Policy analysis of the “Great Outdoors Initiative”

In late August, the Florida Department of Environmental Protection proposed the “Great Outdoors Initiative,” which aimed to “expand public access, increase outdoor activities and provide new lodging options.” The proposed plans included building golf courses, pickleball courts, disc golf courses, and hotels in the parks. Multiple golf courses were pitched for Jonathan Dickinson State Park in Martin County and 350-room hotels were proposed for Anastasia State Park in St. Augustine and TopSail Hill Preserve State Park in Santa Rosa Beach. As the debate rages in Florida, this document aims to provide policy options for the future of state parks in Florida.

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November 11, 2024

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Executive summary

In late August, the Florida Department of Environmental Protection proposed the “Great Outdoors Initiative,” which aimed to “expand public access, increase outdoor activities and provide new lodging options.” The proposed plans included building golf courses, pickleball courts, disc golf courses, and hotels in the parks. Multiple golf courses were pitched for Jonathan Dickinson State Park in Martin County and 350-room hotels were proposed for Anastasia State Park in St. Augustine and TopSail Hill Preserve State Park in Santa Rosa Beach. As the debate rages in Florida, this document aims to provide policy options for the future of state parks in Florida.

Overview

The Florida EPA’s decision to add tourist attractions to state parks had been leaked, creating debates on the usage of state parks.

Pointed Summary
  • The Great Outdoors Initiative would add hotels, pickleball courts, and other tourist attractions to increase tourism and income for the state
  • Critics of the proposal say it would endanger Florida wildlife and decrease the natural biodiversity 
Context 

On August 19, a press release leaked by the Florida Department of Environmental Protection (FDEP) proposed a 2024 “Great Outdoors Initiative.” It stated intentions to increase “campsites, cabins and lodges on park property,” and add “outdoor recreation opportunities” such as “pickleball, disc golf, golf and paddling” to Florida’s state parks. This follows a failed plan from 2011, also called the “Great Outdoors Initiative,” which would have similarly added public golf facilities to Florida parks, paid for by bonds. The 2011 bill was withdrawn after public outcry.

After revealing the 2024 plan, FDEP scrambled to control the story and next steps. James Gaddis, a cartographer with FDEP who had leaked the proposal, claimed that it “was going to be a complete bulldozing of [Florida’s natural] habitat. The secrecy was totally confusing and very frustrating.” He was soon fired and FDEP withdrew all remaining proposals at Governor Ron DeSantis’ request. In a statement, the FDEP spokeswoman Alexandra Kuchta stated, "We will shift to discussions with our local park managers and will revisit any park improvements, if needed, next year."

The initiative appears to not have gone through the necessary channels. For one, at least three members of the FDEP board called the Acquisition and Restoration Council, which intends to approve all proposals, have “gone on the record to say that they were not involved in the crafting of this plan, and don’t know who was.” Additionally, Governor Ron DeSantis claimed that he was completely uninvolved with the plan and had not approved it. In a press conference, he said, “It was not approved by me, I never saw that…A lot of that stuff was just half-baked and was not ready for prime time.”

Environmental advocates have spoken out on the secrecy surrounding this proposal, concerned that the lack of government transparency makes it hard for them to “engage in effective advocacy.”

Policy Problems

Stakeholders 

A.1 Who is affected by policy implementations regarding state parks?

