i 

Saint Andrew Bay 

A look into one of 

Florida’s most diverse 

watersheds 

A Comprehensive report by Pamela Brown 

University of Florida’s Soil and Water Department 

November 2009 

Saint Andrew Bay Watershed: A look into one of Florida’s most diverse 

watersheds 

by 

Pamela Brown 

A major paper submitted in partial fulfillment of 

the requirements for the degree of 

Master of Science with a concentration in 

Environmental Science from the Soil and Water 

Department 

University of Florida 

2009 

Approved by ___________________________________________________ 

Chairperson of Supervisory Committee 

__________________________________________________ 

__________________________________________________ 

__________________________________________________ 

Program Authorized 

to Offer Degree _________________________________________________ 

Date __________________________________________________________ 

UNIVERSITY OF FLORIDA 

ABSTRACT 

Saint Andrew Bay Watershed: A look into one of Florida’s most diverse 

watersheds 

by Pamela Brown 

Chairperson of the Supervisory Committee: Professor Alan Wright 

 Department of Soil 

 and Water Science 

A major paper presented on the Saint Andrew Bay watershed from its 

geographical characteristics and historical significance to its major environmental 

concerns including conservation approaches, ecological restoration, and 

sustainable development. 

TABLE OF CONTENTS 

List of Figures ....................................................................................................................iii 

List of Tables.......................................................................................................................iii 

Preface ...................................................................................................................................v 

Introduction..........................................................................................................................1 

Chapter I: The Big Picture: Geographical Characteristics.........................................5 

Panhandle of Florida: Geography and Climate 

Chapter II: Significance of the Watershed......................................................................9 

Saint Andrew Bay Watershed ....................................................................................9 

Econfina Creek .................................................................................................. 13 

Deer Point Lake ................................................................................................ 14 

Saint Andrew Bay Estuary ............................................................................... 15 

Chapter III: Land and Species Diversity...................................................................... 21 

Land Use and Coverage ........................................................................................... 21 

Habitat Communities................................................................................................ 23 

Chapter IV: Human Influence....................................................................................... 39 

Early History ............................................................................................................. 39 

Early Settlers on the Bay ......................................................................................... 43 

City Growth Around the Bay ................................................................................. 46 

S.S. Tarpon ................................................................................................................ 50 

Millville ....................................................................................................................... 51 

Panama City Expansion .......................................................................................... 55 

Chapter V: Environmental Concerns and Solutions ................................................. 61 

Land use –Past, Present, and Future...................................................................... 61 

 Erosion................................................................................................................ 66 

Water Resources –Past, Present, and Future ...................................................... 68 

Non Point Source Discharge ........................................................................... 69 

Wastewater........................................................................................................... 70 

Point Source Discharge..................................................................................... 71 

Air Quality .......................................................................................................... 72 

Landfill.................................................................................................................. 73 

Power Plant ......................................................................................................... 73 

Conclusion ......................................................................................................................... 71 

Bibliography....................................................................................................................... 75 

i 
Saint Andrew Bay 

LIST OF FIGURES 

Number Page 

1. Major Identified Watersheds in Florida ........................................................... 3 

2. Generalized Drawing of Topography & Elevations in the Panhandle ..... 7 

3. Map of Saint Andrew Bay Watershed .......................................................... 12 

4. Photograph of Econfina Creek Near Pitt Springs ...................................... 14 

5. Aerial Photograph of Steephead Ravines along Econfina Creek ............. 24 

6. Typical Habitat Communities in Saint Andrew Bay Watershed................ 28 

7. Robert O’Neal’s Parcel Map of Saint Andrew Bay Area ............................ 49 

8. Aerial Image of Millville .................................................................................... 54 

9. Closer view of Saint Andrew Bay on Williams 1827 Map.......................... 66 

10. Williams 1827 Map of Florida.......................................................................... 67 

LIST OF TABLES 

Number Page 

1. Generalized Land Use and Cover, Saint Andrew Bay Watershed ............ 22 

2. Number of Species Reported in Saint Andrew Bay Estuary...................... 35 

3. Cities Incorporated in Bay County Area........................................................ 37 

4. Air Pollutant Sources for the Ecosystem....................................................... 72 

ii 
ACKNOWLEDGMENTS 

The author wishes to express sincere appreciation to Professors Alan Wright, 

Mark Clark, and James Jawitz for their assistance in the preparation of this paper. 

In addition, I would like to thank Professor James Jawitz for the format for this 

paper. I would like to give a special thanks to Northwest Florida Water 

Management District and Bay Environmental Study Team (BEST) staff and 

volunteers whose familiarity with the needs, conflicts, and solutions for 

sustainable development of Saint Andrew Bay watershed was crucial in 

developing the spatial maps and writing this report. Finally thanks to my family 

for standing behind me and encouraging my personal growth and development. 

iii 
Saint Andrew Bay 

PREFACE 

After moving to Panama City Beach, Florida in 2002, I fell in love with the 

natural beauty of the bay and the other coastal waters. Immediately, I set out to 

learn as much as I could about the local ecosystems, habitats, species, and the rich 

history of the area. I joined a local group effort to clean trash from the beaches 

and rivers banks. As I helped in these efforts, it brought back the memories of 

my youth and how determined I was to do my part in ridding our country of 

pollution after watching the Crying Indian public service advertisement (PSA.) 

Each weekend my family went out, collected trash along the roads, and recycled 

the hundred of bottles that we found weekly. The Crying Indian PSA that 

affected me the most was when the Crying Indian was canoeing through trash in 

the water and walking among the trash along the banks. Today, I am still doing 

my part to rid the country of pollution and protect our waters and I still feel as 

strong about the subject as I did as a youth. Unfortunately, most Americans have 

missed that message or simply do not care enough to do their part. Most 

Americans would rather blame businesses, industry, and government rather than 

face the truth that consumers’ purchases drive the pollution. If we buy only the 

products that are sustainable and recyclable, then the businesses that pollute and 

waste resources would no longer have the consumers’ money to support their 

destructive efforts. I believe it is time for another PSA that delivers as strong of a 

message as the Crying Indian of the 1970s to break the unemotional connection 

humans have towards our limited resources. 

 In the process of learning all about the area, I found out that Saint Andrew Bay 

Watershed was not only uniquely diverse, but a very fragile ecosystem. The 

watershed needs our protection from over utilization by many of the municipals 

iv 
v 

and industries in the watershed. Further research revealed just how delicate a 

balance the Saint Andrew Bay Watershed Basin has with the communities around 

it. 

This report will focus on the Saint Andrew Bay Watershed, its resources, and its 

issues. Moreover, this report will share future plans for protecting this precious 

and diverse ecosystem from our human actions. 

A Gulf Fritillary resting on a dune flower in Panama City 

Beach during their fall migration. Gulf Fritillaries are common 

butterflies in the area; however during the spring and fall 

migration their number increase approximately ten-fold. 

Photographed by Erika Brown. 
Saint Andrew Bay 

vi 

A couple taking a leisurely walk along the beach in Panama City Beach, Florida. 

Photographed by Pamela Brown. 
Saint Andrew Bay 

INTRODUCTION 

Even though more than 18,807,219 people live in Florida, how many people know that Florida 

has 7,800 lakes, 1,700 rivers and streams totaling 11,000 miles, 600 clearwater springs with 

27 listed as first magnitude springs, and 2,276 miles of tidal shoreline (Schenker 2009 and 

FQF 2009.)

Florida is known for its tropical landscapes, cool breezes, palm trees, and 

beautiful endless beaches. However, there is so much more to Florida than that. 

Florida is mainly a peninsula with the Atlantic Ocean on the east coast and the 

Gulf of Mexico on the west coast. Florida is divided into four geographic land 

areas known as ecoregions: East Gulf Coastal Plain, Florida Peninsula, South 

Atlantic Coastal Plain, and Tropical Florida. The East Gulf Coastal Plain is the 

southwest portion of the peninsula and the northwest portion of the panhandle 

of Florida. It is characterized by flat to rolling landscapes with many rivers and 

streams. In addition, this area embraces the highest biodiversity of flora and 

fauna and it is home to more native species than any other analogous region in 

the United States (NWFLEC 2009.) The Florida Peninsula is the east portion of 

Florida and it is characterized by low and level landscapes. The Atlantic Coastal 

Plain is a land area in the northwest corner of the peninsula of Florida, and it is 

characterized by low rolling hills of red clay with hardwood and softwood forests 

and many lakes. The Tropical Florida is the southernmost portion of Florida 

where there is a tropical climate. The rest of Florida, the north and central 

portion, has a subtropical climate (Wikipedia 2009.) 

Florida’s overall size is 58,650 square miles with 54,252 square miles of land and 

4,398 square miles of water (FQF 2009.) Surprisingly, Florida still has close to 

1 
Introduction 

50,000 square miles of natural areas. Natural areas defined as ecosystems, which 

are forms of flatwoods, forests, marshes, prairies, swamps, and waterways, that 

occur in Florida with minimal human disturbances (Whitney et al 2004.) There 

are six land categories found in Florida: interior uplands, interior wetlands, 

interior waters, coastal uplands, coastal wetlands, and coastal waters. In addition, 

Florida has sixty-nine types of ecosystems. The diversity of Florida is due to its 

location in the southeastern region of the United States surrounded by water, and 

it’s subtropical to tropical climate. 

In addition to Florida’s many lakes, rivers, streams, clearwater springs, and many 

miles of shoreline (Schenker 2009 and FQF 2009), there are fifty-two large 

watershed basins spreading across twenty-nine watershed groups in Florida as 

seen in Figure 1 (FDEP 2009.) Watersheds are geographic areas where water 

flows across the landscape and drains into one common body of water. Water in 

a watershed basin comes from rainfall, stormwater run-off, groundwater 

discharge, and springwater discharge (FDEP 2009.) Watersheds are important in 

the development of our societies and providing water to fulfill the needs of the 

people who settle in the areas around them. Furthermore, issues of water 

resources in Florida have become important as their values to food security, 

economics, and social development are realized. 

This report looks at the Saint Andrew Bay Watershed Basin and describes its 

geographical characteristics, its historical significance, and its influence on human 

history. Moreover, it will dive into the environmental issues of the watershed and 

discuss the conservation approaches and the ecological restorations that have 

occurred. Finally, we will look into the future plans for Saint Andrew Bay 

Watershed Basin and discuss sustainable solutions that are currently being 

investigated. 

2 
Saint Andrew Bay 

3 

Figure 1. Major Identified Watersheds in Florida (FDEP 2009
4 

A Photo of the upper view of an old Cypress tree and a photo of 

the water next to the old Cypress tree. Both photos show the 

biological diversity in tree species, and ground cover available in this 

ecosystem. Photographed by Pamela Brown. 
Saint Andrew Bay 

Chapter 1 

THE BIG PICTURE: GEOGRAPHICAL 

CHARACTERISTICS 

The Florida Panhandle has rich biodiversity with 57 distinct natural communities and it is 

home to more than 788 native vertebrates, including 131 amphibian and reptiles, more than 

400 birds, more than 200 fish (freshwater and estuarine), and 57 mammals (NWFLEC 

2009.) 

PANHANDLE OF FLORIDA: GEOGRAPHY AND CLIMATE 

Saint Andrew Bay Watershed basin is in the northwest portion of Florida known 

as the Panhandle of Florida. The Panhandle is part of the Florida plateau 

extension of the North American continent. Due to sea level fluctuation caused 

by the major climatic changes like the Ice Age and glacial melting, parts of the 

Panhandle of Florida were under water while higher elevations were islands. This 

fluctuation continued until the climate stabilized and the sea level declined 

enough for one permanent land mass to emerge during the Miocene epoch (23.3 

to 5.3 million years ago.) The basement rock in the Panhandle is igneous rock 

and dates back to the Precambrian era. This means the youngest rock would be 

at least 542 million years old. The surface is twenty or more feet of Pliocene to 

Holocene siliciclastic sediment, that deposited during the sea level fluctuation 

when the area was emerging from under the sea (USGS 2009.) Siliciclastic rocks 

are noncarbonate sedimentary rocks of pre-existing rock fragments formed by 

inorganic processes that form quartz or other silicate minerals (Wikipedia 2009.) 

 

5 
Geographical Characteristics 

The Panhandle divides into three physiographic regions based on the origin and 

evolution of the landforms: Northern Highlands, Marianna Lowlands, and Gulf 

Coastal Lowlands. The Northern Highlands is a region of land where the highest 

elevation occurs including the town of Florala at 345 feet above sea level. The 

Marianna Lowlands is a region of land where there is karst topography 

sandwiched between the valleys of the Apalachicola, Chattahoochee, Chipola, and 

Choctawhatchee rivers. The karsts topography is a closed surface system with a 

water drainage basin over sandy soil. This region is part of the larger Dougherty 

Karst Plains and it has the highest number of dry caves in Florida with more than 

one hundred forty found. The Gulf Coastal Lowlands is the region of land 

formed beside the Gulf of Mexico where the lowest elevations occur. Typically, 

this region has poorly drained landscapes with numerous wetland areas. In 

addition, it contains barrier islands, coastal ridges, estuaries, lagoons, and “relict 

spits and bars with intervening coast-parallel valleys” (NWFLEC 2009.) The 

Gulf Coastal Lowlands region is a narrow strip up to 75 miles wide with its inland 

limits denoted by changes in topography including highlands, ridges, and scarps 

(Coultas and Hsieh, 1997.) 

The climate in the Panhandle of Florida is subtropical due to the stabilizing 

effects of the Gulf of Mexico. The summers are humid and warm while the 

winters are mild to cool. As an average, the climate is mild with an average 

temperature of 68 degrees Fahrenheit; however, the day-to-day climate varies 

immensely. The Panhandle has stronger seasonal fluctuations and more rain than 

the Florida peninsula. The number of cold fronts that pass through the area 

from Pacific and Arctic origins causes the fluctuations. These cold fronts collide 

with the warmer air from the Gulf of Mexico and produce winter rain showers 

from December to April followed by the summer afternoon thunderstorms from 

6 
Saint Andrew Bay 

June to August. The summer thunderstorms and showers, caused by the 

collision of the moist air from both the Atlantic Ocean and the Gulf of Mexico, 

usually occur in the afternoon. The copious amounts of rain saturate the many 

creeks, lakes, springs, and wetlands. The average rainfall is 55”-60” per year. 

