Current Landscape
In a disaster-prone state like Florida, investment in environmental conservation efforts and updated state infrastructure is of utmost importance. Such investments are particularly important in South Florida, where climate equity and gentrification are growing issues of concern. The rising sea levels have made higher elevation properties more desirable to investors and developers, putting families with low income who reside in these regions at risk of being displaced.[1]
Florida needs infrastructure and protection in place to mitigate damage from natural disasters. Not only do hurricanes impact tourism revenue — natural disasters also cause economic and physical devastation within impacted communities. In its three-year long range financial outlook published in September 2023, the state identified “natural disasters, especially major hurricanes” as a significant threat to Florida’s economic stability.[2] Relatedly, the state Office of Economic and Demographic Research noted that “hurricanes, tropical storms and other shocks have a negative effect on the attractiveness of the state to visitors and state tax revenues. Depending on the magnitude of the shock, the state may need to spend additional dollars to restore the beaches while also experiencing reduced revenues.”[3]
Cleanup costs and keeping the Florida Hurricane Catastrophe Fund and Citizens Property Insurance Corporation well-funded are just some of the fiscal challenges major storms bring.
Yet, Florida’s infrastructure is already in dire need of repair, and environmental threats only target these weak points. From 2019 to 2023, Florida was impacted by 24 extreme weather events, at a cost as high as $200 billion.[4] Before hurricane season even began in 2024, $6 billion in disasters had already impacted Florida.[5] The American Society of Civil Engineers gave Florida an overall grade of “C” in its 2021 Infrastructure Report Card (the same rating as four years prior), with even lower grades on indicators like coastal areas, dams, levees, schools, and stormwater.[6]
Budget
Transportation
The Florida Department of Transportation (FDOT) is responsible for statewide transportation planning aimed at promoting the efficient movement of people and goods, supporting the state’s economic competitiveness, prioritizing environmental and natural resources, and preserving the quality of life and connectedness of the state’s communities.[7] In addition to ensuring some degree of ease of mobility for the state’s 23 million residents,[8] FDOT must also accommodate over 10 million vehicles and the movement of more than 146 million tourists who visit each year.[9],[10] Alongside being a quality-of-life issue for Floridians, a well-functioning transportation system is also a key factor in the state’s ability to grow economically.
The FY 2024-25 budget allocates $15.5 billion for FDOT. Approximately 99 percent is funded through different state trust funds (e.g., the State Transportation Trust Fund).[11] In FY 2023-24, policymakers increased the transportation budget by $2.6 billion. In comparison, in FY 2024-25, lawmakers increased the budget by $331 million, a 2.2 percent increase, for transportation needs. Furthermore, 92 percent of the entire FY 2024-25 transportation budget (a total of $14.2 billion) is for the five-year work program.[12] Beyond the $14.2 billion for the work program, Section 255 (found at the back-of-the-bill) of the budget appropriates an additional $370 million for the Moving Florida Forward Plan meant to offer congestion relief across the state.[13],[14]
The five-year work program is an ongoing process that prioritizes funding for upcoming transportation system improvements over a five-fiscal-year period.[15] According to the Florida Department of Transportation,[16] the work program is “based on a balanced financial plan which maximizes available revenue sources and achieves equitable geographic distribution … it is developed through extensive coordination with local governments, Metropolitan Planning Organizations, regional planning groups, and Florida citizens.”
Per the latest adopted work plan (see Table 2), from FY 2024-25 through FY 2028-29, nearly $32 billion state funds, plus an additional $12.6 billion from tolls and turnpike fees, alongside $22.6 billion federal funds, $5 billion local funds, and $1.24 billion in bonds and other financing will go toward transportation system improvements.[17]
The state’s ongoing investment in its transportation system is important considering the need of regular maintenance and preservation, which improves safety, reduces operating costs, delays the need for costly reconstruction or replacement, and protects Floridians’ investment in infrastructure.[18] To this end, Florida law requires FDOT to ensure that, at a minimum:
- 80 percent of the pavement on the State Highway System meets department standards.
- 90 percent of department-maintained bridges meet standards.
- the department achieves 100 percent of the acceptable maintenance standard on the State Highway System.
