Use Plan as well as within the Short Term Work Program. Integrating these efforts
has also allowed the City to maximize the public involvement in both. Maximizing the
opportunities for public input should improve public acceptance of the final recommendations.
Furthermore, including the results of this study in the City Comprehensive Plan will provide a
method of implementation and reinforce the City’s accountability.
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1.2.5 Presentation of the Carrying Capacity Study
The City has developed a Carrying Capacity Study process that is described herein, including the
methods the City used to perform the assessment and inventory of community resources and to
identify resource limitations. This report also describes the procedures used to gather data,
engage community stakeholders, and integrate the Carrying Capacity Study into the City’s
Comprehensive Plan.
The City will present the process and results of the Tybee Island Carrying Capacity Study to coastal
managers at the September 2016 CRD Brownbag Presentation, and at the GA Climate Ready
Conference to be held in Jekyll Island in November 2016. The purpose of this presentation will
be to convey project results, communicate impacts and benefits to coastal managers and/or the
general coastal public, and describe the stakeholder process.
1.3. WHAT IS CARRYING CAPACITY?
The Wave Ecology and Highway 80 Challenge Study was commissioned in 2011 by Chatham
County in partnership with the City of Tybee Island and the Coastal Region Metropolitan Planning
Organization (CORE MPO) to define localized solutions to issues surrounding the safety of citizens
and visitors on Hwy 80, as traffic, and traffic related impacts increase. This plan explored the
concept of urban ecology, “a school of thought that seeks to understand the natural systems of
urban areas and the threats that face them.”
Understanding the urban environment and the impacts of human populations on that
environment can allow planners to design healthier, more resilient communities. In particular,
many coastal communities across the world contend with population impacts related to tourism
that stress the capacity of the community.
The Tybee Island Wave Ecology Study defined Carrying Capacity as:
I = P x A x T
I = Environmental Impact
P = Population
A = Affluence
T = Technology
This equation demonstrates that human carrying capacity is not strictly related to population
size, but to many levels of consumption, which are in turn impacted by technology and the
economy. Local governments have the opportunity to impact these variables through regulatory
and policy choices related to land use, infrastructure improvements, growth management, and
the local economy.
1.4. CARRYING CAPACITY STUDY GOALS
The TAG felt that it was important to identify guiding principles for the Carrying Capacity Study,
in order to provide the framework under which carrying capacity issues could be identified and
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TYBEE ISLAND CARRYING CAPACITY STUDY 5
solutions proposed. The guiding principles identified by the TAG for this Carrying Capacity Study
are as follows:
Diverse and stable year-round population with a high quality of life
Sustainable tourism-based economy that also serves year-round population and
business owners in the off-season
Balance between the needs of the tourism industry and year-round residents
Protection of Tybee Island’s environmental, historic and cultural resources
Safe multi-modal access to, from and within Tybee Island for residents and visitors
Adapting to a changing climate
Political and public support for implementation of the plan recommendations
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2. COMMUNITY ENGAGEMENT
The Tybee Island Carrying Capacity Study included a robust community engagement process
that was designed to be inclusive and to garner public support for the planning process and the
final recommendations of the study.
2.1. TECHNICAL ADVISORY COMMITTEE
A total of five (5) meetings were held over the course of this project with a total of 40+ people
participating in one or more of the TAG public meetings. TAG meeting summaries and
presentations are included in Appendix A. A brief summary of each meeting is included below:
Meeting Date Meeting Agenda
October 12, 2015 Project kick off; identification of data needs
December 8, 2015 Review of Wave Ecology Report; review of data analysis; identification
of resources and infrastructure to be studied; outstanding data needs
March 29, 2016 Identify goals; identify impacts of population growth on resources and
infrastructure
June 1, 2016 HWY 80 project update; greenhouse gas (GHG) emissions inventory
update; identification of strategies to address impacts from population
August 10, 2016 GHG inventory results; review of issues, strategies and considerations;
development of work plan items
In addition to the five (5) official TAG meetings, the community engagement process was
coordinated closely with the 2008 Master Plan update. Data, issues, goals and other elements of
the Carrying Capacity Study were presented at public meetings held for the Master Plan, and
input provided at both the TAG meetings and the Master Plan public meetings informed the
findings of this report.
2.2. PUBLIC PRESENTATIONS
Throughout the planning process presentations were made to City Council on July 28th and
September 8th, 2016. The purpose of these presentations was to update the elected officials on
the planning process and to present the final recommendations of the study. City Council and
Planning and Zoning Commission members were also invited to participate in the TAG meetings.
The Tybee Island Carrying Capacity Study was also presented to coastal managers at the
September 15, 2016 CRD Brownbag Presentation, and will be presented at the Georgia Climate
Ready Conference to be held in Jekyll Island in November 2016. The purpose of these
presentations is to present the final recommendations and describe the planning process.
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3. POPULATION DYNAMICS ON TYBEE ISLAND
Due to Tybee Island’s prominence as a tourism and vacation destination, there are three distinct
types of population that must be considered, as each type of population is necessary for the
economic viability of the island but may be affected by a different
grouping of limiting factors:
1.) Resident Population. This number includes
homeowners and long-term rentals.
2.) Overnight Population. This number includes the
resident population, but it also includes the short-
term rental population which is proportionately
significant, when compared to the resident
population, and highly variable throughout the
year. Also included in this population is the
“second home” owners who own a second home
on Tybee Island, which they do not rent, but at which
they periodically vacation.
3.) Daytime Population. This number includes the resident
and overnight populations as well as the day-tripper
population, which is even more variable than the overnight population and the largest
population during certain holidays such as the 4th of July.
This report includes a summary of the following information regarding the City’s population:
Census data from 2000 and 2010
Analysis of the 2010 Census Data conducted by Tybee Island in support of the 2012 Local
Option Sales Tax (LOST) negotiation
Data from the City’s Business License database regarding short-term rental units and
hotel/motel rooms.
Occupancy data from the Tybee Island Campground and short-term rental agencies
Assessment of water use and sewage discharge data and its correlation to proposed
resident population
City of Tybee Island Tourism Study
This report also includes a projection of overnight and daytime populations based on the
following information:
Data on rental units provided by the City’s Business License Tax Database and private
rental agencies.
Water withdrawal data
Transportation studies maintained and/or performed by Tybee Island
Daytime
Population
Overnight
Population
Resident
Population
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3.1. RESIDENT POPULATION
Table 1 shows the Census data and trends related to population for 2000 and 2010. Table 2
presents the Census data and percentage change for every census since 1900. Please note that
the 2010 Census showed the first population decrease on the island since 1920.
Table 1: Population for Tybee Island, GA
Source: Census Bureau
Table 2: Historical Population Trends
Source: Census Bureau
Census Pop. % Change
1900 381 —
1910 786 106.3%
1920 117 −85.1%
1930 202 72.6%
1940 644 218.8%
1950 1,036 60.9%
1960 1,385 33.7%
1970 1,786 29.0%
1980 2,240 25.4%
1990 2,842 26.9%
2000 3,392 19.4%
2010 2,990 −11.9%
Est. 2014 3,082 3.1%
Table 3 presents the Housing Occupancy characteristics and associated trends over the same
time period. Between the time period of 2000 and 2010, while resident population was
decreasing, the number of total housing units increased. The increase in the total number of
living units combined with the reduction in the number of permanently occupied units, resulted
in a significant increase in the number of units that are not occupied by a permanent resident.
Per the 2010 Census, approximately 60% of the units on the island are not permanently occupied.
Census Data Type 2000 2010 Percent
Change
Population 3,392 2,990 -11.9%
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Table 3: Housing Occupancy Characteristics for Tybee Island, GA
Source: US Census Bureau
Housing Unit Type 2000 Percent
2000
2010 Percent
2010
Percent
Change
Total Housing Units 2,696 -- 3,366 -- 24.9%
Occupied Housing Units 1,568 58.2% 1,360 40.4% -13.3%
Owner-Occupied 1,078 40.0% 918 27.3% -14.8%
Renter-Occupied 490 18.2% 442 13.1% -9.8%
Vacant Housing Units 1,128 41.8% 2,006 59.6% 77.8%
Seasonal, Recreational, Occasional Use 676 25.1% 1,473 43.8% 117.9%
For Rent/For Sale/Other 452 16.8% 533 15.8% 17.9%
3.2. OVERNIGHT POPULATION
As a national tourist destination, it is reasonable to assume that Tybee Island has a significant
increase in overnight (non-resident) population that stresses the City’s infrastructure and
resources. Since tourism on Tybee Island is an economic driver for the region, it is necessary to
assess and plan for the impact of increased summertime population.
Tybee Island is a national tourism destination and this overnight, short-term population places a
significant burden, in the form of “peak usage” upon Tybee Island’s services and infrastructure,
including water, sewer, and roadways. Peak usage can be defined as the result of a period of
simultaneous, strong consumer demand.
In order to quantify this additional population and the associated demand placed on City
infrastructure and services, EPG has prepared an estimate of overnight population based on data
provided by the 2010 Census, the City’s Occupational Tax records for short-term rentals and
hotel/motel units. In addition to the short-term rental units, the City of Tybee Island operates a
campground that contains RV and tent campsites that would not have been included in the
Census. Adding the total number of short-term rental units and hotel/motel units to the total
number of campsites results in a total number of 1,738 short-term rental opportunities, as shown
in Table 4 on the following page.
The different types of short-term rental units (i.e. house/condo, hotel/motel, and RV/campsite),
have different rental characteristics, and therefore are likely to have a different average number
of people per rental event. For example, rental houses and condominiums on Tybee Island are
typically rented by families, and therefore the number of people per occupied short-term rental
units is estimated to be five or greater. Hotel and motel units typically fit less people, so an
average number of people per rental event was estimated to be less at 2.5. The campsite actually
maintains data on the average number of people per rental event, which was reported as 2.58 in
the LOST Study referenced above.
Utilizing the average number of people per rental event, Table 4 also projects the maximum short
term rental population that would result from 100% occupancy of all short term rental
opportuntiies.
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Table 4: Short Term Rental Unit Occupancy for Tybee Island, GA
Source: City of Tybee Occupational Tax Database and Tybee Island Campground
Rental Unit Type Number of Units Average Persons
Per Unit
Maximum Rental Population
Hotel 420 2.5 1,050
Housing Unit 1,200 5 6,000
Campground 118 2.6 306
Total 1,738 7,356
* The Tybee Tourism Study does not differentiate between short-term rental unit types and estimates 4.3
people per unit, which equals a maximum short-term rental population of 7,473.
In order to estimate the average overnight population associated with the short-term rental units
and campsites on Tybee Island, the LOST Population Study conducted by Tybee Island in 2012
was referenced. As part of this study, information was solicited from the various rental agencies
and campsite operator, including the estimated average percent occupancy per month, and the
average number of people per rental event. This information was further updated as part of this
Carrying Capacity Study, and confirmed through comparison to the City of Tybee Island Tourism
Study (2014). This report also included percentage occupancy averages for short-term rental
units on Tybee Island for each month of the year (Table 5).
Utilizing the average number of people per rental event for the various short-term rental unit
types, the monthly average short-term overnight population is projected in Table 6.
Table 5: Short-Term Rental Occupancy Rates
Source: Short-Term Rental Agencies on Tybee Island
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
22% 31% 62% 70% 64% 91% 96% 74% 57% 52% 33% 24%
Table 6: Short-Term Rental Population by Month
Rental Unit Type Hotel Unit House/Condo Campground Total Short-
Term Rental
Population
Number of Units 420 1,200 118
Average Persons Per Unit 2.5 5 2.6
Occupancy Hotel Unit Rental
Population
House/Condo
Unit Rental
Population
Campground
Rental Population
Jan 22% 231 1,319 67 1,617
Feb 31% 329 1,883 96 2,308
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Rental Unit Type Hotel Unit House/Condo Campground Total Short-
Term Rental
Population
Number of Units 420 1,200 118
Average Persons Per Unit 2.5 5 2.6
Occupancy Hotel Unit Rental
Population
House/Condo
Unit Rental
Population
Campground
Rental Population
Mar 62% 649 3,711 190 4,550
Apr 70% 735 4,200 215 5,150
May 64% 674 3,851 197 4,721
Jun 91% 952 5,438 278 6,667
Jul 96% 1,011 5,780 296 7,086
Aug 74% 773 4,419 226 5,418
Sep 57% 595 3,401 174 4,169
Oct 52% 545 3,114 159 3,818
Nov 33% 346 1,976 101 2,422
Dec 24% 253 1,443 74 1,769
Annual
Average 56% 591 3,378 173 4,141
Based on this information, the annual average for additional overnight population from short-
term rentals is 4,141, the minimum (in January) is 1,617 and the maximum (in July) is 7,086.
Adding the annual average for short term rental population to the 2014 estimated year-round
average resident population of 3,082, results in an average overnight population of 7,223. Based
on the occupancy rates during the months of July and January, the peak monthly average
overnight population is 10,168 and the minimum monthly average population is 4,699.
It is important to note that the overnight population numbers above do not address one segment
of the overnight population, and that is “second home” owners, i.e. those people who own a
second home on Tybee Island, which they do not rent, but at which they occasionally vacation.
The second home owners also have the potential to affect the peak overnight population
numbers as they are likely to be occupying their second homes during peak tourism months. This
number, however, is more difficult to quantify and can only be estimated using the data sources
described herein, and this estimated population is described in Table 7.
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Table 7: Second Home Maximum Overnight Population
Source: US Census and Tybee Island Occupational Tax Database
Total number of “vacant units” per the 2010 Census 2,006
Total number of vacation rental units per Tybee Island 1,200
Number of remaining units, with the potential to be “Second Home” Units 806
Average number of guests per “Second Home” unit 5
Maximum “Second Home” overnight population 4,030
If you add the maximum short term rental population of 7,356 to the 2014 resident population
number of 3,082, the resulting maximum overnight population (not including second homes) for
the island is 10,438. Adding the maximum “second home” overnight population number of 4,030
to the maximum population of 10,438, results in a potential maximum overnight population of
14,468. While peak occupancy may only happen during the summer season, and the maximum
estimated overnight population may be unlikely to occur, the City of Tybee Island must maintain
the infrastructure to service this maximum overnight population year-round.
3.3. DAYTIME POPULATION
As a popular beach destination, Tybee Island not only has an increase in overnight population
during the peak summer months, it also has an increase in daytime population. This metric is
important because daytime visitors also place an additional strain on the City of Tybee Island’s
infrastructure and services during their brief stay on the Island. In an attempt to quantify the
additional daytime population during the summer months, EPG has reviewed the following
transportation studies/information sources to gather data on traffic counts:
City of Tybee Island Pedestrian and Traffic Study (2010)
Tybee Island Wave Ecology and The Highway 80 Challenge (2011)
City of Tybee Island Tourism Study (2014)
City of Tybee Island Sea Level Rise Study (2016)
The City of Tybee Island Police Department also maintains a traffic counter on Highway 80 near
Breezy Point that has been fully operational since May 2014. The graph in Figure 1 was generated
utilizing the available data from this counter and illustrates the average, weekend day average,
and peak daily one-way traffic counts by month for the time period of May 2014 – September
2015.
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Figure 1: Automobile Trips onto Tybee Island
The highest volume of traffic is during the peak summer months of May through July, further
corroborating the projected increase in summertime overnight population. As expected, the
average number of one-way trips onto Tybee Island is also greater on the weekends than during
mid-week, and the difference increases during summer months. The Tybee Island Traffic and
Parking Study reported that “during the summer, traffic on the weekend (Saturday) represents
an increase of between 38 and 60 percent over a typical weekday (Thursday).”
The Tybee Island Wave Ecology Report provides a peak daily traffic count of 16,173 for the week
of July 3, 2010, and estimates that each trip would represent an average of 2 people. The report
goes on to estimate that during peak times/events, such as the July 3rd fireworks event, the
daytime population could exceed 30,000 people. If the metric of 2 people per trip were applied
to the daily traffic count data during the twelve-month period from October 2014 – September
2015, this would result in the daytime population estimates provided in Table 8.
Table 8: Traffic Counts and Daytime Population Estimate
Source: Tybee Island Police Department Traffic Counts
On-Island Trips Daytime Population
Daily Average 6,726 13,452
Peak Day (July 2015) 14,233 28,466
The data above is fairly consistent with the data presented in the Wave Ecology Study, and while
peak daily on-island trips can vary by a few thousand trips each year depending on which part of
the week major events like the July 3rd fireworks fall on, both studies indicate that there is
currently potential for a peak daytime population of at least 30,000 people. As much of the
overnight and resident populations are likely to say “on-island” during big events, it is reasonable
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
One-Way Trips
Month Average Weekend Day Average Peak Day
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to assume that these populations may not be fully included in this estimate, and that the
maximum daytime population likely exceeds 30,000 people.
3.4. POPULATION SUMMARY
A summary of the various populations for Tybee Island is presented in Table 9 and Figure 2.
Table 9: Population Count Summary
1Does not account for second home population
2Assumes 100% occupancy of all units on Tybee Figure 2: Populations on Tybee Island
Population Metric Population
Resident Population (2014, est.) 3,082
Annual Average Overnight Population 7,223
Annual Average Daytime Population 13,453
Peak July Overnight Population1 10,168
Maximum Overnight Population2 14,468
Peak Daytime Population 30,000 +
Daytime
Ave. 13,453
Peak 30,000+
Overnight
Ave. 7,223
Peak 10,168
Max. 14,468
Resident
3,082
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4. RESOURCE LIMITATIONS
Due to Tybee Island’s status as a national tourism and vacation destination, the resident
population, as presented in the Census, is not an accurate metric to use to determine the
resources necessary to provide City services. City infrastructure and public services must be
sufficient to serve the overnight and daytime populations, even as they peak during summer
months. Since tourism focused on Tybee Island is a significant regional economic driver, it is to
the benefit of the region as a whole that the City has the resources necessary to serve the tourist
population.
4.1. WATER WITHDRAWAL & WATER USE
The City of Tybee Island operates a water supply system that consists of three (3) water withdrawal
wells that pull water from the Upper Floridan Aquifer. The City is currently permitted to withdraw
an annual average of 0.916 million gallons per day (MGD), with a monthly average limit of 1.6
MGD to allow for the peak usage associated with the summer tourism season.
In order to project peak water demands, it is first necessary to understand the per capita daily
water usage on Tybee Island. The Chatham County Water Supply Plan 2006 Update reported the
per capita daily water usage for Tybee Island at 216.7 gallons. However, this number is misleading
because it was calculated by simply dividing the annual average daily water usage in 2005 by the
2005 resident population number. The average annual daily water usage will include the
following elements that will skew the per capita water usage number 1) peak summer water
usage associated with peak short-term rental season, 2) the increase in commercial water usage
that occurs during the summer season, and 3) water used for irrigation purposes during the
growing season. All three of these factors will cause per capita water usage to appear larger than
it truly is. In addition, the resident population number was used, not the overnight population.
At no point during the year are the short-term rental units at 0% occupancy so not including these
people in the calculation further compounds the skew in the per capita water usage. Lastly, and
perhaps most importantly, the City of Tybee Island has implemented a comprehensive Water
Conservation Program since the per capita water usage number was calculated in 2006, and it is
likely that the per capita water usage has decreased as a result.
Accordingly, EPG has utilized the following methodology to limit the undesirable variables and
recalculate the City’s per capita water usage for 2015. In order to reduce water usage attributed
to tourism, commercial use, and irrigation, the daily average water usage for the months of
January only from 2010 – 2014 was used and is presented in Table 10. Furthermore, this number
was divided by the minimum overnight population calculated in the month of January (4,699).
This number is greater than the resident population because, even though January represents
the low point of the tourism season, there is still a non-resident overnight population on the
island based on the occupancy numbers presented in the section above. As shown in Table 11,
the resulting per capita water usage is 117 gallons per day (GPD) which is almost half of the usage
presented in the 2006 report.
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Table 10: January Average Daily Water Usage
Source: Tybee Island Water and Sewer Department
Year January Daily Average Water
Withdrawal (MGD)
2010 0.56
2011 0.50
2012 0.51
2013 0.54
2014 0.65
5-Year Average 0.55
Table 11: Per Capita Water Usage
5-Yr Ave Water Withdrawal in
January (GPD)
Minimum Overnight Population in
January
Per Capita Water Usage
(GPD)
550,000 4,699 117
4.1.1 Correlation of Overnight Population with Water Usage
In an effort to provide documentation of the surge in summertime overnight population, EPG
reviewed the City’s monthly average water usage. The graph in Figure 3 illustrates the significant
increase in water usage, primarily associated with an increase in population during summer
months.
Figure 3: Monthly Average and Maximum Water Withdrawal
0
0.2
0.4
0.6
0.8
1
1.2
1.4
1.6
1.8
2
Jan-10Mar-10May-10Jul-10Sep-10Nov-10Jan-11Mar-11May-11Jul-11Sep-11Nov-11Jan-12Mar-12May-12Jul-12Sep-12Nov-12Jan-13Mar-13May-13Jul-13Sep-13Nov-13Jan-14Mar-14May-14Jul-14Sep-14Nov-14Monthly Water Withdrawal (MGD)
Daily Average Daily Max
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Tybee Island’s peak summer month for tourism is July. An obvious and significant peak in usage
occurs during this month in all five years. In fact, in 2010, the water usage during the peak month
of July was 2.8 times greater than the usage in the off-season month of February.
4.1.2 Tybee Island Water Withdrawal Permit Limitations
The Water Withdrawal Permit for the City of Tybee Island contains the following withdrawal
limits from the Floridan Aquifer:
Monthly Average of 1.6 MGD
Existing Annual Average of 0.916 MGD
2020 Annual Average of 0.916 MGD
2025 Annual Average of 0.516 MGD
Figures 4 and 5 show the permit limits as they compare with the 2010 – 2014 water usage data.
Figure 4: Monthly Average Water Usage and Permit Limit
Figure 4 indicates that during summer months in four out of the last five years, the maximum
daily withdrawal exceeded 1.6 MGD, but the monthly daily average for all years was still within
the water withdrawal permit.
0
0.2
0.4
0.6
0.8
1
1.2
1.4
1.6
1.8
2
Jan-10Mar-10May-10Jul-10Sep-10Nov-10Jan-11Mar-11May-11Jul-11Sep-11Nov-11Jan-12Mar-12May-12Jul-12Sep-12Nov-12Jan-13Mar-13May-13Jul-13Sep-13Nov-13Jan-14Mar-14May-14Jul-14Sep-14Nov-14Monthly Water Withdrawal (MGD)
Daily Average Daily Max Permit Limit
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Figure 5. Annual Daily Average Water Usage and Permit Limits
While Figure 5 shows that the City has not exceeded its annual average permit limitation during
the time period of 2010 – 2014, it shows that the City’s current water usage exceeds the proposed
annual average permit limit for 2025. Compared with the annual average water usage from 2010
– 2014 (0.827 MGD), annual water usage needs from the Floridan Aquifer must be reduced by
38% to reach the proposed permit limit for 2025.
Using the per capita water usage number calculated above (117 GPD), the maximum overnight
population that could be supported under Tybee Island’s current and future Floridan Aquifer
water withdrawal permit is calculated in Table 12.
Table 12: Projected Maximum Population Supported under Floridan Aquifer Water Withdrawal Permit
Limits
Water Withdrawal MGD Overnight Population Supported
Monthly Average (Peak) 1.6 13,675
Existing Annual Average 0.916 7,829
2025 Annual Average 0.516 4,410
When comparing the numbers in Table 12 above with the overnight population estimates below,
it is apparent that Tybee Island is currently close to or at the water withdrawal capacity from the
Floridan Aquifer needed to serve the existing average annual population. Furthermore, the City’s
0
0.1
0.2
0.3
0.4
0.5
0.6
0.7
0.8
0.9
1
2010 2011 2012 2013 2014
Annual Daily Average and Permit Limitations
Annual Daily Average 2015 Annual Ave. Permit Limit 2025 Annual Ave. Permit Limit
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future water usage related to annual average overnight population will exceed the 2025 water
withdrawal limit, even without consideration for any population or tourism industry growth.
While the peak overnight population for the month of July can be accommodated within the
current and future permit limits, the maximum potential overnight population number exceeds
the population that could be supported under the current permit limitations in 2016 and 2025.
This is consistent with the water usage data illustrated in Figure 5 above. It is also important to
consider that there will be additional withdrawal capacity needed to serve the additional
commercial and irrigation needs in the summer, and that is not necessarily accounted for in the
estimates in Table 13, nor is additional population related to future growth.
Table 13: Population that Can Be Supported within Water Withdrawal Permit Limits
4.1.3 Water Distribution Infrastructure System
The City’s water distribution system is relatively new, and the City’s engineer estimates that 80%
of the system is less than 20 years old. There is still about 100 ft. of asbestos pipe that needs to
be replaced, but the majority of the capital improvements needed to address deficiencies in the
distribution system have been completed.
The well pump houses associated with Tybee Island’s three wells are located on Van Horne Ave,
Butler Ave, and 14th Street. The Tybee Island Sea Level Rise Study has found that these well
houses, due to their low elevation at 11.3’, 8.0’, and 9.3’ respectively, are vulnerable to flooding,
storm surge, and sea level rise. After performing a cost benefit analysis based on the potential
capital damage and economic loss associated with flooding, the report recommends elevating
the Butler Ave and 14th Street well houses above the 100-year floodplain, (the area subjected to
a 1% chance of flooding in any given year). Discussions with the City’s engineer recommended
elevating the wells to 21.5 feet above MHT (mean high tide) which would be above the projected
storm surge for a Category 4 Hurricane. All three wells would need to be elevated to exceed this
benchmark and the project cost would be approximately $600,000.
Metric Population
Projection
Population
Supported by
Water Permit
2016
Population
Supported by
Water Permit
2025
Annual Average Overnight Population 7,223 7,829 4,410
Peak Overnight Population (July) 10,168 13,675 13,675
Maximum Potential Overnight Population 14,468 13,675 13,675
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4.1.4 Alternative Water Supply
Due to the future limitations on the City’s current water supply source, the Upper Floridan
Aquifer, the City is working in partnership with the State of Georgia to install and test a
Cretaceous well, in the hope that this will provide an alternative source for potable water, as it
has on Hilton Head Island. Hilton Head Island had to decommission several Upper Floridan Wells
due to high chlorides resulting from the same salt water intrusion event that is the cause of Tybee
Island’s current permit limitations for water withdrawal from this aquifer. This $5 million project
was made possible by a grant from the Georgia Environmental Finance Authority.
At the time of this report, the well is being drilled and the test is ongoing; however, it is expected
that Tybee’s Cretaceous well is likely to produce sufficient water for the projected additional
need of approximately 0.8 MGD. In fact, the well will be sized to produce up to 1.5 to 2.0 MGD.
Due to its depth, the water it will produce is expected to be hot and relatively high in chlorides,
requiring treatment through a chiller and a reverse osmosis (RO) system, as well as mixing with
Upper Floridan water. The anticipated capital costs for the treatment system for a 1.0 MGD well
is $5 million with another $1.5 million needed to address discharge of the briny wastewater
produced through the RO process.
In addition to the capital costs of building the RO treatment plan, operational costs to produce
water on an ongoing basis are expected to increase from approximately $0.25 - $0.30/1,000
gallons of water withdrawal from the Upper Floridan to as much as $1.50/1,000 gallons for RO of
water from the Cretaceous Aquifer. Hilton Head’s current treatment costs to operate their RO
plant are reported to be approximately only $0.60/1,000 gallons; however, that would still be a
100% increase in the cost to produce 1,000 gallons of water.
There is also the challenge of disposing of the brine produced as a waste product of the RO
treatment process. Disposal may be achieved through pipes that run under the bed of the
Savannah Harbor, or through diffusers that are directed out into the open ocean. Both of these
options have significant challenges related to environmental permitting, impacts to aquatic life,
and construction. The City may also consider mixing the brine with the discharge from the WPCP,
to reduce the potential environmental impacts of discharging briny water into the local estuarine
environment. However, this would necessitate an additional or upsized discharge pipe as the
current WPCP discharge pipe is not sized to handle the combined capacity. Construction on the
current WPCP discharge pipe would also have environmental permitting challenges;
nevertheless, discussion with the City’s engineer indicated that this may be the least impactful
way of discharging the briny waste from a future RO water treatment plant.