This plentiful supply of water in the hydrology cycle keeps temperature variations 

to a minimal. Periodically, tropical storms and hurricanes move through the area. 

On average, Florida experiences 0.76 tropical storms and hurricanes every 1.3 

years (NOAA 2002.) The last hurricane to affect the Panhandle was Hurricane 

Katrina in August of 2005. Hurricane Katrina, classified as the sixth strongest 

recorded storm in the Atlantic region to hit the United States, cost over $100 

billion in damages (Wikipedia 2009.) 

Figure 2. Generalized Drawing of Topography & Elevations in the 

Panhandle

7 
8 

Three photographs showing the 

diversity of the communities in the 

Saint Andrew Bay Watershed. 

Photographs: Coastal Dunes (top 

left), Wetlands (bottom left), Coastal 

Grasslands affected by tide (right). 

Photographed by Pamela Brown. 
Saint Andrew Bay 

Chapter 2 

SIGNIFICANCE OF THE WATERSHED 

Northwest Florida has five of the 27 first magnitude springs found in Florida including Gainer 

Springs, which discharges 114 million gallons per day of clear water into Saint Andrew Bay 

Watershed basin. 

SAINT ANDREW BAY WATERSHED BASIN 

Saint Andrew Bay Watershed (SABW) basin located midway in the northwest 

portion of Florida covers two of the three physiographic regions found in the 

Panhandle: the Marianna Lowlands and the Gulf Coastal Lowlands (Crowe et al. 

2008; Richards 1997.) The northern and central part of the watershed is in the 

Marianna Lowlands region while the southern part of the watershed is in the Gulf 

Coastal Lowlands region. The Marianna Lowlands region divides into three 

subregions in the SABW: the northern part converses across the Sand Hills, the 

central part forms in the Sand Hill Lakes and Sinks characterized by the many 

sinkholes and sinkhole lakes, and the southern part covers the Flatwoods Forest. 

The parent materials of the soils in the SABW consist of sand and clay particles 

that were transported by floodwaters from the Appalachian Mountains and 

deposited by seawaters as the ocean rose and fell during the Pleistocene Epoch. 

Sediments from the seas and uplands were deposited over the marine terraces. 

Nearly the entire watershed is underlain with Tampa formation overlying the 

Suwannee Limestone. The depth to the limestone can be over 200 feet in the 

southern part of the watershed. Many differences among the soils appear to 

9 
Significance of the Watershed 

reflect the differences in parent materials and the time and interaction of the 

parent material with other geological factors. 

The parent materials of the Marianna Lowlands are some of the oldest in Florida 

and have only been exposed recently in the last million years or so by erosion 

(Whitney et al 2004.) The Sand Hills are remnants of ancient pure white sand 

islands and dunes developed near primordial coastlines when the sea level was 

much higher. The Karst region is areas dominated by the underlying limestone 

reacting with water. The topography of this region consists of bluffs, depression 

marshes and ponds, caves, karst lakes, sinks, and tunnels. Bluffs are outcrops of 

limestone where the sand has been removed by natural processes. Depression 

marshes and ponds occur where the land subsides from erosion of the underlying 

materials including the limestone and little natural drainage occurs. Caves and 

tunnels form when pockets in the limestone remain after water spreading out 

through cracks and fissures dissolves the limestone away. Caves can be terrestrial 

(dry) or aquatic (underwater), and may interconnect with other caves through 

tunnels. Sinks form when the overlying sand hills cause the cave ceiling to 

collapse forming a deep conical hole. Depending on the water tables, the sink 

could be wet, dry, or some where in between. Wet sinks may connect to the 

underground aquifer and may even have springs flowing into them. Karst lakes 

occur when wet sinks fill with debris and disconnect from the aquifer. 

The Sand Hills subregion, recognized by the longleaf pines and turkey oaks 

growing in thick residual sand soils, formed over higher marine terraces, while the 

Sand Hill Lakes and Sinks subregion, found west of the middle portion of 

Econfina Creek, formed when overlying sand hills collapsed over dissolved 

underlying limestone from the large amount of internally drained groundwater. 

This groundwater drains without showing any evidence of surface water vents. 

The southern part of he Sand Hills region covers the rolling and flat land situated 

10 
Saint Andrew Bay 

on low terraces of elevation less than seventy feet known as the Flatwoods Forest 

subregion. (Richards 1997.) The Sand Hills and Sand Hill Lakes and Sinks 

subregions have excessively well drained soils, while the Flatwoods Forest have 

moderately well drained to poorly drained soils with high water tables (Richards 

1997.) 

The Gulf Coastal Lowlands region in SABW is a narrow strip 25 miles wide and 

consists of beaches, estuaries, swamps, and tidal marshes. The ecosystems in this 

area are heavily influenced by salt spray, wave energy, and tidal patterns. The 

level and speed of erosion is based on the energy from the waves. Shorelines 

with high-energy waves will have steep slopes caused as the water carries away the 

fine sediments. In contrast, shorelines with low energy waves will have placid 

slopes embracing tidal marshes and swamps. 

 In regards to my home in the Gulf Coastal Lowlands region in Panama City 

Beach, the Soil Survey of Bay County map indicated Resota fine sand and 

Mandarin sand for my area with Kureb sand further south near the coast (Soil 

Conservation Service 1984.) However, when I surveyed the soil in 2008, I found 

layers strongly representing Kureb sand. In addition, recent geothermal well 

drilling at my house revealed pure white beach sand as deep as 250 feet. 

As seen in Figure 3, the SABW basin extends across 749,663 acres of land 

encompassing six counties (Crowe et al. 2008; NWFWMD 2001.) It begins in 

the southwestern portion of Jackson County at the headwaters of the Econfina 

Creek (Richards 1997), and its range extends southwest through Bay, 

Washington, and Walton counties and southeast though Calhoun, and Gulf 

counties. The majority of the watershed, at sixty-one percent, crosses Bay 

County while the other thirty-nine percent is divided among Calhoun, Gulf, 

11 
Significance of the Watershed 

12 

Figure 3. Map of Saint Andrew Bay Watershed (NWFWMD 2009.) 
Saint Andrew Bay 

Jackson, Walton, and Washington counties with 4%, 20%, 2%, 4%, and 9% 

respectively (Crowe et al. 2008; NWFWMD 2001.) All but one municipality 

located within the watershed are located in Bay County. Municipalities located 

within the SABW system are Callaway, Cedar Grove, Lynn Haven, Panama City 

(largest), Panama City Beach, Parker, and Springfield in Bay County, and Mexico 

Beach in Gulf County. 

The SABW basin incorporates the watersheds of the Bayou George, Bear Creek, 

Burntmill Creek, Cedar Creek, Crooked Creek, Econfina Creek, Sandy Creek, 

Wetappo Creek, and their tributaries; Deer Point Lake; Lake Powell; Saint 

Andrew Bay Estuary system; and Saint Joseph Bay (NWFWMD 2001.) The 

major watersheds contributing to the system are Econfina Creek, Bear Creek, 

Deer Point Lake, and Saint Andrew Bay Estuary system (Crowe et al. 2008.) 

ECONFINA CREEK 

Econfina Creek is the largest creek in the SABW basin and the majority of the 

creek lies in the Sand Hills and Sand Hill Lakes subregions. It begins with its 

headwater in the southwestern portion of Jackson County and flows southwest 

through the northern tip of Bay County. Then it heads south through lower 

Washington county and crosses the county line back into Bay County before it 

discharges into the Deer Point Lake Reservoir located in the center of Bay 

County just eight miles north of Panama City. Econfina Creek has an average 

base flow rate, which is high for Florida as well as the Panhandle. Its base flow 

rate is 355 million gallons per day or 549 cubic feet per second. The base flow 

rate results from the high drainage of water in the deep sand hills that traverses 

internally through the porous limestone known as karst topography and 

discharges endlessly into the creek though clearwater springs flowing through the 

Floridan aquifer as seen in Figure 4. The result of the high groundwater flow is a 

13 
Significance of the Watershed 

14 

highly effective recharge area. Unfortunately, this recharge area does not filter 

groundwater for a long enough period of time to remove all the contaminates 

from entering the system from land use. Therefore, it is necessary to acquire 

surrounding recharge areas around the springs and lakes, in order to protect and 

conserve our freshwater resource supplies. 

Figure 4. Photograph of Econfina Creek and Pitts Springs provided 

by Alice Guay with BEST.

Studies have shown there are 11 spring groups with more than 39 vents, 

including Gainer Spring, feeding Econfina Creek within a 4.75-mile segment 

along the middle portion of the creek. Gainer Spring is one of 27 first magnitude 

springs listed in Florida and one of five first magnitude springs listed in the 

Panhandle. First magnitude springs discharge more than 64.6 million gallons per 

day or more than 100 cubic feet per second (Richards 1997.) Gainer Spring 

discharges 114 million gallons per day, which is one-third of the Econfina Creek’s 

total base flow rate. Another one-third comes from the other 10 spring groups. 
Saint Andrew Bay 

Another important freshwater source is Bear Creek, the second largest creek in 

the SABW basin, which lies partially within the Sand Hills and Flatwoods Forest 

subregions. Its headwater begins in the northeastern portion of the SABW basin 

in Bay County and flows eighteen miles south to southwest until it discharges 

into the Deer Point Lake Reservoir (Crowe et al. 2008.) Bear Creek displays a 

slower base flow rate that is typical for creeks in the Panhandle. Its average base 

flow rate is 226 million gallons per day or 350 cubic feet per second (Richards 

1997.) The base flow comes from groundwater moving through the soil from the 

higher elevation of the Sand Hills to the lower elevation of the Flatwoods Forest. 

DEER POINT LAKE 

Deer Point Lake (DPL), situated just eight miles north of Panama City, covers 

4,572 acres. It was originally part of the upper North Bay, which developed over 

a succession of marine terraces and wave cut bluffs during the fluctuation of sea 

level (Richards 1997.) The majority of the DPL basin lies in the Marianna 

Lowlands subregion while the southern part lies in the Gulf Coastal Lowlands 

subregion. It is a man-made freshwater reservoir overlaying moderately well 

drained to excessively well drained soil (NWFWMD 2008.) 

Deer Point Lake basin receives on average 600 million gallons per day of 

freshwater from Bayou George, Bear Creek, Cedar Creek, Econfina Creek, and 

their tributaries. After the completion of the dam in 1961, the original brackish 

waters of North Bay trapped behind the dam flushed out over the fixed spillway 

into North Bay. Currently an average of 519 million gallons per day of freshwater 

spills over into North Bay (Ogren and Brusher 1977 sited by NWFWMD 2008.) 

The reservoir can completely recycle in just 21 days (NWFWMD 2008.) 

Land Use in DPL basin is dominated by upland forest and wetlands (74%) with 

limited residential (4%) and recreational (5.7%) around the lake and some 

15 
Significance of the Watershed 

agriculture (10%) areas just northeast of the city of Fountain. The water quality is 

classified as potable (Class I) water supplies from source to dam (SWQS 2009), 

and is protected by the Northwest Florida Water Management District 

(NWFWMD.) The water of Deer Point Lake, developed for commercial and 

potable water, currently is shared equally between the two uses (Richards 1997.) 

As a potable water source, DPL has become the primary drinking water source 

for most municipalities in Bay County (NWFWMD 2001.) The majority of the 

freshwater in the Saint Andrew Bay Watershed basin comes from streamflow that 

traverses through Deer Point Lake basin via Econfina Creek and Bear Creek with 

fifty-eight percent and thirty-six percent, respectively (Richards 1997.) 

SAINT ANDREW BAY ESTUARY 

 Saint Andrew Bay Estuary (SABE) system, adjacent to Panama City, covers 

69,190 acres and includes East Bay, North Bay, Saint Andrew Bay, and West Bay. 

SABE lies in the Gulf Coastal Lowlands subregion and is a unique estuary system 

with low freshwater inputs from creeks and DPL, and two passes that provide 

surface water connection to the Gulf of Mexico (NWFWMD 2008.) SABE 

inflows of 818 million gallons per day are very low compared to Apalachicola 

Bay, which has 12,669 million gallons per day draining from a 12,800,058-acre 

watershed (Crowe et al. 2008 and USGS 2009.) The SABE, defined to be a 

“relatively deep clearwater high salinity system” (Keppner and Keppner 2008 

sited by Crowe et al. 2008), incorporates the interconnected waterbodies and 

surface water basins of Deer Point Lake, East Bay, Gulf of Mexico, North Bay, 

Saint Andrew Bay, Saint Joseph Bay, and West Bay (NWFWMD 2001.) The 

water quality is classified as “recreation, propagation, and maintenance of a 

healthy, well-balanced population of fish and wildlife” (Class III) for all areas of 

SABE with the exception of most areas of North Bay (NWFWMD 2009.) This 

is due to the SABE systems low freshwater inflows and high salinity. Moreover, 

16 
Saint Andrew Bay 

SABE is not considered a true estuary and the only true estuary in the SABE 

system is in North Bay directly south of the DPL dam (Ogren and Brusher 1977 

sited by NFMWD 2008) and worth mentioning in more detail later.. 

The SABE connects to the Gulf of Mexico via the eastern pass (East Pass) and 

western pass (West Pass) around Shell Island. The East Pass was the original 

natural passageway into SABE and provided the majority of the water exchange 

between the Gulf of Mexico and the SABE. Due to coastal hydrodynamic 

processes that caused shoaling, the East Pass slowly filled up with sediment and 

eventually closed in 1999(NWFWMD 2008.) In 2001, at a cost of two million 

dollars, a channel 300 feet wide and ten feet deep was dredged through the East 

Pass. Unfortunately, it did not take long for the channel to fill slowly back up 

with sediment, and in less than two years the pass was closed again. Although the 

East Pass helped flush the SABE and proved to be very beneficial while opened, 

it has been difficult getting the East Pass reopened. Many individuals and groups 

continue to pursue opening the East Pass (Hobson 2009.) It will be a while 

before all the necessary steps are completed and an application for a dredging 

permit filed (Hobson 2009.) The West Pass, a man-made passageway for 

navigation between the Gulf of Mexico and the SABE, was cut in 1934 and 

remains open to this day (NWFWMD 2001.) 

North Bay is a shallow estuary system with a mean depth of six feet and a surface 

area of 6,700 acres. It extends from the DPL dam, where the majority of the 

freshwater hydrology interaction occurs, then flows south where it amalgamates 

with Saint Andrew Bay (NWFWMD 2008.) 