While FDOT consistently meets the state’s maintenance requirements, this still leaves up to 20 percent of the pavement on the State Highway System and 10 percent of bridges below standard. Moreover, as FDOT acknowledges, “uncertainties about future conditions like new and emerging technologies, financial and economic outlooks, environmental and weather events, and the demographics, needs, and values of Florida’s communities create stressors and risks to our transportation system.”[19] Concerning revenue, as vehicles become more fuel efficient and electric and alternative-fuel markets grow, tax revenue at gas pumps will decline, resulting in a projected decrease in current transportation funding. Concerning demographic changes, as Florida’s population increases, so will issues with safety, congestion, and accessibility.
Lastly, the governor vetoed $148 million from FDOT; this is 409 percent more than the governor’s FY 2023-24 FDOT vetoes of $29 million. However, despite vetoes, FDOT received a $331 million funding increase, 2 percent above the prior-year level. The increase is much needed given that Florida’s infrastructure is also in dire need of repair. Florida’s public transportation system has long been ranked as one of the worst in the country. Despite spending more on highways than many neighboring states, Florida has one of the worst highway systems in the nation, with high fatalities and commute times compared to other states.[20] The state’s response has often been to build more toll roads — like the overturned M-CORES project, which was disparaged by advocates in recent years.
Disaster Planning & Recovery
The FY 2024-25 budget includes over $1.3 billion in federal and state funding for Emergency Prevention, Preparedness, and Response to provide disaster relief and recovery, a decrease of $500 million from the previous year.[21] The governor vetoed roughly $5.3 million of the funding initially appropriated by lawmakers, including money for Taylor County’s Public Safety Complex, Orange City’s Public Works Building, and backup generators for Polk County and the City of Hollywood’s police headquarters.[22] Most of the appropriation for Emergency Prevention, Preparedness, and Response comes from the federal government.
Department of Environmental Protection
The Department of Environmental Protection (DEP) administers most of the vital environmental activities in the state, including Everglades restoration and protection, Florida Forever/land conservation, state park operations, preserving Florida’s coastlines, mitigating pollution, and monitoring air and water resources.
Compared to prior-year funding, the FY 2024-25 budget cuts funding to the DEP by 19 percent, appropriating $3.1 billion (after $216.7 million in direct vetoes).[23] Despite budgeting $725.7 million less than in FY 2023-24 with more than double the vetoes,[24] DEP is also gaining 49 net positions, primarily for Water Resource Management.[25] The steepest cuts are to Air Resources Management, Recreation and Parks, and Water Restoration Assistance (including $206 million in vetoes for 163 local water projects).
Everglades Restoration
The Everglades remains one of the most endangered natural resources, despite 9 million Floridians relying on it for their water supply.[26] Governor DeSantis has made supporting this vital area a key priority. The budget includes over $769 million for Everglades restoration and protection,[27] a 20-percent increase over FY 2023-24 funding. Notably, this includes significant increases to grants for local governments and organizations engaged in Everglades restoration (28-percent increase to $614 million). No Everglades funding was vetoed.
The budget includes over $769 million for Everglades restoration and protection, a 20-percent increase over FY 2023-24 funding.
Recreation and Parks
Overall, the Recreation and Parks budget significantly decreased from FY 2023-24 appropriations, with Coastal and Aquatic Managed Areas (CAMA) seeing the most severe cuts. Specifically, the FY 2024-25 budget cuts $193.1 million (40 percent) from prior-year CAMA funding.[28] The rest of Recreation and Parks’ decrease is to State Park Operations, including vetoes totaling $6.5 million for 10 local park projects.[29] No positions were cut, however.
Water Quality Improvement Grant Program (formerly known as the Wastewater Grant Program)
Founded in 2020 as the wastewater grant program,[30] the Water Quality Improvement Grant Program was created to help communities improve their water supply, including mitigating nutrient runoff from waste, storms, and agricultural sites.[31] Excessive nutrients like phosphorus and nitrogen are harmful to both humans and the environment.[32]
The FY 2024-25 budget reflects a $35 million increase (17 percent) over prior-year funding to this vital anti-pollution program.[33] This generous appropriation of $235.8 million is $100 million more than either chamber originally proposed.[34]
Florida Forever
Florida Forever is an indispensable program that allows the state to acquire and preserve ecologically important land and prevent future environmental problems. It officially began in 2001 after landmark legislation (Preservation 2000) authorized $300 million in bonds for 10 years to support “the largest land acquisition program of its kind in the United States.” Since then, 907,000 acres of conservation land have been purchased by the program.[35] Additionally, 2014’s Amendment 1 (passed by voters) designated one-third of documentary stamp tax funding to land acquisition through 2035.[36]
The 2024-25 budget allocates $229.3 million to the Florida Forever program.[37] An 82-percent increase over previous year funding, this remains the highest appropriation to the program in 16 years. Still, this amount falls far short of what the Senate proposed, an amount that would have partially addressed prior funding gaps.
