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






                      Coordination of SWIM, Aquatic Preserve, and
                          Local Government Comprehensive Plans




                                            INAL REPORT





                                       James W. May, Principal Investigator
                                     Stephen M. Hodges, Research Associate


                                                Homer Hoyt Center
                                       For Land Economics And Real Estate
                                            The Florida State University



                                     Patricia M. Metzger, Research Associate
                                           Susan L Trevarthen, Esquire


                                            Florida Atlantic University/
                                          Florida International University
                               Joint Center for Environmental and Urban P'bb'f"

                                                                                   MAR lu@


                                                    March 1993




                    Funds for this project were provided by the Department of Environmental Regulation, Office of
                   Coastal Management using funds made available through the National Oceanic and Atmospheric
                           Administration under the Coastal Zone Management Act of 1972, as amended.








                    Coordination of SWIM, Aquatic Preserve., and
                        Local Government Comprehensive Plans




                                        FINAL REPORT





                                     James W. May, Principal Investigator
                                   Stephen M. Hodges, Research Associate


                                              Homer Hoyt Center
                                     For Land Economics And Real Estate
                                          The Florida State University



                                   Patricia M. Metzger, Research Associate
          e                              Susan L Trevarthen, Esquire
      C)
                                          Florida Atlantic University/
                                        Florida International University
                              joint Center for Environmental and Urban Problems




                                                  March 1993




                  Funds for this project were provided by the Department of Environmental Regulation, Office of
                 Coastal Management using funds made available through the National Oceanic and Atmospheric
                         Administration under the Coastal Zone Management Act of 1972, as amended.
                                   LF I










                      Table of Contents




                      Num                                                                          E"e

                      Preface   ..........................................................           vii

                      Executive Summary       ..............................................         ix

                      Chapter I:       Introduction   .......................................        1

                      Chapter II:      Legal Context and Analysis     ..........................     19

                      Chapter III:     Consistency Analyses; Tampa Bay and Indian

                                       River Lagoon Study Areas     ...........................      49

                      Chapter IV:      Conclusions and Recommendations         ..................    131

                      Bibliography    .....................................................          143



                      Appendix 1:      Cockroach Bay Case Study

                      Appendix 2:      List of Agencies Interviewed

                      Appendix 3:      Issue Matrices: Hillsborough County Comprehensive Plan

                      Appendix 4:      Issue Matrices: Manatee County Comprehensive Plan

                      Appendix 5:      Issue Matrices: City of Palmetto Comprehensive Plan

                      Appendix 6-.     Issue Matrices: Indian River Lagoon Study Area

                      Appendix 7.      Acronyms & Abbreviations










                     List of Tables



                     Nu                                                                        Egge

                     1. Aquatic Preserve Management Plans Needing Revision, Being

                         Revised, or Revised   ...........................................       3

                     2.  State Appropriations for the SWIM Program, 1987-1993      ............. 10

                     3.  Summary of Aquatic Preserve, SWIM, and Local Comprehensive

                         Planning Programs    ............................................       26






                     List of Figures



                     NU                                                                        La=

                     Chapter I:

                     1. Tampa Bay and Indian River Lagoon Study Areas        ..................  5

                     2. Federal and State Funding for Florida's Aquatic Preserve Program,

                         1981-1991   ....................................................        10

                     Chapter M:

                     1. Map of Terra Ceia Aquatic Preserve     .............................     59

                     2. Map of Cockroach Bay Aquatic Preserve       .........................    61

                     3. Map of Indian River Lagoon Aquatic Preserve, Jensen Beach to

                        Jupiter Inlet  ..................................................        110&111









                                                                  Preface



                     Florida is blessed with an abundance of coastal resources, including some 1,300 n-dles of shoreline
                     that stretches from the St. Mary's River near Femandina Beach to the Perdido River west of
                     Pensacola. For more than twenty years, the State of Florida has been involved in efforts to better
                     manage the state's coastal resources through a variety of programs prescribed by the Florida
                     legislature. The range of management techniques involved in these programs ranges from efforts
                     to develop better planning for coastal uses and activities, direct regulation of many of these uses
                     and activities, the promotion of sound building and development practices in sensitive coastal
                     areas, hurricane planning and other types of disaster preparedness, marine fisheries
                     management, and land acquisition to protect environmentally sensitive areas and to provide for
                     public recreation and enjoyment of the state beaches and coastal waters.

                     This report examines three major state programs that involve different types of planning for
                     coastal development and resource protection. In preparing this report, the research team from
                     Florida State University and Florida Atlantic /Florida Intemational University looked at plans
                     prepared for aquatic preserves, local government comprehensive plans, and plans that are
                     prepared by water management districts to help protect and restore important surface waters of
                     the state. The authors have tried in this study to answer the question of whether plans developed
                     for these three purposes are consistent with each otheT, and if so, to what extent. To help answer
                     this question, the authors closely examined a number of plans that have been developed for these
                     purposes in two areas of the state, and talked with a number of people who have been involved
                     in preparing and implementing these plans.

                     The authors gratefully acknowledge the participation and assistance of all of the people working
                     in federal, state, regional and local government agencies who graciously gave of their time and
                     their experience to help us complete this project. Whether through formal interviews, telephone
                     conversations, written correspondence, or reviews of various draft material for this final report,
                     many people too numerous to name cooperated with the researchers and aided us in preparatio          'n
                     of this final report. Agencies with whom we conducted interviews for this project are listed in
                     Appendix 2, and we thank each one of those persons who were involved for their input and
                     contribution to our work.

                     Additionally, we wish to recognize and thank two individuals in particular who were very
                     instrumental in analyzing the many plans and other documents that were examined during the
                     course of the project, and who also helped write portions of the final report. Anne Guthrie of the
                     FAU/FIU Joint Center for Environmental and Urban Problems and Steve Ovendon, a graduate
                     student in FSUs Department of Urban and Regional Planning both made significant
                     contributions to the final report, and we thank them for their help.

                     Finally, the authors acknowledge and thank the coastal management staff in the Department of
                     Community Affairs for their help during the course of the project, as well as those persons in the
                     Department of Environmental Regulation who administered the coastal management program
                     prior to the legislature transferring it to the Department of Community Affairs, effective April
                     1992. David Worley and Jim Stoutamire from DER were particularly helpful in getting the project
                     underway, and during the transition of the contract from one state agency to another during the
                     course of the project.








                                                      Executive Summary




                    The Florida State University's Homer Hoyt Center for Land Economics and Real Estate, in
                    cooperation with the Florida Atlantic /Florida International Universities' joint Center for
                    Environmental and Urban Problems, evaluated the degree of consistency between the goals,
                    objectives, policies, and implementation strategies contained in the SWIM, Aquatic Preserve, and
                    Local Comprehensive Plans for portions of two areas, Tampa Bay and the Indian River Lagoon.
                    The study was carried out at the request of the Department of Environmental Regulation (DER)
                    pursuant to Florida's Coastal Zone Management program. In addition, a review of law and rule
                    was conducted to determine whether conflict exists among the enabling legislation for each of the
                    three planning efforts. Based on this evaluation and analysis, conflicts among these plans were
                    identified and a report with recommendations for corrective actions (needed on a statewide basis)
                    was produced.

                    Additionally, the Homer Hoyt Center, in  cooperation with the FSU Florida Resources and
                    Environmental Analysis Center (FREAQ, originally planned to examine the consistency of
                    technical data needs and transfer of information between the three plans, the theory being that
                    the availability of common data sets to different agencies will result in more consistent and
                    rigorous plans. However, the Homer Hoyt Center study team found during interviews with the
                    HiIIsborough County Environmental Protection Commission that the Commission, under the
                    direction of the Hillsborough County Commission, is currently working with the Tampa Bay
                    Regional Planning Council to inventory and acquire Geographic Information System (GIS) data
                    for the purpose of developing a resource management strategy for the Cockroach Bay Aquatic
                    Preserve. Therefore, the Homer Hoyt Center documented the efforts to date of the task force
                    responsible for inventorying and acquiring relevant digital data for the Cockroach Bay area.

                    Chapter I of this study provides an introduction to the three progran-us and their plans, and
                    provides the context in which these plans are written and impleminted. Chapter II is an analysis
                    of the enabling legislation and other relevant statutes and rules for the three planning programs
                    studied. Chapter III presents the comparison and analysis of the plans themselves. Chapter IV
                    offers a summary of findings, conclusions, and a set of eight recommendations for consideration.
                    Finally, Appendix 1 is a case study of Cockroach Bay and the efforts to address its environmental
                    problems through a comprehensive plan amendment and the creation of a set of digital
                    environmental and other data for inclusion into a GIS. Appendixes 2 through 6 are the set of
                    policy matrices used in the analysis and comparison of the three types of plans for the Tampa Bay
                    and Indian River Lagoon areas.

                    Overall, the review and consistency analysis of the SWIM, aquatic preserve, and local
                    government comprehensive plans within the two study areas of Florida revealed general
                    consistency among these three types of plans. At a minimum, all local government
                    comprehensive plans have policies that call for coordinating with the agencies responsible for
                    writing and implementing the aquatic preserve and SWIM plans within their jurisdiction, and
                    most local government comprehensive plans within both study areas directly acknowledge the
                    existence of aquatic preserve and SWIM plans within their jurisdiction. Furthermore, the review
                    and analysis of the statutes and adn-dnistrative rules for the three programs revealed no overt
                    inconsistencies among them.








                   Funds for this project were provided by the Department of Environmental Regulation, Office of
                   Coastal Management using funds made available through the National Oceanic and Atmospheric
                   Administration under the Coastal Zone Management Act of 1972, as amended.







                                                             Chapter I

                                       Coordination of SWIM, Aquatic Preserve,
                                     and Local Government Comprehensive Plans




                     PROJECT DESCRIPTION

                     Florida's coastline has always served as a magnet for growth. During the 1960s, increasing
                     development pressure and dredge and fill activity, particularly noticeable along the southern
                     Gulf Coast, generated concern for protection of state submerged lands. Two areas, Boca Ciega
                     Bay and Estero Bay, received special attention for estuary protection measures due to public
                     concern for habitat degradation from extensive dredging of state-owned submerged bottom lands
                     to provide fill for new waterfront housing developments. From the time of fledgling efforts to
                     respond to these coastal crises to the present, some twenty-five years later, Florida has taken
                     many steps to protect its coastal resources and manage development in the coastal zone. It has
                     pioneered many program of its own, and it has participated with other coastal states in an effort
                     to manage the nations coasts wisely. This report looks at coastal protection plans prepared under
                     three major programs that the state of Florida has developed to protect and preserve its coastal
                     resources.


                     These programs are overseen by three state agencies and are implemented at all three levels of
                     government in Florida: state, regional, and local. They are:

                       0 the Aquatic Preserve program,

                       0 the LA)cal Government Comprehensive Planning and Land Development Regulation act,
                           and

                           the Surface Water Improvement and Management (SWIM) program.

                     Although these programs vary considerably in terms of their purpose, scope, and processes, all
                     three involve planning efforts that precede a management process. In the case of aquatic
                     preserves, the focus is on managing state-owned submerged lands in sensitive coastal areas to
                     prevent disruption from development activities. The Florida Department of Natural Resources
                     prepares resource management plans that are to guide all activities and decisions taken by the
                     Trustees of the Internal Improvement Trust Fund (the Governor and Cabinet) with respect to
                     submerged lands and waters within an aquatic preserve. Under the local comprehensive
                     planning and land development regulation statutes, local governments prepare comprehensive
                     plans that are to guide growth and development within their community, partly in anticipation of
                     adopting land development regulations that will help carry out those plans. Finally, under the
                     SWIM program, the state in partnership with water management districts is attempting to dean
                     up and restore major water bodies Chat have been degraded over many years by abuse, neglect,
                     and the steady pressure on marine resources that stems from development activities and
                     population growth in the state's coastal areas. Management plans are prepared for water bodies
                     designated under the SWIM program that outline specific protection and restoration measures
                     that should be carried out to improve water quality.





                                                                    1









                     The state's role in these three programs varies, from landlord in the case of aquatic preserves, to
                     guidance and oversight of local government actions in the case of local comprehensive plans, and
                     a direct agent of physical change-in the case of the SWIM program. The three state agencies who
                     are most directly involved in environmental protection, natural resource management, and
                     growth management efforts are in charge of these activities. Respectively, they are the
                     Department of Environmental Regulation, the Department of Natural Resources, and the
                     Department of Con-ununity Affairs. Florida's coastal management program serves,as a source of
                     policy guidance, interagency coordination, and to some extent direct funding to address specific
                     coastal protection issues and conflicts in particular geographic areas.




                     Project Purpose

                     The purpose of the study was to evaluate the degree of consistency among the goals, objectives,
                     policies, and implementation strategies contained in SWIM, aquatic preserve, and local
                     comprehensive plans in an east and a west coast setting in Florida. The study was conducted by
                     research teams at Florida State University's Homer Hoyt Center for Land Econon-dcs and Real
                     Estate and the Joint Center for Environmental and Urban Problems at Florida Atlantic and
                     Florida International Universities. It was requested by the Department of Environmental
                     Regulation, which until April 1992 administered the state's coastal management program) This
                     analysis of plan consistency among three major state programs is seen as important to the
                     ongoing efforts under Florida's coastal management program to better coordinate state policies
                     concerning coastal land and water uses. The results of the consistency analysis are presented and
                     discussed in this report.

                     In addition to examining potential conflicts among the three types of plans involved with these
                     two study areas, the study also examined the underlying laws and rules that govern the
                     operation of these three programs to determine if there are any inconsistencies that exist at the
                     enabling level of agency statutory authority. Chapter II of this report describes how the SWIM,
                     aquatic preserve, and local comprehensive planning programs are legally constituted, and how
                     they relate to each other.

                     A n-dcrocosm of how these programs can work together is revealed in a case study in Appendix 1
                     that was prepared for the Cockroach Bay area in Hillsborough County. 'Me case study
                     documents the activities of a number of federal, state, regional, and local authorities that are
                     cooperating on an interagency basis to address coastal development problems in this area. All
                     three of the state programs that are exan-dned in this study are involved in this effort.
                     Comprehensive planning, water management, land development regulation, land acquisition,
                     marine research, citizen participation, and public education and awareness are all key ingredients
                     in this effort.



                     Study Area

                     The study focused on water bodies of statewide significance targeted for protection and
                     restoration under the state's Surface Water Improvement and Management Act of 1987. Tampa
                     Bay and the Indian River Lagoon are two of six such areas in Florida that were top matters of
                     legislative concern when the SWIM program was founded in 1987. Tampa Bay and the Indian

                     lAt the request of the Governor, the legislature transferred administration of the coastal management
                     program to the Department of Community Affairs by enactment of Chapter 92-276, Laws of Florida,
                     effective April lt 1992-


                                                                    2








                       River La goon are also two of only three areas in Florida designated for special funding and
                       management attention under the National Estuary Program.

                       Additionally, both areas contain aquatic preserves for which the Governor and Cabinet have
                       adopted management plans, which is not the case for all SWIM water bodies. Likewise, not all of
                       Florida's 42 aquatic preserves have adopted management plans, a prerequisite for those aquatic
                       preserves selected for study (see Table 1, below).



                       Table 1. Aquatic Preserve Management Plans Needing Revision, Being Revised, or Revised.

                       Aquatic Preserves w/ Management                       Aquatic Preserves w/ Recently Revised
                       Plans Needing Revision                                Management Plans (Or Being Revised)

                       1.   Alligator Harbor                                I .  Apalachicola Bay
                       2.   Banana River                                    2.   Biscayne Bay-Card Sound
                       3.   Biscayne Bay-Cape Florida to Monroe             3.   Big Bend Seagrasses
                            County*
                       4.   Boca Ciega Bay                                  4.   Coupon Bight
                       S.   Cape Haze                                       5.   Ft. Pickens
                       6.   Cape Romano-Ten Thousand Islands*               6.   Guana River Marsh
                       7.   Cockroach Bay*                                  7.   Jensen Beach to Jupiter Inlet
                       8.   Estero Bay*                                     8.   LakeJackson
                       9.   Ft. Clinch State Park                           9.   Lake Weir
                       10.  Gasparilla Sound-Charlotte Harbor*              10.  Lemon Bay
                       11.  Indian River-Malabar to Vero Beach              11.  Lignumvitae Key
                       12.  Indian River-Vero Beach to Ft. Pierce           12.  Mosquito Lagoon
                       13.  Loxahatchee River-Lake Worth Creek              13.  Oklawaha River
                       14.  Matlacha Pass                                   14.  Pellicer Creek
                       15.  Nassau River-St. Johns River Marshes            15.  Rainbow Springs
                       16.  North Fork St. Lucie                            16.  Rocky Bayou
                       17.  Pine Island Sound                               17.  St. Andrews Bay
                       18.  Pinellas County*                                18.  St. Joseph Bay
                       19.  Rookery Bay*                                    19.  Tomoka Marsh
                       20.  St. Martins Marsh                               20.  Yellow River Marsh

                       21.  Terra Ceia

                       22.  Wekiva River*


                       *To be revised in 1993.

                       In defining the areas to exan-dne for the consistency study, the researchers looked first at the
                       watershed areas defined in the SWIM plans for the Tampa Bay and the Indian River Lagoon,
                       since they depict the largest geographic units. Attention theri turned to that portion of the SWIM
                       watershed which coincided with aquatic preserve areas that could be exan-dned in the study. For
                       the west coast study, there are four aquatic preserves located within the watershed area of the
                       Tampa Bay SWIM plan. However, management plans have only been adopted for two of these


                                                                       3









                     areas, Terra Ceia and Cockroach Bay. The west coast study therefore concentrated on these two
                     areas and on local government comprehensive plans that are associated with them. The Terra
                     Ceia and Cockroach Bay aquatic preserves are relatively adjacent to each other (separated only by
                     Port Manatee), share a common shoreline, and together form a logical study unit for the purposes
                     of this project. Additionally, both preserves are currently experiencing development within their
                     watersheds. The Cockroach Bay watershed in particular is expected to receive a great deal of
                     residential development in the near future, which will test the resource protection plans which
                     have been adopted for this area.

                     The east coast study area concentrated on the lower portion of the 155-mile long Indian River
                     Lagoon, or more specifically, the aquatic preserve that extends from Jensen Beach to Jupiter Inlet.
                     There are two other aquatic preserves located along the length of the Indian River Lagoon.
                     However, the aquatic preserve management plan that was adopted November 15,1990 for the
                     lower portion of the Jensen Beach to Jupiter Inlet area represents DNR's statewide prototype for
                     all new and revised aquatic preserve management plans since that time.2 Therefore, the east coast
                     portion of this study focused on that area and on the local government comprehensive plans
                     associated with it. The general location of the two study areas is shown in the map on page 5.

                     After defining the two general study areas, attention turned to identifying the cities and counties
                     in which development activities would most directly affect and be affected by activities in the
                     aquatic preserve areas. The objective was to strike a balance between reviewing local plans of
                     literally dozens of cities and counties that, while located within these two general SWIM
                     watershed areas, had no likely direct significance to the subset of areas under investigation,
                     namely, the aquatic preserves.

                     For example, the Tampa Bay SWIM plan watershed area encompasses approximately 2,275
                     square miles of land and water, including portions of 7 counties, ranging from Pasco County
                     south to Sarasota County, and east to include small portions of Polk and Hardee counties.
                     However, the vast majority of the watershed is contained within the.3 counties of Hillsborough,
                     Pinellas, and Manatee. By concentrating the focus of attention to the aquatic preserve areas, in the
                     case of Tampa Bay this process reduced the focus of the consistency study to Manatee and
                     Hillsborough counties and the City of Palmetto. For the lower Indian River Lagoon area, there
                     were three counties and eight municipalities that were identified @to undergo plan consistency
                     analysis through this process. They were:

                       rounties                                Municipalitirl

                       1. Palm Beach                           1 . Jupiter
                       2. Martin                               2.  Tequesta
                       3. St. Lucie                            3.  Jupiter Inlet Colony

                                                               5.  Ocean Breeze Park
                                                               4.  Jupiter Island

                                                               6.  Sewall's Point
                                                               7.  Fort Pierce
                                                               8.  Stuart

                     After determining which local governments were most likely to be involved, the researchers then
                     examined the upland watershed sub-basin areas of the three aquatic preserves to insure that the
                     scope of the consistency review had not been narrowed too greatly. In all three cases, those sub-


                     2The Jensen Beach to Jupiter Inlet aquatic preserve management plan is being prepared in two phases. The
                     phase I plan is the one that was adopted in November 1990. It covers the portion of the preserve between
                     Hobe Sound and Jupiter Inlet.


                                                                      4







                      Figure 1 - Tampa Bay and Indian River Lagoon Study Areas.



















                                                                                                      In 'an River
                                                                 Tampa Bay                              a    n Study
                                                                 Study Area                             rea




















                                                                 5










                    basin areas constituted areas which were physically smaller than the corresponding county
                    planning areas. This meant that when the local comprehensive plans were reviewed as part of the
                    consistency analysis, areas of the county plans beyond those which directly influence the aquatic
                    preserves were also evaluated, accounting to some extent for external influences such as land use
                    and stormwater impacts on the aquatic preserve and the SWIM water body. The researchers also
                    deterrnined in advance that the local comprehensive plans of all five counties and the nine
                    municipalities involved in the two study areas had been adopted and found to be in compliance
                    with state law and rules by the Department of Community Affairs prior to the beginning of the
                    study.