The alternative of buying and pumping water from the City of Savanah is currently viewed as a
viable option. Aside from the $10 - $12 million cost of the infrastructure to deliver Savannah
water to Tybee Island, it would also require additional treatment due to holding time in the long
conveyance system, further increasing the cost. In addition, environmental permitting of the
infrastructure would be difficult as the pipes would travel through some major wetland areas.
If the City elects to use the Cretaceous well for water supply and invests in construction of the
RO treatment plant, the construction and operation of the new well and associated treatment
system will have a major impact on water rates. Further compounding this effect, is Tybee
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Island’s limited ability to collect aide-to-construction, impact or tap fees from new construction
to pay for the capital costs of building the RO treatment system. The capital and operational costs
must instead be included in the water use rates. The City completed a rate study several years
ago and the recommendations have since been implemented; however, the potential costs
associated with the Cretaceous Well were not considered.
4.2. WASTEWATER DISCHARGE
Tybee Island operates a water pollution control plant (WPCP), and the permitted discharge
limitations are described in Table 14.
Table 14: Tybee Island NPDES Wastewater Discharge Permit Limits
Months Monthly Average (MGD) Weekly Average (MGD)
May – September 1.15 1.44
October – April 0.89 1.11
A review of Tybee Island’s monthly Discharge Monitoring Reports (DMR) from October 2012
through August 2015, submitted to EPD per the City’s NPDES Wastewater Discharge Permit,
indicates that the wastewater discharge has exceeded or come close to exceeding permitted
limitations during the summer seasons of 2013, 2014, and 2015 (Figure 6). This has occurred
despite the higher discharge limitations afforded to the City of Tybee Island during the summer
months to allow for peak demands associated with the tourism season.
Figure 6: Wastewater Discharge Flow and Permit Limits
0
0.5
1
1.5
2
Oct-12Dec-12Feb-13Apr-13Jun-13Aug-13Oct-13Dec-13Feb-14Apr-14Jun-14Aug-14Oct-14Dec-14Feb-15Apr-15Jun-15Aug-15Wastewater Discharge Flow (MGD)
Flow Average Flow Ave. Permit Limit
Flow Maximum Flow Max Permit Limit
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Tybee Island’s WPCP has also experienced a few daily water quality violations for ammonia and
total suspended solids (TSS), and there were historic permit violations for ammonia, as shown in
Figure 7. To address this issue, the City has recently installed a new digester which will ameliorate
the WPCP’s ability to process TSS and ammonia.
Figure 7: WPCP Ammonia Discharge and Permit Limits
Review of the discharge data and discussions with the City’s Engineer indicate that the WPCP is
essentially at capacity for treatment. The WPCP in its current configuration can process 1.6 MGD
of wastewater flow for treatment; however, the WPCP discharge pipe is sized to handle 3.0 MGD.
Due to space limitations at the site, there is not room for expansion of the existing WPCP.
Therefore, if the City elects to upgrade the plant, the type of treatment process will have to be
upgraded from aerobic digesters to a membrane system in order to occupy the same footprint.
A permit increase for wastewater discharge flow will also result in the need to upgrade the WPCP
treatment system. As discharge flow allowances are increased, the limits for the individual water
quality parameters will be reduced, necessitating a higher level of treatment. A membrane
system would also allow the City to treat wastewater discharge to a higher degree, but the cost
to upgrade the WPCP would be substantial. Combined with the looming costs associated with
the RO treatment system for the Cretaceous well, the implications for the water and sewer rate
payers on Tybee Island is significant. While the City can treat its wastewater discharge to reuse
standards, distribution of reuse water (as opposed to direct discharge) is not a viable option due
to the limited places that could receive the irrigation water, the tight location of existing utilities,
and the need for an entirely new distribution system that would likely be cost prohibitive.
0
10
20
30
Ammonia (mg/L)
Monthly Average Maximum
Monthly Average Limit Weekly Average Limit
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The City’s Engineer reports that the wastewater collection system is in good condition, and that
50% of the collection system is less than 20 years old or has been relined in the last 20 years. The
City completed an Inflow and Infiltration (I&I) Study a few years ago, and 90% of the
recommended projects have been completed. The I&I projects left to be completed are limited,
and it is the belief of the City Engineer that I&I is no longer a significant problem on the island.
The City is in the process of upgrading the pump stations and the associated force mains, which
should further reduce any remaining I&I. The City is performing these upgrades at a rate of one
per year; two have been completed and there are seven pump stations remaining. The cost of
the pump station upgrades are between $25,000 and $100,000 each.
4.3. TRANSPORTATION & PARKING
4.3.1 U.S. Highway 80 (US 80) Capacity and Road Network Capacity
The City of Tybee Island is connected to the mainland by US 80. Between Talahi Island and Tybee
Island, US 80 is an approximately 5.5 mile, two-way, two-lane rural highway with intermittent
passing lanes. Two bridges exist along this stretch of US 80, 1) the Bull River Bridge and 2)
Lazaretto Creek Bridge. This roadway is the only connection from Tybee Island to the mainland
and is the sole evacuation route for Tybee Island residents and visitors. It has also been
designated as a future bikeway in the Coastal Region Metropolitan Planning Organization (CORE
MPO)’s Long Range Plan.
Currently, US 80 does not have any dedicated bicycle or pedestrian facilities and the Bull River
and Lazaretto Creek Bridges only support one lane of traffic in each direction with limited to no
shoulders to allow for traffic to pass an accident or for pedestrian/bicycle access. The McQueen’s
Island Historic Trail, a six-mile, former railroad right-of-way turned multi-use trail, runs along the
north side of US 80 between Bull River and the Fort Pulaski National Monument. Currently, this
trail can only be accessed by driving to the trail and parking at either the Fort Pulaski National
Monument or at a small parking area east of Bull River Bridge that is dedicated parking for trail
access. Currently, this trail does not extend to or connect to either of the bridges along US 80.
The trail is well utilized by the local community as well as tourists, but its use and ability to serve
as a safe alternative transportation route to and from Tybee Island, is limited because of its lack
of connectivity.
Travel between Tybee Island and the mainland and Talahi Island is also currently hampered by
limited passing lanes along this stretch of US 80 and these limitations become more challenging
when traffic incidents occur and during peak tourism season, weekends, special events and
festivals. The existing roadway also experiences flooding during King Tide events and coastal
storms, and, as a result, is periodically closed. The Georgia Department of Transportation (GDOT)
has also determined that Lazaretto Creek Bridge is structurally deficient and eligible for
replacement.
Various improvements to this corridor have been suggested and studied over the past 20 years
because of these community concerns about the reliability and safety of access to and from
Tybee Island. These various improvements and studies have at times been the subject of political
and public debate because of conflicting needs and concerns regarding public safety and road
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congestion, environmental impacts, and construction costs, as well as concerns regarding
potential impacts to the “character” of Tybee Island that could indirectly result from expansion
of Highway 80. After completing various studies and gathering public input, GDOT and CORE MPO
concluded that widening US 80 into a four-lane highway was infeasible because their
transportation models indicated this highway functions at a high level of service most of the time
and that construction and environmental impacts would be too costly. Planning efforts
subsequently focused on roadway and bridge improvements that could be made to the existing
two-lane highway.
In May 2011, the CORE MPO helped coordinate a study of US 80 and Tybee Island to document
the mobility challenges associated with tourism and special events on Tybee Island and develop
short-term strategies to address public safety concerns along US 80. The results of the Study were
presented in a Technical Report titled Tybee Island Wave Ecology and The Highway 80 Challenge,
dated May 2011.
Four short-term strategies were selected for implementation to address transportation
deficiencies along US 80, including:
1) Installing road public safety signage
2) Establishing a bus or shuttle service during special events and during peak tourism events
as well as an ongoing bus/shuttle service
3) Utilizing signal timing and Intelligent Transportation Systems (ITS)
4) Using social media for dissemination of information to the general public.
Concurrently, the CORE MPO also commissioned an additional study that began in 2010 to
examine current and future transportation deficiencies along the segment of US 80 that connects
Tybee Island to the mainland, including Bull River and Lazaretto Creek bridges, and
recommended alternatives to address those deficiencies. The Study, titled “US 80 Bridges
Replacement Study (P.I. No. 0009379),” was concluded and released in 2012. A copy of this Study
may be accessed through the CORE MPO’s website at:
http://www.thempc.org/docs/lit/corempo/studies/us80/finalreport.pdf
The CORE MPO’s Study of deficiencies along this US 80 corridor included an evaluation of current
and future deficiencies related to travel demand and operational conditions (i.e., road capacity),
system linkages, safety, and roadway design. The following is a summary of findings from this
study:
Roadway capacity was found to be generally sufficient, according to a comparison of the
capacity calculations with the estimated demand from the travel demand model and with
the observed demand from special traffic counts during a summer holiday period.
Capacity is sometimes exceeded when holidays overlap weekends.
System linkages are poor for bicyclists and pedestrians, due to current characteristics of
the road and bridges and lack of connections to the existing McQueen’s Island Trail.
Narrow shoulders, or shoulders filled with rumble strips, as well as high motor vehicle
speeds are the problematic characteristics for bicyclists and pedestrians.
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Regarding safety in general, the concerns include crash rates, bridge sufficiency ratings,
and roadway flooding. The crash rate, from 2006 through 2008, was higher in the corridor
than the statewide average for rural principal arterials in that period, 45% higher on
average, although there was much variation among years.
The Lazaretto Creek Bridge had a sufficiency rating of 41.45 at the time of this evaluation;
a rating below 50 means it is a candidate for some type of improvement in the bridge
prioritization process by the Georgia Department of Transportation.
Flooding, due to peak high tides, affects both directions of travel on US 80 for one to three
hours and for an average of three days per year. The eastbound lane is affected for an
additional two times per year.
The usable shoulders on the bridges and the causeway are narrower than recommended
for a high-speed road that serves as a bikeway, and also do not allow space for disabled
vehicles to be adequately cleared from traffic flow. Expectations of drivers wishing to go
through the corridor with no delay are in conflict with the needs of some drivers to access
local sites [Ft. Pulaski and McQueen’s Trail], as the latter must slow or stop in the travel
lane, sometimes even in a passing lane.
The CORE MPO’s Study developed suggested options to address the identified deficiencies and
then combined these into six Alternatives that were then scored and evaluated for feasibility.
The construction of additional thoroughfares (i.e., road widening by constructing additional lanes
along this stretch of US 80) were not included in these Alternatives. “Alternative 3” scored the
highest in the Study evaluation and was recommended as the option to move forward in the next
stages of project development overseen by GDOT. Recommendations for improvements to the
existing two-lane highway for this Alternative included the following:
Replacement of the Lazaretto Creek and Bull River Bridges with new bridges that included
two traffic lanes, ten-foot bikeable shoulders and a ten-foot barrier separated multi-use
path. The new bridges would be located adjacent to the existing bridges on the north side
of US 80 and the existing bridges would be removed.
Roadway improvements in the form of ten-foot paved bikeable shoulders along each lane
of US 80;
Re-striping the roadway near Fort Pulaski to allow for a left hand and right hand turn lane;
Extension of the existing McQueen’s Island Trail to the new Lazaretto Creek Bridge; and
Construction of an 18-space parking area at the entrance to McQueen’s Island Trail with
a left hand turn lane. A side-path would connect the existing trail to the path on the new
Bull River Bridge.
GDOT is using the results and recommendations from the CORE MPO’s 2012 US 80 Bridges
Replacement Study as a baseline for their ongoing, multi-phase planning efforts for this corridor.
Possible roadway elevations in some sections will also be evaluated for sections of US 80 where
flooding has been an issue. GDOT has also proposed that, if constructed, the ten-foot paved
bikeable shoulders along each lane of Highway 80 could be used as additional lanes for
automobile traffic in the event of an emergency to ease traffic congestion.
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GDOT is now funding the implementation project (US 80 Bridges and Road Improvements, P.I.
No. 0010560). GDOT’s Scoping and Preliminary Engineering Phase is expected to start by July
2017. GDOT’s scoping phase will look at need, feasibility, and issues that may arise if the
recommended improvements are implemented. Scoping will take three years due to the various
required phases such as surveying, environmental analysis, and public involvement.
Environmental studies required by the National Environmental Policy Act (NEPA) will be
conducted, including environmental approval of a preferred Alternative. Future phases will
include right-of-way (ROW) assessments and acquisitions and a Final Design study. According to
GDOT, the National Park Service (NPS) owns 90% of the land within the project limits and GDOT
maintains an easement for the current US 80 ROW. The schedule for these future projects has
not been released to the general public at this time.
As noted above, GDOT has proposed that side path connections from both bridges be
constructed to connect to the McQueen’s Island Historic Trail, and these side path connections
will be designed and funded by GDOT in conjunction with the other US 80 improvements.
However, while GDOT does support the eastern extension of the McQueen’s Island Historic Trail
towards Lazaretto Creek Bridge, they are not currently assuming financial or planning and design
responsibility for this trail extension.
4.3.2 Parking
The average number of day trips on to the island, as reported in Section 1.3, was 6,726, and the
maximum number recorded during the July 4th weekend in 2015 was 14,233. The Tybee Island
Tourism Report found that Tybee Island has 1,044,000 visitors annually. Understandably, a
percentage of these trips represent the automobiles of island residents or overnight visitors
commuting onto the island, and their vehicles would be parked at their home or rental unit.
However, if every resident and one person from every occupied short-term rental unit made one
vehicle trip a day on and off of Tybee Island, that would only reduce the daily average to 2,762
trips and daily maximum to 9,505 trips. Each trip likely results in a need to park for some length
of time. While trip counts are recorded over the course of a 24-hour period, this still represents
a significant parking need, especially at peak hours during festival events and during “beach
hours” in the summer months. The Tybee Island Tourism Study looked at peak travel issues and
provided the following graph, in Figure 8, to illustrate typical travel patterns onto Tybee Island
during the month of June. This graph clearly demonstrates that majority of vehicles traveling
onto Tybee Island during the peak summer season do so between the hours of 10:00 AM and
4:00 PM, creating a significant parking demand during those hours.
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Inevitably the demand for and lack of available parking during peak hours can have an impact on
the island and its residents. Vehicles idling and circling the island looking for available parking can
cause traffic congestion; present a safety hazard for pedestrians, bicyclists and other vehicles
accessing the beach; and cause air quality issues. During these high demand periods, some
residential property owners have also experienced illegal parking on their private property,
limiting their access and potentially damaging their property.
Parking Space Inventory & Availability
The City of Tybee Island completed a Traffic and Parking Study in 2005 to evaluate existing traffic
and parking conditions in the City of Tybee Island and to make recommendations to address
identified issues. As part of the parking inventory, observations were made regarding utilization
of the available spaces. The following observations were made during the peak mid-day period
on Saturday, July 17, 2004.
North Beach Parking Lot was full by 2:00 PM.
South Beach Parking Lots were full by 1:00 PM.
Mid-Island Beach Access On-Street Parking (metered spaces located at the beach access
points and along US 80) were predominantly utilized, but no single location was 100%,
except for Tybrisa Street.
As part of this study, a Parking Facility Inventory was completed and included public pay lots,
private lots and on-street parking along the US 80/Butler Avenue corridor. At the time this study
was conducted, the consultant identified 1,654 public parking spaces. The Study went on to make
Figure 8: Volume of Vehicle Flow During the Peak Season
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the following observations and recommendations regarding the actual and perceived lack of
parking on Tybee Island.
1. Beach Access Signage
The utilization of on-street parking along US 80, especially in the Mid-Island area, is
relatively low; however, visitors believe that there is no available parking. Signage should
be added indicating the location of public beach access to encourage utilization of this
available parking, and spread out the demand focused on the pay lots serving the North
Beach and South Beach areas.
2. Satellite Parking and Shuttle System
The City needs to increase its overall inventory of available parking spaces; however,
there is limited available land to do so in the South and North Beach areas near beach
access. Identify satellite/remote parking areas and use shuttle service to deliver people
to South Beach and North Beach.
3. Parking Lot Improvements
The circulation patterns, at that time, in the North Beach and South End Public Parking
Lots was poor and in the North Beach area, parking spots were not completely defined.
This study stated that “[future] visitor demand will be limited to the availability of parking spaces
on the island,” as opposed to access to the island provided by the Level of Service on US 80.
Since this time, the City has made some improvements to public parking lots and has converted
much of the public parking meters to Pay and Display (P&D) Parking Kiosks. This has allowed for
expansion of the parking inventory and better tracking of utilization. The City’s current inventory
of public, delineated spaces is 2,091. There are also a total of 234 approved private parking
spaces, for a total of 2,325 total delineated parking spaces. The private parking space inventory
can vary from year to year as private parking lots require annual permit approval by the Tybee
Island City Council. The 2016 private parking lots are described in Table 15.
Table 15: 2016 Private Parking Inventory
Name Location Number of Spots
Sunrise Parking 1511 Butler Ave 39
Ocean Plaza Beach
Resort
1401 Strand 128
Renee G Bridges 1001 Butler Ave 30
Bramble Family 215 Lovell 13
Joyce Prescott 214 2nd Ave 12
Jack Rosenberg 203 14th Street 12
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Interviews with Tybee Island’s Parking Services staff indicate that there are still some non-
delineated public parking locations within the City ROW. If the ROW area is not near a P&D kiosk,
then Parking Services does not typically consider these areas to be delineated spaces and will not
ticket the vehicle for not paying. The City has determined that it is not financially beneficial to
purchase and maintain P&D kiosks in remote areas where parking only occurs on busy summer
weekends. In addition, many local visitors to Tybee Island may know someone who owns a
residential property on the island where friends and relatives are permitted to park when they
visit the island. Estimating the number of additional private parking spots this creates is not
possible; however, it is important to recognize that these areas do represent additional parking
opportunities for visitors to Tybee Island.
Parking Issues Summary
In order to identify current issues related to parking availability on Tybee Island, EPG reviewed
the findings of the 2005 Traffic and Parking Study, conducted interviews with City staff, and
received comments from stakeholders. The following issues were identified.
1) Perception of Parking Availability
In order to address the issues with perceived availability of parking, first identified in the
2005 Traffic and Parking Study, the City created a Parking Application for smart phones.
This app is designed to let visitors know where parking is available on the island and the
percent utilization. Parking Services staff update this app on an hourly basis during the
summer to show how full (percentage-wise) the three main parking areas are. Parking
Services divides the Island into three parking areas: 1) South End (south of 14th), 2) Middle
Island (14th north to 2nd), and 3) North Beach (the Lighthouse area). The app does not
currently store previously entered information regarding the percent utilization of the
parking areas; however, Parking Service staff who enter the data into the app reported
that every weekend in the summer and on big holidays and festival days, North Beach and
South End parking areas are 99% full and Mid-Island is typically 85%, mirroring the
findings in the 2005 Traffic and Parking Study.
2) South End Parking Demand
Parking Services staff stated that the South End is the most overtaxed parking area. During
summer weekends, visitors potentially spend significant time circling the area looking for
parking, as opposed to looking for parking in other areas such as Mid-Island. The City has
implemented, and then discontinued, a couple of initiatives to address this issue to little
effect. The City erected gates on Butler Ave. past Tybrisa Ave. to block traffic from
entering the South End when parking was at capacity; however, cars then proceeded to
line up on Butler Ave, outside the gate, causing a traffic issue. Public Works has also used
signage in the South End to direct people to other parking areas with limited success.
Parking Services staff explained that, in their experience, people would prefer to wait to
park close to the beach area they wished to visit, i.e. the Pier and Pavilion area, as
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opposed to parking in a more distant location and carrying all of their belongings to the
beach.
3) Commercial Parking Requirements
The City Planning and Zoning staff have received comments from potential commercial
developers that parking requirements are hampering future commercial development
along US 80. The Zoning ordinance requires that any new commercial development or use
provide parking on-site if it is not within 1,000 feet of a public parking lot. Therefore,
vacant buildings and properties on US 80 that are developed as commercial businesses
have to provide on-site parking. Because space available for commercial development
along this corridor is already limited, the requirements for on-site parking can be cost-
prohibitive and impede commercial development of this corridor. The City has had
preliminary discussions regarding using some portion of the City’s unopened ROWs along
this corridor to provide public parking. The potential benefits to pursuing this concept
would be: 1) to provide public parking so that future business on US 80 don’t have to use
their valuable lot space to do so and 2) to provide additional parking for visitors to Tybee
Island.
4) Satellite Parking Lots
There have been previous attempts at staging satellite parking areas and operating a
shuttle service to move people from their vehicles to their desired beach access point,
but the City staff did not perceive it as a successful initiative. As stated above, there was
consensus that most visitors to the beach want to be within walking distance to their car
since they are likely carrying a lot of personal items. Furthermore, there was concern
about how the City would charge for this service. Specifically, if the City charged for the
remote parking itself, the City staff felt that any parking shuttle service must be free of
charge lest it become cost prohibitive for people to use. However, under this model, the
cost burden of the shuttle service would fall on the City, and would likely need to be
subsidized.
5) Parking Garage
Due to their perceived cost/benefit ratio, the City has never seriously considered the
construction of a public parking garage, despite the fact that it has been mentioned in
several planning documents including the 2005 Traffic Study and the City’s 2008 Master
Plan. Parking Services staff stated that while there is a great deal of pressure for parking
during summer weekends and special events, there is sufficient available parking during
the rest of the year. Their perspective is that a public garage would only be full for
approximately 16 – 24 weekends per year, and it would not result in a viable financial
model for such a project. However, Parking Services staff did identify the Hotel Tybee
property as a location with the potential to support a parking garage, due to its proximity
to the beach. The City could potentially consider a public/private partnership to build a
parking garage at this location which could make the project more feasible.
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Public input provided by a member of the TAG expressed support for the idea of a parking
garage in the C1 district on the South End of the island and called attention to the cost to
the City in terms of lost revenue from visitors and quality of life for island residents to
NOT address the parking issue. A parking garage could be sited to “funnel” visitors to the
downtown commercial district with places to shop, dine, and lay in the sun. Having ample
parking in C1 could accomplish the following:
Direct traffic to a parking facility conveniently located near the most popular
beach for day visitors - with the pier, public restrooms, and tourism-based
businesses. This could provide additional support to these business by pedestrian
use in this commercial zone once visitors find a parking spot.
Reduce traffic congestion and idling cars circling for parking in the South End
where it is most difficult to find parking during peak weekends.
Reduce illegal parking in residents’ front and side yards.
Reduce traffic overflowing into neighboring residential areas west of Butler Ave.,
thereby protecting the quality of life and pedestrian environment in these
residential neighborhoods
A parking garage could be designed to serve dual purposes. In addition to parking, it could
offer public green space or recreational area on top, such as a pool, waterslide, or putt-
putt. Public restrooms and/or a public safety office could also be located in the structure.
This would increase the benefit and utilization of the structure in the off season, and
potentially address stormwater issues created by the construction of the garage.
6) Special Events Parking
City staff do not feel that lack of parking prevents people from holding or attending special
events on Tybee Island. The City requires special event planners to identify parking areas
and use remote parking when necessary. The event planner is then responsible for
providing signage and volunteers to direct vendors/visitors to the satellite parking and
providing shuttle service when necessary. For example, if an event is planned on the south
end of Tybee Island, event planners often identify satellite parking at the North Beach
parking lot. City staff did note that there have been instances where illegal parking on
residential ROWs became a problem during certain events, and they are more likely to
experience these types of issues when the event takes place in a parking lot and parking
spaces are lost.
7) Lack of Alternative Modes of Transportation
It is generally accepted that if there were more viable alternative transportation
opportunities, there would be less of a need for visitors to drive and park their vehicles
on Tybee Island, thereby lessening parking concerns and reducing traffic congestion.
However, there are very limited options for getting to or around the island for people
without a personal vehicle. Staff indicated that the City is reluctant to develop a formal
program for shuttling visitors on and off island due to the liability and cost implications.
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The Coastal Regional Commission previously operated the Savannah – Tybee Island
Shuttle, which runs Friday – Sunday, four times per day. However, due to low ridership,
this service has been canceled, as of the date of this report. TAG members felt that there
was not enough promotion of this service locally to ensure its success..
4.4. STORMWATER QUALITY AND QUANTITY
The City of Tybee Island operates a public drainage system that serves to convey stormwater
runoff to local rivers, tidal creeks, marshes, and the ocean. The system components have been
inventoried and are summarized in the table below.
Table 16: Stormwater System Inventory
Structure Number or Length
Inlets & Catch Basins 363
Outfalls 38
Ditches 10,000 feet
Storm Sewer Lines 41,700 feet
The City is required to implement a stormwater management program in compliance with the
NPDES Phase I Medium MS4 Permit, as required by provisions of the Georgia Water Quality
Control Act and the Federal Clean Water Act. This permit requires the development of a
Stormwater Management Plan (SWMP), to address the following program elements, as
stipulated in CFR 122.26(d)(2)(iv)(A) through 122.26(d)(2)(iv)(D):
• Structural and Source Control Measures
• Illicit Discharge Detection and Elimination
• Industrial Facility Stormwater Runoff Control
• Construction Site Runoff Management
The Georgia Environmental Protection Division (EPD) has previously required the City of Tybee
Island to expand its SWMP to include Best Management Practices (BMPs) to address the
following required modifications:
• Impaired Waterways, i.e. 303(d) listed stream segments
• Highly Visible Pollutant Sources
• Public Education/Public Involvement
• Pollution Prevention/Good Housekeeping
• Development of an Enforcement Response Plan
• Development of a Green Infrastructure Plan
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• Post Construction Stormwater Control
Compliance with this permit and implementation of the City’s SWMP is intended to protect and
improve water quality in local rivers, marshes and creeks by reducing the amount of non-point
source pollution that is conveyed through the City’s drainage system. Through this program, the
City has educated the public and businesses about best practices to reduce stormwater pollution,
and has developed a more proactive approach to drainage system maintenance. The City also
performs illicit discharge and water quality monitoring that will provide useful data, over time,
to evaluate the success of this program.
4.4.1 Tybee Island Sea Level Rise Adaptation Plan
As a barrier island, Tybee Island has unique stormwater and flooding issues which are
complicated by tidal influences and sea level rise. The “Tybee Island Sea Level Rise Adaptation
Plan” explores several steps that the City of Tybee Island can take to become more resilient over
time to sea level rise and the resulting flooding issues. Overall, the report serves as an initial effort
to characterize vulnerabilities, explore potential adaptation actions, and recommend
implementation of those identified actions that show clear benefit. The City of Tybee Island
partnered with researchers and outreach professionals from Georgia Sea Grant, the University of
Georgia, and Stetson University on this project.
Figure 9: Flooding on U.S. Highway 80 during a King Tide Event in October 2015 (Photo Credit: Tybee
Island Police Department)
Sea-level rise has been documented from a long-term, NOAA tide gauge at Fort Pulaski, located
within several miles of the City of Tybee Island. Since installation in 1935, sea-level has risen 10
inches. Records from this station have also shown the frequency of “nuisance” flooding steadily
increasing in the past several decades, including a record of 23 separate “nuisance” floods in
2015, the most of any year since the tide gauge was installed. NOAA defines a “nuisance” flood
when the water level exceeds 5.2 ft. above NAVD88 (~9.2 ft. above MLLW), and at this depth,
minor saltwater flooding occurs on roads and yards in Tybee Island. Figure 9 shows an example
of US 80 being flooded during a king tide event in October 2015. When this roadway is flooded,
it has significant impact on public safety and the local economy, as it is the sole access road for
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the Island. Adaptive
planning efforts for the City
of Tybee Island were
focused on a 50-year time
frame. When meeting
participants worked with
the project team to decide
on the rate of sea-level rise
to be used in the planning
efforts, they decided on
three scenarios of sea-level
rise: (1) Low, (2)
Intermediate, and (3) High.
The Low scenario was based
on a linear extrapolation of
the Fort Pulaski record, and
the Intermediate and High
scenarios were based on the
widely cited sea-level rise
curves that were developed
by climate scientists Martin
Vermeer and Stefan
Ramhstorf.1 Using 2010 as
the base year, the predicted
sea-level rise by 2060 is 6 in.,
14 in., and 31 in. for the Low,
Intermediate, and High
scenarios, respectively.