Funding for Florida Forever was appropriated in full until 2008, when it was then significantly reduced or eliminated. (See Figure 1.) Recent upticks are encouraging and exceed the $100 million floor that advocates have called for, yet still fall short of the over $300 million in funding called for in the 2001 and 2014 legislation.
Fish and Wildlife Conservation Commission
Since 1999, the Fish and Wildlife Conservation Commission (FWC) has coordinated the state’s fish and wildlife research, enforced hunting and fishing laws, and addressed nuisance species and loss of animal habitat. The FWC is central to managing the rich array of Florida’s natural species, including nearly 600 land animals and 700 native marine and freshwater fish.[38]
Compared to the prior year, the FY 2024-25 budget increases funding to the FWC, adding $69 million (a 13-percent increase), especially to the Wildlife and Habitat and Species Conservation programs.[39] This is the highest funding for FWC since its founding.[40] Most new Wildlife funding is for shooting parks and facilities and a new Florida Wildlife Interactive Education Center, which will educate visitors “on Florida's history of preservation, agriculture, ranching and farming.”[41] Added Habitat and Species Conservation funding is primarily allocated to land acquisition and final restoration of areas impacted by the 2010 Deepwater Horizon oil spill.[42]
This investment and 31 net positions persevered despite $4 million in FWC vetoes. Vetoed projects would have benefitted animal facilities and improved local boat ramps and marinas.
Red Tide Mitigation
Red tide (a.k.a. harmful algae bloom) is an abnormal concentration of microscopic plantlike organisms on state coasts that presents a threat to tourism, wildlife, and the health of Floridians. Even at low concentrations, red tide is harmful to people and fish, causing respiratory and skin irritation in the former and potential death in the latter.[43] Concentrations were especially high last spring along Florida’s west coast,[44] and some local governments canceled beach activities as a result.
Appropriations for red tide mitigation are divided between the DEP and FWC. The FY 2024-25 budget cuts $15 million (a 42-percent decrease) from red tide mitigation over prior-year funding.[45] This decrease is steeper than either chamber originally proposed[46] and is ill-advised because red tide recurs in Florida annually and blooms severely impact people, wildlife, and tourism.[47]
Environmental Vetoes
The governor vetoed $216.7 million and $4 million from the Department of Environmental Protection (DEP) and the Fish and Wildlife Conservation Commission’s (FWC)’s FY 2024-25 budgets, respectively. This included some funds for local water projects and state parks.[48] Despite these vetoes, the FWC received a 13-percent increase above prior-year levels, while DEP faced a 19-percent cut. Investing fully in all these areas is key to protecting the state’s natural resources and unique ecosystem, mitigating the effects of climate change, and keeping the state’s drinking water safe and plentiful for the growing number of Florida residents and visitors.
Notes
[1] Phillip Stoddard, “As the Sea Rises, South Florida’s Low-Income Residents Face the Most Risk,” The Invading Sea (South Florida Sun Sentinel, Miami Herald, Palm Beach Post and WLRN Public Media collaboration), June 24, 2019, https://www.theinvadingsea.com/2018/06/24/as-the-sea-rises-south-floridas-low-income-residents-face-the-most-risk/.
[2] Legislative Budget Commission, “State of Florida Long-Range Financial Outlook Fiscal Years 2024-25 through 2026-27,” September 8, 2023, http://edr.state.fl.us/Content/long-range-financial-outlook/3-Year-Plan_Fall-2023_2025-2027.pdf.
[3] Florida Office of Economic and Demographic Research, “Economic Evaluation of Florida’s Investment in Beaches,” revised January 2015, http://edr.state.fl.us/Content/returnoninvestment/BeachReport.pdf.
[4] National Oceanographic and Atmospheric Administration, National Centers for Environmental Information, “Billion-Dollar Weather and Climate Disasters, Florida Summary,” updated July 9, 2024, https://www.ncei.noaa.gov/access/billions/state-summary/FL.