Land Use in North Bay is divided into the northern and southern zones. The 

northern zone consists mainly of upland forest and wetlands with a little 

residential, while the southern zone consists mainly of residential with some 

17 
Significance of the Watershed 

18 

commercial. The water quality is classified as shellfish propagation or harvesting 

(Class II) waterbody for all areas north of Highway 98 with the exceptions of 

alligator bayou and fanning bayou. Commercial harvesting is not allowed in any 

of the bayous. 

The Gulf Intracoastal Waterway (GIWW), created in the 1950s for navigational 

purposes, flows from west to east. GIWW connects the SABE with the 

Choctawhatchee Bay west of West Bay at West Bay Creek. Then it flows through 

the SABE and exits east through East Bay at Wetappo Creek where it connects to 

the Saint Joseph Bay through the Gulf County Canal (NWFWMD 2001.)

Saint Joseph Bay is worth mentioning because it is the only embayment in the 

eastern Gulf of Mexico that lacks a major source of freshwater inflow. Saint 

Joseph Bay has a surface area of 42,826 acres and is located in the Gulf Coastal 

Lowlands region. It has the largest seagrass stock in the Florida Panhandle and 

its bay system is dominated by salt marshes and tidal flats that support 

approximately 3,643 species of birds, fish, shellfish, and other rare, protected, and 

endemic species (NWFWMD 2008.) In order to preserve this unique system, 

most of the bay was designated as an aquatic preserve in 1969 (NWFWMD 

2001.) 

Another smaller system worth mentioning is Lake Powell, which covers the 

southwest border of Bay County and the southeast border of Walton County. 

Lake Powell is a large interdunal lake with an 8,612-acre watershed and a lake 

surface area of 666 acres. The state of Florida has recognized Lake Powell as an 

“Outstanding Florida Water” (Keppner and Keppner 2000.) 
19 

Photographs of Econfina Creek and Pitts Springs. 

 Photographs provided by Alice Guay. 
Land and Species Diversity 

Chapter 3 

LAND AND SPECIES DIVERSITY 

The Panhandle is rich in biodiversity with six major ecosystems and fifty-seven different natural 

communities including bluffs, bogs, caves, coastal dunes and beaches, glades, lakes, hammock 

islands, sandhills, seepage, slopes, springs, steepheads, tidal salt marshes, uplands, seagrass and 

submerged vegetation, fresh and brackish wetlands, and soft and hard bottom waterbodies 

(NWFLEC 2009 and NWFWMD 2008).) 

LAND USE COVERAGE 

According to NWFWMD, Saint Andrew Bay watershed land use separates out 

to the percentages and acreage shown in Table1. The land use and coverage was 

determined by using the Florida Department of Transportation’s Land Use, 

Cover, and Forms Classification System (NWFWMD 2008.) This table does 

not designate which upland forest and wetlands are used for silviculture. The 

majority of private lands were used for silviculture including lands owned by the 

largest landowner, St. Joe Company. In the past, St. Joe Company grew pine 

trees to harvest for pulpwood for the production of paper. When the company 

reorganized in 1985, it moved out of production land to a new real estate 

division called Southwood. It was not until the early 1990s that St. Joe 

Company started developing on a large scale with residential, and resort 

communities (SJC 2009.) Major public landowners include the Florida DACS 

Division of Forestry, Florida DEP Division of Recreation and Parks, 

Northwest Florida Water Management District, and the U.S .Department of 

Defense (NWFWMD 2001.) Although most of the existing urbanized areas are 

20 
Saint Andrew Bay 

the municipalities located adjacent to Saint Andrew Bay, urban growth in the 

form of new residential and commercial development around the West Bay 

sector has begun with the building of the new international airport in West Bay. 

The new airport will expand across 1,300 of the 4,000 acres donated by St. Joe 

Company. In addition, St. Joe donated a 9,609-acre West Bay Preservation 

Area and Conservation Easement. Great efforts to protect the West Bay and 

surrounding wetlands went into the planning of the airport and the surrounding 

land totaling 78,000-acres. Of that total, 41,000-acres including the 

preservation area were set aside and designated as conservation land, including 

thirty-three miles of bay shoreline and 44 miles of creek front. The U.S. Green 

Building Council will certify the new airport, built to higher standards than 

required by law, as a Leadership in Energy and Environmental Design (LEED) 

when completed in 2010. 

Table 1. Generalized Land Use and Cover, St. Andrew Bay 

Watershed (Keppner and Keppner 2008) 

Category Acres Percent 

Agriculture 42,324.22 5.75 

Barren Land 3,979.80 0.54 

Commercial & Services 6,391.39 0.87 

Industrial 2,871.36 0.39 

Institutional 1,731.64 0.24 

Recreational 10,109.31 1.37 

Residential 38,011.75 5.16 

Trans, Com, & Utilities 9,434.52 1.28 

Upland Forests 500,151.51 67.95 

Water 12,509.80 1.70 

Wetlands 108,546.98 14.75 

Total 736,062.28 100.00 

21 
Land and Species Diversity 

HABITAT COMMUNITIES 

Habitat communities are determined by the soil type, the underlying parent 

materials, and the hydropattern of the area. Saint Andrew Bay Watershed has a 

variety of habitat communities with a high amount of biodiversity. From an 

aerial view, the watershed appears to be dominated by pine sand hills, pine 

flatwoods, and wetlands communities with pine scrub forest dominating along 

the coastline of the Gulf of Mexico. However, a closer look reveals a vast 

region of many distinct communities intermingled together including 

steepheads, pine sand hills, pine flatwoods, temperate hardwood forest, springs, 

creeks, lakes and ponds, karst ponds, interior wetlands, coastal uplands, coastal 

wetlands, and coastal water (Whitney et al. 2004.) 

STEEPHEADS 

The word “steepheads” refers to ravines at the source of the headwaters 

(Whitney et al. 2004.) Steepheads in the Panhandle are deep ravines occurring 

in the uplands where waters coming up from springs or seepage cut into the 

sand hill from beneath it and the sand is carried away (NWFLEC 2009 and 

Whitney et al.2004.) Water flows through the steephead ravines at a steady rate 

all year long, regardless of the rainfall on the lands above them. Typically, the 

steephead ravine’s walls slope at a 45-degree angle. Older steepheads have 

longer and deeper valley contours that can attain a depth of one hundred feet 

(Whitney et al. 2004.) The deeper elevation keeps the steephead cooler in the 

summer and promotes dense vegetation including sphagnum moss along the 

creek fronts and ancient species no longer available on the above land 

(NWFLEC 2009 and Whitney et al.2004.) 

22 
Saint Andrew Bay 

The only steephead region in the Saint Andrew Bay watershed occurs in the 

northern tip of Bay County and its bordering area in Washington County along 

the Econfina Creek and its tributaries. Gulches from the adjoining tributaries 

combined with the ravine of Econfina Creek can be easily seen from overhead 

as the pine flatwoods abruptly drop into the temperate hardwood forest in the 

steephead ravines. Figure 5 is an aerial photograph showing the contrasting 

landscapes of the pine flatwoods and the lush green below. Note the steep 

white sandy walls of one of the tributary ravines in the middle of the 

photograph. 

Figure 5. Aerial Photograph of Steephead Ravines along Econfina 

Creek (Google Maps 2009.) 

23 
Land and Species Diversity 

PINE SAND HILLS 

The pine sand hills community is an open canopy habitat where pines and 

wiregrass dominate the landscape with other ground covering plants over deep 

poor nutrient sand hills. This community relies on fire to suppress the 

hardwoods in the understory and stimulate plant reproduction (NWFLEC 

2009and Whitney et al. 2004.) The scrub oaks in this community respond well 

to fire and appear healthier when frequently burned. Living among the trees 

and plants are numerous insects, birds, mammals, and reptiles including the fox 

squirrel, gopher turtle, and the endangered red-cockaded woodpecker. The redcockaded woodpecker is used as an indicator species for old native sand hill 

communities, because it only drills a nesting cavity into live seventy plus year 

old native pine with heart rot (Whitney et al. 2004.) 

PINE FLATWOODS 

The pine flatwoods community is a flat open canopy habitat with fine sand soils 

with low organic matter typical of the coastal lowlands from which the 

community originated. Moreover, the flat topography induces a low run-off 

rate and a slow percolation rate to underlying soils. Fire and water availability 

determine the plant community in the flatwoods (NWFWMD 2001 and 

Whitney et al. 2004.) During the rainy season, water is abundant and flooding 

occurs; however, the rest of the year, the community suffers from drought. 

These extremes make it difficult for plants to flourish, and only those that adapt 

can survive to dominate the landscape. Thus, flatwoods vary from an open 

canopy dominated by grasses and herbs with scattered pines to dense canopy of 

pines with a dense understory. Among the pine flatwoods are areas of mixed 

hardwood, titi wetlands, bogs, swamps, and open-water communities growing 

near or in inundated depressions in the landscape. The major species are slash 

24 
Saint Andrew Bay 

pine (Pinus elliotti), long-leaf pine (Pinus palustris), wiregrass (Aristida spp.), 

saw palmetto (Serenoa repens), and a variety of species in the Ericaceae family 

(NWFWMD 2001.) The flatwoods community is important to biodiversity 

because it links other neighboring higher and lower elevated communities 

together (Whitney et al. 2004.) Unfortunately, the majority of pine flatwoods 

communities are used for silviculture (NWFWMD 2008.) 

TEMPERATE HARDWOOD FORESTS 

Temperate hardwood forests are multi-layered forest where different tree 

species compete for space and sunlight in the closed and shady canopy. Most 

temperate hardwood forests occur near abundant water including areas along 

side streams and areas near the bays and coast where fire fails (NWFWMD 

2001 and Whitney et al. 2004.) There are three categories of temperate 

hardwood: hydric, xeric, and mesic (FNAI 2009.) According to Whitney et al., 

the hydric forest contains mainly cabbage palm (Sabal palmetto), red cedar 

(Juniperus virginiana), and swamp bay (Persea palustris.) Typically dry, the xeric 

forest consist of mainly the oak family, Quercacea and it is dominated by the 

live oak (Quercus virginiana) and laurel oak (Quercus laurifolia.) The mesic forests 

are the forests that fall in between the xeric and the hydric and contain many 

tree combinations including swamps known as bottomland forest. Other mesic 

forests are mixed forest, slope forest, upland forest, and Rockland hammocks, 

which are found only around limestone sinks (Whitney et al. 2004.) Temperate 

hardwood forests are valuable resources because they aid in stabilizing the 

climate and play a role in local rainfall patterns, while reducing pollution, runoff, and recharging the aquifer. Moreover, they are irreplaceable habitat 

communities as well as specie depositories (Keppner and Keppner 2008 and 

Whitney et al. 2004.) Temperate forests alongside Econfina Creek, purchased 

by NWFWMD, support interesting and protected species of plants and animals. 

25 
Land and Species Diversity 

One beautiful example of the temperate hardwood forest can be seen in Figure 

4, shown beforehand, where the pine flatlands abruptly stop and the tops of 

trees are visible at ground level (NWFWMD 2001.) 

SPRINGS 

Springs are groundwater streams that flow through weak points in the 

limestone. Where the weakest point meets the surface, springs vent out onto 

the surface as streams known as spring runs (Whitney et al. 2004.) Studies have 

shown that the number of springs increases in regions where the limestone layer 

is closer to the ground surface. This is especially true in northern Florida where 

the limestone is close to the ground surface as seen in the lower portion of 

Figure 6. The spring’s water chemistry is determined by the residence time in 

the aquifer, the chemistry of the soil and aquifer layers, and the depth of the 

groundwater in the aquifer. Typically, larger springs have longer residence time 

and older water discharging from the springs. Spring flow is determined by the 

total amount of rainfall in a watershed and limestone porosity; however, a single 

rain event will not affect the flow rate. Only seasonal changes of drought or 

heavy rain can deter a spring’s normal discharge rate. Moreover, the discharge 

rate determines the spring’s classification from first to eighth magnitudes with 

first-magnitude being the highest volume per given time period. Saint Andrew 

Bay Watershed basin has 1 first-magnitude, 4 second-magnitude, and 6-third 

magnitude spring groups. These springs with their constant water flow, 

temperature, and chemistry provide unique habitats for many species (Whitney 

et al. 2004.) 

26 
Saint Andrew Bay 

27 

Figure 6. Typical Habitat Communities in Saint Andrew Bay 

Watershed Drawn by Pamela Brown.
Land and Species Diversity 

28 
Saint Andrew Bay 

CREEKS AND RIVERS 

According to Whitney et al., “All natural flowing freshwater systems are 

streams.” Thus, streams, creeks, and rivers are one and the same because there 

are no standards for determination. Since the measurements of these lotic 

systems are subjective, the people who name it decide which one to use. In the 

Saint Andrew Bay watershed, creek is the term used for all lotic communities. 

Numerous creeks in the Saint Andrew Bay Watershed basin drain the land. 

The major creek, Econfina Creek, is a spring-fed stream, a seepage stream, and 

a steephead stream depending on the segment of the creek. Most of the creek’s 

surface water has a light tannin tint from fallen leaves and ground seepage. 

However, the water is crystal clear around the spring vents and a clear stream of 

spring water can be seen flowing down stream until the two waters merge as 

one. Due to changes in topography, streamflow rate, water and soil chemistry, 

and sunlight intensity, the creeks in the watershed have a variety of habitat 

communities as depicted in Figure 5. These communities provide food and 

shelter for numerous species of flora and fauna including some special species 

like the endangered Gulf Moccasin shell bi-valve mollusk (Mediondus 

pencillatus), endangered red-cockaded woodpecker, and reticulated flatwoods 

salamander (Ambystoma bishopi) (FNAI 2009 and Whitney et al. 2004.) 

LAKES AND PONDS 

Lakes and ponds are interior freshwater surface waterbodies that include a vast 

array of aquatic habitat communities. They are still water systems that 

encounter seasonal variations in depth and water temperature. Lakes go 

through periodical drying down, which allows the lake to cleanse itself of its 

dense muck bottoms. In fact, lakes need these drying periods. Without them, 

the lake communities become ill and die, as the oxygen levels get too low to 

29 
Land and Species Diversity 

support life. Species in these communities have adapted to handle the 

variations in water level, sunlight penetration, and oxygen levels in the different 

environments. Typical zones for habitat communities in lakes are shoreline 

zones, light penetrating open-water zones, and dark open water zones. 