                    Study Procedures

                    In order to determine whether inconsistencies existed among the plans within the two study
                    areas, the researchers collected and evaluated all appropriate plans and supporting documents.
                    Where possible, this included exan-dning the review comments of various public agencies during
                    the three plan adoption processes. The purpose of this was to determine whether inadequacies
                    existed in the plans before they were adopted locally or certified by DCA, and to evaluate the
                    extent to which any such inadequacies were addressed as part of the final adoption process. A
                    major part of this review involved examining the cornments of state agencies, regional planning
                    councils, and water management districts for each local government comprehensive plan
                    represented in the study area to determine their areas of concern. All objections,
                    recommendations, and comments contained in reports of the Department of Community Affairs
                    to local governments pursuant to Chapter 163, F.S., were specifically examined when reviewing
                    the final plans of local governments in the two study areas.

                    This document analysis process was supplemented by an extensive interview process with 53
                    persons who work with these three programs within 24 different organizations at the federal,
                    state, regional, and local government level. A complete list of agencies that were interviewed for
                    this study is found in Appendix 2. The remainder of this chapter looks briefly at the general
                    nature of Florida's coastal management program and the three specific programs that are
                    examined in this study, in order to provide a context for the chapters that follow.





                    AN UMODUCTION TO FLORIDA'S COASTAL MANAGEMENT PROGRAM

                    Florida's efforts to protect its valuable coastal resources through an organized coastal
                    management program predates the 1972 federal Coastal Zone Management Act by two years, the
                    legislature having created a Coastal Coordinating Council in 1970. The 1972 federal legislation
                    encouraged all coastal states in the country to develop coastal management programs that would
                    meet federal objectives and criteria specified by Congress and the National Oceanic and
                    Atmospheric Administration (NOAAL the agency which implements the federal legislation. The
                    first several years of the program involved a planning period, during which funding was
                    provided to states in order to help them prepare a coastal management program.

                    Unlike some other states which created new regulatory and administrative processes for their
                    coastal management program during this period, Florida's coastal management program relies
                    on a series of networked authorities under state law to carry out state policies for protecting and
                    enhancing the state's coastal resources. The state had already enacted numerous resource


                                                                  6








                     planning and protection measures that encompassed many coastal management objectives prior
                     to the legislature's adoption of the Florida Coastal Management Act in 1978. Florida's coastal
                     management program built on this policy and adn-dnistrative structure in fashioning its
                     application for federal approval.

                     As an example, the federal act required states to designate "geographic areas of particular
                     concern" as a prerequisite to obtaining approval for Florida's coastal management program.
                     Approval would qualify the state for federal funding to implement its program, as well as
                     encourage consistency of federal activities with the Florida program. The state's existing aquatic
                     preserve program was used as one example of where Florida had already taken steps to"
                     recognize the importance of geographically distinct areas for increased coastal protection. Thus,
                     Florida chose to rely instead on doing a better job with the existing authority of the state and
                     regional agencies whose programs collectively comprise Florida's coastal management program,
                     and improving in areas that do not provide sufficient protection for the state's coastal resources.

                     Implementing a networked coastal management program of this nature relies heavily on
                     intergovernmental coordination strategies that encourage maximum cooperation among the
                     agencies involved, including those at the state, regional and local level. Where shortcomings
                     exist, refinements that will improve the protection of coastal resources can be pursued
                     administratively by agencies under their existing statutory authority, or new approaches can be
                     taken with the approval of the Florida legislature. Since federal approval of Florida's coastal
                     management program in 1981, Florida has taken both of these approaches to improve
                     management of its coastal resources, rather than create a new state authority devoted entirely to
                     coastal management.




                     Brief History of the T`hree Statut ory Programs

                     A complete description of the statutory framework for the three programs discussed in this
                     report is found in Chapter 11. The remainder of this chapter will present a brief overview of each
                     program and its evoluddh to the present time, including the administrative framework within
                     which each program is managed.


                     The Aquatic Preserve Program

                     In 1967, the Florida legislature provided statutory authority (Section 253.03, F.S.) for the Governor
                     and Cabinei, sitting as the Board of Trustees of the Internal Improvement Trust Fund, to exercise
                     proprietary control over state-owned lands. Following that legislation, an Interagency Advisory
                     Committee was created, and in 1968 the committee issued a report which recommended
                     establishment of twenty-six aquatic preserves. In 1969, the Legislature designated the Boca Ciega
                     Bay Aquatic Preserve for a prescribed area of submerged botton-dands, the water column upon
                     those lands, and the islands owned by the state within the boundaries of the preserve in Pinellas
                     County.3 The legislative designation had the effect of sharply curtailing dredge and fill practices
                     within the preserve area. It also provided that further sales or leases of state-owned sovereignty
                     lands within the preserve would not be authorized unless it was in the public interest, signaling a
                     shift in the state's prevailing land management philosophy.4 Later that year, the Governor and

                     3According to a 1989 Performance Audit of the Aquatic Preserve program conducted by the Auditor
                     General's Office, the first aquatic preserve was created in 1966 by the Governor and Cabinet, sitting as the
                     Board of Trustees of the Internal Improvement Trust Fund.
                     tection 258396, Florida Statutes


                                                                     7









                     Cabinet, by resolution, adopted eighteen of the twenty-six aquatic preserves which the
                     Interagency Advisory Committee had recornmended.

                     The legislature designated the Pinellas County Aquatic Preserve in 1972, followed by the Lake
                     Jackson and Biscayne Bay Aquatic Preserves in 1973 and 1974, respectively. By the end of 1974, a
                     total of twenty-two aquatic preserves had been formally adopted by a combination of the
                     Governor and Cabinet resolutions and the legislative acts. This included the Jensen Beach to
                     Jupiter Inlet Aquatic Preserve in the Indian River Lagoon.

                     In 1975 the legislature enacted the Florida Aquatic Preserve Act.5 This act consolidated the
                     administration of all aquatic preserves under one single management authority for the first time,
                     declaring "that the state-owned submerged lands in areas which have exceptional biological,
                     aesthetic, and scientific value .... be set aside forever as aquatic preserves or sanctuaries for the
                     benefit of future generations."6 Management responsibility for the aquatic preserves was given to
                     the Department of Natural Resources, and the program was initially placed under the agency's
                     Division of State Lands. The Aquatic Preserve Act further limited the authority of the Trustees of
                     the Internal Improvement Trust Fund to sell or lease submerged lands, and limited the uses and
                     activities that may take place in aquatic preserves. This coincided with the passage of the
                     Environmental Reorganization Act of 1975, which in part also sharply curtailed coastal dredging
                     and filling practices by re-establishing the waterward boundary of bulkhead lines to the line of
                     mean high water.7 Additional legislative acts designated the Cockroach Bay Aquatic Preserve in
                     1976 and the Gasparilla Sound-Charlotte Harbor Aquatic Preserve in 1979.8 The Terra Ceia
                     Aquatic Preserve was established by the legislature in June, 1984.9 The boundary was amended in
                     June, 1985 to include additional lands in the southern portion.10 However, Subsection two (2) of
                     this legislation exempted existing wastewater or effluent discharge activities from the
                     requirements of the Aquatic Preserve Act.

                     Management plans for aquatic preserves were slow to develop. By 1981, a total of thirty-one
                     aquatic preserves existed. However, state funding had never been appropriated to implement the
                     Aquatic Preserve Act's objectives or for management of the preserves. Up to this point, the
                     program existed as a process of designation only. Decisions of the Board of Trustees as to
                     allowable uses, activities, and management practices in aquatic preserve areas were decided on
                     an ad hoc basis, since management plans for the preserves had not been formulated to guide their
                     actions.

                     In February 1981, Chapters 18-20 and 18-21, Florida Administrative Code were adopted by the
                     Board of Trustees, which provided administrative rules concerning the types of activities allowed
                     within aquatic preserves and state submerged lands. Specifically, Section 18-20.013 mandated the
                     development of a resource inventory and management plan for each aquatic preserve, and
                     Section 18-20.016 called for the coordination of governmental agencies which have related
                     management or permitting responsibilities on state sovereignty lands. In March, 1981, the
                     Trustees adopted 77te State Lands Management Plan which established policies concerning, among
                     other things, submerged lands and grassbeds, unique natural features and "outstanding native
                     Florida landscapes@" Those policies served to provide management guidance to the aquatic
                     preserve program. Three aquatic preserves-Boca Ciega Bay, Pinellas County, and Biscayne Bay



                     SPart II, Chapter 258, F.S.
                     6Chapter 258.36, F.S.
                     7Chapter 75-22, LY
                     SChapter 76-197, I.S., and Chapter 79-115, L.F., codifiod in s. 258.391 and s. 258.392, F.S, respectively.
                     9Chapter 84-312, L.F., codified in s. 253.393, F.S.
                     101Chapter &5.345, L.F.


                                                                     8








                        Aquatic Preserves-were exempted from the provisions of Rules 18-20 and 18-21, and
                        management plans have not been adopted for these aquatic preserves.1 I
                        With the passing of the state Coastal Management Act (Chapter 380, Part 11, F.S.) in 1978, and
                        approval of Florida's coastal management program by the National Oceanic and Atmospheric
                        Adn-dnistration (NOAA) in 1981, Florida began to qualify for federal CZM grant money to
                        implement its coastal management program. Aquatic preserves were recognized as "geographic
                        areas of particular concern" in Florida's coastal management program. In the absence of state
                        fundin& initial funding to prepare aquatic preserve management plans was supported by CZM
                        grants procured through the U.S. Office of Ocean and Coastal Resource Management within
                        NOAA.

                        The aquatic preserve program received eight CZM grants during the period 1984-1991 totaling
                        approximately $1,109,000 (see Figure 2). In addition, participation in the CZM federal funding
                        program required the state to match 30% of the amount of the federal government's grant of
                        CZM money. However, a large portion of the $1.1 million was used to fund a GIS study and
                        resource inventory of the Little Manatee River watershed involving Landsat imagery. Although
                        this project interested many agency resource managers at first, lack of finer detail in the maps
                        prevented the information from being critically useful in projects requiring more site-specific
                        resource inventories.


                        In 1983, the first CZM grant enabled DNR to begin hiring personnel and writing aquatic preserve
                        management plans. The first management plan, for the Charlotte Harbor Aquatic Preserve, was
                        approved by the Board of Trustees in May, 1983. In 1986, DNR obtained legislative support for
                        funding staff positions and management. Eleven positions were specifically designated, with the
                        large Indian River Lagoon system of preserves gamering the majority of these. A pattern of
                        funding allocation had emerged where CZM grants were typically used for writing management
                        plans and state funding was used for preserve management and plan implementation.

                        Between 1983 and 1987, management plans adopted by the Board of Trustees contained policy
                        guidelines that addressed various activities in the preserves, some of which were not specifically
                        regulated by rule. Staff frequently used the plans in making recommendations on development
                        proposals within the preserves. An incident occurred in 1987 that led to a challenge over the
                        utilization of the plans in regulating development activities on submerged lands within the
                        preserves. The challenge was directed at the fact that the plans did not constitute rules of the
                        Board of Trustees, since they had not been formally adopted as rules. A long debate ensued over
                        the issue between the Department's Office of General Counsel and members of the joint
                        Adn-dnistrative Procedures Committee. The decision was finally made that all aquatic preserve
                        management plans must be adopted as administrative mles if they were to be used in regulating
                        development activities on submerged lands within the preserves. In 1988, Chapter 18-20, F.A.C,
                        was amended to incorporate by reference all aquatic preserve management plans adopted by the
                        Board of Trustees.

                        Sporadic state funding of DNWs aquatic preserve program along with a series of CZM grants
                        have allowed the preparation of management plans for all but three of the current total of forty-
                        two aquatic preserves. However, the early aquatic preserve management plans that were



                        I lUnlike other less disturbed aquatic preserve areas, these 3 preserve areas were heavily urbanized at the
                        time DNWs rule 18-20 was adopted, and the Department recognized the existence of local permitting
                        programs that were already in place at the time of rule adoption. A draft plan for Boca Ciega Bay has been
                        submitted by Pinellas County to the Trustees for review on several occasions, but a final plan has not been
                        agreed upon.


                                                                             9









                      Figure 2. Federal and State Funding for Florida's Aquatic Preserv e Program, 1981-1991.



                     $=,000



                     $250,000 -




                     $200,000 -



                     $150,000 .



                     $100,000 .



                       $50,000.



                          so  -

                           Grant No. 1  2       3      4      5      6      7      8      9      10

                            FY 81-82' FY W-U* FY 84-84 FY 84-85 FY 85-86 FY W87 FY 67-88 FY 88-89 FY 89-90 FY 90-91




                                                                                   Federal Funds

                   aslimated-actual figures unknown (records io6t)                State Funds





                 developed have been criticized as being too general and ineffective. On February 6,1989, the
                 Florida Office of the Auditor General issued the Performance Audit of the Aquatic Preserve Program
                 Administered by the Department of Natural Resources, Report No. 11164. At that time, DNR had
                 completed management plans for only 19 of the 41 aquatic preserves that existed in 1989,
                 according to the audit reporL Of the plans that had been completed, the audit found that they
                 lacked adequate resource inventories, were too generic, and did not address each preserve's
                 unique needs. The audit also criticized DNR's effectiveness in protecting the resource by failing
                 to inspect one-third of the applications for use of state-owned submerged lands and not routinely
                 checking completed projects for compliance or investigating and resolving reported violations.

                 An earlier event that had occurred in 1988 had already prompted DNR to begin changing the
                 manner in which it prepared aquatic preserve management plans. An application for
                 development of a marina within the Jensen Beach to Jupiter Inlet Aquatic Preserve had been
                 recommended for denial by DNR based on the policies of the preserve's management plan. The
                 denial was appealed to the Governor and Cabinet In their decision to grant development
                 approval, the Governor and Cabinet directed DNR to recognize the "urban characteristics" in
                 certain areas adjoining aquatic preserves and to adopt management policies which were more
                 compatible with adjoining land uses. Public criticism of the decision combined with DNR's
                 objective to provide a more site-specific form of resource management led to the adoption in 1988
                 of a new format for aquatic preserve management plans.




                                                          10








                      DNR's responses to the Auditor General's findings made frequent mention of the need for
                      sufficient funding of staff and equipment in order to meet the program's goals of protecting the
                      preserves' resources. DNR began reworking some management plans to make them more
                      detailed and site-specific, and referenced the St. Joseph Bay Aquatic Preserve Management Plan
                      as the first such "second generation" plan. In addition, first priority was given to completing
                      general plans for those preserves which had greater development pressure or that already had
                      existing staff to write them.

                      The review and adoption of aqu  atic preserve management plans after 1988 also involved
                      increased public involvement and a more critical review by agencies and local governments,
                      compared to plan review prior to 1988. Since 1990, final aquatic preserve management plans have
                      been sent to the affected local governments, for verification of consistency with their local
                      comprehensive plan, prior to adoption of the management plan by the Governor and Cabinet.
                      Local governments are requested to provide a letter to DNR stating that the proposed
                      management plan does not conflict with the local comprehensive plan.

                      At present, there are a total of forty-two formally established aquatic preserves in Florida,
                      comprised of both estuarine and freshwater systems. According to DNR, 28 preserves have
                      management plans which have been recently revised or are in the "second generation" plan
                      preparation process now. (The remaining plans are in need of revision, including the Terra Ceia
                      management plan.) The Jensen Beach to Jupiter Inlet Aquatic Preserve, Phase 1, management plan
                      is a completely revised plan, adopted on November 15,1990. However, Phase 11 is not yet
                      complete. It will cover the northern portion of the preserve, from Hobe Sound to Jensen Beach.
                      Also, two additional aquatic preserves have been designated for the Indian River Lagoon. They
                      extend north from Jensen Beach to Fort Pierce, and from Ft. Pierce to Malabar, respectively.




                      The Local Government Comprehensive Planning and Land Development Regulation Act

                      Prior to 1975, comprehemive planning had been a voluntary and largely advisory exercise for
                      local governments in Florida, with many cities and counties lacking any formal planning
                      structure at all. To the extent that local governments exercised land use controls through
                      traditional means such as zoning and subdivision regulations, they were largely unguided by
                      comprehensive plans setting forth the manner in which communities should grow and develop in
                      an orderly fashion. Rapid population growth became increasingly difficult for many local
                      governments to handle, and no-growth citizen movements appeared in several parts of Florida
                      during the early 1970s in response to problems created by unplanned and uncontrolled growth.

                      Comprehensive planning became mandatory for each municipality and county in Florida in 1975.
                      In that year the legislature enacted a measure recommended by the Governor's first
                      Environmental Land Management Study Committee (ELMS 1) requiring each city and county to
                      adopt a comprehensive plan that would have the force and effect of local law. The 1975 Local
                      Government Comprehensive Planning Act (LGCPA), contained in Part II of Chapter 163, F.S.,
                      declared the intention of the legislature to " . . . utilize and strengthen the existing role, process,
                      and powers of local governments in the establishment and implementation of comprehensive
                      planning programs to guide and control future development."12 The act prescribed the rninimum
                      contents of local plans, required internal consistency among plan elements, required each plan to
                      be economically feasible, and set forth a continuing process of plannin& evaluation and plan
                      revision. Although the original schedule called for local governments to have their plans adopted


                      12Section 163.3161(l), F.S.


                                                                     11









                     not later than 1979, delays largely due to a lack of initial state funding forced the legislature to
                     postpone compliance until at least 1981.

                     Dissatisfaction with the quality of many local comprehensive plans during the early 1980s led to
                     legislative and executive re-evaluation of the effectiveness of the 1975 LGCPA. Close scrutiny of
                     and recommended changes to the existing statute suggested by the House Select Committee on
                     Growth Management and the Governor's second Environmental Land Management Study
                     Committee (ELMS H) in 1983 and 1984 led to a sweeping overhaul of the local comprehensive
                     planning act in 1985. New measures included a state review scheme directed by the Department
                     of Community Affairs to insure local government compliance with the law. The new act also
                     required local consistency with adopted state and regional planning policies, enhanced citizens'
                     standing to participate in and help enforce the local planning process, and required mandatory
                     adoption of land development regulations to implement revised local comprehensive plans. New
                     substantive requirements were added for coastal planning and management as well, including 11
                     minimum components for the coastal management element alone.13

                     Perhaps the most significant new feature of the 1985 legislation linked, for the first time,, the
                     issuance of local development permits with the ability to provide infrastructure in a timely
                     fashion to meet the demands of new growth. Termed the "concurrency doctrine," this new
                     planning requirement injected a heavy dose of fiscal reality to the local planning process by
                     requiring infrastructure to be available concurrently with the impacts of new growth,,or else local
                     permits for development would be halted. To complement the new importance thus accorded
                     infrastructure planning, a capital facilities planning element became mandatory under the 1985
                     law. Intergovernmental coordination is heavily encouraged as well by the statute among cities
                     and counties, in order to promote successful plan implementation.

                     All local governments were given a schedule within which to adopt new local comprehensive
                     plans and land development regulations meeting the requirements of the new act. DCA adopted
                     a minimum criteria rule M-5, F.A.C.) for determining whether local comprehensive plans were in
                     compliance with state law. Under the law, DCA reviewed and provided written objections,
                     recommendations, and comments on all 67 county plans as. well as those of 393 municipalities
                     prior to their adoption. DCA also reviewed all final local plans for compliance with state law and
                     rules, which often resulted in reaching compliance agreements with local governments to insure
                     that they met the full requirements of the act.

                     Brevard County became the first locality to adopt a comprehensive plan under the new local
                     planning statute in 1988. All other county and municipal plans were scheduled for adoption on a
                     staggered time schedule that extended from July 1, 1988 to July 1, 1991, beginning with local
                     governments in coastal areas.14 A small number of cities and counties remain in non-compliance
                     with the act due to unresolved administrative challenges.




                     The SWIM Program

                     The legislature adopted the Surface Water Improvement and Management (SWIM) Act in 1987 in
                     response to declining surface water quality in some of the state's most popular rivers, lakes, and
                     bays. Similar to aquatic preserves prior to 1975, the legislature had been addressing some of these
                     problems on a piecemeal basis for several years, appropriating money separately for water

                     13Sectjon 163.3178, F.S.
                     "Section 163.3167(2), F.S., and Rule 9J-12, F.A.C, entitled "Schedule for Submission of Revised Local
                     Government Comprehensive Plans and Procedures for Early Submission&"


                                                                        12








                     quality improvements in major water bodies of the state such as Lake Apopka and Lake
                     Okeechobee, Biscayne and Tampa bays, and the Indian River Lagoon.15 Some of these activities
                     were associated with ongoing aquatic preserve management efforts, such as those in Biscayne
                     Bay.

