St. Marks and Wakulla Rivers resource assessment & greenway protection plan

[From the U.S. Government Printing Office, www.gpo.gov]

ST. MARKS AND WAKULLA RIVERS
RESOURCE ASSESSMENT &
GREENWAY PROTECTION PLAN

THE FLORIDA GREENWAYS PROGRAM OF
1 000 FRIENDS OF FLORIDA &
THE CONSERVATION FUND

NORTHWEST FLORIDA WATER MANAGEMENT DISTRICT

SEPTEMBER 1 994

7A@!K 3,Ao@7

This report was prepared for the Department of Community Affairs, Linda Loomis Shelley, Secretary, in cooperation
with US Department of Commerce, National Oceanic and Atmospherc Administration
Funding for this program was provided in part by Coo,eralivo Agreement No. NA370711417 awarded to the Department of Community Affairs ofthe State olFlorida
by the National Oceanic and Atmospheric Administration, US Department of Commerce. Matching funds provided by the Elizabeth Ordway Dunn Foundation.
Points of view, opinions and conclusions expressed in this report are those of the recipient and do not necessarily represent the official position or
policies of the State of Florida, Department of Community Affairs, the US Department of Commerce, National Oceanic and Atmospheric Administration or
any other agenncy of the state or federal government

PREFACE

In 1991, 1000 Friends of Florida and The Conservation Fund teamed together to
establish the Florida Greenways Program to aid in the conservation of greenways
throughout Florida. The Florida Greenways Program is involved with greenway planning
initiatives on the state and local levels. Since 1993, 1000 Friends of Florida has actively
worked with the 38 member governor appointed Florida Greenways Commission. The
mission of the Florida Greenways Commission is to establish a statewide system of linked
open space (greenways), parks and re fuges and recognize 150 greenways in celebration
of Florida's sesquicentennial (150th) birthday in 1995.

On the local level, the Florida Greenways Program has initiated four regional
prototype greenway planning projects. These greenway planning projects include: the
Suncoast River Based Greenways Project in the Tampa area, the Loxahatchee Slough
Greenways Project in Martin and Palm Beach counties, Broward County Urban River
Greenways, the proposed South Walton Greenways effort in southern Walton County, and
the Apalachee Greenways Project in Florida's Big Bend area.

Each of these projects focuses on the particular planning needs for each local area.
The Suncoast greenways project focuses on the remaining green spaces along the
Hillsborough, Alafia, Peace and Manatee Rivers. Hillsborough County has joined in the
effort in establishing these rivers as greenways. The Loxahatchee Greenways effort is the
first local project undertaken by the Florida Greenways Program and it focuses on the
remaining greenway connections in a network connecting the natural areas of Jonathan
Dickinson State Park, the Pal-Mar lands, the Dupuis Reserve, and the Corbett Wildlife
Management Area. The Broward County Urban River Greenway effort focuses on
designing and implementing a water-based greenways network in Broward County. This
network will utilize the New River, the Intercoastal Waterway and the South Florida Water
Management District's canal system to enhance community by providing open space and
recreation. The decommissioned Cross Florida Barge Canal is being converted into the
Cross Florida Greenway. 1000 Friends of Florida worked closely with the Canal Lands

Advisory Committee, the governors office and the legislature on the preparation of the
greenway management plan.

In January 1993, the Florida Greenways Program, The Red Hills Conservation
Association and the Apalachee Land Conservancy began working on a recreational,
natural, cultural, and historic resource assessment of the Apalachee Region. Since that
time, the Northwest Florida Water Management District and the region's local governments
have joined in the assessment effort. The Apalachee Greenways Project focuses on a six
county region of northern Florida (Gadsden, Jefferson, Leon and Wakulla counties) and
southern Georgia (Thomas and Grady counties) stretching from the Aucilla River on the
east to the Ochlockonee River on the west. The Apalachee Greenways Project highlights
the significance of the region's historical canopy roads and plantations and the rivers
providing their natural and cultural ties of the Red Hills to the river ports on the Gulf of
Mexico. The Apalachee Greenways Project is being conducted in a series of three phases
over a period of three years: Phase 1 - Regional Assessment and Visioning; Phase 2 -
Network Planning and Demonstration Project; and Phase 3 - Resource Protection
Implementation. The St. Marks and Wakulla Rivers Resource Assessment and Greenway
Protection Plan is Phase 2 of the Apalachee Greenways Project.

The assessement and plan focuses on the St. Marks River watershed which
includes the Wakulla River. The assessment addresses the watershed's cultural,
historical, recreational and natural features. Like the broader Apalachee Greenways
Project, the assessment and plan is centered on the rivers. The St. Marks and Wakulla
Rivers link the communities of Jefferson, Leon and Wakulla counties. They have been
used for thousands of years by various peoples settling in the Apalachee Region. They
provide Apalachee Bay with nutrient rich water sustaining a healthy population of finfish
and shellfish. The project emphasizes the need for greenway planning at the local,
regional and state levels to maintain the existing water quality of the rivers.

EXECUTIVE SUMMARY

The Northwest Florida W ater Management District, the Florida Greenways Program
of 1000 Friends of Florida and the Conservation Fund, and the Florida Coastal
Management Program have collaborated to develop a comprehensive resource
assessment and greenway protection plan for the St. Marks and Wakulla rivers. This report
assesses and maps the natural, recreational and historic resources in the St. Marks and
Wakulla rivers watershed and offers recommendations for greenway conservation along
the two rivers. This report is part of the Apalachee Greenways Project, a three-year effort
funded by the Elizabeth Ordway Dunn Foundation and Waste Management Inc., Florida
Group, to assess the region's greenway opportunities and identify potential conflicts with
future growth. The St. Marks and Wakulla River Greenway assessment and plan is the
second phase of the broader Apalachee project, and is funded in part by the Florida
Coastal Management Program.

Greenways are a land and water conservation tool that can enhance open space
and recreational opportunities, provide economic and community benefits, and
intergovernmental cooperation. A greenway is a corridor of protected open space that is
managed for conservation and/or recreation. They link natural reserves, parks, cultural
and historic sites with each other, and in some cases with urban areas. Greenways can
serve many ecological and recreational functions: as habitat for plants and animals; as
conduits allowing movement; as barriers to noise, light and unsightly views; as sources of
seed allowing natural succession in adjacent areas; as places to visit and explore; as
conduits for people along trails; as biological filters trapping nutrients and pollutants; and
as sinks capturing floodwaters.

This is the first study of the St. Marks and Wakulla rivers watershed to map and
quantify at a detailed level the type, location, and extent of land uses and land cover.
Satellite imagery data from 1993 was analyzed using the Northwest Florida Water
Management District's Geographic Information System. Low-density residential uses
comprise six percent of the total watershed with other urban types of land uses making up

less than one percent. Non-urban land uses comprise 93 percent of the watershed with
silviculture uses (36 percent), natural upland forests (25 percent), and wetlands (18
percent) predominating.

Environmentally sensitive and important habitat lands were assessed to aid
identification and mapping of greenway linkages (see Figure 1 - St. Marks and Wakulla
Rivers Greenway). The Florida Game and Freshwater Fish Commission (FGFWFC) and
the Florida Natural Areas Inventory provided data on land use and land cover, strategic
habitat conservation areas, and rare animal, plant and communities occurrences. The
FGFWFC data shows there are extensive areas of critical habitat throughout the
watershed with the largest and highest quality habitat areas associated with the rivers.

Nonpoint source pollution (NPS) must be minimized if the quality of the St. Marks
and Wakulla Rivers is to be protected. The assessment found that urban areas have the
highest per-acre pollution rates while natural woodlands and silvicultural areas have the
lowest per-acre pollution rates. On a watershed basis, forested and agricultural areas
contribute the greatest NIPS pollution load, but only because they have the greatest land
coverage. These results suggest that NPS pollution can be expected to increase if
silvicultural and forest lands are converted to more intensive land uses such as agriculture,
residential or commercial. Implementation of best management practices (BMPs) for
silviculture, agriculture and urban development are one important way to minimize NIPS
pollution. Best management practices are guidelines established by the Florida
Department of Agriculture in conjunction with the forest/timber industry guiding forestry
operations on proper tree harvesting, removal and replanting. Silviculture operations use
the BMP's to determine where to harvest trees near rivers and streams and how much to

harvest adjacent to streams.

The watershed's extensive public conservation lands provide many outstanding
recreational opportunities. Annually, over one million visitors to the watershed fish, hunt,

Proposed St Marks and Wakulla Rivers G reen way

0-4 City of
Leon Po Tallahassee
Jefferson

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This publication was made possible by a Watershed
subgr.nt from the Florida Department of Community
Boundary
Affairs, In Cooperation with the US. Department
of Commerce, National Oceania and Atmospheric
Adminlstr.tlon, under Cooperative Agreement
Major Roads
provided by the Elizabeth Ordway Dunn Foundation
Award No. NA37OZO427. Additional funding
and Northwest Florida Water Management District. Transmission
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County &
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A& Historic Features
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Recreational
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VII

hike, swim, horse-back ride, off-road bicycle, in-line skate, canoe, kayak, and watch
wildlife. They use trails such as the Florida National Scenic Trail, the Tallahassee-St.
Marks Historic Railroad State Trail, the Big Bend Historic Saltwater Paddling Trail, and the
canoe trails of the Wakulla and St. Marks rivers. Visitors enjoy outdoor recreational
activities in the Apalachicola National Forest, St. Marks National Wildlife Refuge, and at
Edward Ball Wakulla Springs State Park. They also learn about the areas rich historical
and cultural past at Fort San Marcos de Apalache State Historic Site and Natural Bridge
Battlefield State Historic Site. All of these combine to make watershed an outstanding
ecotourism destination and while contributing to the regional economic base.

Because of the relatively undeveloped nature of the St. Marks and Wakulla rivers,
the opportunity to conserve this natural greenway corridor still be exist. This greenway
can help protect the water quality and fisheries of the rivers and Apalachee Bay, and help
maintain their aesthetic and recreational appeal. These greenways are the watershed's
linchpins for the ecosystem and the foundation on which to expand the area's economy
through ecotourism.

The St. Marks and Wakulla Rivers Greenway is the unifying link between the
watershed's conservation lands. Nearly all of the outdoor recreational activities within the
basin are associated with the greenway in some manner. Wildlife thrives in the upper and
lower reaches of the greenway. People recreate, live and work within and adjacent to it.
and the greenway can help create a sense of place giving this unique area its own

distinctive character.

The St. Marks and Wakulla Rivers Greenway will provide a rallying point or focus
for conserving the natural, recreational and cultural resources which make the river
corridors so attractive for people and wildlife. Living and owning property in the greenway
does not impose additional restrictions on how lands are used. The existing
comprehensive plan, development requirements and private and public stewardship will

Vill

continue to be the primary tools to conserve the qualities of the greenway. Residents and
property owners within the greenway are recommended to voluntarily continue and
strengthen their stewardship of their lands. The greenway will provide a focus for federal,
state, regional and local agencies to work together with landowners, businesses and
visitors to retain the watershed's qualities which are enjoyed by all. The resulting
partnerships will help focus financial, administrative and stewardship resources so they
are better coordinated and produce more effective results. The benefits of a coordinated
greenway stewardship effort are much greater than the sum of the separate conservation
and planning practices. Conserving the greenway is an excellent mechanism for ensuring
sustainable development in the watershed.

There are many different tools that can and should be used the conserve the
greenway. These range from private stewardship to community planning and public land
acquisition. Citizens and public officials have the tools and are using them to conserve
the important natural, recreational, and cultural resources of the greenway. Local
governments should consider using the local comprehensive planning process to
incorporate greenways into their communities. The provision of the plan revised to
incorporate greenways could emphasize the economic and recreational benefits a
community can realize if it works with other local governments as well as state and federal
conservation efforts. Using the local planning process could help establish visibility and
cohesiveness of the greenway concept while maintaining the necessary flexibility for each
local government. The local governments should focus upon ways to improve
intergovernmental cooperation and build public and private partnerships to conserve the

greenway.

State and federal agencies also need to play a significant role in conserving the
remaining large tracts of undeveloped land along both rivers. The majority of these lands
are owned by a few owners and are managed principally for silviculture. Surface water
protection could be improved through the development of a surface water improvement

and management program (SWIM) by the Northwest Florida Water Management District
for the watershed. Lastly, the important role that citizens, users and landowners as
stewards of the greenway is critical to this effort. Without their support and participation,
this greenway conservation effort can not be successful.

In conclusion, the St. Marks and Wakulla rivers and their watershed offer an broad
range of land and water conservation possibilities while providing eco-tourism economic
development opportunities. The outstanding resources of the watershed and the
Apalachee Region provide landowners, citizens and government with many opportunities
to establish partnerships for land and water stewardship and enhance economic
prosperity. Conserving the St. Marks and Wakulla River Greenway will help the
watershed's communities take advantage of these opportunities.

TABLE OF CONTENTS

Preface ..............................................................

Executive Summary ..................................................
Table of Contents ..................................................... X

List of Tables and Figures ............................................. X11

Acknowledgements ................................................. x1i,

Chapter 11- Overview ................................................. 1
Greenways - Defined ............................................. 5
Ecological and Recreational Functions of Greenways ................... 6
Benefits of Greenways ........................................... 11

Chapter 2 - Resource Assessment of the St. Marks and Wakulla
River Watershed ............................................ 15
Overview ..................................................... 15
Land Use Assessment ........................................... 21
Nonpoint Source Pollution Assessment .............................. 29
St. Marks and Wakulla Rivers Resource Inventory ..................... 43
Natural Resources of the Watershed .......................... 43
Recreational Resources of the Watershed ...................... 50
The Economic Benefits of Ecotourism in the Watershed ................. 59

Chapter 3 - St. Marks and Wakulla Rivers Greenway ...................... 63
St. Marks River Portion of the Greenway ............................. 71
Wakulla River Portion of the Greenway .............................. 74

Chapter 4 -Local and State Conservation Programs ....................... 77
Local Resource Conservation Programs ............................. 77
Review of the Local Government Comprehensive Plans ................. 78
Town of St. Marks ......................................... 80
Wakulla County ........................................... 80
Jefferson County .......................................... 82
City of Tallahassee/Leon County ............................. 83
Review of State Resource Protection Programs ....................... 84

Chapter 5 - Recommendations For Conserving
*the St. Marks and Wakulla Rivers Greenway ................... 91
Recommendations for the Local Governments ........................ 92
Recommendations for Regional, State and Federal Agencies ........... 102
Recommendations for Individuals, Landowners, Private Interests and Users 106
Issues and Concerns Identified by the St. Marks and Wakulla
Rivers Greenway Steering Committee .............................. 107

Literature Cited .................................................... 111

Appendix 1 - Land Use and Land Cover Assessment ................... A - I

Appendix 2 - Description of the Florida Land Use, Land Cover Classification
System (FLUCCS) ........................................... A -3

Appendix 3 - Nonpoint Source Pollution Assessment ................... A-7

Appendix 4 - Review of Stormwater Loading Rates from the Available
Literature ................................................. A - 19

Appendix 5 -St. Marks and Wakull Rivers Greenway Steering Committee.. A-35

UST OF FiGuRES AND T'ABLES

List of Figures

Figure 1- Proposed St. Marks and Wakulla Rivers Greenway ................... vi

Figure 2 - St. Marks and Wakulla Rivers Watershed Study Area ................ 2

Figure 3 - What is a Greenway ........................................... 5

Figure 4 - Ecological and Recreational Functions of Greenways ................. 6
Figure 5 - Benefits of Greenways ......................................... 11
Figure-6 - St. Marks and Wakulla Rivers Watershed Existing Land Use
and Land Cover ................................................ 27

Figue 7 - What is Karst Topography ..................................... 43

Figure 8 - St. Marks and Wakulla Rivers Watershed Recreational, Historical
and Cultural Resources .......................................... 51

Figure 9 - Comparative Use Trends ...................................... 60

Figure 10 - St. Marks and Wakulla Rivers Watershed Natural Resource
Assessment ................................................... 67

List of Tables

Table 1 ............................................................ 24

Table 2 ............................................................. 26

Table 3 ............................................................ 34

Table 4 ............................................................ 59

X11

ACKNOWLEDGEMENTS

We would like to thank the Elizabeth Ordway Dunn Foundation, the Florida Department of Community
Affairs Coastal Zone Management Program, the U.S. Department of Commerce National Oceanic and
Atmospheric Administration, and Waste Management Inc., Florida Group for their financial support of the
project. This report was prepared by Robert Williams, Kent Wimmer and David Gluckman of the Florida
Greenways Program of 1000 Friends of Florida and the Conservation Fund and by Tyler Macmillan, Luann
Rains, and Daryl Huffman of the Northwest Florida Water Management District. We would like to thank the
staff of 1000 Friends of Florida and of the Northwest Florida Water Management District for their contributions
to this project We would also like to thank those individuals who provided us with direction, information, and
research materials for the writing of this report, including:

Jim Cox, Florida Game and Freshwater Fish Commission
Steve Leitman
Clif Maxwell, Department of Environmental Protection, Division of Recreation and Parks
Jim Muller, The Florida Natural Areas Inventory
Robin Will, St. Marks National Wildlife Refuge

We would like to thank the following citizens who attended the St. Marks Greenway Steering
Committee whom volunteered their time and energies in helping shape the project. We would also like to thank
Ouids Vicks and the City of St. Marks for graciously hosting the steering committee meetings. Members of the
steering committee provided suggestions, comments and ideas for the report, but the reports findings,
conclusions and recommendations do not necessarily reflect those of the following steering committee
members.

Jeannette Brooks
Mickey Cantner, HuManatee
Scott Causey, Wakulla County Planning Commission
Craig Diamond, Tallahassee/Leon County Planning Department
Mike Donovan, Apalachee Regional Planning Council
Gretchen Evans, TNT Hideaway
Mike Gerrell.
Pete Gerrell
Russell Grace, Tallahassee/Leon County Planning Department
William Hees, Tallahassee/Leon County Planning Department
Ken Kirton
Barry Laffin
Jack Leffert
Nelson Martin
Joanna Mawer
Clif Maxwell, Florida Park Service
Ed Mills, Director, Wakulla County Planning Department
Blayne Newsome, St. Joe Land and Development Company
Anne Rakestraw
Cynthia Rusling
Robert Seidler
Ouida Vicks, City of St. Marks
Jackie Youngstrand

Finally, to all those people noted above and the many more that helped who are not specifically
identified, we thank you, but any errors or omissions in this assessment and plan are attributable to the authors.

I
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I OVERVIEW
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CHAPTER I f- L@d: @

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CHAFrTER I -OVERVIEW

In late 1993 the Northwest Florida Water Management District, 1000 Friends of
Florida, and the Florida Coastal Management Program teamed up to complete a
comprehensive resource assessment and greenway protection plan for the St. Marks and
Wakulla rivers. The watershed of these two rivers is the next project listed on Northwest
Florida Water Management District's Surface Water Improvement and Management Plan
(SWIM) priority list. The Florida Greenways Program of 1000 Friends of Florida and the
Conservation Fund is conducting a three year study of the Apalachee region and joined
the District in emphasizing the significance of the St. Marks watershed in terms of the
diverse productive natural resources, scenic recreational resources, and the historical and
cultural assets. The drainage basins of the St. Marks River and its largest tributary, the
Wakulla River, comprise the St. Marks Watershed (see Figure 2 - Project Boundary Map).

Because of the relatively undeveloped nature along these rivers, there is an
opportunity to take a proactive approach to develop effective long term conservation
strategies for these two rivers. Unlike many south and central Florida rivers which are
already largely developed or degraded by development, the St. Marks and Wakulla rivers
currently have relatively good water quality which supports healthy fresh and saltwater
ecosystems, including an important commercial and recreational fisheries (Hand and
Paulic 1992 b).

The opportunity exists for interested citizens and local, regional and state officials
to strengthen river stewardship efforts by conserving natural greenway

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

St Marks and Wakulla- Rivers Watershed 'Study Area
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corridors along the St. Marks and Wakulla rivers. Because it is cheaper and easier to
prevent water quality degradation than it is to clean it up, efforts should be initiated now
to conserve the existing greenways along these rivers.

The St. Marks and Wakulla rivers have many other positive attributes besides good
water quality. The river and their associated swamp forest, sloughs, and marshes, support
an abundance of wildlife. The port Town of St. Marks is dependent upon the St. Marks
River channel to support shipping as well as commercial and recreational fishing activities.
The natural beauty and clean waters of this area draw many people to live, work and enjoy
the watershed's diverse recreational opportunities. Conserving the natural greenway
corridor along the rivers will help maintain their aesthetic and recreation appeal while
preserving. the ecological function of the riverine forest system.

This river system provides habitat for hundreds of different species of plants and
animals who share the river and its banks with people and their homes. The ecological
aspects of the rivers should be managed in perpetuity because a healthy functioning
ecosystem not only benefits the plants and animals, but it also benefits people.

There have been no comprehensive studies made on the St. Marks and Wakulla
rivers, but fortunately these rivers have characteristics similar to other more extensively
studied Florida river systems. This report assesses the natural, recreational and historic

resources within the St. Marks and Wakulla River Watershed and offers recommendations

for conserving the greenway along the two river-systems, including:

k-r

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

a description of the greenway concept and the benefits greenways can
provide the region' communities;

documentation of existing watershed land uses and land cover through
analysis of satellite imagery using the District's Geographic Information
System (GIS);

an analysis of nonpoint source pollution;
an assessment of the natural, recreational and historical resources of the
watershed;

greenway opportunities in the watershed;

a review of local government comprehensive plans;

a review of state programs that could assist with greenway conservation;

recommendations for the development of the St. Marks and Wakulla River
Greenways and;

citizen concerns regarding greenway planning.

ST. MARKS AND WAKULL-A RivERs RF-soURCF- AssF-ssmE:NT GREENWAY PROTECTION PLAN

GREENWAYS - DEFINED

Greenways are a land and water conservation tool that can enhance open space,
and recreational opportunities, provide
economic and community benefits, and
improve intergovernmental coordination. What is a Greenway?
Figure 3 provides the definition of a greenway A greenway is a corridor of
adopted by the Florida Greenways protected open space that is managed
for conservation and/or recreation. The
Commission. Greenways can be classified on common characteristic of greenways is
a continuum from ecological to conservation to that they all go somewhere. Greenways
recreational greenways. Ecological greenways often follow natural land or water
features, like ridges or rivers. They link
are designed and maintained primarily for natural reserves, parks, cultural and
wildlife habitat protection. Typically, historic sites with each other, and in
some cases with urban areas.
development is limited in the ecological Greenways not only protect
greenway because these greenways are often environmentally sensitive lands and
wildlife habitat, but they also provide
located in pristine natural areas where there is people with outdoor recreation
little human encroachment or urbanization. opportunities -.*-
I Florida Greenways Program 1992a.
Figure 3
Conservation greenways provide both
natural resource protection and recreation benefits. A conservation greenway is a linear
landscape feature that facilitates biologically effective transport of both animals and plants
between larger patches of habitat dedicated to conservation (Soule 1991). Soule points
out that corridors / greenways are transitional habitat and that they only need to provide
the necessary resources for plant or animal movement from one area to another (Soule
1991). However, if the greenway corridor is large enough it can also provide for wildlife

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

habitat. Trails and other passive recreation opportunities can be developed within a
conservation greenway (Florida Greenways Program 1992 a).

Recreational greenways are primarily managed for public access and enjoyment
through trails. Trails are marked routes that provide access to and appreciation of the
values of natural areas and greenspaces, present diverse resource based outdoor
recreational opportunities, and enhance the understanding of historical sites and cultural
diversity.

ECOLOGICAL AND RECREATIONAL FUNCTIONS OF GREENWAYS

The landscape in the

watershed is a series of

interactions between plants,
animals, the soil and water. A
HABITAT CONDUIT FILTER healthy environment depends on
maintaining these interactions
(Labaree 1992). When planning
for future growth the interactions

and natural connections of
andscape need to be considered.
SINK Greenways can provide landscape
Figure 4, Labaree 1992. linkages to recreational trails. There
are the six ways greenways can function as ecological and recreational units and these
concepts are based on landscape ecology principals.

db
gFiLTER

ST. MARKS AND WAKULLA RivERs RESOURCE AssEssmENT GREENWAY PROTECTION PLAN

HAE31TAT

Greenways can function as wildlife habitat, but this will depend on the size of
the greenway. The nature of the surrounding land also effects the function of
habitat suitability. Generally, the larger a greenway, the more species it will
support, because many interior species will not tolerate competition from edge
species. Edge species are those plants and animals that are found in open or developed
land. They can live almost anywhere and feed on a wide variety of foods. Interior forest
species often have very specific diets and habitat requirements. The Pinhook Swamp
connecting the Okefenokee National Wildlife Refuge in Georgia to the Osceola National
Forest in Florida is an excellent example of how greenways offer habitat protection and
preservation. The Pinhook Greenway functions as a protected large landscape linkage
between the larger core habitat areas of the swamp and national forest providing habitat
for large predators such as the Florida Panther and the Florida Black Bear.

CONDUITS

The typical conservation greenway is a linear feature providing for animal
and plant dispersion across the landscape. These greenways function as wildlife
conduits by providing safe protected passages between conservation areas. By
increasing the effective size of the habitat and providing wildlife access to varied
areas, conduit greenways provide a mechanism countering the effects of habitat
fragmentation caused by urbanization. By increasing the effective size of the habitat,

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

conduit greenways can help species meet their home range needs by linking parks and
conservation areas with a network of protected open space. The greenway itself may not
actually be large enough to serve as habitat. However, if the greenway links to other
larger parcels of land, then. the linkage itself increases the effective habitat by
reconnecting the land.

River corridors and ridgelines are typical examples of conduit greenways. The linear
dendritic pattern of riparian forests makes them ideal collectors and transporters of wildlife
across the regional landscape. Ideally, riparian greenways would be designed to be wide
enough to encompass a broad range of habitat types for aiding plant and animal
movement (Noss and Harris 1989).

Greenways can also function as recreational conduits by providing an*
interconnected network of trails or scenic highways for the purposes of linking people with
points of interest, scenic vistas, natural, cultural and historic resources or for providing
wilderness solitude and personal challenges. The Appalachian Trail is an excellent
example of a greenway functioning as a recreational conduit. The Tallahassee-St. Marks
Historic Railroad State Trail, the Blue Ridge Parkway, canopy roads, and urban river/bay
wa Iks are additional examples of how greenways function as recreational conduits.
Greenways also provide opportunities for alternative transportation through multi-purpose
trails. Trails are different from greenways in that they do not exist alone, but instead
traverse greenways, parks and other open space areas. Trails are defined as linear
corridors, on land or water, with protected status and public access for recreation or
transportation (National Park Service 1990). Trails link people with the natural and

cultural environment.

ST. MARKS AND WAKULLA RivE:Rs RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

BARRIERS

Greenway vegetation can function as barriers to unsightly views and noise
4- if large enough in size. By protecting scenic vistas and landscapes, greenways
can provide a sense of place or character for a particular area such as the
canopy roads and historic plantations in north Florida and south Georgia's Red
Hills Region. Conservation easements along scenic roads and improved urban
river fronts such as San Antonio's River Walk, could function as barrier greenways.

FiLTERS

Greenways can function as natural filters. Riverine greenways are
receivers of nutrients from uplands and feeder streams. Riverine greenways can
filter out nutrients, sediments, and other pollutants from stormwater runoff. This
is dependent on the greenway's size and the type and quality of vegetation of the
riparian greenway. Woody plants will remove more nitrogen and phosphorous
from nutrient rich run-off than non-woody species.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT AND GREENWAY PROTECTION PLAN

SINKS

Riparian greenways can act as nutrient sinks through the moderation of
water flow in the associated river and the absorption of water and associated
nutrients into the groundwater. These phenomena are especially evident during
natural periodic floods that the river/stream experiences. Recreation based
greenways can function as sinks by focusing use to an area designed to
accommodate that use and minimize impacts on the areas requiring special protection.