Figure 10 presents NOAA’s
predictions for global sea level rise.
Table 17 illustrates the expected increase in flooding events over the 50-year planning horizon
for US 80 under the three sea level rise scenarios.
Table 17. Analysis of Flooding Frequency and Duration
Metric 2009-2012
Average
Sea-Level Rise Scenario (2060)
Low Intermediate High
Annual Frequency of Flood Events 8 30 125 540
Annual Duration of Flooding (hours) 5.5 37 200 1,250
Note: Flood conditions are categorized as nuisance flooding (5.2 ft. above NAVD88).
Figure 10: NOAA Predictions for Global Sea Level Rise (Courtesy of Evans
et al., 2016)
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Tidal flooding during king tide conditions is regularly observed in several areas on Tybee Island,
including many in the southwestern quadrant of island. Many of these flooding events are
caused by a back-up of stormwater systems when higher tides push flow back into swales,
ditches, and underground pipe conveyances. This problem is exacerbated when high tide events
occur simultaneous with significant rain events. An example is presented in Figure 11.
Figure 11: Saltwater Flooding of Yards and Streets during a King Tide on November 14, 2012 (Courtesy
of Evans et al., 2016)
Based on topography from the 1-foot LIDAR as well as the assessed value of property, the authors
identified those areas on Tybee Island most at risk for flooding and economic damage due to King
Tide event in a 1-foot sea level rise scenario. The map in Figure 12, illustrates potential economic
losses due to high tide flooding on a block by block basis.
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Figure 12: Annual Expected Damage from High Tide Flooding (Courtesy of Tybee Island Sea Level Rise
Executive Summary)
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Through a series of public meetings, researchers solicited input from public officials and local
citizens about unique flooding issues they face. The authors worked with the public to identify
local assets at-risk from sea-level rise, review sea-level rise adaptation strategies, and choose the
rates of sea-level rise to be used in the adaptation planning process. This process was essential
to gain institutional knowledge on vulnerable areas and anecdotal information on historic
flooding events. The five major adaptation actions that were identified through this process are:
1. Elevate the first floor of the City’s three well houses and electronic components to 3 ft.
above the 100-year floodplain.
2. Elevate the US 80 causeway between Wilmington Island and Tybee Island to 3 ft. above
current grade.
3. Retrofit low-lying stormwater infrastructure to prevent flooding from tidewater
backflow.
4. Construct a back-island sea wall, at a height of 3 ft. over the current nuisance tidal
flooding level, to prevent bank overflow in low-lying areas.
5. Increase frequency of beach nourishment relative to increased sea-level rise out to
2060.
For three of the five action items, a benefit-cost ratio was calculated by evaluating the potential
in cost savings from avoided capital and economic damage. The cost savings from damage
avoided and the benefit-cost ratios for these action items are summarized in Table 18. When the
benefit-cost ratio is less than 1.0, pursuing the action item is not favorable at this time. Details
of the benefit-cost analysis and calculations can be found in the report. As a reference, the
estimated cost to elevate a well pump house was $150,000 each, add stormwater backflow
preventers and upgrade the stormwater system (including recent expansion of capacity along the
14th St. corridor) was $3 million, and install an engineered concrete sea wall at a height of 8.2 ft.
above NAVD88 was $35 million.
Table 18: Summary of Sea Leve Rise Mitigation Actions with Calculated Benefit-Cost Ratios.
Action Item
(Cost)
Evaluation Method Estimated Cost of Damage for Each Sea
Level Rise Scenario
Low Intermediate High
Elevate Well House
on Van Horne Ave.
($150,000)
Cumulative 50-yr Total Loss
Damage Assessment $17,034 $29,713 $65,551
Benefit-Cost Ratio 0.11 0.2 0.44
Elevate Well House
on 14th St.
($150,000)
Cumulative 50-yr Total Loss
Damage Assessment $458,740 $534,054 $828,181
Benefit-Cost Ratio 3.06 3.56 5.52
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Action Item
(Cost)
Evaluation Method Estimated Cost of Damage for Each Sea
Level Rise Scenario
Low Intermediate High
Elevate Well House
on Butler Ave.
($150,000)
Cumulative 50-yr Total Loss
Damage Assessment $2,125,737 $2,329,927 $2,974,840
Benefit-Cost Ratio 14.17 15.53 19.83
Stormwater Backflow
Preventers and
Stormwater System
Upgrades
($3,000,000)
Damage Avoided (Net Present
Value) $15,400,000 $36,200,000 $39,200,000
Benefit-Cost Ratio
5.13 12.07 13.07
Sea Wall
($35,000,000)
Damage Avoided (Net Present
Value) $700,000 $3,600,000 $60,800,000
Benefit-Cost Ratio 0.02 0.1 1.74
Note: Highlighted cells indicate that Benefit-Cost ratio is greater than 1.0, meaning that the potential cost
savings from capital and economic damage avoided outweighs the cost of installing the action item.
Based on the assessment for elevating the well pump houses, the Butler Ave. pump house had
the highest risk of flooding and highest benefit-cost ratio (range: 14.17–19.83), so it should be
elevated as soon as is practical. The 14th St. pump house should also be elevated in the near
term because it had a benefit-cost ratio ranging from 3.06 to 5.52. The benefit-cost results for
the third pump house, Van Horne Ave., did not indicate an immediate need for action. The
authors noted that conservative estimates of water supply disruption following a catastrophic
flood event were used, and the results do not account for possible contamination of the water
source associated with storm surge flooding. Therefore, the Van Horne Ave. pump house should
still be included in future assessments to determine suitability for elevation or other
improvements to improve flooding resilience.
Stormwater backflow preventers alone are expected to provide significant prevention of
floodwater penetration for tides up to 6.2 ft. NAVD88, 1 ft. above the current tidal flooding stage,
but then bank overflow would render the backflow preventers ineffective as a stand-alone flood
prevention strategy. Overall, the stormwater retrofits were considered to be a good initial
investment. The sea wall is not expected to provide benefit until the tides regularly exceed 6.2
ft. Based on the large cost of the sea wall, the High sea-level rise scenario is the only one where
cost-saving benefits outweigh the cost, but it is only marginal (1.74). Further pursuit of a sea wall
adaptation is not recommended at this time.
Beach Renourishment
The Army Corps of Engineers recently completed the most recent beach renourishment project
in early 2016. The 3.5-mile-long project was initially constructed in 1974 with a 50-year project
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life, with periodic renourishments planned to occur every 7 years. The beach was last renourished
in 2008. The renourishment process involves using a cutterhead dredge to move about 1.7 million
cubic yards of high quality sand from an area located 1.5 miles from the southern tip of Tybee
Island. The deposited sand would be enough to compensate for the erosion expected to occur
over the subsequent nine years. The project included placing sand up to the north terminal groin.
The Tybee Island Sea Level Rise Adaptation Plan noted that beach renourishment is an important
action item for flood protection and the tourism economy. In 2024, the U.S. Army Corps of
Engineer’s current authorization from Congress for beach renourishment projects on Tybee
Island expires. The Plan suggests that a priority for future beach renourishment projects and the
negotiation of a new authorization should include maintenance of flood protection under a
condition of accelerating sea-level rise. Based on the damages sustained by some communities
in the Northeast during Superstorm Sandy, the City of Tybee Island is already investigating the
possibility of augmenting their sand dune system to help protect the Island from storm surge
during hurricanes.
US Highway 80 Considerations
The authors did not include a benefit-cost analysis for raising US 80 because the project lacked
the scope to perform an engineering-scale benefit-cost assessment of a major highway corridor.
However, the substantial tidal flooding of US 80 in 2015 (23 separate events) highlights the
vulnerabilities of the existing roadway elevation and provides renewed motivation for ensuring
that concerns about long-term public safety, infrastructure maintenance, and disaster resilience
are incorporated into the final US 80 bridge replacement and road bed improvement project. As
described earlier in this plan, GDOT is in the process of planning and designing Highway 80
improvements which will include elevation of the road bed. In the recently released letter, issued
by GDOT on June 13, 2016 in response to public comments received at the November 17, 2015
Public Information Open House, DOT states that they are currently considering elevating the road
surface to 7.5 above MSL, which equates to an elevation of approximately 12 to 18 in. above the
current road surface.
Per the comment and recommendation in the Tybee Island Sea Level Rise Adaptation Plan related
to worsening flooding conditions on the sole access road for Tybee Island, US 80; it is important
for sea-level rise to be factored into ongoing engineering plans when replacing the two bridges
along US 80 and modernizing and elevating the roadway. The Plan recommends that the road
be elevated to approximately three (3) feet above its current elevation.
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4.5. SOLID WASTE
4.5.1 Solid Waste Collection
Atlantic Waste Services currently provides municipal solid waste collection, yard waste collection,
and recycling services to the City of Tybee Island. The Island is split into (4) four zones, each
representing a service day Monday through Thursday. Garbage and recycling are picked up on
the same day in each of the
four zones. Yard waste will be
collected on the entire island on
Fridays. Garbage collection of “landfill
only waste” will be picked up once per
week in 96 gallon carts with identifying
colors.
Recycling is collected single stream in
96 gallon carts with identifying colors,
and includes paper, cardboard,
newspapers, magazines, junk mail,
plastics (1-7), and metal cans
(aluminum and steel). Grocery store
plastic bags, styrofoam, film, glass and
bubble wrap are not accepted. Atlantic
Waste Services reports that the
current market does not support glass
recycling because it costs more to
process, and it’s a lower quality
material than the raw virgin sand
material needed to make new glass.
In an effort to address the issue of
plastic bag littering and marine plastics
pollution, the City has initiated a
plastic film recycling program that is
detailed in the image to the right. Drop
off locations are located at the
Campground, Chu’s Department Store,
City Hall, Tybee Market IGA, Visitor’s
Center, and the YMCA.
The Tybee Island Department of Public Works collects the trash and recyclables daily from solid
waste and recycling stations located at the beach and other public facilities and brings that
material to the transfer station at the Polk Street Yard, where they are collected by Atlantic
Waste. VisitTybee.com reports that the Tybee Island Department of Public Works collects
approximately 4 tons of trash daily from the beach areas during the off-season. In-season, the
amount of trash removed ranges from 6 to 15 tons daily. The day after special events, the total
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TYBEE ISLAND CARRYING CAPACITY STUDY 41
can reach 35 tons. The Department of Public Works will accept municipal solid waste, recycling
and yard waste from residents at the transfer station for a fee; however, residents are strongly
encouraged to use the curbside service provided by Atlantic Waste.
4.5.2 Disposal Trends
Information regarding disposal trends was provided to the City by the City’s previous solid waste
contractor, Waste Pro. Monthly data on disposal of municipal solid waste and recycling was
provided for the time period of October 2008 through August 2015. Weight of municipal solid
waste and recycling collected through curbside collection service as well as directly from Public
Works transfer stations is summarized in the Figures 13 and 14, respectively.
Figure 13: Municipal Solid Waste and Recycling Collection and Trends for Curbside Collection
Figure 13 illustrates an increase in both municipal solid waste disposal and recycling over the
time period of 2008 through 2015, which indicates an increase in the generation of solid waste
over that time period. There is also an obvious increase in solid waste disposal during the summer
months each year, coinciding with the tourism season. There does not appear to be a similar
cyclical trend in recycling tonnage, which indicates that tourist are not properly utilizing recycling
services. It is also important to note that glass is currently not accepted, and as one of the
heaviest materials that is typically recycled, it is likely to decrease the tonnage of materials being
recycled in the future. Also not included in these figures is the solid waste tonnage associated
with condominium developments that contract separately, as commercial customers, with
private waste haulers. There is no requirement that condominium developments contract with
private haulers for recycling services.
The data provided for solid waste and recycling collected from Public Works only spans the time
period of April 2013 through September of 2015. This data shows a substantial increase in the
tonnage of solid waste collected. This can be attributed primarily to collection of trash from the
beach and other public facilities, as most residents utilize the curbside service for disposal of their
0
50
100
150
200
250
300
350
Oct-08Jan-09Apr-09Jul-09Oct-09Jan-10Apr-10Jul-10Oct-10Jan-11Apr-11Jul-11Oct-11Jan-12Apr-12Jul-12Oct-12Jan-13Apr-13Jul-13Oct-13Jan-14Apr-14Jul-14Oct-14Jan-15Apr-15Jul-15Monthly Weight of Curbside Collection (Tons)
Solid Waste Recycling
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TYBEE ISLAND CARRYING CAPACITY STUDY 42
household garbage. There is also a dramatic cyclical nature to the amount of trash collected, with
the peaks again occurring during tourist season. There are not similar trends in recyclables
collection, which remained relatively steady during this time period.
Figure 14: Solid Waste and Recycling Collection and Trends for Department of Public Works
4.6. ENERGY USE
Electrical demand continues to increase in the Southeast, and one of the fastest growing regions
is Georgia. Georgia Power, a division of Southern Company that services the City of Tybee Island,
estimates that by 2025, Georgia expects almost 1.5 million new residents, and by 2030, electrical
demand is projected to increase 27% in the Southeast.
According to Georgia Power Company, the utility company has been able to reliably meet Tybee’s
current electrical demands, even during peak demand, and has sufficient electrical generating
capacity to meet increased energy demands in the future as population growth continues.
Georgia Power utilizes a variety of power generating sources, and its main sources include
nuclear, coal and natural gas, and to a lesser extent, renewables such as solar, hydroelectric, and
wind. According to Georgia Power, nuclear energy, which is the most economical method of
producing electricity and does not produce greenhouse gases, will continue to be an important
power generating source to meet current and future electrical demands in Georgia, including
Tybee Island, and for complying with current and pending environmental standards that regulate
coal-generated electricity. Georgia Power already operates two nuclear facilities: Hatch and
0
20
40
60
80
100
120
140
160
180
200
Apr-13May-13Jun-13Jul-13Aug-13Sep-13Oct-13Nov-13Dec-13Jan-14Feb-14Mar-14Apr-14May-14Jun-14Jul-14Aug-14Sep-14Oct-14Nov-14Dec-14Jan-15Feb-15Mar-15Apr-15May-15Jun-15Jul-15Aug-15Sep-15Monthly Weight of Public Works Collection (Tons)
Muncipal Solid Waste Recycling
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Vogtle, both with multiple generating units. Plant Vogtle, located near Augusta, Georgia, is
currently under construction to expand, with two new nuclear units expected to be operational
by 2019 and 2020. Georgia Power is also constructing a new transmission line to add the
infrastructure needed to support these new units.
To keep up with the growth, Georgia Power has made extensive upgrades to its electrical system,
including an $80 million upgrade to the Savannah underground network. Within the last few
years, the utility company has also made upgrades to the electrical infrastructure for Tybee
Island, including the large transmission lines along the US 80 corridor connecting Tybee Island to
Talahi Island, the City’s substation, and distribution systems along Butler Avenue and other areas.
The majority of planned upgrades for the City of Tybee Island have now been completed.
Georgia Power offers a commercial rebate program that provides cost incentives for
incorporating energy-efficient improvements. Rebates are offered to help offset initial costs
associated with replacement of outdated, inefficient equipment or installation of high-efficiency
equipment during new construction. The utility company also offers free audits that provide
recommendations for increased energy efficiency. Georgia Power has previously worked with the
City to conduct an audit of Tybee’s Memorial Park buildings as part of a Georgia Environmental
Facilities Agency (GEFA) funded energy efficiency program. Tybee received a total of $300,000
in grant funding from GEFA for upgrades and renewable installations of city and county buildings
located in Memorial Park. Once the park buildings were improved, all energy cost savings, based
upon a 2008 baseline, were to be invested into the Tybee Energy Loan Fund and the Property
Assessed Clean Energy Financing Program.
Recommendations from this audit included the following:
• Continue to incorporate occupancy sensors in strategic locations of the buildings for
lighting savings
• Consider energy efficient construction practices and premium efficiency equipment
when renovating the city hall building or when equipment fails
• Double check the programmable thermostat settings in the gymnasium to make sure
they are set to adjust during unoccupied times. They appeared to be on hold temps
when visited.
• Replace the water heater in the YMCA building. At its age, scale on the elements is
likely and will cause the heater to operate much less efficiently.
• Continue to promote energy management/conservation to city employees and tenants
of city building space.
• Make sure all computers are set to go into energy management mode when they are
not in use.
4.6.1 Solarize Tybee
Approved by the Georgia Public Service Commission in November 2012, the original Georgia
Power Advanced Solar Initiative (GPASI) is an innovative solar program designed to procure 210
MW of solar capacity. GPASI was primarily created to spur economic growth within the solar
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community in Georgia, while offering pricing that encourages more renewable development and
avoids any upward rate pressure and reliability impacts to Georgia Power customers.
With this goal in mind, Georgia Power designed two programs to continue to develop solar in
Georgia: 1) offer existing Georgia Power customers additional options to sell distributed solar
generation back to Georgia Power through small- and medium-scale power purchase programs;
and 2) offer solar developers the opportunity to bring large photovoltaic (PV) solar arrays to
market through a competitive utility-scale RFP. In July 2013, the Public Service Commission
approved an additional 525 MW of solar capacity as part of the 2013 Integrated Resource Plan
(IRP) order. These additional megawatts of solar capacity were similarly allocated between the
distributed generation and utility-scale programs.
In 2015, the City of Tybee Island, in cooperation with the Tybee Community Resources
Committee, initiated the Solarize Tybee program to bring solar power to Tybee Island and
Chatham County, Georgia, by eliminating some of the complexity of selecting a qualified installer
and by driving down costs through the power of bulk purchasing. This program offered
competitive pricing in a tiered system, i.e., prices decreased with increased participation. The
solar contractor, Hannah Solar, performed free assessments for interested property owners to
determine if their building was suitable for solar panel installation. Once a site was judged
suitable, and the customer scheduled installation directly with Hannah Solar.
Solarize Tybee was open to all residents, businesses, and governmental entities within Chatham
County, Georgia, provided the governing body in each jurisdiction did not object to having its
citizens participate. In total, 61 contracts for solar panel installation were completed, generating
335 KW of renewable energy.
4.6.2 Greenhouse Gas (GHG) Emissions Inventory
Many scientific studies have demonstrated a link between greenhouse gas (GHG) emissions
generated from human activities with global climate change. Current thinking by many within the
scientific community is that GHGs contribute to climate change by trapping heat within Earth’s
atmosphere. Gases that are classified as “greenhouse gases” include carbon dioxide, methane,
nitrous oxide, and fluorinated gases.
In response, local governments are identifying policy changes and other measures that can
reduce GHG emissions at both the community level and within their own operations. Policy
changes at a community level can reduce GHG emissions but often these policy changes are
difficult to implement and enforce because they involve measures that are outside the control of
the local government’s policies and programs. In contrast, local governments have direct control
over their own emissions-generating activities. For example, GHG emissions generated from local
government operations can be dramatically lowered by reducing energy usage in buildings and
facilities; reducing fuel consumption in fleet vehicles and equipment; reducing the amount of
government-disposed solid waste that is sent to a landfill; and relying more on alternative energy
sources. While reducing emissions from just one local government may be seen as a “drop in the
bucket” to some, many local governments are moving forward with GHG emissions reduction
initiatives as examples of good global citizenry.
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The objective of this GHG emissions inventory was to identify the sources and quantities of GHG
emissions resulting from government operations within the City of Tybee Island in 2015, the
chosen base year for this inventory. By identifying the areas of government operations that
contribute the most greenhouse gases to the atmosphere, this inventory provides baseline data
to reduce GHG emissions and assist the City with future planning efforts to address, plan, and
mitigate the impacts of climate change. A summary of the inventory is included below, and the
full study is included in Appendix B.
The City of Tybee Island focused on the following categories of government operations to
quantify GHG emissions for base year 2015 (Figure 15):
• Buildings and Facilities: Emissions from grid electricity used to power City Hall; the YMCA
(including the gym); Fire Station, Guard House, Department of Public Works
(garage/office); and the Public Safety Building. This includes interior lighting, operation of
heating and cooling systems, and other electrical uses within these buildings.
• Water Transport: Emissions from grid-electricity used to power water delivery systems
(drinking water well pumps) and the pumps/lift station associated with the City’s
wastewater treatment plant (WPCP). Emissions from wastewater treatment methods
were not included as part of this inventory.
• Public Lighting: Emissions from grid electricity used to power street lights, park lighting,
signage, traffic control lighting, and other miscellaneous forms of public lighting that is
owned and/or controlled by the City of Tybee Island. Emissions from interior lighting are
included within the Buildings and Facilities sector. Street lighting for the City of Tybee
Island that is owned and operated by the Georgia Department of Transportation as well
as outdoor lighting that is not metered is not included within this inventory assessment.
• Vehicle Fleet: Emissions from city-owned vehicles, large equipment, small maintenance
equipment, and marine related equipment used by the City’s police, fire, and other
departments.
• Employee Commute: Emissions generated from fuel usage associated with employees
commuting to and from work
For the City of Tybee Island, the energy used to run and operate local government facilities is
supplied by Georgia Power, the local electric utility. Natural gas is not used by the City of Tybee
Island to power government buildings and operations. Utility power bills for 2015 were utilized
to supply the bulk of data used to identify and assess the amount of energy used to power
buildings, water/wastewater delivery systems, and supply public lighting, which are all stationary
sources of GHG emissions.
The types of energy and emissions associated with these operations vary based on the different
government functions as well as the source of energy. Correspondingly, the way in which GHG
emissions may be assessed and quantified for these operations vary. For example, electricity used
at a government building is measured in kWh while the emissions from vehicle fleet activities and
employee commuting patterns are measured in miles traveled, or gasoline/diesel used.
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During 2015, government operations at the City generated roughly 3,735 metric tons of CO2
equivalent (MtCO2e). The use of electricity at City buildings and facilities account for roughly 9%
of CO2e. Water transport was the largest sector, accounting for over 50% CO2e. Public lighting
and the vehicle fleet were responsible for 20% and 9% of CO2e, respectively, with the employee
commute sector having the lowest percentage of greenhouse gas emissions at 7%.
The British Thermal Unit (BTU) is the standard unit for measurement of energy. The MMBtu
represents one million BTUs and is the unit of measurement used for comparing the various
sectors of government operations in the table below. Tybee Island used a total of 28,330 units of
energy (MMBtu) during the 2015 base year. Again, the water transport sector accounts for the
highest energy usage at 50%. Lighting and employee commute have the second highest
percentages at 18% and 13% respectively. Fleet vehicles and buildings are the smallest in total
percentage of energy usage for the sectors analyzed. For a more detailed breakdown of energy
usage and CO2e generated within each sector, please see the full report in Appendix B.
Table 19: Energy Usage and GHG Emissions for All Sectors
Category of Government
Operations
Equivalent
CO2
Percent Energy
(MMBtu)
Percent
Buildings 344.0 9% 2,377.0 8%
Water Treatment 2,031.9 54% 14,040.3 50%
Public Lighting 749.3 20% 5,177.8 18%
Fleet Vehicles 336.7 9% 3,123.8 11%
Employee Commute 273.5 7% 3,610.8 13%
9%
54%20%
9%7%
Figure 15: GHG Emissions by Sector (% CO2e)
Buildings
Water Treatment
Lighting
Fleet Vehicles
Employee Commute
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The GHG Emissions Inventory resulted in the following recommendations to reduce energy
consumption, thereby reducing GHG emissions from local government operations:
1. Continuation of Greenhouse Gas Emissions Inventory: This inventory provides a great
starting place for the City of Tybee as it provides a baseline year for which reduction
goals and future impacts can be measured and compared. The City should review the
strategies outlined in this inventory and set emission reduction goals and measure
success based on the baseline year. The City should also develop an action plan /
implementation plan to assist with tracking and achieving reduction goals.
2. Third-Party Audit: The City may want to consider having a third-party energy audit
conducted by an objective and credentialed firm that specializes in these types of
audits. The results of this greenhouse gas emissions inventory can be used in
conjunction with a third-party audit to identify specific energy reduction strategies for
the City of Tybee that have the greatest impact. This audit should also include a detailed
analysis of the City’s current billing setup with Georgia Power to ensure that all current
billing practices are most economically beneficial to the City. The audit should
investigate measures to reduce energy consumption during peak energy usage times
(both within a 24-hr period and seasonally). In conjunction with, or as an alternative to
this if the City cannot hire a third-party, the City should also request that Georgia Power
conduct additional energy audits of its other City buildings and operations.
3. Public Education and Incentive Programs: The City should continue to promote energy
conservation to city employees and tenants of city building space. Incentive programs,
perhaps groped by department and/or building, could be set up to encourage
employees to reduce energy consumption.
4. Energy Efficiency: There are a variety of energy efficiency measures that should be
considered to reduce energy consumption and greenhouse gas emissions at City
facilities and associated with City operations, some of which may also reduce electricity
costs. These include:
a. Energy efficient wastewater treatment methods should be considered when
designing and upgrading the City’s wastewater treatment plant. As discussed
within this report, over 50% of the City’s energy usage and GHG emissions result
from wastewater treatment.
b. Explore the potential cost savings associated with a 4-day work week as a mean
to reduce electricity usage at some or all public facilities;
c. Explore alternative energy sources for interior and outdoor public lighting (ie.
Solar power) as well as switching to more energy-efficient lighting (i.e., LED
lights); and
d. Increase use of occupancy sensors and re-location and setting of programmable
thermostats in all City Hall buildings;
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e. The City of Tybee should ensure that all City Hall renovations plan for and
incorporate the energy efficiency recommendations provided by Georgia Power
during its April 2015 Memorial Park Energy Audit. This includes incorporation of
occupancy sensors and re-location and setting of programmable thermostats in
the gymnasium and other areas. These same recommendations can be
expanded to other City hall buildings.
f. Increase recycling efforts and reduce the amount of government-disposed solid
waste that is sent to a landfill (this will reduce fugitive greenhouse gas emissions
associated with landfills)
g. Explore alternative cost and benefits associated with alternative fuel sources for
fleet vehicles. For example, the City could explore the use of bio-diesel as an
alternative to gasoline and diesel in fleet vehicles.
h. Identify incentives available to encourage employees to utilize alternative forms
of transportation when commuting to work; and
i. Providing incentives for employees to live closer to work. Carpooling and public
transportation options could also be explored as a means to reduce emissions
related to commuting. An additional option could be the exploration of a 4-day
work week as mentioned above.
4.7. ZONING
4.7.1 Zoning Analysis
Since most of the island has been developed, subdivision and subsequent development of
existing residential parcels presents the greatest opportunity for growth on the island. Recent
development activity indicates that there is a growing trend in subdivisions of parcels zoned R-2.
In addition, much of the remaining undeveloped residential property on the island is zoned R-2,
which allows for the high density of residential development. The City of Tybee Island’s R-2 zoning
category was established to allow for one and two family residential development, and allows
for the smallest minimum lot size for residential parcels on the island. The schedule of
development regulations (Sec 3-090) defines the allowable lot sizes for residentially zoned
property in the City. The minimum lot size for development of a single family dwelling unit is
4,500 square feet in the R-2 district. The minimum lot size for a two-family structure in this district
is 6,750 square feet. These numbers are the basis for determining the impact of potential future
build out.
Roughly 40% of the island is currently zoned R-2, much of which is currently developed as a single-
family residential use. There is reason for concern from a carrying capacity perspective when
considering the future development potential for these properties. The following analysis
evaluates these properties to determine the population impact that different development
scenarios would have on the City.
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4.7.2 Methodology
The methodology used for this analysis began with the identification of all parcels currently zoned
R-2. These properties were then broken down into the following categories based on lot size:
Less the 6,750 square feet. Parcels in this category could only be developed as single-
family homes.
6,750 - 11,250 square feet. Parcels in this category could be developed as two-family
residential, either as a duplex, or as two, single-family residential parcels (if over 9,000
square feet).
11,250 - 13,500 square feet. These parcels could be split and developed with one-single
family and one, two-family structure.
Over 13,500 square feet. Parcels that can be developed as two, two-family structures.