                     For example, in 1986 the legislature amended s. 258.397, F.S., pertaining to the Biscayne Bay
                     Aquatic Preserve, authorizing special restoration and enhancement measures for the preserve in
                     response to stormwater quality problems.16 A majority of the first-time funding provided to DNR
                     for the aquatic preserve program, also in 1986, was earmarked for local protection efforts for the
                     Indian River Lagoon. Similarly, the legislature authorized creation of the Tampa Bay Commission
                     in 1984 to formalize an extensive intergovernmental approach to multi-jurisdictional bay
                     management, initiated earlier by the Tampa Bay Regional Planning Council.17

                     The enactment of the SWIM program provided a uniform way for the legislature to direct DER
                     and the state's five water management districts in new efforts to protect and restore surface water
                     quality in major water bodies in Florida. It also coincided with congressional establishment of the
                     National Estuary Program (NEP) in the Water Quality Act of 1987. Indian River Lagoon and
                     Tampa   Bay were designated NEP areas by the Environmental Protection Agency in 1990.

                     Under the SWIM program, water management districts prepare plans that outline specific
                     measures to protect and restore Friority water bodies designated according to criteria outlined in
                     the law and in the rules of DER. E The initial legislation focused attention on the following six
                     water bodies:

                             1.   Lake Okeechobee,
                             2.   Biscayne Bay,
                             3.   Indian River Lagoon,
                             4.   Tampa Bay,
                             5.   Lake Apopka, and
                             6.   the Lower St. Johns River.

                     Others were added in the first year of the program as each district developed a list of priorities
                     among major water bodies of regional or statewide significance needing protection or restoration
                     within their region. (See Figure 3 for current SWIM projects within Florida.) The SWIM priority
                     lists were developed and are maintained in cooperation with DER, the Department of Agriculture
                     and Consumer Services, the Department of Community Affairs, the Game and Fresh Water Fish
                     Commission, DNR, and local governments.19 DER approves these lists of priority water bodies,
                     and supervises the SWIM program at the state level. The SWIM priority lists are reviewed and
                     updated every three years. Water management districts prepare SWIM plans for the water bodies
                     on the approved priority fists as funds are available, and in cooperation with state and local
                     agencies. SWIM plans are developed on a watershed basis and address major problems
                     contributing to declining water quality such as stormwater runoff, water quality violations, local
                     land use influences, and agricultural activities. The plans must describe the strategies for

                     15An Analysis of Florida's SWIM Program, 1991, May, Brumback et al, p. 10-11.
                     16House Bill 1282 amended Section 258.397, F.S, pertaining to the Biscayne Bay Aquatic Preserve. See
                     Chapter 86-295, L.F. Identical language was also adopted in another bill during the same legislative session.
                     See Chapter 86-186, L.F.
                     17Chapter 84-W, F.S.
                     "Chapter 17-43, F.A.C.
                     "The Department of Agriculture and Consumer Services, the Department of Community Affairs, and local
                     goven              Ided to this list in 1989.



                                                                     13

























                                                                                                                                        3

                                                                NORTHMEN FLORIDA
                                                                     VAD.



                                                                                                                                               STAM
                                                                                                        SWAU                                    RIVER
                                                                                                         RIVER
                                                                                                         VAD.


                                                                                                                                     6


                                                                                                                                  2

                             SWIM PROJECT LOCATIONS BY WATER MANAGEMENT DISTRICT
                                                                                                              SOUTHWEST
                                                                                                               FLOM
                             1.  Apalachicola River & Bay                  13.  Tampa Bay and tributaries
                             2.  Deerpoint Lake                            14.  Lake Jackson
                             3.  Lower St. Johns River Basin               15.  Pensacola Bay area
                             4.  Indian River Lagoon System                16.  Blue Run (Rainbow River)
                             5.  Lake Apopka Basin                         17.  Lake Tarpon
                             6.  Upper Oklawaha River Basin                18.  Banana Lake
                             7.  Upper Suwannee River and Tributaries      19.  Crystal River/Kings Bay
                             8.  Lower Suwannee River and Tributafles      20.  We Panasoffkee
                             9.  Santa Fe River and Tributaries            21.  Lake Okeechobee/Kissimmee River
                             10. Steinhatchee River                        22.  Biscayne Bay
                             11. Alligator Lake                            23.  Lake Thonotosassa
                             12. Falling Creek                             24.  Winter Haven Chain of Lakes
                        FF-










































                                                                                                                                            Pkw- br.
                                                                                                                                            Ddw Memk








                        restoring or protecting the water body to Class III or better, a schedule for doing so, and estimates
                        of funding needed to carry out the strategies.20

                        In a number of cases, SWIM water bodies encompass one or more aquatic preserves within their
                        planning area. DNR, other state agencies, and local governments are provided copies of proposed
                        SWIM plans for review and comment prior to their adoption by the district governing board, to
                        maximize opportunities for intergovernmental coordination in the SWIM program After
                        adoption by the governing board, DER has the final authority to ensure that a SWIM plan is
                        consistent with state water policy and the state comprehensive plan.

                        The legislature established a Surface Water Improvement and Management Trust Fund to
                        provide money to the districts to prepare and implement detailed SWIM plans. Funds are
                        provided to the districts through DER on a 60/40 matching basis.21 The legislature has not
                        provided a permanent funding source for the SWIM program, relying instead on annual
                        appropriations from the state's general revenues. Water management districts annually provide
                        DER with funding proposals for their SWIM program, identifying activities needing state
                        funding for the next fiscal year and describing the specific restoration or protection activities
                        proposed.22 DER considers these requests in making its annual budget request to the legislature.

                        The amount of money appropriated annually to the SWIM Trust Fund has varied considerably,
                        ranging from an initial level of $15 n-dllion in 1987 to only $3 million in 1992-93 (see Table 2). The
                        lack of a permanent funding source coupled with this sharp reduction in state funds for the
                        SWIM program has hampered the efforts of water management districts to carry out the full
                        potential of the SWIM program, especially in the Northwest Florida and Suwannee River
                        districts. For different reasons, their ability to raise revenue through their ad valorem tax is
                        considerably less than that of the other three water management districts in Florida-23
                        SWIM plans are updated as necessary, but at least once every three years-24 Regarding the Indian
                        River Lagoon and Tampa Bay SWIM plans, these efforts are very closely coordinated with the
                        preparation of management plans under the National Estuary Program, as further discussed in
                        Chapters III and IV. Although the timing of the plan adoption cycle for SWIM plans and local
                        comprehensive plans in many instances did not coincide for first round of SWIM plans (SWIM
                        plans generally preceded the adoption of local comprehensive plans), much closer coordination
                        with local government plans and land development regulations is expected in the future.

                        In 1989, the legislature enacted a water resources bill which contained several features that tie
                        water resource planning closer to local government comprehensive planning. It specifically
                        directs water management districts to assist local governments in developing and revising local
                        comprehensive plan elements or public facilities reports (in the case of special districts, as
                        provided in S. 189A15, F.S.), related to water resource issues.25 It also required them to provide
                        certain data to local governments before July 1, 1991 that would assist in preparing and



                        20SWbon 373.453(2), F.S.
                        21P:rior to July 1, 1991, the required match amounts were a minimum of 20% from water management
                        districts and a maximum of 80% from the SWIM Trust Fund.
                        22Secdon 373.4SX4), F.S.
                        23The Northwest Florida Water Management District is limited by Article 7 Section 9 of the Florida
                        Constitution to 1/20th of the ad valorem tax levy enjoyed by the other 4.districts, which is .05 mills. The low
                        tax base within the Suwannee River Water Management District limits its ability to generate district
                        revenues on its own.
                        24Chapter 17-43IM(S), FA.C.
                        25Section 373.0391 (1), F.S.


                                                                             15










                                            Table 2. State Appropriations for the SWIM Program, 1987-1993.


                        District               1987-88*          1988-89         1989-90       1990-91**       1991-92***        1992-93****


                        NWFWMD                        96,774       1,160,800       1,500,000          986,988         950,000        485,000
                        SJWMD                      4,645,161       4,500,000       4,000,000       2,400,000       2,533,333         646,667
                        SFWMD                     6,677,420       4,500,000        5,500,000       1,500,000        2,533,333         646,667
                        SWFWMD                     2,032,20       4,500,000       2,500,000       2,694,418       2,533,334         646,666
                        SRWMD                         96,774         339,200       1,500,000         718,594          950,000        575,000
                        subtotal                  13,548,387                                         8,300,000       9,500,000
                        budget authority                                                           6,700,000       6,622,824
                        other                     1,951,613*                                                         500,000*


                        Annual total            $15,500,000*       $15,000,000    $15,000,000    $15,000,000     $16,622,824       $3,000,000



                            *For FY 1987-88 the legislature appropriated SWIM project funding for each of the six priority
                            water bodies specified in the 1987 legislation. The district funding totals in this first column
                            reflect DER's allocations for 5 of these 6 water bodies, in addition to first year planning money
                            for each district. An additional $1,451,613 was divided between the South Florida and St.
                            Johns River water management districts for joint SWIM project work for the Indian River
                            Lagoon System. This is reflected in the "other" category, together with $500,000 that DER
                            returned as part of a cost savings measure for the Governor's Office that year.


                            **The total legislative appropriation for FY 1990-91 to the SWIM Trust Fund was $15 million.
                            New funding included $3 million of General Revenue money and $5.3 million in interest
                            earned by the SWIM Trust Fund from July 1987 through June 1991. This accounts for the
                            $8,300,000 subtotal. The remainder of the $15 million consisted of $6.7 million in previously
                            allocated but unused funds, held over from the previous year.



                            ***The total legislative appropriation for FY 1991-92 to the SWIM Trust Fund was $16.6
                            million. New funding included $10 million of General Revenue money, of which DER
                            returned $500,000 in a cost savings measure fqor the Governor's Office. The remainder of the
                            money for FY 1991-92 consisted of $6.6 million in previously allocated but unused funds.


                            ****The total legislative appropriation for FY 1992-93 to the SWIM Trust Fund was $3 million.
                            Each district received $300,000 in base funding plus an additional agreed-upon amount based
                            upon district need.














                                                                                 16








                     implementing their local comprehensive plans or public facilities reports. This includes
                     information about district programs and regulations, surface water basins, groundwater
                     characteristics (including regional water resource needs and sources), land acquisitions,
                     minimum flows for surface water courses, and minimum water levels for aquifers.26

                     This same legislation authorized and directed DER, water management districts, and local
                     governments to develop mutually compatible stormwater management programs. Significantly,
                     after July 1, 1992, local governments developing stormwater management programs as part of
                     their local comprehensive plan must consider four things:
                             1)   state water policy
                             2) district stormwater management goals
                             3)   approved SWIM plans, and
                             4)   technical assistance information provided by the water management distriCt.27

                     The effect of this requirement will be to further reinforce coordination between district water
                     resource planning, the SWIM program, and the local government comprehensive planning
                     process. Water management districts are also currently engaged in a major process of water
                     resource planning that will culminate with the adoption of regional water management plans no
                     later than November 1, 1994, as required by the State Water Policy Rule.28 All five districts have
                     completed an assessment of water supply needs and sources within their respective district areas
                     for the next 20 years, based in part upon p9pulation projections and other information contained
                     in local government comprehensive plans.29 Each district has completed a draft water
                     management plan that takes this assessment of future water supply needs and sources into
                     account in its overall long-range water resources plan for the area, These plans also identify
                     current and expected water resource problem areas geographically, and suggest prevention or
                     remediation measures which may be taken to address these problems. The plans will serve as a
                     basis of policy guidance for the district's responsibilities in four major areas:
                             1) water supply
                             2) flood protection
                             3) water quality management, and
                             4) natural systems management.

                     When the final district water management plans are completed in 1994, the expectation is that
                     they will be organized by DER into a state water plan for protecting Florida's water resources.
                     The opportunity and imperative for dose coordination with local governments in their
                     continuing comprehensive planning efforts during this time must not be overlooked. Creative
                     strategies and hard work vnU be necessary to bring together state, regional and local
                     governments as part of their ongoing intergoverranental coordination duties to insure that this
                     actually takes place.





                     26Secdon 373.0391(2), F.S.
                     27Section 403BM(3)(a), FS.
                     "Section 17-40501, F.A.C.
                     29Cf., Southwest Florida Water Management District, Water Supply Needs Sources, 1990-2020, January 1992
                     (Revised Dmft).



                                                                   17






                                                            Chapter II

                                   Comparative Analysis Of The Three Statutes And
                                                    Their Implementing Rules



                     INrRODUCTION

                     In order to conduct a complete analysis of the consistency among SWIM, aquatic preserve, and
                     local government comprehensive plans, a legal analysis was performed to highlight any
                     obvious consistencies and inconsistencies between the statutes enabling the establishment of the
                     three programs and the agency rules outlining the implementation of the enabling statutes.
                     This chapter assesses the consistency of three statutory programs: Ch. 163 Part 11, F.S.,
                     commonly referred to as the Growth Management Act; Ch. 373.451 to .4595, F.S., the Surface
                     Water Improvement and Management Act; and Ch. 258 Part 11, F.S., the Aquatic Preserve Act.
                     The major implementing rules of these three programs are Rule 9J-5, Rule 17-43, and Rule 18-20,
                     respectively, of the Florida Administrative Code.

                     The legal analysis revealed no overt inconsistencies in language or intent among the three.
                     programs and their implementing rules. However, the intent and scope of the three programs
                     vary enough that the actual implementation of the plans could possibly result in inconsistent
                     actions. The aquatic preserve program is to "preserve" designated waterbodies, the SWIM
                     program is to "improve" surface water quality of designated waterbodies, and the Growth
                     Management Act, through the implementation of local comprehensive plans, is to "guide and
                     control" future development.

                     In addition, no dear mandate e)dsts requiring these plans be consistent with each other. On the
                     other hand, clear directives for coordination among the agencies developing and implementing
                     these plans do e)dst. Herein hes the potential for avoiding inconsistencies between SWIM,
                     aquatic preserve, and local comprehensive plans.



                     NATURE OF CONSISTENCY

                     All state statutes and programs must be consistent with the Florida Constitution. This document
                     delineates the boundaries of permissible government limitation of individual rights,
                     establishes the authority of various governmental entities, and announces specific state
                     policies on a variety of subjects, including natural resources protection. If a program contravenes
                     the constitution, it will be invalidated by the courts.

                     No sin-dlar form of judicial review requires that all state programs be consistent with each
                     other in order to survive challenge, in the absence of specific statutory provisions requiring such
                     consistency. Tberefore, it is impossible to assess the consistency of these three different
                     statutory programs with each other without first defining consistency.
                     The State Comprehensive Planning Actl requires that all state agency actions and programs be
                     consistent with the goals and objectives of the State Comprehensive Plan.2 One of the three

                     lCh. 186, F.S.
                     2Adopted at Ch. 187, F.S.

                                                                    19








                     statutes, the Growth Management Act, contains a definition of consistency: that one provision
                     must not only be "compatible with" but also "further" the other to be considered consistent with
                     it.3 The SWIM Act similarly reinforces the State Comprehensive Planning Act by explicitly
                     providing that it must be consistent with the State Comprehensive Plan, as well as the State
                     Water Policy.4 Therefore, all three programs must be consistent with the Florida Constitution
                     .and the State Comprehensive Plan.




                     State Constitution

                     The Florida Constitution generally supports the policy of protecting the surface waters of the
                     state. Article 11, Section 7 provides:

                         It shall be the policy of the state to conserve and protect its natural resources and
                         scenic beauty. Adequate provision shall be made by law for the abatement of air
                         and water pollution and of excessive and unnecessary noise.

                     Article X, Section 11 of the Florida Constitution addresses wateTbodies in particular, and
                     provides that:

                         The title to land under navigable water, within the boundaries of the state, which have
                         not been alienated, including beaches below mean high water lines, is held by the state, by
                         virtue of its sovereignty, in trust for all people. Sales of such lands may be authorized by
                         law but only when in the public interest. Private use of portions of such lands may be
                         authorized by law, but only when not contrary to the public interest.

                     Most states have similar public trust doctrines governing sovereignty of submerged lands, which
                     are defined in Florida as encompassing beaches between mean high-water and mean low-water
                     lines, islands within navigable waters, lands beneath lakes and rivers, and lands under the
                     Gulf of Mexico and the Atlantic Ocean.5 Navigability is determined with reference to the
                     navigability of waters at the time Florida became a state in 1845, when the lands became
                     vested in the ownership of the state of Florida.6 The Aquatic Pieserve Act, Chapter 258, F.S.,
                     establishes preserves in the most valuable of these sovereignty submerged lands, as discussed
                     below.




                     State Comprehensive    Plan

                     The intent of the Plan is to provide long-range guidance for the orderly growth of the state in
                     all of its aspects. The Plan does not authorize action; it is implemented by actions authorized
                     by other statutes. The statute provides for annual review of each section of the Plan by the




                     3Sm L.&. Ch. 1633177(10)(a), F.S.
                     4The Aquatic Preserve Act predates and has not been amended to address the State Comprehensive
                     Plan.
                     5 Brickell v. Trammell, 77 Fla. SK 82 So. 221 (1919).
                     6See Calvarese, Stephen C. et al, "State and Federal Regulation of Construction Activities in the Waters
                     and Wetlands of Florida," in Florida Environme tal and Land Use Law, Vol. 1, page 4-22 through 4-39 for a
                     detailed treatment of Chapter 253, F.S., governing sovereignty of submerged lands.


                                                                    20








                        Executive Office of the Governor in cooperation with those state agencies significantly affected
                        by the provisions under review.7
                        Water resources was one of the major concerns guiding the drafting of the PlaO Several of its
                        goals and policies are relevant to the restoration and preservation of surface waters.



                        Water Resources

                        The Water Resources goal is to "maintain the functions of natural systems and the overall
                        present level of surface and ground water quality" and to "improve and restore the quality of
                        waters not presently meeting water quality standards."9 Policies implementing this goal
                        include:10

                          a identify and protect the functions of water recharge areas and provide incentives for
                              their conservation

                          0   Protect and use natural water systems in lieu of structural alternatives and restore
                              modified systems

                          0   Establish minimum seasonal flows and levels for surface watercourses with primary
                              consideration given to the protection of natural resources, especially marine, estuarine,
                              and aquatic ecosystems

                          0   Discourage the channelization, diversion, or damming of natural riverine systems

                          0   Encourage the development of a strict floodplain management program by state and local
                              governments designed to preserve hydrologically significant wetlands and other natural
                              floodplain features

                          0   Protect aquifers from depletion and contan-driation through appropriate regulatory
                              programs and through incentives

                          0   Protect surface and groundwater quality and quantity in the state

                          0   Eliminate the discharge of inadequately treated wastewater and stormwater runoff into
                              the waters of the state, and




                        7Ch. 186.007(8), F.S. The last revisions to the State Comprehensive Pla'n were in the 1990 legislative session.
                        The Third Environmental Land Management Study Commission considered changes to the form and
                        content of the State Comprehensive Plan, including recommendations fDr the adoption of a state vision,
                        of a new implementing plan, known as the Strategic Crowth and Development Plan, in place of the
                        existing translational plans, and of processes for the regular review and update of the SCP. The
                        Comn-dssion reaffirmed the primacy of the SCP in the states planning and regulatory structure, but
                        recommended integration of the local planning experience and greater coordination with state agencies,
                        regional entities and local governments, consistent with the recommendations of this report.
                        Environmental Land Management Study Committee. Building SuccessM Communities. Final Report.
                        December 1992.
                                 Ch. 186.002(2), F.S.
                        9Ch. 187201(8)(a), F.S.
                        10JA

                                                                           21








                              Reserve from use that water necessary to support essential non-withdrawal demands,
                              including navigation, recreation, and the protection of fish and wildlife.



                        Coastal and Marine Resources

                        The goal in this area is to "ensure that development and marine resource use and beach access
                        improvements in coastal areas do not endanger ... important natural resources" and for access
                        and acquisition programs to be "consistent with sound environmental planning."I I Policies
                        implementing this goal in     clude:12

                            ï¿½ Accelerate public acquisition of coastal and beachfront land where necessary to protect
                              coastal and marine resources or to meet projected public demand

                            ï¿½ Avoid the expenditure of state funds that subsidize development in high-hazard coastal
                              areas


                            ï¿½ Protect coastal resources, marine resources, and dune systems from the adverse effects of
                              development

                              Encourage land and water uses that are compatible with the protection of sensitive
                              coastal resources

                              Protect and restore long-term productivity of marine fisheries habitat and other aquatic
                              resources


                            0 Avoid the exploration and development of mineral resources which threaten marine,
                              aquatic, and estuarine resources

                            & Prohibit development and other activities that disturb coastal dune systems, and ensure
                              and promote the restoration of coastal dune systems that are damaged, and

                            0 Give priority in marine development to water-dependent uses over other uses.



                        Natural Systems and Recreational Lands

                        The goal in this area is to "protect and acquire unique natural habitats and ecological systems
                        ... and restore de                                                              Relevant implementing
                                           ,fraded natural systems to a functional condition."13
                        policies include:1

                            ï¿½ Conserve forests, wetlands, fish, marine life, and wildlife to maintain their
                              environmental, econon-dc, aesthetic, and recreational values .                                                            I

                            ï¿½ Acquire, retain, manage, and inventory public lands to provide recreation, conservation,
                              and related pubhc benefits


                        "Ch. 187.201(9)(a), F.S.
                        121 CL
                        13Ch. 187.201(10)(a), F.S.
                        14111


                                                                            22








                            0  Prohibit the destruction of endangered species and protect their habitats

                            0  Establish a  n integrated regulatory program to assure the survival of endangered and
                               threatened species within the state

                            0  Promote the use of agricultural practices which are compatible with the protection of
                               wildlife and natural systems

                            o  Encourage multiple use of forest resources, where appropriate, to provide for timber
                               production, recreation, wildlife habitat, watershed protection, erosion control, and
                               maintenance of water quality

                            a  Protect and restore the ecological functions of wetlands systems to ensure their long-term
                               environmental, economic, and recreational value

                            0  Promote restoration of the Everglades system and of the hydrological and ecological
                               functions of degraded or substantially disrupted surface waters

                            0  Develop and implement a comprehensive planning, management, and acquisition program
                               to ensure the integrity of Florida's river systems, and

                            0  Emphasize the acquisition and maintenance of ecologically intact systems in all land and
                               water plannin& management, and regulation.