SOURCES

Finally, greenways can function as biological sources. They can be sources of
native seeds for wetland and upland species. If the surrounding land use
patterns are urban or agricultural in nature, then the greenways function as linear
seed banks. This becomes especially evident if the adjacent land is left fallow
and undeveloped. Ecological succession would occur and the greenway could
be the seed source for succession. Greenways can also provide protected water
sources for wildlife and plants if they are located along rivers or streams.

Depending on the design and for whom or what the greenway is intended, a
greenway could provide all six functions within the greenway or it may just serve one or
two functions. All ecological greenway functions can occur only if the greenway is large
or long enough and is connected to important habitat areas. Spatial scale is an important
factor in considering greenway function. Scale or size determines what plants and animals

ST. MARKS AND WAKULLA RivERs RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

can utilize the greenway and how well the greenway functions as a filter. If the greenway
is too small it will not be of much use to large mammals or as a river or lakeside water

filter.

BENEFITS OF GREENWAYS

No other conservation initiative effectively provides as many benefits or serves so
many different purposes as greenways. Greenways not only help protect environmentally

BENEFITS PROVIDED By GREENWAYS

@0 Decrease habitat fragmentation by connecting core habitat areas,

0 Provide plant and animal habitat,

Aid in reducing the effects of flooding by maintaining the natural floodway where water
can naturally accumulate,

4. Maintain and improve river water quality through the natural filtration of nutrients and
sediments,

Enhance recreation opportunities for land or water- based activities,

Provide for historic interpretation,

4@ Offers a great business marketing tool for communities searching for ecotourism -
related businesses,

+ Increase property values of homes and business located adjacent to the greenway,

Provide a measuring stick and marketing philosophy used by many communities to help
determine the quality of life of their community, and

Provide people a quiet place from which to draw inner strength

Figure 5 Sources: Greenways, Inc. and the Florida Greenways Program

ST. MARKS AND WAKULLARIVERs RESOURCEAsSESSIVIENT& GREENWAY PROTECTION PLAN

sensitive lands and wildlife habitat, but they also provide people with outdoor recreation
opportunities. These benefits are highlighted in Figure 5.

GREENWAYS AND WATER QUALITY PROTECTION

Greenways provide water quality protection by conserving floodplains which
provide water storage and conveyance during high water periods as well as filtering
functions for stormwater runoff. The ecological integrity of a stream or river is largely
affected by its response to sediment, nutrients, and other materials originating from the
surrounding uplands (Binford and Buchenau 1993).

Greenways also reduce the impacts of non-point pollution and reduce the impacts
of flooding on property and human lives, while also providing for wildlife habitat.

GREENwAy BENEFTM TO WATER Greenways help regulate water
QuALrry temperatures through shading by
* Hydrologic Regulation of Stream Flow -overhanging trees along the waterbody
Flood Management
# Sediment and Nutrient Filtration / Control (Binford and Buchenau 1993) This
# Nutrient Removal
+Water Temperature Regulation becomes more important in headwater areas
where the streams can be almost entirely
covered by the natural canopy of the forest.
Many species of freshwater fish can not tolerate high water temperatures, because warmer
waters carry less oxygen.

ST. MARK5 AND WAKULLA RIVERs RESOURCF- AS5E5SMENT & GREENWAY PROTEcTiON PLAN

GREENWAYS AND QUALITY OF LIFE

Greenways can improve the quality of life of the communities which they connect
and pass through. One of the most important intangible benefits is conserving scenic
areas, thus helping a community retain its distinctive character. Greenways are a tool to
develop a sense of community by providing linkages to neighborhoods and parks.
Greenways provide a meeting place for cultural exchange where citizens can talk to one
another about events of the day. Greenways are now being incorporated into
neotraditional neighborhood designs linking communities and parts of communities
through a series of open spaces and parks. Greenways have the potential to get people
out of their homes and cars and into the openness of their neighborhoods and
communities where they can meet their neighbors.

There are also several tangible benefits of greenways. Studies have shown that
real property values have increased 5 to 20 percent in residential areas located next to or
within the greenway. The National Home Builders Association reported a 10 to 20 percent
increase in value of residential property in the vicinity of park facilities (Greenways, Inc
1994). In Raleigh, North Carolina people selling their homes near greenways, often use
the amenity value of the greenway as a marketing and sales tool (Greenways, Inc 1994).

Greenways in these cases can also aid property owners through whose lands they
pass by making them eligible for reductions in real estate taxes, income and estate taxes.
Usually, the owner would retain the ownership of the land, but would agree to limit
development in the greenway through a conservation easement. Other options include
purchasing the land in fee simple or leasing the land for a number of years (Greenways,
Inc 1994).

d1b
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ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-nON PLAN

ST. MARKS AND WAKULLA RIVERS RESOURCE AsSES5MENT GREENWAY PROTECTION PLAN 14

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CHAPTER 2

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CHAPTER 2 - RESOURCE ASSESSMENT OF THE ST. MARKS
AND WAKULLA RIVERS WATERSHED

OVERVIEW

The St. Marks and Wakulla Rivers Greenway Project is located in the Apalachee
region of Florida's Big Bend and is a part of the larger Apalachee Greenways Project. The
name of the Apalachee Region is borrowed from the Apalachee Bay which forms the Gulf
of Mexico's coast of along Wakulla County and portions of Franklin and Taylor counties.
Due to the Apalachee Bay's shallow waters, its remoteness and the protected lands and
waters of the St. Marks National Wildlife Refuge, the Apalachee Region has one of
Florida's most undeveloped coastlines. The Apalachee Region is also famous for its
seafood, majestic live oaks, Florida's capital of Tallahassee with its universities, and its
abundant natural, cultural and recreational resources which span from Thomasville,
Georgia to the Gulf of Mexico.

The Apalachee region is home to a vast array of natural resource areas such as
the St. Marks National Wildlife Refuge, Florida's largest national forest - the Apalachicola
National Forest, extensive native stands of long leaf pine in the Red Hills Region of
southern Georgia and northern Florida, and several Florida state parks, forests, recreation
and historic sites. The Red Hills Region combined with the Apalachicola National Forest
comprises Florida's largest nesting area for the threatened Red-cockaded Woodpecker.
Over 600 colonies of Red-cockaded Woodpeckers occur within the National Forest having.
The Apalachee region also provides excellent habitat for one of Florida's largest
populations of Florida Black Bear.

ST. MARKS AND WAKULLARIVERs RESOURCEAsSESSMENT& GREENWAY PROTECTION PLAN 15

Outstanding recreational opportunities abound in and associated with the region's
many natural resource areas. The Apalachicola National Forest has over 100 miles of
hiking and equestrian trails and 15 developed recreation areas. Approximately 100 miles
of the Florida National Scenic Trail traverses the southern part of the region passing
through the St. Marks National Wildlife Refuge and the Apalachicola National Forest. The
16 mile long Tallahassee - St. Marks Historic Railroad State Trail travels from Tallahassee
to the riverside Town of St. Marks near the Gulf of Mexico where it intersects the Florida
National Scenic Trail. The proposed GF&A Rail Trail will run 53 miles from Tallahassee
to Carrabelle passing through historical communities like Sopchoppy and Arran. The
Apalachee region is renowned for its hunting and boating opportunities. The coastal
marshes and beaches provide opportunities for sea kayaking, windsurfing and saltwater
fishing. The St. Marks National Wildlife Refuge is an excellent place for bird watching.

Many historical places of interest are scattered throughout the region. The Red
Hills area retains many historic plantations and buildings and a more traditional southern
lifestyle. The communities of Quincy, Monitcello, Capps, Tallahassee, Thomasville, and
Waukeenah have designated historic districts with many restored buildings on the National
Historic Register. The canopy roads follow historic trade routes of 1800's and are some
of the region's most distinctive features. The legacy of Spanish explorers and missionaries
is interpreted through the Fort San Marcos de Apalache in St. Marks and the San Luis

Mission in Tallahassee.

The threads that tie the Apalachee region together are the six rivers which drain the
region - the Ochlockonee, Sopchoppy, Wakulla, St. Marks, Wacissa, and Aucilla rivers.
These nutrient-rich rivers feed Apalachee Bays' productive fishery. These rivers have

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-noN PLAN

good water quality, little development along their banks, and offer excellent canoeing and
fishing opportunities for the outdoor enthusiast. Spring fed rivers such as the Wacissa and
Wakulla Rivers affords the opportunity to paddle along crystal clear waters, while the
Ochlockonee, Sopchoppy, St. Marks and Aucilla Rivers are outstanding examples of
tannin-stained blackwater rivers. The Woodville Karst Plain which is pocketed with sink
holes and springs is in the southern portion of the Apalachee region. Wakulla Springs at
Edward Ball Wakulla Springs State Park is one the world's largest first magnitude springs.
The Leon Sinks Recreation Area in the Apalachicola National Forest provides visitors the
opportunity to view many magnolia-lined sinks scattered through sand hills and pine forest.
The rivers and springs are fed by the Floridan Aquifer which is replenished by an annual
average rainfall of 60 inches.

The St. Marks Watershed, including the Wakulla River sub-basin, was chosen for
greenway study and analysis by the Florida Greenways Program and the Northwest
Florida Water Management District (NWFWMD) for several reasons. First, the District is
investigating the feasibility of initiating a Surface Water Improvement and Management
Program (SWIM) for the St. Marks watershed as its next SWIM project for the District.
Secondly, the St. Marks and Wakulla rivers retain many of their outstanding natural
characteristics which warrant conservation. These rivers have good water quality
supporting a wide variety of freshwater and estuarine plants and animals. The entire
riverine and estuarine system could be degraded without proper land use stewardship and
growth management. The St. Marks and Wakulla Rivers Greenway Project also
represents an area specific demonstration project for the larger Apalachee Greenways
effort. The goal of the project is to identify ways to conserve the river corridors and in the
ecological, hydrological and economic functions which benefit the entire Apalachee

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

Region.

This project is intended to provide the framework for future greenway planning for
the watershed. This project stresses a watershed approach to greenway and surface
water protection because wildlife and nonpoint source water pollution do not recognize
political boundaries. Many local, regional, state and private interests have been brought
together to approach the greenway planning and mapping task as a regional
effort. The following sections describe the resource assessment and mapping
components of the project.

The project boundaries were selected through the analysis of United States
Geological Survey (USGS) 1:24,000 quadrangle maps and other information from the
Northwest Florida Water Management District. The project's watershed boundaries do not
include the drainage basins of Lake Munson, Lake Lafayette or Lake Miccosukee. Since
this project is a Coastal Zone Management Project, its concern is on direct surface water
hydrologic boundaries and connections (see Figure 2 - Project Boundary). While these
lakes do not have a direct surface water connection to either the St. Marks or the Wakulla

rivers, these lakes do influence the water quality and quantity of the rivers through a
groundwater interconnection. Analysis of these connections are beyond the scope of this
study, both in terms of time and funding. Future analyses of the watershed should explore
the relationships and connections between these lakes, the groundwater of the Floridan
aquifer and the St. Marks and Wakulla rivers. The qualities of the St. Ma rks and Wakulla
rivers can not be maintained without addressing the protection of both the interconnected
surface and groundwater system.

ST. MARKS AND WAKULLA RIVERS RESOURCF- ASSESSMENT GREENWAY PROTECT10N PLAN

A focus of this project is identifying and mapping land uses, significant natural,
cultural and recreational reso urces in the watershed, and a nonpoint source pollution
assessment. Computerized digital resource data identifying important habitat areas and
public lands were provided by the Florida Natural Areas Inventory and the Florida Game
and Fresh Water Fish Commission. Cultural and recreational data were collected by the
Florida Greenway Program from various sources including the Florida Trail Association,
the USDA Forest Service, the USDI Fish and Wildlife Service, the Florida Department of
Environmental Protection, the Florida Department of State, and local historians. Much of
this data was gathered at an Apalachee Greenways mapping charrette held on May
21,1993 in Tallahassee. Resource experts were invited to the charrette to map cultural,
historical, recreational and natural resources on 1:100,000 quadrangle USGS maps. The
non-computerized resource data collected for the project were mapped on 1:24,000
quadrangle USGS maps and then digitized into to the NWFWMD Geographic Information
System (GIS).

The criteria used in selecting the resources identified for the St. Marks Greenways
Project includes the following:

41@ Significant habitat for listed species,
44. Existing and proposed Conservation and Recreation Lands (CARL) lands
Ar Significant natural features,
Significant cultural and historic sites (sensitive cultural and historical
features on private lands were not mapped).

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

4- State parks, recreation areas, and historic sites where the public is invited
to visit,

+ Public recreational trails including the Florida National Scenic Trail, the

Tallahassee - St. Marks Historic Rail Trail and the Wakulla River State
Canoe Trail,
401 Unique geologic features of the region, such as sink holes and springs,
National Forest lands and recreation areas, and
Historic canopy roads open to the public.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

LAND USE ASSESSMENT

The purpose of the land use assessment was the identification and mapping of
existing land use and land cover for the St. Marks and Wakulla Rivers watershed. The St.
Marks and Wakulla Rivers watershed (see Figure 2 -Project Boundary Map) includes
approximately 200,000 acres or about 310 square miles and includes portions of Wakulla,
Leon and Jefferson counties. This was the first time that the type, location, and amounts
of land use and land cover have been mapped and quantified at this level of detail for this
watershed. Land use data were also used as the basis for the nonpoint source
assessment. While this assessment has provided more detailed information than any
previous studies, it should be noted that this information is intended for use at the regional
level. Specific land cover for a particular site should be verified through site inspection.

Satellite image GIS analysis of 1993 data was used to map existing land use and
land cover throughout the watershed. These maps provided an overview of existing land
uses and vegetation within the watershed (Appendix 1). Existing land use and land cover
were categorized using a state-wide classification system developed by the Florida
Department of Transportation (FDOT) for consistency within Florida. (FDOT, 1985. See
also Appendix 11).

The FDOT land use categories were chosen rather than the local comprehensive
plan land use designations for two reasons. First, FDOT system includes land cover
categories, such as upland forest, which are not addressed by the local comprehensive
plans. Second, the statewide system provides a way to consistently categorize land use

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc'nON PLAN

within the watershed while the local land use categories differ between each city and
county. For example, low den sity residential in one county may be one dwelling per five
acres and in another county, low density residential may include up to two dwellings per
acre. Therefore, the land use designations used in this assessment may differ from those
used in the local comprehensive plan existing and future land use maps.

Land use and land cover were identified based on what could be "seen" by the
satellite. Ownership information was not included in the land use assessment. For
example, a tract of land which is considered to be silviculture by the owner might include
areas mapped as silviculture, brush lands, upland forest, or wetlands based on the visible
land cover. It should also be noted that the areas identified as wetlands in this
assessment may not be jurisdictional wetlands. Although the FDOT categorizes land
cover as either uplands or wetlands, many of the "upland" forests classes were found in
low, wet areas and contained approximately equal portions of upland and wetland
vegetation. More than 40 categories of land use and land cover were mapped. For the
purposes of this report, the land use and land cover data has been aggregated into 15
categories. More detailed land use information is available on request from the N-WFWMD

Land use and land cover were checked through ground truthing on site or by air
photos. Sites were selected for ground truthing based on accessibility. Much of the land
within the watershed is either private property or not accessible by road.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

RESULTS

Land use and land cover within the watershed are shown in Figure 6 - St. Marks
and Wakulla Rivers Watershed Existing Land Use and Land Cover. For discussion
purposes all percentages have been rounded. The land use and land cover categories
are consistent with the FDOT system.

Urban. Urban land use comprises 13,439 acres (7 percent) of the St. Marks and
Wakulla Rivers watershed. This contrasts sharply with 185,274 (93 percent) acres of non-
urban land use within the entire watershed (see Table 1, Land Use Acreage and
Percentage). Low density residential represented the largest number of urban acres and
made up 6 percent of the total watershed (12,240 acres). However, the majority of the
residential lands could not truly be characterized as "urban". With the exception of the
towns of St. Marks, and Crawfordville and the Woodville community, the average
residential density within the watershed is approximately one dwelling unit per three acres.
There were no FDOT medium (2 to 5 units per acre) or high density (greater than 5 units
per acre) residential uses identified within the watershed.

Remaining urban categories indiVidually made up less than 1 percent of the acreage
in the watershed. These categories included commercial (499 acres), industrial (454
acres), and institutional (81 acres). Open urban land (111 acres) includes areas which
have been cleared and have infrastructure but have not yet been developed. Recreational
use (56 acres), includes the developed portions of Wakulla Springs. The undeveloped
portions of the state park were classified by land cover type.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

TABLE 1. LANDUSE ACREAGE AND PERCENTAGE

LANDUSE
CATEGORY ACRES PERCENTAGE

Urban Land Uses in the Watershed

Residential 12,239.60 6.16%
Commercial 498.90 0.25%
Industrial 453.70 0.23%
Institutional 81.00 0.04%
Recreation 55.60 0.03%
Open Urban Land 110.60 0.06%

Nonurban Land Uses and Land Cover in the Watershed

Agriculture 20,075.40 10.10%

Shrub and Brushland 7,340.40 3.69%

Upland Forest 49,083.30 24.70%

Silviculture 71,049.60 35.75%

Lakes/Waterways 1,380.30 0.69%

Wetlands 36,033.00 18.13%

Beaches 20.20 0.01%

Spoil/Barren 166.40 0.08%

Transport./Utilities 125.00 0.06%

Urban Subtotal 13,439.30 6.76%
Nonurban Subtotal 185,273.50 93.24%
Total Acres 198,712.90 100.00%

ST. MARKS AND WAKULLA RivERs RESOURCE ASSESSMENT GREENWAY PROTECT10N PLAN

Non-urban. Non-urban land use accounted for 93 percent (185,274 acres) of the
acreage in the St. Marks and Wakulla Rivers watershed (Table 1 - Land Use Acreage and
Percentage). The greatest percentage of non-urban acreage in the watershed was
silviculture (36 percent or 71,050 acres). Natural upland forests included 49,083 acres (25
percent). Approximately one third of the natural upland forests are comprised of xeric
(scrub) oak. Much of the upland forest lands are either located in the Apalachicola
National Forest are owned by the forestry industry. Agriculture, which includes both
cropland and pastures, comprising 20,075 acres (10 percent) within the watershed.
Transportation and.utilities which comprising 125 acres (less than I percent) of the total
watershed acreage. Lakes and waterways comprise 1,380 acres (less than 1 percent) of
total watershed acreage, which are primarily the two rivers and their tributaries.

Wetlands comprise 36,003 acres (18 percent) of the watershed. Spoil/barren lands
(166 acres) and beaches (20 acres) comprised less than 1 percent of the total acreage in
the watershed and are located primarily within the coastal portion of the study area.

COUNTY COMPARISONS

The relative distribution of urban and non-urban land use and land cover for each
county is presented in Table 2 - Urban and Non-Urban Land Use and Land Cover Acreage
and Percentage by County. The majority of acreage within the St. Marks and Wakulla
Rivers watershed is located within Wakulla County (48 percent). Leon County comprises
41 percent and Jefferson County comprises 10 percent of the total watershed acreage.

Ah Ilia I
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ST. MARKS AND WAKULLA RIVERS RESOURCE AssFzssmew & GREENWAY PROTECTION PLAN

Table 2. Urban and Non-urban Land Use and Land Cover 26
Acreage and Percentage by County for the St. Marks- Watershed

Jefferson County Acreage Percent
Agriculture 4,743.3 2.39%
Shrub and Brushland 2.2 0.00%
Natural Upland Forests 3,835.1 1.93%
Silviculture 5,822.9 2.93%
Waterways and Lakes 72.0 0.04%
Wetlands 6,242.2 3.14%
Transportation/Utilities 4.4 0.00%

Urban Subtotal 0.0 0.00%
Nonurban Subtotal 20,722.0 10.43%
County Subtotal 20,722.0 10.43%

Leon County

Agriculture 9,679.6 4.87%
Shrub and Brushland 3,695.3 1.86%
Natural Upland Forests 13,187.5 6.64%
Silviculture 33,435.1 16.83%
Waterways and Lakes 277.1 0.14%
Wetlands 16,307.6 8.21%
Spoil and Barren Lands 109.0 0.05%
Transportation/Utilities 92.8 0.05%

Urban Subtotal 5,573.8 2.80%
Nonurban Subtotal 76,783.9 38.64%
County Subtotal 82,357.7 41.45%

Wakulla County

Agriculture 5,652.5 2.84%
Shrub and Brushland 3,642.9 1.83%
Natural Upland Forests 32,060.7 16.13%
Silviculture 31,791.6 16.00%
Waterways and Lakes 1,031.2 0.52%
Wetlands 13,483.1 6.79%
Beaches 20.2 0.01%
Spoil and Barren Lands 57.5 0.03%
Transportation/Utilities 27.8 0.01%

Urban Subtotal 7,865.5 3.96%
Nonurban Subtotal 87,767.6 44.17%
County Subtoal 95,633.1 48.13%

TOTAL 198,712.8 100.00%

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

St Marks and Wakulla Rivers Watershed Existing Land Use a,kd Land Cover
V
-----------

L
ean. CO.
Jelterson Co Residential

Commercial
T.
Lake jef f erson CO.
Industrial
WJikufIi*:C0.. e efte
WIVID. Bouni ary.
Institutional

Recreational
Figure 6 Leon Co.
Urban Open Land
This, publication was made possible by a
Lake
gubarant ram the Rorlds Department of Community unSOn Agriculture
Affairs. In cooperation with the UA Department

*I Commerce, National Oceanic and Atmospheric
Administration, under Coop.rativu Agreement Shrub/Brush
Award No. NA37OZO427. Additional funding 000-
00
provided by the Elizabeth Ordway Dunn Foundation
Pine Xeric Oak
and Northwest Florida Water Management District
September 1994 Pine Mesic Oak

YT Upland Forest

A Pine Plantations
Ago
0 5
Hard-Conifer Mixed
0 km 8

miles --------- Water
a

Wetlands
Wakulla Co. Marsh
Florida
Greenways
Beaches

\4ater
6t, Transpo./Utilities

Source: Landsat TM

co
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1993 Satellite Imagery
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w ]a
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Ile
i- W4'W'7'.-X'0

No urban land uses were identified within the Jefferson County portion of the
watershed. The predominate non-urban land cover type within Jefferson County was
wetlands, followed by silviculture, agriculture and natural upland forests. Leon County
included more than 5,500 and Wakulla County, more than 7,800 acres of urban land use.
The majority of these urban uses are very low density residential development. Leon
County non-urban acreage includes silviculture (33,435 acres), wetlands (16,308 acres),
natural upland forest (13,188 acres) and agriculture (9,680 acres).

Due to the presence of the Apalachicola National Forest and the St. Marks National
Wildlife Refuge, the majority of non-urban land cover within Wakulla County is natural
upland forests (32,061 acres). Silviculture (31,792 acres) includes almost as much area
as upland forests. Wetlands comprise 13,483 acres within the Wakulla County portion of
the watershed. These wetlands include coastal salt marsh as well as riverine wetlands

(see Figure 6 - Existing Land Use and Land Cover).

NONPOINT SOURCE POLLUTION AsSESSIVIENT

This section of the report presents an evaluation of existing nonpoint source (NPS)
pollution contributions from land use within the St. Marks and Wakulla Rivers watershed.
Increases in the nonpoint loading of this system could have serious -effects on water
quality. Nonpoint pollution sources include agriculture and silviculture activities present
throughout the watershed and, runoff from various dirt roads intersecting tributaries.
Additional nonpoint sources of pollution in the watershed include stormwater runoff, septic

ST. MARKS AND WAKULLA RIVERS RESOURCE AssE55MENT & GREENWAY PROTECTION PLAN

tank leachate and drainage fro m urban and residential development. Land use type and
intensity are strongly related to NPS concentrations.

NPS pollution is a major, largely uncontrolled, cause of surface water degradation
throughout Florida (Livingston et al. 1989). In north Florida, the progression of natural
ecosystems to silvicultural, agricultural, and urban uses has resulted in increased NPS
pollution impacts (Livingston et al. 1989). NPS pollutants in northwest Florida include
pesticides, animal wastes, nutrients, and sediments (Wolfe et al. 1988). Pesticides and
other contaminants can be dangerous to the aquatic ecosystem. Water quality changes
affect wildlife habitat. Increased NPS pollution could adversely impact water quality and
result in its recreational and habitat values being impaired or lost.

The land use assessment provided the information necessary to estimate NPS
pollution loads for each land use and land cover type within the St. Marks and Wakulla
Rivers watershed. The land use acreage information was used with loading rates to
estimate loads for total nitrogen JN), total phosphorus (TP), five day biological oxygen
demand (BOD5) and total suspended solids (TSS). The loading rates and NPS
assessment methodology were derived from previous northwest Florida studies completed
by the District (see Appendix 111).

OBJECTIVES

The objective of this assessment was to estimate potential NPS loadings to the St.
Marks and Wakulla Rivers. Urban and non-urban activities, including residential,

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc"nON PLAN

commercial and industrial development, agriculture and silviculture contribute to altered
surface water quality and flows throughout the St. Marks and Wakulla Rivers watershed.
These alterations in surface water characteristics may, in turn, negatively impact water
quality and wildlife habitat within the St. Marks and Wakulla Rivers.

NPS loadings'from individual land uses must be characterized in terms of origin,
rates, and potential impacts if water'quality effects are to be accurately assessed based
on land use. Geographic Information Systems (GIS) enable planning and resource
management agencies to model current development trends and characterize associated
potential water quality impacts. The present study was designed to identify potential water
quality impacts to the St. Marks and Wakulla Rivers watershed resulting from nonpoint
source (NPS) pollution associated with land uses within the watershed in Wakulla, Leon

and Jefferson counties.

A review of nonpoint pollution sources within a watershed is essential to improving
and managing water resources. This information is necessary for developing strategies
to protect receiving waters. Watershed preservation and restoration plans must address
NPS loadings to watershed systems and emphasize alternatives that reduce loadings of
suspended sediment, nutrients, and contaminants. Many NPS pollutants can be controlled
by compliance with recommended Best Management Practices (BMPs) and associated
water quality standards.

Another issue of particular concern within the watershed is its topography and
karstic nature. The relationships between ground and surface water in the study area are

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

quite complex. These relationships have not been well documented through studies for
this region. The relatively flat topography and highly karstic nature of this watershed are
likely to significantly inhibit overland flow of stormwater runoff. Thus, the findings of this
analysis should be verified through a water quality monitoring program and further study.
A more thorough understanding of the hydrology and hydrogeology of this region would
be helpful for development of water quality protection strategies.

Thus far there appear to have been no comprehensive studies that characterize the
nonpoint source loading potentials within the St. Marks and Wakulla Rivers system and
the existing or potential water quality effects. Nonpoint pollution estimates for existing
sources have not yet been documented for this particular area and previous studies have
been conducted on such a large scale that the available information is difficult to apply to
this specific locale.

The information generated by this study will be accessible to the appropriate state,
regional and local government entities for guidance in formulating plans, rules, regulations,
resolutions and/or ordinances relating to future watershed activities. These could include
future land use controls and various other NPS pollution prevention strategies.

METHODS

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTEr--nON PLAN

loading rates, the original categories were aggregated into 15 categories, based on
similarities in loading characteristics. Previous NPS pollution st udies were reviewed to
corroborate loading rate estimates for water quality parameters and land use categories
(Rains, et al. 1993).

All loading rate calculations were based on local rainfall data. Rainfall data for a
five-year period from the closest available rainfall stations, (Tallahassee and
Wewahitchka) were used to identify a watershed average annual rainfall of 58 inches.

Loading rates for total nitrogen, total phosphorus biological oxygen demand and
total suspended solids were estimated for each land use category. Total loadings were
reported in pounds/year (lbs/yr). Determining whether or not NPS loading from specific
land uses or areas met water quality standards was not within the scope of this study.

RESULTS

Generally, loading rates can be characterized by potential water quality impact per-
acre as shown in Table 3. Urban uses, including commercial, industrial and high de nsity
residential, contribute the highest loadings per acre due primarily to stormwater runoff from
parking areas and loading zones. Active agriculture, such as croplands also can
contribute relatively high NPS loadings on a per acres basis. Less intensive uses, such
as native forests, silviculture and low density residential have much lower per acre NPS
loading rates.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

This assessment estimated the total NIPS load for each land use and land cover
category based on the loading rates for each category and the amount of acreage for each
category identified within the watershed. The total amount of NPS loadings for each land
use is based on whether the land use loads at a high, medium or low rate and how much
of that land use type is present in the watershed.