Unique. Certain unique conditions were also considered. This includes significantly large
parcels that could be sub-divided a number of different ways. For example, a large
property with a significant amount or marsh may limit its development potential.
Additionally, a large undeveloped property may have be large enough for a larger
subdivision of land.
4.7.3 Analysis
There are currently 1,694 R-2 parcels in the City. Roughly 80% of these parcels are currently
developed. The general land uses shown in Table 20 were determined using data from the
Chatham County Tax Assessors Office. This data was then vetted in GIS using aerial photography
and other online resources. Table 20 shows the current breakdown of land uses within the R-2
zoning district.
Table 20: Number of R-2 Parcels and Residential Units
Category Number of R-2 Parcels Number of Units
Single Family 1,337 1,337
Duplex 85 170
Non-Residential 11 0
Undeveloped 261 0
Total 1,694 1,507
Please note, one of the undeveloped R-2 properties listed above is not developable, one is in a
conservation easement, and the last parcel (shown in Figure 15), is likely the last parcel on Tybee
with significant developable acreage, approximately 600,000 square feet.
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TYBEE ISLAND CARRYING CAPACITY STUDY 50
Figure 16: Large Undeveloped Parcel on Tybee
4.7.4 Population in the R-2 District Based on Current Development
The 2010 Census reports that only about 40% of housing units in the City of Tybee Island are
occupied by year-round, full-time residents. Therefore, the remaining 60% of housing on the
island is potentially available as seasonal rentals or vacation housing (i.e., second homes), both
of which can have a dramatic effect on peak population numbers during summer months. As
stated earlier in this report, the US Census Bureau found that the average household size for
residents of Tybee Island is 2.1 people per unit, while the number of people occupying a short-
term rental or vacation unit can vary greatly. The Carrying Capacity Stakeholder group agreed to
use an estimate of 5 people per unit when approximating short-term rental or vacation overnight
population. Table 21 shows the maximum population (both resident and short-term rental) that
is likely supported within the R-2 district, in its current development state.
Table 21: Maximum Population Based on Current Development
Category Number of
R-2 Parcels
Number of
Units
Resident Population
40%
(2.1 people/ unit)
Short Term / Vacation
Population
60%
(5 people/ unit)
Single Family 1,337 1,337 1,124 4,011
Duplex 85 170 143 510
Non-Residential 11 0 0 0
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TYBEE ISLAND CARRYING CAPACITY STUDY 51
Category Number of
R-2 Parcels
Number of
Units
Resident Population
40%
(2.1 people/ unit)
Short Term / Vacation
Population
60%
(5 people/ unit)
Undeveloped 261 0 0 0
Total 1,694 1,507 1,267 4,521
This analysis shows that the maximum potential overnight population in the R-2 at 100%
occupancy for both resident and short-term rental/vacation units is currently 5,788 people.
4.7.5 Full Build-Out Scenario
In order to understand the potential impacts of a full build-out scenario in the R-2 district, it was
first necessary to determine the maximum number of units that could be developed within the
areas zoned R-2. Based on current land use breakdown shown in Table 20, the total number of
residential units in R-2 today is 1,507. However, if these same parcels were subdivided and
developed to the maximum extent, in accordance with the lot size standards for R-2, the number
residential units would increase by 1,321, for a total of 2,828 residential units, as presented in
Table 22. This represents an increase of approximately 88% in the number of residential units in
R-2. This analysis assumes that each parcel, both developed and undeveloped, are built out to
their maximum capacity, based on the current standards for R-2. The map in Figure 17 illustrates
the breakdown of lots based on their developable acreage.
Table 22: Full R-2 Build-Out Scenario
Category Developable Area within Parcel Total Existing
Parcels
Potential
Units
Single Family Residential Less than 6,750 Sq. Ft 1,087 1,087
Two Family Residential 6,750 - 11,250 Sq. Ft 335 670
One Single Family, One 2-Family 11,250 - 13,500 Sq. Ft 93 279
Two 2-Family Structures Greater than 13,500 Sq. Ft 176 704
Residential development* 600,000 Sq. Ft of Developable Area 1 88
Total 1,692 2,828
* For the purposes of this study, it was assumed that 50% of the developable acreage could be included in the parcels, and that
the parcels would be 6,750 Sq Ft, each containing a duplex unit.
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TYBEE ISLAND CARRYING CAPACITY STUDY 52
Figure 17: R-2 Parcels by Lot Size
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TYBEE ISLAND CARRYING CAPACITY STUDY 53
4.7.6 Additional Population Based on Build-Out Scenario
Table 23 shows the total potential population (both resident and short-term rental) that would
result from the full-build out scenario described above.
Table 23: Maximum Population of Build-Out Scenario
Category Total
Existing
Parcels
Potential
Units
Resident
Population
40%
(2.1 people/
unit)
Short Term /
Vacation
Population
60%
(5 people/ unit)
Single Family Residential 1,087 1,087 914 3,260
Two Family Residential 335 670 563 2,010
One Single Family, One 2-Family 93 279 235 835
Two 2-Family Structures 176 704 592 2,110
Residential development* 1 88 74 264
Total 1,692 2,828 2,378 8,479
This analysis shows that the maximum potential overnight population in the R-2 at 100%
occupancy for both resident and short-term rental/vacation units in the full build-out scenario
would be 10,857. This represents a potential maximum population increase of 5,069.
4.7.7 Zoning Assessment Findings
Table 24 summarizes the findings of the R-2 analysis.
Table 24: R-2 Buildout Population Increase Summary
Condition Potential
Units
Resident
Population
40%
(2.1 people/
unit)
Short Term /
Vacation
Population
60%
(5 people/ unit)
Total Overnight
Population
Existing Development 1,507 1,267 4,521 5,788
Build-Out Scenario 2,828 2,378 8,479 10,857
Increase 1,321 1,111 3,958 5,069
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TYBEE ISLAND CARRYING CAPACITY STUDY 54
Based on the existing zoning standards for the R-2 District, this build-out scenario has the
potential to significantly increase the overnight population on the island, resulting in a dramatic
impact on peak demand issues related to water supply, wastewater discharge, and
transportation discussed earlier in this report. In Section 3.2 of this report, it was calculated that
the maximum overnight population on the island under current development conditions is
14,468. Adding the additional overnight population that could be experienced under a full-build
out scenario for R-2, brings the maximum overnight population to 19,327. This is well beyond the
peak capacity of both the current water supply and wastewater discharge systems, and would
clearly increase congestion along US 80 and the internal road network. Furthermore, it exceeds
the future expected capacity of the Cretaceous Well and future permitted withdrawal from the
Floridan Aquifer. It is also important to note that areas currently subject to King-tide flooding
now and as part of a future sea level rise are within the R-2 zone, which is the highest density
residential zoning classification.
Table 25: Future Water Usage Projections Under Full Build-Out Scenario
This future build out scenario is affected by both the geographic extent of the R-2 district as well
as standards for subdivision and development of the R-2 district. While subdivisions and
redevelopments of parcels within this district are currently happening slowly, parcel by parcel,
the pace at which it is occurring is likely to increase as property value increases and available land
for development on Tybee Island decreases. This analysis is not suggesting that the full build-out
scenario is likely to occur in the near future, only that over time it is possible that development
density could significantly increase to the levels proposed here. Furthermore, the City needs to
consider the impacts of this zoning classification under a post-disaster redevelopment scenario.
Population Daily Water
Usage (GPD)
Peak Demand (Maximum Overnight Population) 14,468 1,692,756
Future Additional Potential Peak Demand (Build Out R2
Scenario)
4,735 553,995
Total Potential Peak Demand Water Withdrawal 19,203 2,246,751
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TYBEE ISLAND CARRYING CAPACITY STUDY 55
5. RECOMMENDED STRATEGIES AND WORK PLAN
The analyses of the population study and the resources limitations were shared with City staff, the City’s consulting engineer, and the
TAG. Collectively, this process resulted in the identification of carrying capacity issues and recommended strategies for each of the
functional areas identified. The overall approach recommended by this process and its participants is twofold:
1) Make improvements to the City’s existing infrastructure systems to provide additional capacity to accommodate more
growth, and
2) Identify ways to better manage future growth to limit stresses on infrastructure and environmental impacts from future
development.
It was the belief of the TAG that any comprehensive and realistic solution to address carrying capacity issues on Tybee Island should
be inclusive of both approaches. As the City continues to experience the significant financial impact of the infrastructure improvements
that will be necessary to accommodate future growth, strategies regarding growth management and development regulation may
become more favorable.
In an effort to make this plan a more user friendly document, table formatting has been utilized to outline the carrying capacity issues,
recommended strategies, considerations, and action items related to each resource area. The resulting action items will form the basis
of the City’s Carrying Capacity Work Plan. Ideally, this format will make implementation of the Carrying Capacity Study easier to
undertake and track over time.
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
WATER SUPPLY
Water withdrawal
permit limitations
Peak water usage
associated with
tourism
Installation of a
Cretaceous Well
and construction of
a Treatment Facility
Water conservation
education targeting
tourists and
o Cost of capital
construction
o Increased costs
associated with
treatment
o Discharge of briny
wastewater
1. Perform a rate study to ensure that current and future
water rate structure will generate the revenue necessary
to construct and operate the Cretaceous well. Rate study
should also consider "peak usage rates" to encourage
water use reduction during peak season.
2. Determine how much treatment capacity the RO Plant
should be designed to provide. 1.0 MGD is the maximum.
Table 24: Carrying Capacity Issues, Strategies, Considerations and Action Items 20170209AmendedCityCouncilPacketPage 122 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 56
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
development
community
Alternative water
sources including:
gray water usage,
rainwater capture,
shallow wells, and
reuse (after the
WPCP upgrade)
o Limited space available
for construction of
treatment facility
o Tourists can be a
difficult audience to
reach.
o Current plumbing code
may not allow for gray
water usage.
3. Develop a conceptual design and financial plan for the
treatment plant. This should include land acquisition (if
necessary) proposed construction and operational costs,
proposed revenue sources, proposed discharge method,
and evaluation of any regulatory permitting
requirements.
4. Construct RO Treatment Plant.
5. Work with the Real Estate/Rental companies to create
water conservation education campaign for tourists.
6. Provide better information to water customers regarding
the volume of water they use.
7. Evaluate current code and adopt/amend local ordinances
as necessary to allow for gray water use, rainwater
harvesting, and reuse.
8. Encourage the use of alternative water sources for
irrigation and outdoor showers.
WASTEWATER TREATMENT
Peak wastewater
discharge issues
associated with
tourist season.
Capacity of WPCP
infrastructure to
accommodate
more flow
Potential water
quality issues from
discharge.
Future permitted
discharge
Upgrade WPCP to
accommodate
more flow and to
treat to a higher
standard.
o Lack of space for WPCP
expansion
o Potential combined
discharge from
Cretaceous well
treatment plant
increases the need for
capacity in discharge
pipes.
o Permitting and
environmental impacts
of upgrading discharge
pipe
9. Perform a rate study to determine if current rates are
appropriate and adequate to support future capital
construction needs. This should be conducted in
conjunction with the water use rate study.
10. Submit a Waste Load Allocation to the Georgia EPD for
additional flow.
11. Develop a conceptual design for upgrades to the WPCP.
This design should include land acquisition (if necessary)
proposed construction and operational costs, proposed
discharge method and evaluation of any regulatory
permitting requirements. Design considerations for the
discharge pipe should be made in conjunction with the
plans for the Cretaceous Well Treatment Plan discharge. 20170209AmendedCityCouncilPacketPage 123 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 57
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
standards may be
higher.
o Costs associated with
infrastructure
improvements
12. Develop a plan for reuse water use, including the
ballfields.
13. Continue program to upgrade pump stations.
14. Construct upgrades to WPCP.
STORMWATER AND FLOODING
Nuisance flooding
associated with
king high tide and
rain events.
Sea level rise is
exacerbating
flooding
Water quality
issues that result
from flooding
Implement priority
recommended
improvements
from the Sea Level
Rise Study.
Advocate for
elevation of
Highway 80.
Limit new
impervious
surfaces.
Limit new
construction in
areas subject to
flooding.
o Cost of infrastructure
upgrades
o Lack of control over
Hwy 80 project.
o Current status of Hwy
80 project has limited
elevation of the road
bed due to settlement
concerns.
o There are development
rights associated with
property that is already
subject to King Tide
flooding.
15. Elevate the Butler Ave and 14th Street Pump Houses.
16. Install backflow preventers on stormwater outfalls as
recommended in Sea Level Rise Adaptation Plan.
17. Continue to work with ACOE on Beach Re-Nourishment
Program
18. Consider program to augment the dune system.
19. Work directly with DOT and lobby for additional elevation
of Hwy 80 to high sea level rise scenario elevations, i.e.
31” or more.
20. Consider an ordinance to limit the amount of impervious
surface in new or redevelopment. Especially in drainage
basins subject to King Tide flooding.
21. Require infiltration of the water quality volume (1.2” of
stormwater) for all new development and
redevelopment.
22. Revise the City code to allow for and incentivize rainwater
harvesting.
23. Investigate the potential to receive FEMA funding to
purchase repetitive flood loss properties.
24. Develop a program to encourage and incentivize green
infrastructure for single family home development.
SOLID WASTE/LITTER
Litter on beach
Municipal solid
waste (MSW)
Reduction of
waste generation
on island
o Tourists are a hard
audience to reach
25. Perform a solid waste study to further evaluate the issues
identified here and identify additional feasible solutions. 20170209AmendedCityCouncilPacketPage 124 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 58
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
disposal trends are
still increasing
despite the
availability of
recycling.
Recycling
receptacles are
often contaminated
by MSW.
Yard waste is being
left on the
road/curb and not
being picked up
Alternatives for
solid waste
disposal in landfills
off island
Waste reduction
education & litter
education for
tourists
Enforcement of
litter ordinance
o Enforcement of litter
ordinance is difficult
and requires staff
o The recycling market is
volatile
o Contamination of
recycling affects its
marketability.
o There is more MSW
than available
receptacles for short-
term rentals or for the
beach causing
contamination of
recycling.
26. Consider requiring Short-Term Rentals to have summer
schedule (i.e. twice per week) for solid waste and
recycling pickup.
27. Work with tourism board and solid waste contractor to
develop an education program targeted at tourists to
discourage littering, increase participation in recycling,
and decrease recycling contamination.
28. Implement program for increased beach litter patrols.
29. Review MSW disposal and recycling program on beach to
determine if more receptacles or a different format
would work better.
30. Work with local businesses to identify and encourage
alternatives to single use items.
31. Study potential for glass crusher, and City-sponsored glass
recycling program.
32. Consider requirements for condominiums to have
dumpsters as opposed to individual trash cans and to
provide recycling options for residents/renters.
33. Work with solid waste contractor to identify and address
obstacles to yard waste pickup.
34. Work with solid waste contractor to study the
cost/benefits of segregated recycling.
35. Research and identify potential purchase and operation
of beach cleaning equipment, i.e. sifters.
ENERGY CONSUMPTION
City operations
result in energy
use, which
contributes to
Reduce energy
usage within City
facilities.
o The City has already
made great strides in
alternative energy
usage through solar
36. Have a third party perform and energy audit that includes
an assessment of the City’s electrical meters and Georgia
Power billing system. 20170209AmendedCityCouncilPacketPage 125 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 59
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
greenhouse gas
emissions.
The billing system
of Georgia Power
makes tracking and
analyzing energy
usage difficult.
Promote energy
efficiency through
education and
incentives.
Work with Georgia
Power to review
and simplify billing
system.
power and through
energy efficiency
audits.
37. Promote energy conservation to city employees and
tenants of city building space. Incentive programs could
be set up to encourage employees to reduce energy
consumption.
38. Explore the potential cost savings associated with a 4-day
work week to reduce electricity usage at public facilities
as well as commuting time for employees.
39. Explore alternative energy sources for interior and
outdoor public lighting (i.e. solar power) as well as
switching to more energy-efficient lighting (i.e., LED
lights).
40. Increase use of occupancy sensors and re-location and
setting of programmable thermostats in all City buildings.
41. Ensure that all City Hall renovations plan for and
incorporate the energy efficiency recommendations
42. Explore alternative cost and benefits associated with
alternative fuel sources for fleet vehicles. For example,
the City could explore the use of bio-diesel as an
alternative to gasoline and diesel in fleet vehicles or the
purchase of hybrid vehicles.
TRAFFIC AND PARKING
Peak traffic flow
issues related to
day-trippers and
events creates
congestion and
makes accessing or
traveling around the
island difficult.
Traffic resulting
from accidents and
Improve Hwy 80 to
provide passable
shoulders and an
elevated road bed.
Provide additional
parking
opportunities
Provide multi-
modal
opportunities for
o There are no transit
opportunities to Tybee
Island.
o There is currently no
public harbor to allow for
ferry service to Savannah.
o The City does not control
Hwy 80 Improvements.
43. Advocate with GDOT to elevate the road surface and
create passable and bikeable shoulders as part of the
bridge and road improvements on Hwy 80.
44. Work with the NPS, Fort Pulaski and the County to extend
the McQueen’s trail to the Lazaretto Creek Bridge.
Continue work to connect the Marsh Hen Trail to the
Lazaretto Creek Bridget.
45. Continue to operate parking application for smart phones
to notify people of available parking. Work with Tybee 20170209AmendedCityCouncilPacketPage 126 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 60
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
flooding on Hwy 80
cuts off access to
the island resulting
in economic losses
and emergency
situations.
Lack of parking
creates congestion
and illegal parking
problems during
peak tourism season
transportation to
and within Tybee
Island
Notify people
about traffic
congestion and
parking issues
before they get on-
island.
o There is limited land to
accommodate additional
parking.
o More parking could
encourage additional
visitors resulting in more
impact.
o Legal ROW parking is not
known and/or clearly
marked.
o Historic attempts at
remote parking have not
been well utilized
because people want to
park near the beach
when they have a lot of
beach gear.
o Potential to eliminate
parking in C2 could
reduce future available
parking opportunities.
Tourism Council to promote this application. Record data
from application to track trends in parking usage.
46. Work with the County to operate electronic signage at
Johnny Mercer Blvd. and Hwy 80 to notify visitors of
traffic conditions.
47. Perform a study to identify all of the ROWs that are
owned by the City, and develop a parking plan for these
ROWs that includes a clear delineation of ROWs where
parking is allowed and where it is prohibited, i.e. yellow
curb.
48. Consider on-island electronic signage to notify visitors of
available parking.
49. Work with churches and school to provide additional
parking on peak days, if they so choose.
50. Consider the construction of a parking garage in the C1
area, potentially through a public private partnership.
Consider duel uses such as downstairs commercial or
rooftop mini-golf to make it more cost effective.
51. Review parking rates and determine if demand-based
rates could help address peak traffic and parking issues.
SHORT-TERM RENTALS
Peak water and
wastewater usage
on the island is
driven largely by
short-term rentals.
Regulate the
short-term rental
industry.
o Short-term rentals are a
component of all above
elements, but are also
important to the
economy of the island.
52. Review the data gathered through the current Short-
Term Rental Ordinance, and reevaluate the need for
additional regulation.
53. Consider a limit on Short-Term Rental Occupational Tax
Certificates. This could be by total number or a
percentage of housing units on the island.
54. Consider limiting the advertised capacity for short-term
rental units by their available parking spaces. 20170209AmendedCityCouncilPacketPage 127 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 61
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
ZONING & LAND DEVELOPMENT REGULATIONS
The R-2 Zoning
District has a lot of
room for additional
development
through subdivision
and redevelopment
of existing lots.
The area subject to
flooding during
King tides and rain
events, is in the R-2
District.
Restrict future
development and
redevelopment in
the R-2 District,
especially areas
that are subject to
flooding.
o Building is already
restricted on Tybee Island
through height.
restrictions and lots sizes.
o Private property rights.
o More impervious surface
from additional
development in the R-2
district will make flooding
issues worse.
o The additional population
that would result from a
full buildout will have a
serious effect on the
Island’s resources,
services, and facilities.
55. Consider amending the R-2 district to
a. Increase the minimum lot size for duplexes.
b. Increase the minimum lot size necessary for subdivisions
56. Consider rezoning areas subject to flooding to R-1 or a
more restrictive zoning district.
57. Consider a transfer of development rights program that
will direct development away from lots subject to
flooding and towards other areas that have the ability to
accommodate more dense development.
58. Provide a tax incentive for R-2 property owners to under-
develop their lots.
59. Purchase and permanently protect undeveloped property
in the R-2 district. Prioritize purchase of repetitive loss
housing.
60. Restrict new impervious surface in the R-2 district.
CITY FUNDING AND RESOURCES
The City does not
currently have the
funding necessary
to implement
needed capital
improvements.
The city needs staff
resources to focus
on issues identified
in this plan.
Adjust utility rate
structure to
ensure that the
city can fund
future capital
improvements and
operations.
Identify other
funding sources
for improvements
o The resident
population may be
burdened by the cost
to support the tourist
population.
o A large proportion of
the City’s budget is for
services and
infrastructure that
services the tourism
industry.
61. Perform a comprehensive water and sanitary sewer rate
study to:
a. Provide adequate funding for future improvements and
operations
b. Incentivize water conservation.
c. Consider peaking factors and/or seasonal rates to reduce
peak usage and to shift the cost burden off of the
residential population
62. Perform a stormwater utility feasibility study to
determine if a stormwater fee would be a potential
funding source for stormwater improvements 20170209AmendedCityCouncilPacketPage 128 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 62
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
City needs reserves
for disaster
preparedness and
infrastructure
improvements.
Identify or hire
staff to focus on
Carrying Capacity
Issues
o The tourism industry
drives the economy on
Tybee Island.
63. Investigate GEFA loan and principal forgiveness program
as a potential funding source for water, sewer, and
stormwater improvements.
64. Look for regional partners who also benefit from the
tourism industry to assist with the cost of improvements
to address impact of tourists on island resources.
65. Work with Chatham County on future SPLOST
referendum to identify opportunities for additional
funding.
66. Perform a Reserve Fund Study to determine the amount
of reserve funds needed for disaster preparedness and
response.
67. Consider adding staff to focus on implementation of this
work plan.
68. Consider using available funds in the Tybee Energy Loan
Fund to finance energy efficiency recommendations.
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TYBEE ISLAND CARRYING CAPACITY STUDY 63
5.1. CARRYING CAPACITY WORK PLAN
The following table constitutes the Work Plan that was developed based on the recommended strategies produced by the TAG. The
Work Plan includes the list of action items, a general time frame for implementation (i.e. tasks should be implemented within a two,
five or ten year timeframe), and a cost implication, if known. The activities included within the Work Plan should be viewed as a subset
of the Community Work Program that is part of the Tybee Island Comprehensive Plan Update 2016.
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
WATER SUPPLY
1. Perform a rate study to ensure that current and future water rate structure
will generate the revenue necessary to construct and operate the
cretaceous well. Rate study should also consider "peak usage rates" to
encourage water use reduction during peak season.
X $40,000
2. Determine how much treatment capacity the RO Plant should be designed
to provide. 1.0 MGD is the maximum. X Staff Time
3. Develop a conceptual design and financial plan for the RO treatment plant.
This should include land acquisition (if necessary) proposed construction
and operational costs, proposed revenue sources, proposed discharge
method, and evaluation of any regulatory permitting requirements.
X $20,000
4. Construct the RO Treatment Plant X $7 Million
Table 25: Carrying Capacity Work Plan 20170209AmendedCityCouncilPacketPage 130 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 64
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
5. Work with the Real Estate/Rental companies to create water conservation
education campaign for tourists. X $10,000
6. Provide better information to water customers regarding the volume of
water they use. X TBD
7. Evaluate current code and adopt/amend local ordinances as necessary to
allow for gray water use, rainwater harvesting, and reuse. X Staff Time
8. Encourage the use of alternative water sources for irrigation and outdoor
showers. X Staff Time
WASTEWATER
9. Perform a rate study to determine if current rates are appropriate and
adequate to support future capital construction needs. This should be
conducted in conjunction with the water use rate study. X $15,000
10. Submit a Waste Load Allocation to the Georgia EPD for additional flow. X $3,000
11. Develop a conceptual design for upgrades to the WPCP. This design should
include land acquisition (if necessary) proposed construction and
operational costs, proposed discharge method and evaluation of any
regulatory permitting requirements. Design considerations for the discharge
X $25,000 20170209AmendedCityCouncilPacketPage 131 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 65
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
pipe should be made in conjunction with the plans for the Cretaceous Well
Treatment Plan discharge.
12. Develop a plan for reuse water use, including the ballfields. X Included in
Concept Plan
13. Continue program to upgrade pump stations. X
$25,000 -
$100,000 per
station
14. Construct upgrades to WPCP. X $16 - $20
Million
STORMWATER AND FLOODING
15. Elevate the Butler Ave and 14th Street Pump Houses. X $400,000
16. Install backflow preventers on stormwater outfalls as recommended in Sea
Level Rise Adaptation Plan. X $3 Million
17. Continue to work with ACOE on Beach Re-Nourishment Program X TBD
18. Consider program to augment the dune system. X TBD
19. Work directly with DOT and lobby for additional elevation of Hwy 80 to high
sea level rise scenario elevations, i.e. 31” or more. X Staff Time 20170209AmendedCityCouncilPacketPage 132 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 66
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
20. Consider an ordinance to limit the amount of impervious surface in new or
redevelopment. Especially in drainage basins subject to King Tide flooding. X Staff Time
21. Require infiltration of the water quality volume (1.2” of stormwater) for all
new development and redevelopment. X
22. Revise the City code to allow for and incentivize rainwater harvesting. X Staff Time
23. Investigate the potential to receive FEMA funding to purchase repetitive
flood loss properties. X TBD
24. Develop a program to encourage and incentivize green infrastructure for
single family home development. X Staff Time
SOLID WASTE AND LITTER
25. Perform a solid waste study to further evaluate the issues identified here
and identify additional feasible solutions. X $50,000
26. Consider requiring Short-Term Rentals to have summer schedule (i.e. twice
per week) for solid waste and recycling pickup. X Staff Time
27. Work with tourism board and solid waste contractor to develop an
education program targeted at tourists to discourage littering, increase
participation in recycling, and decrease recycling contamination. X $10,000 20170209AmendedCityCouncilPacketPage 133 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 67
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
28. Implement program for increased beach litter patrols. X
Staff Time for
Additional
Officers
29. Review MSW disposal and recycling program on beach to determine if more
receptacles or a different format would work better. X Part of Study
30. Work with local businesses to identify and encourage alternatives to single
use items. X Staff Time
31. Study potential for glass crusher, and City-sponsored glass recycling
program. X Part of Study
32. Consider requirements for condominiums to have dumpsters as opposed to
individual trash cans and to provide recycling opportunities for
residents/rentors. X Part of Study
33. Work with solid waste contractor to identify and address obstacles to yard
waste pickup. X Part of Study
34. Work with solid waste contractor to study the cost/benefits of segregated
recycling. X Part of Study
35. Research and identify potential purchase and operation of beach cleaning
equipment, i.e. sifters. X Part of Study 20170209AmendedCityCouncilPacketPage 134 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 68
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
ENERGY CONSUMPTION
36. Have a third party perform and energy audit that includes an assessment of
the City’s electrical meters and Georgia Power billing system. X Percentage of
Cost Savings
37. Promote energy conservation to city employees and tenants of city building
space. Incentive programs could be set up to encourage employees to
reduce energy consumption. X Staff Time
38. Explore the potential cost savings associated with a 4-day work week to
reduce electricity usage at public facilities as well as commuting time for
employees. X Staff Time
39. Explore alternative energy sources for interior and outdoor public lighting
(i.e. solar power) as well as switching to more energy-efficient lighting (i.e.,
LED lights). X TBD
40. Increase use of occupancy sensors and re-location and setting of
programmable thermostats in all City buildings. X $5,000
41. Ensure that all City Hall renovations plan for and incorporate the energy
efficiency recommendations X TBD
42. Explore alternative cost and benefits associated with alternative fuel
sources for fleet vehicles. For example, the City could explore the use of X Staff Time 20170209AmendedCityCouncilPacketPage 135 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 69
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
bio-diesel as an alternative to gasoline and diesel in fleet vehicles or the
purchase of hybrid vehicles.
