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Chapter 1 - Introduction and Background 

645); 

• Establish goals and strategies to guide a 

statewide planning process; 

• Identify state and national outdoor recreation trends and initiatives; 

• Develop and implement an “Open Project 

Selection Process” for Land and Water 

Conservation Fund grants.

 

This plan is part of an outdoor recreation planning process that Florida has pursued since 

1963. The Florida Department of EnvironPurpose and Scope of the Plan 

The purpose of Florida’s statewide comprehensive outdoor recreation plan is to outline 

a five year policy plan and establish a framework for statewide outdoor recreation planning. Section 375.021, Florida Statutes, provides that the plan will document recreational supply and demand, describe current 

recreational opportunities, estimate needs 

for additional recreational opportunities and 

propose means for meeting identified needs. 

The plan is intended to be a broad statewide 

and regional appraisal of the outdoor recreation needs of Florida and a guide for the development of a diverse, balanced statewide 

outdoor recreation system. 

In conjunction with that purpose, the plan is 

intended to fulfill the requirements of the 

Land and Water Conservation Fund Act of 

1965 (P.L. 88-578), which was established 

to create parks and open spaces, protect 

wilderness, wetlands, refuges, preserve 

wildlife habitat and enhance recreational opportunities. Under this program, Florida receives matching grants to acquire and develop outdoor recreation lands and facilities. 

Within the plan, the following issues are required to be addressed in accordance with 

federal planning requirements: 

• Evaluate demand for and supply of outdoor recreation resources and facilities; 

• Conduct studies periodically to estimate 

and analyze outdoor recreation demand; 

• Provide ample opportunity for public participation involving all segments of the 

population; 

• Address current wetland protection strategies as required by the Emergency Wetlands Resources Act of 1986 (P.L. 99-

Section 375.021, Florida Statutes. 

Comprehensive multipurpose outdoor recreation plan. 

(1) The department is given the responsibility, authority, and power to 

develop and execute a comprehensive multipurpose outdoor recreation plan for this state with the cooperation of the Department of Agriculture and Consumer Services, 

the Department of Transportation, 

the Fish and Wildlife Conservation 

Commission, the Florida Commission on Tourism, and the water 

management districts. 

(2) The purpose of the plan is to 

document recreational supply and 

demand, describe current recreational opportunities, estimate the 

need for additional recreational opportunities, and propose means for 

meeting identified needs. The plan 

shall describe statewide recreational 

needs, opportunities, and potential 

opportunities. 
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Outdoor Recreation in Florida, 2008 

semble and disseminate information relative to 

recreation. 

Data analysis for the plan is based on the 

state’s 11 regional planning councils into which 

Florida’s 67 counties are organized geographically so that planning and technical assistance 

activities can be developed and implemented. 

This 11 region approach is consistent with previous statewide outdoor recreation plans (see 

Figure 1.1). 

mental Protection (DEP), Division of Recreation 

and Parks (DRP) coordinates and develops the 

plan according to state and federal legislative 

requirements. Specific planning authority is provided by Section 375.021(1), Florida Statutes, 

which gives DEP specific responsibility, authority and power to develop and execute a comprehensive, multipurpose statewide outdoor 

recreation plan. Additionally, Section 418.12(1), 

Florida Statutes, directs DEP to study and appraise the recreation needs of the state and asSource: Florida Department of Environmental Protection 

Figure 1.1 
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Outdoor Recreation in Florida, 2008 

Outdoor Recreation - A Legitimate 

Role for Government 

Public responsibility for outdoor recreation 

stems essentially from two sources: social 

welfare, and natural and historical resources 

management. As a matter of social welfare, 

outdoor recreation is provided by government as a means of occupying the leisure 

time of its citizens. The responsibility for 

providing outdoor recreation for this purpose 

is primarily local, and is met through a wide 

variety of programs at the local, state and 

federal levels. 

The other basic justification for public outdoor recreation programming involves natural and historical resources management. 

Management of natural and historical resources is a matter of great public concern in 

Florida because of its impact on the quality 

of life for its citizens and visitors. Along with 

other important land uses such as agriculture, forestry, mining, transportation and urban development, outdoor recreation has 

become a major consideration in the allocation of the limited natural resource base. 