A comparison of estimated per-acre loading rates for each land use category with
the land use map indicated urban land uses had the highest loadings and smallest area.
Areas in non-urban land uses had the lowest per-acre estimated loading rates, but were
associated with the highest total loadings, as a result of the large acreage of non-urban
land.

Table 3. Relative pollutant loading rates and land uses in the St. Marks and Wakulla
Rivers watershed

Commercial
More Industrial
Intensive High density residential
Institutional
Types of Medium density residential
Cropland/ pasture
Land Extractive
Uses & Low density residential
Spoil/ barren
Land Lakes/ streams
Cover Wetlands
Silviculture (planted)
Upland Forest
Less Recreation/open space
Intensive Low Medium High
Magnitude of Loading Rates

See Appendix III for specific loading rates

db
L@db

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

Total existing urban land use acreage accounted for approximately 7 percent of
the area within the St. Marks and Wakulla Rivers watershed, but because urban uses load
at a high rate, urban uses contributed more than 10 percent of the NPS loads (Appendix
111, Table A-7).

Although estimated per-acre loading rates were lowest for silviculture areas, these
areas included 36 percent of the acreage within the St. Marks and Wakulla Rivers
watershed and thus accounted for the greatest total NPS pollutant load. Silviculture,
upland forests and agriculture produced the majority of NPS loads due to the large amount
of acreage for each present within the watershed. However, on a per-acre basis,
silviculture and upland forests have the lowest NPS loadings. Thus, if silviculture and
forest lands are converted to more intense land uses, such as agriculture or residential,
the NPS pollutant load from the converted area will increase (see Table 3).

Because NPS pollution is difficult to control, the Environmental Protection
Agency and the FDEP have agreed upon preventive management techniques which best
protect the water resource and contribute to good overall forest and agriculture
management (Florida Department of Agriculture and Consumer Services 1991). Best
Management Practices (BMPs) represent a practice or combination of practices
determined to be the most effective means of preventing or reducing the amount of
pollution generated by these nonpoint sources to a level compatible with water quality
goals. Implementation of silviculture, agriculture and urban BMPs provide a means to
protect water resources quality in the St. Marks and Wakulla Rivers watershed.
@@_d @Ab

0 ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEC71ON PLAN

The impacts of silviculture and agriculture activities can be substantially reduced
if recommended BIVIPs are comprehensively implemented and rigorously enforced. In an
effort to clarify the use and interpretation of BIVIPs and to make their application more
consistent, Florida forestry BIVII?s have recently undergone substantial revision to increase
water resource protection. The use of BMPs will reduce NIPS loadings from silviculture.
The Division of Forestry is currently reassessing compliance and effectiveness of BlVlPs
in an effort to more accurately reflect BIVIP compliance.

Three general options exist for abating NIPS pollution from urban activity. The
options involve prevention, treatment, and control measures, implemented as an integrated
abatement approach (Wanielista 1975). In brief, prevention involves practices that are
applied before problems arise; treatment involves complete or partial physical, chemical,
and/or biological processes for minimizing impacts of stormwater; and control measures
would involve reduction or control of pollution sources.

Ideally, limiting discharges from new developments to discharge that would have
occurred under natural, undeveloped conditions, in addition to maintaining water quality
standards, should result in no increases in NIPS pollution.

CONCLUSIONS

Over the past ten years, there has been a 40 percent decline in water quality
monitoring of stream reac hes in Florida (Hand and Paulic 1992). This downward trend in
monitoring threatens the ability to accurately assess the quality of Florida waters and

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

emphasizes the need for more water quality data. The availability of site-specific loading
rates in the St. Marks and Wakulla Rivers watershed and northwest Florida in general
would provide the information necessary to more accurately estimate total NIPS loadings

to the watershed.

Results of this study emphasize the importance of controlling NPS pollution in both
urban and non-urban settings. As expected, potential water quality impacts per-acre were
greatest for the transportation/utilities, commercial, industrial, and high density residential
urban land use categories. Although loading rates for non-urban categories were
comparatively low on a per-acre basis, silviculture and agriculture practices may adversely
impact quality in the St. Marks and Wakulla Rivers watershed.

The methodology described in this assessment integrated GIS, satellite imagery,
land use plans, and land use/cover maps to model existing land use development patterns.
GIS technology can also provide the means of using comprehensive plan future land use
maps interactively with existing land use/cover data so location, type, and quantity of NPS
loadings can be projected for future scenarios. The GIS can assist in estimating potential
NIPS loadings resulting from urban development designated by the comprehensive plan
future land use map. The information and maps resulting from this assessment the
regarding the relative intensity, size,' and location of NIPS pollution that can be made
available to reviewing agencies and local officials.

The methodology used in this study is intended for use by state, regional and local
agencies in developing and implementing strategies to reduce NIPS loadings in the
watershed. The project methodology provides a framework for the development and

1-o

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

implementation of pollution load reduction goals, total maximum daily loads, best
management practices, land development regulations, land preservation and acquisition,
water quality protection and watershed management goals. Targeting stormwater
treatment and compliance with recommended forestry, agriculture and urban best
management practices would reduce NPS loadings into St. Marks and Wakulla Rivers and
ultimately Apalachee Bay. These efforts should include education for homeowners
regarding BMPs.

The St. Marks and Wakulla Rivers land use and nonpoint source assessment
should be used by local governments in their planning and development review processes.
In areas proposed for development, the existing land use map can be used as the first step
in- performing a land suitability analysis. Local governments can identify specific existing
land use/ land cover categories to be used as "red flags" when these land cover types
occur in an area proposed for development. Any proposed land use change should
consider NIPS impacts which may occur from the new land use. Maintaining native forests
and well managed silviculture uses will result in lower NPS loads than if these lands are
converted to agriculture or urban uses.

Local governments can mini mize nonpoint pollution through growth management.
Local government comprehensive plans address land use by designating future land uses,
while development regulations address ways the land may be developed within each
particular land use category. Land use designations in local government comprehensive
plans should reflect the future land uses that local governments believe will serve the
future needs of its jurisdiction. The reasons for designating a given parcel or area under
a particular future land use category can be quite varied, and typically include

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

consideration of criteria such as the physical features of the land, including development
constraints; access to services such as schools, roads, sewers, and central water systems;
and location in relationship to urban areas. Local governments may want to preserve the
rural character of certain areas or may want to encourage urbanization of fringe areas
around existing urban centers.

Local government comprehensive plans should include density and land use
restrictions which allow only land uses which are compatible with protecting natural
resources and water quality within the greenway. One way this can be accomplished is
by designating the greenway as a special conservation area on the Future Land Use Map
and controlling land use to protect the greenway. Commercial, industrial, and high-density
residential uses may not be appropriate for these areas based on high NPS pollution
loading potential of these uses.

When designating future land uses for riverine areas within the watershed, the
effect of such designations upon the water resources and quality must be considered.
Future land use designations which restrict development for the purpose of protecting
water resources and wildlife habitat are clearly in the public interest. Requests to change
watershed land use designations to allow more intense uses must be carefully reviewed
for possible impacts to the resources.

Because of the impacts likely to result from land use conversions, it is
recommended that the intensity of land uses within the St. Marks and Wakulla Rivers
watershed not be increased in the local comprehensive plans. Retaining lands in

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

silviculture and very low-density rural residential uses (in the future) will have the least
impact on water quality. Because of the higher loading rates associated with agricultural
uses, conversions of use from silviculture to agriculture should also be strongly
discouraged. Local and state governments should provide economic incentives to private
landowners to retain low intensity land uses to help minimize nonpoint source water
pollution.

The information from this assessment should also be used as baseline data for

measuring land use conversions in the watershed. Similar land use assessments could
be performed at specific intervals (every five to ten years would be appropriate) to
accurately document changes in land use which could impact St. Marks and Wakulla
Rivers. These assessments can also provide information which should be used to verify
past projections of land development patterns and to help predict future patterns.
Nonpoint source pollution loading models should be updated and verified following each

land use assessment.

Land development regulations (LDRs) are ordinances of local government which
prescribe various conditions which must be adhered to during the development process.
LDRs typically address issues such as lot coverage, setbacks, stormwater control, buffers,
septic system requirements, flood protection, wetlands preservation, and construction
management practices. LDRs also often include additional restrictions for activities in
specific geographic areas, such as greenways, which could impact resources that are
particularly sensitive, such as rivers, habitat areas and large wetland systems.

ST. MARKS AND WAKULLA RvERs RESOURCe AssEssmENT GREENWAY PRoTEc-noN PLAN

Development and implementation of local land development regulations are critical
to protecting greenways, since urban activity usually alters the magnitude and effects of
hydrology and pollutant loads by increasing impervious areas. Such flooding and
stormwater loading problems require that preventive land management measures be an
integral part of urban development plans.

FURTHER STUDIES

Ideally, regional loading rates should be researched and applied to establish site-
specific loadings in future studies. The surface water flow patterns and karstic geology
within watershed also should be studied to identify relationships between ground and
surface waters and any implications for NIPS pollution estimation and management.

Literature-based loading rates provide a means of estimating NPS loads. Water
quality sampling to establish local loading rates is, however, preferable. Although
estimates of NPS loadings based on general runoff water quality data is the least
expensive because it requires no field data collection, its accuracy is difficult to verify.
Runoff monitoring methods provide best estimates of existing loads, but cannot be used
to predict load changes of a changing urban system (Marsalek 1991). The success of
simulation models using either of these methods depend on successful calibration.

A comparison of estimated NIPS loading values and actual water quality data should
be conducted to assess the applicability of the literature-based NIPS loading methodology.
Future studies, modelling and mapping should also consider such factors as floodplains

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

in estimating NPS loadings and rate coefficients.

Further studies are necessary to implement Pollution Load Reduction Goals (PLRG)
and Total Maximum Daily Loads (TMDL). The term TMDL is the end result of a process
applied by FDEP and EPA to limit total pollutant loadings discharged into a waterbody to
protect critical biological, chemical and physical attributes and maintain the designated use
of the waterbody (US EPA 1991).

INTERGOVERNMENTAL COORDINATION AND IMPLEMENTATION

Stat e and local governments should take a proactive role in securing funds to
undertake stormwater planning and implementation and implement long-term monitoring
of NPS pollution and BMP effectiveness.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

ST. MARKS AND WAKULLA RIVERS RESOURCE INVENTORY

NATURAL RESOURCES OF THE WATERSHED

GEOGRAPHY & HYDROLOGY OF THE ST. MARKS RIVER

The St. Marks River drains 1, 180 square miles in the eastern portions Leon and
Wakulla counties including eastern Tallahassee, western Jefferson County and southern
Thomas County in Georgia (Hand and Paulic 1992 b). The Project' s study area focuses
on the portion of the watershed in
southern Jefferson, eastern Leon, and
Wakulla counties. The St. Marks River What is Karst topography?
flows for 35 miles in Florida before it Carbonate rocks, such as
empties into Apalachee Bay at the Gulf of limestone and dolomite are highly
Mexico. It originates in the north Florida / vulnerable to chemical weathering and
south Georgia Red Hills Region where the erosion. The distinctive landforms and
unique drainage characteristics that
soils are principally clayey-sand. The river result from this weathering are termed
is classified as blackwater river. Upstream karst.
the river is suspected to be influenced Karst topography including
more by overland flow from rainfall sinkholes, springs, wet/dry depressions,
(surface water) than by groundwater. The sinkhole lakes and swallow holes
region receives an average of 60 inches of (disappearing streams) are common
features of limestone and dolomite
precipitation annually. July is the wettest terrains. Karst features can provide a
month with periods of high rain from direct conduit for the introduction of
contaminants into the Floridan Aquifer.
February to March (FNAI and FDNR *..
1990). Figure 7 .............. ------ ......

Ah Alt

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

The St. Marks river has, however, many unique features not typical of a blackwater
river. As the St. Marks River flows over the Woodville Karst Plain, it is influenced by many
springs and the limestone rock it flows over (Hand and Paulic 1992; and FDNR 1989).
The central and southern reaches of the river flow over the Cody Scarp and the Woodville
Karst Plain where the underlying limestone lies close to the surface (Hand and Paulic
1992b ). Many springs and sink holes are scattered throughout this area, including many
small streams that often flow on the surface for short distances before they disappear into
sinks or swallowholes. The river is influenced by groundwater and surface water in these

two areas.

Horn Spring and Rhodes Spring are the first major springs along the St. Marks River
north of Natural Bridge. At Natural Bridge during normal flow, the St. Marks River flows
underground and rises up at St. Marks Spring about one mile south where the water loses
much of its dark appearance. The average flow of the St. Marks Spring is 700 cubic feet
of water per second (FDNR 1989). From this point on, the St. Marks River begins to
resemble a spring fed river flowing 11 miles south to the confluence with the Wakulla River
at the Fort San Marcos de Apalachee in the City of St.. Marks (for characteristics of spring
fed rivers refer to the following section on the Wakulla River). A few smaller springs, such
as Newport Spring, feed the river south of the rise. The improved clarity and increase in
pH provides better conditions for aquatic plant growth and a more productive fishery in this
portion of the river.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTE07ION PLAN

WATER QUALITY OF THE ST. MARKS RivE:g

Water quality is excellent in much of the watershed; however many reaches of the
St. Marks River have not been sampled recently (Hand and Paulic 1992b). The portion
of the St. Marks River adjacent to the port Town of St. Marks exhibits a number of water
quality problems. The section on the northeast end of town from Rattlesnake Branch to
the confluence with the Wakulla River on the southwest end of town is influenced by tank
farms and barges, a power plant, marinas, waste water effluent and urban stormwater
runoff. There have been several major and minor oil spills in the past, and the river bottom
sediments in the area are coated with oil (Hand and Paulic 1992b). The St. Marks River
is designated as Outstanding Florida Water (OFW) body except for this portion of the river.
The OFW designation allows for no further degradation in water quality'and is the State
of Florida's highest designation of quality for natural water bodies.

EcOLOGY OF THE: ST, MARKS E31VEFR

The St. Marks River originates in the hardwood and cypress river swamps in north
Florida and a small portion of south Georgia. Rivers, such as the St. Marks, which
originate from swamps and bottomland forests are known as blackwater rivers (Ewell
1990). Blackwater rivers originate in areas where there are sandy lowland areas with
extensive wetlands with organic soils. These wetlands function as reservoirs, collecting
water and overland flow and discharging it into the stream (FNAl and FDNR 1990). The
dark tea-colored water originates from the natural organic acids (tannins) resulting from
the decay of leaf litter and other organics found in river hardwood and cypress swamps.
The water tends to be naturally acidic with a pH of 4.5 to 5.5.. The pH increases as the

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

St. Marks flows through underground caverns downstream at Natural Bridge. The dark
water tends to limit aquatic plant growth on the river bottom, however, emergent aquatic
plant growth is prevalent along the banks.

The intact bottomland hardwood forest and river swamp corridors along the St.
Marks River moderates stream flow and the magnitude of flooding by providing overflow
areas for floodwaters to disperse. Streamside vegetation slows flood waters and upland
storm water run-off while dispersing the energy associated with the moving water which
reduces erosion. The leaf litter and other organic debris associated with the riparian
ecosystem combine to form soils that are very porous. These loamy soils act as a sponge
to soak up rain water, then slowly release the water back into the riverine system.
Vegetation impedes run-off causing it to slow down while increasing infiltration of water

into the soils.

The upper reaches of these rivers are influenced by natural stormwater runoff flow
and groundwater seepage. The groundwater may contribute to the river flow as much as
rainfall, especially in the areas where Karst topography exists (Ewell 1990). These high
water table forests experience occasional flooding during heavy rains. The St. Marks River
at peak floods often flows over Natural Bridge, flooding much of the surrounding

bottomland forest.

The St. Marks River is lined with hardwood and cypress swamps much of entire
length of the river, except in areas of silvicultural harvesting and residential development.
The associated bottomland forest directly adjacent to the river is characterized by tall
hardwood trees such as oaks, maples, elms, and American Beech. Other bottomland

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

forest trees include Loblolly Bay, Southern Magnolia, Swamp Tupelo, Bald Cypress and
Sweet Gum. Typical animals found in bottomland forest include the Marbled Salamander,
Cotton Mouth Water Moccasin, Eastern Screech Owl, Gray Fox, and White Tailed Deer
(FNAI, 1990). Many animal species use the linear nature of these bottomlands for
migration and reproduction. Migrating ducks such as the Mallard and Black Ducks often
winter in river swamps where they feed on acorns and hickory nuts in the floodplain
(Wharton et al. 1977). Listed species that inhabit the river corridor include the
endangered Wood Stork, the threatened Bald Eagle, Florida Black Bear, Red - cockaded
Woodpecker and species of special concern such as the Limpkin, Osprey, and the
Suwannee Bass (FDNR 1989).

GEOGRAPHY - HYDROLOGY OF THE WAKULLA RIVER

The Wakulla River rises from Wakulla Springs and the Floridan Aquifer at Edward
Ball Wakulla Springs State Park about 12 miles south of Tallahassee. Wakulla Springs,
a first magnitude spring, is one of Florida's highest volume springs providing most of the
Wakulla River's average 400 cubic feet per second flow (Hand and Paulic 1992). The
Wakulla River flows south for ten miles, to the confluence of the St. Marks River at the port
Town of St. Marks. The mineral laden waters originating from deep springs are often
devoid of sediments and have a pH of 7.0 to 8.2 (FNAI and FDNR 1990). The clear, cool
waters are very conducive for plant growth and other aquatic life.

Wakulla Springs is in the south-central part of the St. Marks basin which is in a
highly karstic region of Wakulla County. There are numerous sinks and streams that
disappear into the ground to the north and west of the spring. It is widely speculated that
there is a strong relationship between the surface waters entering the sinks to the north
kAh AX,

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-nON PLAN

and the outflow of the springs (Hand and Paulic 1992). These relationships are being
researched by the Woodville Karst Plain Project.

WATER QUALITY OF THE WAKULLA RIVER

The Wakulla River is designated an Outstanding Florida Water body by the Florida
Department of Environmental Protection. The river has outstanding water quality in the
springs and upstream segments (Hand and Paulic 1992 b). However, the water quality
index is unknown as of the 1992 Florida Water Quality Assessment 305 (b) Report. Both
the Florida Rivers Assessment and the 305 (b) report state that the lower portion of the
Wakulla River is threatened by increased growth along the river and lack of adequate
buffers along the Wakulla's banks (Hand and Paulic 1992b; FDNR 1989). The lower
section of the Wakulla River near the port town of St. Marks has increased algae growth
probably resulting from industrial and domestic pollution and nutrient sources (FDNR
1989).

EcOLOGY OF THE WAKULLA RIVER

The Wakulla River is fairly unique to the Panhandle of Florida, because it is one of
a few spring fed rivers in northern Florida. Most of Florida's spring fed rivers occur in
central and south Florida. There are three different plant communities associated with the
Wakulla River. Most of the Wakulla River is lined with a river swamp/bottomland
hardwood forest similar to the St. Marks River, although Bald Cypress, Black Gum, and
Tupelo trees are more prevalent along the Wakulla River. Upstream the river is lined with
cypress and hardwood river swamps, mid stream the river swamps gradually give way to

ST. MARKS AND WAKULLA RIVERS RESOURCe ASSESSMENT & GREENWAY PROTEc-nON PLAN

freshwater tidal swamps and near the river's confluence with the St. Marks River, salt
marshes begin to appear along the rivers edge. In areas where development has
occurred, the river swamp has been filled or modified.

Many species of water birds inhabitant the Wakulla River, including the largest and
most northern breeding colony of Limpkins. The Limpkin is a species of special concern
and is endemic to Florida's spring fed rivers where it feeds on various freshwater snails.
Other wading birds inhabiting the river include the Little Blue Heron, Great Blue Heron,
White Ibis, Snowy Egret, Tricolor Herons. Other birds found include migratory waterfowl,
warblers (Prothonotary, Hooded, Kentucky, and Northern Parula), and the Wakulla
Seaside Sparrow. Other animals inhabiting the Wakulla River include the American
Alligator and the threatened Bald Eagle and the endangered West Indian Manatee (FDNR
1989). Protected animal species include the Florida Black Bear and the Eastern Indigo
Snake. The unique Woodville Cave Crayfish can be found in the underwater caves along
the river. Wakulla Springs State Park has preserved habitat for numerous rare and
endangered plants. There are over a dozen rare and endangered ferns and orchids found
within the protected boundaries of Wakulla Springs State Park (FDNR 1989).

South of the US Highway 98 bridge, the Wakulla River is influenced by the daily
tides of Apalachee Bay and the Gulf of Mexico. The ecosystems associated with tidal
areas are known as freshwater tidal swamps. The freshwater tidal swamps along the
Wakulla River are comprised of Bald Cypress, Tupelo, Cabbage Palm, Sweet Bay
Magnolia and Black Gum (Wharton et al 1977).

ST. MARKS AND WAKULLA RvERs RESOURCF- ASSESSMENT GREENWAY PROTEC-110N PLAN

The Wakulla River flows into the St. Marks River at the Town of St. Marks. The St.
Marks River then flows for three miles through the St. Marks National Wildlife Refuge
before emptying into Apalachee Bay. The surrounding lands are primarily salt marshes
dotted with pine flatwoods islands. The expansive salt marshes of the St Marks National
Wildlife Refuge are a part of the vast salt marshes which stretch approximately 200 miles
from Cedar Key to the Ochlockonee Bay (Clewell 1986; FDNR 1989). This nearly
beachless coastline is due to the shallow waters and seagrass flats of Gulf of Mexico
which absorbs much of the wave energy before it reaches the shoreline (Clewell 1986).
These smaller waves do not have the energy to move enough sediment for beach and
island formation, but they do allow the creation of the salt marshes.

RECREATIONAL RESOURCES OF THE WATERSHED

Most of the recreational and economic opportunities of the watershed are closely
linked to the natural features and beauty of the Wakulla and St. Marks rivers. The
watershed includes many natural features such as the Wakulla Springs and the Leon
Sinks Geological Area in the Apalachicola National Forest. The watershed's natural
resources draw visitors into the outdoors for fishing, hunting, hiking, swimming, horse-back
riding, off-road bicycling, in-line skating, canoeing, and manatee watching. There are
numerous trails, parks and quiet areas to spend the afternoon or a few nights in the
wilderness (see Figure 8 - St. Marks and Wakulla Rivers Recreational, Historic and
Cultural Features). The Florida Greenways Program maintains a database that contains
information on the resources found within the region which is available upon request. The
following describes the trails, parks and historic sites that are found within the watershed.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECT10N PLAN

St Marks and Wakulla Rivers Recreationalr Historic and C61tural Features
V
City of
J,
Tallahassee

JOttO Min.
W,
Public Lands
Jeff e*rs*"qn
:16 We

wakwis do Lake yette
CARL Lands
Oaty
7. . (Proposed)

U.
Watershed
Figure 8 Boundary

Trcm Roo
This publication was made possible by a

0
bgrant from the Florida Department al Community
u --- Major Roads
Affair*, In Cooperation with the U.S. Department
of Commerce Nation I Ousumic and Atmospheric

funding
Administroti n, under COOPWINtiva Agreement
Award No. NA970ZO427. Additional G_@ Transmission
provided by the Elizabeth Ordway Dunn Foundation
and Northwest Florida Water Management Dletr[Gt. eon S ks Lines

September 1994 Natural Bridge
County &
WMD Boundary

akulla Springs

5 10 4.
Vi Proposed Trails
km
8 A
miles Existing Trails

1P
Crawfordville
t. me kz Canoe Trails

Florida
Gveenways
Historic Features
05
%j4ater
A Natural Features

Recreational
Features

FLoRiDA NATiONAL SCENic TRAiL

The Florida National Scenic Trail (FNST) meanders for 100 miles through the
southern portion of the watershed as it travels through the St. Marks National Wildlife
Refuge and the Apalachicola National Forest. It crosses the St. Marks River at the port
Town of St. Marks which is located at the southern end of the Tallahassee-St. Marks
Historic Railroad State Trail. There is no bridge constructed to cross the river, but hikers
often find friendly boaters or they make arrangements with a local marina to ferry them
across the river. The FNST is co-located for 2.5 miles with the Tallahassee-St. Marks

Historic Railroad State Trail. The trail continues two miles west along US Highway 98
where it heads over the Wakulla River on the highway bridge before re-entering the
Refuge. The Florida Trail must be removed from the US Highway 98 right of way if it is to
be eligible for designation as part of the Florida National Scenic Trail. The FNST in the
Refuge is designated as a hiking trail, but it is a multi-use trail where it joins with the rail
trail. Use data for the FNST has not been collected, but it is actively maintained and used
by the volunteer members of the Florida Trail Association.

TALLAHASSEE- ST. MARKS HISTORic RAILROAD STATE TRAiL

The Tallahassee-St. Marks Historic Railroad State Trail is the State of Florida's
(DEP) first rail trail. The beginning point for most trail users is the Capital Circle Trailhead
located just south of Tallahassee on State Road 363. The trail follows Florida's oldest rail
line (operating from 1837 to 1984 as the Tallahassee-St. Marks Railroad) for sixteen miles
to the port Town of St. Marks (FDEP 1994). Since its opening the trail has been very

ST. MARKS ANO WAKULLA RIVERS RESOURCE AssESSMENT & GREENWAY PROTECTION PLAN

popular, receiving up to 170,000 bicyclists, walkers, skaters, and equestrians annually
(Moore et al 1992). The Munson Hills off-road bicycling trail is located off the rail-trail one
mile south of the Capital Circle trail-head. Southern Trail Riders maintains a horse trail
adjacent to the rail-trail. Popular activities on the paved portion of the trail include
bicycling, walking and in-line skating. Bicycles and in-line skates can be rented at the
Capital Circle trail head. Water fountains can be found along the trail and refreshments

and restrooms are found at each end of the trail.

GEORGIA, FLORIDA AND ALABAMA RAIL TRAIL

The proposed 53 mile long Georgia, Florida and Alabama (GF&A) Rail Trail is in
the early stages of planning. The US Forest Service is currently studying the proposed
route for its environmental and social impacts under the National Environmental Policy Act'
(NEPA). Once completed the GF&A Rail Trail will connect Tallahassee to Sopchoppy in
Wakulla County and Carrabelle on the Gulf of Mexico in Franklin County. The trail skirts
the northwestern boundary of the Wakulla River basin in the Apalachicola National Forest.

WAKULLA RIVER CANOE TRAIL

The Wakulla River is a state designated canoe trail used by thousands of people
for canoeing, manatee watching, and fishing. TNT Hideaway Canoe Rentals, located at
the U.S. 98 bridge, reports renting nearly 2,000 canoes annually for use on the Wakulla
River. There is public access at the Upper Bridge on SR 365, the Lower Bridge on US
Highway 98, hand-launching at the St. Marks Town Park just upstream of the Fort, and the

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-noN PLAN

public boat ramp adjacent to the Fort San Marcos de Apalache State Historic Site in port
Town of St. Marks. The Shell Island Fish Camp provides river access at its private
boatramp. Canoe rental, shuttle and guide services are available by reservation from the
Canoe Shop in Tallahassee and from Gulf Coast Excursions in Panacea. Restrooms and
drinking water are available at the fort, TNT Hideaway Canoe Rental and the St. Marks
Town Park. Olin Corporation manages a private park and picnic area for its employees
along the Wakulla River; 1/2 mile downstream form the U.S. 98 bridge.

ST. MARK5 RIVER

The St. Marks River although not designated as a state canoe trail, but it offers an
enjoyable paddle having limited motorboat traffic upstream of the US Highway 98 bridge.
The St. Marks River can be accessed at the US Highway 98 Bridge in Newport from the
boat ramp and park managed by the Florida Department of Agriculture's Florida Forest
Service. The park also offers overnight camping.