TRAFFIC AND PARKING
43. Advocate with GDOT to elevate the road surface and create passable and
bikeable shoulders as part of the bridge and road improvements on Hwy 80. X Staff Time
44. Work with the NPS, Fort Pulaski and Chatham County to extend the
McQueen’s trail to the Lazaretto Creek Bridge. Continue work to connect
the Marsh Hen Trail to the Lazaretto Creek Bridget. X Staff Time
45. Continue to operate parking application for smart phones to notify people
of available parking. Work with Tybee Tourism Council to promote this
application. Record data from application to track trends in parking usage. X Staff Time
46. Work with the County to operate electronic signage at Johnny Mercer Blvd.
and Hwy 80 to notify visitors of traffic conditions. X Staff Time
47. Perform a study to identify all of the ROWs that are owned by the City, and
develop a parking plan for these ROWs that includes a clear delineation of
ROWs where parking is allowed and where it is prohibited, i.e. yellow curb. X TBD 20170209AmendedCityCouncilPacketPage 136 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 70
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
48. Consider on-island electronic signage to notify visitors of available parking. X TBD
49. Work with churches and school to provide additional parking on peak days,
if they so choose. X Staff Time
50. Consider the construction of a parking garage in the C1 area, potentially
through a public private partnership. Consider duel uses such as downstairs
commercial or rooftop mini-golf to make it more cost effective. X
≈ $19,000 per
space (if GI/LID
is included)
51. Review parking rates and determine if demand-based rates could help
address peak traffic and parking issues.
X Staff Time
SHORT-TERM RENTALS
52. Review the data gathered through the current Short-Term Rental
Ordinance, and reevaluate the need for additional regulation. X Staff Time
53. Consider a limit on Short-Term Rental Occupational Tax Certificates. This
could be by total number or a percentage of housing units on the island. X Staff Time
54. Consider limiting the advertised capacity for short-term rental units by their
available parking spaces.
X Staff Time 20170209AmendedCityCouncilPacketPage 137 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 71
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
ZONING AND LAND DEVELOPMENT REGULATIONS
55. Consider amending the R-2 district to:
a. Increase the minimum lot size for duplexes.
b. Increase the minimum lot size necessary for subdivisions. X Staff Time
56. Consider rezoning areas in R-2 District that subject to flooding to R-1 or a
more restrictive zoning district. X Staff Time
57. Consider a transfer of development rights program that will direct
development away from lots subject to flooding and towards other areas
that have the ability to accommodate more dense development. X TBD
58. Provide a tax incentive for R-2 property owners to under-develop their lots. X Staff Time
59. Purchase and permanently protect undeveloped property in the R-2 district.
Prioritize purchase of repetitive loss housing. X TBD
60. Restrict new impervious surface in the R-2 district. X Staff Time
CITY FUNDING AND RESOURCES
61. Perform a comprehensive water and sanitary sewer rate study to:
a. Provide adequate funding for future improvements and operations
b. Incentivize water conservation.
X $40,000 20170209AmendedCityCouncilPacketPage 138 of 22620170209/jrl
TYBEE ISLAND CARRYING CAPACITY STUDY 72
ACTION ITEM
SCHEDULE
COST
IMPLICATION IMMEDIATE
(2 YR)
SHORT
TERM
(5 YR)
LONG
TERM
(10 YR)
c. Consider peaking factors and/or seasonal rates to reduce peak usage
and to shift the cost burden off of the residential population
62. Perform a stormwater utility feasibility study to determine if a stormwater
fee would be a potential funding source for stormwater improvements X $15,000
63. Investigate GEFA loan and principal forgiveness program as a potential
funding source for water, sewer, and stormwater improvements. X $5,000
64. Look for regional partners who also benefit from the tourism industry to
assist with the cost of improvements to address impact of tourists on island
resources. X Staff Time
65. Work with Chatham County on future SPLOST referendum to identify
opportunities for additional funding. X Staff Time
66. Perform a Reserve Fund Study to determine the amount of reserve funds
needed for disaster preparedness and response. X $25,000
67. Consider adding staff to focus on implementation of this work plan. X Staff Time
68. Consider using available funds in the Tybee Energy Loan Fund to finance
energy efficiency recommendations. X Staff Time
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TYBEE ISLAND CARRYING CAPACITY STUDY 73
6. BIBLIOGRAPHY
CDM Smith. US 80 Bridges Replacement Study, Coastal Regional MPO, Final Report, 2012.
Calvin, Giordano & Associates, Inc. City of Key West Carrying Capacity Traffic Study, City of Key
West, December 2011.
Center for Regional Analysis, Armstrong State University. Tybee Island Tourism Study, City of
Tybee Island ad Armstrong Public Service Center, May 2015.
Ecological Planning Group, Population Assessment 2010, City of Tybee Island, June 2012
Evans, Jason et al. Tybee Island Sea Level Rise Adaptation Plan, National Sea Grant Program, April
2016.
Evans, Jason et al. Tybee Island Sea Level Rise Adaptation Plan Executive Summary, Georgia Sea
Grant and the University of Georgia Carl Vincent Institute of Government, June 2013.
HDR Engineering, Inc. Tybee Island Traffic and Parking Study, City of Tybee Island, January 2005.
RS&H. City of Tybee Island Pedestrian and Traffic Study, City of Tybee Island, January 2010.
Tybee Island Wave Ecology & the Highway 80 Challenge. Chatham County & the City of Tybee
Island, May 2011.
URS Corporation. Florida Keys Carrying Capacity Study: Draft Final Report First Revision, US Army
Corps of Engineers and the Florida Department of Community Affairs, September 2002.
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TYBEE ISLAND CARRYING CAPACITY STUDY A1
APPENDIX A: MEETING SUMMARIES
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City of Tybee Island
Carrying Capacity Study
Technical Advisory Committee (TAC) Coordination Meeting #1
October 12, 2015
3:00 PM – 5:00 PM
Attendees:
Freda Rutherford, Community Resources Committee (CRC)
Ed DiTommaso, EPG
Bud Matlock, CRC
Tim Arnold, CRC
George Shaw, City of Tybee Island
Kathryn Propst, CRC
Bill Garbett, Tybee Island City Council
Monty Parks, Tybee Island City Council
Courtney Reich, EPG
Diane Schleicher, City of Tybee Island,
Meeting Summary
1. Scope of Project
a. Scope & Schedule
Courtney gave some background on the grant and the general scope and schedule. This
included and summary of the outcomes and the requirements associated with each. Task
1 is primarily information gathering. EPG will work with the Technical Advisory
Committee (TAC) to gather relevant data. The second major task will be to assess will
various resources and how they impacted by, and/or limit, the daytime, overnight, and
permanent populations. It is anticipated that this will reveal hard limits, i.e. where a
resource absolutely limits the amount of people that can be supported, as well as soft
limits, where a resource as it is currently could limit future population if nothing is done
to address the limitation. Lastly, this information will be used to develop a series of
recommendations for the City consideration.
Additionally, the process will be well documented and EPG will produce an outline of how
another communities could replicate the process.
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2. Data Needs
The group discussed data needs and existing data sources. In some cases, EPG already has some of
the needed datasets, other cases will require coordination with appropriate City staff and/or CRC
members. The following datasets were discussed, and resource and/or responsible party identified:
Freda asked about when the 2015 Census data will be available. Also asked about when the master
plan is due and how the Carrying Capacity Study can be coordinated and included in the Master Plan.
The Master Plan is due next October (2016). EPG already contacted the Department of Community
Affairs to see if they would allow the City an extension to because of this grant, but no extension was
given. The requirements for the comprehensive is different than is was in 2007, but the City can
complete the plan based on the existing DCA schedule and adopt the Carrying Capacity as an
addendum later.
Data Source
GIS Data
Critical Habitats EPG, from CRD data
Water, Sewer, Stormwater Infrastructure Joe Wilson & George Reese at COTI
Flood Zones (Current and future) EPG will get these
Zoning CRC, George to update & EPG will request
Land Use 2008 land use plan, EPG will request &
update
Tree Canopy Cover EPG
Parking COTI, Pete Ryerson in Parking
Rental Units EPG to try to develop this layer using
Business tax info from Sharon and websites
for rental agencies
Bikeways EPG and Tybee
Emergency response/evacuation routes EPG to get from CEMA
Critical infrastructure EPG to get from CEMA
Other Data
Population Study EPG has this, will look to update as needed
Traffic Counts Diane to provide two calendar years’ worth
of data
Water & Sewer Permits Diane to provide
Parking See above
Electrical Grid Capacity Chris Tatasco (sp?) From GA Power
Solid Waste & Recycling Kathryn to provide
Rental Units See above
Housing (workforce) Census, survey
Alternative energy sources &
opportunities
Paul Wolff and Bill Garbett
Highway 80 Expansion EPG
Saltwater Intrusion Study EPG
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Discussion regarding the data included the following:
There was some discussion of why and how we determined which types of data to review. The
original list was not intended to be all inclusive and will likely be modified as we move through
the process.
EPG will review the critical habitats data to see where the priority areas are located throughout
the City.
EPG to get with George to obtain the water/sewer/stormwater datasets and determine the
usefulness of the data. We can request the data from CRC, Joe and George. EPG will work with
the city to determine how reliable the data is. Diane said the data is generally accurate and to
work with Hunter Key to get.
Flood. EPG already has the existing flood maps, but will try and obtain the future flood maps,
since they will be in effect before this project is complete.
Zoning. Get from Hunter at CRC. George is going to confirm that Hunter has the most updated
zoning based on a couple recent re-zonings. EPG will perform an analysis of existing R-2 zoning
and determine whether there are 2 houses or if they are currently SFR and can be developed as
2. A significant area of the City is zoned R-2 and there is often demand to make existing SFRs into
duplexes. EPG will also evaluate lot size as part of the analysis to make sure the use would be
allowed by right versus needing a variance.
Land Use. The City has not updated the existing land use layer since the 2008 master plan. EPG
will use the Tax assessors land use code and perform a desktop update.
Tree Canopy Cover. EPG has access to this data in a GIS format.
Parking. The city has a map of parking. Each metered parking space was included in this. The
beach management plan included a count of all metered parking on the island. Pete Ryerson,
would be the contact for this and also might have data that shows golf cart parking. Work with
parking staff at the City to verify and update as needed.
Rental Units. EPG might have a list containing some data about rental units, but single owner
properties are difficult to track. Might be some able to use the business license database since
renters are supposed to get a license, per city ordinance. Many get a license thought larger sites
(Air B&B) and the city does not have a way to track this. City is trying to develop a better way to
track this. The CRC team believes this is important. Start with business license list. Get with
Sharon from the City as a starting place. The city is seeing a trend in long term rentals being
converted to short-term rentals. Driving out workforce housing, which forces that population
group off the island. Look at cases where the renter has to put a deposit down vs owners that
bundle utilities. There is a perception that the population on the island is decreasing. Is this the
case? EPG discussed making a web survey to try and understand these trends.
Bikeways. There are existing maps showing bikeways on the island. Get with George or view city
website.
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Emergency response / evacuation and critical infrastructure. EPG will get with CEMA and Jimmy.
EPG also has the Highway 80 study
Population. EPG completed a population study that EPG completed as part of the LOST
negotiations. The focus of the study was to determine the daytime population numbers. There
has been a jump in short term rentals over the last few years, which has changed the population
make up on the island. EPG will update this study with new data.
Traffic Counts. Get info from police department. The city has a new system that tracks cars
coming onto the island. The City will provide two calendar years worth of data. 2013 – to date.
Courtney mentioned the public involvement element of the Hwy 80 project. She will to send out
information to the group about joining the DOT highway 80 notification list. DOT is going to host
a charrette in November to discuss the widening project.
W/S permits. City to provide list from EPD. Including the new Cretaceous well.
Parking. Get an understanding of the number of public parking spots in addition to private
parking. Issues with golf cart parking since they take up the same parking spaces, but the golf cart
shuttles make a difference because saves parking. EPG will look at alterative options. The
assessment will make an assumptions about how much parking is associated with houses. For
example, 4 spots for SFR, 8 for MF. EPG will come up with these assumptions and bring back to
the group. Get data on the number of seasonal passes / decals. Three categories, resident, sold,
given away.
Electrical grid capacity. Data from GA power. This will be difficult to get. GA power just
upgraded. Chris Tidasko from GA power is someone to contact about getting this type of
information. Power to the island is a single point failure.
Solid waste and recycling, CRC has a lot of data and will provide, but is missing information from
Condos. Ask condos to share this information and let them know we are only interested in
quantity and are not concerned with the prices. Also need this information for commercial
customers. If we are not successful getting real data we can make assumptions based on
container size and pick up frequency.
Maybe develop a survey for businesses on the island. Ask how much of your workforce lives on
the island?
Alternative energy. Paul and Bill will be able to provide information. How many people went
solar? Final report is being completed, so we should be able to get info from Hannah. How many
kilowatts were installed? Other studies completed by the city, such as wind energy. Installation
of solar energy is more difficult for the City to implement because tax benefits are for residential
customers and not extended to government because they don’t pay taxes.
Salt Water intrusion. EPG has this data.
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3. ICLEE Greenhouse Gas Footprint Analysis
There was a brief discussion about the GHG analysis and the type of information that would be
gathered and included in the analysis. Public lighting was left off the list on the meeting agenda, but
will be included in the assessment. The CRC stated that solar power is already being used on many
poles located on the island. It was noted to be sure to include the campground as part of this
analysis.
4. Technical Advisory Committee (TAC)
There will be a TAC that meets quarterly as part of this meeting, and the following people were
discussed as potential members of the TAC:
CRC
Planning Commission
George Reese
Joe Wilson
Tybee Tourism Council rep.
Deb from DNR
George Shaw
Open invitation to City Council (“may be a quorum present” noted on agendas)
Discuss with Chantel to get people from the business community, represent “Main Street”
Brett Loher (sp?) (Hotel Tybee)
Local Realtor (Shirley Sessions)
Restaurant industry (Sarah from Social Club)
EPG will work with George to develop a final list and provide it back to the City for their review. The
first TAC meeting will be in November.
Next Meeting
EPG will attend and provide updates as part of the regular CRC meeting schedule. Some
meetings might require more time on the agenda.
The group discussed a proposed agenda for the kick off meeting for TAC. EPG will prepare a
community snapshot showing some of the data we are discussing to help illustrate the impact
these factors have on a specific area. This will include a one block area of GIS information.
The TAC meeting will take place in November. EPG will look at some dates and check them
against the City calendar. The group will need to get member list finalized before meeting.
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City of Tybee Carrying Capacity Study
Technical Advisory Committee (TAC) Meeting #1
Meeting Summary
December 8, 2015
4:00 PM – 6:00 PM
1. Scope of Project
Introduction
Courtney Reich opened up the meeting by introducing EPG employees. TAC members
introduced themselves.
Meetings are open to any interested citizen. The purpose is to gather information and receive
feedback from as many interested stakeholders as possible, in an effort to represent different
views as well as verify the accuracy of data used for this study.
The meeting invitation went out to a well-rounded group of citizens. George is going to check
with some other citizens again and committee members were asked to invite interested citizens
to attend the next meeting as well.
Project Tasks & Schedule
Technical Advisory Committee. (This is the first meeting, which will be held quarterly. The Grant
is to be completed October 2016).
Community Resources Inventory & Assessment
Analysis of community Resources Limitations
Recommendations and Implementation Plan
Coordination with Comprehensive Plan process. This project will attempt to coordinate with the
Comprehensive Planning process as much as feasible, although the deadlines aren’t an exact
match. The Carrying Capacity Study has to be completed by September 30th, however the
Comprehensive Plan must be submitted by August 2016 for approval by October 2016.
2. Review of Wave Ecology Report
Findings
In 2011, a similar study was conducted titled “Tybee Island Wave Ecology and The Highway 80
Challenge Study.” This was essentially a Carrying Capacity Study that focused on the Highway 80
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corridor near Tybee Island. The 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 affecting the safety of citizens and visitors specific to the Hwy 80 corridor. A
copy can be downloaded from the MPC’s website at
http://thempc.org/Transportation/WaveEcologyStudy.html. EPG will email a copy to Committee
attendees. Many Tybee residents were active participants with this study.
Recommendations for this Study
Committee members discussed the following recommendations from this Study, and their
implementation status since the report was completed in 2011:
o Install road signage to address special features related to safety concerns.
o Establish a bus or shuttle service during special events and inter-island options during
peak tourism periods.
o Establish and maintain an ongoing bus/shuttle service through the Coastal Regional
Commission.
o Utilize signal timing and Intelligent Transportation Systems (ITS) during special events.
o Utilize social media to disseminate information to the public.
3. Data Analysis
Courtney presented on the data collected and the analysis conducted to date on the following data sets.
She will provide a copy of the power point presentation to the TAC and the City for posting on the
website. A brief summary of the discussion is below.
Water Withdrawal
o A question was asked about how per capita water use was going to be examined in this
study. This study is going to look at other communities and other organizations where
people have tried to estimate % of water use for outdoor watering. Often, studies look
at per capita water use during the growing season and per capita water use when it is
not growing season and use the difference to estimate how much water is used to water
lawns and landscaped areas.
o A suggestion was made to look at shallow wells for irrigation. We don’t think these well
are requires to be permitted; where could we obtain this data? If we don’t have the
data, then we can make a recommendation in the report to start collecting the data for
future analysis.
o Another recommendation is to notify citizens about how much water they are using so
they can see a real “number” as to their water consumption.
o Water Withdrawal-Future Permit Limits: Courtney Reviewed data from 2010 – 2015
that indicates that the City of Tybee consistently exceeds its water withdrawal permit
limits during peak summer months. Courtney reviewed a bar graph that shows Annual
Daily average, the 2015 Permit Limit, and 2025 Permit Limit. Georgia EPD is assuming
Tybee will rely on the use of a deep well in the Cretaceous aquifer to reduce water
withdrawals from the Floridan Aquifer water consumption as mandated by the 2025
Permit. Water conservation measures alone will not allow the City to achieve this
amount of water reduction.
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c o r r e c t e d ) w e r e r e v i e w e d . T h e y i n d i c a t e d t h a t t h e d a i l y c a p a c i t y o f t h e H w y 8 0 c o r r i d o r
w a s o n l y e x c e e d e d a f e w t i m e s p e r y e a r . H o w e v e r a l o o k a t t h e 1 5 - m i n u t e i n t e r v a l
c o u n t s m a y t e l l a d i f f e r e n t s t o r y r e g a r d i n g r o a d c a p a c i t y . E P G w i l l l o o k f u r t h e r i n t o t h i s .
�� Z o n i n g A n a l y s i s
o T h i s w a s n o t d o n e i n t h e W a v e E c o l o g y S t u d y a n d i t w a s a r e c o m m e n d a t i o n o f t h a t
s t u d y t o l o o k a t z o n i n g . E d g a v e a p r e s e n t a t i o n o f s o m e m a p s h e g e n e r a t e d w i t h
e x i s t i n g G e o g r a p h i c I n f o r m a t i o n S y s t e m ( G I S ) d a t a . T h i s i n c l u d e d a R - 2 Z o n i n g A n a l y s i s
t o s h o w w h a t p o t e n t i a l i n c r e a s e s i n l i v i n g u n i t s t h e r e c o u l d b e p o s s i b l e u n d e r t h e R - 2
z o n i n g d e s i g n a t i o n . E P G w i l l b e c o n d u c t i n g a m o r e c o m p l e t e z o n i n g a n a l y s i s a s m o r e
G I S d a t a i s g a t h e r e d a n d a s s e s s e d .
4 . D a t a G a t h e r i n g : O u t s t a n d i n g D a t a N e e d e d / R e c o m m e n d a t i o n s f o r F u t u r e A n a l y s i s
�� E P G r e v i e w e d t h e s t a t u s o f d a t a t h a t h a s b e e n g a t h e r e d t h u s f a r a n d o u t s t a n d i n g d a t a n e e d s .
�� J a c k i e a s k e d i f t h e d r y t r a s h # i s i n c l u d e d i n t h e S o l i d W a s t e - R e s i d e n t i a l T r e n d s l i n e g r a p h ; E P G
w i l l c h e c k .
�� Q u e s t i o n w a s a s k e d f o r t h e H o u s i n g U n i t s t a b l e : w h a t w a s i n c l u d e d / g r o u p e d i n t h e O t h e r
c a t e g o r y f o r v a c a n t r e n t a l s ( w a s t h i s f o r s e c o n d h o m e s t h a t a r e n t b e i n g r e n t e d a n d a r e n o t u p
f o r s a l e ) ? E P G w i l l c h e c k .
2 0 1 7 0 2 0 9 A m e n d e d C i t y C o u n c i l P a c k e t P a g e 1 4 9 o f 2 2 6 2 0 1 7 0 2 0 9 / j r l
�� A T A C m e m b e r s u g g e s t e d t h a t a g o o d p r o j e c t f o r T y b e e w o u l d b e t o l o o k a t o t h e r m e t h o d s
( o t h e r t h a n t e a r d o w n / n e w c o n s t r u c t i o n ) t o e n c o u r a g e h i s t o r i c c o t t a g e s t o b e e l e v a t e d o u t o f
t h e f l o o d p l a i n a s o p p o s e d t o t o r n d o w n . L e w i s A v e n u e i s a p r i m e e x a m p l e .
�� S u g g e s t i o n s w e r e m a d e t o e x a m i n e w a s t e w a t e r q u a l i t y , f o c u s i n g o n T M D L l i m i t s ( w h a t i s t h e
n e x t g e n e r a t i o n o f w a s t e w a t e r p e r m i t l i m i t s ? ) , & b e a c h w a t e r q u a l i t y .
�� T h i s i s a g o o d t i m e t o l o o k a t t h e t e c h n o l o g y o f T y b e e s W W T P t o s e e i f i t c a n h a n d l e v a r i a b l e
f l o w a n d w h e t h e r i t s t r e a t m e n t p r o c e s s e s n e e d u p d a t e d o r m o d i f i e d . T h i s s t u d y w o n t b e a b l e
t o e x a m i n e t h i s i n d e p t h - i t w o u l d r e q u i r e a n e n g i n e e r i n g s t u d y b u t t h i s m a y b e a
r e c o m m e n d a t i o n o f t h i s p a r t i c u l a r s t u d y . E P G c a n a l s o t a l k t o t h e C i t y s e n g i n e e r s t o g e t s o m e
p r e l i m i n a r y i n f o r m a t i o n .
�� E P G t o o b t a i n s e a l e v e l r i s e d a t a a n d n e w f l o o d m a p d a t a .
�� F o r t r a f f i c e v a l u a t i o n s , m a y b e s h o u l d l o o k a t c i t a t i o n s a n d a c c i d e n t s o n U S 8 0 .
�� E P G t o c h e c k w i t h C O R E M P O t o o b t a i n 1 5 - m i n u t e i n t e r v a l t r a f f i c c o u n t s f o r U S 8 0 ( w h a t
e x c e e d s t h e c a p a c i t y o n t h e T y b e e p o r t i o n o f U S 8 0 ) .
�� E P G w i l l l o o k a t l o t s i z e s a n d d e t e r m i n e w h i c h l o t s a r e b i g e n o u g h t o b u i l d u p o n . S t u d y n e e d s t o
l o o k a t p o s s i b l e s e a r i s e - h o w m u c h i s t h a t e x p e c t e d t o s h r i n k t h e b u i l d a b l e l o t s ?
�� H o w d o w e q u a n t i f y t h e i n f r a s t r u c t u r e u p g r a d e s t h a t w o u l d n e e d s t o h a p p e n t o s u p p o r t t h e
p o t e n t i a l p o p u l a t i o n i n c r e a s e u n d e r t h e R - 2 z o n i n g s c e n a r i o ?
�� W e a l s o n e e d t o l o o k a t t h e e f f e c t o f t h e s e p o s s i b l e p o p u l a t i o n c h a n g e s : h o w d o w e m a k e s u r e
t h a t w h a t w e a r e l o o k i n g a t i s s u p p o r t i v e o f t h e l o c a l e c o n o m y ? H o w i s t h i s a f f e c t i n g t h e w o r k
f o r c e ? W h a t d o e s t h i s d o t o l o c a l b u s i n e s s e s t h a t c a n t f i n d l o c a l w o r k e r s ?
5 . N e x t M e e t i n g
�� N e x t M e e t i n g t o t a k e p l a c e i n M a r c h 2 0 1 6 . T h e e x a c t d a t e w i l l b e p r o v i d e d t o t h e T A C i n 2 0 1 6 .
�� T h e T A C w a s a s k e d t o r e a c h o u t t o e n c o u r a g e p e o p l e t o a t t e n d t h e n e x t m e e t i n g a n d p a r t i c i p a t e
i n t h e T A C .
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City of Tybee Carrying Capacity Study
Parking & Infrastructure Meeting
Meeting Summary
February 11, 2016
3:00 PM – 5:00 PM
Attendees:
George Shaw, City of Tybee Island
Chantel Morton, City of Tybee Island
Pete Ryerson, City of Tybee Island
Courtney Reich, EPG
Beverly Davis, RS&H
Rachel Hatcher, RS&H
Chris Stovall, Thomas & Hutton
1. Parking
The Parking study completed by Tybee Island included only public, delineated spots. It did not
include public ROW parking areas, such as Lovell Ave or Hwy 80. Is also did not include private
parking spaces at the City’s approved private parking lots. The current total for public,
delineated spaces is 2,091. See attached list of parking spots.
There are a total of 234 private parking spaces, for a total of 2,325 total delineated parking
spaces. The private parking lots are:
Name Location Number of Spots
Sunrise Parking 1511 Butler Ave 39
Ocean Plaza Beach Resort 1401 Strand 128
Renee G Bridges 1001 Butler Ave 30
Bramble Family 215 Lovell 13
Joyce Prescott 214 2nd Ave 12
Jack Rosenberg 203 14th Street 12
There is some non-delineated public parking, and this may be a lost revenue issue for the City. If
the ROW areas is not near a Pay & Display (P&D) unit, then Parking Services will not ticket the
vehicle for not paying. It is not seen as financially beneficial to put P&D’s in remote areas where
parking only occurs on busy summer weekends.
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�� T h e P a r k i n g A p p l i c a t i o n w a s c r e a t e d t o l e t v i s i t o r s k n o w w h e r e a v a i l a b l e p a r k i n g i s o n t h e i s l a n d .
P e t e ( o r s o m e o n e f r o m P a r k i n g S e r v i c e s ) w o u l d u p d a t e t h i s a p p o n a n h o u r l y b a s i s d u r i n g t h e
s u m m e r t o s t a t e h o w f u l l ( p e r c e n t a g e - w i s e ) t h e t h r e e m a i n p a r k i n g a r e a s w e r e . P a r k i n g s e r v i c e s
d i v i d e s t h e i s l a n d i n t o t h r e e p a r k i n g a r e a s : 1 ) S o u t h e n d , s o u t h o f 1 4 t h , 2 ) M i d d l e I s l a n d 1 4 t h
n o r t h t o 2 n d , a n d 3 ) N o r t h b e a c h , t h e L i g h t h o u s e a r e a .
o T h e P a r k i n g a p p i s c u r r e n t l y b e i n g u p d a t e d b y T y b e e I s l a n d I T
�� S i n c e P e t e w a s r e s p o n s i b l e f o r u p d a t i n g t h e A p p , h e h a d h i s t o r i c a l k n o w l e d g e o f h o w f u l l t h e s e
p a r k i n g a r e a s t y p i c a l l y g e t . E v e r y w e e k e n d i n t h e s u m m e r a n d o n b i g h o l i d a y s / f e s t i v a l d a y s ,
N o r t h B e a c h a n d S o u t h E n d p a r k i n g a r e a s a r e 9 9 % f u l l . M i d I s l a n d i s t y p i c a l l y 8 5 % .