With state parks serving as public spaces that are largely considered public land, there are many stakeholders affected by the policies implemented in these parks. Groups affected the most by these policies consist of visitors, as these policies often apply directly to them. These policies include requiring a fishing license to fish in the park and restricting off-road vehicle use. In regards to visitors involving the “Great Outdoor Initiative,” it was stated that the initiative would “expand public access,” as well as “increase outdoor activities” and “provide new lodging options across Florida’s state parks.” However, it quickly became apparent that the Florida public did not want these changes made, which led to many protests and petitions across Florida being carried out in order to prevent the initiative from being instated.State park employees, such as park rangers and directors of recreation, are also directly affected by these policies, as they must enforce them or will be impacted by them in their own positions. These types of policies include ensuring hunting and trapping restrictions and carrying out emergency operations according to management plans. State park employees could face various changes in their positions with the “Great Outdoors Initiative,” and find themselves having to work with outside businesses and other employees who work in the “hotels” and other new additions. Senator Jay Trumbull, a Panama City Republican remarked on this, “Our state parks should not be in the business of competing with private enterprise to provide lodging or other commercial amenities.”

State governments are also impacted, with the Florida state government being a stakeholder in the case of the “Great Outdoors Initiative.” In this initiative, the Florida Department of Environmental Protection holds responsibility,  as well as the DeSantis Administration. With the addition of large park lodges, pickleball courts, and disc golf courses proposed in the “Great Outdoors Initiative,” this brings businesses in as stakeholders as well, since businesses such as construction for building the lodging, would be involved in carrying out services on state park land. 

Businesses are often stakeholders in state parks, for concession services such as “merchandise sales,” “boat and land tours,” and “food and beverage services.” In the proposed “Great Outdoors Initiative,” these businesses would be expected to have further involvement on state park land, as there would be concessions services provided in the new lodging as well as the pickleball, golf, and disc golf courses. Other stakeholders affected in this case include scientists/researchers who may use these lands as areas of study. For example, Florida Scrub-Jay Nest monitoring for the Jay Watch in Jonathan Dickinson State Park has been ongoing since the early 2000s. With drastic changes to natural land in the state parks such as Jonathan Dickinson State park, these research projects may need to be adjusted as a result of newly instated structures and human activity. 

A.2 Who is making the decisions / controls power over the situation?

Under Florida statute, it is stated that, “It shall be the duty of the Division of Recreation and Parks of the Department of Environmental Protection to supervise, administer, regulate, and control the operation of all public parks…” Therefore, the Department of Recreation and Parks, as well as the Department of Environmental Protection are both partially responsible for the decision making in the case of the “Great Outdoors Initiative.”

State governments control and instate the policies that are put in place for state parks. The executive branch, legislative branch, and judicial branch make up the state government, and also includes local governments, which are made up of counties, and municipalities. Municipalities include cities, towns and bureaus, and usually usually take responsibility for parks and recreation services. In the case of the “Great Outdoors Initiative,” the DeSantis administration has the power in addition to the FDEP to make decisions in terms of setting forth legislature. After public backlash, Governor Ron DeSantis claimed he would listen to the public, as well as stating that the controversy was created intentionally by a “very left wing group.” He also stated that as the governor, these types of proposals in regards to state parks were “just not things that I've [he’s] been getting involved in”.

As it were, the public had not been given proper notice of the new initiative. In fact, past director of Florida’s state parks, Eric Draper, noted that the process seemed “deliberately intended to avoid public participation”. Draper stated that the process should have included the meeting of a “citizen advisory committee” which would consist of people who work at state parks as well as other state agencies before the FDEP even publicly  introduced the initiative, and should have held a public hearing afterwards. 

Instead, state officials were to hold meetings at each park that was a part of the proposal. In this case, state-wide public protest did result in the proposal being dropped. However, the method in which the proposal was introduced, and the impacts that the proposal would have on Florida’s natural lands holds concerns for future environmental policy in the state of Florida. 

  1. Current Legislation Regarding State parks and protections in Florida

Florida’s past legislation regarding state parks consists of similar proposals to the Great Outdoors Initiative. HB 1239 (2011) proposed the creation of the Jack Nicklaus Golf Trail of Florida, to be named after former professional golf player, Jack Nicklaus. This proposal consisted of establishing new golf trails around the state, including at least one public golf facility in each of the five park regions defined in s. 258.001. HB 1239 proposed these new golf courses to boost tourism to Florida, generate revenue, and therefore increase the state's economic impact.