                        Land Use

                        The overall emphasis of this goal is on preservation of natural resources and enhancing the
                        quality of life in the state. To further these ends, the goal is to direct development "to those
                        areas which have in place, or have agreements to provide, the land and water resources, fiscal
                        abilities, and service capacity to accommodate growth in an environmentally acceptable
                        manner."15 Implementing policies indude:16

                            0  Develop a system of incentives and disincentives which encourage a separation of urban
                               and rural land uses while protecting water supplies, resource development, and fish and
                               wildlife habitats

                            0  Develop a system of intergovernmental negotiation for siting locally unpopular public
                               and private land uses which considers            the impact on ... important natural resources
                               ... land]

                            9  Consider, in land use planning and regulation, the impact of land use on water quality and
                               quantity.



                        Plan Implementation

                        Finally, a goal of the State Comprehensive Plan addresses the issue of plan implementation
                        and coordination. It provides that "[sjystematic planning capabilities shall be integrated into

                        15Ch. 187.201(16)(a), F.S.
                        16Ld.


                                                                              23









                    all levels of government in Florida, with particular emphasis on improvin    t      ernmental
                                    tf 17                                                    A in ergov
                    coordination ...    implementing policies relevant to this project include:

                      ï¿½   Ensure that each agency's functional plan and management process is designed to achieve
                          the policies and goals of the state plan consistent with state law

                      ï¿½   Ensure the development of comprehensive regional policy plans and local plans that
                          implement and accurately reflect state goals and policies and that address problems,
                          issues, and conditions that are of particular concern in a region, and

                      ï¿½   Encourage the continual cooperation among communities which have a unique natural
                          area, irrespective of political boundaries, to bring the private and public sectors together
                          for establishing an orderly, environmentally, and econon-tically sound plan for future
                          needs and growth.



                    State Water Policy

                    The StateWater Policy is intended to clarify the water policy expressed in various statutes
                    and to provide guidance to local governments in the adoption of their comprehensive plans
                    pursuant to the GMA.19 It states generally that the waters of the state are an important
                    resource that should be managed to conserve and protect natural resources and scenic beauty as
                    well as realize the full beneficial use of the resource.20 The general statements of policy
                    include:21

                      ï¿½   reserve from reasonable beneficial use that water necessary to support essential non-
                          withdrawal demands, including navigation, recreation and the protection of fish and
                          wildlife

                      ï¿½   utilize, preserve, restore and enhance natural water management systems and discourage
                          the channelization or other alteration of natural rivers, streams and lakes

                      ï¿½   prote ct the water storage and water quality enhancement functions of wetlands,
                          floodplains, and aquifer recharge areas through acquisition, enforcement of laws, and the
                          application of land and water management practices which provide for compatible uses

                      ï¿½   mitigate adverse impacts resulting from prior alteration of natural hydrologic patterns
                          and fluctuations in surface and groundwater levels

                      ï¿½   establish n-dnimum flows and levels to protect water resources and the environmental
                          values associated with marine, estuarine, freshwater and wetlands ecology, and

                      ï¿½   restore and protect the quality of ground and surface water by ensuring high quality
                          treatment for stormwater and wastewater.




                    VCh. 187.201(25)(a), FS.

                    19Rule 17-40.110(l), FA.C. The State Water Policy also includes the water quality standards of Rules 17-3
                    and 17-%WZ and the SWIM rule, Rule 17-43-17-40.120(l)-(3), F.A.C
                    2ORule 17-40.110(2), FA.C
                    21Rule 17-40.310, F.A.C


                                                                 24








                     Permits to use water must be subject to a reasonable beneficial use standard which considers the
                     effects of the use on the source of the water, such as water quality degradation and other harm
                     to the resource-22 Transport of water across District lines is subject to a public interest standard
                     which includes consideration of the major environmental impacts of the proposed transfer.23
                     The establishment of minimum flows and levels of waters is subject to considerations such as the
                     effects on estuarine resources, fish and wildlife habitats, aesthetic and scenic attributes and
                     water quality.24

                     Separate goals are established for surface water protection and management through DER,
                     District and local stormwater management programs:25

                        0  protect, preserve and restore the quality, quantity, and environmental values of water,
                           resources

                        a  maintain, as much as practicable, the pre-development stormwater characteristics of
                           sites; reduce stream channel erosion, pollution, siltation, sedimentation and flooding;
                           reduce stormwater pollutant loadings to preserve or restore beneficial use; reduce loss of
                           freshwater resources by encouraging reuse of stormwater; enhance groundwater recharge;
                           maintain appropriate salinity regimes in estuaries; and handle stormwater management
                           on a watershed basis

                        0  eliminate discharge of inadequately managed. stormwater, minimizing adverse impacts
                           on the resource


                        a  reduce unacceptable pollutant loading from older stormwater management systems by
                           developing watershed management and stormwater master plans or District-wide or
                           basin specific rules,26 and

                        0  such watershed master plans would not only prevent e)dsting problems from becon-dng
                           worse, but would also improve water quality and preserve or restore the values of natural
                           systems.

                     The construction and operation of the facilities of the water management districts may not be
                     harmful to the water resources and must be consistent with DER and District objectives. Hann is
                     defined with reference to such factors as impact on water quality, fish and wildlife, and
                     natural systems.27 The State Water Policy is reviewed at least every four years.28





                     22Rule 1740.401, F.A.C.
                     23Rule 17-40.402, F.A.C. The authority of DER to prescribe the procedures governing such transfers
                     through this rule has been upheld against a local government challenge as part of DERs authority to
                     plan for the most beneficial use of the states water resources. Osceola County v. St. John's River Water
                     Management District, 486 So.2d 616 (5th DCA 1986), afrd, 504 So.2d 385 (1987).
                     24Rule 17-C.405(l), FA.C
                     25Rule 17-40.420(l)(a)-(e), F.A.C
                     26Watershed management goals to reduce pollutant discharges must be developed by the Districts for
                     all watersheds in their boundaries, consistent with the NPDES program. Rule 17-4OA20(4)(d), F.A.C. Coals
                     for SWIM water bodies with adopted SWIM plans must be developed by 1994, or as scheduled by EPA if
                     the water body receives stormwater discharges from systems required to obtain NPDES permits.
                     27Rule 17-40.420(3)(a)-(b).
                     28Rule 17-0.601(l), FA.C


                                                                    25









                          Table 3. Summary of Aquatic Preserve, SWIM, and Local Comprehensive Planning Programs.


                                                                                                                   Local Comprehensive
                                                       Aguatic Preserves             SWIM                          Plans
                          Popular Name                 Aquatic Preserve Act          SWIM Act                      Growth Mgmt. Act
                          Must Be Consistent           State Compr. Plan             State Compr. Plan             State Compr. Plan
                          With                         Florida Constitution          Florida Constitution          Florida Constitution
                                                                                     State Water Policy
                          Unit of Planning             Aquatic Preserve              Water body                    Local Government

                          Lead Agency                  DNR                           WMD                           City or county
                          State Oversight              DNR                           DER                           DCA
                          Agency
                          Key Regional Enti!y          DNR district office           WMD                           RPC
                          Florida Statutes             Chapter 258, Part 11          Sections 373ASI-4596          Chapter 163, Part 11
                          Authority                    (ss. 258-35-258.46)                                         (ss. 163.3161-3215)
                          Major Implementing           Chapter 18-20, F.A.C.         Chapter 17-43, F.A.C.         Chapter 9J-5, F.A.C.
                          Administrative Rule
                          Planning Criteria            None                          Ch. 373.453(2)                Ch. 163, Part 11
                                                                                     Rule 17-43                    Rule 9J-5
                          Primary Statutory            Preserve exceptional          Protect and restore           Plan for orderly future
                          Purpose                      state-owned submerged         surface water quality         growth and
                                                       lands and associated                                        development
                                                       waters
                          Primary    Geographic        Designated submerged          Designated water-             Individual city or county
                          Focus                        land area                     bodies and watershed
                          Regulatory                   Yes. Activities within        None, but SWIM plan           Local governments
                          Requirements                 preserves regulated by        must contain programs         must adopt land
                                                       Board of Trustees             and policies                  development
                                                       (Governor and Cabinet).                                     regulations consistent
                                                       Act fimits transfer or                                      with and implementing
                                                       disposal of state-owned                                     the plan.
                                                       lands in preserves,
                                                       fxmissible uses, and
                                                       improvements.
                          Provisions for               Requires coordination         Requires coordination         Requires intergovem-
                          Coordination                 in that title to preserves,   with several listed           mental coordination
                                                       management power              agencies in preparing         element in local plan.
                                                       over preserves &              priority lists and SWIM       Requires consistency
                                                       respon-sibility for water     plans.                        among local plan
                                                       quality in preserves are                                    elements, between plan
                                                       handled by different          Review and comment            & regs & with regional &
                                                       agencies. DNR reviews         by listed agencies on         state plans. All state
                                                       and comments on               SWIM plans.                   agencies must cooper-
                                                       dredge and fill                                             ate with local govts. in
                                                       applications.                                               plan preparation. State
                                                                                                                   agencies review &
                                                                                                                   comment on local plans
                                                                                                                   being evaluated by
                                                                                                                   DCA.
                          Key Planning                 Aquatic preserve man- SWIM plan                             Local comprehensive
                          Document                     a ement plan                                                plan
                          Primary Coastal              Dredge and fill               Surface water quality,        Land development and
                          Development Issue            practices, sale/lease of      stormwater runoff, and        population growth
                                                     I submerged lands             I restoration



                                                                                   26










                    Summary

                    Clearly, there are many state policies in place which provide the framework for the three
                    programs considered in this study, and by which proposed changes or enhanced coordination
                    may be measured. However, it is also clear that many of these goals and objectives may, if
                    pursued in isolation from the others, result in inconsistent and contradictory policies and
                    programs. The statutory policies driving the three programs considered in this project are
                    generally more narrow and thus more internally consistent, but there are similar concerns
                    regarding consistency and compatibility among the programs.



                    BRIEF DESCRIMON OF THE THREE STATUTORY PROGRAMS29

                    The Growth Management Act
                    The Local Government Comprehensive Planning and Land Development Regulation AcOo
                    refeffed to herein as the Growth Management Act, establishes a scheme of state-mandated
                    comprehensive planning covering all planning activities of local, regional and state
                    9@ vernmental bodies. Each level of government is required to adopt a plan, meeting the
                    nunimum criteria of the state's implementing rules. Each local plan is required to be consistent
                    with the regional planning council's comprehensive regional policy plan and the state
                    comprehensive plan. Local land development regulations and development orders are required
                    to be consistent with the local comprehensive plan. State agencies, such as the Department of
                    Natural Resources and the Department of Environmental Regulation, prepare agency functional
                    plans that must be consistent with the State Comprehensive Plan. Regional planning councils
                    must prepare comprehensive regional policy plans that are consistent with state goals and
                    tailored to the specific concerns of the eleven regions. Local governments must adopt
                    comprehensive plans consistent with the comprehensive regional policy plan and the State
                    Comprehensive Plan, and complying with the Growth Management Act and Rule, 9J-5, Florida
                    Administrative Code, which provides the minimum criteria each local plan is required to
                    meet. Required elements of local comprehensive plans include a tonservation element and a
                    coastal management element for coastal areas. The conservation element provides for the
                    "conservation, use and protection of natural resources in the area,"31 and assesses water needs
                    and sources.


                    The coastal management element sets forth "the policies that shall guide the local
                    governmenfs decisions and program implementation." Statutory objectives indude:-2

                       0  Maintenance, restoration and enhancement of the overall quality of the coastal zone
                          environment, including, but not limited to, its amenities and aesthetic values

                       0  Continued e)dstence of viable populations of all species of wildlife and marine life

                       0  The orderly and balanced utilization and preservation, consistent with sound
                          conservation principles, of all living and non-living coastal zone resources

                       0  Avoidance of irreversible and irretrievable loss of coastal zone resources, and

                    29A summary of these programs is provided in Table 3.
                    3OCh. 163, part 11, FS.
                    31Ch. 163.3177(6)(d), F.S.
                    32Ch. 163.3177(6)(g)FS.

                                                                 27








                           Ecological planning principles and assumptions to be used in the detern-tination of
                           suitability and extent of permitted development.


                     The statute further provides that the Legislatures intent is to restrict development activities
                     where such activities would "damage or destroy coastal resourceS".33

                     Other relevant elements include a future land use element34 and an infrastructure element that
                     addresses issues such as sanitary sewer, drainage, and natural groundwater aquifer recharge.35
                     After adopting the required plan, each local government must adopt land development
                     regulations that are "consistent with and implement" the plamM These regulations must,
                     among other things, provide for drainage and stormwater management and "ensure the
                     protection of environrnentally sensitive lands designated in the comprehensive plan".



                     7he Surface Water Improvement and Management Act

                     The SWIM Act requires the five regional water management districts of Florida to plan for the
                     improvement and protection of their surface waters and to coordinate statewide research on the
                     causes and effects of surface water pollution-37 Districts must prepare a list of priority surface
                     waterbodies of regional or statewide significance most in need of either preservation or
                     restoration, including the priority waterbodies identified in the Ac08 The Act also creates the
                     SWIM Trust Fund, from which districts may receive grants for up to eighty (80) percent of
                     planning and land acquisition costs.39 Rule 17-43, Florida Administrative Code, implements the
                     SWIM Act. It describes the requirements and procedures for establishing the priority list,
                     obtaining Trust Fund monies, and preparing the SWIM plans,



                     The Aquatic Preserve Act

                     As early as 1969, the legislature established individ   ual aquatic preserves. The state's
                     obligation to manage sovereignty submerged lands in the public interest proved insufficient in
                     protecting the most exceptional waterbodies of Florida. As a result, as early as 1969, the
                     legislature established individual aquatic preserves. Many waterbodies; located in regions of
                     increasing urbanization, often subjected in the past to extensive dredge and fill for development,
                     exploratory off well drilling, shell and sand truining, pollution, and drainage for mosquito
                     control were candidates for designation as preserve&4u Concern over these problems motivated
                     the passage, in 1975, of the Florida Aquatic Preserve Act. This Act incorporated earlier
                     designated preserves and provided for the    designation of new preserve&41 As of 1992, forty-two


                     33Ch. 163.3178(l), F.S.
                     34Ch. 163.3177(6)(a), F.S.
                     35Ch. 163.3177(6)(c), F.S.
                     36Ch. 163.3202(l), F.S.
                     37Ch. 373.451(6) and (7), F.S.
                     38Ch. 373.453(l), F.S.
                     39Ch. 373.451(8) and .45X4), F.S.
                     40Christie, Donna R. Florida Coastal Law and Policy: Cases and Readings. Sea Crant Project Number JR-
                     W. Florida State University College of Law. 1985.
                     41The Biscayne Bay Aquatic Preserve was separately established in 1974 and has a separate set of
                     management rtdes at Rule 18-18, F.A.C. In the event of conflict between the general act and the specific


                                                                     28







                         preserves have been designated, mostly in coastal areas.42 The intent of this Act is to preserve
                         those state-owned submerged lands that have "excettional biological, aesthetic and scientific
                         value" forever "for the benefit of future generaLIVILs.           The Act provides a procedure for
                         establishing aquatic preserves, and places limits on the transfer or development of lands so -
                         designated. It also provides a procedure for establishing rules and regulations governing all
                         human activity within preserves.44



                         NATURE OF THE PROBLEM ADDRESSED BY THE THREE PROGRAMS

                         The earliest of the three programs is theL Aquatic Preserve program. It was motivated by
                         concern over the possible degradation of exceptional waterbodies. It does not regulate privately
                         owned lands or waters, although the condition of such lands and waters certainly affects the
                         quality of the sovereignty submerged lands. Rather, it is a set of principles to guide the Board
                         of Trustees of the Internal Improvement Fund in managing the state's property while
                         accommodating public, water-dependent uses. The statutory goal is to ensure the preservation of
                         existing waterbodies of exceptional value forever.

                         In contrast, the SWIM Act is concerned with improving the quality of all of the surface waters
                         of Florida, whatever their ownership. The Legislature identified specific and immediate
                         problems, such as the fact that the water quality of many of the "surface waters of the state"
                         were in danger of becoming or were already degraded. The natural systems associated with the
                         waters were being altered so that the waters no longer performed their normal functions, such as
                         providing the people of Florida with aesthetic and recreational pleasure; providing habitat
                         for native plants, fish and wildlife; ensuring a safe drinking water supply; and attracting
                         visitors and other economic benefits to the state-45

                         The Legislature also found that declining water quality was detrimental to the rights of the
                         public to enjoy state-owned waters, and that it was the duty of the state to enhance the
                         environmental and scenic values of such waters.46 Factors contributing to the decline in the
                         ecological, aesthetic, recreational and economic value of the waters were identified as point
                         and non-point source pollution and the destruction of natural systems, which normally purify
                         the surface waters and provide habitats.47 Finally, the Legislature found in enacting the
                         SWIM program that these water problems could be corrected and prevented through surface
                         water improvement and management programs planned, designed and implemented by the
                         water management districts and local governments." The SWIM act takes a larger view than
                         the Aquatic Preserve Act, and thus has the potential to address more of the activities and
                         conditions that affect the viability and quality of a waterbody.

                         In Ch. 163, the Legislature expressed an intent that local government comprehensive plans
                         restrict development activities where these activities would destroy or damage coastal
                         resources as well as protect human life and limit public expenditures in areas that are subject to


                         Biscayne Bay rules, the stronger provision prevails. Ch. 25839(27), FS. Rule 18-18 regulates privately
                         owned submerged lands, unlike the general Act.
                         42Ch. 258M -.394 and 25&40 -.46, FS.
                         43Ch. 25&36, F.S.
                         44Ch. 258.43, F.S.
                         4SCh. 373.451(2), F.S.
                         46Ch. 373.451(3), F.S.
                         47Ch. 373.451(4), F.S.
                         48Ch. 373.451(5), F.S.


                                                                               29








                         destruction by natural disaster@9 This section is unique in that the Legislature failed to express
                         such explicit policies regarding the many other elements of comprehensive plans required in
                         Chapter 163. Moreover, coastal elements are subject to an additional consistency requirement:
                         that they be consistent with coastal resource plans prepared and adopted pursuant to general or
                         special law.50

                         The Legislature made no specific findings in adopting the bill containing the bulk of the GMA.
                         However, in a separate bill requiring the local comprehensive plans to include a groundwater
                         aquifer recharge element, the Legislature found that:

                                the protection and management of the freshwater resources of the state is of the utmost
                                importance to the health, economy and welfare of Florida's citizens.51

                         The Growth Management Act was designed to address a broad range of problems facing Florida,
                         only one of which is natural resource protection. It replaced the former zoning enabling act with
                         a recognition of the broad land use planning and development regulation powers of all local
                         governments under the Florida Constitution.52 The Legislature found the Growth Management
                         Act necessary for local governments to preserve and enhance present advantages; encourage the
                         most appropriate use of land, water and resources, consistent with the public interest, overcome
                         present handicaps; and deal effectively with future problems that may result from the use and
                         development of land within their jurisdictions.53 It required local planning and regulation to:
                         further a larger agenda, supplied by regional and state plans; be consistent with each other;
                         and meet uniform minimum criteria for data, analysis and scope established by the Act and its
                         implementing rule, 9J-5.



                         GOALS AND NTENT OF TBE TBREE PROGRAMS

                         The Growth hianagement Act

                         The stated purpose of this Act is to strengthen the existing roles, processes and powers of local
                         governments in the establishment and implementation of comprehensive planning programs to
                         guide and control future development-54 The Act also states that future public and private
                         development may be permitted only if it is in conformity with comprehensive plans adopted
                         under the Act.55 This provision has been interpreted to create a legal duty in local governments
                         to permit only conforming development, similar to the local governmental duty to pass
                         ordinances that are reasonable.56

                         The Legislature stated that the implementation of the Act constituted the minimum
                         requirements necessary to achieve the above-stated purposes; to protect human, environmental,
                         social, and economic resources, and to maintain, through orderly growth and development, the
                         character and stability of present and future land use and development in Florida.57 Finally,

                         49Ch. 163.3178(l), F.S.
                         -%a. 163.3178(2), F.S.
                         SIPreamble, Law &S-42, Laws of Florida.
                         52Ch. 163.3161(8), F.S.
                         -qCh. 163.3161(3), F.S.
                         54Ch. 163.3161(2), F.S.
                         WCh. 163.3161(5), F.S.
                         56Citizens Growth Management Coalition of West Palm Beach, Inc. v. City of West Palm Beach, 450
                         So.2d 204 (1984).
                         S7Ch. 163.3161(7), F-S.