Once a natural outdoor recreation area is 

lost to other land uses, it usually cannot be 

reclaimed except with great difficulty and 

expense. It is a proper function of government to ensure that adequate outdoor recreation resources are protected and preserved, and because of the magnitude of the 

task, it is generally accomplished at the state 

and federal levels. 

 

Outdoor Recreation Defined 

Outdoor recreation, broadly defined, is any 

leisure time activity conducted outdoors. 

Within the vast range of that definition lies an 

almost unlimited number of activities, from 

wilderness camping to neighborhood playground use and outdoor performances. 

For planning purposes, the wide range of 

outdoor recreation activities is generally subdivided into "user-oriented" and "resourcebased" recreation. User-oriented types of 

outdoor recreation are those that can be provided almost anywhere for the convenience 

of the user. This category is the broader of 

the two and includes activities such as golf, 

tennis, baseball, basketball, shuffleboard, 

volleyball, soccer, pool swimming, archery, 

skeet and trap shooting, and playground activities. User-oriented activities are needed 

in vast amounts in urban and suburban areas, and as with other services, useroriented recreation facilities and programs 

are primarily provided by local governments. 

Resource-based outdoor recreation differs 

from user-oriented recreation in that it cannot be provided just anywhere, but is dependent upon some element or combination 

of elements in the natural or cultural environments that cannot be easily duplicated by 

man. It may be either active or passive in 

nature. Examples include hiking, hunting, 

fishing, camping, backpacking, boating, water skiing, surfing, biking, nature study and 

visiting historical and archaeological sites. 

Resource-based recreation lends itself better to the capabilities of state and federal 

government. 

An important distinction to make between 

user-oriented and resource-based outdoor 

recreation is that the former can always be 

provided, assuming the availability of space 

and funds for development, while the latter 

can be provided only to the extent that the 

supporting natural or cultural resources are 

available. While population pressures dic-
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Outdoor Recreation in Florida, 2008 

statewide trail. Thus, the state must ensure, 

either directly or indirectly, that the public's 

demand for outdoor recreation is brought 

into a reasonable balance, at least on a 

broad regional level, with the availability of 

opportunities for meeting this demand. 

Rather than meet these needs entirely 

through state-level programs, the state 

should assume responsibility for ensuring 

that needs are met through the planned and 

coordinated efforts of state, federal and local 

governments and private interests. 

As far as its direct programming efforts are 

concerned, the state’s primary responsibility 

is to provide resource-based outdoor recreation. It accomplishes this through the acquisition of lands and development of facilities 

necessary to make natural and cultural outdoor recreation resources of regional or 

statewide significance available to the public. The extensive land requirements, the 

typical location outside urban centers, and 

the higher costs of operation have led the 

state to assume this role as a bridge between the large, nationally significant parks 

tate a high priority for creating user-oriented 

outdoor recreation opportunities close to urban areas, the rapid depletion of suitable 

resources gives a sense of urgency to the 

resource-based outdoor recreation program. 

Because they satisfy essentially different 

human needs, it is difficult to compare these 

two types of outdoor recreation in terms of 

importance or urgency, except to say that 

both are important and both must be met 

expeditiously to keep up with the demands 

of a growing population. 

 

Roles in Providing Outdoor 

Recreation 

Some division of responsibility is needed if 

the state’s diverse public outdoor recreation 

needs are to be efficiently met. It is not reasonable, for example, to expect that agencies charged with managing state parks, forests, wildlife and water management areas 

would also be responsible for local ball 

fields, tennis courts and neighborhood 

parks. State government has the responsibility for promoting and coordinating all outdoor recreation efforts beneficial to the general public. It is the only level of government 

where this task can be accomplished effectively, especially when the resource on 

which the recreation is based crosses jurisdictional boundaries as in a regional or 

Resource-based Outdoor Recreation 

Big Shoals State Park, Columbia County 

User-oriented Outdoor Recreation, 

Broward County 
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Outdoor Recreation in Florida, 2008 

the form of matching grants for acquiring 

and developing recreational lands and facilities. The demonstrated priorities and needs 

of local governments are given full consideration in the allocation of available funds 

from these programs. 