Other proposals by the Florida Department of Environmental Protection (FDEP) focus on conservation within state parks. The FDEP launched the Springs and Restoration program in 2015, managed by the Division of Water Restoration Assistance (DWRA). This program aims to restore water quality in spring fed rivers, many of which reside in state parks. In 2014, the program received 50 million dollars annually from the Florida legislature. The program still continues today with notable improvements in water quality within Ichetucknee Springs State Park and Wakulla Springs State Park.

However, other proposals contradict the attempts at conservation. In 2015, FDEP considered a proposal to allow hunting within state parks. Introduced at a time of budget cuts for state parks, the proposal aimed to increase park visits and revenue by allowing visitors to participate in controlled hunts of wildlife. It also claimed to help control local wildlife populations, however, the proposal was heavily opposed by many environmentalist groups, and later scrapped altogether without developing into an official proposal.

Most of Florida’s past legislation regarding state parks follows a trend of environmental consciousness. Despite some efforts to increase revenue, the FDEP proposals aim to find a balance between profit and conservation of natural resources within state parks.

The Great Outdoors Initiative provides benefits in regards to Florida’s economy. The added recreational facilities and hotels would increase local tourism and generate more revenue. Improving the existing infrastructure of the state parks would also bring about more visits from Florida residents who are encouraged to go outside, promoting a healthier lifestyle for their residents.

However, this proposal would be counterintuitive to Florida’s previous conservation policies. The process of building new infrastructure within the parks may harm the local wildlife. Unless carefully managed, it may damage, or in some cases, demolish the natural habitat of these animals. The pollution and debris from construction would also pose an added threat.

An increase in tourism within the state parks would disturb wildlife as well. Not all animals residing in the parks may be compatible with anthropogenic factors, including the recreational activity so close to their habitats. The added foot traffic may decrease the amount of free space dedicated to wildlife, harming the natural ecosystems in the area. The FDEP could find a balance between profit and conservation of wildlife and natural resources, as they did with previous legislation.

  1. Problems of Current Legislation 

Critiques of the bill include that increased development may compromise the natural landscapes that these parks were established to protect.

State park aims to provide the public with both scenic and recreational access at little to no cost, as taxpayers fund the main maintenance fees. However, adding more recreational amenities will increase the park’s entrance fee or the reallocation of tax funding, particularly with these amenities that require high-cost construction and maintenance fees, such as golf and pickleball courts. These amenities will attract more visitors and generate additional revenue for the park to cooperate, allowing the park to operate. This shift may turn state parks to prioritize profit over conservation, potentially undermining its original mission of preserving natural spaces for public enjoyment and ecological protection.

A resort-style hotel is a luxury facility designed primarily for vacationers, typically near popular attractions. State parks intended to provide a natural, serene environment for visitors to enjoy Florida's landscapes, however, the introduction of such hotels would shift the focus toward commercialized tourism, changing the park's character. Though the addition of resort-style hotels may provide visitors with a more convenient way to enjoy the park's amenities and stay for extended periods, it can also lead to increased development, higher visitor numbers, and a more crowded atmosphere, potentially disrupting the proposed peaceful experience and harming the park’s ecosystems. While offering convenience for tourists, the hotel could undermine the park’s mission of conservation and accessibility for all.

The expected cost of constructing the hotel is substantial, including significant investments in infrastructure, luxury accommodations, and maintenance, with the intention that the land of the hotel will likely be sold to the highest bidder. These bidders would most likely be private companies as they have more funds than conservation organizations. Once private companies acquire the land, the possibilities of what can happen to those parks are limitless. As development increases and commercial interests grow, the focus may move toward revenue generation rather than preserving the tranquillity and ecological value that were originally intended to offer. This shift could undermine the parks' role as sanctuaries, causing less accessibility to the public and threatening their natural landscapes.