Emergent vegetation grows in the shoreline zone; while most submersed 

vegetation grow in the light penetrating open-water zone. In the dark open 

water zone, flora and fauna survive in the upper surface water where light can 

still penetrate, while bacteria and fungi live on the dark bottom feeding on 

fallen organic matter. Water quality is heavily dependant on the land use and 

human activities in and surrounding the lakes (Whitney et al. 2004.) Saint 

Andrew Bay watershed has sand hill lakes, sinkhole lakes, flatlands lakes, swamp 

lakes, and a coastal dune lake. Important lakes and ponds in the watershed are 

Deer Point Lake (reservoir lake), Lake Powell (coastal interdunal lake), and the 

many unnamed karst ponds (sinkhole lakes) found in the north central portion 

of the watershed (FNAI2009.) 

KARST PONDS 

Karst Ponds are sinkholes where the water table is at the ground surface. 

Although a karst pond may look like an ordinary placid pond, the water is far 

from being still. Since karst ponds are feed by groundwater moving downwards 

through the watershed, the water in the pond is constantly interacting with the 

groundwater and recharging the water in underlying aquifer. This interaction 

keeps the water cool and alkaline, and at the same time keeps the water level 

constant. According to NWFWMD, the karst ponds in the northern part of 

Bay County and the southern part of Washington County are the “most 

ogliotrophic in the nation.” Moreover, the water is low in pH, low in nutrients, 

low in calcium hardness, and it is clean and clear (NWFWMD 2001.) 

30 
Saint Andrew Bay 

Lush vegetation occupies the immediate area outside the sandy shoreline. This 

lush habitat supports a community full of rare and endangered species of plants 

and animals including a diverse community of benthic macroinvertebrates 

(NWFWMD 2001.) According to Keppner and Keppner, one exceptionally rare 

plant, found in this local region of karst ponds and nowhere else in the world, is 

the Smoothbark St. John’s wort (Hypericum lissophloeus.) Some other plants found 

with the Smoothbark St. John’s wort and other similar habitats in Florida are the 

Crystal Lake Whitlow wort (Paranychia chartacea), the Kral’s yellow-eyed grass 

(Xyris longisepala), the Panhandle meadowbeauty (Rhexia salicifolia), the Quillwort 

yellow-eyed grass (Xyris isoetifolia) similar to the Kral’s species, and the Threadleaf 

sundew (Drosera filiformis.) The change in land use to residential around the karst 

ponds places the Smoothbark St. John’s wort in peril of extinction due to human 

activities and clearing vegetation around shoreline of the karst ponds (FNAI 

2009.) 

INTERIOR WETLANDS 

Wetlands are areas with standing water for some period during the growing 

season. Wetlands of variable size are found between uplands and deep 

waterbodies, and they are influenced by hydropatterns, physiochemical 

environment, adaptation of biota, and human activities (Mitsch and Gosselink 

2000.) Hydropattern, used to describe the hydrology of an area, includes five 

components: depth, duration, flow, frequency, and timing. The hydropattern 

helps determine the type of wetland for a given area. 

Interior wetlands are comprised of bogs, freshwater marshes, and swamps. The 

Saint Andrew Bay watershed consists mainly of fresh water marshes and 

swamps with the occasional bog. Freshwater marshes fringe the shallow waters 

of lakes and ponds. Marshes in the watershed are comprised of beakrush 

31 
Land and Species Diversity 

marshes, cattail marshes, and sawgrass marshes. Swamps in the watershed, 

consisting mainly of trees, include bayhead swamps, cypress swamps, titi 

swamps, and tupelo riverine swamps (NWFWMD 2008.) Bogs are mainly 

seepage wetlands that have dominating vegetation consisting of grasses and 

sedges. However, among the grasses and sedges are some rare or unusual 

species of bladderwort, butterworts, pitcher plants, and sundews (NWFWMD 

2001.) Wetlands play a crucial role in the Saint Andrew Bay watershed by 

providing flood control, improving water quality, and providing habitat for 

wetland adapted species. (Misch and Gosselink 2000.) 

COASTAL UPLANDS, WETLANDS, AND WATERS 

Coastal uplands, wetlands, and waters are three regions of habitat communities 

along the Gulf of Mexico that are directly affected by salt spray, deposition, 

erosion, and salt water. Coastal uplands or pine scrub uplands occur in regions 

above the high tide where the quartz sand is well drained and it is only affected 

by changes in the deposition of sand and salt spray (FNAI 2009 and Whitney et 

al.2004.) The only water this region receives is from the occasional rainstorm 

(Odum et al. 1998 and Whitney et al. 2004.) According to NWFWMD, the 

trees dominating in this region are the sand pine (Pinus clausa), sand live oak 

(Quercus geminate), and myrtle oak (Quercus myrtifolia), while the dominating shrub 

is the Florida rosemary (Ceratiola ericoides) occurring in dry areas and the Lyonia 

spp. occurring in wetter areas. 

Coastal wetlands and beaches are the shorelines directly affected by wave 

energy, tidal patterns, and salt water. Whether the shoreline will be a white 

quartz sand beach or a coastal wetland depends on the intensity of the wave 

energy. The wave energy potential arises from the degree of slope of the land 

as the land enters the Gulf. Smaller slopes and flat lands create less wave 

32 
Saint Andrew Bay 

energy than steep slopes. The bays in the watershed are low energy shorelines 

with coastal wetlands including salt marshes and submerged seagrass beds; 

however, there are a few sand beaches where wave action is too high for 

marshes and seagrasses to establish. Seagrass beds are important biotic 

communities that provide shelter, food, and nurseries for marine species 

(Odum et al 1998 and Whitney et al. 1998.) Clear shallow waters in the Saint 

Andrew Bay Estuary system and Saint Joesph Bay are dominated by shoal grass 

(Halodula wrightii) and turtle grass (Thalassia testudinum) with some manatee grass 

(Syringodium filifome) occurring in slightly deeper water (NWFWMD 2001.) In 

contrast, the region directly in contact with the water of the Gulf of Mexico is a 

high-energy shoreline with white sandy beaches. Although the beaches appear 

sterile, they are full of microsopic communities among the sand grains. 

Moreover, the driftline debris, which is carried onto shore by wave actions, 

supports its own habitat communities (Odum et al. 1998 and Whitney et al. 

2004.) The Quartz white beaches extend the entire length of the watershed 

from the western boundary in Walton County to the eastern boundary in Gulf 

County. Most of the beach region in Bay County is predominantly developed 

(Keppner and Keppner 2008.) 

Coastal waters, areas of open water including soft and hard bottoms, have many 

habitat communities throughout the different layers of the water similar to lake 

zones aforementioned. Submerged vegetation grows in light penetrating open 

water with habitat communities at the surface water, vegetation zone, and the 

soft organic matter bottom. In deeper dark open water zones, habitat 

communities of flora and fauna exist at the surface layer, while bacteria and 

fungi live in microscopic communities on the dark bottom. Estuaries, areas 

where freshwater and saltwater mix, support another group of habitat 

communities. The main habitats, comprised of plankton and benthic 

communities including oyster reefs, support a diverse group of flora and fauna. 

33 
Land and Species Diversity 

34 

The only true estuary in the Saint Andrew Bay Estuarine system is in North Bay 

at the spill over dam. This area with brackish waters supports the only 

commercially valuable oyster reef in the watershed. Other areas in East Bay, 

North Bay, and West Bay support oyster reefs in brackish waters where 

freshwater inflows from creeks and tributaries exist. Oyster reefs provide hard 

bottom habitat communities including diverse communities of sessile and 

portative organisms (NWFWMD 2001.) Table 2 shows a comparison of species 

diversity between the United States (in general for estuaries), Indian River 

Lagoon (considered one of the most diverse and important estuaries in Florida), 

and Saint Andrew Bay Estuarine System. In addition, it shows that the total 

species count of 2913 reported in Saint Andrew Bay Estuarine System 

outnumber the total species count of 2529 reported in the Indian River Lagoon 

Estuarine System, thus emphasizing the importance of Saint Andrew Bay 

Estuarine System to the watershed and surrounding communities. 

Table 2. Number of species reported from Saint Andrew Bay 

Estuary, United States, and Indian River Lagoon for comparison 

(Keppner 2002.) 
Saint Andrew Bay 

35 

Table 2. A continued comparison of species diversity showing Saint 

Andrew Bay Estuarine System with more species than Indian River 

Lagoon (Keppner 2002.) 
Land and Species Diversity 

In addition to the estuarine system in the coastal waters, the rocks at the jetties, 

cement from pilings, and the original Hathaway bridge that was torn down and 

left, become invaluable artificial substrate. Although infrequent, artificial 

substrates offer refuge and attract invertebrates and valuable recreational and 

commercial fish. According to NWFWMD, ninety to ninety-five percent of 

recreationally and commercially valuable Gulf of Mexico species of fish depend 

on an estuarine environment for at least part of their life cycles. Some 

recreationally and commercially important species of fish, including creville jack 

(Caranx hippos), dolphin fish (Coryphaena hippurus), king and Spanish mackerel 

(Scomberomorus spp.), and penaeid shrimp (Penaeus spp.), commonly appear in the 

Saint Andrew Bay watershed (Keppner et al 2008, and NWFWMD 2001) 

36 
Saint Andrew Bay 

37 

.
38 

Vessel of earthenware, 

height of 4.1 inches, found 

in mound near Crooked 

Island (Moore 1918.) 

Vessel of earthenware, 

height 6.25 inches, 

found in mound near 

Davis Point (Moore 

1918.) 

Vessel of earthenware, 

height 6 inches, found 

in mound near 

Crooked Island 

(Moore 1918.) 

Vessel of earthenware, height 8 

inches, found in mound near Burnt 

Mill Creek (Moore 1918.) 

Vessel of earthenware, 9.1inches n 

diameter, found in mound near 

Crooked Island (Moore 1918.) 
Saint Andrew Bay 

Chapter 4 

HUMAN INFLUENCES 

The first humans, known as Paleoindians, came into Florida near the end of the Ice Age over 

12,000 years ago They were hunters and gatherers that migrated south with the large game 

animals like the mammoth, giant sloth, bison, bear, and saber-toothed cats. It was a time of 

cooler climates when the sea level was 200 feet lower than today, and Florida’s land mass was 

twice it’s current size (Gornitz 2007 and Milanich 1998.) Over time as the climate grew 

warmer, the sea level rose and the total land mass reduced to its current size around 5,000 years 

ago. All the while, the Native American population continued to grow and adapt to their new 

lands. By 4,000 years ago, the flora and fauna had changed with the climate and almost of the 

large game animals were extinct (Milanich 1998 and Odum et al. 2000.) The Native 

Americans lived near water and fished rivers, estuaries, bays, and the Gulf of Mexico (Milanich 

1998.) 

EARLY HISTORY 

In Saint Andrew Bay watershed, fossils of camel, mammoths, mastodon, and 

saber-toothed cats have been found in upland spring runs and creeks. Artifacts 

have been found dating back to 13,000 years ago when the Gulf of Mexico was 

fifteen miles further south and the bays were dry with deep valleys created by 

creeks running through them (Houpt 2007.) An archeological site in the Oaks by 

the Bay Park on West Tenth Street is believed to belong to one of the Weeden 

Island Native American tribes. Accretions of discarded shells and bones known 

as middens or mounds were found around an occupation site. The occupational 

site was used for gathering scallops, fish, and oysters to feed the tribe (Houpt 

39 
Human Influence 

2007.) According to Moore, pottery, tools, and ornamental decorations made of 

limestone and shell were found at the mound sites. Archeological digs in the 

early 1900s, revealed over eight mound sites in the Saint Andrew Bay watershed 

on the coastal and pine hammocks where Native Americans ceremonially buried, 

and sometimes cremated their dead (Moore 1918.) These sites give clues to the 

local Native Americans that occupied the area from 13,000 years ago until 500 

years ago. 

As the Ice Age ended and the climate grew warmer, Native Americans had to 

adapt to survive. Hunting gave way to gathering and agriculture as large game 

disappeared, and new plants and animal species migrated into the area with the 

climate change. Over thousands of years, Native Americans endured and 

evolved in response to the changes in climate, resources, and technology 

including ceremonial burial mounds created from 5,000 to about 2,500 years ago. 

In the Late Archaic period around 1000 B.C., the Native American’s knowledge 

of plants and animals was extensive. They knew when plants would produce 

berries, and the trees would produce fruits or nuts. They knew the migration 

period of animals and their breeding seasons. By 700 B.C., the Early Woodland 

period began as the Native American created larger burials sites than in earlier 

periods and began making pottery for cooking or ceremonial offerings to protect 

the dead. The Middle Woodland period noted changes in the hierarchical 

political order of villages with great ceremonies and larger burial mounds for 

important figures in the village. The Native Americans lived in large settlements 

of hundreds of individuals and built permanent homes. A large native trading 

route began, which helped decrease economic instability from low crop yields or 

extreme weather conditions. The bow and arrow emerged in this time period as 

hunting for game grew more difficult and larger numbers were needed to feed a 

village. By the beginning of the Late Woodland period around 300 A.D., the 

Native Americans became skilled fishermen, hunters, and farmers of native plants 

40 
Saint Andrew Bay 

including tree orchards. However, their village sizes decreased dramatically to no 

more than fifty individuals and they stopped building large elaborate burial 

mounds. Weather changes and population demands played a huge role in the 

cultural impoverishment during this period. As the Mississippian period began in 

700 A.D., the Native American’s culture evolved once again. During this period, 

the tribes were dominated by the Coles Creek traditions. Burial mounds evolved 

into impressive ceremonial temples on mounds. The tribes lived in permanent 

settlements along major waterways to encourage trade. Corn became the 

dominant food source and wooden hoes with stone blades were invented to ease 

crop tilling. Tribes defended the crops and settlements from other tribes or 

outsiders. 

In Saint Andrew Bay, the Weeden Island Culture tribes along the bay adapted 

subsistence strategies of other tribes and by 900 A.D. evolved into the 

Mississippian culture tribes who lied on the rivers and creeks (Houpt 2007.) 

Chatot (a.k.a Choctaw) and Yucci (a.k.a. Euchee) are two distinctly different 

Native American tribes that lived in the SABW when the Spanish explorers came 

to the area in the 1500s. The Chatot were of Muskogee family descent and spoke 

in a muskhogean dialect. Some culture traditions were to artificially flatten their 

heads and clean all the meat off the bones of their dead before placing the bones 

of the deceased in the bone house. The Chatot were farmers that could defend 

themselves when attacked. In contrast, the Yucci spoke a language all their own. 