Need for a State Outdoor 

Recreation Program 

Meeting the outdoor recreation needs of 

Florida’s fast-growing population will require 

significant additional recreation lands, facilities and services, for both resource-based 

and user-oriented recreation. However, the 

ability to provide these will become more 

difficult as the state’s fixed supply of land, 

water, shoreline areas and cultural resources - the raw materials which support 

outdoor recreation - are committed to nonrecreation uses to accommodate the expanding population. Of equal importance is 

the need to provide sufficient financial resources to construct, operate and maintain 

the capital facilities that are required to open 

these lands for public access and use. 

The state must identify current and future 

outdoor recreation needs, and work to ensure the preservation of a resource base 

sufficient to meet those needs while resources are still available. Toward this end, 

Florida’s outdoor recreation program emphasizes interagency cooperation and collaborative partnerships with private interests 

and non-governmental organizations, and 

supports efforts to better coordinate local, 

state and federal land acquisition, resource 

management and recreational facility development. 

managed by the federal government and the 

community playgrounds and recreational 

facilities traditionally provided by local governments. No other level of government can 

meet this vital responsibility. 

User-oriented outdoor recreation, like other 

local services, is largely the responsibility of 

local government. The need exists primarily 

in the urban areas and it increases in proportion to the degree of urbanization. Although 

local governments have focused primarily on 

user-oriented recreation, many counties 

have established excellent conservation and 

environmental land acquisition programs 

and have contributed to the provision of 

many types of resource-based recreation. In 

general, however, local governments are the 

primary entities responsible for user-oriented 

recreation. 

All local governments, large or small, are 

faced with the task of providing the full range 

of recreational opportunities that are so important to the well-being of their citizens. 

These include everything from cultural arts 

programs to nature trails. Local governments are finding it increasingly difficult to 

accomplish this, particularly in light of escalating costs and recent changes in the assessment of ad valorem taxes. 

While the state's primary thrust in its outdoor 

recreation efforts is directed toward resource-based outdoor recreation, a substantial effort is made to assist local governments with financial support and technical 

assistance for meeting their needs for useroriented types of outdoor recreation. Three 

primary programs — the Florida Recreation 

Development Assistance Program, the Florida Communities Trust program and the 

Florida Recreational Trails Program — provide local governments substantial funds in 
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Outdoor Recreation in Florida, 2008 

this reason, DEP emphasized the 

involvement of users, environmental groups 

and recreation providers in the planning 

process. Public involvement was solicited 

through a series of 14 public workshops held 

in cities around the state between August 

2006 and June 2007. The workshops provided ample opportunities for the public to 

express its views on a wide range of needs 

and issues. Summaries of the workshops 

appear in Appendix G. Appendix G also 

contains a list of meeting times, locations 

and a report compiling the public input received at each workshop. 

Following the workshops, DRP staff developed a draft vision statement from the results, researched relevant issues raised by 

the public and developed goals, strategies 

and action steps based upon public input 

and staff research. The vision, goals and 

recommendations are detailed in Chapter 7. 

Planning Coordination 

Outdoor recreation is affected directly or 

indirectly by a variety of local, state, federal 

and private programs. To the extent that 

The Planning Process 

The purpose of state-level outdoor recreation planning is to guide the development of 

a diverse, balanced, statewide outdoor 

recreation system toward meeting current 

and future needs. Florida’s planning process addresses a wide range of outdoor recreation activities, resources and programs 

with the goal of ensuring that the needs of all 

segments of society are met. Of equal concern is preserving the integrity and function 

of the ecological systems that provide the 

foundation for resource-based outdoor recreation. 

The planning process used to develop this 

plan focused on identifying the major issues 

affecting outdoor recreation in Florida, and 

on determining current and projected priority 

needs for the acquisition and development 

of outdoor recreation areas and facilities. 

The process relied heavily on input from a 

wide range of stakeholders including state, 

local and federal recreation providers, private suppliers, recreation user groups, conservation groups and other interested parties. The outcome is a plan that provides a 

basis for cooperative action to resolve priority issues and a reasoned approach to meeting identified recreation needs. The plan 

provides statewide outdoor recreation programming guidance and is intended to influence the decisions of all potential recreation 

suppliers. 

