Treasure Island commissioners push deed restrictions to freeze Elnor Island development

Treasure Island city commissioners voted to pursue deed restrictions that would prevent new construction on Elnor Island, a 14-acre mangrove preserve located just east of John’s Pass. The property has been under city ownership since 1984 and currently contains no buildings. The proposed legal protections would also position the city to qualify for better discounts on federal flood insurance.

City floodplain manager Jesse Miller explained that the restrictions serve a dual purpose. They protect the natural habitat while helping Treasure Island earn credit through the Federal Emergency Management Agency’s Community Rating System, known as CRS. Communities receive points for managing flood risks beyond minimum requirements, which translates to lower insurance premiums for residents.

Treasure Island currently holds a Class 6 rating, providing a 20% discount on eligible flood insurance. Miller believes the city could upgrade to a Class 4 rating, which offers a 30% discount, if the proposed deed restrictions are adopted. Deed-restricted properties can earn a maximum of 50 CRS points, though the final point total for the island has not yet been determined. The city is currently reviewing its overall flood management practices to determine if it meets the criteria for the higher rating.

The commission directed staff to review the property title and draft specific language for the restrictions. Miller outlined three key provisions under consideration: prohibiting new buildings, binding the restrictions on future owners, and allowing changes only through court approval for just cause. The city’s comprehensive plan already calls for preserving the island in its natural state, and these deed restrictions would add a stricter legal barrier against development.

During the workshop, commissioners raised concerns about how the restrictions might affect local users. Residents noted that kayakers and paddleboarders use a narrow passage beneath the mangrove canopy to access different parts of the island and nearby sandbars. There was worry that new rules might block this nonmotorized access. In response, staff were directed to proceed without restricting the waterway. Miller clarified that the city does not intend to close the island to visitors, stating that the primary goal is to stop future development rather than limit recreation.

Officials are also considering language that would permit modest improvements, such as boardwalks or small kayak docks, if the commission decides to pursue them later. Elnor Island has a long history of environmental stewardship. In 2007, the city used a $14,000 grant from the U.S. Fish and Wildlife Service to remove invasive Brazilian pepper trees. In 2012, the Southwest Florida Water Management District approved seagrass restoration in the area, and Tampa Bay Watch installed oyster shell bars to reduce erosion and support marine life. The site supports brown pelicans, great blue herons, and white ibis, leading officials to consider a Critical Wildlife Area designation from the Florida Fish and Wildlife Conservation Commission.

Staff will prepare the proposed restrictions for future commission consideration. Nothing has been formally adopted yet, but the process begins with the title review and drafting of the specific legal language. The city aims to balance the preservation of the island's ecological value with the financial benefits of a higher flood insurance rating for its residents.