[5] National Oceanographic and Atmospheric Administration, National Centers for Environmental Information, “Billion-Dollar Weather and Climate Disasters, Florida Summary,” updated July 9, 2024, https://www.ncei.noaa.gov/access/billions/state-summary/FL.
[6] American Society of Civil Engineers, “2021 Infrastructure Report Card: A Comprehensive Assessment of Florida’s Infrastructure,” 2021, https://www.infrastructurereportcard.org/state-item/florida/.
[7] Florida Department of Transportation (FDOT), “Our mission,” n.d., https://www.fdot.gov/info/moredot/mvv.shtm.
[8] Florida Office of Economic and Demographic Research (EDR), “Florida Demographic Forecast: Conference Package - Tables,” July 9, 2024, http://edr.state.fl.us/Content/conferences/population/ConferenceResults_Tables.pdf.
[9] U.S. Census Bureau, “ Vehicle Inventory and Use Survey Public Use File (2021),” 2024, https://www.census.gov/programs-surveys/vius.html.
[10]Florida Office of Economic and Demographic Research (EDR), “Florida Economic Estimating Conference - Short-run Tables,” July 19, 2024, https://edr.state.fl.us/Content/conferences/fleconomic/floridaeconomicresultsshortrun.pdf.
[11] Chapter 2024-231, General Appropriations Act, Laws of Florida, line items 2017-2116, https://laws.flrules.org/files/Ch_2024-231.pdf.
[12] Florida Legislature, “Fiscal analysis in brief: 2024 legislative session,” August 2024, page 3, https://edr.state.fl.us/Content/revenues/reports/fiscal-analysis-in-brief/FiscalAnalysisinBrief2024.pdf.
[13] “Moving Florida Forward: Infrastructure Initiative,” Florida Department of Transportation, 2023, https://www.fdot.gov/movingfloridaforward/landing.
[14] In FY 2023-24, policymakers allocated $4 billion nonrecurring general revenue dollars for the Moving Florida Forward Plan. See Chapter 2023-239, General Appropriations Act, Laws of Florida, Section 215, https://laws.flrules.org/2023/239.
[15] “Five-Year Work Program,” Florida’s Turnpikes, no date, https://floridasturnpike.com/turnpike-projects/work-program/.
[16] “FDOT Transparency in Spending,” Florida Department of Transportation, n.d., https://www.fdot.gov/agencyresources/fdottransparencyinspending.shtm.
[17] “Five Year Work Program 07/01/2024,” Florida Department of Transportation, 2024, https://fdotewp1.dot.state.fl.us/FMSupportApps/WorkProgram/Support/Download.aspx.
[18] “Florida Department of Transportation: Long Range Program Plan for Fiscal Years 2024-2025 through 2028-2029,” Florida Fiscal Portal, September 29, 2023, page 10, http://floridafiscalportal.state.fl.us/Document.aspx?ID=24427&DocType=PDF.
[19] “Florida Department of Transportation: Long Range Program Plan for Fiscal Years 2024-2025 through 2028-2029,” Florida Fiscal Portal, September 29, 2023, page 20.
[20] Cathy Carter, ”Annual Highway Report Ranks Florida Roads as 41st Overall in U.S.,” December 27, 2021, WUSF Public Media, https://wusfnews.wusf.usf.edu/transportation/2021-12-27/annual-highway-report-ranks-florida-roads-as-41st-overall-in-u-s.
[21] Line IItems 2689-2725.
[22] Line Item 2725.
[23] L.O.F., Ch. 2024-231 p. 302 total less vetoes. Vetoes total $216.7 million, line items 1678, 1684A, 163 projects in 1732A, 1806A, 1818, 1827, 10 projects in 1830A, 1864.
[24] The prior-year GAA budgeted $3.86 billion and 3,117.5 positions for DEP (p. 300), including $85.4 million in Department vetoes. The 2024-25 post-veto GAA budgets $3.13 billion and 3,166.5 positions (p. 302), including $216.7 million in vetoes.
[25] 41 of DEP’s net positions are for the Water Resource Management (WRM) Program. The governor recommended 49 new WRM positions, eight more than the 2024-25 GAA appropriates. 41 of the governor’s requested positions were to “move forward with the transfer of the Onsite Sewage Program. This will fund the pilot program in NWFL and Marion County.” See http://focusonfloridasfuture.com/web%20forms/Budget/BudgetJustification.aspx?justID=265676&si=37350400&pc=1403000000&icd=3000410&title=Justification&ver=1. Thus, it is possible not all of these added WRM positions are going specifically to the Onsite Sewage Program, but it can be assumed that most are.