They were mound builders who built their homes half subterrained. They 

surrounded their villages with Palisade walls of wooden stakes. They were 

conservationists who practiced control burns, hunted based on hunting season, 

and grew crops including corn and squash. They were very frugal, and tried to 

balance their existence with the environment. 

41 
Human Influence 

The rich culture of the local Chatot and Yucci tribes would come to an end with 

their encounter with Panfilo de Narvaez’s Spanish expedition in the early 1500s. 

The expedition originally landed in Tampa Bay in 1528 and marched north in 

search of gold. Travelling across land was extremely difficult due to the thick 

underbrush. After losing contact with their ship, they travelled north until they 

reached the Apalachicola River in 1529. They stopped there and built boats to 

travel down the river and back to the Gulf of Mexico, and eventually reach 

Mexico by sailing along the coast. While camped out on the Apalachicola River, 

the expedition stole bushels of corn from one of the local Apalachicola River 

Indian tribes. In retaliation, the Native Americans started to attack small groups 

of the expedition and kill them. In an attempt to stop the killings, Narvaez 

ordered the Chief’s capture and Narvaez held him as a prisoner to ward off 

further attacks. Eventually the expedition finished the boats and sailed south to 

the Gulf of Mexico with the Chief still held as prisoner, and after a week 

following the Florida coast west towards Mexico, the expedition came to Saint 

Andrew Bay. According to Cabeza de Vaca, the treasurer of the expedition, the 

Native Americans lived in palm-thatched lodges along the inlet of the bay. The 

lodge had many jars of water and fish, and the women wore short skirts of palm 

filament. De Vaca claimed the Native Americans greeted them in canoes without 

bow or arrows; however, later that night while they slept, the Native Americans 

attacked the expedition with bows and arrows. The men retreated to their boats 

and managed to escape with injuries (West 1922.) Soon after this encounter, the 

Chatot became extinct and the Yucci relocated north and west of the area. Other 

accounts indicate that De Narvaez’s men infected the tribes with dysentery 

(Houpt 2007.) Due to the fighting between the English, the Spanish, and the 

Native Americans over land in the Panhandle of Florida, not many dared to settle 

down in this hostile environment. Saint Andrew Bay would remain quiet with a 

42 
Saint Andrew Bay 

couple of Spanish fishermen living along the bay as noted by Thomas Robinson’s 

account in 1754 (West 1922.) 

EARLY SETTLERS ON THE BAY 

Juan Ponce de Leon named Florida in 1513. The Spanish explored and surveyed 

the coast of Florida. Panfilo de Narvaez explored the area in 1529 (West, 1922 

and Wikipedia..) Settlers from Spain came in 1559 (West, 1922.) When England 

acquired Florida in 1763, the Spanish fishermen in Saint Andrew Bay left for 

Cuba. English settlers who arrived in Saint Andrew Bay in 1765 found groves of 

oranges and figs left behind. They named the town Wells after one of the 

families and grew indigo using slaves from 1765 to 1782. Another town during 

the same time period was Dyer’s Point located on the western tip of Panama City, 

which is now the location of the Port of Panama (1915 Brochure and West 1922.) 

With the return of the Florida land back to Spain after the signing of the Peace 

Treaty of 1783, English settlers fled to English territories and abandoned their 

prosperous cities including Wells (west 1922.) Again, the Saint Andrew Bay area 

lay quiet and abandoned except for a few Creek tribes who moved into the area 

in the 1700s. By the time the United States purchased Florida from Spain in 

1819, most of the original Native American tribes in Florida were gone, and a 

new Native American tribe known as the Seminoles or Creek Indians was 

organizing down in the Peninsula of Florida. However, a few Creek Indian 

tribes, chased off their lands in Alabama and Georgia, had already assembled in 

the wilderness of the Saint Andrew Bay area (Womack 1994.) 

In the early 1800’s, Native American tribes fought against white settlers who were 

trying to take their lands. After the purchase of Florida, the United States 

government decided to move the Native Americans off their land to make room 

for more white settlers and to stop Indian attacks. The Indian Removal Act of 

43 
Human Influence 

1830, also known as the Trail of Tears, moved all Native Americans to Indian 

Territory in Oklahoma. Many Native Americans died along the way. Only those 

who hid from capture and those who could blend in with the white settler due to 

their light colored skin were allowed to remain. The people of the North Bay 

Clan of the Lower Muskogee Creeks, which exist in the SAB today on a parcel of 

land along Deer Point Lake, are descendants of Creek Indians who hid in the area 

to avoid capture (My Florida Genealogy and Womack 1994.) 

In the early 1820s, some Georgians and others moved onto land near the bay and 

built plantation settlements in areas now known as Old Town near current day 

Panama City, Bayhead on current day Deer Point Lake, and Lynn Haven,. 

In 1827 ex-governor of Georgia, John Clark was given charge of the live oaks 

along the shores of Saint Andrew Bay by his friend General Jackson. Timber was 

an important commodity for shipbuilding and Clark was the “Keeper of the 

Trees.” He built a home in Old Town on the bluffs of what is now Beach Drive 

in Panama City west of Lake Caroline. He lived there with his wife, Nancy, until 

their deaths in October 1832 from Yellow fever that he caught while visiting New 

Orleans (West 1922 and Houpt 2007.) Yellow fever was spread by mosquitoes 

and was prevalent every fall in New Orleans. Fortunately, it did not spread in 

Saint Andrew Bay. The Clarks are two of the three known cases of Yellow fever 

in the area (West 1922.) 

After the War of 1812, William Loftin, who served in the war, came down from 

North Carolina where he was a sheriff in Jackson County and built a home near 

North Bay. In 1830, he moved from his house in North Bay to his newly built 

house just one mile east of the Clark’s residence. There he engaged with Henry 

Rivere and J.M. White to develop a community called Austerlitz on East Bay. In 

November 1835, Loftin purchased large sections of land from the government in 

44 
Saint Andrew Bay 

the sections 12 and 13 of township 4. After the land purchase, Loftin built a new 

house just east of the Austerlitz development area. There, after being granted 

permission from the legislature, he operated a ferry between Ferry Point and 

Military Points on East Bay. He died in 1845 and is buried in the Parker 

cemetery. Austerlitz was renamed Parker in 1886 (West 1922.) 

In the same time period, the Clark’s residence was renovated into a hotel called 

the “Tavern.” In 1842 while Major Armstead was keeper, David R. Blood came 

from London in a black sloop. He checked into the Tavern with the intent of 

studying the bay for a short time. His black sloop was affectionately called the 

Widow by locals in the area. Blood continued to study the bay for twelve years 

before he was called back to England in 1857 (West, 1922.) 

In 1945, the writer Caroline Hentz, for which Lake Caroline was named, began to 

visit Saint Andrew Bay during the summers. At this time, the post office referred 

to the town as Saint Andrew on Saint Andrew Bay. During the summers, the 

population would reach between 1200-1500 residents (Houpt 2007.) 

The civil war broke out between the Federal Union of the North and the 

Confederates of the South in 1861. At that time, salt was the only way to 

preserve food. Salt was produced through evaporation of salt water in a kiln over 

a fire. Saint Andrew Bay became a major source of salt for the Confederate 

troops. Between 1861 to 1865, an estimated 2500 men engaged in salt 

manufacturing along the shoreline of the bay. As a result, Federal troops began 

raiding and destroying the salt production in September 1862. On December 10, 

1863, the Federal Union sent in the bark, the “Restless,” which was a gunboat 

and it shelled the community of Old town with cannons. In the end, the gunboat 

destroyed the entire community of Old Town including all 32 cottages and 

45 
Human Influence 

homes as well as the house that John Clark built (Centennial, 1915 Brochure, and 

West 1922.) 

CITY GROWTH AROUND THE BAY 

In 1879, Lambert Ware moved to the area followed by his brother, Francis in 

1882. They operated the Ware Mercantile and the Ware Wharf at the present day 

site of Harbour Village at Historic Saint Andrew Condominiums and Saint 

Andrew Marina near the corner of 10th Street (Houpt 2007.) 

In 1885, with the passing of the Homestead Act, land in the area was 

homesteaded for one-dollar per acre. A Cincinnati mail-order company, the Saint 

Andrew Bay Railroad, Lands, and Mining Co., bought property in the Saint 

Andrew Bay area, and started nationally advertising 25 feet x 82 feet lots for 

$1.25. The advertisement attracted a lot of people and started a settlement boom 

as over 300,000 lots were sold (Maddox and King 2009 and Houpt 2007.) As the 

price for lots increased to $8.00, the company went bust. One prominent 

individual in Saint Andrew history who responded to the ad was George M. 

West, a northern railroad man. In 1885, he purchased the property along Beach 

Drive where the Clarks home once stood. Some recognized homesteaders were 

S.L. Slade, G.B. Thompson, and J.R. Irwin. In 1888, Slade platted his land 

around the current day’s courthouse near Massalina Bayou and named it, 

Floriopolis. Thompson secured land west of the main street known today as 

Harrison Avenue including the Bay Line Depot. Irwin secured land including 

Harrison Avenue, and later sold it to G.W. Jenks (Maddox and King 2009 and 

Centennial.) In 1888, G.W. Jenks and C.J. Demorest platted their land, called 

Park Resort, and the following year renamed it Harrison for the president at that 

time. During that time, only four families lived in Harrison year-round. Any 

46 
Saint Andrew Bay 

unsold land in the above-mentioned homesteads was purchased by G.M. West in 

1905 (Centennial.) 

 In addition to the homesteaders, some prominent land developers were G. M. 

West, R.L. McKenzie, A.J. Gay, and A.B. Steele. West, McKenzie, and Gay 

worked together under the Gulf Coast Development Co. to promote the 

Harrison area. McKenzie was a naval stores man, and A.J. Gay owned a large 

quantity of land that is now known as the Panama City Country Club in Lynn 

Haven. A.B. Steele extended his Dothan to Cottondale railroad to Saint Andrew 

Bay after West, McKenzie, and Gay offered him 25% ownership in Gulf Coast 

Development Co. He completed the railroad in 1908 and named it the Atlanta & 

St. Andrew Bay Railroad Co., but it was referred to as the Bay Line. With the 

completion of the railroad, the population in the area exploded as immigrants had 

an easy way to reach the cities of the bay. In addition, numerous tourists rode the 

Bay Line to the bay then they crossed in launches to Land’s End pavilion on 

current day’s Shell Island (Centennial.) 

In 1906, Harrison was renamed to Panama City. The name, Panama City, was 

chosen in honor of the Panama Canal that was being constructed in Central 

America and because when a line was drawn from Cincinnati to the Panama 

Canal, the line crossed through this area. Three years later Panama City was 

incorporated by 34 votes, and R.L. McKenzie served as the first mayor. In 

addition, McKenzie served as state representative for Washington County from 

1909 to 1913. His leadership paved the way for the formation of Bay County. 

His efforts secured the building of the Coastal Highway through Panama City, 

the dredging of the West Pass Navigation channel, the establishment of the 

International Paper Co. in the area, and the cutting of the inter-coastal waterways 

(Centennial.) Today the original homesteads make up the area known as the 

McKenzie Park in Panama City. McKenzie Park was named in honor of R.L. 

47 
Human Influence 

McKenzie because he served the bay area for over 50 years and his efforts helped 

secure the development of Panama City (Maddox and King 2009.) 

Saint Andrew incorporated in 1908 and the town included Old Town, Waretown 

near the Saint Andrew marina, Cincinnati Hill at the west end from 13th Street to 

15th Street, and West End near the end of Michigan Avenue. J.H. Drummond 

was the first mayor of Saint Andrew and brought a railroad spur into Saint 

Andrew in 1914. The spur split and one went south to the long dock at the south 

end of Frankford Avenue and the other continued west and reached the bay at 

the Saint Andrew Marina just south of 11th Court. The spur provided fishermen 

with a railroad to ship their catch and it provided another launch site for tourist 

and residents going to Land’s End. The train arrived daily from Dotham, 

Alabama with passengers, goods, and timber for the sawmill. 

Another prominent land developer worth mentioning is W.H. Lynn, a publisher 

of a national veterans magazine, who decided to develop two towns in Florida for 

northern Civil War veterans. One town was Lynn Haven and the other was Saint 

Cloud (Maddox and King 2009.) In 1910, Lynn platted 7,400 lots on cutover 

land near North Bay to develop his town, Lynn Haven, with streets named for 

states. Each lot was sold for fifty dollars. The lot size was 50 feet x 150 feet and 

came with a free five-acre lot out of town for farming (Centennial.) Lynn Haven 

was incorporated in 1913, and J.H. Hughey served as first mayor (Maddox and 

King 2009.) The Saint Andrew Bay area is shown as it was in 1888 on Robert 

Oneal’s map in Figure 7. Notice the map divides the area into sections, 

townships, and ranges. Lynn Haven is in Township 3 near Section 16, while 

Saint Andrew is in Section 6 and 7 of Township 4. 

48 
Saint Andrew Bay 

49 

Figure 7. Robert Oneal’s Parcel Map of Saint Andrew Bay Area in 1888 (Clifford 

1888.)

Lynn Haven

Saint Andrew

Old Town

Cove

Panama City

Millville

Parker 

 (Austerliz) Paper Mill
Human Influence 

Many of the cities incorporated as city populations increased, and the population 

in the bay section of Washington County grew to a size that warranted the 

division of the county to form a new county. In 1913, parts of Washington, 

Calhoun, and Walton counties combined to form Bay County, named for all the 

bays in the area (Britannica 2009, Brochure 1915, Maddox and King 2009, and 

Centennial.) Lewis Henry Howell served as first State Legislator and W.A. 

Brown served as the first sheriff for the new county. Panama City became the 

county seat and the Owl’s Nest on the dock of one of the piers at the end of 

Harrison was utilized as a temporary county courthouse and jail until the new 

courthouse on Fourth Street was completed in 1915. In 1920, the interior of the 

courthouse was damaged by fire leaving only the exterior walls. The courthouse 

was reconstructed and it still serves Bay County to this date. The Bay County 

courthouse is listed as being one of five original Florida structures (Brochure 

1915 and Maddox and King 2009.) 