                                                                               30








                      the Act was intended to encourage and assure (i) cooperation between and among municipalities
                      and counties, and (ii) coordination of planning and development activities of units of local
                      government with the planning activities of regional planning agencies and state government, as
                      allowed by law.58



                      The SWIM Act

                      The SWIM Act established two programs to restore and manage surface waters. First, each
                      water management district must develop plans and programs to manage and improve its surface
                      waters-59 Second, the Department of Environmental Regulation must conduct or coordinate
                      statewide research aimed at improving the understanding of the causes and effects of surface
                      water pollution and the destruction of natural systems, to provide a better basis for the required
                      plans and programs.60



                      The Aquatic Preserve Act

                      The legislative intent of this act was to set aside, forever for the benefit of future generations
                      any state-owned submerged lands with exceptional biological, aesthetic, and scientific value
                      as sanctuaries.61



                      Comparison

                      The Growth Management Act (GMA) is intended to control many of the activities that cause
                      the water quality problems identified by the Legislature in the SWIM Act, such as
                      development, which increases point and non-point source pollution and displaces or destroys
                      natural systems for water purification. The GMA's thrust is to accommodate such development
                      so long as it is consistent with the planning scheme, which in turn is consistent with the State
                      Comprehensive Plan. Ibus, the effectiveness of the GMA is almost entirely dependent on the
                      quality of each of the various state, regional and local comprehensive plans it authorizes, and
                      cannot readily be assessed in isolation. Similarly, activities may proceed in areas subject to the
                      SWIM Act and the Aquatic Preserve Act, so long as they conform to the principles of the SWIM
                      or the Aquatic Preserve statutes, rules and plans, respectively. The emphasis on preservation is
                      strongest in the intent of the Aquatic Preserve Act but, as discussed below, the implementing
                      regulations allow many activities tD proceed within the preserves. The most obvious difference
                      between the intent of the GMA and the intent of the two other programs is that the GMA
                      balances a far greater range of competing goals and objectives against the preservation and
                      restoration of surface water quality.





                      'SCh. 1633161(4), F.S.
                      59CIL 373.451(6), F.S.
                      6OCh..373.451(7), F.S. Note, however, that the Legislature has never appropriated money to DER to
                      implement the SWIM program. According to DER staff, one result is that this particular provision has not
                      been implemented.
                      61Ch. 258.36, F.S.


                                                                       31










                     SCOPEOFPROGRAMS

                     The Growth Nlanagement Act

                     The units of planning under the Growth Management Act most relevant to individual
                     waterbodies are the regional planning council and the local government (whether coun       6@  or
                     municipality). They must meet the requirements of the Act for all of their jurisdiction.
                     Charter counties have the option of adopting county-wide planning for the incorporated areas
                     as well as the unincorporated county, thus creating an intermediate planning unit between the
                     region and local government.63 Only a few counties have implemented this option.

                     Regarding special districts, the Legislature enacted the Uniform Special District
                     Accountability Act of 1989 to provide in one chapter for the definition, creation and operation
                     of special districts. As part of this act, the Legislature expressed its intent to improve
                     communication and coordination between special districts and other local entities regarding
                     local government comprehensive planning.64 The act also established that the policy of the
                     state is that independent special districts (as defined in the act) exercise their powers in
                     compliance with all applicable governmental comprehensive planning laws, rules and
                     regulations.165 Finally, the Legislature recognized in a finding of fact that growth and
                     development issues transcend the boundaries and responsibilities of individual units of local
                     government, and that the actions of one unit of government will affect other units of
                     government.66

                     The focus of the act is upon general reporting and informational requirements, especially with
                     regard to financial disclosure and the construction, expansion or major alteration of capital
                     facilities. One of the reporting requirements provides an opportunity for coordination of policy
                     regarding public facilities that may affect coastal waterbodies. Beginning in March of 1991,
                     independent special districts must subn-dt annual public facility reports to the local general
                     purpose governments in which they are located, which describes their existing facilities and
                     plans for changes or additions to these facilities for at least the next five years.67 The report
                     also must address existing and projected capacity and demand statistics relevant to these
                     facilities. The act further explicitly provides that local governments may rely upon these
                     annual reports in the pre@p'aration of their comprehensive plans pursuant to the GMA.

                     The act goes beyond procedural reform in that it requires that all construction, expansion, or
                     major alterations(18 to public facilities by special districts be consistent with the applicable
                     local comprehensive plan.69 However, this requirement is severely limited in that the act
                     specifically rejects the local government's ability to require through its comprehensive plan
                     that independent special districts construct, expand, or alter facilities.70 The local plan may

                     62a. 163.3171(l), F.S.
                     63Ch. 1633171(2) and 1633174(l)(b), F.S. The provisions of the charter control on this point.
                     64Ch. 189.402(2)(c), F.S.
                     65Ch. 189.402(4)(b), F.S.
                     66Ch. 189.402(8)(a), F.S.
                     67Ch. 189.415(2)(a)-(e), FS. Deepwater ports may submit their comprehensive master plans prepared
                     pursuant to Ch. 163.3178(2Xk), F.S., and all other ports are required to submit these annual reports.
                     (ISDefined in the act as those alterations affecting the quantity or quality of the level of service for that
                     facility. Ch. 189.4155(l), F5.
                     69Ch. 189AI55(l), F.S. Water management districts and regional water supply authorities are specifically
                     excluded from this requirement. Ch. 189.4155(3), F.S. However, the act requires water management
                     districts to provide technical assistance to loca. governments in their development of local comprehensive
                      Ian elements to water resource issues. Ch. 189.4156, F.S.
                           189AI.55(1)(a), FS.


                                                                     32








                      impose such requirements on dependent special districts, but only to the extent that the
                      requirements do not impair any covenants or agreements related to bonds issued by that
                      distriCt.71 Moreover, if either type of special district possesses a. development order for a public
                      facility project, this section may not be used to limit or modify the district's rights under the
                      development order.72 Finally, the Legislature provided that this section was not intended to
                      alter the respective rights of local governments and special districts to provide facilities or
                      services in a given geographical area or to affect the extent of the local police power or
                      requirements under Ch. 163.73



                      The SWIM Act

                      The unit of planning in this program is the priority waterbody. The statute and rule provide
                      qualitative criteria by which such waterbodies are designated, including several measures of
                      water quality, biological condition, and threats to recreational uses and to the public water
                      supplies74 No physical or geographic area criteria are addressed.



                      The Aquatic Preserve Act

                      An Aquatic Preserve is defined as an "exceptional area of submerged lands and its associated
                      waters set aside for being maintained essentially in its natural or existing state."75 preserves
                      are classified into three types, of primarily biological, aesthetic or scientific value.76 Aquatic
                      Preserves may include only lands or water bottoms owned by the state.

                      Privately owned lands or waters and lands or waters owned by other governmental agencies
                      may be included in preserves by the agreement of the private owner or the governmental
                      agency.77 This agreement must include a lease of at least ten years duration, at a rental of no
                      more than one dollar per yeaO, e.g., Cockroach Bay (Port Authority land). The Board of
                      Trustees may terminate any lease if that would be in the best interests of the Aquatic Preserve
                      system, and may provide for the management of such lands.79 Thk Act exempts two categories of
                      property: 0) publicly owned and maintained navigation channels and similar public works



                      7ICh. 189.4155(l)(b), F.S.
                      72Ch. 189AI55(2), F.S.
                      73Ch. 189AI55(4), F.S.
                      74Ch. 373.453(l)(b), F.S. and Rule 1743.0300), F.A.C.
                      75Ch. 25837(l), F.S. The "essentially natural condition" is defined as those functions which support the
                      continued existence or encourage the restoration of the diverse population of indigenous life forms and
                      habitats to the extent they existed prior to the significant development adjacent to and within the
                      preserve. Rule 18-20.00304).
                      76Ch. 258.37(2)-(4), F.S. "Aesthetic value" is defined as scenic characteristics or amenities of the preserve
                      in its essentially natural state or condition, or the maintenance thereof Rule 18-20.003(3), F.A.C.
                      "Biological value" is defined as the preservation and promotion of indigenous life forms and habitats, with
                      a representative list included. Id. at (7). "Scientific value" is defined as the preservation and promotion of
                      certain qualities or features which have scientific significance. at (36).
                      77Ch. 258.40G) and Rule 18-20-008(l)-(2), F.A.C.
                      78Rule 18-20.008(3), F.A.C
                      79Rule 18-20.008(3)(b), F.A.C



                                                                      33








                     designed to enhance navigation or commerce,80 and (ii) lands lost by avulsion or artificially')
                     induced erosion.81

                     The Act further provides that it may not infringe upon the traditional riparian rights of
                     property owners adjacent to or within the preserves. It recognizes that improvements for access,
                     mosquito control, shore protection, public utility, surface water draina e, oil and gas
                     transportation, and other purposes may be allowed within preserves.g@ The Aquatic Preserve
                     Act is explicitly made subject to the provisions of the Electrical Power Plant Siting Act, which
                     establishes the process for @pplication and review of power projects by the Department of
                     Environmental Regulation.83



                     Comparison

                     The scope of each of these three programs is different, both geographically and in terms of
                     what is regulated or addressed by each program. The GMA requirements apply to all local
                     governments, while the other two programs come into play only in designated areas. The GMA
                     is defined exclusively by political jurisdictional boundaries, while the SWIM and Aquatic
                     Preserve programs are defined by the boundaries of the resource. However, the definition of the
                     resource is far narrower in the Aquatic Preserve program than in the SWIM program. The
                     SWIM plans are based on a watershed-level unit of analysis, the unit most likely to take into
                     account all of the factors affecting a single waterbody.





                     PLANNING REQUIREWENTS

                     The Growth A4anagement Act

                     First, each local government must establish a local planning ageficy that is responsible for
                     developing a recommended plan and set of land development regulations for the local governing
                     body.84 Generally, the plans must: be internally consistent among the various elements; further
                     the goals and objectives of the State Comprehensive Plan and the region's comprehensive-
                                 comply with the statu
                     policy plan,                       te and with Rule 9J-5; identify mechanisms for
                     implementation including measurable objectives, policies, programs and activities; and ensure
                     intergovernmental coordination with other local governments, the regional planning council
                     the regional water management districts, and state and federal agencies as needed.85
                     Rule 9J-5 establishes in detail the requirements for local plan content.86 As an example, the
                     conservation element must inventory specific natural resources, including rivers, bays, lakes,
                     wetlands, estuarine marshes, fisheries, and marinehabitats.87 It must identify the existing

                     8OCh. 258.40(2), F.S.
                     81Ch. 258.40(3), F.S.
                     82Ch. 258.44, FS.
                     83Ch. 258.45, F.S. The Electrical Power Plant Siting Act is codified at Ch. 403.501 through 403.518, FS.
                     84Ch. 163.3174@ FS.
                     95Ch. 163.3177(9), F.S.
                     86See above at Brief Description for statutory provisions re. coastal management, conservation and
                     infrastructure elements.
                     87Rule 9J-5.013(l)(a), F.A.C.

                                                                   34







                        uses, known pollution problems, and potential for conservation, use, or protection.88 The goals of
                        the element must establish the long-term end toward which the conservation programs and
                        activities are ultimately directed.89 The objectives must address the requirements discussed
                        above in the Brief Description, as well as conserve, appropriately use, and protect (i) the
                        quality and quantity of current and projected water sources and waters that flow into estuarine
                        or oceanic waters; and (ii) fisheries, wildlife, wildlife habitat, and marine habitat, among
                        other things.90
                        Conservation policies must include implementation activities addressing topics including:91

                               protection of water quality by restriction of activities known to adversely affect quantity
                               and quality of identified water sources including existing cones of influence, water
                               recharge areas and waterwells

                               restriction of activities known to adversely affect the survival of endangered and
                               threatened wildlife

                               protection and conservation of the natural functions of existing soils, fisheries, wildlife
                               habitats, rivers, bays, lakes, floodplains, harbors, wetlands including estuarine marshes,
                               freshwater beaches and shores, and marine habitats

                               protection of existing natural reservations identified in the recreation and open space
                               element

                               continuing cooperation with adjacent local governments to conserve, appropriately use, or
                               protect unique vegetative communities located within more than one jurisdiction, and

                               designation of environmentally sensitive land         s for protection based on locally determined
                               criteria which further the goals and objectives of the conservation element.

                        The coastal management element must include extensive data and analysis. It must inventory
                        existing land uses, with identification of the need for development sites for water-dependent
                        uses and the location of e5cisting water-dependent uses-92 The effect of the plan's future land
                        uses on natural resources in the coastal region must be estimated.93 An inventory of estuarine
                        pollution conditions and actions needed to maintain estuaries, taking into account the
                        development and facilities proposed in the other elements of the plan, and of existing programs
                        which may be used to maintain or increase estuarine quality is required.94 Inventories of beach
                        and shore.systems, public beach or shore access facilities, and existing infrastructure are also
                        required.95 Finally, extensive data and analysis regarding natural disaster planning, including
                        the designation of a coastal high-hazard area, are required.96 This is important to natural
                        resource protection because of the damage to the resources inflicted by buildings, roads and
                        bridges breaking up during a severe storm. For example, the normal drainage patterns of
                        southern Dade County canals were severely disrupted in 1992 by Hurricane Andrew. Debris,


                        8SRule 9J-5.013(l)(b), F.A.C.
                        89Rule 9J-5.013(2)(a), F.A.C.
                        9ORule 91-5.013(2)(b), F.A.C.
                        "Rule 9J-5.013(2)(c), F.A.C.
                        92Ch. 1633178(2)(a) and (g); Rule 9J-5.012(2)(a), F.A.C.
                        93Ch. 1633178(2)(b); Rule 9J-5.012(2)(b), F.A.C.
                        94Ch. 163.3178(2)(c); Rule 9J-5.012(2)(d), F.A.C.
                        9SCh. 163.3178(2Xe) and (g); Rule 9J-5.012(2)(f)4h), F.A.C.
                        96Ch. 163.3178(2)(d), (h) and Q; Rule 9J-5.012(2)(e), FA.C.

                                                                              35









                   especially from vegetation lining the banks of these canals, impeded water flow and increased
                   the amount of sediment in the water.

                   The goal statement of the coastal management element. must reflect the statutory intent that
                   the plan restrict development activities that would damage or destroy coastal resources, and
                   protect human life and limit public expenditures in areas subject to natural hazards.97
                   Objectives must address subjects such as:98

                       ï¿½ protect, conserve or enhance remaining coastal wetlands, living marine resources, coastal
                                          I
                         barriers, and wildlife habitat

                       ï¿½ maintain or improve estuarine environmental quality

                       ï¿½ provide criteria or standards for prioritizing shoreline uses, giving priority to water-
                         dependent uses

                       ï¿½ protect beaches or dunes, establish construction standards which minimize the impacts of
                         man-made structures on beach or dune systems, and restore altered beaches or dunes

                       ï¿½ limit public expenditures that subsidize development permitted in coastal high-hazard
                         areas except for restoration or enhancement of natura I resources, and

                       ï¿½ direct population concentrations away from known or predicted coastal high-hazard
                         areas.

                   Policies must identify regulatory and management techniques for:99

                         limiting the specific and cumulative impacts of development or redevelopment upon
                         wetlands, water quality, water quantity, wildlife habitat, living marine resources, and
                         beach and dune systems

                       ï¿½ restoration or enhancement of disturbed or degraded natural resources including beaches
                         and dunes, estuaries, wetlands, and drainage systems, and programs to mitigate future
                         disruptions

                       0 general hazard mitigation and identification of coastal high-hazard areas

                       ï¿½ establishing priorities and performance standards for shoreline land uses and
                         developments, and criteria for marina siting that address: existing protective status or
                         ownership, protection of water quality, water depth, environmental disruptions and
                         mitigation actions, among others
                       ï¿½ the orderly development of deepwater ports if applicableloo

                       ï¿½ protecting estuaries that are within the jurisdiction of more than one local government,
                         including methods for coordinating with other local governments to ensure adequate sites


                   97;Ch. 163.3178(l); Rule 9J-5.012(3)(a), F.A.C.
                   98RuIe 9J-5.012(3)(b), F.A.C.
                   99Rule 9J-5.012(3)(c), F.A.C.
                   10OLocal governments over a certain population threshold must include a separate port element, if
                   applicable. Ch. 1633177(7)(b), FS. and Rule 9)-5.0091 F.A.C. Deepwater ports must prepare a port master
                   plan meeting the requirements of Rule 9J-5.012(4), F.A.C.

                                                                 36








                              for water-dependent uses, prevent estuarine pollution, control surface water runoff,
                              protect living marine resources, among other things, and

                              demonstrating how the local government will coordinate with existing resource protection
                              plans such as resource planning and management plans, aquatic preserve management
                              plans, and estuarine sanctuary plans.

                       All development must be consistent with the local comprehensive plans, as must the local
                       development regulations.101 The strictness of the interpretation of consistency has varied
                       among Florida's District Courts of Appeal, and the subject has not been settled by the Florida
                       Supreme Court.1(12



                       The SWIM Act

                       Identification of Priority Waterbodies

                       Each water management district, in cooperation with several state agencies and the local
                       governments within its jurisdiction, is required to prepare and maintain a list of priority
                       waterbodies, ranked by their regional or statewide significance.103 The list must be reviewed
                       and updated every three years; the first lists were adopted in 1987.

                       Criteria for selection and ranking are detailed in Rule 1743:104

                          ï¿½ The degree to which state water quality standards are violated, as determined by the
                              following factors:

                              1. Status and trends of water quality in the waterbody, including nature and extent of
                                  pollution loading from point and non-point sources and extent to which uses are
                                  impaired

                              2.  Whe   ther waterbody can reasonably be expected to meet or maintain water quality
                                  standards without actions to control pollution sources, and

                              3.  Nature and extent of pollution sources which contribute to violation of standards.

                          ï¿½   The nature and extent of conditions that adversely affect the waterbody, including.

                              1. Nutrient balance


                              2. Trophic state


                       101Ch. 1633194, F.S. Consistency is defined generally as "compatible with and furthers;" more specific
                       definitions are given at 1633194(3)-(4).
                       102For example, in Machado v. Musgrove, 519 So.2d 629 (3d DCA 1987), the Third District held that
                       rezonings that were inconsistent with the plan were subject to strict scrutiny. In Southuest Ranches
                       Homeowne, Assn, Inc. v. Brouwd County, 502 So.2d 931 Oth DCA 1987), rev. denied 511 So2d 999, the
                       Fourth District chose not to adopt a strict scrutiny rule. ,
                       103Ch. 373.453(l)(a), F.S. The state agencies include the Department of Environmental Regulation, the
                       Department of Agriculture and Consumer Services, the Department of Community Affairs, the Came
                       and Freshwater Fish Commission, and the Department of Natural Resources.
                       104Rule 17-43.030(l)(a)-(g), F.A.C.

                                                                          37









                    3. Existence of or need for continuous aquatic weed control

                    4. Biological condition

                    5. Physical condition, and

                    6. Reduced fish and wildlife values.

                    Threats to water supplies for agriculture and urban uses, and to public recreational
                    opportunities, as measured by two factors:

                    1. Whether uses of waterbody are impaired, including whether waterbody does not
                       meet state water quality standards or can meet them only with control programs, and

                    2. Whether conditions intermittently or frequently prevent a beneficial use.

                 ï¿½  Threats to or need for long@terrn protection of exceptional or outstanding waterbod ies
                    currently in good condition

                 ï¿½  The extent to which plans, ordinances, and policies of local governmental units with
                    jurisdiction over the waterbody are consistent with the watermanagement district's
                    protection or restoration efforts

                 ï¿½  The feasibility of monitoring the success of restoration or protection efforts in the
                    waterbody, and

                 ï¿½  The economic and environmental feasibility of accomplishing the restoration or
                    protection goals.