Bio BEND HISTORIC SALTWATER PADDLINg TRAIL

The state designated Big Bend Historic Saltwater Paddling Trail follows salt
marshes and shallow bays for nearly 150 miles along the Gulf Coast from the St. Marks
National Wildlife Refuge to the mouth of the Suwannee River. The trail is not currently
marked and there are few developed facilities along its route. Publication of a guidebook
describing the trail is planned for 1995.

a Alt

ST. MARKS AND WAKULLA RIVERS RE50URCE ASSESSMENT & GREENWAY PROTECTION PLAN

THE APALACHicoLA NATiONAL FOREST

The Apalachicola National Forest is Florida's largest national forest with 563,986
acres of which 32,000 acres are designated as Wilderness (USDA Forest Service 1994).
The eastern portion of the Forest in the Wakulla Ranger District lies within the St. Marks
watershed. There are over 680 active Red-cockaded Woodpecker colonies within the
forest, making it one of the largest populations of Red-cockaded Woodpeckers in the
United States. The Apalachicola National Forest supports a wide variety of recreational
opportunities including hunting, fishing, hiking, horse-back riding, canoeing, camping and
off- road bicycling. There are 15 developed areas for recreation scattered throughout the
Apalachicola National Forest with most of them situated on a lake or a river. There are
over 120 miles of hiking and horse trails in the forest (US Forest Service 1994). There
were 538,000 visitors enjoying the Apalachicola National Forest in 1993.

The Leon Sinks Geological Area is located in the eastern portion of the
Apalachicola National Forest along S.R. 363 near the Leon-Wakulla County line. Leon
Sinks has many karst features including wet and dry sinkholes and stream disappearing
into a swallohole. There are two loop trails totalling 5.9 miles taking visitors past these
unique sink holes, turkey oak scrub habitat, river swamps and pine flatwoods. These trails
are open for hikers only. Water and restrooms are available on site.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEC-nON PLAN

THE ST. MARKS NATiONAL WILDLIFE REFUGE

The St. Marks National Wildlife Refuge comprises the entire coastal salt marsh
section of the St. Marks Basin. The Refuge is approximately 65,000 acres of saltmarsh,
pinelands, turkey oak scrub, and hydric hammocks. The historic St. Marks lighthouse is
located at the point near the mouth of the St. Marks River in the Refuge. There is a public
boat ramp near the lighthouse. Mounds Pool and Stony Bayou Trail is located along the
dike system surrounding the fresh water pools and marshes at the Refuge. The trails are
open year round to bicycling, horseback riding and hiking. Bird watching is especially
popular from the trails. Many waterfowl can be observed feeding in the fresh water pools
and the salt marshes. Small boats and canoes with up to ten horsepower motors are
permitted in the pools from March 15 to October 15. The Refuge provides bird watchers,
bicyclists, equestrians and hikers many opportunities to see an abundance of wildlife. The
Refuge had over 250,000 visitors in 1993.

EDWARD BALL WAKULLA SPRINGS 5TATE PARK

The 1,500 acre Wakulla Springs State Park surrounds the headwaters of the
Wakulla River (FIDEP 1994). Picnicking, swimming and snorkeling are popular activities
in the park near the head spring. Boat tours are available for tours of the river within the
park. Hiking and nature trails also wind through the parWs uplands and lowlands. Wakulla
Springs State Park is listed on the National Register of Historic Places, and there are
several historic structures including a 27-room inn and conference center. The historic
lodge was constructed in 1937 by Edward Ball and is now operated as a conference center
by Florida State University (FIDEP 1994). In 1993, nearly 150,000 people visited the park.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

NATURAL BRIDGE E3ATTLEFIELD STATE HISTORIC SITE

Natural Bridge Battlefield State Historic Site is located at the natural land bridge
where the St. Marks River flows underground in southern Leon County. This historic site
commemorates a Civil War battle on March 6, 1865. Tallahassee never fell into the
Union's hands as a result of the battle. The Battle of Natural Bridge is re-enacted annually
at this site. Nearly 16,000 people visited.the historic site in 1993.

FoRT SAN MARCOS DE APALACHE STATE HISTORIC SITE

The Spanish Constructed the fort in 1679, at the confluence of the St. Marks and
Wakulla Rivers, to control the passage of ships up the rivers and establish a foothold in
the region A museum and guided tours are available on the site. There is a picnic area
and nature trail at the fort. The Town of St. Marks maintains a public boat ramp adjacent
to the fort on the St. Marks River. In 1993, nearly 12,000 people visited Fort San Marcos.

OTHER OPPORTUNITIES

The many rural highways in the watershed allow bicyclists the opportunity to tour
the watershed's's historical sites and recreational parks. Rural canopy roads in the
northern part of the watershed offer tree-shaded touring. East of Williams Road Old St.
Augustine is an unpaved canopy road suitable for an enjoyable afternoon of off-road
bicycling. Old St. Augustine skirts the watershed's northern boundaries .

ST. MARKS AND WAKULLA RIVERS RESOURCe ASSESSMENT GREENWAY PROTECTiON PLAN

THE EcONOMic BENEFITS OF EcOTOURISM IN THE WATERSHED

The economic impact of outdoor, resource-based recreation can be substantial.
Hundreds of thousand of people use the St. Marks and Wakulla rivers watershed for
outdoor recreation and spend millions of dollars on equipment, food and other supplies to
pursue their preferred outdoor activities. The national forest and national Wildlife Refuge
provide habitat for a wide array of plants and animals. These parks with their many trails
draw thousands of people to the region for their outdoor recreation opportunities. Data
have been compiled on recreational use of the larger park units. Limited data are
available for the canoe trails and the Florida National Scenic Trail. Table 4 provides the
use data for the listed parks and trails.

TABLE: 4 - RE:C:RE:ATIONAL USE: FOR SE:LECTEo AREAS IN THE WATERSHED IN
1993
AREA OR TRAIL NAME NUMBER OF VISITORS

Apalachicola National Forest, 538,000
St. Marks National Wildlife Refuge 2 256,658 total visits 25,250 hiking visits

Tallahassee - St. Marks Historic State Trail 3 170,000

Natural Bridge Battlefield State Historic Site 15,813

Fort San Marcos de Apalachee State Historic Site 4 11,935

Edward Ball Wakulla Springs State Park 4 142,262
ijawvh*@ ----
SOURCIES:
i National Forest in Florida Forest Facts 1993 - visitor days. One visitor day is one person visiting for a 12 hour stay.
2 St. Marks National Wildlife Refuge, US Fish and Wildlife Service 1994.
3 Economic Impacts of Rail Trails, Moore et al, 1992.
4 Florida Department of Environmental Protection, Division of Recreation and Parks 1994. Data are from I gn`19M fiscal year.
L@d b

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

Demographic data collected from the St. Marks National Wildlife Refuge indicates
that 41 percent of the visitors came from the local area. The local area is defined as the
area within a two hour driving radius from the Refuge Visitor Center which is located near
Newport. This means that 59 percent of the visitors are tourist. These data suggest that
a relatively high number of the watershed's's resource users are visitors from outside the
region.. Further research needs to be undertaken to quantify the number of tourist who
use the resources as well as the dollars spent in the Apalachee Region as a result of the
Refuge, the Forest and other parks.

Visitor use data ComPARA-nVE USE TRENDS
were gathered for the AMONG SELECTED PARKs-TkAn-s
watershed's parks (see 350,000-
Figure .9 - Comparative 300,000
Use Trends) for a five year 250,000-
> 200,000
period and the trend k.
0 150,000
x
indicates visitor use for the W
M 100,000
parks and trails is z 50,000
increasing or the same 0 - 1989 1990 1991 1902 1003
people are using these YEAR
areas more frequently. MST. MARKS RF-ruae SAN MARCOS NATURAL BRIME
Either way, the resources M RAIL TRAIL MWAKULLA SPRINGS
are being used by an Figure 9, Sources are from the respective park manager's offices
increasing number of people on a more frequent basis. This suggests more money may
also be spent on equipment rentals/ purchases, food, souvenirs, and lodging.

The Tallahassee - St. Marks Historic Railroad State Trail has been studied
documents its economic impacts on the community. The results of these studies indicate

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

that the average visitor to the Trail spends $11.00 dollars per person per day. This results
in a total annual economic impact of over $1.2 million dollars with $400,000 dollars
generated from tourist (Moore et al 1992). The Economic Impacts of Rail Trails further
indicated expenditures on durable goods related to the trail ranged from $130 to $250
dollars. These figures are only for the Tallahassee - St. Marks Historic Railroad State
Trail. The total economic impact of all the natural outdoor recreation activities is assumed
to be even greater.

Fishing is also a significant use of the rivers and the Apalachee Bay. The finfish
and shellfish industry is probably the greatest beneficiary of efforts to conserving the
greenway in the St. Marks Watershed. The rivers, and ultimately, Apalachee Bay, are the
sinks for all the water flowing off the land in the watershed's. Alterations to water quality
and river hydrology can negatively impact these fisheries through loss of habitat and other
changes to the aquatic ecosystems.

Frederick Bell, a noted economist studying saltwater fishing in Florida, stated that
recreational fishing may be as economically important or more important than commercial
fishing in the St. Marks Watershed (Bell 1994). Bell's 1993 report on Current and
Proiected Tourist Demand for Saltwater Recreational Fisheries is the most complete
analysis. of recreational saltwater fishing for Florida. This report indicates that the average
visitor engaging in saltwater fishing spends $110 daily. The annual impact of the activity
on Florida's economy was in excess of $1 billion in 1991 with an additional $62 million in
taxes (Bell 1993). Data are not currently available on the economic impact of recreational
fishing in the St. Marks, however, Shields Marina reports that an average of 15 to 20 boats
use the ramp facilities at their marina on weekdays and 80 to 100 boats are launched on

@db
L

ST. MARKS AND WAKULLA RIVERS RESOURCEAsSESSMENT & GREENWAY PROTECTION PLAN

weekends. Shell Island Fish Camp reports an average of 8 to 10 boats launch on the
Wakulla River during the week and 15 to 20 on weekends. Most of these boats are
recreational fisherman fishing Apalachee Bay and the waters inside the Refuge. Further
study of the recreational fishery needs to be conducted to determine the fisheries
economic impacts on the community.

According to the u 1992 Annual Landings Summaryn of the Marine Fisheries Division
of the Florida Department of Environmental Protection, 1,626,656 pounds of finfish were
brought in Wakulla County ports that year with a dockside value of $80 million. This
included 1,005,781 pounds of Black Mullet ( 62 percent of the catch being caught in over
2,000 trips). The commercial shellfish harvest totaled 1,580,958 pounds, not including
shrimp. The shrimp harvest amounted to 33,501 pounds with brown and white shrimp
comprising the bulk of the harvest (FDEP 1994).

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

I
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I )t dib ILk-
-::7
i - 7=-
1 ST. MARKS AND WAKULLA RVERS GREENWAY
I
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f-@d h -
CHAPTER 3

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CHAPTER 3 - ST. MARKS AND WAKULLA RIVERS GREENWAY

Riparian Greenways provide the What is a Floodway?
opportunity for linking the benefits of
preserving the floodway while maintaining The floodway is defined as the
area where the river leaves its banks
or improving river water quality and during a flood with the floodwaters
facilitating economic development through having movement in the same
direction as the river.
ecotourism. The many acres of public
lands in St. Marks River watershed,
including the Wakulla River, provide outstanding recreational opportunities to complement
those associated with the greenway. By conserving the natural green corridors along the
rivers, recreation and scenic qualities will continue to flourish in the future.

The greenway vision for the St. Marks and Wakulla rivers watershed is based upon
the compilation of the land use land cover data, the Florida Game And Freshwater Fish
Commission critical habitat data, existing land ownership patterns, and the recreation and
cultural and historic data. The St. Marks and Wakulla Rivers Watershed Greenway map
(Figure 1) results from taking the Game and Fish's critical habitat data and overlaying it
with the existing land use and land cover using the GIS system. The map reflects the
natural greenway corridor along the rivers (see Figure I Watershed Greenways).

An assessment of natural resources within the watershed was completed In order
to identify the potential. greenways. The objective of this assessment was to identify
environmentally sensitive lands or lands with important habitat value. Each of the local
comprehensive plans has policies which protect wetlands and other environmentally

d1b

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN 63

sensitive lands; however, efforts to protect such lands can be limited by the lack of
information regarding the location, presence or type of resources. The District's GIS was
used to compile the best available resource data from several sources including the
Florida Game and Fresh Water Fish Commission (FGFWFC) and Florida Natural Areas
Inventory (FNAI). Compiled information included land use and land cover, strategic habitat
conservation areas; and rare animal, plant and communities occurrence data. The land
use and land cover information was obtain by classifying satellite imagery using the
methods described elsewhere in this report.

The rare species occurrence and wildlife habitat information were obtained from
several statewide geographic data sets developed by FGFWFC which incorporated FNAI
data. These data were created by the FGFWFC to identify areas in need of protection in
order to maintain biodiversity. This information represents the most comprehensive and
detailed effort yet undertaken for this purpose in Florida (Presley 1994). These data sets
also represent the best available estimate of Florida lands requiring some form of
conservation to ensure that biodiversity is maintained for future generations. The
FGFWFC GIS was used to assess the degree of security provided to rare species by the
current system of conservation lands and to identify important habitat areas not currently
protected (Cox et al., 1994). The lands recommended by FGFWFC for additional
protection are referred to as "strategic habitat conservation areas". These lands are
needed to meet minimum conservation goals for 30 species of wildlife inadequately
protected by the current system of
� conservation lands,
� high quality sandhill sites,

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-nON PLAN

+ high quality scrub sites,
Ar high quality pine rocklands site,
+ high quality examples of tropical hardwood hammocks,
41 bat maternity caves and winter roost caves,
41 wetland s important to the breeding success of eight species of wading
birds, and
+ lands important to the long term survival of 105 globally rare species of
plants.

Another geographic data set was developed by FGFWFC containing known
locations of many animals, plants, and natural communities. A set of maps referred to as
regional biodiversity hot spots" were created which included the following information:
A.- areas where large numbers of 52 selected species co-occur,
+ areas supporting rare plant and wildlife communities,
+ over 25,000 known locations of rare plants, animals and natural
communities,
lee county boundaries and conservation land boundaries, and
+ coastal areas that support key components of biological diversity.

The hot spots resulted from investigation of species richness which located habitat
for seven or more focal species (Class 3), five or six focal species (Class 2), and three or
four focal species (Class 1) (McGrail et al. 1994). Class 1 lands were generally of lower
natural resource quality than Class 2 or 3, including large tracts in silviculture and
agriculture that are used by wide-ranging habitat generalists such as turkey and bobcat.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

The FGFWFC data served as a starting point for the resource assessment. In order
to ensure that the identification of potential greenways included the most environmentally
sensitive or significant lands, the District's GIS was used to modify the FGFWFC habitat
data. The FGFWFC habitat areas are shown in Figure 10 - Natural Resource Assessment
Map.

The FGFWFC strategic habitat conservation areas and biodiversity hot spots
(Classes 2 and 3) were combined and overlain with the land use and land cover data. In
instances where habitat data coincided with non-natural land cover (such as silviculture,
agriculture or urban uses), it was omitted from the lands identified as potential greenways.
The remaining habitat areas which coincide with natural land cover types, are shown on
Figure 10 . This was noted in the map legend since the most obvious difference between
the entire and modified habitat data is the presence or absence of silviculture lands.
Wetland areas identified in the land use and land cover assessment but not identified by
FGFWFC as strategic habitat or Class 2 or 3 hot spots were also considered as
environmentally significant lands for potential greenways (see Figure 10).

ST. MARKS AND WAKULLA RivERs RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

St Marks and Wakulla Rivers Watershed Natural Resource Assessment

-LooftPo.*

Jqffarm@n co

t LO.
J:efferson. Co
Public Lands
Wakul a CO. Lake
WM6 6.und@ry'
@Wy Wetlands
S

FGFWFC
Habitat Areas
(Includes
Figure 10
4
Silviculture)
f6A
This publianlon wa@ made poefilble by 0 1
--0
subgnimt I am the Florida Department of Cominunity FGFWFC
Habitat Areas
Affalm, In **operation with the U.& Department or JI'-
(Without
of commerce, National O@nio and Atmospheric,

Admini.tmtion, under Oooperative Agreement
Silviculture)
Award No. NA370ZO427. Additional funding
provided by the Elizabeth Ordway Dunn Foundation UL
d Northweat Florida Water Management DIVIrIaL 4 - City of
Tallahassee
September 1994

Watershed
Boundary
p
CS 7@
ir

Transmission
0 5 10
Ir Lines
km
0 8

miles r County &
WMD Boundary

Major Roads

rida

V4ater

A-
ads

Source: Florida Game and Fresh

Water Fish Commission, 1994

T he FGFWFC data shows that there are extensive areas of critical habitat
throughout the watershed. The modified FGFWFC habitat which coincides which natural
land cover includes primarily riverine corridors and wetland areas. Additional areas of
modified habitat which coincide.with natural uplands forest were also identified. Although
these upland areas are environmentally significant, they occupy more isolated or scattered
areas limiting their function as greenway linkages. The wetlands identified by the District
may also contain focal species habitat (less than 5 focal species). These areas identify
additional potential greenway "spurs". The proposed greenway corridor is the unifying
linkages between the largest and highest quality habitat areas.

The process undertaken in this effort served to identify those areas within the St.

Marks and Wakulla riverine corridors and associated wetland and habitat corridors that

may be worthy of consideration as greenway linkages. The FGFWFC report could be
used in a companion fashion to enhance the protection of additional strategic habitat
conservation areas proximate to the proposed greenway.

The greenway corridor of hardwood swamps and bottomland forest along the St.
Marks and Wakulla rivers provide wildlife habitat while functioning as conduits for many
species of birds, the Florida Black Bear, and other animals. The water quality of the rivers
can be maintained through the natural filtering capabilities of the hardwood swamps and
bottomland forest, if a sufficiently wide greenway corridor is maintained and if Best
Management Practices are followed in silviculture operations. The greenway can also
function as a filter for residential stormwater runoff and septic tank nutrient rich leachates.
By protecting the bottomland hardwood swamps and limiting the intensity of development
in these wetlands, the impacts on the St, Marks river can be reduced. Also, by guiding

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

development away from the river, the hazards related to flooding on property and lives is

also reduced.

The Town of St. Marks is the only incorporated municipality adjacent to the
greenway and is the primary hub for recreation and commerce along the two rivers. The
Town of St. Marks is a commercial port with the St. Marks River supporting an electric
power generation facility, barge transportation and commercial fishing operations. The
conservation of the St. Marks and Wakulla Rivers Greenway may provide the local
Chambers of Commerce with a marketing tool for ecotourist-related businesses. The
Governor-appointed Florida Greenways Commission is working to establish a statewide
network of greenways linking communities and natural areas. Wakulla County is perfectly
positioned for creating greenways linking the Apalachicola National Forest, the St. Marks
National Wildlife Refuge, Wakulla Springs State Park and the Tallahassee to St. Marks
State Historic Rail Trail. There is a tremendous potential for marketing this watershed and
the surrounding region as an ecotourism destination because of the variety of
opportunities available. The resource areas of the region and watershed combine to
provide the critical mass of opportunities necessary to entice visitors to the communities
in the watershed and in particular Wakulla County. The greenway can provide the
framework to tie the watershed's resource areas together and provide a unifying theme for
future partnerships.

The St. Marks and Wakulla rivers abound in history. Visitors along the Tallahassee
-St. Marks Historic State Rail Trail often know very little about the history of the lands
which they.are riding through. Through the development of historical trails on the rivers
and along the rail trail, the St. Marks and Wakulla Rivers Greenway could provide visitors
another recreation outlet based on the history of past cultures and events. A significant

ST. MARKS AND WAKULLA RIVERS RESOURCr- ASSESSMENT & GREENWAY PROTFECTION PLAN

historical interpretation site currently exist at Fort San Marcos de Apalachee and the
Natural Bridge Battlefield site on the St. Marks River.

Analysis of the land ownership data collect from the property appraisers offices of
Jefferson, Leon and Wakulla counties indicates that much of the land within one mile of
the rivers are in large, single ownerships . This information is important for determining
which greenway development strategies may be appropriate for particular river segments.
The following discussion on the proposed St. Marks and Wakulla Rivers Greenway
provides a description of each river by river segments.

ST. MARKs RIVER PORTION OF THE GREENWAY

THE RIVER SWAMP SECTION

Much of the upper portion of the St. Marks River north of Natural Bridge is owned
and managed for silviculture by the St. Joseph Land and Development Corporation. A few
areas in the extreme northern reaches of the watershed near Interstate 10 and around
Natural Bridge have multiple owners and are used for agriculture, silviculture and
residences. Much of the surrounding land is classified as hydric swamps or wetlands,
and is considered important habitat by the Florida Game and Freshwater Fish Commission
(see Figure 10 - Resource Assessment). This section of the greenway also filters
stormwater run-off, serves as a buffer area for natural flooding, provides a sediment sink
from erosion of adjacent agricultural lands, and the wetlands here provide nutrients to the

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

river ecosystem. The upper reach does not provide good opportunities for canoeing
because much of the river is not navigable due to dense wetland vegetation and the fact
that are few public access points along the upper reach.

Although all the previous mentioned attributes of the St. Marks and Wakulla rivers
will benefit from greenways, the greatest benefit of creating a greenway along this portion
of the river may be protection of the water quality of the entire watershed. Land
development of all kinds has a disproportionate influence on downstream areas. In this
area the river has less flow and is narrower, the upland disturbances tend to occur closer
to the St. Marks River's smaller tributaries. Consequently, nutrient and sediment loads
tend to be higher per acre along these smaller streams than downstream where the river
becomes larger (Binford and Buchenau 1993). Proper stormwater management is
therefore critical for this section. The ditches and swales that drain into the river function
as conduits for sediments and nutrients. An effective stormwater management system can
make the difference in river water quality.

THE NATuRAL BRIDGE SECTION

Between Natural Bridge to the Town of St. Marks, the river's ownership patterns
become, more fragmented. The riverfront is lined with homes along the west bank for
about 2.5 miles below Natural Bridge. There are few scattered homes on the west side of
the river south of Newport. Much of the land inbetween on the west bank appears to be
in two ownerships and is managed for silviculture. The entire east bank of the river from
Natural Bridge to St. Marks National Wildlife Refuge has only a few ownerships and is also
managed for silviculture.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

The Natural Bridge Section of the greenway functions as a filter and a conduit.
Based on the land use and land cover and critical areas maps, the middle section of the
greenway along the St. Marks River has the greatest potential for filtering or buffering the
adjacent silviculture operations as well as the residential development located between
Natural Bridge and Newport. There are few areas in this section with excellent habitat.
The river swamps are relatively narrow and much of the adjacent uplands are pine
plantations. This portion of the greenway provides opportunities for canoeing and boating.
It also provides a natural corridor for animals to move between the Refuge and the
swamps and uplands of the upper portion of the watershed.

NEWPORT TO ST. MARKS SECTION

South from Newport, the greenway is influenced by increasing urban development
along the west bank in juxtaposition with the St. Marks National Wildlife Refuge on the
east bank (see Figure 6). This section of the St. Marks River is deeper and wider due to
channel dredging by the US Army Corps of Engineers for oil carrying barges. The barges
serve the oil tank farms and the City of Tallahassee Power plant located along the rivers
western bank in the town of St. Marks.

Much of the ecological benefits afforded by the greenway will accrue on the east
side of the river which is bordered by the Aucilla Wildlife Management Area and the St.
Marks National Wildlife Refuge. Much of the greenway corridor is intact along the west
bank between Newport and the industrial complex at St. Marks, future residential

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

development in the area could however, degrade the greenway's ability to function as a
natural filter, if stormwater runoff, noise, extensive land clearing, and visual intrusions are
not managed properly (see Figures 6,and 10)

WAKULLA RIVER PORTION OF THE GREENWAY

The land along the Wakulla River is more fragmented by roads and residential
development than it is along the St. Marks River (refer to Figure 5). The following
discussion describes the three Wakulla River sections of the greenway - Wakulla Springs,
Between the Bridges, and Lower Bridge to Apalachee Bay. Silviculture is the predominate
use of the western bank. South of the US 98 Bridge the land is managed for silviculture
and as a safety zone for Olin Corporation. The river flows through the St. Marks National.
Wildlife Refuge to the west and south of the port Town of St. Marks where it joins with the

St. Marks River.

WAKULLA SPRINGS SECTION

The Wakulla Springs section of the greenway is delineated by the Wakulla Springs
State Park above State Road 365 (see Figure 5 and Figure 7). The Wakulla Springs
section provides habitat for animals, sources of native seeds for the river system, filters
upland stormwater runoff and the surrounding swamps and functions as a sediment and
nutrient sinks. The Wakulla Springs section provides visitors a place to swim, hike, tour
on the spring fed river and view wildlife.

ST. MARKS AND WAKULLA RivERs RESOURCE AS5ESSMENT GREENWAY PROTEc-nON PLAN

BETWEEN THE BRIDGES SECTION - STATE ROAD 365 To U.S. 98

There are many homes on both banks of this section of the river. Homeowners
have generally done a good job protecting vegetation on their properties and along the
banks, but habitat along this portion has never the less been degraded by development.
Canoeing, kayaking, and fishing are frequent activities in this section of the greenway, with
many users accessing the river at the State Road 365 and U.S. Highway 98 bridges. The
"Between the Bridges"section of the greenway functions primarily as a filter, but the
corridor also likely provides a conduit for animals moving between the Wildlife Refuge,
Wakulla Springs State Park, and the Apalachicola National Forest. Occasionally, visitors
can see manatees feeding in the river's shallows.

LOWER BRIDGE TO i!@PALAQHEE BAY. SECTION

This section of the greenway starts below the US Highway 98 bridge and extends
to Apalachee Bay. The west bank of the Wakulla River below the US 98 bridge is within
the St. Marks National Wildlife Refuge. Much of the greenway on the west bank functions
as habitat and a conduit where animals can move from the surrounding uplands to the.river
and to the Gulf of Mexico. Olin Manufacturing has maintained a forested buffer for their
industrial plant operations along the east bank of the Wakulla River. This buffer follows
the east bank from just south of the US 98 Bridge to the Shell Island Fish Camp in St.
Marks. - Olin's property along the river functions as habitat, a filter for stormwater and
noise, and a' conduit for animal movement. Olin has developed a small park on the water
for the use of its employees.

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ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

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CHAPTER 4 - LOCAL AND STATE CONSERVATION PROGRAMS

LOCAL RESOURCE CONSERVATION PROGRAMS

The Local Government Comprehensive Planning Act of 1985 required that all local
governments in the state adopt a local comprehensive plan to chart the growth of the
community for at least the next five years. The plans are to contain various mandatory and
discretionary elements, each with goals, measurable objectives and policies that will guide
all decisions on growth and development within the community. Within a year of adopting
the plan, each government are to adopt or update land development regulations to
implement and be consistent with the comprehensive plan. After the adoption of the plan
and land development regulations, all local governments' development are required by law
to be consistent with the adopted plan.

Each plan is required to contain a capital improvements element, intergovernmental
coordination element, future land use element, traffic circulation element, sanitary sewage,
solid waste, drainage, potable water and natural groundwater aquifer recharge element,
conservation element, recreation and open space element, housing element, and for
coastal counties including Wakulla and Jefferson counties, a coastal management

element.

Each plan, adopted pursuant to the 1985 act, was submitted to the state Department
of Community Affairs for review of its compliance with the State Comprehensive Plan, the
appropriate Comprehensive Regional Policy Plan (now called the Strategic Regional
Policy plan) and the rules of the department. All three counties within the St. Marks Basin
have adopted their comprehensive plans and submitted them to the state. The City

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ST. MARKS ANQ WAKULLARIVERs RESOURCEAsSESSMENT& GREENWAY PROTECTIONPLAN 77

Tallahassee-Leon County and Jefferson County's plans have been found in compliance.
Wakulla County's plan has been found not in compliance and is continuing to undergo
revision to meet the state requirements. The only incorporated municipality within the
study area is the Town of St. Marks which has completed its plan and has been found to
be in compliance.