�� A l l f e l t t h a t t h e S o u t h E n d p a r k i n g a r e a i s t h e m o s t o v e r t a x e d p a r k i n g a r e a a n d t h a t d u r i n g
s u m m e r w e e k e n d s , v i s i t o r s c o u l d p o t e n t i a l l y s p e n d a l o t o f t i m e c i r c l i n g t h e a r e a l o o k i n g f o r
p a r k i n g . H o w e v e r , t h e r e i s c u r r e n t l y n o w a y t o v e r i f y h o w l o n g p e o p l e c i r c l e . H i s t o r i c a l l y , T y b e e
h a d t r i e d s e t t i n g u p g a t e d t o b l o c k f u r t h e r t r a f f i c f r o m e n t e r i n g t h e S o u t h e n d w h e n i t w a s f u l l ,
b u t t h e n c a r s j u s t l i n e d u p o n t h e r o a d o u t s i d e t h e g a t e c a u s i n g a t r a f f i c i s s u e . P u b l i c W o r k s h a s
u s e d s i g n a g e i n t h e p a s t t o d i r e c t p e o p l e t o a n o t h e r p a r k i n g a r e a w i t h l i m i t e d s u c c e s s .
�� G e o r g e d i s c u s s e d a p e r c e i v e d i s s u e w i t h t h e p a r k i n g r e q u i r e m e n t s a n d f u t u r e c o m m e r c i a l
d e v e l o p m e n t o n H w y 8 0 . T h e Z o n i n g o r d i n a n c e r e q u i r e s t h a t n e w c o m m e r c i a l d e v e l o p m e n t o r
u s e p r o v i d e p a r k i n g o n - s i t e i f i t i s n o t w i t h i n 1 , 0 0 0 f t o f a p u b l i c p a r k i n g l o t . T h e r e f o r e v a c a n t
b u i l d i n g s a n d p r o p e r t i e s o n H w y 8 0 t h a t a r e d e v e l o p e d a s c o m m e r c i a l b u s i n e s s e s h a v e t o
p r o v i d e o n - s i t e p a r k i n g . T h e p e r c e p t i o n i s , t h a t t h e r e i s a l r e a d y l i m i t e d s p a c e a n d t h a t t h i s
r e q u i r e m e n t i s c o s t - p r o h i b i t i v e a n d i m p e d i n g c o m m e r c i a l d e v e l o p m e n t o f t h i s c o r r i d o r .
o T y b e e i s l o o k i n g a t o p e n i n g t h e C i t y s R O W s i n t h a t a r e a t o p r o v i d e p u b l i c p a r k i n g , w h i c h
w i l l a c h i e v e t w o g o a l s , p r o v i d i n g p u b l i c p a r k i n g s o t h a t b u s i n e s s o n H w y 8 0 d o n t h a v e
t o u s e u p t h e i r v a l u a b l e l o t s p a c e t o d o s o , a n d t o p r o v i d e a d d i t i o n a l p a r k i n g f o r v i s i t o r s
t o T y b e e i n G e n e r a l . T y b e e c o u l d l o o k a t w h e r e e l s e t h i s m a y w o r k t o p r o v i d e a d d i t i o n a l
p a r k i n g .
�� T h e r e h a s b e e n p r e v i o u s a t t e m p t s a t s t a g i n g s a t e l l i t e p a r k i n g a r e a s a n d s h u t t l i n g p e o p l e b a c k
a n d f o r t h , a n d i t w a s n o t p e r c e i v e d a s v e r y s u c c e s s f u l . T h e r e w a s c o n s e n s u s t h a t m o s t v i s i t o r s t o
t h e b e a c h w a n t t o b e w i t h i n w a l k i n g d i s t a n c e t o t h e i r c a r s i n c e t h e y a r e l i k e l y t o b e c a r r y i n g a l o t
o f i t e m s . F u r t h e r m o r e , s i n c e t h e C i t y c h a r g e s f o r t h e p a r k i n g i t s e l f , i t w a s f e l t t h a t a n y p a r k i n g
s h u t t l e s s h o u l d b e f r e e .
�� P a r k i n g G a r a g e s , d u e t o t h e i r e x p e n s e h a v e n e v e r b e e n s e r i o u s l y c o n s i d e r e d . T h e r e i s a g r e a t
d e a l o f p r e s s u r e f o r p a r k i n g d u r i n g s u m m e r w e e k e n d s a n d s p e c i a l e v e n t s , b u t o t h e r t h a n t h a t
t h e r e i s m o r e t h a n s u f f i c i e n t p a r k i n g . I f t h e g a r a g e i s o n l y f i l l i n g u p 1 6 2 0 w e e k e n d s p e r y e a r , i t
w o u l d n o t m a k e f i n a n c i a l s e n s e . H o t e l T y b e e i s s e e n a s t h e o n l y l o c a t i o n w i t h p o t e n t i a l t o l o c a t e
a p a r k i n g g a r a g e d u e t o i t s p r o x i m i t y t o t h e b e a c h . A p u b l i c / p r i v a t e p a r t n e r s h i p m i g h t b e t h e
o n l y w a y t o m a k e t h e f i n a n c i a l s w o r k f o r a p a r k i n g g a r a g e .
�� S p e c i a l E v e n t p a r k i n g i s s u e s :
o I t w a s a g r e e d b y t h e a t t e n d e e s a t t h e m e e t i n g t h a t p a r k i n g i s s u e s a r e n o t p r e v e n t i n g
p e o p l e f r o m h o l d i n g o r a t t e n d i n g s p e c i a l e v e n t s .
o S p e c i a l e v e n t p l a n n e r s m u s t i d e n t i f y p a r k i n g a r e a s a n d o f t e n u s e r e m o t e p a r k i n g a n d
s h u t t l e p e o p l e t o t h e l o c a t i o n . T h e y m u s t a l s o u s e s i g n a g e a n d v o l u n t e e r s t o d i r e c t
v e n d o r s / v i s i t o r s t o t h e s a t e l l i t e p a r k i n g . F o r e x a m p l e , i f y o u r e v e n t i s o n t h e s o u t h e n d ,
y o u c a n h a v e s a t e l l i t e p a r k i n g a t t h e N o r t h B e a c h p a r k i n g l o t a n d s h u t t l e p e o p l e .
o T h e r e h a v e b e e n i n s t a n c e s w h e r e p a r k i n g o n r e s i d e n t i a l R O W s b e c a m e a p r o b l e m
d u r i n g c e r t a i n e v e n t s .
o O v e r f l o w p a r k i n g h a s b e e n l o c a t e d a t J a y c e e P a r k a n d t h e P o l i c e D e p t .
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o There is more likely to be issues when the event takes up a parking lot, but you can only
do that off-season.
Coastal Regional Commission operates the Savannah – Tybee Island Shuttle. It runs Friday –
Sunday, four times per day. The ridership is low, and it was felt that there is not enough
promotion of this service locally.
The City is reluctant to get into the business of shuttling people on and off island due to the
liability and cost. They also don’t want to compete with local businesses offering these services.
There is a potential to lose parking to the new Tybee Island Marine Science Center, which would
also be a revenue loss to the City.
NIMBY is also an issue as it relates to people parking in the ROW on residential streets. Most
residents are not for additional parking this way.
2. Water System
Tybee’s Cretaceous well is likely to produce sufficient water for the projected need of
800,000 GPD, and it will be sized to produce up to 2.0 MGD.
The water it will produce will be hot and high in chlorides. It will require a chiller and a
reverse osmosis (RO) system for treatment. This will cause the capital and operations
budgets to increase accordingly.
The anticipated capital costs for the treatment system for a 1.0 MGD well is $5 million with
another $1.5 million for addressing discharge of the brine.
Operational costs will go from approximately $0.25 - $0.30/1,000 gallons of water
withdrawal from the Upper Floridan to $1.50/1,000 gallons for RO. However, Hilton Head’s
current treatment costs for RO are only $0.57/1,000 gallons so it may be less than expected.
There will also be salty brine produced as a waste produce of the RO treatment process that
must be disposed of.
o Disposal may be under the river bed, but is more likely to be through diffusers out in
the ocean.
o The city may also consider mixing the salty brine with the discharge from the
WWTP, however this would necessitate an additional or upsized discharge pipe as
the current WWTP discharge pipe can’t handle the combined capacity.
The alternative of pumping water from Savanah is not really an option. Aside from the $10 -
$12 million cost of the infrastructure to deliver Savannah water to Tybee, it will also require
treatment once it gets here, further increasing the cost. In addition, permitting would be
difficult at best.
This new well will have a major impact on water rates. Especially because Tybee Island has
limited ability to collect aide-to-construction, impact or tap fees from new construction to
pay for the capital costs of constructing the well. The capital and operational costs will be to
be included in the water usage rates.
The City completed a rate study 3 – 4 years ago and the recommendations have been
implemented. However, this needs to be revisited in relation to the new well and potential
WWTP upgrades.
The water distribution system is relatively new, and it is estimated that 80% of the system is
less than 20 years old. There is still about 100 ft. of asbestos pipe that needs to be replaced.
Existing wells need to be raised to 21.5 feet above MHT prepare for storm surge (Cat 4) and
sea level rise. There are three (3) wells that need to be elevated and it will cost about
$200,000 each.
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3. Wastewater
During the summer the City does occasionally exceed its permitted wastewater discharge
(primarily on July 4th and Labor Day.
There have also been a few daily violation NOVs for ammonia and solids, however the
monthly totals are okay.
The City is currently in the process of installing a new digester and that will help with the
solids and ammonia violations.
Reuse could be an option except there are limited places that could receive the irrigation
water, the tight location of existing utilities, and putting in an entirely new distribution
system is cost prohibitive. This could be a requirement of new development and public
facilities.
The WWTP is pretty much at capacity for treatment – 1.6 MGD for treatment, and the
discharge pipe can handle 3.0 MGD.
There is not room on site for expansion. Therefore if an upgrade is desired for additional
capacity, a membrane system will be necessary in order to fit into the same footprint as the
current WWTP.
There is also a need to upgrade the UV system since it is old and nearing its useful lifespan.
If the City requests a discharge permit with greater discharge flow allowances, the limits for
the individual water quality parameters will go down requiring a higher level of treatment.
The membrane system would also address this need.
50% of the WW collection system is less than 20 years old or has been relined in the last 20
years. There is still some inflow and infiltration (I&I) to address but it is limited.
HGBD did an I&I study some years back and 90% of the recommended projects have been
implemented.
Pump stations are currently being upgraded and this includes addressing the associated
force mains. This should further reduce any remaining I&I. The City is performing these
upgrades at a rate of one per year. Two have been completed and there are 7 to go. They
cost about $25,000 - $100,000 apiece.
The pump stations are not in the 100 year flood plain and there is no reason to take them
higher.
4. Stormwater
Influence of sea level rise, high tides, and storm surge and a very flat, low-lying topography
complicate stormwater issues.
Public works is directed to address nuisance flooding in yards and typically drops a yard inlet and
pipe. This works during rain events, but during King Tides it allows the tide to flow back up the
system and flood the yard.
Tide gates have been installed on some major stormwater stems to prevent the tide from
flowing back up.
Need to work with Jason Evans on the results of his study to determine if there are other capital
needs related to this issue.
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Page 1 of 3
City of Tybee Carrying Capacity Study
Meeting #2
Meeting Summary
March 29, 2016
4:00 PM – 6:00 PM
1. Presentation of New Data
Courtney made a presentation to attendees that included a summary of data already presented as
well as new data from the Tybee Island Tourism Study and the Draft Sea Level Rise workshop.
2. Identification of Carrying Capacity Goals
The Group discussed the goals of the Carrying Capacity Study and the following goals were
identified.
a. Diverse and stable year-round population with a high quality of life
i. Issues related to this goal that should be considered:
1. Transition to a retirement community
2. Conversion of year-round housing to short term rentals
b. Healthy and sustainable tourism-based economy that also serves year-round population
and business owners in the off-season.
c. Balance between the tourism industry and year round residents.
d. Protection of Tybee Island’s environmental, historic and cultural resources
e. Safe multi-modal access to, from and within Tybee Island for residents and visitors.
f. Political and public support for implementation of the plan recommendations.
g. Adapting to a changing climate
h. Affordability
3. Identification of Impacts/Issues Related to Population Growth
a. Water Withdrawal
i. Permit limitation
ii. Peak usage associated with tourist population
iii. Cretaceous well
1. Capital costs for construction
2. Higher cost of treatment
3. Space/available land for construction of treatment plant
iv. Opportunities to address issues
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1. Education for tourist, kids, development community
2. Gray water usage
3. Rate study to prepare for cretaceous well
4. Incentives for conservation
b. Wastewater Discharge
i. Peak wastewater discharge issues associated with tourist season and the
compounding effects of I&I.
ii. Capacity of WWTP infrastructure to accommodate more flow (including
potential discharge from Cretaceous well treatment plant)
iii. Potential water quality issues from discharge
iv. Lack of space for WWTP expansion
v. Need for future upgrades to WWTP
vi. Permitting and environmental impacts of upgrading discharge pipe
vii. Costs associated with infrastructure improvements
c. Stormwater Management/Flooding
i. Nuisance flooding associated with king high tide and rain events.
ii. Sea level rise is exacerbating flooding
iii. Need for infrastructure upgrades including tide gates
iv. Cost of infrastructure upgrades
v. Water quality issues that result from flooding
vi. Cost of flood insurance
1. Historic properties below the BFE
2. Non-conforming properties (especially those on slab which are more
difficult to elevate)
vii. Opportunity: Sea Level Rise Study has recommendations for stormwater system
improvements that are prioritized and have cost estimates. These should be
considered as part of this plan and in the Comprehensive Plan.
d. Solid Waste/Litter
i. Litter on beach
ii. Solid waste disposal trends are still increasing not decreasing as was expected
with the advent of recycling
iii. Reduction of waste generation on island
iv. Alternatives for solid waste disposal in landfills off island
v. Waste reduction education & litter education
e. Traffic Counts & Parking
i. Peak traffic flow issues related to day-trippers and events
ii. Flooding of Hwy 80 and other roads on-island
iii. Traffic related to accidents on Hwy 80
iv. Parking availability and available land to accommodate it
v. Parking/traffic in residential areas
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vi. Lack of alternative modes of transportation
vii. No public harbor to allow for ferry service to Savannah
viii. Cost of infrastructure improvements i.e. parking garages
ix. Opportunities:
1. Cost/benefit analysis of parking lots
2. Remote parking with transportation
3. Multi-modal opportunities for transportation to and within Tybee Island
4. Notifying people about traffic congestion and parking issues
f. Short Term Rental Units
i. Peak water & wastewater usage on the island is driven by short term rentals
ii. Short-term rentals are a component of all above elements, but are also
important to the economy of the island
iii. Conversion from short-term rental to year round also has impacts that need to
be considered
g. City Funding/Resources
i. City position for coordination with tourism industry
ii. Need for reserves in the general fund for disaster preparedness and
infrastructure improvements
iii. Rate study for water & wastewater infrastructure improvements
iv. Capital costs for known projects
h. Zoning
i. R-2 Zoning build out – is this a code problem or is it the amount of area zoned
R2?
ii. R-2 zoning, subdivision of lots, new construction and the resulting density in the
area of Tybee that is already flooding at King tides.
iii. Building is already limited by height restrictions and lot sizes.
iv. Could development be spread out over a long period of time through permitting
limitations?
v. Identify areas appropriate for growth (Commercial districts) and steer growth
there instead of in the residential areas. This could be done through a transfer
of development rights program.
4. Next Meeting
a. Next Meetings of Comprehensive Plan
i. April 5, 6 PM – Public Meeting # 2
ii. April 12, 6 PM – Advisory Working Group
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City of Tybee Carrying Capacity Study
Meeting #3
Meeting Summary
June 1, 2016
4:00 PM – 6:00 PM
General Comments:
Change minutes from last meeting-amend the listing under “Goals” so it’s clear these are topics
discussed, not Goals.
CCS will be done by the end of September; the City and its consultant team is working to
incorporate the recommendations and findings of the Carrying Capacity Study into the Comp
Plan. At the very least the Comprehensive Plan will incorporate by reference the
recommendations from the CCS if the plan isn’t far enough along to include specific references
in the Comp Plan itself.
1. Update on Hwy 80 DOT Project (s)
Todd Barker, with Adrian Collaborative, provided an update on GDOT’s planning efforts for
improvements to Highway 80.
Road improvements do not include construction of additional throughfares (i.e., 4-lanes);
instead, improvements being evaluated include road widening to include 10-ft paved shoulders
for each lane and bridge replacements.
GDOT’s full response letter to November 17, 2015 Open House meeting has been approved and
will be posted online in near future. Respondents that included their name and address will
receive a letter via mail.
GDOT and its consultants (Adrian Collaborative, T.Y. Lin International) are evaluating elevating
Highway 80 as part of the improvement process to meet the same elevation of Tybee Island
(approximately 7.5 feet above mean sea level, which will result in up to 18” elevation for the
approximate 3-mile stretch prone to flooding.
Purpose of road elevation is two-fold: to address current flooding issue and as well as plan for
continued sea level rise & associated flooding.
Draft environmental assessment (EA) will include overview of local planning efforts.
Goals/findings generated from City’s comprehensive planning process and CCS will be included
as part of the EA.
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Fort Pulaski located a document from the 1930s that conveyed ownership from the State of GA
to federal jurisdiction except for a 150-foot ROW; this makes the project easier to implement
since the State of Georgia has the legal right to perform improvements within that ROW.
Adrian Collaborative is also assisting the NPS with a separate but related NEPA process for Fort
Pulaski and its bridge improvement project, which is being coordinated with the HWY 80
project.
2. Update on Status of Greenhouse Gas Air Emissions Inventory
As a part of the CCS, EPG is conducting a greenhouse gas (GG) air emissions inventory to identify
energy use/GG emissions that result from local government operations.
Goal is to identify ways to reduce GG emissions/reduce the City’s “Carbon footprint” and/or
save money by implementing energy efficiency measures (resulting in lower electric utility bills).
Measures that will be recommended by the GG emissions inventory will be specific to the areas
where energy/emission reductions are most needed and/or have the greatest impact to reduce
emissions and energy usage.
Sectors that will be evaluated include: Buildings and Facilities (i.e., physical buildings); Public
Lighting; Vehicle Fleet (city-owned vehicles and equipment that rely on fuels for power); Water
Transport (water delivery systems for potable/sanitary/stormwater); Employee Commute
(measured in miles driven to and from work); and Process and Fugitive Emissions from other
activities.
The question was asked whether the inventory would also assess GG emissions generated from
waste collection and disposal activities. This is a sector that can be included as part of the
inventory if the necessary data is available; EPG will determine this once all of the data has been
collected. At the least, fuel usage related to waste collection may be included.
3. Identification of Strategies
Attendees discussed the table of Issues & Strategies (attached) and the following is a summary of their
comments. A general suggestion was made to create sub-headings and/or re-categorize the issues and
strategies to highlight the main issue (i.e., water limitations) and the main strategies that address this
issue, with other issues and strategies as subsets. A comment was made that strategies should address
“conserving what we have or working with what we have to make improvements to get more.”
a. Water Withdrawal
Courtney explained that in the final report, strategies may be grouped as long and
short-term strategies in order to highlight what can be started and what measures
require more long range planning and/or additional studies. The goal is not to
“over-inform” or confuse the reader but rather provide a listing of strategies that
should be evaluated.
Water Conservation Education is important for Residents and Tourists.
Expand upon “outdoor water restrictions. Tybee’s situation is somewhat unique
because it’s not so much a daily peak water usage issue but rather a seasonal water
peak usage issue.
Add a strategy to participate in regional water supply planning efforts.
Require low-flow fixture (beyond what is required in current code).
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b. Wastewater Discharge
Generally, plant is already operating at capacity by July
Review need to expand wastewater discharge pipe capacity. There was a comment
that this will be sufficient for the future R/O plant discharge as well as the WWTP
discharge.
c. Stormwater Management/Flooding
Three strategies are the most important: Perform the upgrades; limit impervious
area increases; and elevate Highway 80.
List Low Impact Development as a Strategy (for green roofts and other measures)
The strategy to work with HPC to have homes designated as historic homes may
need to fall under the comprehensive planning process, not CCS.
Investigate incentives that could be provided to encourage reduction of existing
impervious surfaces.
Tybee may want to look into code amendments that would allow stormwater to be
used as greywater/reclamation water and not need to be treated to potable water
standards.
The City may want to adopt a policy that pervious surfaces be under consideration
whenever additional roads or parking areas need constructed or retrofitted to
ensure impervious surfacing is used only when absolutely needed.
d. Traffic & Parking
The TAC discussed at length the need (and challenges) presented by potentially
increasing parking spaces on Tybee.
Some expressed concern that constructing additional parking areas would increase
imperious surfaces and increase traffic congestion by encouraging more people to
visit Tybee.
Others felt that additional parking is needed to address existing parking issues (ie,
that it’s already inadequate for the number of visitors) and that providing additional
parking could reduce illegal parking, reduce property damage related to illegal
parking, and relieve traffic congestion due to inability to find parking, etc.
A discussion was also held about alternative transportation including the CRC
shuttle, CAT bus service, and high-speed ferry service that could be potentially be
provided through CAT or even by the City itself. One concern mentioned was that
Tybee doesn’t have the population numbers to support such a cost investment but
others commented that that is hard to determine w/o proper infrastructure in place
to assess usage.
Parking west of Bull River (with bus service from there to Tybee Island) should be
considered. A discussion was briefly held to discuss the feasibility of this and
whether visitors would actually use such a service given the amount of beach gear
that is often brought along when visiting Tybee.
Bus service is currently available twice/day to and from Tybee and should be more
heavily promoted to increase public awareness.
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e. Electricity/Power
Change name of this category to “Energy Consumption” to better reflect the goal
f. Solid Waste/Litter
Suggestion was made to include as a strategy that condos and businesses should
have a mandatory recycling program.
A suggestion was made regarding purchase of a glass crusher so that class could be
recycled on the island. Another comment was made that the expense and impact of
this type of machinery was not acceptable and that there is currently no market for
glass. Many communities have stopped recycling glass.
Add “power usage” to the issue that states peak water and wastewater usage are
driven by short term rentals
Check with Charlotte at the MPC for info about short term rentals and possibly
regulatory limits that could be utilized
Data is available regarding the affordability of 2nd homes
g. Short Term Rentals
Affordability issues also force second home owners to become short term rentals.
The new short term rental ordinance will result in data collection about their use.
After a year of data collection, these strategies should be reviewed again and
updated.
Need to find strategies to make it more affordable for people to keep permanent
residences on the island.
h. Zoning
No Comments
4. Next Meeting
Next meeting is June 13th-presentation to the Planning Commission for the Comprehensive Plan (Comp
Plan).
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City of Tybee Island
Carrying Capacity Study
Issues & Strategies
Page 1 of 4
MUNICIPAL
FUNCTION ISSUE STRATEGY Potable Water Water withdrawal permit limitation in
the Upper Floridan Aquifer
Peak usage associated with summer
tourism
Cost of Reverse Osmosis (RO)
Treatment Plant Construction
Cost of RO Treatment Plant Operation
Available space for construction of RO
Treatment Plant
Disposal of briny wastewater from RO
Treatment Plan can have water quality
impacts
Construction of the Cretaceous well and RO Treatment Plant
Water Conservation Education for Tourists
Peak usage water conservation rates
Outdoor watering restrictions
Gray water use
Stormwater reclamation/cisterns
Seek funding assistance for capital construction of RO
Treatment Plant
Perform financial analysis and rate study to determine how
much capital and operational costs will be and set water &
sewer rates accordingly.
Develop conceptual plan and cost estimate for RO Treatment
Plant
Begin planning and environmental permitting for RO
Treatment Plant wastewater discharge Wastewater Discharge Peak wastewater discharge issues
associated with summer tourism
Compounding effects of Inflow &
Infiltration on peak discharge
Capacity of WPCP to accommodate
more flow (including potential
discharge from RO Treatment Plant
Permitting and environmental impacts
from upgrading discharge pipe
Potential water quality problems from
discharge
Lack of space for WPCP expansion
Need for future upgrades to WWTP
Costs associated with infrastructure
improvements
Complete recommended infrastructure improvements for I&I
study
Develop concept plan, cost estimate, and funding to upgrade
the wastewater treatment plant to a membrane system.
Perform financial analysis and rate study to determine how
much capital and operational costs will be and set water &
sewer rates accordingly. 20170209AmendedCityCouncilPacketPage 162 of 22620170209/jrl
City of Tybee Island
Carrying Capacity Study
Issues & Strategies
Page 2 of 4
MUNICIPAL
FUNCTION ISSUE STRATEGY Stormwater Management/ Flooding Nuisance flooding associated with king
high tide and rain events.
Additional impervious area from new
development
Sea level rise is exacerbating flooding
Cost for needed infrastructure
upgrades including tide gates
Water quality issues that result from
flooding
Cost of flood insurance can affect
affordability for island residents
Floodplain management requirements
impact on historic properties below the
BFE
Floodplain management requirements
impact on non-conforming pre-FIRM
properties
Flooding of Highway 80 impacts
accessibility for residents and can result
in economic losses related to tourism
Perform recommended upgrades from Sea Level Rise Study
Encourage green infrastructure techniques as opposed to hard
engineering techniques that provide a conduit for salt water to
come up through the drainage system
Limit increases in impervious area
Implement recommendations from Sea Level Rise Study
Perform a Stormwater Funding Feasibility Study
Stormwater pollution prevention education
Green infrastructure
Continue to work to maintain the CRS rating of 5
Provide education & assistance to homeowners to mitigate
their flood risk and reduce cost
Work with HPC to provide assistance to property owners to
have their home/building officially designated as historic
Provide education & assistance to homeowners to mitigate
their flood risk and reduce cost
Elevate Highway 80
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City of Tybee Island
Carrying Capacity Study
Issues & Strategies
Page 3 of 4
Electricity Greenhouse gas generation
exacerbates climate change, which
accelerates sea level rise
Reduce municipal greenhouse gas emissions
Perform greenhouse gas inventory for entire City
Support alternative power generation/use including solar and
wind
Have a 3rd party audit conducted to identify potential cost
savings/decrease power usage (evaluate utility company fee
schedule and cost saving programs, review energy efficiency
measures for City buildings, etc.)
Traffic & Parking Peak traffic flow issues related to day-
trippers and festivals/events
Hwy 80 congestion related to traffic
accidents
Flooding of HWY 80 and other roads
on-island
Parking availability and available land
to accommodate it in desirable
locations, i.e. walking distance to beach
Parking and traffic in residential
neighborhoods
Lack of alternative modes of
transportation onto the island
o No public dock to allow for
ferry service to Savannah
Cost of infrastructure improvements,
including parking garage
Notify drivers about traffic congestion and parking issues
Identify remote parking locations and operate shuttle for
events and festivals
Widening of Highway 80 to include drivable shoulders
Elevate Highway 80
Support continued planning efforts w/Chatham County and
Fort Pulaski to extend McQueen’s Trail to serve as safe
alternative transportation
Develop a road closure plan for King Tide and Storm Events
Consider the use of unopened ROW for parking
Construct a parking garage in the C1 commercial district
o Consider public/private partnership to construct
parking garage
o Duel commercial use for parking garage structure
Promote and expand CRC shuttle service from Savannah to
Tybee
Consider the future creation of a Ferry Dock on Lazaretto Creek
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City of Tybee Island
Carrying Capacity Study
Issues & Strategies
Page 4 of 4
Solid Waste/Litter Litter on the beach
Solid waste disposal trends are show
the amount of waste disposal is
increasing despite the opportunities
provided by recycling
Recycling bins being contaminated with
trash
Reduce waste generation
Waste reduction and litter education
Increase enforcement of litter ordinance
Alternatives for solid waste disposal in landfills off island Short Term Rentals Peak water & wastewater usage on the
island is driven by short term rentals
Short term rentals are essential to the
islands economy but must be managed
Conversion of year-round residential to
short term rental
Consider regulation short term rentals to moderate peak
population numbers.
