If you're developing land in Florida, gopher tortoises are one of the most common ecological constraints you'll face. They're found on nearly every upland site with sandy soils, and Florida law requires surveys and permits before you can disturb their burrows.
This guide covers the complete gopher tortoise survey and permitting process - from initial desktop screening through relocation - so you can plan your timeline and budget accurately.
Why Gopher Tortoises Matter
The gopher tortoise (Gopherus polyphemus) is listed as Threatened by the Florida Fish and Wildlife Conservation Commission (FWC) and is a candidate for federal listing under the ESA. It's considered a keystone species because its burrows provide shelter for over 350 other species, including the eastern indigo snake, gopher frog, Florida mouse, and numerous invertebrates.
Gopher tortoises are found throughout Florida and in parts of Georgia, Alabama, Mississippi, South Carolina, and Louisiana. In Florida, they're present on virtually any site with well-drained sandy soils and herbaceous groundcover - which describes a large proportion of developable land in the state.
Under Florida law (68A-27.003 FAC), it is illegal to take, pursue, hunt, harass, capture, possess, sell, or transport gopher tortoises or their eggs without authorisation. "Take" includes destruction of burrows, which is the most common impact from development.
When Are Surveys Required?
Gopher tortoise surveys are required before any development activity that could affect gopher tortoise habitat. This includes:
- Land clearing or grading
- Construction of buildings, roads, or infrastructure
- Site preparation for agriculture
- Forestry operations that involve soil disturbance
- Any activity within 25 feet of a gopher tortoise burrow
If your site has sandy, well-drained soils and open or semi-open habitat (pasture, scrub, sandhill, pine flatwoods, ruderal areas, vacant lots), gopher tortoises may be present and a survey is required.
Desktop screening tip: Before commissioning a field survey, check EcoCheck for gopher tortoise records near your site. If GBIF shows recent tortoise observations in the area, the likelihood of tortoises on your site is high - especially if habitat looks suitable on aerial imagery.
Survey Protocol
FWC requires surveys to follow the Gopher Tortoise Permitting Guidelines (revised 2023). The standard survey protocol is:
Line Transect Survey
Method: Walk parallel transects across the site, spaced no more than 15 metres apart (closer spacing in dense vegetation). Record every gopher tortoise burrow encountered, classifying each as:
- Active - recently excavated, half-moon shaped entrance, fresh sand apron
- Inactive - entrance partially collapsed, vegetation growing in entrance, no fresh sand
- Abandoned - entrance fully collapsed, no signs of recent use
Effort: The entire site must be surveyed. For large sites, systematic transects with GPS tracking ensure complete coverage.
Timing: Surveys can be conducted year-round in Florida, though spring and autumn are optimal when tortoises are most active. Summer surveys during extreme heat and winter surveys during cold snaps may undercount active burrows.
Surveyor qualifications: Surveys must be conducted by an FWC Authorised Gopher Tortoise Agent or under their direct supervision.
Burrow Scoping
For permitted relocations, burrows are scoped using a burrow camera to confirm occupancy before excavation. This determines:
- Whether the burrow is occupied by a tortoise
- The depth and configuration of the burrow
- Whether commensal species are present (eastern indigo snake, gopher frog, etc.)
Permitting
10 or Fewer Burrows
For sites with 10 or fewer gopher tortoise burrows to be impacted:
Permit type: Online permit through FWC's Gopher Tortoise Permitting System
Process: Submit survey report, site plan, and relocation plan online. FWC reviews and issues the permit, typically within 30 days.
Mitigation: Pay a per-burrow mitigation contribution to FWC ($892 per burrow as of 2024 - check FWC for current rates). This funds habitat conservation on FWC-managed lands.
More Than 10 Burrows
For sites with more than 10 burrows:
Permit type: Standard permit application through FWC
Process: Submit a detailed relocation plan including recipient site details, carrying capacity analysis, and long-term management plan. FWC reviews and may request revisions.
Timeline: 30-90 days for permit processing, depending on complexity.
Recipient site: Tortoises must be relocated to an approved recipient site. Options include FWC-approved mitigation banks, conservation lands, or private lands with a long-term conservation easement.
Temporary Exclusion
If tortoises need to be temporarily excluded from a work area (not permanently relocated):
Method: Install exclusion barriers (silt fence or tortoise-proof fencing) around the work area. Allow tortoises to leave naturally, then close the barrier. Monitor daily.
Permit: A temporary exclusion authorisation from FWC is required.
Relocation Process
Once permitted, the relocation process involves:
1. Burrow excavation: Permitted agents excavate each occupied burrow using either hand digging or backhoe (depending on depth). Burrows can extend 15-30 feet underground, so excavation is significant.
2. Tortoise capture and health assessment: Each excavated tortoise is measured, weighed, photographed, and health-assessed. Tortoises showing signs of Upper Respiratory Tract Disease (URTD) may require quarantine.
3. Transport: Tortoises are transported in individual containers to the recipient site on the same day as excavation.
4. Release: Tortoises are released into starter burrows at the recipient site. Starter burrows are pre-dug holes that provide immediate shelter.
5. Monitoring: The recipient site is monitored post-release to confirm tortoise establishment. Monitoring requirements vary by permit but typically include monthly checks for 6-12 months.
Commensal Species
Gopher tortoise burrows host over 350 commensal species. During surveys and relocations, be aware of:
Eastern indigo snake (Drymarchon couperi): Federally listed as Threatened. If your site is in indigo snake range (primarily south and central Florida), USFWS Standard Protection Measures for the Eastern Indigo Snake must be followed during all construction activities. This includes a pre-construction briefing for all workers and work stoppage if an indigo snake is encountered.
Gopher frog (Lithobates capito): State-listed as a Species of Special Concern in some areas. Found in tortoise burrows, especially near seasonal wetlands.
Florida mouse (Podomys floridanus): State-listed as a Species of Special Concern. Commonly found in tortoise burrows in scrub and sandhill habitats.
Costs and Timeline
Survey costs: $2,000-10,000 depending on site size, vegetation density, and accessibility. Large or heavily vegetated sites may cost more.
Permit fees: $892 per burrow (mitigation contribution for 10 or fewer burrows). Larger projects have variable costs depending on the relocation approach.
Relocation costs: $500-2,000 per tortoise for excavation, transport, and release. Deep burrows and difficult access increase costs.
Recipient site costs: If using a mitigation bank, credit costs vary by region. If using private lands, the cost of the conservation easement must be factored in.
Timeline: From initial survey to completed relocation, plan for 3-6 months minimum. This includes survey (1-2 weeks), permit processing (30-90 days), and relocation (1-2 weeks depending on the number of tortoises).
Critical planning note: Gopher tortoise surveys and relocation can proceed year-round in Florida, unlike many bat and bird species that have narrow seasonal windows. This flexibility helps with project scheduling, but you should still start early because permit processing takes time.
Start With the Desktop Data
Before sending a survey crew into the field, screen your site using available data. EcoCheck searches GBIF for gopher tortoise occurrence records near your location, along with USFWS Critical Habitat, protected areas, wetlands, and flood zones.
If gopher tortoise records exist near your site and the habitat looks suitable (sandy soils, open groundcover), budget for a full burrow survey and potential relocation early in your project timeline.
Patrick O'Connor is a Freelance Ecologist at Kinterra Consulting and the developer of EcoCheck - an instant ecological desktop assessment tool for any location. Try it free at ecocheck.co (UK) or ecocheckus.com (US).