REVIEW OF THE LOCAL GOVERNMENT COMPREHENSIVE PLANS

Each of the applicable local comprehensive plans is based on a general model
provided by the Department of Community Affairs as part of its technical assistance
program to local governments. For this reason, the basic format of each plan is similar,
although they have been modified to deal with specific local conditions. The Wakulla and
Jefferson County plans are fairly similar in scope and overall impact. The counties have
about the same populations, but have very different geographical features. Jefferson
County has adopted a series of land development regulations implementing its plan, while
Wakulla has adopted only one applicable regulation, and none that are required by its
comprehensive plan. This regulation is the groundwater protection ordinance for Wakulla
Springs and the sinkholes to the north. Wakulla County has decided to wait until it
completes its plan in a manner which would be approved by the state before it adopts its
required land development regulations. The local comprehensive plan for the town of St.
Marks reflects the community's desire for only a small amount of growth to its small
population (approximately 350 people) or area (approximately 1000 acres).

The -City of Tallahassee/Leon County plan is the only joint local government
comprehensive plan in the state. Given its urban nature, this plan is much more detailed

5T. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

in order to meet the demands of a large and growing population. As might be expected,
Tallahassee-Leon County's land development regulations are (more elaborate and)
complex than that of the adjoining local governments. The comprehensive plan is a mutual
product of the City of Tallahassee and Leon County. This plan is administered by the
Tallahassee -Leon County Planning Department.

All of the areas comprehensive plans contain general language about protecting
wildlife and other natural resources, providing open space and recreational opportunities
such as bike trails. The plans also contain other provisions that could serve as a base for
the protection of the greenway once it is established. However, none of the plans have
any specific greenways included in them. This omission is not surprising considering that
the concept of greenways has gained acceptance as a conservation tool since most of the
local comprehensive plans were initially adopted. The major difference between the plans
as they relate to the potential for the designation and protection of greenways is that the
Tallahassee/Leon County plan calls for local development and management of recreation
areas for its citizens while the other local governments generally leave that to federal or
state governments. Tallahassee and Leon County has greater fiscal resources to develop
and manage recreational facilities than the rural governments which provide only limited
local recreational facilities. In the past these rural governments have relied upon state or
federal programs to provide such recreational facilities. Few local funds have been
dedicated to maintain or developing new facilities. To overcome this hurdle, partnerships
between governments and the private sector should be established or.strengthened to
further the development and management of facilities and infrastructure to complement the

greenway.

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ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

Tom oF ST. MARKS

The town of St. Marks is at the southern apex of the St. Marks watershed. Its local
comprehensive plan generally reflects the need to protect the St. Marks and Wakulla rivers
through its adoption of minimum vegetative buffers (25 feet). The Town of St. Marks has
included no specific protection schemes. It recognizes the existence of the "Rail to Trails
path" which runs the length of the town and has its southern terminus there. However, the
Trail receives no special protection in its Land Use Element or Conservation Element, nor
does the plan appear to recognize its economic and recreational value for the community
and surrounding area. The Intergovernmental Coordination Element does not provide a
process for solving disputes or working with adjacent governments in a comprehensive or

continual basis.

WAKULLA COUNTY

Since most of the St. Marks watershed falls within Wakulla County, the Wakulla
County Comprehensive Plan will have the greatest impact on any greenway established
within the basin. T he provisions of the county's plan recognize the public lands, rivers and
other resources within the county, including Wakulla Springs State Park and the
Tallahassee-St. Marks Historic Railroad State Trail, but fails to provide any special plan,
program or requirement for their protection. This is left entirely to the land development
regulations which have not yet been adopted, and to the plans of state and federal
agencies.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

The Capital Improvements Element of the Wakulla County comprehensive plan sets
the level of service for hiking traits at one mile per 20,000 people and for bike paths at 1
mile for every 5,000 people. Both levels of service are currently being met by the Florida
National Scenic Trail and St. Marks Rail Trail which pass through the county. The
Conservation Eleme nt states that the county will cooperate with the state in finding
appropriate lands to acquire for the rails-to-trails programs.

The protection of wetlands in Wakulla County is addressed in the Land Use and
Conservation Elements as well as in most of the other elements. Thirty five foot
development setbacks and 40 foot special interest zone has been established for wetlands
and sinkholes. Seventy five foot non-disturbance zones of native vegetation are required
along the rivers, except for certain water dependent uses for which small areas of
disturbance are allowed. The 100-year floodplains and certain floodways also receive
some protection from the impacts of building. Private lands in the floodways along the
county's rivers are designated as Conservation on the Future Land Use Map. These areas
are defined as those lands within the 25-year flood plain where waters flow in the general
direction of the river channel.

The comprehensive plan requires that wildlife and their habitats are to be protected,
but the method for doing so is left entirely to land development regulations yet to be
adopted. Many of the elements of the plan, do however recognize the importance of
wildlife protection. The Coastal Element recognizes of the importance of protecting
Apalachee Bay for commercial and recreational fishing, but includes few specific protection
mechanisms for coastal habitats. Furthermore, no mention is made of coastal recreational
opportunities such as the legislatively designated Big Bend Historic Salt Water Paddling
Trail along the coast.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-nON PLAN

Though the county has identified canoe trails on three of its rivers in its data and
analysis, none are specifically mentioned in the plan. River protection of within the county
has received some attention, however, protection and enhancement of water dependent
uses are not mentioned in the comprehensive plan. The plan does not mention the Florida
National Scenic Trail as a special part of the St. Marks Wildlife Refuge and Apalachicola
National Forest nor the federal wilderness areas in the refuge or in the national forest.
Wakulla County has begun investigating methods for designating and protecting canopy
roads. Provisions for bicycling are included in the Traffic Circulation Element.

Wakulla County has adopted one land development regulation that restricts certain
chemicals from being stored in the sinkhole zone from Wakulla Springs to the north in a
narrow, one-mile wide area. Though Wakulla County has an Intergovernmental
Coordination Element, it does not establish any processes for coordination or dispute
resolution with its neighboring local governments.

JEFFERSON COUNTY

Jefferson County's local comprehensive plan is similar to that of Wakulla County.
Though Jefferson County's plan recognizes the St. Marks River watershed, no special
protection mechanisms exist for the St. Marks River as is provided for the Aucilla River.
The Conservation land use category does not include any private lands, and is specifically
limited to publicly owned lands. Most of the Jefferson County's lands within the watershed
are managed for silviculture. These silvicultural uses are controlled through the state's
Best Management Practices.

5T. MARKS AND WAKULLA RIVERS RESOURCe ASSESSMENT GREENWAY PROTECTION PLAN

Jefferson County's comprehensive plan recognizes the importance of linear trails
by considering the feasibility of establishing a county-wide plan for bikeways and horse
riding paths. It also describes a canopy roads bicycle trail, the Wacissa River canoe trail
and the Spanish and Bellamy historic trails. The plan directs the land development
regulations to establish protection for various canopy roads within the county; however,
these have not yet been adopted.

QTY c)F TAL.LAHASSF-E:/LEON COUNTY

The Tallahassee/Leon County Comprehensive Plan is much more comprehensive
and sophisticated than the other three plans covering the watershed. This plan contains
similar basic provisions as those already discussed, but it recognizes the importance the
parks and park planning, open space and recreation. Unfortunately, it too fails to
recognize the concept of greenways or the use of linear connectors for recreation, non-
motorized transportation and wildlife habitat protection. The Environmental Planning
section of the Tallahassee-Leon County Planning Department is currently initiating a
countywide greenway conservation plan.

Special provisions are included in the Transportation Element for the establishment
of a Tallahassee - Leon Bicycle Plan and for the interconnection of travelways within the
county for bicycle traffic. These are included to help alleviate auto congestion as opposed
to the establishment of specific greenways or trails, but these provisions are a very
important basis for future greenways development. The plan's Recreation Element does
not adequately protect the Tallahassee-St. Marks Historic Railroad State Trail, but it does
reference it in its Data and Analysis. The Transportation Element references the plan to
extend the rail-trail north from the Capital Circle trailhead to Florida State University.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

The extensive listing of parks and other public recreational facilities in the plan, as
well as the expressed need for continued expansion of recreational opportunities, give a
firm foundation for greenways development. These provisions place emphasis on local
government action. This is very different from the other three plans, in which the more
rural local governments are more than willing to allow state or federal management
policies to dictate the location and type of recreational facilities.

The Tallahassee/Leon County Comprehensive plan also contains numerous
provisions for wetlands, sinkhole and wildlife protection as well as the designation of open
space'. Various land development regulations contained in the Environmental
Management Act implement these provisions.

REVIEW OF STATE RESOURCE PROTECTION PROGRAMS

The State of Florida has many programs which can assist with greenway
conservation efforts. Many of the existing programs are geared to land acquisition and/or
recreation facility development. Preservation 2000 is the most progressive land
acquisition program in the country. Preservation 2000 has been the funding source for
many of Florida's land acquisition programs since 1991. It provides nearly $300 million
of annually bonded funds for many different conservation programs. The law directs
approximately $30 million toward parks, trails, game and forest management, $30 million
toward implementing growth management locally, $90 million toward protecting water
resources, and $150 million toward conservation of wildlife habitat, forests and coasts.
Preservation 2000 dollars assist in the funding of the following programs.

ST. MARKS AND WAKULLA RIVERS RESOURCe ASSESSMENT & GREENWAY PROTECTION PLAN

+ Conservation and Recreation Lands Program (CARL)
+ Florida Communities Trust Program

+ Save Our Rivers

+ Rails to Trails / Florida National Scenic Trail Acquisition Program
+ Land Acquisition Trust Fund -Additions and Inholdings
+ Game and Fresh Water Fish Commission Wildlife Habitat Trust Fund

Other state programs that may be useful for greenway conservation are the Surface
Water Improvement Management (SWIM) Program, Historic Preservation Trust Fund, the
Florida Recreational Development Assistance Program, special legislation and
designations.

CARL PR OGRAM

The CARL land acquisition program is administered by the Florida Department of
Environmental Protection Like all other state land acquisition programs, CARL is a willing
seller program, meaning the state only pursues acquisition of a piece of property if the
property owner is willing to sell the property to the state. The CARL program purchases
environmentally endangered lands for state parks, forests, wildlife management areas,
beaches, and recreation areas. CARL projects typically are environmentally sensitive
lands that have unique or rare habitats, endangered or threatened species, or unique
geological features (Gluckman 1991). CARL is also used to:

Ar Conserve floodplain lands, marshes, and estuaries in order to protect and

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

enhance water quality and quantity, and wildlife not otherwise protected by
local or state regulations; and
Preservation of significant archaeological or historical sites (Gluckman
1991).

CARL projects tend to conserve the large natural systems and connecting components of
the strategic greenway network.

FLORIDA COMMUNITIES TRuST PROGRAM

The Department of Community Affairs administers the Florida Communities Trust
which provides local governments assistance in implementing their local comprehensive
plans. The trust administers a grant program which awards local governments funds for
local land acquisition projects. Projects are selected if they further the objectives of g rowth
management, natural resource conservation and outdoor recreation and demonstrate
uniqueness. This program gives points for local greenway conservation projects.

SAVE OUR RIVERS

The Save Our Rivers program is administered by each of the State's five water
management districts. Each water management district is required to develop a five year
plan laying out proposed land acquisitions for the district. Save Our River projects are
selected based on water quality protection, natural communities protection, nonstructura
flood control and protecting groundwater recharge areas. Save Our River projects often

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PRoTec-nON PLAN

provide public use benefits by providing additional park lands for local communities. Save
Our Rivers is funded through the Water Management Lands Trust Fund, which is
administered by the Florida Department of Environmental Protection. This program has
conserved many river and wetland greenways throughout the state.

LAND AcoulSITIoN TRUST FUND (LATF)

The Land Acquisition Trust Fund was established in 1963 as a mechanism to fund
acquisition of lands for parks and recreation areas. The portion of LATF under P 2000
targets private inholdings within parks and forests. All LATF acquisitions are concerned
primarily with the recreation value of the land and their accessibility by the public
(Gluckman 1991).

GAME AND FRESHWATER FiSH COMMISSION WILDLIFE HABiTAT TRUST FUND

The Fish and Wildlife Habitat Trust Fund is a P 2000 funded program which seeks
to purchase lands that are important to the conservation of fish and wildlife.

RAILS To TRAILs/FLORIDA NATiONAL SCENic TRAIL Acou[SITION PROC'RAM

This program was established to purchase abandoned railroad right-of-ways and
protect sections of the Florida National Scenic Trail. The Rails to Trails Program is a

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

Preservation 2000 funded program that has focused on acquiring abandoned railroad
rights of way which considers the current and future recreational need, costs sharing
potential with other agencies, and the timing of the availability of the right of way
(Gluckman 1991).

THE HISTORIC PRESERVATION TRUST FUND (HPTF)

The HPTF is a grant in aid program for individuals or governments that wish to
identify and restore historic structures or sites. The program does not acquire property,
but instead gives grants to fund planning and development or historic property acquisition
by non-profit organizations and local governments. Projects are selected on criteria such
as purpose, economic and other public benefit, and cost.

SURFACE WATER IMPROVEMENT AND MANAGEMENT PROGRAM (SWIM)

The Surface Water Improvement and Management (SWIM) Program was created
by the legislature in 1987 to protect and, where necessary, restore surface water bodies
of state or regional importance. Each water management district is. responsible for
developing a SWIM programs involving three major phases: (1) development of a SWIM
priority list of waterbodies of regional or statewide significance, (2) development of
management plans for the waterbodies in priority order, and (3) implementation of the
management plans (Snowden and Cairns 1993). The SWIM program has the ability to
provide funding for extensive restoration of degraded waters. When combined with the
districts Save Our River Program, the SWIM program provides an excellent tool for river
conservation.

ST. MARKS AND WAKULLA RIVERS RESOURCE- ASSESSMENT & GREENWAY PROTECTION PLAN

OTHER PROGRAMS

Several Florida rivers have been provided special legislation for their preservation
including the Wekiva River in central Florida. In 1988, Governor Bob Martinez created
the Wekiva River Task Force to evaluate existing regulatory, planning, and land
acquisition programs of state, regional and local governments affecting the Wekiva River
sub-basin. Two years later the Task Force submitted its report to the Governor
recommending new legislation and changes in the current planning, management, and
regulatory processes. The St. Johns River Water Management District and the East
Central Florida Regional Planning Council strongly supported the legislative initiative. The
special legislation originated from the lack of local government initiative to protect and to
conserve the Wekiva River corridor from residential development expanding northward
from the Orlando metropolitan area. The act which was passed by the legislature in 1989
established habitat protection zones, increased buffer widths and new requirements for
development of regional impact's that fall within the Wekiva River Protection Zone.

Fortunately, since the St. Marks and Wakulla rivers are not subject to as intense
development threats as the Wekiva River, they probably do not warrant such special
legislative protection. Another option is designation as a state or national wild and scenic
river. Under the federal designation program, the Wakulla and St. Marks rivers would
likely only qualify as a recreational river because of the adjacent development and the
many bridges over the rivers. The Sopchoppy River is under consideration for federal wild
and scenic designation, and the Myakka River in southern Florida has been designated
a state wild and scenic river by the Legislature. The Florida Aquatic Preserve designation

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

program may also benefit conservation of the greenway by protecting water quality. The
Florida State Rural Development Council within the Florida Department of Commerce is
also available to assist local governments and citizens in developing economic
opportunities related to conservation of the greenway.

The silvicultural operations which occur over a large portion of the watershed are
controlled by the state Department of Agriculture and Consumer Affairs through its 1993
Best Management Practices. It provides for various protection mechanisms for logging
along rivers, streams, lakes and sink holes. The functions of wetlands also receive some
protection by the BMPs.

SUMMARY OF STATE PROGRAMS

These land acquisition programs, policies and laws enacted by the state and
federal governments may assist in conserving St. Marks and Wakulla Rivers Greenway.
In the greenway sections where there are large single land ownerships, fee- simple land
acquisition and less-than-fee simple conservation provide excellent opportunities for
greenway conservation if the owners are willing to participate. In the subdivided areas and
areas where development has already occurred, the best alternatives for greenway
conservation are proper land use planning and regulation, education about greenway
stewardship, and innovative site designs and management.

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CHAPTER 5

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CHAPTER 5 - RECOMMENDATIONS FOR CONSERVING
THE ST. MARKS AND WAKULLA RIVERS GREENWAY

In recognizing the corridors of St. Marks and Wakulla rivers as a greenway, the
communities place a special value in maintaining the natural functions and aesthetic
qualities of these unique areas. The citizens of Jefferson, Leon and Wakulla should act
now if the greenway is to be conserved. Governments and citizens should work to form
partnerships to conserve the greenway to take advantage of its conservation, recreation

and economic benefits.

Development will continue to occur in the watershed affecting its water resources.
Potential impacts include creating more impervious surfaces due to paving and building,
dredge and fill activities, wetland draining, floodplain alterations, residential, industrial, and
agriculture and silviculture activities. If development occurs without growth management
and land use planning, these activities could result in increased habitat fragmentation,
stormwater run-off, localized flooding and an overall decrease in surface water quality.
Development and alteration of river floodplains can reduce the area for flood waters to
dissipate. Development can reduce the floodplain area and increases stormwater run-off
and as a result, flooding tends to become more frequent and severe. The increased flood
height and magnitudes resulting from improper floodplain development may lead to
increases in erosion and sediment deposition into the rivers (Wolfe et al. 1988). A
greenway conservation effort focused on the St. Marks and Wakulla river can potentially
minimize these negative impacts from development while furthering many conservation,
recreation and community quality of life goals. Greenway planning is not intended to
prevent future development, but rather to ensure that it occurs in a manner which
minimizes impact to the resources.

ST. MARKS AND WAKULLARIVERs RESOURCF- ASSESSMENT & GREENWAY PROTEc-nON PLAN

The following recommendations provide suggestions for how to conserve and
promote greenways in the St. Marks and Wakulla rivers watershed. These
recommendations have been organized by the agency, group or individuals who may elect
to take the lead in their implementation. These recommendations can be implemented
thorough growth management, land conservation and management practices,
partnerships, and through the actions of individuals and groups. The St. Marks and
Wakulla Rivers Greenway Steering Committee is available to help decision makers by
providing recommendations and public input concerning these recommendations and to
refine how these recommendations can be implemented.

RECOMMENDATIONS FOR THE LOCAL GOVERNMENTS

Local governments within the St. Marks and Wakulla rivers watershed, with the
exception of the City of Tallahassee and Leon County, have few if any financial resources
to actively manage the greenway. These rural counties and the town of St. Marks will
need financial assistance through grants and other sources to carry out remedial changes
to their comprehensive plans and to implement greenway programs.

Lands owned by the state and federal governments should be integrated into
community greenway conservation plans. These lands substantially benefit the local
communities and could enhance both economic development a nd recreational
opportunities if properly integrated into joint cooperative programs. The local governments
should explore the recreational opportunities provided on these public lands and develop
partnerships with their managers to attract tourists and their dollars to the watershed.

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ST. MARKS AND WAKULLA RivERs RESOURCE ASSESSMENT GREENWAY PRoTEc-nON PLAN

Now that the local governments have adopted comprehensive plans, it is important
for each community to review opportunities for linking the state and federal lands within
its boundaries. The recommendations suggested below can be very helpful in assisting
the local governments with that endeavor. These public lands should be viewed as assets
that can enhance the community efforts in economic and recreational opportunities. These
lands should be considered a positive part of the process and integrated into the
community's greenway conservation effort. One option pursuing an effective greenway
conservation program in the St. Marks and Wakulla rivers watershed would be to the local
comprehensive planning process.

Because greenways encompass many disciplines and objectives, the most effective
way of establishing and protecting them is to create a planning process or entity that will
include many facets. Greenways could be included in practically all elements of the
comprehensive plan. The most efficient and effective method for the local governments
to incorporate greenways is-to amend their local comprehensive plans in a manner that
builds upon the existing plans and refers to those the goals, objectives and policies that
best address these issues but that would necessitate a wholesale revision of the existing
plan.

A local plan amendment is recommended because it can focus on the multiplicity
of benefits of a greenway and can emphasize the importance of the greenway to the
community as a whole. This plan amendment could also help emphasize the economic
development and recreational benefits the community that can be realized if the community
works with the other local governments, as well as state and federal conservation efforts.
A plan amendment to the comprehensive plan could also give visibility and cohesiveness

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTEvnON PLAN

to the greenway while maintaining the necessary flexibility for each local government.

Because there are a number of locations within the plans that are applicable to the
greenway, a plan amendment could be located in any number of elements. However, one
option would be to use the Intergovernmental Coordination Element (ICE) for the reasons
suggested below.

First, the Environmental Lands Management Study Committee III (ELMS 111)
legislation in 1993 required that the ICE be substantially revised for all local governments.
This means that the four governments in the basin will have to go through a thorough
amendment review and adoption process prior to August 1, 1997. Including. the greenway
concept in the ICE at the time of its revision would have the least disruptive impact on the
local planning process. In addition, the Evaluation and Appraisal Report (EAR) for each
local government is due approximately the same time. To develop this report, local
governments must review their plan for compliance, effectiveness and updating. This
review process allows each local government to seek out the provisions that should be
referred to or developed for incorporating greenways into the community.

Second, the watershed encompasses three counties and one municipality. Most,
if not all, of the proposed greenway identified in this report either crosses governmental
boundaries or would be substantially affected by the actions of other governments. No
effective greenways management and protection plan can be established if the
governments involved do not coordinate. Placing the plan amendment within the ICE
would give the greatest support for intergovernmental cooperation. Placing the greenway

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

plan amendment in a substantive element may unnecessarily color the process for
particular greenways and potentially restrict their broad application and use in the future.

Finally, the Govemor-appointed Florida Greenways Commission is proposing that
greenways be incorporated into local government planning processes through
amendments to the local comprehensive plans. The greenway plan amendment proposed
is consistent with the Commission's recommendation to weave the plan's goals, objectives,
and policies so a greenway conservation thread is created throughout the plan.

The plan amendment would need to include the appropriate goals, objectives and
policies that are best suited for the establishment, protection and management of
greenways within and between each local government. It is not the intent of this report to
set out specific goals, objectives and policies for local governments to adopt. However,
the authors are willing to assist local governments' individual needs in developing goals,
objectives, and policies at the appropriate time. The following are some general ideas:

GOALS

Each government should adopt broad goals that express the multi-faceted benefits
of the greenway to the community. These can either be separate goals or a single overall
goal. The goal should be broad enough to cover a variety of future needs and functions
of the greenway, but narrow enough to have some meaning. One example could be:

ST. MARKS AND WAKULL.A RivERs RESOURCE ASSESSMENT GREENWAY PRoTec-nON PLAN

4- Develop a plan to conserve the St. Marks and Wakulla Rivers Greenway in
to provide recreational opportunities, conserve natural resources and
improves the quality of life within the community.

OBJECTIVES

The objectives should include the intended dates to implement the greenways plan
or plan elements and the various types and general locations of various greenways. There
should be an objective for each proposed greenway, for example:

By 1998, the community will establish and conserve the St. Marks and
Wakulla Rivers Greenway to provide recreational opportunities and protect
the rivers water quality as Outstanding Florida Waters.

POLICIES

Policies should include the methods that will be used to accomplish th e objectives
as well as how the plan will be financed. They should also include the processes for
interaction with other governments and references other applicable comprehensivei plan
goals, objectives and polices. Policies under each objective could be similar but should
reflect the timing, financing and purpose of each individual greenway project. For example:

+ By 1997 the community will seek funds and conduct a study of the economic,
recreation and environmental benefits of the St. Marks and Wakulla Rivers

Greenway.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

+ By 1997 the community will appoint a St. Marks and Wakulla Rivers
Greenway Advisory Committee composed of forestry interests, riverside
property owners and residents, boaters, anglers, scientists and others who
have expressed an interest in greenway development. This group will meet
and make recommendations to the local governments for the adoption of
appropriate greenway management and protection measures.

By 1997 the community and the committee will establish procedures for developing
their recommendations and management plans in coordination with adjacent local
governments and the Northwest Florida Water Management District.

By 1998 the community will conserve greenways by incorporating
appropriate management and protective measures into its local planning
processes, and the community will coordinate with adjacent local
governments to incorporate complementary measures into their planning

processes.

OTHER RECOMMENDATIONS FOR LOCAL GOVERNMENTS

The following recommendations include suggestions for further developing and
prorrioting greenway protection and management programs that individual local

ST. MARKS AND WAKULLA RivERs RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

governments may have already begun implementing. These recommendations are
offered to all local governments in order to create complementary greenway conservation
strategies along all greenway segments.

+ Consider working with state agencies to develop incentives to promote retention of
silvicultural land uses and adherence to Best Management Practices in the
greenways corridor.

Consider establishing watershed-wide planning partnerships to develop a general
consensus on land use goals and to improve intergovernmental coordination
between the counties and the incorporated areas to conserve the greenway.

4- Con sider developing plan for the greenways to be adopted by each local
government. Use the St. Marks and Wakulla Rivers Greenway Steering Committee
to assist with planning efforts, education and public input for the planning process.

+ Consider linking the greenway to parks, forests, other local greenways, trails and

habitat areas to other similar areas outside of the watershed.

-10 Consider coordinating with the Florida Greenways Commission in order to tie into
its efforts to create a statewide network of greenways. Celebrate Florida's 1.50 th
birthday to designating the St. Marks and Wakulla Rivers Greenway as one of
Florida's 150 greenways

ST. MARKS AND WAKULLA RIVERS RESOURCF- ASSESSMENT & GREENWAY PROTECTION PLAN

+ Consider keeping the greenway as intact as possible to facilitate wildlife movement
and maintain viable populations of designated species.

-*e Consider limitations on clearing native vegetation in the greenway.

41 Consider using this studys database and map series to initiate and maintain a local
greenway database.

+ Consider sponsoring workshops with local builders and developers to promote
appropriate site planning, design and landscaping for residential, commercial and
industrial development in the greenway.

+ Consider protecting greenways by fee-simple and less-than-fee-simple land
acquisition methods. This may include participating in multi-government land
acquisition project, creating incentives to develop and protect the greenway through
tax incentives and conservation easements.

+ Consider using mitigation in regulatory programs for use in conserving the

greenway.

+ Consider working with the local school board and others to incorporate into local
education programs the importance and relationships of conserving the greenway.

+ Consider working with public land managers, historians and users in developing
signs to aid interpretation of the greenway's historic and natural sites and to provide

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

100

continuity along the greenway. Consider adopting an architectural theme for public
use facilities in the greenways.

4* Consider incentives to encourage development of businesses especially in Wakulla
County, to serve greenway users including those providing overnight
accommodations, food, recreational equipment, guide services and other hospitality
businesses,

+ Consider promoting the special natural and recreational features and historical
areas of the watershed to attract ecotourists and benefit economic development.

-0. Consider participating in a proposed Apalachee Regional Ecotourism Development
Council that markets the Apalachee Region as a destination for outdoor
enthusiasts. Council members could include local chamber of commerce members,
hospitality managers, camping/outfitting retailers, guide services and liveries,
hunting and fishing organizations, and recreational user groups.

+ Consider endorsing and co-sponsoring recreational and tourism publications such
as maps and guidebooks.

+ Consider investigating the need to establish a local government land acquisition
program for conservation and recreation lands.

+ Consider seeking state, federal and private funding to improve recreational facilities
and acquire recreation and conservation lands within the greenway. Potential

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-nON PLAN

101

sources could include the Florida Recreational Development Assistance Program

and the Land and Water Conservation Fund which are administered by the Florida
Department of Environmental Protection, and the Florida Communities Trust which
is administered by the Florida Department of Community Affairs.

+ Consider studying the need for developing a local stormwater management plan for
the urban areas such as the Town of St. Marks to help protect greenway water
quality.

Consider forming alliances and partnerships such as the Apalachee Land
Conservancy, the Trust for Public Land, The Nature Conservancy, 1000 Friends of
Florida, Florida Audubon, HuManatee, St. Marks Trail Association, the Florida Trail
Association, to promote and manage ecotourism use with private interests
neighborhood and home-owner associations, local businesses and landowners,

and the Chambers of Commerce.