Public Participation 

The success of the outdoor recreation 

planning process ultimately depends upon 

the acceptance of its recommendations by a 

broad constituency of users and environmental interests, and the willing implementation of those recommendations by the many 

public and private recreation providers. For 

Statewide Comprehensive Outdoor 

Recreation Plan Public Workshop 
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Outdoor Recreation in Florida, 2008 

these programs are capable of contributing 

to the implementation of a statewide outdoor 

recreation program, state government must 

attempt to coordinate them through the comprehensive outdoor recreation planning 

process. Toward that end, Florida has emphasized interagency and public/private coordination through a variety of mechanisms 

described below. 

State-Level Coordination 

Outdoor recreation planning coordination 

among state agencies is provided through 

planning and management committees and 

special ad hoc committees. For example, 

state-level coordination in the acquisition 

and management of environmental and outdoor recreation land is provided through the 

Acquisition and Restoration Council. Coordination in statewide planning for greenways 

and trails is provided through the Florida 

Greenways and Trails Council. These committees are composed of members from all 

state agencies concerned with natural and 

historical resources and outdoor recreation. 

State-Federal Coordination 

Liaison for outdoor recreation planning 

purposes is maintained with the U.S. Department of the Interior, National Park Service, 

especially through its Southeast Regional 

Office. Other federal agencies, such as the 

U.S. Fish and Wildlife Service, U.S. Forest 

Service and the U.S. Army Corps of Engineers, are consulted frequently at regional 

and field offices on recreation-related planning matters. 

State-Local Coordination 

One of the most important links in the chain 

of outdoor recreation planning coordination 

is between state and local governments. 

Many county and municipal governments 

assisted in the development of this plan by 

cooperating in the preparation of the statewide inventory of outdoor recreation resources and facilities. This massive undertaking could not be accomplished without 

such assistance. 

Additionally, all Florida counties and many 

municipalities have participated in statesponsored financial and technical assistance 

programs, and other efforts involving recreation coordination. Local governments participate in the acquisition and management 

of land for outdoor recreation through multiple land acquisition and grant programs, including the Florida Forever program, the 

Florida Communities Trust program, the 

Land and Water Conservation Fund program and the Florida Recreation Development Assistance Program. 

State and local planning is further linked 

through the Local Government Comprehensive Planning and Land Development Regulation Act (Section 163.3167, Florida Statutes), through which the state provides technical assistance in plan preparation and 

state-level review of local plans. In developing their comprehensive plans, many local 

governments have made use of information 

and data contained in the Statewide Comprehensive Outdoor Recreation Plan. 

State-Private Coordination 

Private outdoor recreational enterprises constitute a significant element of the Florida 

economy and will continue to be relied upon 

to provide a major share of the outdoor recreation supply in the state. Coordination 

with the private sector is necessary to 

achieve more efficient development and operation of mutual programs, to improve and 
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Outdoor Recreation in Florida, 2008 

expand the ongoing inventory of private recreation sites and facilities, and to implement 

major recreation action program objectives. 

State-private liaison with this sector is established primarily through the trade organizations, such as the Governor’s Conference on 

Tourism and VISIT FLORIDA, which are primarily involved with tourism promotion and 

commercial recreation enterprises. In addition, the DRP consults formally and informally with representatives of various clubs 

and groups concerned with conservation 

and recreation to discuss and resolve matters of mutual concern. State representatives also attend various gatherings of private organizations to present and discuss 

state recreation policies and programs. 

Conclusion 

Florida is a leader in outdoor recreation 

across the nation and has made excellent 

progress in developing an outdoor recreation program that will meet the needs of its 

residents and visitors. The need is still 

great, however, and demand for outdoor recreation opportunities will continue to grow as 

the state’s population continues to increase 

at its rapid pace. Whether for the health and 

welfare of Florida's people, the stability of its 

tourist oriented economy, or the prudent 

management of its natural resources, a 

carefully planned and effectively implemented outdoor recreation program is a major public need today. This plan provides a 

foundation for such a program in Florida. 

Bird watching