               The SWIM Act itself lists specific waterbodies deemed by the Legislature to be priority
               waterbodies. This list includes all of the waterbodies examined in this study.105

               The water management district priority lists must be approved by the Department of
               Environmental Regulation (DER), which must establish a uniform format for SWIM plans and a
               schedule for reviewing and updating the plans.106 Lists and supporting documentation must be
               submitted to DER for approval, and reviewed and updated at least every three years.107



               Content of SHW Plans

               Each water management district must prepare a SWIM plan for each waterbody on the pnion'
               fist, in cooperation with the same state agencies and local governments as the priority lists.17
               The I   must include a list of components, and may include others. The required components
               are:


                    A description of the waterbody system, historical and current uses, hydrology, and the
                    history of the conditions leading to the need for restoration or protection

               10SCh. 373.453(l)(c). See also Rule 1743.100, Table 1, F.A.C.
               106Ch. 373.45X2), FS.
               107Rule 17-43.030(2) and (4), FA.C
               10SCh. 373.45U2), F.S.
               109C& 373.453(2)(a)-(p and Rule 17-43.035(l)(a)-(k), FA.C

                                                    38








                        ï¿½  An identification of all governmental units that have jurisdiction over the wateTbody
                           and its drainage basin within the approved SWIM plan area, including local, regional,
                           state and federal units

                        ï¿½  A description of the land uses within the drainage basin of the approved plan area and
                           the land uses around important tributaries, point and non-point sources of pollution, and
                           permitted discharge activities

                        0  A list of owners of point and non-point sources of pollution discharged into each
                           waterbody and tributary thereto, that adversely affect the public interest

                        a  A separate list of sources that are operating without a permit, operating with a
                           temporary operating permit, Or presently violating effluent lin-dts or water quality
                           standards

                        0  Recommendations and schedules for bringing all sources into compliance with state
                           standards, when not contrary to the public interest

                        0  A description of strategies or potential strategies to restore or protect the waterbody to
                           Class III or better

                        0  A listing of studies that are being or have been prepared for the waterbody

                        a  A list and current status of active restoration or protection projects for the waterbody

                        a  A description of research and feasibility studies to be performed to determine strategies
                           to restore or protect the waterbody

                        0  A description of measures needed to manage and maintain the waterbody once restored,
                           and to prevent future degradation

                        0  A schedule for restoration and protection of the waterbody, and

                        0  An estimate of funding necessary to carry out restoration or protection strategies.

                     The water management districts are also responsible for planning and coordinating restoration
                     and protection strategies for priority waterbodies. Water management districts are given the
                     authority to contract with other governmental agencies or private entitiesfor all or portions of
                     the SWIM plans.110

                     DER reviews the SWIM plans to determine (1) whether the costs described in the plan are
                     reasonable estimates of actual costs, (2) the likelihood that the plan will significantly
                     improve or protect water quality and associated natural resources, and (3) whether the plan
                     activities can be funded based on the available revenues of the SWIM Trust Fund, or other
                     funding proposed by DER, the district, or local goverm-nents.111 If DER makes a negative
                     determination as to these criteria, then it must recommend modifications or additions to the
                     plan to address these problems-112




                     11OCh. 373.453(6), F.S.
                     111CIL 373.455(2)(a), F.S.
                     112Ch. 373.45R2)(b), FS.


                                                                    39









                     DER also has the exclusive authority to determine whether the plan is consistent with the
                     State Comprehensive Plan and the State Water Policy.113 If DER finds the plan inconsistent, it
                     must recommend changes to the governing board of the relevant water management district.
                     However, the governing board may choose to adopt the plan without making the recommended
                     changes, if it states the reasons for doing so.114 Substantially revised plans must also be
                     submitted for consistency review if they significantly impact the completion of any portion of
                     the adopted plan or add new plan strategies.115



                     The Aquatic Preserve Act

                     The majority of Aquatic Preserves were designated prior to the passage of the Aquatic Preserve
                     Act. The Act provides for an alternative method of establishing preserves. The Board of
                     Trustees of the Internal Improvement Fund may establish Aquatic Preserves by a resolution
                     describing the area, designating the type of preserve, stating generally what is sought to be
                     preserved, and clearly establishipg management responsibilities for the area, subject to
                     confirmation of the Legislature.11b The resolution must also require the development of a
                     natural resource inventory and management plan for the new preserve,117 and is recorded in
                     local land records.118 If the property falls into one of the two categories of exemptions discussed
                     abovel", the resolution must also include the required agreement with the owner. Preserve
                     designation may not be withdrawn except by act of the Legislature.

                     The Division of State Lands of the Department of Natural Resources is responsible for the
                     development of a resource inventory and management plan for each preserve.120 Management
                     plans have been developed for thirty-nine of the forty-two Aquatic Preserves, using Coastal
                     Zone management grantS.121 Plans are implemented by DNR rules and onsite management, and
                     by coordination with other agencies regarding review of permit applications and coastal
                     development planning.



                     Compadwn

                     The statutory and rule requirements for local comprehensive plans and for SWIM plans are
                     quite detailed. In contrast, the Aquatic Preserve statute and rule merely authorize the
                     preparation of plans, without specifying what is required of these plans. Both the SWIM and
                     local comprehensive plan provisions are concerned with intergovernmental coordination. DNR,
                     as manager of aquatic preserves, coordinates with DER whenever a proposed activity within a
                            e requires a DER permit. It uses the information DER collects, through the permi t
                     application and the biological survey, in drafting its recommendations to the Board of Trustees

                     113Ch. 373.4W2), F.S. and Rule 17-43.03S(4), FA.C. However, DCA reviews and comments on SWIM plans
                     regarding their impact on Areas of Critical State Concern and the State Comprehensive Plan, as
                     discussed below. Ch. 373.455(6), F.S.
                     114Ch. 373.456(5), F.S.
                     115Rule 17-43.035(6), F.A.C.
                     116Ch. 258.410, F.S. and Rule 18-20.009(3), F.A.C.
                     117Rule 18-20.009(3), FA.C.
                     118Ch. 258AIM, F.S.
                     119Pnvately owned lands and lands owned by other governmental entities.
                     12ORule 18-20.013(l), FA.C.
                     121 Rule 18-20.013, FA.C, directs the Division of State Lands of DNR to develop resource inventory and
                     management plans for each preserve, either itself or through agreements with other entities.


                                                                    40







                       regarding whether the activity should be allowed.122 However, coordination in planning for
                       preserves is specified by Chapter 258 or Rule.18-20-123 Generally, the Aquatic Preserve
                       scheme's emphasis is on regulations rather than plans.



                       REGULATORY REQUIREMENTS

                       The Growth Management Act

                       Under the GMA, local governments must adopt land development regulations consistent with
                       and implementing the plan. These land development regulations at a n-dnimum must provide for
                       the regulation of areas subject to seasonal and periodic flooding and provide for drainage and
                       stormwater management, and the protection of environmentally sensitive lands designated in
                       the plan, among other things-124



                       The SWIM Act

                       The SWIM plans must contain programs and policies to achieve the purposes of the SWIM
                       program, but no separate provision is made for regulation of development.



                       The Aquatic Preserve Act

                       The Bureau of Submerged Lands and Preserves, Division of State Lands, provides staff
                       management of the Aquatic Preserves on behalf of the Board of Trustees. The Act places limits
                       upon the transfer or disposal of state-owned lands in the preserve, permissible uses and
                       improvements. All transfers are subject to a public interest standard.125 The statutes specify
                       standards for some uses such as aquaculture, which is presumed to be in the public interest if
                       located on or within six inches above the substrate, and limited tb areas which will not destroy
                       grassbeds, natural flows of water, or other natural values he preserve program is intended to
                       protect.126 The Board of Trustees also may not approve the relocation of bulkhead lines
                       waterward of the mean high water line except when public road and bridge construction pro"
                       show that such relocation is not contrary to the public interest and there is no reasonable
                       alternative.127 The Board may accept gifts of property interests in lands within or near
                       preserves to maintain or enhance the quality and utility of the preserve,129 and may exchange
                       lands if the exchange meets a similar public benefit test.129


                       122Rule 18-20.016, FA.C
                       123Rule 18-20.013, FA.C
                       124C& 1633202(2)(00).
                       125"Public interest" is defined as demonstrable environmental, social and economic benefits which would
                       accrue to the public at large as a result of a proposed action, and which would dearly exceed all
                       demonstrable environmental, social, and economic costs of the proposed action. In determining the
                       public interest, the Board of Trustees must consider the ultimate project and purpose to be served by the
                       transfer, activity, use@ etc. Rule 18-20.003(25), FA.C
                       126Ch. 258.42(l), F.S. and Rule 18-20.004(l)(b), F.A.C.
                       127Ch. 258.42(2), F.S.
                       128Rule 18-20.011, F.A.C
                       129Rule 18-20.010(l)-(2), F.A.C


                                                                        41








                       The Act's implementing rules regulate activities within preserves,130 in evaluating
                       applications for activities within the preserves, DNR is required by rule to consider the
                       cumulative impacts of any activity upon the entire preserve's natural system.131 As part of this
                       evaluation, DNR considers:132

                           ï¿½  the number and extent of similar human actions within the preserve that may
                              cumulatively affect the preserve, including those actions taken prior to the Act

                           ï¿½  similar activities within the preserve that are currently under DNIZ consideration

                           ï¿½  direct and indirect effects upon the preserve and adjacent preserves that may be
                              reasonably expected to result from the activity

                           ï¿½  the extent to which the activity is consistent with the preserve management plan, if
                              developed

                           ï¿½  the extent to which the activity is permissible within the preserve under local
                              comprehensive plans and other local, state and federal plans

                           ï¿½  the extent to which the loss of beneficial hydrologic and biologic functions would
                              adversely impact the quality133 or utility134 of the preserve, and

                           ï¿½  the extent to which mitigation may compensate for adverse impacts.
                       Dredging and filling is proscribed by the Act, but is allowed for the following purposes:135
                           ï¿½  the minimum necessary for public navigation projects'136

                           ï¿½  the minimum necessary to create and maintain marinas, piers, docks, and related
                              navigation channels

                           ï¿½  alteration of physical conditions, which in the opinion of the Board of Trustees, is
                              necessary to enhance the quality or utility of the preserve@or the public health, and
                              which are consistent with the Act

                           ï¿½  maintenance dredging for existing navigation channels

                           ï¿½  installation or maintenance of approved navigation aids

                       13OPreserves are also subject to the requirements of the general rule regarding sovereignty submerged
                       lands, Rule 18-21. The provisions of 18-20 are supplemental to this basic rule. Rule 18-20.004, F.A.C.
                       131Rule 18-20.006, FA.C
                       132Rule 18-20.006(l)-(7), F.A.C.
                       133"Quality of the preserve" is defined as the degree of biological, aesthetic and'scientific values of the
                       preserve necessary for present and future enjoyment of the preserve in an essentially natural condition.
                       Rule 18-20.003(29), F.A.C.
                       134"Utility of the preserve" is defined as fitness of the preserve for the present and future enjoyment of its
                       biological, aesthetic and scientific values, in an essentially natural condition. Rule 18-20.003(41), F.A.C.
                       13SCIL 258.42(3)(a), FS. and Rule 18-20.004(i)(d)-(e), F.A.C.
                       1367be Act defines public navigation projects as projects primarily for navigation purposes, authorized
                       and funded by the US. Congress or by port authorities defined in Ch. 315.02(2). This definition excludes
                       inlet districts. In an administrative hearin& this exclusion was held valid, as rationally related to the
                       statute's intent to minimize dredging. Jupiter Inlet District v. Department of Natural Resources, DOM
                       86-2751P, 9 FALR 4047 (1987).


                                                                            42








                       a creation or maintenance of a shore protection structure

                       0 reasonable improvements necessary for public utility installation and or expansion

                       a installation and maintenance of oil and gas transportation facilities, if properly marked
                          with marine aids to navigation.

                    Dredging seaward of bulkhead lines to provide fill to areas landward of the line is prohibited,
                    as is the drilling of oil or gas wells.137 However, the Act allows the lease of oil and gas rights
                    and exploratory drilling from outside the preserve if the Board of Trustees approves. The only
                    excavation of minerals allowed within a preserve is the DNR-approved dredging of dead
                    oyster shells.138

                    The erection of structures within preserves is also limited. The Board of Trustees may
                    approve:139

                       private residential docks for reasonable access of riparian owners;

                       0 private residential multi-slip docks, if. within a reasonable distance of a publicly
                          maintained navigation channel or other channel adequate to accommodate the
                          watercraft for which the dock is designed without adversely affecting marine
                          resources;140

                       9  commercial docking facilities shown to be consistent with the use or management criteria
                          of the preserve, subject to the same reasonable distance criteria; and
                          shore protection structures, including restoration of seawalls141, approved navigational
                          aids, public utility crossings meeting the dredging standards above.

                    Structures may not be prohibited solely because of the local government's failure to adopt a
                    marina plan or structure siting policies in the comprehensive plan.142

                    Wastes or effluent, whether pem-dtted or not, may not be discharged into preserves if such a
                    discharge would substantially inhibit the accomplishment of the purposes of the Aquatic
                    Preserve Act.143 The taking of indigenous life forms for sale or commercial use is prohibited
                    with preserves.144 Exempted from this ban are commercial taking of fin fish, crustacea or
                    mollusks as allowed by law, and fishing by members of the public which is not contrary to other
                    laws and rules.145

                    The Act empowers the Board of Trustees to adopt and enforce rules to regulate human activity
                    within preserves and carry out the purposes of the Act, so long as such rules do not
                    "unreasonably interfere with lawful and traditional public uses ... such as sport and

                    137th. 258.42(3)(b)-(c), F.S.
                    .138Ch. 258.42(3Xd), F.S.
                    139CIL 258.42(3)(e), F.S.
                    140"Reasonable distance" is determined by DNR rule according to the depth of the water, the nature and
                    condition of the bottom, and the presence of manatees.
                    141Seawall may be restored at the same location, landward of that location, or within eighteen inches
                    waterward of the old location.
                    142Id.
                    14fC-h. 258.420)(04g), F.S.
                    144Rule 18-20.01Z F.A.C
                    14SLd.


                                                                  43









                        preserve may be allowed by the Board of Trustees upon a finding of compatibility with the
                        conm-tercial fishing, boating, and swimndng."146 Additional and unanticipated uses of the
                        purposes of the Act-147

                        The Board of Trustees may delegate to a local government the responsibility to adn-dnister and
                        enforce the standards and criteria of a resource inventory and management plan, if the Board of
                        Trustees finds that the delegation is in the public interest, and upon a finding that the local
                        government's program-148

                           0   adopts standards and criteria no less restrictive than the approved management plan (if.
                               more restrictive, the local policies are not effective until approved by the Board of
                               Trustees as consistent with the Act

                           0   provides for enforcement of these requirements by appropriate administrative and
                               judicial processes

                           0   provides for administrative organization, staff, financial and other resources necessary
                               for effective and efficient enforcement, and

                           0   provides for improved management and enforcement of the plan and any relevant rules.

                        The Board of Trustees may not delegate the power to approve transfers or uses of state-owned
                        sovereignty lands, but may delegate to local agencies the ability to process applications and
                        present recommendations for action to the Trustees.149 The rules of DNR's Division of State
                        Lands must include an annually updated list of delegations. I -r'O The Trustees may designate the
                        local agency as its enforcement arm, but DNR permission is required before a local agency may
                        impose elevated penalties and DNR retains the authority to enforce the Act.1-51 The Board of
                        Trustees, based on a DNR report, must annually evaluate the decisions of the local agency and
                        decide whether to renew, withdraw, or renew with recommendations for corrective action the
                        local delegation of authority.152 Penalties of between $500 and $5000 per day are authorized
                        for violations of the Act or any of its implementing regulations.153



                        Comparison

                        As stated previously, the SWIM program is not a regulatory program, although water
                        management districts can and do use their general regulatory authority under Ch. 373 to carry
                        out the purposes and objectives of SWIM plans. The regulatory basis of the Aquatic Preserve
                        program differs from the GMA program, in that the state owns the land in an aquatic preserve.
                        Thus, while development activities are regulated under both programs, the state as landowner
                        can entirely prohibit certain uses in an aquatic preserve (e.g., drilling of oil or gas wells). The
                        GMA is a planning and land development regulation program intended to primarily require the
                        local regulation of private land and its use.

                        146Ch. 258.43(1), F.S.
                        147Ch. 258.43(2), F.S.
                        148Ch. 2,58.43(3)(a), F.S.
                        149Ch. 258.43(3)(b), F.S.
                        15OCk. 258.43(c), F.S.
                        ISICh. 258.43(d), F.S.
                        IMCh. 258.43(e), F.S.
                        153Ch. 258.46, F.S. The Act is subject to the general penalty provisions of Ch. 403.501 -.518, F.S, the
                        Electrical Power Plan Siting Act.


                                                                                44












                     PROVISION FOR MIIRGOVERNMENTAL COORDINATION

                     The Growth Management Act

                     A stated intent of the Act was to encourage and assure cooperation between and among
                     municipalities and counties, and to encourage and assure coordination of planning and
                     development activities of units of local government with the@lanning activities of regional
                     planning agencies and state government, as allowed by law.1 The Act allows municipalities
                     and counties to carry out the powers and authorities set out in the Act jointly by mutual
                     agreement, and in such combinations as their common interests may dictate.155 Coordination and
                     consistency of the elements within the plan is a major objective of the planning process. The
                     capital improvements element, for instance, must be consistent with the coastal and
                     conservation elements.156 Coordination of the local plan with the plans of other local
                     governmental entities, the region, and state planning policies is also a major objective of the
                     Act.157

                     An intergovernmental coordination element is required in each plan, showing the relationships
                     and stating the principles and guidelines to be used in assuring such coordination, and
                     demonstrating the impact of the plan on these other entities.158 The intergovernmental
                     coordination element must describe all the entities with which it must coordinate, and identify
                     and analyze the effectiveness of e)dsting coordination mechanisms.159 It must also identify the
                     problems and needs within each element that coordination might improve, needs for
                     coordination illustrated by comparison with the comprehensive regional policy plan and with
                     Area of Critical State Concern regulations, if Televant.160

                     Coordination element objectives must:161

                       a   specify coordination of the plan with plans of other local entities such as school boards,
                           special districts, and neighboring jurisdictions

                       0   ensure that the local government addresses the impacts of the comprehensive plan's
                           planned development on these other jurisdictions, the region and the state, and

                       *   ensure coordination of level of service standards for public facilities among neighboring
                           local governments and with regional and state LOS standards.
                     Coordination policies must include program, activities, or procedures for:162

                       0 coordination of planning activities mandated by the local plan with other entities

                       0 resolving conflicts through the region's mediation processes


                     154Ch. 1633161(4), F.S
                     155Ch. 163.3167(l); 163.3171(l)-(3); and 1633174(1)-(2), F.S.
                     156Ch. 163.3177(2), F.S.
                     157Ch. 163.3177(4)(a), F.S. See also Ch. 163.3177(10)(b), F.S.
                     1MCh. 163.3177(6)(h), F.S.
                     1-59Rule 91-5.015(l)(a)-(b), F.A.C
                     16ORule 9J-5.015(2Xa)-(d), FA.C.
                     161Rule 9J-5.015(3)(b), FA.C.
                     162Rule 9J-5.015(3)(c), FA.C.


                                                                    45








                        ï¿½    reviewing the relationship of proposed development to plans of neighboring local
                             governments, and

                        ï¿½    providing consistent and coordinated management of certain bays, estuaries and harbors
                             under the jurisdiction of more than one local government (for local governments required to
                             prepare a coastal element).

                      Other elements also address issues of intergovernmental coordination. Policies to cooperate
                      with adjacent local governments to conserve, appropriately use, or protect unique vegetative
                      communities located within more than one jurisdiction must be included in the conservation
                      element.163 The coastal management element must contain policies which W address protecting
                      estuaries, which are within the jurisdiction of more than one local government, including
                      methods for coordinating with other local governments to ensure adequate sites for water-
                      dependent uses, prevent estuarine pollution, control surface water runoff, protect living marine
                      resources, among other things, and 00 demonstrate how the local government will coordinate
                      with eAsting resource protection plans such as resource planning and management plans, aquatic
                      preserve management plans, and estuarine sanctuary plans.164                                                        Iff
                      The Department of Community Affairs coordinates review of local plans and plan
                      amendments.165 It transmits copies of proposed plans to all appropriate state agencies,166
                      which have forty-five days to review and provide comments to DCA.167 These comments are
                      advisory. Section 163.3184 does not require that DCA specifically respond to agency comments
                      in preparing its objections, recommendations and comments regarding a local plan. Rather, it
                      requires the agencies to provide the comments in a timely manner to DCA and then provides for
                      a forty-five day period within which DCA can consider the comments and incorporate them in
                      its own comments to local governments as it deems appropriate. Considering the comments of
                      other agencies and its own review, DCA must determine whether the plan or plan amendment is
                      in compliance with the requirements of the statute and rule.168

                      DCA, any ad hoc working groups appointed by DCA, and all state agencies are required by the
                      GMA to cooperate and work with units of local government in the preparation and adoption of
                      local plans and regulations.169



                      The SWYlM Act

                      The SWIM Act requires coordination at several stages of the SWIM planning process. It
                      recognizes the necessity for cooperation of state and local governments and the water
                      management districts to ensure the overall success of the program.170 It requires cooperation
                      with several agencies in the pr;eFaration and approval of both the priority Usts and the SWIM
                      plans for priority waterbodies.1 The Legislature encourages district governing boards to
                      appoint advisory committees on an as needed basis to assist in forinulating and evaluating
                      strategies for waterbody protection and restoration activities, and to increase public awareness

                      163RUle 9J-5.013(2) (c)8, FA.C
                      164Rule 9J-5.012(3)(c)13-14, F.A.C.
                      165Ch. 163.3184 and .3187, FS.
                      166including but not limited to DM DNK DOT, WMDs, RPC, and applicable county.
                      167Ch. 163.3184(4), FS.
                      168Ch. 1633184(8)-(10), FS.
                      169Ch. 163.3204, FS.
                      17OCh. 373.451(8), F-S.
                      171Ch. 373.453(l)-(2), F.S.