Another railroad line called the Birmingham, Columbus, & St. Andrew Bay 

started up in 1912. Trains ran from Chipley to Southport’s train station and 

passengers had to take a boat across North Bay to the dock at Lynn Haven. 

Later the Lynn Haven dock would be extended into a bridge that crossed North 

Bay (Maddox and King 2009 and Centennial.) 

S.S. TARPON 

Before the railroad came to Saint Andrew Bay, the main source of transportation 

for people and goods was by boat. The most notable boat was a 160 feet long 

steamship named the Tarpon. After being acquired by the Pensacola, St. Andrew 

& Gulf Steamship Company, the S.S. Tarpon driven by its captain, Willis Green 

Barrow, started making weekly trips in 1903. The S.S. Tarpon travelled between 

Mobile, Alabama and Carrabelle, Florida along the Gulf Coast and included stops 

50 
Saint Andrew Bay 

at Panama City, Saint Andrew, and Millville among others (Maddox and King 

2009 and Houpt 2007.) The S.S. Tarpon transported passengers and goods 

including beer, sugar, and flour. The S.S. Tarpon was known for being on time 

no matter the weather, and for thirty-four years, it was considered the most 

reliable vessel in the Panhandle. Unfortunately, Captain Barrow had a bad habit 

of overloading the vessel past the normal carrying capacity. Unfortunately, his 

overloading and persistence to stay on time lead to the sinking of the S.S. Tarpon 

in 1937. On the evening of August 31st the S.S. Tarpon left Pensacola with 31 

passengers and a full load including beer, flour, sugar, canned goods, and iron for 

the sawmill. At 2:00 a.m. in the morning on September 1st, the vessel started 

taking on water from a leak in the bow causing the vessel to list port. Although 

the crew was able to right the vessel temporarily to even keel by throwing cargo 

overboard, the vessel began to list again as dawn approached due to gale force 

winds and pounding waves. Against the first mate, L. E. Danford’s, attempt to 

direct the vessel towards the coastline in an effort to beach the vessel before it 

sank, Captain Barrow forced the vessel back on course. The S.S. Tarpon took on 

too much water and before he gave the order to abandon ship, the vessel was 

sinking by the stern. It sank eight miles off the coast of Panama City Beach in 

ninety-five feet of water. Eighteen of the 31 passengers died including the 81-

year-old captain. The site is now an underwater archeological preserve with the 

National Parks Service. (Houpt 2007 and NPS 2009) 

MILLVILLE 

In 1886, Henry Bovis, a French Canadian, and his associates purchased property 

at the head of the Watson Bayou and built the St. Andrew Lumber Co., a lumber 

mill with a capacity of 20,000 feet per day. The mill attracted laborers looking for 

work during the beginning of hard times that lead to the Great Depression. The 

mill workers built Millville, a small town around the lumber mill. The Millville 

51 
Human Influence 

post office opened in 1899. Bovis ran the mill until he sold it to a foreign 

organization lead by Julius Freyer. Afterwards, Bovis went into mercantile and 

was Millville’s postmaster until his death in 1907. Freyer renamed the mill the 

German-American Lumber Co., expanded the mill to a holding capacity of 

80,000 feet per day, and modernized the mill with a planing mill and a dry kiln. 

At the time the company incorporated in 1901, the company held 150,000 acres 

for growing timber and $250,000 in capital. Hundreds moved to Millville to work 

for the mill. According to the Panama City Pilot newspaper, the mill burned 

down on December 19, 1906. The German-American Lumber Company set out 

to rebuild the lumber mill and by September 2007, a new lumber mill with the 

capacity of 100,000 feet per day was complete with two bands saws, edgers, 

planing mill, machine shop, and electric plant that produced light for the mill and 

the town. The lumber company also owned a general mercantile store where the 

workers who worked for store credits purchased their goods. Millville developed 

into an industrial and commercial center for the Saint Andrew Bay area. The area 

once again began to prosper with new settlers, homesteaders, land developers, 

and exports including fish, salt, and lumber. By 1911, in addition to the GermanAmerican Lumber Mill and its company store, Millville had six general stores, two 

grocery stores, a drug store, a hat shop, a large gym, a movie theater, a skating 

rink, a livery, a millinery, and a turpentine operation. 

In 1913, Millville incorporated and W.I. Singletary was elected as the first mayor. 

According to the 1920 census, Millville had a population of 1,887 people and was 

still the largest town in the area with Panama City’s population coming in second 

(Houpt 2007 and Centennial.) The area of Millville continued to prosper until 

World War I broke out in 1914. At that time, the federal government seized the 

German-American Lumber Co. under the Trading with the Enemy Ac after 

William L. Wilson and Mitchell Palmer of the Alien Property Custodians reported 

that Millville was a cover-up for a German naval base and all residents were of 

52 
Saint Andrew Bay 

German descent. Of course, all the local residents in the Saint Andrew bay area 

knew this was false. G. M. West, the publisher and editor of local newspapers, 

published in the July 1918 edition of the St. Andrew Bay News that Washington 

was camouflaging the truth to make it easier for citizens to accept the force sale 

of the German-American Lumber Company worth $4,000,000 for a mere 

$1,000,000 to W.C. Sherman, and Minor C. Keith. The lumber company was 

sold to W.C. Sherman, and Minor C. Keith in 1918 for $1,425,000 and they 

renamed the lumber mill St. Andrew Bay Lumber Co. In 1920, Sherman bought 

out Keith and renamed the lumber mill Sherman Lumber Co. The mill closed in 

July 1930 when it ran out of lumber. Several attempts were made in the year after 

it closed to burn it down. Three unknown arsons finally accomplished burning 

the mill down with gasoline or kerosene on March 22, 1931. Unfortunately, the 

fire was so intense that the fire burned nineteen homes down that were located in 

Millville near the mill. Sherman received a check from the insurance company 

for the mill, but he never rebuilt it (Panama City Pilot: July 1918, March 13, 1919, 

Jan. 20, 1928, July 1930, March 1931, Nov. 19, 1931 and St. Andrew Bay News, 

July 1918.) Luckily, for the Millville residents and unemployed lumber mill 

workers, the Southern Kraft Co. chose Bay Harbor, just one mile south of the 

Sherman lumber mill to build a paper mill facility that opened in February 1931 

(Centennial.) The paper mill known today as the Smurfit-Stone Container 

Corporation is still a major provider of jobs in Bay County as seen in Figure 8 on 

the following page. 

53 
Human Influence 

54 

Figure 8. Aerial image of Millville with paper mill in bottom right 

corner. Notice the watercolor of Watson Bayou from the discharge 

of the paper mill (FDCA 2009.) 
Saint Andrew Bay 

PANAMA CITY EXPANSION 

The area continued to grow with a real estate boom in the 1920’s. Much to the 

dismay of the residents of Saint Andrew, Bay Harbor, and Millville, a bill 

introduced through a special session in November 1925 combined the 

municipalities of Millville, Panama City, and Saint Andrew. A year later, Bay 

Harbor, Millville, and Saint Andrew annexed into the incorporated limits of 

Panama City (Houpt 2007.) Dixie-Sherman Hotel, the areas first high-rise, built 

on the corner of Fifth Street and Jenks Avenue in 1926 stood nine stories high 

and was a focal point until it’s demolishing in 1970. Also in 1926, Bay High 

School on Harrison Avenue opened and it combined the students from the small 

high schools located all over the county. 

Thanks to the efforts of McKenzie, the mayor of Harrison, work began on the 

construction of the Coastal Highway along the Gulf coast through Panama City 

and work began on the construction of the bridges that connect Panama City 

along the highway to the east and west of the bays. In 1929, the state opened 

both the DuPont and Hathaway bridges crossing the bays, which allowed tourist 

an east-west access to Panama City and Panama City Beach (Centennial.) Also, 

Mayor McKenzie and other leaders in Bay County worked together to bring the 

Southern Kraft Co., a subsidy of the International Paper Co. to look at Bay 

County as a possible location for Florida’s first paper mill. In 1930, the Southern 

Kraft Co. came and liked the cutover land that could easily be reseeded. They 

purchased large quantities of land and set out to reseed the land. Construction 

and clearing for the $10,000,000 facility on the Bay Harbor at the entrance to 

Watson Bayou began in April 1930 and was finished in February 1931 ahead of 

schedule. In 1932, Mr. and Mrs. J. B. Atkinson, Jr. donated 292 acres tract that 

was used as a private airstrip to Panama City for a municipal airport. The airstrip 

was called Atkinson Field. In 1938, the construction for an airport and two long 

55 
Human Influence 

runways began. With the completion of the airport, Atkinson Field became 

Fannin Field, in honor of Panama City’s mayor at that time (Wikipedia 2009.) 

Due to the efforts by McKenzie and others, the Corps of Engineers completed 

the cutting and dredging of the West Pass navigation channel in 1934, which 

allowed ships a safe route from the Gulf of Mexico to the paper mill and Panama 

City port (Centennial.) In 1935, Springfield a city northwest of Parker and 

northeast of Millville incorporated as the area continued to grow with the paper 

mill (Maddox and King 2009.) 

World War II effected Bay County’s economy and population immensely when 

areas around the bays were chosen as sites for the Army Air Corps and the U.S. 

Navy. The Army Air Corps opened Tyndal Field, named in honor of World War 

I Lieutenant Frank B. Tyndall, on Bay County land just southeast of DuPont 

Bridge as a gunnery school in 1941. Many men trained at the gunnery including 

Clark Gable who joined the Air Force in 1942. He spent nine weeks at Tyndall 

Field and graduated with silver wings on January 6, 1943(Womack 1997.) Since 

World War II, Tyndall Field has grown and it is now referred to as Tyndall Air 

Force Base (Womack 2009.) 

In 1942, the Navy opened a base on land by St. Andrew Bay in Panama City 

Beach just southwest of the Hathaway Bridge. In addition, J. A. Jones 

constructed the Wainwright Shipyard, named in honor of General Jonathan 

Wainwright, just east of the Hathaway Bridge at Dyer’s Port. This is the same 

location as today’s Port Panama City. In 1942, Wainwright Shipyard hired 18,000 

workers which built the 102 liberty ships and 6 tankers used in World War II 

(Maddox and King 2009, Centennial, Cvitkovitch 2000, and Houpt 2007.) 

In 1945, the Naval Base was recommissioned as a U.S. Navy Countermeasures 

Station. It has changed its name many times over the years, and it is now 

56 
Saint Andrew Bay 

currently known as Naval Support Activity (NSA) Panama City. Wainwright 

Shipyard began dismantling the Liberty ships used in World War II. Of which, 

some were built in Wainwright Shipyard in earlier years. Wainwright Shipyard 

continued to build boats and ships. (Maddox and King 2009, Houpt 2007.) The 

majority of the servicemen who spent some time stationed in Panama City settled 

down in the area after the war (Houpt 2007 and Womack 2009.) 

TABLE 3. DEPICTING THE TOWNS AND THEIR 

SCHEDULE OF INCORPORATION. 

The area continued to grow and many cities incorporated in time as shown in 

Table 3. The post-war time saw continued growth of industry, and beach 

development aimed at tourism (Womack 2009.) As early as the 1940’s, water 

supplies were threatened with saltwater intrusion from the fast population 

growth. As the cities grew, the groundwater table dropped and drawdown was 

57 
Human Influence 

occurring near well pumps. By 1950, the population of Bay County grew to 

42,689. According to Richards, the groundwater withdrawal from the Florida 

aquifer in the coastal section of Bay County in 1960 was 15 to 20 million gallons 

per day. This caused a drawdown near the center of the pump that exceeded 125 

feet. A new source of water was needed to supply the growing area. In 1957, a 

Special Act of Legislature gave Bay County permission to build and operate the 

Deer Point Lake Reservoir. In order to build the reservoir, Bay County impound 

4572 acres including the upper portion of North Bay at Deer Point with a sheet 

pile dam with a spillway fixed at 4.5 feet above sea level (NWFWMD 2001 and 

NWFWMD 2008.) The dam completed in 1961, held 32,000 acre-feet of water. 

Originally, the reservoir was saltwater, but over time it flushed out. In the 

beginning, the reservoir was used for commercial water supplies and later as the 

salinity dropped to zero, the reservoir supplied both commercial and drinking 

water to all of Bay County. The Northwest Florida Water Management District 

(NWFWMD) protects the reservoir. The NWFWMD monitor the 282,880 acres 

watershed that drains into the reservoir. Today, all Bay County municipalities 

receive water from the reservoir (Richard 1997 and NWFWMD 2001.) On 

average, Bay County pumps 50 million gallons per day of water to be used as 

potable water (NWFWMD 2008.) 

With the water issue resolved and the introduction of air conditioning to Bay 

County, the area grew in popularity. Both resident and tourist enjoyed the 

beaches in the spring and summer and visited popular location like the Hangout, 

Miracle Strip Amusement park, and Petticoat Junction. Once spraying for dog 

flies began in the 1970s, visitors from the northern states and Canada came to 

stay for the fall or winter season. During this time, condominiums constructed 

on the beach became very popular (Womack 2009.) Growth continued and 

larger and taller condominiums were built on the beaches until the recent 

recession period brought everything to a halt. Even though the construction of 

58 
Saint Andrew Bay 

59 

condominiums and homes stopped, hotels, restaurants, and retail stores catered 

to tourism continued. Pier Park built across the street from the beaches of the 

Gulf of Mexico is an entertainment complex with outdoor village style stores and 

restaurants, eighty-acre city park to hold special events and summer concerts. 

Many of the events scheduled for Panama City Beach have some or all of the 

activities held here. Tourism has grown in the area to include Spring Breakers, 

Motorcyclists for Thunder Beach Rallies, middle class families, and even upscale 

tourist. According to Cvitkovitch, recent data showed four million of the seven 

million visitors who came to northwest Florida came to Bay County. The new 

airport recently named Northwest Florida Beaches International Airport when 

completed in 2010 should bring increase opportunities for growth to Bay County. 
60 

. 

 A stormwater pipeline buried under 

sand on the beach in Panama City 

Beach. Photographed by Pamela 

Brown. 

View of the same stormwater pipeline above. Photograph shows the 

constant stream of water that is unrelated to rain events that flows into 

the Gulf of Mexico each day. Photographed by Pamela Brown. 

Department of Health 

matter. This beach access is 

500 feet from the one my 

family and I use. There was 

not any notice at that beach 

access although it shares the 

same water. Photographed by 

Pamela Brown. 