Consider seeking planning assistance from organizations such 1000 Friends of
Florida, the Trust for Public Land, and the Rivers, Trails and Conservation
Assistance Program of the National Park Service for conserving these greenways.

dh N

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

102

REcomMENDATIONS FOR REGIONAL, STATE AND FEDERAL AGENCIES

There are many opportunities for Federal, state and regional agencies to assist local
governments and citizens conserve the St. Marks and Wakulla Rivers Greenway. These
agencies could assist with land acquisition and facility development, land management,
planning and other technical assistance. Land acquisition and recreational facility
development by these agencies could complement existing public and private resources to
strengthen the foundation for the greenway. These agencies ongoing management programs
could continue to provide many of the services and facilities necessary to support public
recreational use. Planning and technical assistance from the Department of Community
Affairs, the Department of Environmental Protection and the National Park Service could
complement a local government's efforts in greenway conservation planning. Although, this
report does not assess the conservation or recreational value of particular parcels of land that
could be acquired or otherwise conserved, specific portions of the watershed can be targeted

for conservation.

It is recommended that the Department of Environmental Protection and the
Northwest Florida Water Management District evaluate the upper portion of the-
St. Marks River north of Natural Bridge for protection through acquisition under
the Conservation and Recreation Lands (CARL) and the Save Our Rivers (SOR)
programs. It is further recommended that the Department of Environmental
Protection proceed with the proposed CARL projects in the Natural Bridge Area.
The programs which operate under the philosophy of acquiring lands from
willing sellers, and can acquire fee or less-than-fee interests in lands. If the

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

103

owner is not interested in any form of land acquisition, the agencies can instead
enter into management agreements to conserve the lands environmental and

recreational values.

+ It is recommended that the east bank of the river from Natural Bridge to St.
Marks National Wildlife Refuge be evaluated for conservation through the SOR
or CARL programs or by the US Fish and Wildlife Service as an addition to the
St. Marks National Wildlife Refuge. The eastern river bank is especially
important as much of it is classified as critical habitat for fish and game by the

Florida Game and Fresh Water Fish Commission. The eastern bank could form
a natural green riparian link between the habitat of the upper watershed and that
of the St. Marks National Wildlife Refuge surrounding the river's mouth.

It is recommended that the silvicultural and other large undeveloped parcels that
remain along the Wakulla River be evaluated for conservation through the
CARL or SOR programs or as additions to the St. Marks National Wildlife
Refuge. The lands provide important areas for habitats and could help protect
the greenway linkage along the Wakulla River connecting the St. Marks
National Wildlife Refuge with the Wakulla Springs State Park and the
Apalachicola National Forest.

ST. MARKS AND WAKULLA RvERs RESOURCE: AssE5SMENT & GREENWAY PROTECTION PLAN

104

OTHER RECOMMENDATIONS

+ The Northwest Florida Water Management District (NWFWMD) should initiate a
Surface Water Improvement and Management Plan for the St. Marks and Wakulla

rivers watershed.

+ The Apalachee Regional Planning Council (ARPC) and NWFWMD should evaluate the
need for establishing special river conservation strategies through special legislation
or federal designation including a natural resource of regional significance.

� The NWFWMD should -evaluate lands within the greenway for acquisition through the
SOR program.

� The Department of Environmental Protection, Game and Freshwater Fish Commission,
the Division of Forestry, the Department of State, and the Department of Community
Affairs should evaluate lands within the greenway for conservation through all
applicable land acquisition and recreational facility development programs.

46 The Department of Commerce, Department of Environmental Protection, Department
of Community Affairs and the Apalachee Regional Planning Council should provide
technical assistance to local governments for greenway planning, management,
promotion, and economic development.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

105

The Apalachee Regional Planning Council should establish and provide technical
assistance to a proposed St. Marks and Wakulla Rivers Greenway Advisory Committee
whose role would be to voluntarily coordinate activities Members should include local,
regional, state and Federal governments, landowners, user groups, and other
interested parties.

The Department of Environmental Protection should develop informational materials
for river frontage owners concerning landowner rights, public access limitations, and
liability.

+ State and Federal land managers should provide and maintain recreation user
information and signs at their recreation access sites.

+ The Florida Department of Environmental Protection should develop a public, hand-
launch boat access near the St. Marks rise if lands appropriate for such access are
acquired.

The USDA Forest Service should consider working with the Florida Trail Association
and the Department of Environmental Protection to acquire land so the Florida Trail
can be moved from the US Highway 98 right-of-way making it eligible for designation
as part of the Florida National Scenic Trail.

ST. MARKS ANO WAKULLA RivERs RESOURCE ASSESSMENT GREENWAY PROTECTION PLAN

106

RECOMMENDATIONS FOR INDIVIDUALS, LANDOWNERS, PRIVATE
INTERESTS AND USERS

The following recommendations include suggestions that individuals, landowners ,
private interest and users of the greenways may wish to voluntarily follow to conserve the St . I
Marks and Wakulla Rivers Greenway. Many individuals and landowners already show their
stewardship for the greenways by voluntarily practicing many of these suggestions.

+ Consider establishing a privately-owned and operated canoe livery which would
provide access to the St. Marks River in the vicinity of the river rise. The livery could
also provide canoe pick-up and shuttle service to and from the Town of St. Marks or
the US 98 bridge.

Ar Since there is no regularly scheduled pick-up or shuttle available, consider initiating
a regularly scheduled canoe pick-up and shuttle service for the Wakulla River
operating from Wakulla Springs State Park and the Town of St. Marks.

4- Homeowners along the greenway should consider the following: maintaining and using
native vegetation; limiting the amount of vegetation removed near the river; accessing
the river using boardwalks instead of paths; limiting the use of fertilizers and pesticides;
and removing or not constructing bulkheads, seawalls and riprap for bank stabilization.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

107

+ Consider adopting sections of the rivers for cleanups or establishing river clean up
days with the local school children, university students, neighborhood groups and
social and service organizations.

+ Consider starting a voluntary river watch program that would monitor water quality and
provide laboratory testing facilities.

+ Consider forming a voluntary river interpreter group to educate river users concerning
Tiver stewardship.

+ Consider acting as a river steward through properly disposing of litter and waste,
acting courteous to fellow river users, observing no-wake zones, and educating
neighbors and users how to be stewards of the rivers.

ISSUES AND CONCERNS IDENTIFIED BY THE ST. MARKS AND
WAKULLA RIVERS GREENWAY STEERING COMMITTEE

The Florida Greenways Program of 1000 Friends of Florida and the Northwest Florida
Water Management District organized the St. Marks Greenway Steering Committee for the
purposes of sharing information, receiving input on the project and gaining an understanding
of the concerns of the citizens, local officials and landowners in the watershed. The following
comments and concerns were provided by the members of the Steering Committee. It is
recommended that these concerns and issues be considered as plans are developed for

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTECTION PLAN

108

conserving the St. Marks and Wakulla Rivers Greenways. These are not listed in any
particular order of importance.

� Threats to the natural and cultural resources from existing and potential increases in
recreational use. Prevent the greenway from being loved to death;
� Threats to manatees by collisions with boats;
41 Establish signs and enforce no-wake zones;
4- Problems with litter from recreational uses, boaters and fishermen
Sanitary and recreation access facilities should be maintained and improved to support
increase tourism;
4- Insufficient emergency management personnel and infrastructure to accommodate
additional tourists;
4- On site waste water treatment systems impacts on water quality;
4- Potential restrictions on use of private property within the greenway;
+ Oil and gas contamination of the river and its sediments;
4- Management of the increased number of tourists;
+ Lack of education about the proper use of the outdoors and boating etiquette;
41 Lack of funds to upgrade and manage local park facilities;
+ Potential impacts of boating on the rivers;
+ Lack of good user or tourist information such as maps and guide books;
4- Exotic vegetation both aquatic and terrestrial and impacts on the greenway;
� Protecting cultural and historic resources from vandalism;
� Improperly operating septic tanks along the rivers;

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEc-nON PLAN

109

Hunting deer and other game from boats along the greenway near homes, appropriate
(compatible) uses of the rivers in general. Examine use of personal water craft, hunting
and excessive boat speeds;
Need regulatory signage and enforcement of laws. User education concerning
regulations, re sponsibilities and use of the rivers, and
+ Promote compatible uses, promote guide books and guide service.

ST. MARKS AND WAKULLA RIVERS RESOURCE ASSESSMENT & GREENWAY PROTEC11ON PLAN

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1 12

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1 13

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1 17

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A-1

APPENDIX I - LAND U5E AND LAND COVER A55E55MENT

These maps provided an overview of land use within the watershed. Subbasins
were delineated on 7.5 minute quadrangle topographic maps by the U.S. Geological
Survey staff and digitized using ARVINFO GIS software. Methods follow those described
by Rains and Latham (1993). Satellite imagery was selected as the source for determining
existing land use and land cover data. Existing land use and land cover were mapped
using 1993 LANDSAT Thematic Mapper 30 meter resolution multispectral satellite
imagery. Satellite image analysis was further refined using secondary data, including low
altitude air photos and ground truthing. The classified satellite image raster files were
converted to ARVINFO vector files. Existing land use and land cover maps were geo-
referenced to 7.5 minute quadrangles and merged to produce seamless basin-wide
coverage.

Existing land use and land cover were classified using the Florida Land Use, Cover,
and Forms Classification System (FLUCCS) developed by the Florida Department of
Transportation (1985). Land use and vegetation cover were classified hierarchically, with
each successive level including land information of increasing specificity. Level 11 (and
level III where possible) of the FLUCCS hierarchy was used. Although FLUCCS
categorizes land cover as either uplands or wetlands, many of the "upland" forests classes
were found in low, wet areas and contained approximately equal portions of upland and
wetland vegetation. For the purposes of this report the land use and land cover data has
been aggregated. More detailed information is available on request.

Sites were selected for class verification base on accessibility. Much of the land
within the basin either private property or not accessible by road. Accuracy of the existing
land use and land cover classification was assessed by comparing predicted land use
classes 'to observed classes, determined by air photo interpretation and/or field
verification.

A minimum map accuracy of 85 percent, with a 90 percent to 95 percent confidence
interval, is standard for most natural resource land use studies. It was beyond of the
scope of the project to perform an accuracy assessment which could verify this standard.
However, based on results the observed during the field verification performed and several
similar studies completed by the District, it is anticipated these standards would be verified
by further assessment.

Use of satellite imagery or aerial photography and maps for planning or regulatory
purposes varies for regional, local, and site'-specific endeavors. In this study, land use and
land cover mapping was accomplished using 30 square meter satellite imagery with plus
or minus one pixel resolution (30 square meters). While satellite imagery is an

APPENDIX I

A-2

exceptionally good source of regional land cover and land use data, it may be less
satisfactory for urban areas and linear features due to resolution limitations. The
resolution limits the ability to differentiate among some urban features using the imagery.

Existing land use maps identified many but not all streams in the St. Marks and
Wakulla Rivers watershed. Linear features such as roads, streams, and stream-
associated wetlands. are particularly difficult to distinguish using satellite imagery
classification. To register in satellite imagery, a linear feature must dominate the 30
square meter pixel. If a 15 meter wide stream and associated wetland vegetation bounded
by 20 square meters of forest occurs at the pixel edge, only the forest may occur in the
imagery due to its areal extent. Satellite imagery detects linear features in areas with high
spectral contrast (such as a dirt road bounded by forest or bridge bounded by water), but
tends to miss linear features with low spectral contrast (such as a stream bounded by a
marsh). As a result, linear features often appear discontinuous when mapped using
satellite imagery.

Recently, the water management districts (WMDs), FDEP and other regional and
state agencies together purchased statewide Landsat satellite imagery. St. Johns, South
Florida, Southwest Florida and Suwannee WMDs and local governments have also shared
the cost of Photogrammetric mapping. The resulting purchases were made at a lower cost
than previously budgeted by these agencies for only a portion of the state. Cost-sharing
among state, regional and local agencies for land use and land cover mapping could result
in better data and maps at a lower cost.

As part of the ongoing District Water Management Plan efforts, WMDs and FDEP
agreed to use the 1985 FLUCCS as the primary classification system in order to ensure
compatible land use and land cover data on a statewide basis. The districts and FDEP
also agreed to recommend that DCA develop standards for the comprehensive plan future
land use map to ensure greater consistency of base maps, scales, and cartographic
standards. As land use and land cover data via satellite imagery become increasingly
available, cost-sharing by state, regional and local agencies of land use change detection
mapping and analysis would provide a good basis for monitoring comprehensive plan
future land use implementation and estimating NPS loadings.

APPENDIX I

A -3

APPENDIX 11 - DESCRIPTION OF THE FLORIDA LAND USE, LAND
COVER CLASSIFICATION SYSTEM (FLUCCS)

The Florida Land Use, Land Cover Classification System (FLUCCS) is a
hierarchical ly-based configuration with four (4) different levels of categorization, each level
containing information of increasing specificity. The following information has been
acquired from the Florida Department of Transportation Land Use, Land Cover and Forms
Classification System Manual - Procedure number 550-010-001-A (Department of
Transportation, State Topographic Bureau, Thematic Mapping Section, 1985). This
appendix describes the classification scheme used in conjunction with LANDSAT satellite
imagery for the St. Marks and Wakulla Rivers watershed.

LEVEL I
A LEVEL 1 classification contains broad classes of information which can be
extracted from satellite imagery with minimal assistance from supplemental information.
LEVEL 1 contains nine (9) categories of land use, vegetative cover and landform
information, eight (8) of which were used for this project. This data is normally used for
very large areas, typically at a scale of 1:1,000,000 or 1:500,000 (one-inch equals'
approximately 16 miles and eight miles, respectively). A LEVEL I classification may also
be used for general planning purposes when more detailed data is not necessary.

LEVEL 2
The nature of the data in this class is more specific than the LEVEL 1 information.
LEVEL 2 contains forty-two (42) sub-categories of land use, vegetation cover, and
landform information of which twenty-eight (28) sub-categories of LEVEL 1 were used for
St. Marks and Wakulla Rivers. This data is normally obtained from high altitude imagery
(40,000 to 60,000 feet) and requires additional supplementary materials, such as other
satellite imagery and topographic sheets. Mapping this level at a scale of 1: 100,000 (one-
inch equals 8,333 feet) is common practice. The St. Marks and Wakulla Rivers Project
utilized 20 meter SPOT multispectral and ten meter SPOT panchromatic imagery, the
combination of which enhanced the image to allow for a more accurate classification. As
a supplemental data source, National High Altitude Photography (NHAP) was used to
assist in the verification of the LEVEL 2 data.

LEVEL3
This class of data is usually obtained at an altitude between 10,000 and 40,000
feet. LEVEL 3 data contains one-hundred and forty-seven (147) sub-categories of LEVEL
2, 11 of which were used for this project. It is typically mapped at a scale of 1:24,000 (one-
inch equals 2,000 feet). The SPOT imagery was used to classify polygons to this level,
and aerial photographs and topographic sheets were used to assist in the classification
and verification process.

APPENDIX 11

A -4

The following is an explanation of the major classes and sub-classes of the Florida
Land Use, Land Cover and Forms (FLUCCS) Classification System. The St. Marks and
Wakulla Rivers Project used a combination of LEVEL 2 and LEVEL 3 data to identify
silviculture and wetlands sub-categories which allows for an accurate NPS assessment of
the drainage basin.

100 - Urban and Built-Up

This class consists of areas of intensive use with much of the land occupied by
man-made structures. This definition is for topographic and descriptive purposes, the very
nature of which can give misleading information about why a polygon is classified the way
it is classified. This category takes precedence over other categories when the criteria for
more than one land use/land cover are met. For example, a polygon classed as a low
density residential area (110) may also meet the same criteria for an Upland Hardwood
forest.(420). Contained in this category are the following land uses: Residential,
Commercial, Industrial, Extractive, Institutional, Recreation/Open land.

200 - A6riculture

Agricultural lands are those which are cultivated to produce food crops and
livestock. Cropland/pastureland, Tree Crops (other than plantation monoculture), Feed
Lots, Nurseries, Specialty Farms, and Rural Open Lands are sub-categories defined under
Agriculture.

300 - Rangeland

The definition of Rangeland used in the FLUCCS is the same as that used by the
departments of Agriculture and Interior. It describes the climax natural vegetation which
includes Grassland, Shrub and Brushland, and Mixed Rangeland sub-categories. These
areas become evident when larger-scale imagery is used and becomes significant to the
project if used as wildlife forage areas.

400 - Uplan d Forests

This class is defined as an upland area with a tree canopy closure of greater than
or equal to ten percent. Included in this category are pine, hardwood, and mixed forest
and those areas where timber harvesting and subsequent regeneration are taking place.
For a given forest stand to be classed as one particular species group, the polygon which
contains the species must have a tree canopy comprised of 66 percent or more of the total
canopy. Otherwise, the forest polygon will be classed as a mixed species. Classification
of Upland Forests is most often supplemented through the use of aerial imagery.

APPENDIX 11

A -5

500 - Water

The classification of a waterbody is dependent upon scale and resolution
characteristics of the remote sensing imagery used for interpretation. In the case of the
St. Marks and Wakulla Rivers Project, the 20 meter SPOT imagery was able to identify a
water polygon of 2.5 acres or more or a linear water feature of at least 20 meters
(approximately 66 feet). In some instances, a waterbody may be large enough to be
identified as such or the waterbody may contain submerged or emergent vegetation. In
this case, that waterbody will be identified under the Wetlands category. Streams and
Waterways, Lakes, Reservoirs, Bays and Estuaries, Major Springs, and Slough Waters
are included in this classification.

600 - Wetlands

Wetlands are those areas in which the surface of the land is at or near the water-
table for most days of the year, These areas are able to support various species of
aquatic and hydrophytic vegetation. Wetlands drained for any purpose belong to other
land use categories, such as Silviculture or Residential land uses. If these areas are
reestablished with wetlands vegetative cover, they are again classed as Wetlands. For
more accurate classification supplements to imagery, the National Wetlands Inventory and
low altitude aerial photography were used. Included in the Wetlands sub-class are
Coniferous, Deciduous, and Mixed Forests, along with non-forested (emergent vegetation)
and non-vegetated wetlands (tidal flats and shorelines).

700 - Barren Land

Barren Land has little or no vegetation and limited potential to support vegetative
communities. Due to human activity, areas such as Agricultural, Extractive and Industrial
land uses may be classed as Barren Land, therefore, these areas must be explored very
closely through the use of supplementals such as aerial photographs and topographic
sheets. Included in this category are the sub-categories of Beaches, Exposed Rock, and
Disturbed Land.

800 - Transportation, Communication, and Utilities

Contained in this category are linear and point features such as highways,
communication towers, and transmission lines. Satellite imagery can identify these
features if minimal size of resolution (ten meters) is met. Therefore, certain secondary and

APPENDIX It

A -6

tertiary roads, small transmission lines, and point features, such as communication towers,
will not be identified by the SPOT imagery. Supplementals such as topographic sheets
must be used to identify these features.

APPENDIX 11

A -7

APPENDIX III - NONPOINT SOURCE POLLUTION AsSESSMENT

Historically, most water quality problems in Florida were associated with point
sources, including both domestic and industrial sources. Nonpoint sources have now been
determined to account for the majority of the state's water quality problems. This change
is due primarily to poin't source treatment improvements and increases in agriculture and
urban developed land (Hand and Paulic 1992). NPS pollution has also been identified as
the major factor affecting downstream water quality in about 80 percent of the urban areas
targeted in a national survey conducted by the Council on Environmental Quality (1972).

NPS pollution is a major, largely uncontrolled, cause of surface water degradation
throughout Florida (Livingston et al. 1989). NPS pollutants in northwest Florida include
pesticides, animal wastes, nutrients, and sediments (Wolfe et al. 1988). In north Florida,
the progression of natural ecosystems to silvicultural, agricultural, and urban uses has
resulted in NPS pollution impacts including increased peak and total discharge, increased
concentrations of dissolved solids, nitrates, and ammonia, and increased export rates of
pollutants during storms (Livingston et al. 1989).Major contributors of these pollutants
include agriculture, stormwater runoff, silviculture, landfills, and septic tanks (US EPA
1989). Land use type and intensity are strongly related to NPS concentrations.

Contaminants associated with NPS can be detrimental to water quality. Nutrients
can have direct toxic effects or may stimulate algal growth. Pesticides and other
contaminants can be dangerous to the aquatic ecosystem.

Sediments affect water ways by not only reducing their storage capacity but also
by increasing the temperature of the water and providing increased opportunities for the
growth of water consuming plants (Clark et al. 1985). Additional sediment impacts include
damage to the biological health and integrity of the aquatic ecosystem along with a
decrease in recreational and aesthetic values.

Stormwater runoff is a significant source of NPS pollution, having solids
concentrations equal to or greater than untreated sanitary wastewater, and biological
oxygen demand (BOD) values approximately equal to those of secondary effluent.
Suspended sediment loads from streams draining urban areas are often an order of
magnitude greater than those from nearby forested watersheds (Burton et al. 1977b). In
addition, bacterial contamination of stormwater may be two to four orders of magnitude
greater than concentrations considered safe for water contact (Field and Turkeltaub 1981).

Urbanization has been shown to fundamentally alter the hydrology of watersheds

APPENDIX III

A -8

(Anderson 1970). Increases in impervious surface areas result in substantially increased
runoff (Simmons and Reynolds 1982, McElroy 1978). In addition, urbanization, with the
associated land clearing and paving of pervious areas, has accelerated the problem of
water quality deterioration throughout Florida. Stormwater and associated NPS pollution
are responsible for:

I . 80-90 percent of the heavy metals deposited in Florida surface waters;
2. the majority of the sediment deposited in state waters; and 3.450 times the
Total Suspended Solids flowing to receiving waters and nine times the BOD
load when compared to loads from secondarily-treated wastewater effluent
(Livingston et al. 1989).

Water quality changes due to urbanization also affect wildlife habitat. Jones and
Clark (1987) indicated biological data were a better discriminator of urbanization stress on
an ecological system than chemical parameters used in the same study.

METHODS

Basin boundaries, land use and land cover data, and selected loading rates were
input and processed using the District ARC/INFO GIS. Land use and land cover acreage
within the watershed were used in combination with selected loading rates to estimate total
loadings by land use.

Satellite imagery and aerial photography were used to quantify existing land use
and land cover in the St. Marks and Wakulla Rivers watershed. Potential NPS pollutant
loading rates were estimated for existing land use and land cover classes. Due to staffing
constraints, Local Comprehensive Plan Future Land Use Maps (FLUM) and future
development scenarios were not included. Loading rate relationships were determined for
four water quality parameters. Selected loadings were applied to each land use and land
cover class and total loads were estimated. Specific areas with exceptionally high
loadings were identified.

Land Use Cateciories and NPS Loadina -Rates

Existing land use and land cover within the St. Marks and Wakulla Rivers watershed
were initially classified into more than 40 categories which included similar land use and
land cover types. Due to the impracticality of developing and applying 39 individual
loading rates, original categories were aggregated into 15 categories, based on similarities
in loading characteristics see Table A-3).

APPENDIX III

A -9

Previous NPS pollution studies were reviewed to corroborate loading rate estimates
for water quality parameters and land use categories (Rains, et al. 1993). Loading rates
for land use/cover categories were based on three studies, the Tampa Bay Watershed
Study (Dames and Moore 1990), Florida Department of Environmental Regulation's
Watershed Model Users Manual (Camp, Dresser and McKee 1991), and Reikerk (1983).

Loading rates for TN, TP, TSS, and BOD calculations were based on average
annual rainfall (inches/acrelyear), pollutant runoff coefficient (includes soil type,
perviousness, etc.), pollutant runoff concentrations (milligrams/liter), by land use, and St.
Marks and Wakulla Rivers mean annual rainfall (58 inches/year). Loading rates were
reported in pounds per acre per year (lbs/acre/yr), and total loadings were reported in
pounds/year (lbs/yr). Loading rates for TN, TP, BOD, and TSS were estimated for each
land use category in developing composite loading rate relationships. Determining
whether or not land uses met water quality standards was not within the scope of this
study.

Loading rates from three studies (see Table A-4) were selected for use in the NPS
assessment. All loading rate calculations were based on local rainfall data. Rainfall data
for a five year period from the closest available rainfall stations, (Tallahassee and
Wewahitchka) were used to identify an watershed average annual rainfall as 58 inches.
(A summary of the 11 studies considered for their potential applicability to northwest
Florida is provided in Appendix 11).

TN and TP loading rates for four of the land use categories (institutional,
transportation/utilities, tree plantations, and natural uplands), were derived from FDEP's
Watershed Model Users Manual (Camp Dresser and McKee 1991). The manual provided
event-mean concentrations based on percent impervious surface associated withiand
uses. TN and TP loading rates used to calculate loadings were determined by multiplying
a weighted runoff coefficient by average annual rainfall (USGS gauging station) and event-
mean concentrations from the Dames and Moore report (1990), FDEP documents, or
estimated based on similar land use (see Table A-5).

M APPENDIX III
M
Vill

A-10

Table A-3. FLUCCS codes for each existing land use and cover category in the St Marks
and Wakulla Rivers watershed. Aggregated categories were based on existing
land use categories and compatibility with future land use categories.

Existing FLUCCS Categories Existing Aggregated Categories

Residential Residential
Low density residential Low density residential
Medium density residential Medium density residential
High density residential High density residential
Commercial/services Commercial
Industrial Industrial
Extractive Extractive
Institutional Institutional
Transportation Transportation/utilities
Utilities

Recreation Recreation/open lands
Open lands (urban)

Sand other than beaches Spoil
Disturbed land/spoil areas

Cropland/pasture Cropland/pasture
Open lands (agriculture)
Shrub/brushland

Upland coniferous forest Upland forests
Upland hardwood forest
Upland mixed coniferous/hardwood forest

Tree plantation Silviculture
Forest regeneration

Strearnstwaterways Streams and lakes
Lakes

Wetland hardwood forest Wetlands
Gum swamps
Tit swamps
Inland ponds/sloughs
Wetland mixed hardwood forest
Cypress
Wetland mixed coniferous forest
Wetland mixed coniferous/hardwood forest
Freshwater marshes
Saltwater marshes
Non-vegetated wetland

Not amalicable --CM i UafiQI3

APPENDIX III

A-I I

Table A - 4. Loading rates (lbs/acre/yr) for land use categories in the St Marks and
Wakulla Rivers Watershed.

Land use TN TP BOD TSS

Urban
Low density residential 5.76 0.74 16.12 55.90
Med density residential 10.10 1.63 37.22 100.03
High density residential 19.49 4,36 98.31 677.05
Commercial 21-10 3.14 130.90 894.67
Industrial 17.90 3.10 95.99 935.87
Institutional 5.55 0.71 73.51 475.29
Recreation/open 2.76 0.12 3.20 24.49

Non-urban
Cropland/pasture 8.89 1.32 14.57 211.97
Upland forest 2.67 0.42 8.89 118.23
Silviculture 2.67 0.42 8.89 118.23
Lakes and streams 7.88 0.69 10.69 19.54
Wetlands 4.54 0.54 13.33 28.94
Spoilfbarren 4.06 0.40 23.45 225.95
Extractive 5.37 0.68 43.70 427.41
Transportation/utilifies &00 1.01 67.10 459.60

Table A-5. References on which loading rate estimates were based
for the St Marks and Wakulla Rivers watershed.

Land cover category TN TP BOD TSS

Urban
Low density residential 1 1 1 1

Commercial 1 1 1 1
Industrial 1 1 1 1
Institutional 1 1 1 1
Recreation/open 1 1 1 1

Non-urban
Cropland/pasture 1 1 1 1
Upland forest 3 3 4 4
Silviculture 3 3 4 4
Lakes and streams 1 1 1 1
Wetlands 1 1 1 1
Spoil/barren 4 4 4 4
Extractive 1 1 1 1
Transportation/utilities 3 3 4 4

1. Dames and Moore
2. Riekerk
3. Watershed Management Model
4. NWFWMD: derived from 1-3

APPENDIX III

A - 1 2

Silviculture TN and TP loading rates were based on those reported by Riekerk
(1988). In a study of impacts of tree regeneration on water quality, Riekerk (1988)
reported total Neldahl nitrogen (TKN) as the predominant nitrogen form in tree
regeneration runoff. Because of the small nitrate differences in tree regeneration runoff
due to variations in silvicultural techniques, TKN was used as an estimate of TN for this
report.