                                                                      46







                         and intergovernmental cooperation.172 Suggested members include representatives of the
                         various agencies included in the priority list and plan review processes, relevant federal
                         agencies, existing advisory councils for individual waterbodies, and representatives of the
                         public users of the waterbody.173

                         Several state agencies and relevant local governments are given the opportunity to review and
                         comment on SWIM plans with regard to specific categories of impacts. The governing board must
                         send each such agency a copy of the proposed plan and, if any agency finds adverse impacts
                         that exceed the beneficial impacts on specific resources, it may recommend modifications or
                         additions to the plan to the district.174 However, the effectiveness of this method of
                         coordination is somewhat limited, because the governing board of the water management
                         district is not required to adopt these suggestions. These agencies may also suggest changes
                         which n-dght result in additional beneficial effects upon the resources.

                         The Game and Freshwater Fish Commission may review the plan to determine its effect on
                         wild animal life and freshwater aquatic life and their habitats.175 The Department of
                         Natural Resources may review the plan to determine its effect on state-owned lands and on
                         marine and aquatic life and their habitats.176 The Department of Agriculture and Consumer
                         Affairs may review SWIM plans to determine their effects on agricultural resources of the state
                         and the region.177 The Department of Community Affairs reviews SWIM plans to determine
                         their effects on the State Comprehensive Plan (along with DER) and on Areas of Critical State
                         Concem.178 Finally, local governments may review SWIM plans and comment upon their
                         potential effects on local resources, so long as the comments are consistent with the intent of the
                         SWIM Act.179 The statute does not provide for local government comment based on potential
                         conflicts with local plans. However, such a check is provided indirecily via DCA's review of
                         SWIM plans for consistency with the State Comprehensive Plan, with which all local plans
                         must also be consistent. All of these comments are subn-dtted to the governing board of the
                         relevant water management district, which considers them along with any public comment
                         before approving the plan and sending it to DER for consistency review and approval.180



                         The Aquatic Preserve Act

                         Given the number of involved entities, intergovernmental coordination is vitally important to
                         the effectiveness of the Aquatic Preserve Program. The Board of Trustees of the Internal
                         Improvement fund hold the title to the preserves, the Department of Natural Resources has
                         management authority over them, and the Department of Environmental Regulation is
                         responsible for water quality in the preserves and issues permits for effluent discharges. DNR
                         receives copies of the joint DER/Army Corps of Engineers dredge and fill permit applications
                         and biological asisessments, from which it makes recommendations to the Board of Trustees and
                         to DER, regarding the advisability of granting such permits.181 The Board considers these


                         172Ch. 373.453(5), F.S.
                         1731d.
                         174Ch. 373.455(3)-(7), F.S.
                         175ai. 373.45R3), FS.
                         176Ch. 373.4W4), F.S.
                         177Ch. V3.455(5), F.S.
                         1780. 373.455(6), F.S.
                         179Ch. 373.45R7), F.S.
                         18DCh. 373.4Wl), F.S.
                         181Rule 18-20.016, FA-C


                                                                               47








                   recommendations along with those of other agencies with authority over the proposed activity
                   in deciding whether to grant permits.




















































                                                               48






                                                               Chapter III

                                                         Consistency Analyses:
                                    Tampa Bay and Indian River Lagoon Study Areas



                      UIJTRODUCTION
                      This chapter presents the results of the consistency analysis for both study areas, Tampa Bay and
                      the Indian River Lagoon. Each area is presented separately, and each includes ancillary
                      information to improve the clarity of each analysis. A full set of matrices for both study areas
                      showing goals, objectives, policies, and other relevant information for all plans included in the
                      study is also included within this report. This chapter begins with a general discussion of
                      consistency requirements and standards and some of the factors       that influence thcm.



                      Consistency Requirements and Standards

                      Since the complete and effective implementation of SWIM and aquatic preserve plans depends
                      greatly on the actions of local governments, local comprehensive plans and land development
                      regulations must reflect, either explicitly or implicitly, the goals and objectives of the other two
                      types of plans. In particular, it is important for local plans to be consistent with, instead of simply
                      not inconsistent with, SWIM plans because many objectives within SWIM plans that focus on
                      monitoring land uses and activities rely on the land use regulatory powers of local governments.
                      However, water management districts, the primary implementing agency of SWIM plans, do not
                      have the authority to mandate local governments to undertake corrective or preventive actions
                      consistent with SWIM. The districts must instead rely on having a good working relationship
                      with the local government or on DCA, through its compliance review of local plans, to ensure
                      that local governments at least recognize other resource plans within their jurisdiction.
                      Conversely, it seems unlikely that SWIM plans could be developed to be consistent completely
                      with all relevant local plans, given that the scope of SWIM plans encompasses multiple and
                      diverse local jurisdictions, such as in the Indian River Lagoon area.

                      On the other hand, the scope of aquatic preserve plans is limited (as discussed below) to
                      management of the status quo within the jurisdiction of the preserve. Furthermore, aquatic
                      preserves are protected through the authority granted through the statutes to the Board of
                      Trustees to overrule local activities within the preserve such as boating and construction of docks
                      that might adversely affect the preserve. Thus, within a strict interpretation of planning
                      jurisdiction, it does not seem that local plans must be consistent with preserve plans as long as
                      they are not inconsistent with the preserve plans. DNR reviews local plans for potential
                      inconsistencies with the management of the preserve. However, this does not always sufficiently
                      address local activities outside an aquatic preserve that affect the resources of a preserve (e.g,
                      inflow of polluted stormwater runoff), nor does it address local activities such as land acquisition,
                      vegetative buffers, and marsh replanting programs that might enhance protection of the preserve.

                      Local government comprehensive plans are the key to land use and stormwater treatment and
                      regulation, two of the most critical determinants of surface water quality, also a major concern of
                      most, if not all, SWIM plans. Again, in the absence of mandated consistency between local plans
                      and SWIM plans, the satisfactory consistency of local plans with SWIM plans mostly depends on
                      active direction and technical assistance from the districts to local governments in the form of









                      model ordinances, funding for restoration projects, and education regarding the impacts of
                      human-related activities on surface waters. However, many local governments, particularly small
                      municipalities, do not retain the in-house expertise needed on behalf of local governments to
                      ensure consistent action such as retrofitting a drainage system or drafting regulations for
                      shoreline development. In the absence of such expertise, local governments mostly rely on the
                      water management district to draft plans consistent with state objectives embodied in SWIM and
                      aquatic preserve plans, or the state (DCA) to specify and assist in complying with state minimum
                      criteria.

                      No statewide standards appear to exist specifically requiring consistency of local plans with
                      SWIM plans. As required by law, local governments comment on SWIM plans within their
                      jurisdiction, and each water management district comments on local comprehensive plans within
                      its jurisdiction. However, the latter is subject to the internal guidelines of water management
                      districts, which are not uniform across all districts. Regardless, most districts are attuned to the
                      benefits of promoting consistency between local and SWIM plans, especially given cost-sharing of
                      needed local stormwater and other projects as an incentive.

                      Lin-tited statewide standards exist for the determination of consistency of local plans with aquatic
                      preserve plans. Rule 9J-5 requires local comprehensive plans to " . . . identify regulatory or
                      management techniques for ... fdlemonstrating how the local government will coordinate with
                      existing resource protection plans such as ... aquatic preserve plans... "l This research revealed
                      that although many local governments adequately address this requirement, many vary in how
                      they address coordination with aquatic preserve plans. In fact, not all local governments adjacent
                      to aquatic preserves are even aware that this designation exists for these waterbodies. Reasons for
                      such variations in addressing coordination include the compliance review process itself, in which
                      DCA has deliberately been more flexible (less stringent) in its reviews of local government
                      comprehensive plans from local governments with very limited resources to implement a plan, or
                      has sometimes has accepted the mere recognition of an aquatic preserve or other plan in order
                      not to excessively hold up the compliance review process.2 It is also perhaps in part a failure of
                      local governments to adequately remain aware of all significant state actions and programs, and
                      the adequacy of the state in specifying how much or what portions of local government
                      comprehensive plans should be consistent with SWIM and aquatic preserve plans.



                      Factors Wluencing Consistency

                      The "degree of consistency" [or inconsistency] among the goals, objectives and policies of plans is
                      a nominally measurable phenomena. Any determination of "consistency" is subject to at least
                      some interpretation, and is made more difficult within this study by the comparison of plans that
                      differ in scope and n-tission. Furthermore, although it is possible to judge the degree of
                      "consistency" between goals, objectives, or policies that address an issue or problem at the same
                      level, it is sometimes only possible to make a judgment of "not inconsistent" between goals,
                      objectives, or policies that do not address the same issue or problem at the same level or scope, or
                      that do not support each other but do not conflict with each other, either.

                      Additionally, the degree of consistency between the three different types of plans analyzed in this
                      study (SWIM, aquatic preserve, and local comprehensive plans) depends on the particular issue
                      and resource being addressed. Some issues and resources are addressed more consistently
                      between the three types of plans, and some issues and resources are not. For instance, all of the

                      lRule 9J-5.012(3)(c)14, F.A.C.
                      2According to DCA officials interviewed for this study, this was a real concern several years ago when DCA
                      had to determine compliance with 9J-5 for mom than 450 local comprehensive plans.


                                                                         so








                      plans in the study address in some way surface water quality, either by restoring a polluted
                      waterbody, preserving or protecting a non-polluted waterbody, or by influencing the quality and
                      quantity of stormwater runoff. Since addressing this issue is fairly straightforward in a technical
                      sense, all goals outlined in the plans will be fairly simple and consistent, and, although different
                      plans will address different parts of this issue, objectives and policies outlined in the three
                      different plans will be fairly consistent for this issue.

                      The degree of consistency between the three different types of plans analyzed in this study is also
                      a function of the jurisdiction or scope of a plan. Although these are technically different
                      concepts, they are integral to each other within this study, and are a factor influencing the degree
                      of consistency. As an example, since the landward boundary (and hence, jurisdiction) of aquatic
                      preserves is the mean high water line (and the scope of its plan is the preserve itself), an aquatic
                      preserve management plan is limited to how it can influence activities outside the preserve (e.g.,
                      regulating docks). Regarding consistency with other plans, an aquatic preserve management plan
                      can only encourage the coordination of the management plan's goals and objectives with other
                      plans (e.g, local comprehensive plans) whose jurisdiction may include at least, part of the aquatic
                      preserve's watershed, if not the preserve itself This is particularly important concerning the
                      future land use element of adjacent local governments, where there can be significant differences
                      between jurisdictional land use categories, designations, and land development ordinances. For
                      example, if a jurisdictional boundary bisects a watershed, and there is a significant difference in
                      the quality and scope of land use regulations between the two (or more) local governments, then
                      the possibility exists that the protection afforded a waterbody within that watershed may be
                      compromised, or its potential never reached.

                      Consistency between plans is also a function of the legal requirements (e.g., statutes and
                      regulations) that govern planning processes and products mandating review and comment,
                      coordination, or consistency between plans. For instance, state law requires that water
                      management districts are to review and comment on draft local comprehensive plans.3 This offers
                      the opportunity to integrate the two plans; however, there is a difference between simply
                      commenting on a comprehensive plan and requiring that a plan be consistent with other plans.
                      As an example, comprehensive plans are required by Rule 9J-5 to be consistent with the state
                      comprehensive plan and the relevant comprehensive regional policy plan (CRPP), as well as
                      internally consistenO However, local plans are not specifically rE@uired by Rule 9J-5 to be
                      consistent with district plans, other local comprehensive plans outside or adjacent to their   5
                      jurisdiction, or other types of plans other than the state comprehensive plan and the CRPP.
                      Finally, it is acknowledged by the Florida Department of Community Affairs, the agency charged
                      with ensuring that all local governments prepare a comprehensive plan that is in compliance with
                      Rule 9J-5, that no local comprehensive plan is perfectly consistent, either internally or externally
                      (with other plans) or in full, exact compliance with 9J-5. This is due in part to the demands of
                      accounting for more than 450 such plans using limited resources within a limited time period.6 It
                      is also due to DCA's position that some of 9J-5s individual requirements are of minimal
                      significance for certain local governments, and although there may be a technical deficiency
                                                                                            7
                      within a plan, the plan as a whole can be found to be in compliance.



                      3Ch. 163.3184(4), FS.
                      4Chapter 9J-S, F.A.C., Minimum Criteria for Review of Local Government Comprehensive Plans and
                      Determination of Compliance.
                      -5A model coastal management element, prepared by DCA's Bureau of Local Resource Planning and
                      published in May 1987, directs local govemments to consider aquatic preserve management plans in the
                      formulation of their coastal management elements.
                      6FIorida Department of Community Affairs.
                      71bid.


                                                                       51








                      A fourth factor in ensuring consistency between plans is timing. The planning process is by
                      definition iterative, even open-ended at times, and the various planning programs in this study
                      have not reached their goals. For instance, as discussed earlier, the aquatic preserve plans
                      reviewed for the Tampa Bay area are to be revised eventually, and it will be years before they are
                      fully, if ever, implemented. Additionally, local comprehensive plans are required to be evaluated
                      every five years for how they are being implemented, among other criteria. This review will offer
                      an opportunity for local governments to "fine-tune" these plans in response to changing
                      conditions as they are being implemented. Finally, the SWIM program largely consists of a series
                      of programs and projects implemented pursuant to a cohesive strategy for controlling point and
                      nonpoint source water pollution and restoring or protecting habitat. These projects are by their
                      nature complex, expensive, and interdisciplinary, and will usually take several years or even a
                      decade or more to implement.

                      Another aspect of timing is when different plans have been written and adopted. For instance,
                      many local comprehensive plans were already adopted as the first SWIM plans were being
                      written, making problematic the task of coordinating local comprehensive plans with SWIM
                      plans. However, the ongoing revision of aquatic preserve plans by DNR offers a good
                      opportunity to address concerns not adequately addressed in the first round of aquatic preserve
                      planning.



                      ORGANIZATION AND METHODOLOGY OF CONSISTENCY ANALYSIS

                      All relevant goals, objectives, and policies (GOPs) from adopted plans currently in use in 1992
                      were sorted by issue and then compared with the relevant GOPs from each SWIM and Aquatic
                      Preserve plan for consistency analysis. Only objectives and policies were listed within the
                      matrices, organized and presented by issue. This is because only most objectives and all policies
                      are measurable; goals are statements of long-term desires or conditions, and many are vague.
                      Although SWIM and Aquatic Preserve GOPs were reproduced mostly verbatim, local
                      government comprehensive plan GOPs were paraphrased as necessary to save space. The Florida
                      Department of Community Affairs' Objections, Recommendations, and Comments (ORO reports
                      for each comprehensive plan within the study areas, along with the comprehensive plan review
                      agencies'comments on draft comprehensive plans, were inserted into the matrices where deemed
                      relevant to help highlight potential inconsistencies. Only those comments; that appeared to still be
                      potentially or directly applicable to the adopted comprehensive plans were used. Comments that
                      had been addressed or explained adequately in the judgment of the research team were not used
                      in the analysis of the plans.  .                                                                                     i
                      Using the matrices, the research team has provided within this report relative judgments of
                      consistency or inconsistency by directly comparing selected GOPs or their equivalent within a
                      matrix. This method provides a reasonable way to determine consistency among the three types
                      of plans for the two study areas, and also allows the highlighting of strengths and weaknesses for
                      the plans.

                      For th e Tampa Bay area, the matrices are presented in two sets, one for each aquatic preserve
                      widiin the Tampa Bay study area. The matrices for the Indian River Lagoon area are organized by
                      local comprehensive plan, and includes GOPs or their equivalent from the Indian River Lagoon
                      SWIM plan, the Jensen Beach to Jupiter Inlet Aquatic Preserve management plan (Phase 1) and
                      the relevant local comprehensive plans. Where there was too much text within an issue to fit
                      within a single matrix page, additional information was included on a following page.

                      For clarity, it should be pointed out that the above phrase "GOPs or their equivalent" points to
                      one of the difficulties of this study, which is that the phraseology used in the three different types


                                                                        52








                       of plans within each study area is not consistent. For instance, the Tampa Bay SWIM plan uses a
                       hierarchical format in addressing issues organized into "Goals," "Initiatives," "Programs," and
                       'Trojects." The aquatic preserve plans for both Terra Ceia and Cockroach Bay list "management
                       policy initiatives," roughly similar to a combination of objectives and policies. However, these are
                       pre-1988 plans (when anew format was established for aquatic preserve management plans). .
                       Newer aquatic preserve management plans list "goals," "objectives," and "tasks." To add to the
                       confusion, many goals in some local comprehensive plans are fairly vague, and so are of limited
                       use for the purposes of this study.



                       CRITICAL ISSUES & RESOURCES

                       Although useful for analysis, it is often very difficult to isolate issues that affect such a natural
                       resource as Tampa Bay or the Indian River Lagoon. Regardless, in order to conduct a meaningful
                       comparative analysis, a set of issues common to the three different types of plans in this study
                       were established. The selected issues were mostly common to all three types, of plans, and
                       addressed at least in part by all the plans. Since the SWIM and Aquatic Preserve management
                       plans are natural resource-based plans, the bulk of the selected issues concentrated on natural
                       resources and the effect of human-related activities on them. Additionally, since SWIM plans are
                       the most inclusive and comprehensive in addressing these issues, the eneral outline of issues
                       was similar to those presented in the SWIM plans for-each study area.9 Issues not recognized and
                       addressed in SWIM plans but present in aquatic preserve management plans were added to the
                       SWIM outline, creating a full set of natural resource-based issues. Included were several other
                       issues that have an impact on the effective management of natural resources. Overall, the
                       emphasis for comparison was how the plans treated the issues in terms of what actions,
                       programs, or some other implementing mechanism were present, and not how the plans and
                       their goals, objectives, or policies were worded.



                       Land Use

                       Land use/land management is perhaps the most important determinant of the water quality of a
                       surface waterbody. It is an axiom of planning and natural resource management that 'everything
                       is connected to everything else,' and certainly this is true here. What happens on the land
                       eventually affects the water. Correspondingly, land use is also perhaps the primary detern-driant
                       of the breadth and quality of urban areas, and influences the placement, cost, and complexity of
                       infrastructure, including transportation.

                       The Future Land Use element of a local comprehensive plan outlines the goals, objectives, and
                       policies for future land use and development within the planning area, and displays the existing
                       and future land use patterns through various land use maps. Land development regulations, in
                       combination with the future land use map, offer a opportunity for preserving and restoring
                       surface waterbodies and aquatic preserves through the integration of relevant plan goals,
                       objectives, and policies into the local comprehensive plan. Land development regulations serve as
                       implementing mechanisms for a local comprehensive plan, regulating the intensity and location
                       of stormwater runoff, sewage treatment facilities, development, environmentally sensitive lands,
                       and other determinants of the environmentally quality of SWIM waterbodies or aquatic
                       preserves. In other words, land development regulations are a significant tool for protecting
                       water quality in coastal and other areas.

                       8A detailed account of most of the issues selected here is found in each of the two SWIM plans used in this
                       study.


                                                                            53








                       Although the opportunity exists for water management districts and aquatic preserve managers
                       to influence the design of land use, land use regulation is historically a local issue, primarily
                       addressed by local comprehensive plans; whereas SWIM and aquatic preserve plans are mostly
                       restricted to the resources these plans are designed to address (e.g., waterbodies and submerged
                       preserves). This is not to say that no link exists between SWIM plans and local comprehensive
                       plans. Indeed, water management districts and aquatic preserve managers recognize the impact
                       local comprehensive plans have on the successful implementation of SWIM and aquatic preserve
                       plans, and both are required to work with local governments in the creation of their
                       comprehensive plan. However, the water management districts have had more success in this
                       through their mandated review of draft local comprehensive plans, and the development and
                       dissemination of model land use ordinances to local governments by the districts.

                       Aquatic preserve managers, on the other hand, have less influence over the local comprehensive
                       planning process, having only the Florida Department of Natural Resources' (DNR) mandated
                       review role for SWIM and local comprehensive plans and the requirement that local governments
                       recognize and demonstrate how they will coordinate with all natural resource planning and
                       management plans, aquatic preserve management plans, and estuarine sanctuary plans within
                       their jurisdiction9 as their only real means of integrating the concerns of aquatic preserve
                       management plans into local comprehensive plans.



                       Other
                       Hurricane preparedness issues as such were not studied or compared for this study. Althouqh
                       much of the coastal element in those local government comprehensive plans for coastal areas 0
                       deals with issues such as hurricane evacuation, development in areas normally flooded by
                       hurricanes, and other related topics (e.g., location of infrastructure), these issues are generally not
                       addressed in SWIM and aquatic preserve plans, and therefore are not directly comparable with
                       local comprehensive plans. However, where SWIM and aquatic preserve plans addressed land
                       use and the location of infrastructure, an integral part of planning for the impacts of hurricanes in
                       coastal areas, any relevant COPs or their equivalent were selected and compared.