The Anastasia Island beach mouse, an endangered species, has a population of only a few hundred individuals remaining on Anastasia State Park island. The further development of this area heightens concerns from environmental groups and could put the species' survival at serious risk, potentially leading to its extinction. 

Hurricanes pose a significant threat to the Anastasia Island beach mouse by regularly impacting its coastal dune habitat. The intense winds and storm surges associated with these storms can cause severe damage to their already intense environment. 

The ongoing development along coastal beaches proves as a primary threat to the Anastasia Island beach mouse, which leads to the destruction and degradation of dune ecosystems. Such development reduces the available habitat for the beach mouse, fragments their environment, and isolates populations, increasing their vulnerability. The proposed construction of a new park lodge with a capacity of up to 350 rooms near beach access has the potential to significantly heighten traffic in the area, further intensifying these threats and posing a serious risk to the survival of the Anastasia Island beach mouse. As it increases human activity and traffic on the dunes, this proposed lodge may further intensify this issue by damaging the vegetation that the beach mice rely on for food and shelter. These threats affected not only the endangered mouse, but also other species living in the park including heightened predation from free-ranging cats, foxes, raccoons, and coyotes.

According to The Architect's Newspaper, Florida already has more than 1250 golf courses and 770 pickleball courts. This extensive infrastructure provides more than enough golf and pickleball venues to meet the needs of both residents and tourists. This raises concerns about whether additional facilities are necessary for protected areas, as constructing more courts may result in both economic and environmental challenges.

C.1 Economic challenge 

Expanding recreational facilities in state parks presents both potential benefits and drawbacks. On one hand, the construction of new golf courses, pickleball courts, and resort-style accommodations can create jobs, not only during the construction phase but also in ongoing operations and maintenance. This could lead to a rise in tourism, generating additional revenue for the local economy through increased demand for services such as hospitality, retail, and dining.

However, the long-term economic viability of expanding these amenities raises concerns. With Florida already having over 1,250 golf courses and 770 pickleball courts, the state has reached market saturation for such recreational infrastructure. This creates a risk of diminishing returns, where the costs of construction, ongoing maintenance, and operational expenses could outweigh any potential revenue generated from tourism or entrance fees. Overbuilding may lead to underutilized facilities, draining public funds that could be better allocated for conservation, infrastructure improvement, or other community needs. The redirection of taxpayer funds to finance these developments may arouse public opposition, especially when accounting for the opportunity cost involved. Allocating resources toward new recreational facilities could detract from essential environmental conservation initiatives that are vital for preserving the state’s ecological integrity. Therefore, the economic justification for further construction in areas that are already sufficiently equipped must be carefully examined to prevent inefficient use of capital and potential long-term financial burdens towards park management.

C.2 Environmental challenge 

The construction of new facilities and the increase in visitor traffic could significantly raise pollution levels in these natural areas. Water contamination from runoff may affect aquatic ecosystems and local water sources while the degradation of air quality can lead to broader environmental health concerns. The addition of amenities such as golf courses and resort hotels would also lead to greater consumption of water and energy, putting additional strain on the environment. These developments can disrupt local ecosystems, potentially leading to habitat degradation and a decline in native species. Though the economic benefits of these changes are clear, it is crucial to carefully consider their environmental impacts to ensure that Florida's natural areas remain protected.

Policy Options

  1.  Balanced Development and Preservation Approach

One of the probable policy options includes balancing the development of recreational amenities with the preservation of natural habitats. It would focus on the setting up of low-impact infrastructures such as hiking trails and educational centers, while most high-impact projects involving hotels or even golf courses would be avoided. The policy will ensure that the public engages in the outdoors while affecting minimal disturbance on the ecology through bird-watching, kayaking, and guided nature tours. This entails a very cautious approach to development, using strong environmental impact assessments before any development is done, and seeking partnerships with other environmental organizations that ensure new projects do not conflict with conservation goals. This balancing would occur for a few reasons: the answer to increased public demand for access to natural areas, while retaining ecological and cultural values of state parks. It may also soften the protests from conservationists and the general public concerned with overdevelopment in protected areas. In doing so, the state adds value for the eco-tourist and the outdoor enthusiast alike and creates a positive economic impact with no heavy commercial development. Long-term benefits of this option would include sustainable tourism and environmental stewardship, making Florida a leader in conservation-conscious recreational planning.

