Obviously, the statutes were written with the expectation that some sort of natural disaster or calamity impacts tens, hundreds, or thousands of Floridians.... however, there is no "count" or indication of "scope" that is required before a state of emergency may be declared.
See Fla. Statutes Chapter 252 (emergency management; http://www.flsenate.gov/statutes/index.cfm?mode=View%20Statutes&SubMenu=1&App_mode=Display_Statute&Search_String=&URL=CH0252/Sec36.HTM) . The Governors emergency management powers are defined in 252.36.
I do hope you might be on to something here..."interpretation of laws" can work both ways! Thanks for the "research"!