[26] Ray Levy Uyeda, “Advocates Say Caring for the Everglades Isn’t About Restoration, It’s About Respect,” January 9, 2023, Prism, https://prismreports.org/2023/01/09/caring-everglades-about-respect/.
[27] Line items 1712, 1715-1716, 1719, 1752, 2082, and Section 271. FY 2023-24 budgeted $643.5 million (Line items 1667; 1685-1686; 1691; 1725; 2062).
[28] Total CAMA funds on p. 300 of 2024-25 post-veto GAA minus total CAMA on p. 298 of 2023-24 post-veto GAA, less vetoes (line items 1811 and 1823C).
[29] Line item 1830A.
[30] L.O.F., Ch. 2020-150.
[31] Florida Department of Environmental Protection, “Water Quality Improvement Grant Program,” 2023, https://floridadep.gov/wra/wra/content/water-quality-improvement-grant-program.
[32] United States Environmental Protection Agency, “Nutrient Pollution: The Problem,” updated April 23, 2024, https://www.epa.gov/nutrientpollution/problem.
[33] L.O.F., Ch. 2024-231, line items 1720, 1722, 1726, 1729, 1741, Section 273; L.O.F., Ch. 2023-239, line items 1693, 1695, 1702, 1705, 1712.
[34] HB 5001 and SB 2500 (2024-25), line items 1720, 1722, 1726, 1729, 1741.
[35] Florida Department of Environmental Protection, “Florida Forever,” updated May 21, 2024, https://floridadep.gov/lands/environmental-services/content/florida-forever.
[36] Florida Division of Elections, “Water and Land Conservation—Dedicates funds to acquire and restore Florida conservation and recreation lands,” https://dos.elections.myflorida.com/initiatives/initdetail.asp?account=59894&seqnum=1.
[37] L.O.F., Ch. 2024-231, line items 1516, 1685, 1686, 1829.
[38] Florida Fish and Wildlife Commission, “FWC Overview,” updated February 2018, https://myfwc.com/about/overview/.
[39] L.O.F., Ch. 2024-231 p. 318 total less vetoes. Vetoes total $4.04 million, line items 1919A, 1919B, 1947, 1965A, 1970A, 2000, 2016D, 2016E; Ch. 2023-239 total p. 315 less vetoes. Vetoes totaled $5.3 million, line items 1888A, 1889A, 1919, 1975, 1987A.
[40] FWC, “2024 Session Report-Week 9,” March 8, 2024, https://myfwc.com/media/hezjogzc/week-9-budget-report.pdf.
[41] “Florida Wildlife Interactive Education (House Form 3585),” n.d., https://www.myfloridahouse.gov/api/document/apr?sessionid=103&id=2584.
[42] Line items 1962, 1964.
[43] Florida Fish and Wildlife Conservation Commission, “Red Tide FAQ,” n.d., https://myfwc.com/research/redtide/faq/.
[44] Orlando Mayorquin and Kimberly Miller, “Red Tide is Concentration on Florida’s Gulf Coast. See the Hot Spots,” March 27, 2023, USA Today, https://www.usatoday.com/story/news/nation/2023/03/07/red-tide-florida-map-2023/11414829002/.
[45] L.O.F., Ch. 2024-231, line items 1714, 1717, 1732A (vetoed), 2008, 2009; L.O.F., Ch. 2023-239, line items 1683, 1684, 1688, 1705A, 1984, 1985.
[46]Florida Policy Institute, “Florida Budget Proposals in Brief: Environment,” February 26, 2024, https://www.floridapolicy.org/posts/florida-budget-proposals-in-brief-environment.
[47] Sergio Alvarez et al., “Non-Linear Impacts of Harmful Algae Blooms On the Coastal Tourism Economy,” Journal of Environmental Management, Vol. 351, February 2024, https://doi.org/10.1016/j.jenvman.2023.119811.
[48] Executive Office of the Governor of Florida, “2024 Veto List,” June 2024, https://www.flgov.com/wp-content/uploads/2024/06/FY_2024-25_Veto_List.pdf.