The BOD and TSS loading rate estimates for the institutional category were
calculated as the average of low density residential and commercial category rates. In
order to be consistent with FLUCCS land use system, the transportation/utilities category
was included in the NIPS loadings tables. This category included only major road systems
since loading rates for a given land use include roads and other infrastructure associated
with the land use. Transportation/utilities category loading rates for BOD and TSS were
calculated as the average of recreational/open and commercial category rates.

In the ECFRPC Areawide 208 Study, all waterbodies are assumed to have a runoff
coefficient of 1.0 (Dames and Moore 1990). Many waterbodies, however, discharge only
under extreme rain events, and some are landlocked with no discharge. Mean runoff value
of 0.50 was selected, although varying characteristics made estimation of a representative
runoff value for waterbodies difficult.

NPS Total Loadings

Urban. Total acreage for urban land use categories accounted for only 7 percent
(13,439 acres) of the area in the St. Marks and Wakulla Rivers watershed (Table A-7,
Figure 6 in the main body), while estimated TN, TP, and BOD loadings (Table A-7) for
urban categories accounted for 11 percent and 14 percent of the total loadings in the
watershed. Of the TN, TP, and BOD loadings associated with urban land uses, 8 percent
was associated with low density residential and approximately 1-3 percent were due to
commercial and industrial. Urban TSS loadings accounted for only 7 percent of the total
TSS loadings in the watershed, and three percent were due to low density residential.

Lowest estimated TN loadings were less than one percent and ranged from 153
pounds per year for institutional (See Table A-7). TP loadings were less than 100 lbs/yr
for the institutional, recreation and open urban land categories. Estimated BOD and TSS
were also lowest, and similar, for recreation and open urban lands.

Non-urban. Non-urban categories accounted for 85 percent to 93 percent of total
estimated loadings for each of the four NPS pollutants (see Table A-7). Non-urban
categories accounted for 93 percent of the total acreage in the St. Marks and Wakulla
Rivers watershed. Silviculture areas in the St. Marks and Wakulla Rivers watershed

APPENDIX III

M
z
a Table A-7 Estimated Total Loadings In Pounds
X
LANDUSE NITRO PHOS BOD5 Ss
CATEGORY ACRES % LOADS % LOADS % LOADS % LOADS %
Residential 12.239.60 6.16% 70,508.00 8.97% 9,059.10 8.19% 197,344.30 8.94% 684,381.50 3.19%
Commercial 498.9 0.25% 10,526.20 1.34% 1.566.50 1.42% 65,302.50 2.96% 446,327.10 2.08%
Industrial 453.7 0.23% 8,120.80 1.03% 1.406.40 1.27% 43,548.30 1.9796 424,581.40 1.98%
Institutional 81 0.04% 449.3 0.06% 57.5 0.05% 5,950.60 0.270A 38.474.70 0.18%
Recreation 55.6 0.03% 153.4 0.02% 6.7 0.01% 177.9 0.01% 1,361.60 0.01%
Open Urban Land 110.6 0.06% 305.3 0.04% 13.3 0.01% 354 0.02% 2,709.10 0.01%

Urban Subtotal 13,439.30 6.76% 90,063.10 11.46% 12,109.40 10.95% 312,677.70 14.16% 1,597,835.30 7.45%

Agriculture 20.075.40 10.10% 178,470.10 22.71% 26,499.50 23.96% 292,498.20 13.25% 4,255.377.20 19.85%

Shrub and Brushland 7.340.40 3,69% 20,259.60 2.58% 880.9 0.80% 23,489.40 1.06% 179,767.20 0.84%

Xeric Oak 14,632.10 7,36% 39,067.80 4.97% 6,145.50 5.56% 130,079.80 5.89% 1,729.958.80 8.07%
Mesic Oak 7.703.50 3.88% 20.568.40 2.62% 3.235.50 2.93% 68,484.50 3.1096 910,789.30 4.25%
Hard/Conifer Mixed 26.747.60 13.46% 71,416.10 9.09% 11.233.90 10.16% 237,785.90 10.77% 3,162,365.90 114,75%
Upland Forest Subtota 49.083.30 24,70% 131,052.30 16.67% 20,615.00 18.64% 436,350.20 19.76% 5,803,114.10 27.07%

Silviculture 71,049.60 35.75% 189.702.40 24.14% 29,840.80 26.98% 631,631.00 28.61% 8,400,194.50 39.18%

Lakes 362.50 0.18% 2,856.10 0.36% 250.10 0.23% 3,874.70 0.18% 7,082.40 0,03%
Waterways 1,016.30 0.51% 8,007.90 11.02% 701.20 0.63% 110,863.60 0.49% 119.857.30 0.09%
LakeslWaterways
Subtotal 1,380.30 0.69% 10,857.40 11.38% 950.7 0.86% 14.729.10 0.67% 26,923.10 0.13%

Wetlands 36.033.00 18.13% 163,589.60 20.81% 19,457.80 17.59% 480.319.30 21.76% 1,042,793.70 4.86%

Beaches 20.2 0.011% 81.8 0.01% 8.1 0.01% 472.6 0.02% 4.553.50 0.02%

Spoil/Baffen 166.4 0.08% 893.8 0.11% 113.2 0.10% 7,273.80 0.33% 71,141.50 0.33%
Transport./Utilities 125 0.06% 999.9 0.13% 126.2 0.11% 8,386.60 0.38% 57,443.90 0.27%

Nonurban Subtotal 186,273.50 93.24% 696,907.00 88.54% 98,492.10 89.06% 1,895,150.20 86.84% 19,841,308.70 92.65%

TOTAL 198,712.90 100% 786,970.10 100% 110,601.50 100% 2,207,827.80 100% 21,439,144.00 100%

A-14

accounted for 35 percent of the watershed and accounted for 39 percent (Table A-7) of the
estimated total suspended solids associated with NPS pollutants in the St. Marks and
Wakulla Rivers watershed. Estimated TN, TP, and BOD associated with silviculture
accounted for 24 percent to 29 percent of the total estimated NPS loadings for these
parameters. Natural upland forests made up 25 percent of the watershed acreage.
Upland forest estimated TSS loadings were second to those of silviculture.

The agriculture category made up 10 percent of the total acreage in St. Marks and
Wakulla Rivers watershed and contributed 13 percent to 24 percent of the total estimated
TN, TP, and BOD loadings (Table A-7). Agriculture loadings estimated for TN (178,470
lbs/yr), TP (26,499 lbs/yr), and BOD (292,498 lbs/yr) were second to those for silviculture
(Table A 7).

Estimated NPS loadings for wetlands were similar JN = 163,590 lbs/yr; TP
19,458 lbs/yr, BOD = 480,319 lbstyr, TSS = 1,042,794 lbs/yr) when compared with values
for silviculture and wetlands. Remaining land use categories contributed less than five
percent of the total loadings for any of the four individual parameters (Table A-7) and were
consistent with low acreage.

The transportation/utilities category included less than 1 percent of the acreage in
the St. Marks and Wakulla Rivers watershed (Table A-7) and corresponded primarily to
acreage of major roadways. Estimated loadings due to major roadways made up less than
one percent of the total estimated loadings (see Table A-7).

Total existing urban land use acreage accounted for 7 percent of the area within the
St. Marks and WakullaRivers watershed and estimated NPS urban loadings ranged from
nine percent to 11 percent of total TN, TP, and BOD loadings, and 4 percent of the total
TSS loadings. Potential per-acre water quality impacts appeared * reatest fo'
9 r the
commercial and industrial urban land use categories. Overall relationships among
categories were consistent with other studies (Wanielista 1975, Hand and Paulic 1992)
in which urban land use categories had higher TN, TP, TSS, and BOD values in surface
water runoff when compared with values for non-urban runoff.

Although loading rates for non-urban categories were comparatively low on a per-
acre basis, silviculture practices have tremendous potential water quality impacts in the
St. Marks and Wakulla Rivers watershed due to the amount of acreage and existing land
practices.

In contrast with urban land uses, silviculture included 36 percent of the watershed
acreage and 39 percent of the total TSS loadings. These findings are consistent with
reports in the literature regarding suspended solids runoff from silviculture areas.

APPENDIX III

A - 1 5

Variation in nutrient and sediment loadings amounting to several orders of magnitude are
common for forestry activities (Novotny et al. 1981), and TSS loadings from logging roads
,are significantly greater in the absence of appropriate BMPs (Lynch and Corbett 1990).
Most sediment reaching waterways from these lands originate from construction of logging
roads and from clearcuts which infringe upon natural drainage channels (Novotny 1981).

Water quality maintenance and control are normally achieved by implementing
BMPs to reduce extreme pollution problems and promote rapid recovery. The BMPs are
intended to control activities in stormflow source areas and promote acceptable road
construction and soil conservation practices.

Results of this assessment reflect several areas of concern regarding NIPS pollution
in the St. Marks and Wakulla Rivers watershed.. First, forestry and agriculture are
responsible for the largest proportions of NIPS pollution in the watershed. Secondly, while
the literature indicates water quality impacts associated with these activities can be
minimized through recommended BMPs, compliance with these practices is not easily
enforced.

The impacts of silviculture and agriculture activities can be substantially reduced
if recommended BMPs are comprehensively implemented and rigorously enforced. After
evaluating the results of forest BMP surveys the Florida Department of Agriculture
reported: "Of the 150 survey sites for 1991, 141 were found to be in compliance with
silviculture BMPs which equates to 94 percent compliance", (Florida Department of
Agriculture 1991) While many appropriate BMPs were implemented, most surveyed sites
had several instances of non-compliance.

In an effort to clarify the use and interpretation of BMPs and make their application
more consistent, Florida forestry BMPs have recently undergone substantial revision to
increase water resource protection. If these changes are successful and compliance with
revised BMPs is achieved, a reduction in NIPS loadings from silviculture can be expected.
The Division of Forestry is currently reassessing compliance and effectiveness of BMPs
in an effort to more accurately reflect BMP compliance.

Three general options exist for abating NPS pollution from urban activity. The
options involve prevention, treatment, and control measures, implemented as an integrated
abatement approach (Wanielista 1975). In brief, prevention involves practices that are
applied before problems arise; treatment involves complete or partial physical, chemical,
and/or biological processes for minimizing impacts of stormwater; and control measures
would involve reduction or control of pollution sources.

Ideally, limiting discharges from new developments to discharge that would

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have occurred under natural, undeveloped conditions, in addition to maintaining water
quality standards, should result in no increases in NPS pollution.

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APPENDix 4 - VIEW OF STORMWATER LOADING RATE S FROM THE
AVAILABLE LITERATURE

(1) Stormwater Loading Rates. December 1989. FDER Nonpoint Source Section staff.

Table A-8 was given to Northwest Wflorida Water Management District staff for
comparison purposes. The numbers were not, however, documented. Values were
included in the table matrix, but not considered for use in this study, since lack of
documentation made it impossible to review data collection duration and watershed
characteristics (homogeneity, etc.).

(2) Estimation of Loading Rate Parameters for the Tampa Bay Watershed 1989.
Southwest Florida Water Management District [SWFWMD].

The literature search associated with this report was extensive, involving the
review of approximately 100 reports and publications. Studies that were selected
presented at least one year of data collection and measured only homogenous watershed
areas. The report presents the results of a literature search and study of pollutant loading
rates appropriate for selected parameters and land use types within the Tampa Bay
watershed. The pollutant parameters selected for potential inclusion into a loading rate
model were total nitrogen, total phosphorus, BOD, suspended solids, lead, zinc, total
coliform, pesticides, and oil and grease. The selected land use types included low density
residential (rural), single-family residential, multi-family residential, low density commercial,
high density commercial, industrial, mining, agriculture, recreation/open space and
water/wetlands.

Each selected study was evaluated for adequacy of the database with special
attention given to factors such as length of study, number of runoff events monitored and
monitoring methodology. The applicability of hydrologic and land use conditions were
evaluated and data judged appropriate for the Tampa Bay area was used for the final
estimation of pollutant loading rates.

The report included a summary table of mean annual loading rates for
total nitrogen, total phosphorus, BOD, and suspended solids. Values were available for
each of these parameters for each of the land use categories. Because of the vast amount,
of information researched for this report and the attention paid to data collection (sampling
duration and watershed homogeneity), many of the final loading rate estimates for the St.
Marks and Wakulla Rivers nonpoint assessment were obtained from this report.

(3) Nonpoint Source Waste Load Study for Indian River, Titusville, Florida. September

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1985. Dyer, Riddle, Mills and Precourt, Inc.

The purpose of this study was to estimate the quantity of NPS pollutants in lbs/year
entering the Indian River in Brevard County from 28 drainage basins. The following
sources were used to determine the loading rates for total nitrogen, total phosphorus, BOD
and suspended solids for each respective land use:

a) USGS studied a residential area in Broward County and multiplied the
loads (lb/acre/in) by 56-inches of annual rainfall in Titusville;

b) East Central Florida Regional Planning Council (ECFRPC) provided
loads (then multiplied loads using the rainfall ratio 56/50.5);

c) USGS studied commercial area in Broward County and multiplied loads
(lb/acre/in) in by 56-inches of annual rainfall in Titusville;

d) ECFRPC "Middle St. Johns River Basin Study and Lake Tohopekaliga
Agricultural Runoff Plan with correction to 56-inches of annual rainfall;

e) ECFRPC - Nonpoint Source Evaluation, Chapter 10, Table 10-2 with
correction to 56-inches of annual rainfall.

The results of the calculations do not take into account the impact of the city's
stormwater management and conservation ordinance. NPS data from developments
constructed before and after the ordinance would be required to determine what impact
the ordinance has on loading rates. Also included were the estimated loads to the Indian
River for the proposed land use for the City of Titusville as a prediction of what can be
expected if the future land use is carried to completion. This report was the source for the
St. Marks and Wakulla Rivers watershed loading rate estimates for the land use categories
crop I and/pasture, forest natural upland, and transportation/utilities.

(4) Agriculture Nonpoint Source Element - State Water Quality Plan. June 1979.
Florida Department of Environmental Regulation.

This report contained site-specific analyses of the five watersheds chosen from the
top 20 ranked within the state based on their potential for water quality problems due to
agricultural activities. In this publication total annual loadings for the five specific
watershed areas were calculated from land use and areal loading rates. Also contained
in the report were site-specific analyses for each watershed, methods used for determining VF
the extent of water quality problems caused by agricultural activities and management
practices for pollution control. The five watersheds included in the study were Escambia

APPENDIX IV
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River Basin (Canoe Creek), North St. Lucie Basin (Ten/Eleven Mile Creek), Upper
Oklawaha River Basin (Yale-Griffin Canal), Middle Suwannee River Basin (Little River),
and the Chipola River Basin (Spring Branch). For the Canoe Creek study, a cautionary
note that stated the pollutant yields per-acre may not be accurate enough as they are
based on literature values. It was also stated that a wide variability exists between the
estimates and the actual loadings observed in the field. It was recommended that a
receiving water analysis be performed in order to demonstrate that the loads were, in fact,
producing sizable water quality problems.

(5) Nonpoint Source Effects. January 1976. M.P. Wanielista.

The results of a literature review on loading rates for BOD, suspended solids,
nitrogen, and phosphorus for several land uses are included in this document. The
average value is used to assess the potential quality problems resulting from NPS. It
should be emphasized that studies from Florida only were used in determining the loading
rates. As much data as possible, relative to local or regional conditions, should be used.
Also, the loading rates are average values and are adjusted for an average rainfall quantity
of 52 inches, which is the approximate average for the State of Florida. The range of the
loading rates for suspended solids was wide, but expected because of variable erosion
conditions. Additional research should be done on quantification of loading rates per unit
area and time.

This report states that land use and precipitation are the two most important
variables affecting NPS pollution. Assuming precipitation is of sufficient intensity, duration,
and quantity, runoff and infiltration quantity and quality are dependent on ground cover,
frequently expressed in terms of land use such as, urban, agricultural, pasture, forested
(woodland) wetlands, etc. Each land use has certain permeable and impermeable
characteristics that determine, to a great extent, the quantity of runoff, evapotranspiration,
and groundwater infiltration. The type of land use is frequently equated to a runoff
coefficient and used in predicting runoff. Rainfall and the type of land use are relatively
easy variables to quantify in Florida. If large areas, such as major basin segments, are to
be used, then the use of average conditions for rainfall and land use would produce data
that are reasonable. After justifying the need for more accurate nonpoint data, a program
to collect additional information is necessary. This information would include data in the
general areas of topography, land management, water quality impacts, and meteorology.

General goals for the management of nonpoint source effects due to the land and
water use modifications are presented below. These goals are the basis for the work
presented in the report. The goals providing this basis include the following:

a) to minimize the deleterious effects of runoff and infiltration from land and

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water alteration activities on receiving waters by:

-minimizing the alteration of natural drainage patterns and conditions;

-minimizing soil loss due to erosion;

-maximizing the use of the soil's infiltration and percolation capacity to
reduce the unnatural loss of surface waters within the individual
watersheds under development;

-maximizing the use of management practices to reduce the levels of
contaminants in the waters to be discharged;

encouraging the gradual release of runoff and infiltration into the receiving
bodies of water.

b) to encourage the development and implementation of all plans to be
consistent with comprehensive regional water quality/quantity management
plans;

c) to encourage information flow and to foster an understanding of the impact
of NPS on water quality and to develop implemental solutions to these
problems;

d) to keep abreast of developments in the state-of-the-art techniques of
managing pollution from NIPS.

(6) Water Quality Characteristics of Urban Runoff and Estimates of Annual Loads
in the Tampa Bay, FL. 1984. M.A. Lopez and R.F. Giovannelli.

The purpose of this report was to describe the water quality characteristics of
urban runoff in the Tampa Bay area and to provide a method for estimating loads of
substances contained in runoff from urbanized watersheds under existing and future
conditions. From 1975 to 1980, an urban runoff data collection program, including
streamflow, climatic, physiographic, and water quality data, was established at nine
watersheds ranging from beginning to advanced stages of urban development. Gaging
stations were installed to monitor rainfall and runoff for each watershed. Physiographic
features that consist of size, shape, and slope of the watershed, type of land use, degree
of land use, area of impervious surfaces, type of storm drainage, soil types, and surface
area of lakes or detention ponds were compiled from aerial photographs, US. Geological
Survey topographic maps, planning agency data, and field observations.

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Regression equations were developed for estimating loads of substances
contained in runoff from ungaged urban watersheds in the Tampa Bay area. Equations
were developed for BOD, COD, total nitrogen, total organic nitrogen, total phosphorus, and
total lead. Use of the regression equations requires watershed-based rainfall. The
stormwater loads were computed as the product of instantaneous values of discharge
rates and concentrations of water quality constituents sampled. A time factor was
included, converting the discharge to incremental volumes, and summed to get the total
stormwater runoff volume. Some precautionary measures are required for valid use of the
regression equations for computing runoff volumes and water quality constituent loads.
They are recommended to be applied only to Tampa Bay urban watersheds. Since the
equations are empirically derived, they are only applicable in instances where values of
the independent variables fall within range of values used in their formulation.

The same daily rainfall data was used in computations of runoff and annual loads
for all watersheds. The differences in the computed runoff from the various watersheds
were due to variations in land use and watershed characteristics. The differences in runoff
are reflected in the magnitude of the computed basin loads of the various parameters
involved (runoff volume enters directly into load calculations).

Selected water quality constituents computed by the Tampa Bay area regression
equations were compared with those computed by other methods for other parts of the
country. The annual loads computed, using the Tampa Bay area regression equations and
the Broward County land use load factors, are of the same order of magnitude. Another
comparison was made in the application of the U.S. Environmental Protection Agency
(USEPA) screening procedure (Heaney and others 1976) to land use data at the St. Louis
Street drainage ditch site. As determined by use of the Tampa Bay regression equations,
the annual load of nitrogen was about the same, BOD was about one-half the magnitude,
and total phosphorus was about one order of magnitude greater than loads estimated by
the screening process. The Tampa Bay regression equations, because of their empirical
nature, presumably reflect the high natural phosphorus content of bay area streamflow and
fallout from local phosphate processing plants.

(7) Boggy Creek Water Quality Management Study, Final Report. 1988.South
Florida Water Management District and East Central Florida Regional
Planning Council

This study used a land use/nonpoint source model to develop control strategies
on a regional scale. Developed by Camp, Dresser and McKee (CDM) (11988), this model
simulated total nitrogen and total phosphorus loadings from the existing relatively rural
watershed and then predicted loadings in future scenarios where the watershed was
presumed to be highly developed, where residential, commercial and industrial uses

APPENDIX IV.

A -24

predominate. The model was also run for low density future conditions. A range of BMP
nutrient removal efficiencies and calibration coefficients that represent the extremes of the
probable ranges for these coefficients was applied in the model. As part of the study, the
South Florida Water Management District (SFWMD) developed a maximum assimilative
capacity (MAC) model to be used to compare the maximum assimilative nutrient capacity
of the receiving waters with the nutrient loadings modeled by CDM.

Three land use/growth scenarios were developed by the East Central Florida
Regional Planning Council utilizing current data and future projections as supplied by local
governments within the basin. These scenarios include the following:

1 Existing land uses in the basin were modeled (1984) which included certain
phases of Developments of Regional Impact (DRIs) which were present, and
any other pre-existing development;

2) Low Intensity" scenario - Assumes a slower growth rate and includes all
future development proposed within a DRI by the year 2000. This scenario
also includes all future development associated with the DRIs proposed, but
not necessarily within the DRI;

3) "High Intensity" scenario - Assumes an intensified development rate over
that of the low intensity scenario concentrating primarily in the rural southern
and eastern fringes of the basin with the inclusion of the proposed southern
connector beftway around the City of Orlando, and the ensuing growth
associated with it.

In both future g rowth scenarios (high and low), wet detention was utilized in the
model as the minimally-acceptable method of stormwater management, since it meets
existing SFWMD and DEP permitting criteria and is currently the most commonly employed
stormwater management practice.

Data collection consisted of gathering the information necessary to run both water
quality,impact models (East Lake Toho MAC model and Land Use/Nonpoint Source
model). Nutrient loadings were determined using data from a USGS-maintained daily
stage/flow recorder located in the southern portion of the basin below the Boggy Creek
swamp combined with data received from the SFWMD monthly water quality station
located downstream from the recorder. Nitrogen and phosphorus values were utilized in
the model calibration of current land use runoff loadings for the entire Boggy Creek basin.
Rainfall values (daily) were measured from the NOAA rain-gage at the Orlando
International Airport (the monthly cumulative values for the period 1981-1985 were used
in the study). For runoff calculations, the USGS stages were converted to flow rates using

APPENDIX IV

A -25

the rating curve.

Description of Bo-qqv Creek Model

Maximum Assimilative Capacity (MAC) Model - SFWMD used this modified
Vollenweider (1976) model (Fe 'derico et. al 1981) which was applied to East Lake Toho
to derive a preliminary approximation of the maximum assimilative capacity for phosphorus
(the limiting nutrient) within the lake. This was based on per-basin surface area loading
appropriation. The basic concept of the MAC model was to determine whether East Lake
Toho would maintain its current mesotrophic status or become degraded upon
urbanization. The MAC model has been used with success by SFWMD for Lake
Okeechobee. This model was calibrated utilizing data collected during a three-year
period. For output, the model determines the current and critical loading rates from the
East Lake Toho basins. The current loading rate refers to the existing phosphorus
contributions and the critical loading rates which are derived from the model for each basin
and compared with the actual measured loads generated to determine whether a particular
basin is exceeding its critical phosphorus loading rate. If the critical phosphorus loading
rate is being exceeded, it is then possible to calculate the load reduction which would be
required to stay within the means of the maximum assimilative capacity of the system.

The Description of the Land Use/Nonpoint Source Model (CDM)

The intent of this study was to develop a model capable of determining NIPS control
strategies on a regional scale. A relatively simple spreadsheet model, previously
developed by CDM, was employed using the LOTUS Symphony program (version 1. 1) for
an IBM compatible computer. Data used in the preparation of this model was provided by
SFWMD and ECFRPC. This land use/nonpoint source model simulated total nitrogen JN)
and total phosphorus JP) loadings resulting from the existing rural watershed and then
predicted loadings in future scenarios where the watershed was presumed to be highly
developed, where residential, commercial and industrial land uses predominated. TN and
TP were the only parameters used in the model. The major inputs needed to calculate
nutrient loads included nutrient load calibration coefficients (Fn and Fp), rainfall conditions,
areal extent of land, and BMP nutrient removal efficiency factors (REFs). The REFs
assume that properly managed stormwater systems using BMPs will reduce nitrogen
loadings by 30 percent and phosphorus loadings by 50 percent (from a particular land use
type). Event mean concentrations (EMCs), which are standardized concentrations of
nitrogen and phosphorus expected from a particular land use type, are combined with total
runoff and nutrient load calibration coefficients to generate nutrient loadings from the
current and future scenarios. The EMCs used were previously employed in other central
Florida area studies. The purpose of the calibration is to more accurately predict nutrient
loadings for the three development scenarios by comparing measured loadings to

APPENDIX IV

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modelled loadings. The ratio of these is the nutrient loading calibration coefficient. Prior
to model calibration, nutrient loadings were determined using the existing land use, and
then re-running the model to predict future low and high intensity development scenarios.
Output consisted of annual loadings for each land use type (pounds/acre/year) which
impacts Boggy Creek and East Lake Toho. The model was run for the current, low density
future, and high density future conditions with a range of BMP nutrient removal efficiencies
and calibration coefficients that represent the extremes of the probable ranges for these
coefficients. The predicted current and future nutrient loading rates in the land
use/nonpoint source model were analyzed for sensitivity to changes in the BMP nutrient
removal efficiencies and the nutrient loading calibration coefficients.

Several management alternatives were suggested for local governments to consider
in an effort to reduce nutrient loadings to Boggy Creek and East Lake Toho:

I The development and implementation of master stormwater management
plans;
2) The establishment of regional stormwater systems;
3) The amendment of local government stormwater regulations to include
stricter controls in certain land use types, the promotion of local land use
controls such as land acquisition and the protection of the extensive Boggy
Creek swamp.

(8) An Assessment of Urban Land Use/Stormwater Runoff Quality Relationships and
Treatment Efficiencies of Selected Stormwater Management Systems. 1988.- South
Florida Water Management District

This assessment was initiated to address two objectives relative to stormwater
runoff and its treatment. The first objective was to assess reported stormwater runoff
quality for differing land uses throughout the U.S., with a focus on data collected within the
State of Florida. The second objective of this publication was to evaluate the data
reported in the literature concerning the treatment efficiencies associated with the various
stormwater management systems.

One conclusion of this report was that for selected constituents, runoff water quality
varies with land use. The land use types that were evaluated and compared in this
assessment included residential, commercial, light industrial, roadway, and mixed urban.
Statistical differences between runoff water quality parameters and land use classification
were evaluated by using the Duncan's multiple-range test. This study concluded that
higher nutrient loads were generated by residential land uses than commercial, mixed
urban, light industrial, or roadways. Metal contamination was more widespread from
commercial and roadway projects than from residential, light industrial, or mixed urban

APPENDIX IV

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land uses. Residential and roadway areas demonstrated higher export potential for
chemical oxygen demand. There were no discernible trends for suspended solids export
as a function of land use. Urban highway projects generally had higher overall pollutant
loadings than rural roadway projects. Limited data indicated that organic contamination
in the form of polycyclic aromatic hydrocarbons were comparable for residential,
commercial, and highway sites, although significantly higher levels were found at a heavy
industrial site. For any monitoring program designed for a specific land use, this report
recommended utilizing the above information when designing a sampling strategy.

(9) Generalized Watershed Loading Functions for Stream Flow Nutrients. June 1987.
D. A. Haith and L. L. Shoemaker.