Increased homestead exemptions and senior exemption for
property tax Zoning Impacts of R-2 build out on population
Allowing more development in areas
already subject to flooding from King
tides
Exacerbated impacts of development
occurring all at once, or over a short
period of time
Consider revising R2 zoning code standards to increase lot sizes
and limit future subdivisions
Consider rezoning areas subject to King Tides to R-1 or
conservation zoning
Consider an annual limit on development permits
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Page 1 of 3
City of Tybee Carrying Capacity Study
Meeting #4
Meeting Summary
August 10, 2016
4:00 PM – 6:00 PM
Attendees:
Sign-In Sheet Attached
1. Update on Greenhouse Gas (GHG) Inventory Update
EPG provided an update on the results of the GHG Inventory project, and it is summarized below:
GHG Emissions were broken down by Sector
Buildings and Facilities: Emissions from powering City Hall; the YMCA/gym; Fire Station, Guard
House, Department of Public Works (garage/office); and the Public Safety Building. Interior
lighting, operation of heating and cooling systems, misc. uses inside
Water Transport: Emissions from powering water delivery systems (drinking water well
pumps) and WWTP pumps/lift station. Did NOT include emissions from wastewater treatment
methods but likely minor for what goes on there currently.
Public Lighting: Emissions from powering street lights, park lighting, signage, traffic control
lighting, etc. Does not include GDOT owned street lighting or outdoor lighting that is not
metered.
Vehicle Fleet: Emissions from city-owned vehicles
Employee Commute: Emissions generated from fuel usage associated with employee
commute to and from work
Energy Usage and GHG Emissions for All Sectors
Overall, biggest electrical use/GHG emissions came from water transport (ie, operation of
WWTP, small extent water pumps for drinking water); followed by public lighting (mostly park
lighting).
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Page 2 of 3
Equivalent
CO2 Percent Energy
(MMBtu) Percent
Buildings (Tybee YMCA gym
and Public Safety Bldg. 2
largest users-almost 75% of all
electricity used by buildings)
343.9918 9% 2,376.987 8%
Water Transport (water
delivery was small electrical
user-most of this [85%] due to
powering WWTP)
2031.85 54% 14,040.3 50%
Public Lighting (most power
went to park lighting-
street/traffic lighting very
small portion of this-2%)
749.3131 20% 51,77.805 18%
Fleet Vehicles (66% emissions
from vehicles, rest from other
equipment)
336.719 9% 3,123.8 11%
Employee Commute 273.45 7% 3,610.8 13%
Recommendations:
Continuation of Greenhouse Gas Emissions Inventory-we did the baseline year, could
continue if you wanted to track electrical use/GHG emissions over time if you implement any
recommendations.
Third Party Energy Audit of the City’s billing, meters, and rates.
Public Education and Incentive Programs
Upgrades to WWTP should include energy efficiency measures.
Consider a 4 day work week for various departments as appropriate.
Explore alternative energy sources for interior and outdoor public lighting (ie. Solar power) as
well as switching to more energy-efficient lighting (i.e., LED lights.)
Increase use of occupancy sensors and re-location and setting of programmable thermostats
in all City Hall buildings.
Increase recycling efforts and reduce the amount of government-disposed solid waste that is
sent to a landfill (this reduce fugitive greenhouse gas emissions associated with landfills).
Explore alternative cost and benefits associated with alternative fuel sources for fleet
vehicles. For example, the City could explore the use of hybrid, electric, or bio-diesel as an
alternative to gasoline and diesel in fleet vehicles.
Identify opportunities and incentives available to encourage employees to utilize alternative
forms of transportation when commuting to work.
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2. Review Of Issues, Strategies & Considerations
EPG reviewed the list of issues, strategies and considerations that were generated after the last
Carrying Capacity Study meeting. The updates, based on this discussion are included in the attached
Work Plan document.
3. Development of Work Plan
Attendees discussed potential action items to address the identified issues. The results of this
discussion are also represented in the attached Work Plan document.
4. Next Steps
EPG will present the Carrying Capacity Study to the Planning Commission and City Council in
September. There will also be a lunch and learn for the Carrying Capacity Study at the Coastal
Resources Division in Brunswick, GA on September 15th.
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Tybee Island Carrying Capacity Study
Work Plan – August 11, 2016
Page 1 of 7
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
Water Supply
Water Withdrawal
Permit Limitations
Peak Water Usage
associated with
Tourism
Installation of a
Cretaceous Well and
construction of a
Treatment Facility
Water conservation
education targeting
tourists and
development
community
Alternative water
sources including:
gray water usage,
rainwater capture,
shallow wells, and
reuse (after the
WWTP upgrade)
o Cost of capital
construction
o Increased costs
associated with
treatment
o Discharge of briny
wastewater
o Limited space
available for
construction of
treatment facility
o Tourists can be a
difficult audience to
reach.
o Current plumbing
code may not allow
for gray water usage.
1. Perform a rate study to ensure that current and future
water rate structure will generate the revenue necessary
to construct and operate the cretaceous well. Rate study
should also consider "peak usage rates" to encourage
water use reduction during peak season.
2. Determine how much treatment capacity the R/O Plant
should be designed to provide. 1.0 MGD is the maximum.
3. Develop a conceptual design and financial plan for the
treatment plant. This should include land acquisition (if
necessary) proposed construction and operational costs,
proposed revenue sources, proposed discharge method,
and evaluation of any regulatory permitting requirements.
4. Work with the Real Estate/Rental companies to create
water conservation education campaign for tourists.
5. Provide better information to water customers regarding
the volume of water they use.
6. Evaluate current code and adopt/amend local ordinances
as necessary to allow for gray water use, rainwater
harvesting, and reuse.
7. Encourage the use of alternative water sources for
irrigation and outdoor showers.
Wastewater Treatment
Peak wastewater
discharge issues
associated with
tourist season.
The compounding
effects of Inflow
and Infiltration.
Capacity of WWTP
infrastructure to
Upgrade WWTP to
accommodate
more flow and to
treat to a higher
standard.
o Lack of space for
WWTP expansion
o Potential combined
discharge from
Cretaceous well
treatment plant
increases the need for
capacity in discharge
pipes.
8. Perform a rate study to determine if current rates are
appropriate and adequate to support future capital
construction needs. This should be conducted in
conjunction with the water use rate study.
9. Submit a Waste Load Allocation to the Georgia EPD for
additional flow.
10. Develop a conceptual design for upgrades to the
WWTP. This design should include land acquisition (if
necessary) proposed construction and operational costs,
proposed discharge method and evaluation of any 20170209AmendedCityCouncilPacketPage 169 of 22620170209/jrl
Tybee Island Carrying Capacity Study
Work Plan – August 11, 2016
Page 2 of 7
ISSUE STRATEGY CONSIDERATIONS ACTION ITEMS
accommodate
more flow
Potential water
quality issues from
discharge.
Future permitted
discharge
standards may be
higher.
o Permitting and
environmental
impacts of upgrading
discharge pipe
o Costs associated with
infrastructure
improvements
regulatory permitting requirements. Design considerations
for the discharge pipe should be made in conjunction with
the plans for the Cretaceous Well Treatment Plan
discharge.
11. Develop a plan for Reuse water use, including the
ballfields.
Stormwater and Flooding
Nuisance flooding
associated with
king high tide and
rain events.
Sea level rise is
exacerbating
flooding
Water quality
issues that result
from flooding
Implement priority
recommended
improvements
from the Sea Level
Rise Study.
Advocate for
elevation of
Highway 80.
Limit new
impervious
surfaces.
Limit new
construction in
areas subject to
flooding.
o Cost of infrastructure
upgrades
o Lack of control over
Hwy 80 project.
o Current status of Hwy
80 project has limited
elevation of the road
bed due to settlement
concerns.
o There are
development rights
associated with
property that is
already subject to King
Tide flooding.
12. Elevate the Butler Ave and 14th Street Pump Houses.
13. Install backflow preventers on stormwater outfalls as
recommended in Sea Level Rise Adaptation Plan.
14. Continue to work with ACOE on Beach Re-
Nourishment Program
15. Consider program to augment the dune system.
16. Work directly with DOT and lobby for additional elevation
of Hwy 80 to high sea level rise scenario elevations, i.e.
31” or more.
17. Consider an ordinance to limit the amount of impervious
surface in new or re-development.
18. Revise the City code to allow for and incentivize rainwater
harvesting.
19. Investigate the potential to receive FEMA funding to
purchase repetitive flood loss properties.
20. Develop a program to encourage and incentivize green
infrastructure for single family home development.
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Tybee Island Carrying Capacity Study
Work Plan – August 11, 2016
Page 3 of 7
Solid Waste/Litter
Litter on beach
Municipal solid
waste (MSW)
disposal trends are
still increasing
despite the
availability of
recycling.
Recycling
receptacles are
often contaminated
by MSW.
Yard waste is being
left on the
road/curb and not
being picked up
Reduction of waste
generation on
island
Alternatives for
solid waste disposal
in landfills off island
Waste reduction
education & litter
education for
tourists
Enforcement of
litter ordinance
o Tourists are a hard
audience to reach
o Enforcement of litter
ordinance is difficult
and requires staff
o The recycling market is
volatile and affects the
ability to
o Contamination of
recycling affects its
marketability.
o There is more MSW
than available
receptacles for short
term rentals or for the
beach causing
contamination of
recycling.
21. Perform a solid waste study to further evaluate the
issues identified here and identify additional feasible
solutions.
22. Consider requiring Short Term Rentals to have summer
schedule (i.e. twice per week) for solid waste and
recycling pickup.
23. Work with tourism board and solid waste contractor to
develop an education program targeted at tourists to
discourage littering, increase participation in recycling,
and decrease recycling contamination.
24. Implement program for increased beach litter patrols.
25. Review MSW disposal and recycling program on beach
to determine if more receptacles or a different format
would work better.
26. Work with local businesses to identify and encourage
alternatives to single use items.
27. Study potential for glass crusher, and City-sponsored
glass recycling program.
28. Consider requirements for condominiums to have
dumpsters as opposed to individual trash cans.
29. Work with solid waste contractor to identify and address
obstacles to yard waste pickup.
30. Work with solid waste contractor to study the
cost/benefits of segregated recycling.
31. Research and identify potential purchase and operation
of beach cleaning equipment, i.e. sifters.
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Energy Consumption
City operations
result in energy
use, which
contributes to
greenhouse gas
emissions.
The billing system
of Georgia Power
makes tracking and
analyzing energy
usage difficult.
Reduce energy
usage within City
facilities.
Promote energy
efficiency through
education and
incentives.
o The City has already
made great strides in
alternative energy
usage through solar
power and through
energy efficiency
audits.
32. Have a third party perform and energy audit that
includes an assessment of the City’s electrical meters
and Georgia Power billing system.
33. Promote energy conservation to city employees and
tenants of city building space. Incentive programs could
be set up to encourage employees to reduce energy
consumption.
34. Explore the potential cost savings associated with a 4-
day work week to reduce electricity usage at public
facilities as well as commuting time for employees.
35. Explore alternative energy sources for interior and
outdoor public lighting (i.e. solar power) as well as
switching to more energy-efficient lighting (i.e., LED
lights).
36. Increase use of occupancy sensors and re-location and
setting of programmable thermostats in all City
buildings.
37. The City of Tybee should ensure that all City Hall
renovations plan for and incorporate the energy
efficiency recommendations
38. Explore alternative cost and benefits associated with
alternative fuel sources for fleet vehicles. For example,
the City could explore the use of bio-diesel as an
alternative to gasoline and diesel in fleet vehicles or the
purchase of hybrid vehicles.
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Traffic and Parking
Peak traffic flow
issues related to
day-trippers and
events creates
congestion and
makes accessing or
traveling around the
island difficult.
Traffic resulting
from accidents and
flooding on Hwy 80
cuts off access to
the island resulting
in economic losses
and emergency
situations.
Lack of parking
creates congestion
and illegal parking
problems during
peak tourism season
Improve Hwy 80 to
provide passable
shoulders and an
elevated road bead.
Provide additional
parking
opportunities
Provide multi-modal
opportunities for
transportation to
and within Tybee
Island
Notify people about
traffic congestion
and parking issues
before they get on-
island.
o There are no transit
opportunities to Tybee
Island.
o There is currently no
public harbor to allow
for ferry service to
Savannah.
o The City does not
control Hwy 80
Improvements.
o There is limited land to
accommodate additional
parking.
o More parking could
encourage additional
visitors resulting in more
impact.
o Legal ROW parking is not
known and/or clearly
marked.
o Historic attempts at
remote parking have not
been well utilized
because people want to
park near the beach
when they have a lot of
beach gear.
o Potential to eliminate
parking in C2 could
reduce future available
parking opportunities.
39. Advocate with GDOT to elevate the road surface and
create passable and bikeable shoulders as part of the
bridge and road improvements on Hwy 80.
40. Work with the NPS, Fort Pulaski and the County to
extend the McQueen’s trail to the Lazaretto Creek
Bridge. Continue work to connect the Marsh Hen
Trail to the Lazaretto Creek Bridget.
41. Continue to operate parking application for smart
phones to notify people of available parking. Work
with Tybee Tourism Council to promote this
application. Record data from application to track
trends in parking usage.
42. Work with the County to operate electronic signage
at Johnny Mercer Blvd. and Hwy 80 to notify visitors
of traffic conditions.
43. Perform a study to identify all of the ROW that are
owned by the City, and develop a parking plan for
these ROW that includes a clear delineation of ROWs
where parking is allowed and where it is prohibited,
i.e. yellow curb.
44. Consider on-island electronic signage to notify
visitors of available parking.
45. Work with churches and school to provide additional
parking on peak days, if they so choose.
46. Consider the construction of a parking garage in the
C1 area, potentially through a public private
partnership. Consider duel uses such as downstairs
commercial or rooftop mini-golf to make it more cost
effective.
47. Review parking rates and determine if demand-based
rates could help address peak traffic and parking
issues.
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Short Term Rentals
Peak water &
wastewater usage on
the island is driven
largely by short term
rentals
Regulate the short
term rental industry.
Short-term rentals are a
component of all above
elements, but are also
important to the economy
of the island
48. Review the data gathered through the current Short
Term Rental Ordinance, and reevaluate the need for
additional regulation.
49. Consider a limit on Short Term Rental Occupational
Tax Certificates. This could be by total number or a
percentage of housing units on the island.
Zoning
The R-2 Zoning
District has a lot of
room for additional
development
through subdivision
and redevelopment
of existing lots.
The area subject to
flooding during
King tides and rain
events, is in the R-2
District.
Restrict future and
re-development in
the R-2 District,
especially areas
that are subject to
flooding.
o Building is already
restricted on Tybee
Island through height
restrictions and lots
sizes.
o Private property rights
o More impervious
surface from
additional
development in the R-
2 district will make
flooding issues worse.
o The additional
population that would
result from a full
buildout will have a
serious effect on the
Island’s resources,
services, and facilities.
50. Consider amending the R-2 district to
a. Increase the minimum lot size for duplexes.
b. Increase the minimum lot size necessary for
subdivisions
51. Consider rezoning areas subject to flooding to R-1 or
a more restrictive zoning district.
52. Consider a transfer of development rights program
that will direct development away from lots subject
to flooding and towards other areas that have the
ability to accommodate more dense development.
53. Provide a tax incentive for R2 property owners to
under-develop their lots.
54. Purchase and permanently protect undeveloped
property in the R-2 district. Prioritize purchase of
repetitive loss housing.
55. Restrict new impervious surface in the R-2 district.
56. Require infiltration of the water quality volume (1.2”
of stormwater) for all new development and
redevelopment.
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City Funding and Resources
The City does not
currently have the
funding necessary
to implement
needed capital
improvements.
The city needs staff
resources to focus
on issues identified
in this plan.
City needs reserves
for disaster
preparedness and
infrastructure
improvements.
Adjust utility rate
structure to ensure
that the city can
fund future capital
improvements and
operations.
Identify other
funding sources for
improvements
Identify or hire staff
to focus on
Carrying Capacity
Issues
o The resident
population may be
burdened by the cost
to support the tourist
population.
o A large proportion of
the City’s budget is for
services and
infrastructure that
services the tourism
industry.
o The tourism industry
drives the economy on
Tybee Island.
57. Perform a comprehensive water and sanitary sewer
rate study to:
c. Provide adequate funding for future improvements
and operations
d. Incentivize water conservation.
e. Consider peaking factors and/or seasonal rates to
reduce peak usage and to shift the cost burden off
of the residential population
58. Perform a stormwater utility feasibility study to
determine if a stormwater fee would be a potential
funding source for stormwater improvements
59. Investigate GEFA loan and principal forgiveness
program as a potential funding source for water,
sewer, and stormwater improvements.
60. Look for regional partners who also benefit from the
tourism industry to assist with the cost of
improvements to address impact of tourists on island
resources.
61. Work with Chatham County on future SPLOST
referendum to identify opportunities for additional
funding.
62. Perform a Reserve Fund Study to determine the
amount of reserve funds needed for disaster
preparedness and response.
63. Consider adding staff to focus on implementation of
this work plan.
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TYBEE ISLAND CARRYING CAPACITY STUDY A2
APPENDIX B: GREENHOUSE GAS EMISSIONS INVENTORY
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C ITY OF T YBEE I SLAND , G EORGIA
S EPTEMBER 2016
G EORGIA D EPARTMENT OF N ATURAL R ESOURCES
C OASTAL R ESOURCES D IVISION
C OASTAL I NCENTIVE G RANT - C YCLE 18
G REENHOUSE G AS E MISSIONS I NVENTORY
FOR L OCAL G OVERNMENT O PERATIONS
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Table of Contents
1. Special Acknowledgements .......................................................................................................... 1
2. Introduction and Background ....................................................................................................... 2
3. Methodology ................................................................................................................................. 3
Resources Utilized .............................................................................................................................. 3
Inventory Scope .................................................................................................................................. 3
Inventory Categories .......................................................................................................................... 3
4. Greenhouse Gas Emissions Inventory Results .............................................................................. 6
Buildings and Facilities ....................................................................................................................... 6
Water Transport ................................................................................................................................. 7
Public Lighting .................................................................................................................................... 8
Vehicle Fleet ....................................................................................................................................... 9
Employee Commute ......................................................................................................................... 10
Summary of GHG Emissions Inventory Results ................................................................................ 10
5. Reduction Strategies and Recommendations ............................................................................. 12
Electric Utility Incentives and Programs ........................................................................................... 12
Recommendations ............................................................................................................................ 12
6. Conclusion ................................................................................................................................... 15
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1. Special Acknowledgements
This inventory was prepared on behalf of the City of Tybee Island, Georgia, under grant award
No. XXX to the Georgia Department of Natural Resources (DNR) from the Office for Coastal
Management (OCM), National Oceanic and Atmospheric Administration (NOAA). The
statements, findings, conclusions, and recommendations are those of the author(s) and do not
necessarily reflect the views of DNR, OCM or NOAA.
Ecological Planning Group, LLC assisted the City of Tybee Island with preparation of this report.
35 Abercorn Street, Suite 210
Savannah, Georgia 31401
www.ecologicalplanning.net
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2. Introduction and Background
While the cause of climate change has been highly debated, there is widespread scientific
consensus that climate change is causing increased temperatures, melting of glaciers, altering
precipitation patterns, and sea level rise. The changing dynamics associated with these resources
can threaten both the natural and economic structure of local communities.
Modern development patterns, technological changes, and increasing populations have all been
implicated as potential causes of global climate change. Many scientific studies have
demonstrated a link between greenhouse gas (GHG) emissions generated from human activities
with global climate change. Current thinking by many within the scientific community is that
GHGs contribute to climate change by trapping heat within Earth’s atmosphere. Gases that are
classified as “greenhouse gases” include carbon dioxide, methane, nitrous oxide, and fluorinated
gases.
In response, forward-thinking local governments are identifying policy changes and other
measures that can reduce GHG emissions at both the community level and within their own
operations. Policy changes at a community level can reduce GHG emissions but often these policy
changes are difficult to implement and enforce because they involve measures that are outside
the control of the local government’s policies and programs. In contrast, local governments have
direct control over their own emissions-generating activities. For example, GHG emissions
generated from local government operations can be dramatically lowered by reducing energy
usage in buildings and facilities; reducing fuel consumption in fleet vehicles and equipment;
reducing the amount of government-disposed solid waste that is sent to a landfill; and relying
more on alternative energy sources.
By identifying and quantifying emissions from its operations, jurisdictions can select an effective
approach to reducing its contribution to climate change. The process of conducting such a
quantitative analysis is called a local government operations greenhouse gas emissions inventory.
In October 2015, the City of Tybee Island, Georgia was awarded a Georgia Coastal Management
Program Coastal Incentive Grant (Cycle 18) by the Georgia DNR, Coastal Resources Division to
conduct a Carrying Capacity Study to identify which resources are essential to supporting the
economy and quality of life of Tybee Island, and then determine how large of a population can
be supported within the limits of those resources. As part of this Carrying Capacity Study, the
City of Tybee also conducted a local government operations greenhouse gas emissions inventory,
the results of which are discussed herein. This objective of this inventory is to identify the sources
and quantities of greenhouse gas emissions resulting from government operations within the
City of Tybee in 2015, the chosen base year for this inventory. By identifying the areas of
government operations that contribute the most greenhouse gases to the atmosphere, this
inventory will provide baseline data to reduce GHG emissions and assist the City with future
planning efforts to address, plan, and mitigate the impacts of climate change.
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3. Methodology
Resources Utilized
The City of Tybee is a participating member of the International Council of Local Government
Initiatives (ICLEI). ICLEI has developed a set of guidelines to assist with quantifying and reporting
GHG emissions associated with community and local government operations. To complete this
inventory, the following resources were utilized:
ClearPath emissions calculator, a software program that is the backbone of this
inventory;
Master Data Workbook, a comprehensive data collection tool used in conjunction
with ClearPath; and
Local Government Operations Protocol, developed in partnership between ICLEI and
the California Air Resources Board, California Climate Action Registry and The Climate
Registry.
Inventory Scope
This inventory evaluates three GHGs that are internationally-recognized under the Kyoto
Protocol, including carbon dioxide (CO2), methane (CH4), and nitrous oxide (N2O). Emissions for
these gases are reported separately in metric tons for each gas and metric tons of carbon dioxide
equivalent (CO2e). The global-warming potential (GWP) of each non-CO2 gas is used to calculate
CO2e. (Carbon dioxide equivalency is a quantity that describes, for a given mixture and amount
of greenhouse gas, the amount of CO2 that would have the same GWP, when measured over a
specified timescale [generally, 100 years]). By converting all GHGs to CO2e, comparisons can
more easily be made when discussing different GHGs.
Energy usage (i.e., consumption of electricity) is reported within this inventory by kilowatt-hours
(kWh). The kWh is a unit of energy equivalent to one kilowatt of power expended for one hour
(of time. The kilowatt-hour is not a standard unit in any formal system, but it is commonly used
in electrical applications and is an ICLEI reporting standard. Energy usage is also reported within
this inventory by British Thermal Units (BTU), another standard unit of for measurement of
energy. The MMBtu represents one million BTUs and is the unit of measurement used for
comparing the various sectors of government operations covered within this report.
This inventory includes emissions of GHGs during the calendar year of 2015, otherwise known as
the base year. Reporting GHG inventories on a calendar year basis and designating a baseline
year (the year that future inventories may be compared to for purposes of tracking changes in
GHG emissions) is considered standard internationally.
Inventory Categories
The City of Tybee focused on the following categories of government operations to quantify GHG
emissions for base year 2015 (Figure 1):
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Buildings and Facilities: This includes
emissions from grid electricity used
to power City Hall; the YMCA
(including the gym); Fire Station,
Guard House, Department of Public
Works (garage/office); and the
Public Safety Building. This includes
interior lighting, operation of
heating and cooling systems, and
other electrical uses within these
buildings.
Water Transport: This includes
emissions from grid-electricity used
to power water delivery systems
(drinking water well pumps) and the
pumps/lift station associated with
the City’s wastewater treatment
plant (WWTP). Emissions from wastewater treatment methods were not included as part
of this inventory.
Public Lighting: This includes emissions from grid electricity used to power street lights,
park lighting, signage, traffic control lighting, and other miscellaneous forms of public
lighting that is owned and/or controlled by the City of Tybee. Emissions from interior
lighting are included within the Buildings and Facilities sector. Street lighting for the City
of Tybee that is owned and operated by the Georgia Department of Transportation is not
included within this inventory assessment. In addition, any outdoor lighting that is not
metered (i.e., billed by a tariff to the City of Tybee based on a fixed cost) is not included.
Vehicle Fleet: This includes emissions from city-owned vehicles, large equipment, small
maintenance equipment, and marine related equipment used by the City’s police, fire,
and other departments).
Employee Commute: This includes emissions generated from fuel usage associated with
employee commute to and from work
Stationary sources of greenhouse gases include any facility, operation, or activity, that produces
emissions in a fixed location. The most common type of stationary source emission for most local
government operations result from the combustion of fossil fuels used to power the jurisdictions’
buildings (Building and Facilities); water and wastewater delivery systems (Water Transport) and
power street lights, traffic signals, park lighting, and other forms of outdoor lighting (Public
Lighting). For the City of Tybee, the energy used to run and operate fixed local government
facilities is supplied by Georgia Power, the local electric utility. Natural gas is not used by the City
of Tybee to power government buildings and operations. Utility power bills for 2015 were utilized
to supply the bulk of data used to identify and assess the amount of energy used to power
buildings, water/wastewater delivery systems, and supply public lighting, which are all stationary
sources of GHG emissions. Greenhouse gas emissions were also quantified for non-stationary
Figure 1: Government Sectors and Categories
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sources, including city-owned vehicles used for city operations (Vehicle Fleet) and from City
employee commute to and from the work (Employee Commute).
The types of energy and emissions associated with these operations vary based on the different
government functions as well as the source of energy. Correspondingly, the way in which GHG
emissions may be assessed and quantified for these operations vary. For example, electricity used
at a government building is measured in kWh while the emissions from vehicle fleet activities and
employee commuting patterns are measured in miles traveled, gasoline and/or diesel.
To level the playing field, the City utilized the ClearPath emission inventory software developed
by ICLEI to assist with the analysis of data related to the sectors defined above. The tools provided
in the ClearPath software covert the various GHG emissions to equivalent tons of carbon dioxide
(CO2e) to allow for an "apples-to-apples" comparison between reporting sectors and emission
sources. Emissions for methane (CH4), and nitrous oxide (N2O) were also calculated; however, for
comparative purposes and ease of reference, the results and discussions within this report will
focus primarily on emissions of carbon dioxide (CO2) and CO2e reported in metric tons during
base year 2015 and energy by kWh and BTU.
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4. Greenhouse Gas Emissions Inventory Results
Buildings and Facilities
GHG emissions from grid electricity used to power City buildings and facilities were assessed and
subdivided into 6 building and/or department “categories” based on the availability of data and
accounts already established by Georgia Power and the City of Tybee for utility billing purposes.
GHG emissions from grid electricity used to power the WWTP, including lift stations, and drinking
water wells, are categorized as their own separate “Water Transport” sector in accordance with
ICLEI reporting standards and are discussed separately within this report.
Buildings and/or departments included within this sector inventory were:
City Hall;
the YMCA (including the gym);
Guard House;
Department of Public Works (garage/office);
Fire Station;
Public Safety Building (police department and courtroom); and
Table 1 includes a breakdown of energy consumption (kWh) and GHG emissions, including carbon
dioxide (CO2), methane (CH4), and nitrous oxide (N2O) as well as carbon dioxide equivalent (CO2e)
generated from electrical use within City buildings and/or departments. Figure 2 shows the
percentage (%) of CO2e emissions generated by each building and/or department.
The YMCA and associated gym, and the Public Safety Building consumed the most electricity and
generated the most CO2e of Tybee’s city-owned buildings. Operating the YMCA/gym generated
146 metric tons of CO2e (MtCO2e), which equates to 43% of CO2e emissions within this sector,
and operating the Public Safety Building generated 101 MtCO2e (30% of CO2e emissions).
Approximately 95 MtCO2e (27% of CO2e emissions) were generated by City Hall, Department of
Public Works (the garage and office), and the Guard House combined.