B. Public-Private Partnerships for Sustainable Development

This policy option utilizes public-private partnerships to develop sustainable recreational amenities. In this model, private companies could invest in the creation and management of such facilities as eco-lodges, adventure courses, or sustainable campsites, within strict environmental guidelines set by the Florida Department of Environmental Protection. That is, the "how" involves creating a regulatory framework that attracts private investment in state parks, ensuring environmental protection and community involvement. This includes special tax credits for green building enterprises or fines and other punitive measures against companies that fail to attend to environmental standards. The basis for the policy aims for additional resources to be discovered without reliance solely on public financing while the additional facilities built also can accommodate the targeted pools of client groups including families, outdoor sports enthusiasts, and retirees-through additions without losing the natural beauty of such parks. Also, PPPs can help to bring in innovative, sustainable technologies in park infrastructure such as renewable energy sources and water conservation systems. This would result in a model of development of state parks that marries economic viability with environmental sustainability.

C. Community-Driven Park Enhancement Programs 

The community-driven approach would involve engaging the local residents and park goers in the decision-making process for whatever new developments. This could be achieved through town hall meetings, public surveys, and in cooperation with local environmental and recreational groups. The "how" would include a formal advisory committee composed of such groups that would review and comment on proposed developments. The committee could also provide oversight for volunteer programs related to park maintenance and educational programs, building a stewardship sense in the general public. This policy choice is based on the premise that the local communities are in a peculiar position to understand and support the needs of their parks. By directly engaging them in planning and development, the state can find that new amenities reflect the values and priorities of those who use the parks most. This would also serve to build up public confidence and could diminish, if not eliminate, so much opposition to new projects because the process became more open and participatory in nature. In addition, the input of the community can instigate creative proposals for improving the parks that do not appear from the top-down planning process.

D. Improved Environmental Education and Interpretation Efforts

Among the essential aspects of future policy for state parks is the enhancement of environmental education and interpretation programs. This would include expanding the scope of educational programs that should be  offered at the park to include interactive exhibits, guided tours, and hands-on workshops on Florida's unique ecosystems and conservation challenges. The "how" would be through partnering with educational institutions and non-profits in developing curriculum and training for park rangers and volunteers to be able to communicate these topics to visitors. This is because this is a choice between educating park visitors on issues about the environment, enabling them to develop a deeper appreciation for conservation, and developing behaviors that do less damage to the parks. Such programs could turn parks into living classrooms where knowledge about local wildlife, plant species, and ecological processes equips and inspires visitors to become advocates as well as recreationists. Moreover, such educational programs can serve as an added allure to schools and universities that would look to Florida's state parks as base points for experiential learning.

Conclusions

The protection of state parks is vital to ensuring states can conserve natural resources, species of plants, and animals to make sure the state’s environment can thrive. With the rise of climate change and deforestation, it is vital to ensure our state parks are protected.  

Acknowledgment

The Institute for Youth in Policy wishes to acknowledge Eli Solomon, Anagha Nagesh, Nolan Ezzet, and other contributors for developing and maintaining the Policy Department within the Institute.

References

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“Anastasia Island Beach Mouse | FWC.” Florida Fish and Wildlife Conservation Commission, https://myfwc.com/wildlifehabitats/profiles/mammals/land/anastasia-island-beach-mouse/.

Policy Brief Authors

Natalie Bookout

2024 Winter Fellow

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Anoushka Swaminathan

YIP Fellow

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