The Generalized Watershed Loading Functions Model (GWLF) is based on simple
runoff, sediment, and ground water relationships combined with empirical chemical
parameters. According to the authors, this model is unique in its ability to estimate
monthly nutrient fluxes in streamflow without calibration. Validation studies in a large New
York watershed indicated that the model possesses a high degree of predictive accuracy.
Although better results could perhaps be obtained by utilizing more detailed chemical
simulation models, such models have substantially greater data and computational
requirements and must be calibrated from water quality sampling data.

The concluding remarks indicate that the GWLF model has several limitations.
Peak monthly nutrient fluxes were potentially underestimated by as much as 22 percent.
Since nutrient chemistry is not modelled explicitly, the model cannot be used to estimate
the effectiveness of fertilizer management or urban stormwater storage and treatment.
The model has only been validated for a largely rural watershed in which agricultural runoff
and ground water discharge provided most of the nutrient load. Although the urban runoff
component is based on a widely used model (STORM), model performance in more urban
watersheds is uncertain.

10) Assessing Regional Nonpoint Source Problems with the Aid of a Watershed- Based
Simulation Model. 1989. B.M. Evans, N.F. Parks, G.M. Baumer, G.W. Petersen.

In 1979, the Pennsylvania Bureau of Soil and Water Conservation (PABSWC)
designated a number of large watersheds throughout the state as "high priority"
watersheds for agricultural NPS pollution assessment. In recent years, many county
conservation districts have conducted watershed assessments for the high priority areas.
One of the primary goals of these assessments is to satisfy the requirements of the "first
level screening" process outlined by PABSWC for securing additional funding through the
Chesapeake Bay Program to implement Best Management Practices. To date, most of
these assessments have been accomplished using an "indexing-type" methodology for

APPENDIX IV

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identifying critical areas within a watershed. With this approach, variables such as
percentage of agricultural land in row crops, percentage of agricultural land in cover crops,
animal density, average slope, mean soil erodibility, and drainage density are weighted
and evaluated on the basis of their relative impact on NPS contribution within each
watershed. While this cost-effective approach has considerable merit, some criticism has
been directed toward it because it does not directly produce estimates of nitrogen,
phosphorus, and sediment loadings within a certain area.

The intent of this demonstration project was to illustrate how a computerized
simulation model could be used to enhance the -results of watershed assessments
performed in Pennsylvania. Particular emphasis was placed on how a GIS could be used
to derive parameters required by the simulation model and display the resulting output.
A recently developed model called Agricultural Nonpoint Source (AGNPS) (Young et al.
1985) was used to simulate erosion, sedimentation, and surface runoff processes within
a watershed in central Pennsylvania.

The original scope of work planned for a detailed analysis of the simulation modelling
results be performed. Specifically, the original plans called for the following:

1 A comparison of model results with results obtained from a previous
watershed assessment;
2) An evaluation of predicted nutrient and sediment loadings against water
quality sampling data;
3) A sensitivity analysis to determine the relative change in model output with
respect to changes in model input.

NPS models may be categorized in numerous ways, but of interest in this study
were programmable, mathematical models commonly referred to as numerical models.
Numerical models can be further classified as being either empirical or physical process
models. Empirical models are generally cause-and-effect models in which a mathematical
expression transforms a set of input variables into a description of the output without trying
to describe the process taking place. Regression models (Universal Soil Loss Equation
related), and statistical time-series models, and several "indexing-type" models are good
examples of empirical models. Empirical models are generally simpler and require less
data than physical process models, so they are cost-effective to use. Unfortunately, they
are difficult to improve, cannot normally be extended beyond the range of data used in
their development, are easily misapplied, and can be misleading about cause and effect.
Physical process models are more sophisticated than empirical models in the sense that
they attempt to simulate the physical, chemical and/or biological processes that take place
in a given natural system. Such models, however, require volumes of data and extensive
research to test. NPS models such as Chemicals, Runoff, and Erosion from Agricultural

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Management Systems Model (CREAMS) (Knisel 1980), Areal, Nonpoint Source
Watershed Environmental Response Simulation Model (ANSWERS) (Beasley et al. 1980),
and more recently, AGNPS (Young et al. 1985) are typical physical process models.

The AGNPS model was developed by the Minnesota Pollution Control Agency, the
Minnesota Soil and Conservation Board, the U.S. Soil Conservation Service, and the U.S.
Agricultural Research Service (Young et al. 1985). The AGNPS computer program
actually contains two sub-models which are used to analyze both sediment and nutrient
transport within a watershed. The two sub-models used are single-event based models
intended to simulate sediment and nutrient transport from primarily agricultural
watersheds. However, land uselcover conditions, in addition to cultivated land, are
considered as well. Proceeding from the headwaters of the watershed to the outlet, the
pollutants are routed in a step-wise fashion so the flow at any point may be examined. In
using this program, a watershed is first sub-divided into square cells. The basic
components of the model provide for the analysis of hydrology, erosion, and sediment
transport, and nitrogen, phosphorus and chemical oxygen transport.

Data required for model execution is normally obtained through field data collection,
maps, (topographic and soils), and various technical publications, tables, and graphs.
Input data can be classified into two categories: watershed data and cell data. Watershed
data includes information pertaining to the entire watershed and to the storm event to be
simulated. Cell data includes physical information describing each of the cells, as well as
parameters based on the land practices within the cell.

Once the watershed segmentation step was completed, the data input file was
established. Compilation of the various types of data and deriving the necessary input
parameters to drive the model can be very time consuming, so instead of using this manual
approach many of these computations were done with the aid of a GIS. This approach
was believed to be less expensive and more accurate than manual data compilation
methods.

As a result of the final AGNPS model runs, a detailed watershed summary was
generated for the Bald Eagle watershed. The results include analyses for hydrology, with
estimates for nitrogen, phosphorus, and chemical oxygen demand in concentration and
mass units. Preliminary output includes watershed and cell areas, storm precipitation and
erosivity, and estimated values at the watershed outlet for runoff volume, peak flow rate,
and a detailed analysis of the sediment and nutrient yields. The detailed sediment
analysis include area-weighted erosion rates for both uplands and channels, sediment
delivery ratios, mean sediment concentrations, area-weighted yields, and net sediment
yields. These values are given for each of the five particle classes, as well as the total.
The detailed nutrient analyses include the nitrogen and phosphorus mass per unit area for

APPENDIX IV

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sediment-absorbed nutrients, the soluble N, P, and COD mass per unit area in runoff, and
the N, P, and COD concentration in the runoff. Additional runoff, sediment, and nutrient
analyses are given for each cell. Runoff analyses for each cell provide estimates of
drainage area, runoff volume, percent of runoff volume entering the cell from above and
peak runoff rate. Sediment analyses for each cell provide estimates of upland erosion
rate, amount of sediment generated within the cell, the amount entering the cell from
above, the sediment yield leaving the cell, and the percent deposition in the cell. The
detailed nutrient analysis for each cell provides estimates of absorbed and soluble
nutrients in mass per unit area and the concentration of these nutrients in the runoff.

To aid in the evaluation of AGNPS model output, a program called AGNPSOUT was
developed. Output maps which can be generated with AGNPSOUT now include the
following:
.1) Runoff, including drainage area, volume, generation both above and within
the cell and peak rate;

2) Sediment delivery, including cell erosion, generated above, generated
within, yield, and deposition;

3) Nitrogen production, including sediment delivered (both within cell and at
cell outlet), water soluble (both within cell and at cell outlet), total production
(sediment plus water), and concentration;

4) Phosphorus production, including sediment delivered (both within cell and
at cell outlet), water soluble (both within cell and at cell outlet), total
production (sediment plus water), and concentration;

5) Chemical oxygen demand within cell, cell outlet, and concentration.

In summary, it was the intent of this demonstration project to illustrate how AGNPS
could be used for watershed assessments performed in Pennsylvania. In this study, the
relatively new watershed model (AGNPS) was used to simulate erosion, sedimentation
surface runoff and nutrient transport processes within the Bald Creek watershed.
Particular emphasis was placed on showing how a GIS could be used to derive model
input parameters and display the resulting output. Additional work to complete the project
is to be done at a later date as the model needs to be tested and calibrated for use in
Pennsylvania.

(11) Silviculture, Hydrology and Water Quality in the Lower Coastal Plain of the U.S.A.
1988. H. Riekerk.

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The loading rates for the land use categories Tree Plantations and Forest
Regeneration areas for the St. Marks and Wakulla Rivers nonpoint assessment were
derived from the results associated with this study. The study was conducted from 1976-
1985 for three artificial watersheds to study the effects of intensive pine flatbeds forest
management practices. The study site was 40 km northeast of Gainesville, Florida, in the
Bradford Forest which belonged to a timber company. Slash pine flatwood plots were
harvested and regenerated with high and low levels of disturbance, and a 40-year-old
forest was left undisturbed as a control. The low-disturbance watershed was cut manually,
bucked, and removed leaving considerable slash. To minimize disturbance, the site was
quickly regenerated by slash chopping, bedding, and machine planting. The high
disturbance was machine harvested, followed by slash burning, windrowing, harrowing,
bedding, and planting. Each site was monitored for hydrologic variability as well as water
quality impacts due to the silvicultural practices for an eight-year time period. In order to
complete the loading rate matrix, it was decided to use this data for the category Tree
Plantations as well as Forest Regeneration Areas. The first three years of data from the
high-disturbed experimental watershed was averaged for the Forested Regeneration
Areas' loadings for nitrogen, phosphorus and suspended sediment. It was decided that
during the first three years after a watershed had been disturbed to this degree, the area
would closely approximate what has been defined by the "Florida Land Use, Cover and
Forms Classification System" (FLUCCS) as a forest regeneration area (evidence of
windrows and site preparation). The Tree Plantation loadings for nitrogen, phosphorus,
and suspended sediment were taken from the entire eight-year period for the combination
of high and low disturbed areas. This decision was based on the idea that tree plantation
runoff loadings can correspond to the high/low disturbed areas when cut and prepped, but
can also approximate Natural Upland Forests during the non-disturbed growth stages.
BOD loadings were not found in any of the silviculture studies researched, so the loadings
for Natural Upland Forests and Agriculture were utilized in order to complete the loading
rate table.

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The following is a summary of loading rates assembled. The loading estimates were
obtained from the aforementioned studies.

Table 1. - Summary of Land Use Loading Studies

Low Density Residential
TN TP (lb/ac/yr) BOD SS REF#

2.25 0.34 6.86 27.50(2)
1.50 0.26 4.70 28.00(3)
14.27 7.60 48.89 902.26(l)
4.43 0.47 10.80 (6)
5.09 0.79 (7)

Multi-Family Residential

7.54 1.93 42.10 206.00(2)
6.60 2.00 32.10 344.10(3)
17.26 9.01 62.94 1081.40(l)
5.88 0.87 (7)

Commercial

12.03 2.10 69.65 474.50(2)
11.30 1.10 63.00 647.00(3)
10.95 5.13 47.89 725.18(l)
5.34 3.12 44.52 300.93(5)
5.45 0.51 (7)
8.00 2.00 53.90 586.50(4)

Highwa

13.60 3.06 87.40 980.90(3)
10.29 6.06 91.53 1508.95(l)
4.50 0.36 (7)
8.00 2.00 53.9 586.50(4)
8.56 3.70 Industdal 46.80 696.00(2)
11.30 1.10 63.00 647.00(3)
12.02 8.43 47.21 1385.25(l)
4.86 0.46 (7)

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Table 1. - Continued Summary of Land Use Loading Studies

Low Density Residential

TN TP BOD SS REF#

(lb/aclyr)

Open Lands

1.31 0.16 2.48 23.70(2)
2.32 0.21 3.70 29.12(l)
2.55 0.32 (7)
1.50 0.10 1.60 12.00(4)
2.60 0.11 7.40 15.10(4)

Wetlands

3.30 0.15 6.70 16.30(4)
4.52 0.67 7.05 8.60(2)
5.40 0.22 15.40 32.30(3)
4.98 0.88 16.13 33.77(l)
4.90 0.20 13.90 24.30(4)

Pasture

7.20 1.30 16.20 434.40(3)
4.70 0.27 10.00 750.00(4)
7.54 4.60 46.02 1223.28(l)
4.72 0.26 9.79 747.89(5)
2.26 0.26 (7)
11.00 0.50 14.60 393.00(4)
5.60 1.00 15.10 391.70(4)

Agriculture

4.49 0.88 4.10 18.20(2)
4.40 0.22 16.20 27.80(3)
23.00 0.94 16.00 3747.00(4)
23.15 0.93 16.03 1997.03(5)
8.30 1.86 (6)
34.60 2.11 16.06 2721.00(4)

Woodland

2.30 0.10 2.60 27.80(3)
2.76 0.90 4.45 87.25(5)
3.30 0.15 6.70 16.30(4)
2.80 0.09 4.50 87.00(4)

APPENDIX IV.
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APPENDIX V - ST MARKS AND WAKULLA RIVERS GREENWAY
STEERING COMMITTEE

The Florida Greenways Program of 1000 Friends of Florida and the Conservation
Fund and the Northwest Florida Water Management District established the St. Marks
Greenway and Wakulla Rivers Greenway Steering Committee. Citizens and planning
professionals were invited to participate. The steering committees were held in public at
the Town of St. Marks Town Hall. Members of the steering committee were asked to
provide feedback and comments on the report. The following information includes, the
steering committee's charge, agendas from each meeting and a summery of each meeting
held, refer to the acknowledgements for the participating members.

ORGANIZATION

The St. Marks Greenway Steering Committee is a coalition of private, public,
regulatory, environmental, historical and recreational interests that have come together to
develop a consensus regarding the creation and preservation of the natural, recreational
and cultural resources, and ecosystem connections along the St. Marks and Wakulla
rivers. The Florida Greenway Program of 1000 Friends of Florida and the Northwest
Florida Water Management District will initially organize the committee in June of 1994 to
receive input on a greenways resource assessment for these two rivers. Staff from Leon
and Wakulla county's planning departments have expressed interest in maintaining the
committee to work with issues and concerns in developing greenway conservation policies
identified in the greenway assessment. While the Florida Greenways Program's role and
the District's role may be diminished once the greenway resource assessment is complete,
they are interested in seeing the plan implemented and may be able to assist with the
committees efforts from time to time.

Membership on the Steering Committee is open to all and it does not constitute a
public body with official standing, but it will conduct its business in a manner consistent
with the public interest and advanced notice of all meetings will be provided. Support
personnel will develop an agenda for each meeting and provide a copy to all committee
members. The Steering Committee will conduct its business in an open, cooperative and
consensus building manner. It will be the Steering Committees' policy to make decisions
through a consensus whenever possible rather than through majority voting. Active
participation by all steering committee members is urged. In the event any member may
not be able to attend a meeting, please send a designee. The Steering Committee will
continue to meet at the Town of St. Marks until further notice or if the committee decides
to meet at another location in the watershed.

APPENDIX V

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WORK PRODUCTS

The Steering Committee will be provided a draft greenway assessment on August
26, 1994 and will be asked to review a the draft greenway resource assessment and
provide comments and feedback regarding the draft no later than Friday, September 9,
1994. Florida Greenways will address the issues brought up by the committee members
in the final draft of the greenways resource assessment by September 15, 1994. The
Committee may be asked to meet in the future on behalf of the counties or Northwest
Florida Water Management for comments and public input on their respective St. Marks
and Wakulla river greenway planning projects.

THE VISION

The vision for the St. Marks and Wakulla Greenway is to conserve the green river
corridors of the St. Marks and Wakulla rivers. The "greenway" is intended to become the
focal point for wildlife and humanity in the watershed and thus the need to do more in
terms of education and conservation. The greenway will provide for wildlife protection and
movement, water quality protection, and provide a combination of land and water related
recreation opportunities for citizens and visitors of Jefferson, Leon and Wakulla counties.

THE MISSION

The mission of the St. Marks and Wakulla Rivers Greenway Steering Committee
is to assist in formulating recommendations for conserving the greenway along the St.
Marks and Wakulla rivers, assist in developing community awareness of the greenway
within the community, and facilitate in assisting the counties' greenway action plans.

GoALs -

44- Conserve linear corridors of green open space linking the communities of
Leon and Wakulla counties. Identify issues, interest, and opportunities
concerning the establishment of the greenway system within the watershed,
and assist in finding workable solutions towards greenway development.

Assist local planning agencies with fostering intergovernmental dialogue
by assisting the implementing agencies in providing comments and
questions as the plan is implemented. Also, provide support for the
greenway by helping public officials become aware of the importance of
the St. Marks Greenway.

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Encourage sustainable land uses within the basin by conserving open
space, habitats, compatible land uses within the watershed by exploring
alternatives for planning, designing, permitting, construction, monitoring
and management of the proposed greenway.

To explore economic development opportunities from the establishment of
the greenway through ecotourism development.

APPENDIX V

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St. Marks River Greenway Steering Committee
An open Discussion on opportunities to develop greenways on the St. Marks and Wakulla Rivers

June 15, 1994
Agenda
10:30 a.m Introduction -.
Introductions, Kent Wimmer, 1000 Friends of Florida
Project Overview, Tyler Macmillan, Northwest Florida Water Management
District

Your Vision for the greenway in the St. Marks and Wakulla Rivers Watershed - 11:00
a.m.

An open discussion of opportunities and issues by steering committee members surrounding the greenway
concept

Questions for Discussion:

What should the boundary be for the greenway?
What should we name the greenway?
What opportunities exist for a natural and restored greenway?
What should be the role of government in planning and managing the
greenway?
What should the role be of private industry, landowners and citizen
organizations in planning and managing the greenway?
What are the disadvantages that you perceive in designating the rivers as
greenways? What are the advantages of greenways?
What potential problems do we face in planning and managing the greenway
and what can be done to overcome those problems?

11:35 a.m. Wrap-up -, Kent Wimmer
Where do we go from here?
What can each of us do?

APPENDIX V

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SUMMARY OF THE: JUNE 1 5 ST. MARKS GREENWAY STEERING
CommirrEE:

Meeting opened with introductions by Kent Wimmer and Bob Williams of the Florida
Greenways Program of 1000 Friends of Florida and, Tyler Macmillan of the Northwest
Florida Water Management District. Kent and Tyler provided the project description and
goals for the steering committee. Information packets were handed out concerning the
project's boundaries, time frame and scope of work.

General concerns, comments and issues

One focus of the project is examining nonpoint source pollution of the St. Marks and
Wakulla rivers and possible mitigation strategies for nonpoint pollution. Many positive and
insightful remarks were made regarding this issue including:

More public amnesty days so citizens of Jefferson, Leon and Wakulla counties
could dispose of household toxic and hazardous waste,

More public awareness on the use.of lawn and garden fertilizers along the rivers

More public awareness of the precautions the oil industry is taking in St. Marks to
prevent and reduce the hazards associated with oils spills and tank leakages.

The role of the steering committee was discussed. The steering committee
requested 1000 Friends draft a vision statement and charge for the steering committee.
Some members expressed interest in helping with the project.

Other issues discussed

The number and speed of the power boats traveling the rivers was discussed in
relation to canoeists and manatees. Prop guards and other technological devices to
reduce the impacts on the river bottom and manatees. Some healthy debate was engaged
in over' this issue. Private property liabilities were discussed by several river front land
owners. It is proposed that ecotourism be developed in the watershed as a means of
improving the economic conditions while maintaining the resources. Members discussed
problems associated with more users on the rivers.

Liability of property owners letting the public use the river banks for day use
activities.

Introduction of exotic plants to the St. Marks and Wakulla Rivers

APPENDIX V

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Concern about illegal takings and defacing historic and archaeological sites

Litter, noise and other potential issues associated with increased use

The need for more public education about proper etiquette for using recreation
lands and waters

Taxes and recreational use fees were discussed by committee members. Wakulla
County's emergency response agencies may not be able to handle more tourists. It was
mentioned if more emergency services are needed, then the citizens of Wakulla County
should not have to bear the entire cost of it. Other recreational issues include:

a voluntary boat launch fee at county and city public boat ramps collected for public
*education and facilities improvements including;

methods of enforcing a voluntary use fee at the public boat ramps

joint marketing efforts by Jefferson, Leon and Wakulla counties to bring more tourist
to the area as a destination for ecotourism activities.

Regulate and disperse use so as not to love the resource to death

Develop a historical trail with historical accounts placed on signs depicting the
historical significance of the area.

APPENDIX V

A-41

St. Marks River Greenways Steering Committee
A FORUM TO DISCUSS OPPORTUNITIES TO CONSERVE GREENWAYS ON THE ST. MARKS AND WAKULLA RIVERS
JULY 22, 1994
AGENDA

10:00 a.m. Welcome
Introduction, project status, and review of vision and mission statements - Kent
Wimmer, The Florida Greenways program of 1000 Friends of Florida
Presentation of Draft Land Use and Resource Feature Maps- Tyler Macmillan,
NWFWMD

Your vision for the greenway in the St. Marks and Wakulla Rivers

LOCAL AN REGIONAL GOVERNMENTS AND ORGANIZATIONS
11:00 a.m. An open discussion of Greenways opportunities and issues by the
steering committee

Possible questions for discussion:

WHAT SHOULD THE BOUDARY BE FOR THE GREENWAY?
WHAT SHOULD WE NAME THE GREENWAY?
WHAT OPPORTUNITIES EXIST FOR A NATURAL AND RESTORED GREENWAY?
WHAT SHOULD BE THE ROLE OF GOVERNMENT IN PLANNING AND MANAGING THE GREENWAY?
WHAT SHOULD BE THE ROLE OF PRIVATE INDUSTRY, LANDOWNERS AND CITIZEN ORGANIZATIONS
IN PLANNING AND MANAGING THE GREENWAY?
WHAT ARE THE DISADVANTAGES THAT YOU PERCEIVE OF DESIGNATING THE RIVERS AS A
GREENWAY? WHAT ARE THE ADCANTAGES OF GREENWAYS?
WHAT POTENTIAL PROBLEMS DO WE FACE IN PLANNING AND MANAGING THE GREENWAY AND
WHAT CAN BE DONE TO OVERCOME THOSE PROBLEMS?

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The St. Marks Greenway Steering Committee
Meeting Notes for July 22, 1994

Kent Wimmer of the Florida Greenways Program opened the meeting at 10: 15 a.m.
at St. Marks City Hall. Wimmer discussed the project's status and briefly reviewed the
discussion of the last meeting on June !5. Tyler Macmillan of the Northwest Florida Water
Management District. provided a review of the maps. The maps displayed included the
natural, recreational, and cultural resources map, the watershed - project boundary map,
the land use - land cover map and the critical habitat map produced by the Florida Game
and Fresh Water Fish Commission.

The maps presentation lead into a Steering Committee discussion of the sources
used to develop the Critical habitat map. Macmillan explained that the map used Florida
Natural Areas Inventory (FNAI) data combined with satellite land cover data to map areas
of habitat that could support various indicator species. The information from the FNAI is
a species occurrence database of all endangered, threatened and state critical concern
species of plants and animals. The Florida Natural Areas Inventory is a source for the
map. FNAI is a joint venture between the Nature Conservancy and the Florida Department
of Natural Resources. The Game and Fish maps may not always be based on actual
sightings and they do not readily take existing land uses into account when determining
critical habitat.

The Districts land use - land cover maps generated some discussion regarding the
accuracy of the data. The satellite imagery indicated that a few areas on the map were
clear cuttshrub and brush lands. Most of these areas are found near the St. Marks River
and reflect recent silviculture harvest. Luann Rains clarified the issue by describing the
limitations of the satellite and the computers. The satellite has a difficult time
distinguishing between three foot trees/brush and 15 foot trees. They produce a similar
reflectance and this problem is magnified when the area has recently been timbered and
is adjacent to a mature forest. The District indicated that they would welcome comments
and corrections regarding the land use and land cover maps provided that they could be
mapped on USGS 7.5 minute quadrangle maps. The Steering Committee also indicated
it wanted the District and the Florida Greenways Program to identify in the report the
limitations of the Hot Spots map.

The Plan/Report was also briefly discussed. The Florida Greenways Program
talked about what is anticipated to be the report including proposed future land uses,
comprehensive plan reviews, ecotourism/economic benefits and functions of greenways.
The District said that this plan/report will provide a point of departure for the initiation of
a Surface Water Improvement Management (SWIM) program. The SWIM program will
allow the District to conduct water quality analyses, biological assessments, and

APPENDIX V

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hydrological assessments on the St. Marks and Wakulla rivers. Macmillan indicated that
the St. Marks River is next priority SWIM project for the District and the St. Marks SWIM
plan could be initiated in the next year. Macmillan indicated that the SWIM plan would
considerably more detailed in its water quality collection and research than this greenways
conservation project. The District would like to use this Steering Committee to assist in
gathering public comments and concerns during the SWIM project.

Several issues and concerns were brought up by Committee members. Ecotourism
was discussed. Cynthia Rusling brought up by that an additional canoe/paddle boat livery
may be opening up in Newport. The additional canoes/paddle boats may have some
conflicts with power boaters. No wake zones and public education about the use of the
river and proper boating courtesy were mentioned, as were the impacts of additional
boaters on the river.. It was suggested having River Rangers who patrol the river and
educate the users about river recreation ethics could be one solution to the problem.

During the course of the meeting the term greenway has been bantered about,
however, the term has not been defined properly for the Committee. Florida Greenways
staff defined a greenway as being green and connecting or linking one place to another.
They are often linear corridors such as shorelines and rivers. Greenways; also have to be
managed and afforded some level of protection. Trails are not greenways, but rather a way
to experience the greenway. The greenway is protected corridor of land which the trail
travels through.

The Steering Committee indicated that language used in the report needs to be
as clear as possible. Vague language could cause problems in getting decision makers
to buy into the plan. The Committee Members indicated that there was a great deal of
effort put into the Wakulla County Comprehensive Plan and it should be used as the
starting point for the reporCs conservation assessment and strategies. Macmillan stated
that this report/plan is intended to be used as a guidance document offering
recommendations to local and state planning agencies. Another concern raised by the
Committee centered around what restrictions may be placed on river front land owners if
the greenway is established. The report will attempt to address these concerns.

There was no input from the steering committee regarding the greenways name.
The remaining tim was spent discussing the draft mission and vision statements. A few
changes were recommended to the draft mission and vision statements including an
emphasis on providing additional economic opportunities.
The meeting was adjourned at 12:20 p.m.

APPENDIX V

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ST. MARKs RIVER GREENWAYS STEERING COMMITTEE

A roRum ro Discuss oppomumrEs To coNsEpvE aREENwAys oN THE, Sr. mARKs AND wAKuuA RIVERS
AuGUST, 26 1994
AGENDA
10:00 a.m. Welcome

41 Introductions, project status, and review of revised vision and mission
statements, - Kent Wimmer, The Florida Greenways Program of 1000 Friends of
Florida

+ Presentation of Draft Land Use and Resource Feature Maps, Greenways Maps,
and land ownership patterns maps - Tyler Macmillan, NWFWMD

11:00 a.m.

4- Present Draft Greenways Assessment Report to the Steering Committee to
discuss the committees' review process for the draft greenways assessment and
discuss the next meeting on tentatively scheduled for September 9, 1994.

12:00 p.m.
Adjourn

APPENDIX V

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Summary of the August 26 St. Marks Greenway Steering Committee
Meeting

Wimmer opened the meeting to discuss the committee's charge and vision
statements. No discussion resulted and the draft charge was adopted by the steering
committee. Draft recommendations were presented during the meeting. The
recommendations generated lively debate over the greenway concept. The
recommendations as of this meeting were ideas and thoughts and were not refined in their
wording. This vagueness caused confusion and apprehension among the steering
committee members.

. Some members of the steering committee indicated they did not want any more
regulation and some of the preliminary recommendations are duplicated in other laws and
regulations addressing wetlands and open space. Lead staff noted their concern and
explained the greenway concept in more detail and asked for suggestions from the
committee to resolve the vagueness in the language of the recommendations. Lead staff
agreed to provide a draft of the recommendations to the committee for review. Members
of the steering committee expressed concern over the greenway removing property from
the tax roles. Lead staff explained the ecotourism and economic benefits of greenways
for the region.

The meeting was adjourned at 12:15 p.m.

APPENDIX V

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