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Table 1
Energy Usage and GHG Emissions by Building/Department
Building/Department
Total 2015
Annual Usage
(kWh)
C02
(MT)
CH4
(MT)
N20
(MT)
C02e
(MT)
%
C02e
City Hall 84,457 41 8.5314
x10-4
7.9606
x10-4 42 12%
YMCA/GYM 297,520 146 0.0030054 0.0028043 147 43%
Guard House 11,886 6 1.2007
x10-4
1.1203
x10-4 6 2%
Department of Public
Works (garage/office) 61,360 30 6.1983
x10-4
5.7836
x10-4 30 9%
Fire Station 34,761 17 3.5114
x10-4
3.2765
x10-4 17 5%
Public Safety Building 206,480 101 0.0020858 0.0019462 102 30%
Water Transport
GHG emissions from grid electricity used to power the City’s WWTP, including lift stations, and
water delivery pumps (drinking water well pumps) were assessed and subdivided within this
category. Table 2 includes a breakdown of energy consumption (kWh) and GHG emissions,
including carbon dioxide (CO2), methane (CH4), and nitrous oxide (N2O) as well as carbon dioxide
equivalent (CO2e) generated from electrical use to power water pump delivery systems and the
WWTP.
12%
43%
2%
9%
5%
30%
Figure 2
GHG Emissions by Building/Department (% C02e )
City Hall
YMCA/GYM
Guard House
Department of Public
Works (garage/office)
Fire Station
Public Safety Building
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As demonstrated in Table 2 below, most of the City’s energy usage for water transport, and
therefore the majority of GHG emissions as measured by CO2e from energy usage, comes
predominately from operating the WWTP (847 MtCO2e which equates to 84% of CO2e within this
sector). Operation of the water delivery pumps generated significantly less (163 MtCO2e which
equates to 16% of CO2e).
Table 2
Energy Usage and GHG Emissions for Water Transport
Water Transport
Total 2015
Annual Usage
(kWh)
C02
(MT)
CH4
(MT)
N20
(MT)
C02e
(MT) % C02e
Water delivery
pumps (drinking
water wells)
331,664 163 0 0 164 16%
WWTP (lift
stations, etc.) 1,725,237 847 0 0 852 84%
Public Lighting
This includes emissions from grid electricity used to power street lights, traffic control lighting,
signage, park lighting, and other miscellaneous forms of outdoor public lighting (dock lighting,
etc.), that are metered and controlled and/or owned by the City of Tybee. Table 1 includes a
breakdown of energy consumption (kWh) and GHG emissions, including carbon dioxide (CO2),
methane (CH4), and nitrous oxide (N2O) as well as carbon dioxide equivalent (CO2e) generated
for public lighting. For comparative purposes, the public lighting sector was subdivided into 2
categories: street and traffic lighting (which encompasses street lighting, traffic control lighting,
and signage) and “other” outdoor lighting (park lighting, dock lighting, etc.)
Operation of park lighting consumed the most electricity and generated the majority of GHG
emissions within public lighting (368 MtCO2e which equates to 98% of CO2e within this sector)
while operation of street and traffic lighting consumed far less electricity and generated
significantly less GHGs (7 MtCO2e which equates to 2% of CO2e).
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Table 3
Energy Usage and GHG Emissions for Public Lighting
Public
Lighting
Total 2015
Annual
Usage (kWh)
C02
(MT)
CH4
(MT)
N20
(MT)
C02e
(MT)
%
C02e
Street &
Traffic
Lighting
14,300 7 1.4445
x10-4
1.3479
x10-4 7 2%
Park and
Other
Outdoor
Lighting
744,235 365 0.01 0.01 368 98%
Vehicle Fleet
The City of Tybee Island compiled information about vehicles and equipment that make up the
City's vehicle fleet. The list was broken down by vehicles, large equipment, small maintenance
equipment, and marine related equipment. The type of GHG emissions generated in this sector
is based on the usage of gasoline and diesel by city owned and operated vehicles and equipment.
The vehicle fleet for the City of Tybee Island contributes 336.7 equivalent MtCO2 units, which
accounts for approximately 9% of total greenhouse gas emissions in the City. The vehicle fleet
has been broken down by general type and summarized in the chart below.
66%3%
23%
8%
Figure 3
Vehicle Fleet GHG emissions (% C02e)
Vehicles
Small Maintenance Equipment
Large Equipment
Marine Related
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Due to the number of vehicles, the police department accounts for a large percentage of the total
GHG emissions in the vehicle fleet sector. Water operations, public works, parking, marine
rescue, and the fire department are the other departments that make up vehicle fleet sector.
Employee Commute
The employee commute sector consists of the total distance employees travel to and from work
and is measured in vehicle miles traveled (VMT). The City analyzed the commuting patterns of
employees and place of residence to determine the total VMT for each employee. The resulting
data was entered in to the ClearPath emission inventory software to determine the GHG
emissions generated by employee commuting patterns. The employee commute sector accounts
for 273.45 MtCO2e, which represents 7% of the total government generated emissions.
Based on commuting patterns and place of residence, employees of Tybee Island drive roughly
589,000 miles annually just traveling to and from work. This equates to the consumption of more
than 29,000 gallons of gasoline, a cost which is incurred by the employees. The average commute
is 10.8 miles each way.
Summary of GHG Emissions Inventory Results
This section provides details with regard to the amounts of greenhouse gas emissions and energy
usage resulting from the government operations at the City. During the 2015 base year,
government operations at the City generated roughly 3,735 MtCO2e. The use of electricity at city
buildings and facilities account for roughly 9% of CO2e. Water transport was the largest sector,
accounting for over 50% CO2e. Public lighting and the vehicle fleet were responsible for 20% and
9% of CO2e, respectively, with the employee commute sector having the lowest percentage of
greenhouse gas emissions at 7%.
The British Thermal Unit (BTU) is the standard unit of for measurement of energy. The MMBtu
represents one million BTUs and is the unit of measurement used for comparing the various
sectors of government operations in the table below. Tybee Island used a total of 28,330 units of
energy (MMBtu) during the 2015 base year. Again, the water treatment sector accounts for the
highest energy usage at 50%. Lighting and employee commute have the second highest
percentages at 18% and 13% respectively. Fleet vehicles and buildings are the smallest in total
percentage of energy usage for the sectors analyzed.
Table 4
Energy Usage and GHG Emissions for All Sectors
Equivalent
CO2 Percent Energy
(MMBtu) Percent
Buildings 343.9918 9% 2,376.987 8%
Water Transport 2031.85 54% 14,040.3 50%
Public Lighting 749.3131 20% 51,77.805 18%
Fleet Vehicles 336.719 9% 3,123.8 11%
Employee Commute 273.45 7% 3,610.8 13%
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9%
54%20%
9%7%
Figure 4
GHG Emissions by Sector (% CO2e)
Buildings
Water Treatment
Lighting
Fleet Vehicles
Employee Commute
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5. Reduction Strategies and Recommendations
Electric Utility Incentives and Programs
Georgia Power, the local utility that supplies electricity to the City of Tybee, offers a commercial
rebate program that provides cost incentives for incorporating energy-efficient improvements.
Rebates are offered to help offset initial costs associated with replacement of outdated,
inefficient equipment or installation of high-efficiency equipment during new construction. The
utility company also offers free audits that provide recommendations for increased energy
efficiency. In April 2015, Georgia Power conducted an audit of Tybee’s Memorial Park buildings,
which includes the City Hall building and the YMCA/gym. Recommendations from Georgia Power
to increase energy efficiency and reduce energy consumption (which in turn reduces GHG
emissions), and a summary of the City’s current status with respect to implementation of these
strategies, are included below:
Continue to incorporate occupancy sensors in strategic locations of the buildings;
consider energy efficient construction practices and premium efficiency equipment
when renovating the City Hall building or when equipment fails; continue to promote
energy management/conservation to city employees and tenants of city building space;
and set programmable thermostat settings in the gymnasium to make sure they are set
to adjust during unoccupied times. The City has installed occupancy sensors and
programmable thermostats in some of the Memorial Park buildings, although some of
the programmable thermostats need to be re-located to ensure optimal temperature
regulation. The City plans to address these recommendations when they renovate City
Hall, which the City is currently planning.
Replace the water heater in the YMCA building;
Ensure all computers are set to go into energy management mode when they are not in
use.
Recommendations
The following recommendations should be considered on a city-wide basis to reduce energy
consumption, thereby reducing GHG emissions from local government operations:
Continuation of Greenhouse Gas Emissions Inventory
This inventory provides a great starting place for the City of Tybee as it provides a baseline year
for which reduction goals and future impacts can be measured and compared. The City should
review the strategies outlined in this inventory and set emission reduction goals and measure
success based on the baseline year. The City should also develop an action plan / implementation
plan to assist with tracking and achieving reduction goals.
Third-Party Audit
The City may want to consider having a third-party energy audit conducted by an objective and
credentialed firm that specializes in these types of audits. The results of this greenhouse gas
emissions inventory can be used in conjunction with a third-party audit to identify specific energy
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City of Tybee Island Greenhouse Gas Emissions Inventory
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reduction strategies for the City of Tybee that have the greatest impact. This audit should also
include a detailed analysis of the City’s current billing setup with Georgia Power to ensure that
all current billing practices are most economically beneficial to the City. The audit should
investigate measures to reduce energy consumption during peak energy usage times (both within
a 24-hr period and seasonally). In conjunction with, or as an alternative to this if the City cannot
hire a third-party, the City should also request that Georgia Power conduct additional energy
audits of its other City buildings and operations.
Public Education and Incentive Programs
The City should continue to promote energy conservation to city employees and tenants of city
building space. Incentive programs, perhaps groped by department and/or building, could be set
up to encourage employees to reduce energy consumption.
Energy Efficiency
There are a variety of energy efficiency measures that should be considered to reduce energy
consumption and greenhouse gas emissions at the City, some of which may also reduce electricity
costs. These include:
Energy efficient wastewater treatment methods should be considered when designing
and upgrading the City’s wastewater treatment plant. As discussed within this report,
over 50% of the City’s energy usage and GHG emissions result from wastewater
treatment.
Explore the potential cost savings associated with a 4-day work week as a mean to reduce
electricity usage at some or all public facilities;
Explore alternative energy sources for interior and outdoor public lighting (ie. Solar
power) as well as switching to more energy-efficient lighting (i.e., LED lights); and
Increase use of occupancy sensors and re-location and setting of programmable
thermostats in all City Hall buildings;
The City of Tybee should ensure that all City Hall renovations plan for and incorporate
the energy efficiency recommendations provided by Georgia Power during its April
2015 Memorial Park Energy Audit. This includes incorporation of occupancy sensors
and re-location and setting of programmable thermostats in the gymnasium and other
areas. These same recommendations can be expanded to other City hall buildings.
Other Recommendations
Increase recycling efforts and reduce the amount of government-disposed solid waste
that is sent to a landfill (this reduce fugitive greenhouse gas emissions associated with
landfills);
Explore alternative cost and benefits associated with alternative fuel sources for fleet
vehicles. For example, the City could explore the use of bio-diesel as an alternative to
gasoline and diesel in fleet vehicles.
Identify incentives available to encourage employees to utilize alternative forms of
transportation when commuting to work; and
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City of Tybee Island Greenhouse Gas Emissions Inventory
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Providing incentives for employees to live closer to work. Carpooling and public
transportation options could also be explored as a means to reduce emissions related to
commuting. An additional option could be the exploration of a 4-day work week as
mentioned above.
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City of Tybee Island Greenhouse Gas Emissions Inventory
Page 15
6. Conclusion
This Greenhouse Gas Emissions Inventory analyzed energy usage and GHG emissions generated
by government operations within the City of Tybee Island. The biggest contributors to GHG
emission from government operations for the City of Tybee Island are Water Transport and
Lighting. Employee Commute and Vehicle Fleet emissions account for a smaller percentage off
overall emissions, which could be related to the relatively small size of the island and the fact
that many city employees have very short commutes. The impact from the building sector was
also small when compared to the other sectors.
While the City of Tybee cannot solve the issue of global climate change by itself, it can do its part
and take steps to directly reduce greenhouse gas emissions from its own governmental
operations. By identifying and quantifying emissions from its operations, jurisdictions can select
an effective approach to reducing its contribution to climate change. This inventory provides a
great starting place for the City of Tybee as it provides a baseline year for which reduction goals
and future impacts can be measured and compared.
In addition to mitigation of global climate change, reducing GHG emissions from government
operations has other direct and indirect benefits to the City. Improving air quality by reducing
energy consumption and greenhouse gas emissions would result in an improvement to the
environmental as well as the quality of life for existing residents and future residents of the City.
Reducing energy consumption will also lead to a reduction in energy costs for the City, which
would allow for the reallocations of funds toward other needs or projects.
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ORDINANCE NO. 03-2017-CA
AN ORDINANCE TO AMEND THE CODE OF ORDINANCES
FOR THE CITY OF TYBEE ISLAND, GEORGIA,
PERTAINING TO SECTION 6-8, CONSUMPTION OF ALCOHOLIC
BEVERAGES IN PUBLIC AREAS,
REGARDING THE PUBLIC CONSUMPTION OF ALCOHOL
FROM OPEN CONTAINERS, TO ESTABLISH RESTRICTIONS
THEREON IN REFERENCE TO LOCATIONS AND TIMES
WHEN PERMISSIBLE AND WHEN NOT PERMISSIBLE
AND TO ESTABLISH PROCEDURES FOR THE RESTRICTION
OF THE CONSUMPTION OF ALCOHOL OUTDOORS DURING
CERTAIN TIMES OF THE YEAR AND/OR DURING EVENTS
WHEREAS, the duly elected governing authority for the City of Tybee Island, Georgia,
is authorized under Article 9, Section 2, Paragraph 3 of the Constitution of the State of Georgia
to adopt reasonable ordinances to protect and improve the public health, safety and welfare of the
citizens of Tybee Island, Georgia; and
WHEREAS, the duly elected governing authority for the City of Tybee Island, Georgia,
is the Mayor and Council thereof; and
WHEREAS, the governing authority desires to adopt ordinances under its police, zoning
and home rule powers; and
WHEREAS, the public welfare and safety of the citizens of Tybee Island requires that
action be taken so as impose restrictions on the outdoor consumption of alcohol, particularly in
the case of unpermitted special events and/or during traditional spring break periods.
NOW, THEREFORE, It is hereby ordained by the Mayor and Council of the City of
Tybee Island that The Code of the City of Tybee Island, Georgia, Section 6-8, Consumption of
alcoholic beverages in public areas, be amended as provided herein.
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SECTION 1
The Code of Ordinances is hereby amended as to Section 6-8, Consumption of alcoholic
beverages in public areas, shall hereafter read as follows:
Sec. 6-8. Consumption of alcoholic beverages in public areas.
(a) Except as specifically permitted in connection with special events approved by
the Mayor and Council, consumption of alcohol on the beaches, in the parking lots located
adjacent to beaches and in or on the adjoining beach waters of the City of Tybee Island is
prohibited during the months of March, April and in May through Midnight of the first Saturday
until the next to the last Friday before Memorial Day in May of each calendar year. At other
times when not prohibited herein, alcoholic beverages may be consumed from a metal can or a
non-glass container cup with a capacity of 16 25.4 fluid ounces or less, in public areas; however,
the Mayor and Council may designate areas of public property where all consumption of alcohol
is prohibited and/or may limit the type of containers that are prohibited or permissible in any
particular areas of the City by amendment hereto or in connection with the approval of any
special event or application for a special event.
(b) Any person violating the any provisions of this chapter, upon a first conviction in
a municipal court shall be fined not less than $350.00 nor more than $1,000.00 and/or be
imprisoned for a term not exceeding 90 days, either or both, plus court costs, and for a second
offense within 5 years of a previous conviction or offense, such person shall be fined not less
than $600.00 nor more than $1,000.00 and/or imprisoned for a term not exceeding 120 days, plus
court costs, either or both, in the discretion of the judge of the municipal court. Further, it shall
be considered to be a second conviction hereunder for any individual previously cited for a
violation of this section for which a subsequent conviction is secured to have received a
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subsequent citation which also results in a conviction. , rules, or regulations of this article, upon
conviction, shall be subject to punishment as provided in Section 1-8 and as provided by law.
SECTION 2
The sections, paragraphs, sentences, clauses and phrases of this ordinance are severable
and, if any phrase, clause, sentence, paragraph, or section of this ordinance shall be declared
illegal or invalid by the valid judgment or decree of any court of competent jurisdiction, such
illegality shall not affect any of the remaining phrases, clauses, sentences, paragraphs and
sections of this ordinance.
SECTION 3
All ordinances and parts of ordinances in conflict herewith are expressly repealed.
SECTION 4
It is the intention of the governing body, and it is hereby ordained, that the provisions of
this ordinance shall become effective and be made a part of the Code of Ordinances, City of
Tybee Island, Georgia, and the sections of this ordinance may be renumbered to accomplish such
intention.
SECTION 5
This ordinance shall be effective upon its adoption by the Mayor and Council pursuant to
the ordinances of the City.
ADOPTED THIS DAY OF , 2017.
______________________________ MAYOR
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ATTEST:
CLERK OF COUNCIL
FIRST READING: ______
SECOND READING: ______
ENACTED:
Ordin 2017/3-2017 alcohol 12.14.16 Ordin 2017/3-2017-A alcohol 12.20.16 Ordin 2017/3-2017-A alcohol 01.03.17
Ordin 2017/3-2017-C alcohol 01.19.17
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ORDINANCE NO. 03-2017-C
AN ORDINANCE TO AMEND THE CODE OF ORDINANCES
FOR THE CITY OF TYBEE ISLAND, GEORGIA,
PERTAINING TO SECTION 6-8, CONSUMPTION OF ALCOHOLIC
BEVERAGES IN PUBLIC AREAS,
REGARDING THE PUBLIC CONSUMPTION OF ALCOHOL
FROM OPEN CONTAINERS, TO ESTABLISH RESTRICTIONS
THEREON IN REFERENCE TO LOCATIONS AND TIMES
WHEN PERMISSIBLE AND WHEN NOT PERMISSIBLE
AND TO ESTABLISH PROCEDURES FOR THE RESTRICTION
OF THE CONSUMPTION OF ALCOHOL OUTDOORS DURING
CERTAIN TIMES OF THE YEAR AND/OR DURING EVENTS
WHEREAS, the duly elected governing authority for the City of Tybee Island, Georgia,
is authorized under Article 9, Section 2, Paragraph 3 of the Constitution of the State of Georgia
to adopt reasonable ordinances to protect and improve the public health, safety and welfare of the
citizens of Tybee Island, Georgia; and
WHEREAS, the duly elected governing authority for the City of Tybee Island, Georgia,
is the Mayor and Council thereof; and
WHEREAS, the governing authority desires to adopt ordinances under its police, zoning
and home rule powers; and
WHEREAS, the public welfare and safety of the citizens of Tybee Island requires that
action be taken so as impose restrictions on the outdoor consumption of alcohol, particularly in
the case of unpermitted special events and/or during traditional spring break periods.
NOW, THEREFORE, It is hereby ordained by the Mayor and Council of the City of
Tybee Island that The Code of the City of Tybee Island, Georgia, Section 6-8, Consumption of
alcoholic beverages in public areas, be amended as provided herein.
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SECTION 1
The Code of Ordinances is hereby amended as to Section 6-8, Consumption of alcoholic
beverages in public areas, shall hereafter read as follows:
Sec. 6-8. Consumption of alcoholic beverages in public areas.
(a) Except as specifically permitted in connection with special events approved by
the Mayor and Council, consumption of alcohol on the beaches, in the parking lots located
adjacent to beaches and in or on the adjoining beach waters of the City of Tybee Island is
prohibited during the months of March, April and in May through Midnight of the first Saturday
in May of each calendar year. At other times when not prohibited herein, alcoholic beverages
may be consumed from a metal can or a non-glass container with a capacity of 16 fluid ounces or
less, in public areas; however, the Mayor and Council may designate areas of public property
where all consumption of alcohol is prohibited and/or may limit the type of containers that are
prohibited or permissible in any particular areas of the City by amendment hereto or in
connection with the approval of any special event or application for a special event.
(b) Any person violating the provisions of this chapter, upon a first conviction in a
municipal court shall be fined not less than $350.00 nor more than $1,000.00 and/or be
imprisoned for a term not exceeding 90 days, either or both, plus court costs, and for a second
offense within 5 years of a previous conviction or offense, such person shall be fined not less
than $600.00 nor more than $1,000.00 and/or imprisoned for a term not exceeding 120 days, plus
court costs, either or both, in the discretion of the judge of the municipal court. Further, it shall
be considered to be a second conviction hereunder for any individual previously cited for a
violation of this section for which a subsequent conviction is secured to have received a
subsequent citation which also results in a conviction.
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SECTION 2
The sections, paragraphs, sentences, clauses and phrases of this ordinance are severable
and, if any phrase, clause, sentence, paragraph, or section of this ordinance shall be declared
illegal or invalid by the valid judgment or decree of any court of competent jurisdiction, such
illegality shall not affect any of the remaining phrases, clauses, sentences, paragraphs and
sections of this ordinance.
SECTION 3
All ordinances and parts of ordinances in conflict herewith are expressly repealed.
SECTION 4
It is the intention of the governing body, and it is hereby ordained, that the provisions of
this ordinance shall become effective and be made a part of the Code of Ordinances, City of
Tybee Island, Georgia, and the sections of this ordinance may be renumbered to accomplish such
intention.
SECTION 5
This ordinance shall be effective upon its adoption by the Mayor and Council pursuant to
the ordinances of the City.
ADOPTED THIS DAY OF , 2017.
______________________________
MAYOR
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ATTEST:
CLERK OF COUNCIL
FIRST READING: ______
SECOND READING: ______
ENACTED:
Ordin 2017/3-2017 alcohol 12.14.16 Ordin 2017/3-2017-A alcohol 12.20.16
Ordin 2017/3-2017-A alcohol 01.03.17 Ordin 2017/3-2017-C alcohol 01.19.17
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TIDA/MS BOD approved: 1/18/17 Page 1 of 2
TYBEE ISLAND DEVELOPMENT AUTHORITY / MAIN STREET BOARD OF
DIRECTORS
Meeting Minutes: December 21, 2016
Vision: To improve the quality of life for those that live, work, and visit Tybee Island and enhance the cultural experience while preserving
the community's barrier island heritage.
The Mission of the Tybee Island Development Authority / Main Street Program is to:
- facilitate efforts to revitalize, redevelop, and enhance that which improves the quality of life;
- create a sense of place and improve the quality of life for residents, business owners, and visitors using the Main Street Four Point
Approach;
- encourage quality economic growth and development while preserving Tybee Island's unique architectural and community heritage;
- support and encourage the arts as a cultural endeavor and economic engine on the Island.
ATTENDANCE
(Present) Director: Angela Caldwell, Vicki Hammons, Diane Kaufman, Steve Kellam,
Julie Livingston, Ted Lynch, Brenda Marion
Ex-Officio Director: Sarah Bernzott, Melissa Turner
Program City Staff: Chantel Morton
(Absent) Ex-Officio Director: Melissa Memory
CALL TO ORDER
Ted called the meeting to order at 6pm.
DEVELOPMENT AUTHORITY / MAIN STREET BOARD OF DIRECTORS MINUTES
Motion was made by Brenda, which was seconded by Vicki, to approve the minutes of the Tybee Island
Development Authority / Main Street Board of Directors November 16, 2016 meeting. Motion carried.
PLANNING FOR 2017
Chantel confirmed that two voting positions for the board are being advertised. Directors whose terms
are expiring are welcome to reapply. Brenda confirmed she will not be reapplying. Directors expressed
their appreciation for everything she has done for the Program through promotions. Angela is
considering reapplying. The four ex-officio seats will need to be approved by Directors as individuals
request consideration.
Chantel confirmed that the 2017 meeting schedule was emailed to Directors and requested feedback
regarding a planning session the beginning of 2017 to include a review the Program’s vision and mission,
accomplishments of the 2016 committee work plans, and to set the 2017 committee work plans with
details. Directors confirmed the time of the January board meeting should be extended in order to
incorporate the planning session.
REVIEW DEVELOPMENT AUTHORITY PROPOSED PROJECTS
Julie reviewed the discussion that occurred at the December 8 City Council meeting regarding the city
using the tools available through the Development Authority portion of the Program for properties that
they lease. Discussion ensued regarding the benefits of using the Program in order to maintain the
character, cultural aspects, and community services of the island, have more flexibility with RFPs, and
funding options by putting the structure in place now for future lease renewals.
Directors discussed the projects that have been proposed for the city to pursue through the Program.
Julie shared that city staff has told her that increasing the funding for the Façade Improvement Grant
match cannot be done right now due to financial constraints of hurricane cleanup, pending
reimbursements, and scheduled city projects. Discussion ensued regarding including the match increase
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TIDA/MS BOD approved: 1/18/17 Page 2 of 2
and the Tybrisa Street improvements with the next fiscal year budget process. Details are being worked
on regarding the proposals for the buildings.
COMMITTEE UPDATES
Business Assistance
Ted reported that a few businesses have shared their sales are down drastically compared to last
year due to the hurricane. Chantel confirmed she is hearing the same and that most merchants
are anxious for springtime so they can start seeing increased foot traffic and sales. Diane
reported that overnight stays are up.
Directors discussed a new business that is planning to open at the corner of First Street and North
Campbell.
Design
Façade Improvement Grant Application: (see above re: the Façade Improvement Grant
discussion)
Public Mural Project Update: Vicki reported that Denise Vernon will be the muralist for the next
two murals. A call for volunteers to help with painting will be announced so the May 2017
installation of the murals can be met. Denise will present her sketches, based on the approved
design concepts, at the January board meeting for approval. Sarah confirmed she is still hearing
positive feedback about the mural that is hanging up.
Promotions
Brenda reported that Decorating Day, Small Business Saturday, Lights on for Tybee Celebration,
and the Christmas Parade went well. She noted that the attendance at Lights on for Tybee
Celebration was higher than she has seen in the past and that restaurants ran out of their
complimentary treats early. Directors expressed their appreciation for Brenda’s dedication to the
Program and promotions.
Chantel confirmed that the survey about events and activities hosted by the Program has been
posted on the Main Street Facebook page. She will include a link to the survey in the next Main
Street Talk e-newsletter. The responses will be compiled and reviewed at the next Promotions
Committee meeting.
OTHER BUSINESS
Melissa shared that ticket sales for the 2017 Polar Plunge are going well. She also shared that there are a
number of shows taking place at the Tybee Post Theater. In January they will be launching their first
game show night that will be similar to the television version of Family Feud.
ADJOURN
The meeting adjourned at 6:51pm.
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HPC approved: 1-16-17 Page 1 of 1
TYBEE ISLAND HISTORIC PRESERVATION COMMISSION
MEETING MINUTES
November 21, 2016
ATTENDANCE
(Present) Commissioner: Jane Coslick, Susan Estroff, Neca Stoller
Advisor: Sarah Jones
Staff: Chantel Morton
(Absent) Commissioner: Sue Bentley, Dottie Kluttz
City Council Representative: Bill Garbett
CALL TO ORDER
Neca called the meeting to order at 6:15pm.
OPEN RECORDS/MEETINGS LAW INFORMATION
Chantel confirmed that all commissioners were sent an email with the Open Records/Meetings
Law information that the Clerk of Council sent her to forward to them. The signature page
should be returned to the Clerk of Council.
HPC MINUTES: AUGUST 15, 2016
Motion was made by Neca, which was seconded by Susan, to approve the HPC meeting minutes
of August 15, 2016. The motion passed unanimously.
HISTORIC RESOURCES SURVEY UPDATE
Sarah reported that Chantel and she will be giving a presentation about the competition of the Historic
Resources Survey: Phase I report and an update about preservation at the January 12 City Council
meeting.
UPDATE: HPC PERMIT REVIEW
Sarah reported that there are no updates at this time. Susan shared that her interest in purchasing and
moving the home at 1809 Chatham Avenue will not come to fruition. Commissioners discussed the
process of demolition permitting. Sarah confirmed she will let commissioners know when she receives
more information from the city’s Community Development Department’s Planning and Zoning staff.
OTHER
Sarah suggested the HPC meet every other month unless there is a need to meet more often. She has
talked with Bill G. and Sue. They had no objection. Commissioners present agreed.
ADJOURNMENT
The meeting adjourned at 6:40pm.
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