Advisory recommending people 

not to swim at this beach in 

Panama City Beach on the 

Gulf of Mexico due to high 

bacterial count from fecal 
Saint Andrew Bay 

Chapter 5 

ENVIRONMENTAL CONCERNS AND SOLUTIONS 

Although the Department of Environmental Protection(DEP) has determined the water from 

Econfina Creek and Sandy Creek to be the best quality, the Department of Health(DOH) has 

issued a fish consumption advisory for Largemouth bass, Bowfin, and Gar caught in the Deer 

Point Lake Reservoir due to high mercury content. DOH recommends limiting the listed fish to 

six ounces per month to avoid the potential for adverse human health effects from mercury. 

LAND USE- PAST, PRESENT, FUTURE 

Most of the counties in the SABE watershed have small populations that do not 

affect the water quality of the watershed with the exception of Bay County. 

Calhoun County, which borders northeastern Bay County, does not have any 

significant towns in the watershed and the total population count in 2008 was 

13,617. Gulf County, due south of Calhoun County and borders southeastern 

Bay County, has the towns of Port Saint Joe and Mexico Beach in the watershed. 

The county population in 2008 was 15,667 with an estimated 3,638 (Census 2009) 

living in Port Saint Joe and an estimated 1,033 living in Mexico Beach. Jackson 

County, due north of Calhoun County and borders the northern tip of Bay 

County, does not have any of its eleven municipalities in the watershed and the 

total population count in 2008 was 49,656. Walton County, which borders the 

southwestern part of Bay County, does not have any significant towns in the 

watershed and it has a total population count of 58,837 as of 2008. Washington 

County, due north of Bay County, does not have any of its five municipalities 

located in the SABE watershed, and its population count was 23,928 as of 2008. 

61 
Environmental Concerns and Solutions 

The 2008 population count for Bay County was 163,946 with seven 

municipalities and seven unincorporated cities all in the watershed (Wikipedia 

2009 and Census 2009.) 

Like most counties in Florida, Bay County is experiencing urban sprawl. Urban 

sprawl occurs as cities grow and housing within the city becomes limited. 

Developers build homes on the outer perimeters of the city, and families who 

want a cheaper home away from the congestion of the inner city move there. As 

the outer area grows, businesses follow the families to the outer perimeters of the 

city and establish gas stations, restaurants, and shopping centers. Unfortunately, 

most urban sprawl occurs before a sufficient land use plan is developed. Thus 

poor land use occurs in vulnerable areas. In Bay County, a good example is the 

cities that developed along the shores of the bay or coastline. Many marshes 

were filled, many dunes flattened, and many habitats lost during this development 

stage. In addition, the development of cities reduces the tree coverage and 

increases the air and water pollution as more hard surfaces cover the urban areas. 

In the past, Bay County’s growth has concentrated in the south portion of the 

county around the bays. Evidence of growth without adequate land use zones 

can be seen in the cities where businesses and industries intermingle with 

residential development. However, Bay County does have some advantages over 

many of the counties in the southern part of the state. For one, water covers 

over one-third of the county. In addition, it has an advantage of limited available 

land to develop, as St. Joe Paper Co. (St. Joe) owns over half of Bay County’s 

private land. Thus, St. Joe has unintentionally controlled urban sprawl by 

purchasing all available land in the 1930s to seed furrowed rows with slash pines 

and leave the pines to grow. Seventy years later, the slash pine rows evolved into 

forest as succession of the land lead to continued growth and an understory 

developed. In time, the Bay County residents forgot the lands were privately held 

62 
Saint Andrew Bay 

and most saw the land as conserved public land. Nevertheless, all this changed 

in the 1990s when St. Joe transitioned from the silviculture industry to land 

developer. At that time, Panama City-Bay County International Airport (Airport 

Authority) came to St. Joe with the idea of moving the existing encroached 

airport out to St. Joe’s property on the north side of the bay. St. Joe agreed to 

explore the idea of relocating the airport and even went so far as to donate 4,000 

acres for the new airport. In the meanwhile, St. Joe began developing their one 

million acres of land in Florida into residential communities like Watercolors at 

Seaside with the help of Peter Rummell, former Disney real estate executive. In 

the decade to follow, many communities were developed along the coastal lands 

of Florida. Bay County residents and activist knew that eventually their 

conserved forest would be converted into residential communities as well. St. Joe 

was aware that the residents of Bay County did not want the land developed and 

the residents saw St. Joe as a threat. In order to avoid opposition, St. Joe decided 

to include the residents of Bay County, activist, environmentalist, property 

owners, and government officials in the planning of the 72,500 acres community. 

In 2001, Bay County, Airport Authority, and St. Joe began the process of 

developing the West Bay Sector Plan for the new airport and surrounding land 

through community outreach workshops. The West bay Sector Plan was 

completed in 2007 with open-space preservation areas designed as wildlife 

corridors; environmental sensitive land around the bay designated as protected 

land; economic development zones for residential, commercial, and industrial 

growth; planned road infrastructure and future mass transportation; public 

facilities including schools, libraries, and parks; and utilities as seen in Figure 10. 

63 
Environmental Concerns and Solutions 

64 

Figure 10. West Bay Sector Plan with conceptual land use categories 

including transportation and other facilities. 
Saint Andrew Bay 

In November 2007, the Airport Authority broke ground on the airport relocation 

project in West Bay (News Herald, Nov. 2, 2007.) According to the Airport 

Authority, “the project is moving along, should be completed on time, and 

should open on schedule in May 2010.” This spring the project had problems 

with excessive rain and erosion. DEP stepped in and fined both the 

environmental consultant ($200,000) and the contractor ($250,000) for its lack of 

site preparation and stormwater pollution prevention. In September, DEP fined 

Phoenix, the contractor, $1.7 million dollars for cutting corners in its Stormwater 

Pollution Prevention Plan, which allowed stormwater and sediments to runoff 

into nearby protected wetlands (News Herald, Sep. 18, 2009.) Since that time, 

Gary Kelly, the CEO of Southwest Airlines announced it would be bringing 

service to the new airport with eight non-stop flights from four different cities 

(News Herald, Oct. 21, 2009.) The airport and the West Bay Sector Plan are 

expected to attract many businesses and opportunities for the Bay County area. 

In the process, the planned community should promote growth and urban sprawl 

development in the SABW. 

EROSION 

Erosion can come as a result of severe storms that surge through the bays or 

urban development and clearing of the land. In the past, erosion caused by storm 

surges has changed the landscape of the Florida coast. An assessment of the 

Florida maps of 1827, 1855, 1934, 1945, 1968, and 1970 reveals the changes in 

the shoreline over the years from erosion (West, 1922 and Landry, 1994.) 

According to Landry, the erosion is slow with an overall erosion rate of 0.7 feet 

per year and it is due to storm surges, and human modifications including beach 

stabilization and navigation controls. 

65 
Environmental Concerns and Solutions 

66 

As indicated by the changes noted with a closer examination of the islands on 

Williams’ 1827 West Florida map in Figure 9 and his original map in Figure 10, one 

or more severe storms passed through the area sometime between 1764 and 

1821. These storms broke the single long sand spit lying between the Gulf of 

Mexico and Saint Andrew Bay into three islands with passes between them. 

From east to west on the map, Williams marked East Pass, Crooked Island 

formed in 1779 (Landry, 1994), West Pass, Hammock Island (the largest island), 

Shanty Cove Pass, and the small one-mile long Sand Island. Sand Island no 

longer existed by the time the U.S. Coast Survey published their 1855 map. 

According to West, eventually, the pass through Spanish Shanty Cove closed and 

the West Pass closed in 1861. After the West Pass closed, the East Pass 

deepened to twenty-one feet. Storm events in 1886 and 1904 opened up the 

Shanty Cove pass, but after both events, the westerly winds and tides eventually 

closed the pass back up again (West, 1922.) 

Figure 9. A closer view of Williams’ Map of West Florida of the area 

shows three islands at the entrance to Saint Andrew Bay. 

SAND 

 ISLAND 

SHANTY 

COVE 

PASS 

HAMMOCK 

ISLAND 

WEST PASS

CROOKED 

ISLAND 

EAST PASS
Saint Andrew Bay 

67 

Figure 10. Williams' Map of West Florida as the area appeared during 

his survey from 1821to 1826. The map was published in 1827. 
Environmental Concerns and Solutions 

WATER RESOURCES –PAST, PRESENT, AND FUTURE 

The SABW contains numerous ponds, lakes, streams, and wetlands. These 

surface waters seep into the groundwater and eventually flow into the Floridan 

Aquifer. The Floridan Aquifer is recharged by the karst ponds in the northwest 

portion of the SABW and the water flows through the Floridan Aquifer into the 

Econfina Creek. The Econfina flows into the Deer Point Lake Reservoir. Deer 

Point Lake is the main source of potable water and because it is a surface water 

source, it is vulnerable to drought and storm surge. Econfina Creek water 

flowing into Deer Point Lake has been determined as the best quality of water; 

however, Deer Point Lake has high levels of mercury from an unknown source. 

The cause could be pre-reservoir time since no preliminary studies of the upper 

portion of North Bay were taken to see what effects flooding a five feet deep 

soft estuarine bottom and seagrass beds with freshwater might have on the 

water quality or health of the future reservoir (NWFWMD 2008.) As a result, 

Deer Point Lake experienced surplus growth of submerged aquatic vegetation 

(SAV) beginning in the 1960s. Attempts to control SAV included lake draw 

downs in the winter months in an effort to expose SAV to cold and the 

introduction of grass carp from Amur River in Mongolia. By 1999, the SAV 

was no longer the focus as lemon bacopa grew uncontrollably over almost half 

of the lake’s surface (NWFWMD 2008.) NWFWMD created a Surface Water 

Improvement and Management Plan (SWIM) for the SABW in an effort to 

protect water quality of Deer Point Lake. NWFWMD has purchased 41,000 

acres along Econfina Creek and areas of water recharge, since the SWIM was 

established. Water quality is monitored by NWFWMD on a regular basis 

through numerous stations along Econfina Creek and in Deer Point Lake 

(NWFWMD 2009.) 

68 
Saint Andrew Bay 

Present progress in Bay County includes developing inland well pumps, 

treatment facilities, and infrastructure to protect the environment and provide 

an additional water supply for the population increase. Continued wetland 

restoration projects for Cat Creek, Devils Hole, Ward Creek West in addition to 

future projects developed to restore wetlands in Lynn Haven have been 

proposed. The 719.3-acre Ward Creek West is currently being restored from its 

existing furrowed row slash pine to a natural wet pine flatwoods and savanna. 

So far, over 140 acres have been planted with wiregrass along the creek to 

enhance wetland functions 

NONPOINT SOURCE DISCHARGE 

Stormwater runoff has been identified the primary non point source discharge 

of pollutants in the SABW. Stormwater runoff from developed areas flows into 

nearby surface waters. It carries pollutants from lawns, roads, buildings, farms, 

and construction sites. The pollutants are usually in the form of heavy metals, 

oil, grease, sediments, nutrients, bacteria, and pesticides. Pollutants can seep 

from surface water in to groundwater. 

Stormwater runoff is managed by a permitting program. The state of Florida 

requires all new development except single-family residences to include a 

stormwater management plan using Best Management Practices (BMP) to 

control flooding and filter the water of impurities. BMP utilized in the area are 

detention ponds, retention ponds, and wetland filtration. Bay County, in 

accordance with the State’s stormwater regulatory program, developed a 

Stormwater plan in 1994. The program’s primary goal was to protect potable 

drinking water, reduce pollution from entering surface waters, and control 

floodwaters. The SWIM plan mention previously contains some funds to 

retrofit existing stormwater infrastructure in Bay County, unfortunately, there 

69 
Environmental Concerns and Solutions 

were not enough funds for all the projects, and municipalities must obtain their 

own funds to complete their projects. 

Non-profit organizations have stepped in to help find funding for the 

stormwater projects and other important environmental projects in the SABW. 

In addition, they educate the public and provide the facts on environmental 

issues so the public can make sound choices. One notable group is Bay 

Environmental Study Team (BEST) also known as Friends of St. Andrew Bay. 

They have been at the forefront for many studies and restoration efforts in the 

SABW. Their latest accomplishment is the release of their new documentary 

film, Fragile Shores: The Waters of the St. Andrew Bay. This documentary focuses 

on the impacts of pollutants in stormwater runoff carried to Saint Andrew Bay 

by constructed drainage systems in urban areas. The documentaries goal is to 

express the growing threat of pollutants to the health of the bay and share 

solutions that communities can do to prevent pollutants from entering the bay. 

In addition, volunteers with the non-profit organization, Saint Andrew Bay 

Resource Management Association (RMA) have been monitoring the water 

quality in the bays, bayous, and their tributaries since its establishment in 1990 

(NWFWMD 2008.) 

WASTEWATER 

Wastewater at an average rate of 100 gallons per day must be treated before 

discharging into nearby waterbodies. Groundwater discharging by spray fields, 

percolation ponds, and nonsurface water points is considered partially reusable 

since discharge can enter local groundwater. Surface water discharge is done on 

a permit basis based on water quality effluent limits. Bay County is making 

progress in reducing the level of effluent entering the SAB. In addition, Bay 

County’s first Advance Wastewater Treatment (AWT) plant began operation in 

70 
Saint Andrew Bay 

1999 to treat domestic wastewater. Currently all municipalities in the SABW 

have AWT facilities. All municipalities discharge into the Saint Andrew Bay 

except Panama City Beach who discharges into West Bay. According to 

NWFWMD, total allowance of wastewater to the SAB is 50 million gallons per 

day and to present day total discharges are under the total allowed and water 

quality is monitored RMA (NWFWMD 2008.) However, with increasing 

population and tourism, the level of domestic treated wastewater will increase 

and improved techniques will be required to maintain water quality. Efforts in 

Bay County to reuse treated wastewater on golf courses are currently being 

implemented. In addition, Panama City Beach is currently reusing wastewater 

for lawn irrigation and has proposed a plan to treat domestic wastewater with a 

wetland treatment site north of Lake Powell. Panama City Beach must obtain 

funding to complete the project (NWFWMD 2008.) Future projects include 

reusing wastewater for cooling generators at the Lansing Smith power plant 

POINT SOURCE DISCHARGE 

Point source discharge (PSD) pollutants are specific pollutants discharged up to 

a specific amount into the environment through a permitting program that sets 

the limits for quantity and type of pollutants allowed. No studies have been 

completed to determine the maximum loads of PSD pollutants in the SABW 

waterbodies. For example, Arizona Chemical Company and the Stone 

Container Corporation are permitted to discharge industrial wastewater into 

Military Point Lagoon. 

71 
Environmental Concerns and Solutions 

AIR QUALITY 

According to EPA, the SABW is classified as "attainment,” which means that 

documented air pollution levels are below the minimal standards set by the 

National Ambient Air Quality Standards (NAAQS.) The pollutants levels are 

measured nitrogen dioxide (NO2), sulphur dioxide (SO2), carbon monoxide 

(CO), particulate matter less than 10 microns in diameter (PM10), lead (Pb), and 

ozone (O3.) The standard minimums are levels that protect public Division of 

Air Source Management has one station located at the Department of Health in 

downtown Panama City for monitoring PM10 levels in air quality. In addition, 

there is an ozone monitor in Panama City Beach to monitor ozone pollution and 

transports along the coast of the Gulf of Mexico. This data can be obtained at 

www.epa.gov/air/data/index.html. Three industrial sources of air pollutants are 

Arizona Chemical, Lansing Smith Power Plant, and Stone Container 

(NWFWMD 2008.) . The chemical levels for PSD in Bay County can be 

viewed on Table 4 (NWFWMD 2008.) 

Table 4. Different air pollutants from sources that are permitted to 

discharge in the SABW. 

72 
Saint Andrew Bay 

73 

LANDFILL AND INCINERATOR 

The landfill is located off the Steelfield Road in the western portion of the county 

and is not actually located in the SABW. It is located in the Choctawhatchee Bay 

drainage basin to the west. However, the Bay County incinerator is located in the 

northeastern portion of the county in the SABW. It is a Refuse to Energy (RTE) 

facility that buns garbage to generate electricity. The RTE produces 

approximately 11 MW and sells the electricity to Gulf Power (NWFWMD 2008.) 

POWER PLANT 

Lansing Smith Coal Fired Power Plant located 15 miles north of Panama City on 

the shore of North Bay is operated by Gulf Power Company, a subsidiary of 

Southern Co. It has four generating units producing 945,000 with “Low NOx” 

burners to reduce nitrogen dioxide emission to below its 1992 rates. In addition, 

Gulf Power has invested in environmental controls that further reduce NOx, 

SO2, and mercury levels (NWFWMD 2008.) 
74 

Pamela Brown collecting trash on the beach near Lake Powel, while 

ρ

Ellie Leah records the type of trash collected. Surprisingly, water bottle 

caps ended up having the highest collection count. 

Photographed by Erika Brown. 

Here are other volunteers collecting trash and recording data near 

Lake Powell on National Beach Clean Up day. 

Photographed by Pamela Brown. 
Saint Andrew Bay 

CONCLUSION 

St. Andrew By has proven a “blissful haven” for many since this prophetic sentence was penned 

(by Caroline Hentz), and many more will find peace upon its beautiful shores in days and years 

to come.--George Mortimer West, 1922.

In the past, Florida’s wonderful climate and amazing natural beauty attracted 

people to Florida for more than four centuries. Many areas around water 

resources like springs, lakes, rivers, and bays were appealing to settlers who 

were looking for a place to call home. In the beginning, resources were plenty 

and no one thought they would ever need to plan for a time when resources 

became scarce. In time, these areas grew from small settlements to towns, and 

eventually to large cities. As resources are used and natural systems like 

wetlands, rivers, lakes, bays, and beaches are altered for our wants and needs, 

the watershed including the surface water and groundwater that we depend on 

are altered too. Unfortunately, the development of urban areas has a negative 

impact on the natural systems, and currently our water resources are defenseless 

to impacts or changes in surface water and groundwater flow, and water quality. 

The water resources that attracted people to Florida need protection if we 

expect them to be here for us in the future. To save our water resources, we 

must save our watersheds. 

Watersheds are important in the development and continuance of our societies. 

They provide water for potable, personal, business, and industrial uses. Saint 

Andrew Bay watershed is no different from any other area of urbanization. The 

75 
Conclusion 

76 

communities in the SABW need to unite and work together. They must focus 

on the SABW’s future land-use plan including residential, commercial, 

industrial, and municipal uses. They must reduce the total nonpoint and point 

source pollutants. They must improve the water quality for freshwater, 

brackish, and saline waterbodies. Finally, they must protect the SABW’s species 

biodiversity and habitats through conservation if they truly want to keep SABW 

as one of Florida’s most diverse watersheds. 
BIBLIOGRAPHY 

Annual Estimates of the Population for Incorporated Places in Florida, 

Listed Alphabetically: April 1, 2000 to July 1, 2004. U.S. Census 

Bureau. Date verified July 23, 2009. 

http://www.census.gov/popest/cities/tables/SUB-EST2004-04-12.xls

Bay County History and Information. My Florida Genealogy. Date verified 

September 15, 2009. http://www.myfloridagenealogy.com/fl-countybay.html

Biodiversity of the Northern Gulf Coast. Northwest Florida Environmental 

Conservancy, Part 2. Northwest Florida Environmental Conservancy 

(NWFLEC.) Date verified June 2009. <http://www.nwflec.com/>

Brochure "Greeting from Bay County Florida," 1915. Date verified August 

10, 2009. http://fcit.usf.edu/FLORIDA/docs/b/baycounty.htm

Clifford, P. A. 1888. An Authentic Report and History of St. Andrew, Florida. 

Cleveland, OH: publisher unknown. 

Coultas, C.L., and Y.P.Hsieh. 1997. Ecology and Management of Tidal 

Marshes. New York: Chapman and Hall/ International Thomson 

Publishing. 

Crowe, J.B., W. Huang, F.G. Lewis. 2008. Assessment of Freshwater Inflows 

to North Bay from the Deer Point Watershed of the St. Andrew Bay 

System. Havana: Northwest Florida Water Management District. Water 

Resources Assessment 08-01 

Cvitkovitch, Eileen. 2000. Images of America: Bay County. Charleston, SC: 

Arcadia Publishing. 

Department of Community Planning. Florida Department of Community 

Affairs. Date verified October 5, 2009. 

http://www.dca.state.fl.us/FDCP/ 

DCP/waterfronts/Communities/Millville/index.cfm

77 
Bibliography 

Description of the Apalachicola-Chattahoochee-Flint River Basin Study. 

United States Geological Survey (USGS.) Date verified July 24, 2009. 

http://ga.water.usgs.gov/nawqa/main.description.html

Econfina Creek: The Big Picture. Northwest Florida Water Management 

District (NWFWMD.) Date verified July 2009. 

http://www.nwfwmd.state.fl.us/pubs/big_picture/Econfina_Creek.pdf.

Florida. Wikipedia, The Free Encyclopedia. Date verified June 2009. 

<http://en.wikipedia.org/w/index.php?title=Florida&oldid=298081541

Florida Geologic Map. South of Florida Information Access. United States 

Geological Survey (USGS.) Date verified June 2009. 

<http://sofia.usgs.gov/publications/maps/florida_geology/intro.html>

Florida Quick Facts. The State of Florida. Date verified June 2009. 

<http://www.stateofflorida.com>

Florida Watershed Management Approach. Florida Department of 

Environmental Protection (FDEP.) Date verified June 2009. 

<http://www.dep.state.fl.us/water/watersheds/.> 

Google Maps. Google. Date verified July 24, 2009. http://maps.google.com/

Gornitz, Vivien. January 2007. Sea Level Rise, After the Ice Melted and 

Today. NASA Goddard Institute for Space Studies (GISS.) Date verified 

July 28, 2009. http://www.giss.nasa.gov/research/briefs/gornitz_09/

Himes, Dr. J., and P Moler. 2007. A List of the Amphibians and Reptiles of 

the Saint Andrew Bay Ecosystem, Florida. Friends of St. Andrew Bay, 

Biodiversity Subcommittee. 

http://friendsofstandrewbay.org/publications/Amph_Reptiles_SAB.pdf

Hobson, Will. Dozier’s East Pass Mission Continues. Panama City News 

Herald. July 6, 2009. Date verified July 2009. 

http://www.newsherald.com/news/pass-75542-county-east.html

Home. Historic St. Andrew. Date verified July 29, 2009. 

<http://www.historicstAndrew.com/> 

78
Saint Andrew Bay 

Houpt, A. P., and Saint Andrew Waterfront Partnership. 2007. Images of 

America St. Andrew. Charleston SC: Arcadia Publisher. 

Hurricane Katrina. Wikipedia, The Free Encyclopedia. Date verified June 

2009. http://en.wikipedia.org/w/inedx.php?title=Hurricane_Katrina& 

oldid= 299159788

E. J. Keppner PhD. 2002. An Inventory of the Biological Resources 

Reported from Saint Andrew Bay Estuarine System, Bay County, 

Florida. A Revision. St. Andrew Bay Environmental Study Team, Best 

Publication February 2002, 119 pp. 

Kelly, P. Sep. 18, 2009. DEP fines Phoenix $1.7 million with DEP Report. 

News Herald of Panama City. Date verified October 15, 2009. 

http://www.newsherald.com/news/dep-77612-report-bay.html

Keppner, E.J., and L.A. Keppner. 2008. The St. Andrew Bay Ecosystem, our 

Environment. A Revision of “A Look to the Future.” St. Andrew Bay 

Environmental Study Team, BEST Publication 0004, 90 pp. 

Keppner, E.J., and L.A. Keppner. 2005. Tracked and Protected Species in 

Bay County and the St. Andrew Bay Ecosystem, Florida. St. Andrew 

Bay Environmental Study Team, BEST Publication 0007, 52 pp. 

Landry, L.A. 1994. Underwater Archaeological Survey of Panama City 

Harbor and Pass, Bay County, Florida. Mobile District U.S. Army 

Corps of Engineers, Contract # DACW01-94-D-0055. 

Madddox, K. and S. King. The History of Bay County Florida. Tommy 

Smith Elementary School. Date verified September 15, 2009. 

http://www.beaconlearningcenter.com/weblessons/bayhistory

Map Gallery. Bay County Online. Date verified July 24, 2009. < 

http://new.co.bay.fl.us/gis/gallery2.php?agreecheck=on> 

Milanich, J. T. 1998. Florida’s Indians from Ancient Times to Present. 

Gainesville: University Press of Florida. 

Mitsch, W. J. and J. G. Gosselink. 2000. Wetlands: Third Edition. New York: 

John Wiley and Sons, Inc. 

79 
Bibliography 

Moore, C. 1918. The Northwestern Florida coast Revisited. Philadelphia: 

Journal of the Academy of Natural Sciences of Philadelphia, Volume: 

XVI. Date verified July 29, 2009. . http://books.google.com.

Northwest Florida Water Management District. 2001. St. Andrew Bay 

Watershed Surface Water Improvement And Management Plan.

Havana: Northwest Florida Water Management District (NWFWMD.) 

Program Development Series 2000-2. 

Odum, H.T., E. C. Odum, and M. T. Brown. 1998. Environment and Society 

in Florida. New York: Lewis Publishers, CRC Press LLC. 

Offley, E. Nov. 2, 2007. New Bay Airport Gets Off Ground. News Herald 

of Panama City. Date verified October 9, 2009. <http://www.visionary 

realestatesolutions.com/News/New_Bay_Airport.pdf> 

Panama City. 2009. Encyclopedia Britannica Online. Date verified July 29, 

2009. <http://www.britannica.com/EBchecked/topic/440829/PanamaCity>. 

Richards, Christopher J. 1997. Delineation of the Floridian Aquifer Zone of 

Contribution for Econfina Creek and Deer Point Lake: Bay and 

Washington Counties, Florida. Havana: Northwest Florida Water 

Management District. Water Resources Special Report 97-2. 

Saint Andrew Bay: The Big Picture. Northwest Florida Water Management 

District (NWFWMD.) Date verified June 2009. 

<http://www.nwfwmd.state.fl.us/pubs/big_picture/st_andrew_bay.pdf> 

Schenker, Pamela. 2009. Florida Demographic Summary. The Florida 

Legislature. Office of Economics and Demographics Research (EDR.) 

Date verified June 2009. 

<http://edr.state.fl.us/population/popsummary.pdf> 

Soil Conservation Service. 1984. Soil Survey of Bay County Florida. National 

Cooperative Soil Survey. United States Department of Agriculture, pp 163. 

S.S. Tarpon (Shipwreck.) Florida Shipwrecks: 300 Years of Maritime History. 

National Park Service (NPS.) Date verified September 15, 2009. 

http://www.nps.gov/history/nr/travel/flshipwrecks/tar.htm

80
Saint Andrew Bay 

81 

St. Joe Company: Form 10-K, Amendment 1. United States Securities and 

Exchange Commissions (USSEC.) Date verified July 23, 2009. 

<Hhttp://shareholder.api.edgaronline.com/efx_dll/edgarpro.dll?FetchFilingRTF1? 

sessionid=y3_jWba3uCR0o5B&ID=951120&PageBreakStyleID=2H>

Surface Water Quality Standards. Florida Department of Environmental 

Protection (FDEP.) Date verified July 23, 2009. 

Hhttp://www.floridadep.org/legal/Rules/shared/62-302/62-302.pdf 

Urban Sprawl. 2009. Wikipedia. Date verified October 15, 2009. 

Hhttp://en.wikipedia.org/wiki/Urban_sprawl

Watershed Management. Florida Department of Environmental Protection 

(FDEP.) Date verified July 22, 2009. 

Hhttp://www.dep.state.fl.us/water/watersheds/

West, G. M. 1922. Saint Andrew, FL. Saint Andrew: Panama City Publishing 

Company. Hhttp://books.google.com.

Whitney, E., D.B. Means, and A. Rudloe. 2004. Priceless Florida: Natural 

Ecosystems and Native Species. Sarasota: Pineapple Press, Inc. 

 

Womack, M. 1994. Along the Bay; A pictorial History of Bay County. Norfolk, 

VA: Pictorial Heritage Publishing Company. 

Womack, M. 1997, December 14. Actor Clark Gable attended gunnery 

school at Tyndall AFB. The News Herald-Panama City. Date verified 

September 25, 2009. 

Hhttp://foronceinmylife.info/cactus_st/article/article122.html

Womack. M. 2007. Brief History of Panama City. Panama City Centennial 

Celebration. Date verified July 29, 2009. 

Hhttp://www.panamacity2009.com/history.htm