                       Public education and ecological and other natural resource-based research issues were not
                       studied or compared for this study. Although these issues are both addressed within the SWIM
                       and aquatic preserve management plans used for this study, public education activities, while
                       conducted at one time or another by virtually all government agencies, are usually done for
                       specific issues only, and often sporadically or intermittently. For instance, there are several
                       agencies within the Tampa Bay area that are conducting public education programs for
                       seagmsses; however, these vary in format and tin-dn& and are heavily dependent on available
                       funding. Additionally, it is not currently feasible for many local governments, or even many state
                       or regional agencies, to conduct ecological research, some are now doing routine water quality
                       monitoring. However, these activities are also generally subject to the same constraints and
                       factors as public education issues.


                       9Chapter 9J-5.012(3)(c)14, F.A.C.
                       1OBoth the Hillsborough and Manatee County comprehensive plans define the coastal area as 'Those
                       portions of [Hillsborough/Manateel County which lie within the Hurricane Vulnerability Area ... This area
                       shall also include water and submerged lands of oceanic water bodies or estuarine water bodies; shorelines
                       adjacent to such water bodies; coastal barriers; living marine resources; marine wetlands; water-dependent
                       or water-related facilities on oceanic or estuarine waters; public access facilities to oceanic beaches or
                       estuarine shorelines; and all lands adjacent to such occurrences where development activities would impact
                       the integrity of the above-mentioned land or water body."


                                                                           54











                      TAAffA BAY STUDY AREA CONSISTENCY ANALYSIS


                      Description of Tampa Bay Study Area

                      The Tampa Bay estuary is a system of estuaries, embayments, and associated wetlands
                      approximately 398 square n-dles (1031 square kilometers) in size.11 The Tampa Bay watershed in
                      includes uplands and freshwaters for a total area of approximately 2,200 square miles (5,698
                      square kilometers) in size. Naturally shallow with an average depth of 12 feet (four meters), it is
                      cut by a system of 42 nautical miles of navigation channels first begun in the 1880s. Four major
                      rivers drain into Tampa Bay, along with a number of lesser tributaries and three major flood
                      control channels. Tampa Bay, together with its estuaries, is the highest priority surface waterbody
                      on the Southwest Florida Water Management District's (SWFWMD) approved SWIM priority
                      list.12

                      Three aquatic preserves are located within Tampa Bay. These include the Boca Ciega Aquatic
                      Preserve, the Cockroach Bay Aquatic Preserve, and the Terra Ceia Aquatic Preserve. The Boca
                      Ciega Aquatic Preserve su  rrounds the peninsula of Pinellas County, and the lattertwo preserves
                      are located within the southern portion of the bay. As of 1984, at least 12 federal agencies, 10 state
                      agencies, five regional agencies, and approximately 50 local governments were involved in some
                      aspect of regulation, review, or policy development of natural resources and issues affecting
                      Tampa Bay in some way.13

                      The causes and conditions of the degradation of the natural resources of Tampa Bay are
                      singularly human-related, and began about 100 years ago.14 The Tampa Bay Management
                      Committee identified 42 issues regarding the management of the natural resources of the bay,
                      and the Tampa Bay Management Study Commission (both the Management Committee and the
                      Management Study Commission were sponsored by the Tampa Bay Regional Planning Council)
                      further examined and grouped these issues into five categories of related issues. Shown below are
                      the categorized Tampa Bay study area issues from the Tampa Bay Management Study
                      Conunission.

                      1. Water Quality Improvement

                          0   long-term accumulation of organic sediments in Hillsborough Bay

                          0   proliferation of new and expanded domestic wastewater sources, and impact of new
                              water quality standards for the bay

                          0   nonpoint sources of water pollution (stormwater)

                          0   absence of a fully verified computer model to aid DER in evaluating the impact    of
                              numerous proposed point source discharges

                          0   continuing phosphate processing operations within the watershed

                          0   continuing population growth and land development within the watershed


                      "Southwest Florida Water Management District. 1992. Tampa Bay Surface Water Management and
                      Improvement Plan (Draft). p. 5, Appendix A.
                      121bid.
                      131bid, p. 30.
                      14 lbid, p. 25.


                                                                      55










                    2. Habitat Protection and Restoration

                         ï¿½  decline of seagrasses

                         ï¿½  dredging of channels, ports, and marinas, and disposal of dredged materials

                         ï¿½  development of coastal and riverine marshes and other wetlands within the watershed

                         ï¿½  development and damming of rivers and creeks within the watershed

                    3. Fisheries Management

                         ï¿½  decline of commercial finfish landings

                         ï¿½  decline of shellfish landings

                         ï¿½  decline of recreational landings

                         ï¿½  lack of biological and other fisheries data

                    4.   Development and Use of the Bay

                         ï¿½ replacement of native vegetation with exotic and other nuisance plants

                         ï¿½  shoreline erosion from unanticipated foot and other public traffic

                         ï¿½  impact on recreational uses of the bay from sub-standard water quality and lack of
                            natural habitat

                         ï¿½  impacts of additional marinas

                         ï¿½  impacts of construction and operation of transportation facilities

                    S.   Legal Framework for Comprehensive Management

                         ï¿½  absence of a mechanism to coordinate and focus the myriad of local, state, and federal
                            agencies involved in natural resource management within Tampa Bay

                         ï¿½  ineffective enforcement of laws and regulations intended to protect natural resources of
                            the bay.15

                    Management of the natural resources of the Tampa Bay estuary has been historically
                    uncoordinated among the various federal, state, regional, and local governments within the
                    watershed. Towards addressing these and other problems associated with this myriad of
                    authorities, the Tampa Bay Management Commission published The Future of Tampa Bay in 1985.
                    This plan summarized the environmental problems of the bay, presented preliminary legislative
                    work plans to address priority issues, considered funding alternatives, and recommended
                    specific projects to begin the restoration of the Tampa Bay ecosystem. Portions of the SWIM
                    management plan have come out of The Future of Tampa Bay.16


                    1-rIbid, pp. 25-W.
                    161bid, P. 31.


                                                                  56








                      The creation of the Agency on Bay Management (ABM), sponsored by the TBRPC, was originally
                      one of the recommendations within the this document. Created in 1985, ABM has served as a
                      public forum for bay management issues, liaison between governmental agencies and interest
                      groups, and has attempted to implement the management plan. Complementary to The Future of
                      Tampa Bay, ABM published The State of Tampa Bay 1986, providing an update on the
                      environmental status of the bay as well as describing the agency' s efforts to implement the
                      management plan. Efforts of ABM to implement the management plan have been hampered by
                      lack of funding and staff.17



                      Tampa Bay SWIM Plan Description

                      The Tampa Bay SWIM plan, first adopted and published in 1988, was updated in 1992. The
                      original plan's goals, description of Tampa Bay and its watershed, and the identification and
                      analysis of issues has not been significantly changed in format or content. However, the plan
                      recognizes and calls for coordinating with the federal Tampa Bay National Estuary Program, and
                      calls for identifying Pollution Load Reduction Goals for the Tampa Bay watershed as directed
                      under Chapter 174OA20 F.A.C.

                      The Tampa Bay SWIM plan uses a hierarchical format in addressing issues organized into
                      "Goals," "Initiatives," 'Trograms," and 'Trojects." The goals of the plan are to be met by
                      implementing a series of initiatives, which are composed of programs, themselves composed of
                      projects that are prioritized.

                      The management plan was created under the aegis of two advisory committees, SWFWMD`s
                      Internal Review Comn-dttee and the TBRPCs Agency On Bay Management (ABM) Special
                      Committee on the Tampa Bay Management Plan. The first committee is comprised of District
                      personnel, and has continued to function after completion of the management plan to provide
                      guidance and review of all SWIM activities for the district. The ABM Special Committee on the
                      Tampa Bay Management Plan was composed of members of the Executive Steering Comndittee of
                      ABM and representatives of the private sector as well as various county, state, and federal
                      agencies, Additional review and input for the plan was solicited from all county and city
                      governments from the three counties bordering the bay, including the Tampa Bay National
                      Estuary Program

                      Three goals and four sets of initiatives have been identified for the Tampa Bay ecosystem. The
                      goals of this plan are: (1) to reverse the environmental degradation of the Tampa Bay estuarine
                      system; (2) to optimize water quality and other habitat values, thereby promoting the sustained
                      existence or reestablishment of thrivin& integrate biological communities; and (3) to ensure the
                      maintenance ad infiniturn of a productive, balanced ecosystem complementary with human
                      needs and uses of the resource. The initiatives within this plan are grouped into four sets: (1)
                      natural systems, (2) water quality, (3) land and public use, and (4) bay management.18 (There are
                      43 programs, 18 of which have been prioritized for implementation at this time. Each program is
                      composed of various projects, most of which serve multiple programs.

                      As required by statute and agency rules of DER, the Tampa Bay SWIM plan contains a
                      description of the estuary and its current conditions and uses; identification of government
                      entities with management responsibilities concerning the estuary; point and nonpoint pollution
                      sources, permitted discharges, and surrounding land uses; and current and needed strategies,
                      studies, and measures to restore and maintain this waterbody. Additionally, DER's SWIM Review

                      171bid.
                      181bid, p. 37.


                                                                      57









                      Procedures Manual encourage all SWIM Plans to address point and nonpoint pollution sources,
                      destruction of natural systems, correction and prevention of surface water problems, needed
                      research, public awareness, and inter-agency coordination.



                      Terra Ceia Aquatic Preserve Management Plan Description

                      The Terra Ceia Aquatic Preserve, located in Tampa Bay within Manatee County, is approximate              ly
                      21,736 acres in size. It was designated an aquatic preserve in 1984 for the primary purpose of
                      preserving the biological resources of the Terra Ceia marshes and associated waters.19 Consisting
                      mostly of fringing mangroves and mangrove islands with oyster bars, clam beds, and seagrasses,
                      this preserve serves as critical habitat for a variety of fish, birds, and other wildlife. The preserve
                      is fairly pristine, although some of the shoreline has been hardened with residential seawalls and
                      urban stormwater enters the preserve from these residential areas. In addition to this, an existing
                      wastewater treatment facility discharges effluent into Terra Ceia Bay, part of the aquatic preserve.
                      This effluent discharge, while under the regulation of the state, is specifically exempt from the
                      requirements of the Florida Aquatic Preserve ACt.20 The boundaries of the preserve are shown in
                      Figure 1. The actual preserve includes those state-owned submerged lands located waterward of
                      the mean high water line (MHW).

                      The geographic and jurisdictional scope of the Terra Ceia Aquatic Preserve management plan
                      and the Cockroach Bay Aquatic Preserve management plan is less comprehensive than that of the
                      Tampa Bay SWIM plan, which encompasses Tampa Bay. In addition to detailing the ecological
                      problems of Tampa Bay, the SWIM plan includes a prioritized list of projects within a series of
                      initiatives, programs, and strategies that address the effects of land uses and other activities as
                      they impact water and habitat quality of the whole waterbody. In comparison, the aquatic
                      preserve plans focus on activities within the jurisdiction of the preserve and land uses directly
                      adjacent to it. For example, the SWIM plan addresses entire drainage systems within the basin of
                      the lagoon while the aquatic preserve plans concentrate on points of discharge of the drainage
                      systems into the preserves (e.g., the Manatee River and the Cockroach Bay Aquatic Preserve).

                      The Cockroach Bay Aquatic Preserve management plan is virtually identical to the Terra Ceia
                      Aquatic Preserve management plan in its organization and layout and management policy
                      initiatives. Both plans are designed to guide the management of the preserves to emphasize the
                      maintenance and enhancement of natural conditions, which, as more site specific information
                      becomes available, are to be further identified, and resources in disturbed areas restored to a.
                      natural condition where possible. Toward this end, both plans contain a number of management
                      issues and related major program policy directives to address these issues. Both plans also list a
                      number of onsite management objectives and policies (e.g, field familiarization, mapping, and
                      preparation of protection guidelines) for protecting the natural resources of the preserves,
                      including guidelines for coordinating with federal, state, regional, local, and other organizations
                      and groups in the protection of the preserves' natural resources. Although the latter guidelines
                      are specific concerning federal, state, and regional activities and agencies, the guidelines for
                      coordinating with local governments specify that this is dependent on the willingness of local
                      governments to create or arnend their local comprehensive plans, zoning and development codes,
                      and other plans to be more consistent with aquatic preserve plans.




                      Iftem Coia Aquatic Preww Maw&-vurnt Plan, April 1987, Bureau of   Submerged Lands and Preserves,
                      Division of State Lands, Florida Department of Natural Resources.
                      2OCh. 2.58.393(Z, F.S.


                                                                         58



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                     Cockroach Bay Aquatic Preserve Manageme        nt Plan Description

                     The Cockroach Bay Aquatic Preserve, located in Tampa Bay within Hillsborough County, is
                     approximately 3,600 acres in size. It was designated an aquatic preserve in 1976 for the primary
                     purpose of preserving the biological resources of Cockroach Bay, and is considered to be the most
                     pristine area remaining within Tampa Bay.21 Consisting mostly of fringing mangroves and
                     mangrove islands with oyster bars, clam beds, and seagrasses, this preserve serves as critical
                     habitat for a variety of fish, birds, and other wildlife. The boundaries of the preserve are shown in
                     Figure 2. The actual preserve includes those state-owned submerged lands located waterward of
                     the mean high water line (MHW). The Cockroach Bay Aquatic Preserve was leased by DNR from
                     the Tampa Port Authority, which owns the lands in Cockroach Bay in fee simple, for the period
                     of July 1, 1976 to July 1, 2016, a period of 40 years.

                     The Cockroach Bay Aquatic Preserve management plan is virtually identical to the Terra Ceia
                     Aquatic Preserve management plan in its organization and layout and management policy
                     initiatives. These two plans are examples of "first-generation" aquatic preserve management
                     plans; as described elsewhere in this report, these plans are mostly generic in nature, although.
                     The "second-generation" aquatic preserve management plans written after 1988 (for those
                     preserves without management plans and for preserves with plans to be revised) represent an
                     evolution of aquatic preserve management plans into more site-specific plans having more public
                     input, a review of consistency with local comprehensive plans, and a clear set of goals, objectives,
                     and policies or tasks.




                     CONSISTENCY BY ISSUE

                     Overall, there appears to be a fairly high degree of consistency between the three types of plans in
                     the Tampa Bay area. Of course, some issues addressed in all three plans are more consistent than
                     others, and not all issues selected for this study are addressed to the same degree in the three
                     plans-or even addressed at all across all three plans. Shown below are the categorized Tampa
                     Bay study area issues from the 1988 Tampa Bay SWIM plan.

                     L   Water Quality

                         1.  Point Source Water Pollution [SWIM & API
                         2.  Nonpoint Source Water Pollution [SWIM & API
                         3.  Phosphate Processing Operations [SWIM & API
                         4.  Urbanization/Land Use/Wildlife Habitat [SWIM & AP)
                         5.  Agricultural Activities and Effects on Water Quality and Living Resources JAPI
                         6.  Mosquito Control Activities and Effects on Wetlands Habitat, Water Quality, And Living
                             Resources 1AP1

                     U. Natural Systems

                         7. Destruction/decline of Seagrasses
                         8. Dredging and Disposal of Dredge Materials [SWIM& API
                         9. Wetlands [SWIM & API
                         10. Development and Damming of Creeks and Rivers [SWIM & API


                     21COd7oach Bay Aqwtic prmm Management plan, April 1987, Bureau of Submerged Lands and Preserves,
                     Division of State Lands, Florida Department of Natural Resources.


                                                                      60











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                                                                                       CAOUATIC PRESERVE NO. 33)
                                                                                         1111.13800101M COUNTY.FURIDA
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                                                    LAXV MANAINKMENT                       FLORIDA STATUTES IN 1976)



                                                                    61











                    1H. Fisheries


                        11. Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of
                            Information re: Decline [SWIM & API

                    IV. Development and Use of the Bay

                        12. Replacement of Native Vegetation with Exotic Plants [SWIM & AP)
                        13. Shoreline Erosion [SWIM & API
                        14. Marinas [SWIM]
                        15. Construction & Operation of Transportation Facilities [SWIM]

                    V. Bay Management

                      16. Intergovernmental Coordination and Planning Consistency [SWIM & API
                      17. Enforcement of Laws and Regulations [SWIM & API

                    VI. Other


                        18. Ports
                        19. Identification of Areas, Land Use, Etc.
                        20. Threatened and Endangered Species; Manatee Protection; Hazardous Waste Disposal;
                           Boundary Expansion and Other Acquisitions.

                    The degree of consistency for each issue is summarized below, starting with major areas of
                    consistency or inconsistency.



                    [11  Point Source Water Pollution

                    With the advent of the federal National Pollution Discharge Elin-dnation System (NPDES),
                    industrial and domestic point source pollution discharges have mostly come under regulation,
                    although the treatment and discharge of sewage effluent is still subject to the vagaries of funding,
                    available technology, and operation and maintenance, particularly concerning septic tanks and
                    package treatment plants., In addition, the proliferation of new and expanded domestic
                    wastewater sources is regarded by SWFWMD as a threat to the water quality of Tampa Bay.
                    Although current advanced wastewater treatment standards for point sources discharging into
                    Tampa Bay area are considered by SWFWMD to be adequate for now, there is a possibility that,
                    under SWFWMD's new resource-based water quality standards being developed as a part of the
                    Tampa Bay SWIM plan's water quality assessment program, they may prove inadequate.22

                    Both the Cockroach Bay and Terra Ceia aquatic preserve plans do not address any of these issues
                    specifically, except to require (through the efforts of DER and SWFWMD) the maintenance and
                    upgrading of the water quality of the estuary, and to ensure the natural seasonal flow
                    fluctuations of fresh water into the estuary. However, this is not inconsistent with the SWIM plan
                    and local government comprehensive plans, as DER and the water management districts are
                    primarily responsible for monitoring and addressing water quality and quantity problems within
                    the state, and are doing so through the local government comprehensive planning process,
                    among other avenues.



                    22P. 26, Tampa Bay S VWM Plan, 1988.


                                                                 62








                     There appears to be a fairly high level of consistency between the SWIM plan and the
                     Hillsborough County comprehensive plan for this issue. For local governments, the SWIM plan
                     calls for effluent re-use and other disposal options; regional wastewater treatment systems and
                     greater impact fees for their construction; reduction of effluent discharges; and the strengthening
                     of local government environmental enforcement and compliance monitoring programs.

                     Correspondingly, the Hillsborough County comprehensive plan calls for advanced wastewater
                     treatment (or elimination of discharges as necessary to meet SWIM plan criteria); the
                     development and promotion of re-use and other effluent disposal options; the restriction of
                     treatment facilities within the Coastal High Hazard Area (CHHA)23; upgrading Surface
                     waterbody classifications to accommodate higher water quality standards; construction of
                     wastewater treatment regional facilities, increased water quality monitoring; and addressing
                     substandard point discharges.

                     There appears to be a fairly high level of consistency between the SWIM plan and the Manatee
                     County comprehensive plan for this issue. The latter encourages alternative re-use and disposal
                     options for effluent; constructing regional wastewater treatment plants instead of septic tanks
                     and package treatment plants; requiring new growth to pay its share of the construction of
                     regional wastewater treatment facilities; and regulating onsite disposal of sewage. The aquatic
                     preserve plan does not specifically address any of these issues.

                     Additionally, Policy 4.1.2.11 (Coastal Management element) of the Manatee County
                     comprehensive plan requires all developments within the coastal area which have or propose to
                     have land uses requiring the issuance of a point source discharge pern-dt to establish and
                     implement water quality management plans which will eliminate all discharges that have not
                     been treated to appropriate state water quality standards into coastal area waters.

                     A potential inconsistency between the Manatee County comprehensive plan and the Terra Ceia
                     Aquatic Preserve management plan appears to be Manatee County's policy on allowing septic
                     tanks within their Agricultural/Rural (AG/R) land use category (Policy 11.1.1.6, Public Facilities
                     element). According to the county future land use map, this land use category directly borders
                     the Terra Ceia aquatic preserve in several locations, presenting a potential source of water
                     pollution.

                     An existing wastewater effluent discharge belonging to the City of Palmetto within the Terra Ceia
                     Aquatic Preserve is specifically exempt from the requirements of Chapter 258, F.S., which
                     governs the boundaries, uses, and general restrictions within the Aquatic Preserve program.24
                     Although this discharge has been cited by DER as not being up to current water quality
                     standards, an objective within the Coastal Management element of the City of Palmetto's
                     comprehensive plan calls for ensuring that no new point sources shall be permitted to discharge
                     directly into the Manatee River or Terra Ceia Bay during the horizon of the plan, and another
                     policy calls for pollution discharges into Terra Ceia Bay to be in compliance with at least
                     minimum DER Class 11 water quality standards, although no specific implementing mechanism
                     or deadline listed within this policy. (The former has been faulted for not having addressed the
                     Terra Ceia Aquatic Preserve, and that this objective should be expanded to include nonpoint

                     2-@`The CHHA, as defined in Rule 9J-5.003(14)i means "areas designated by local governments... which have
                     historically experienced destruction of severe damage, from storm surge, waves, erosion, or other
                     manifestations of rapidly moving or storm driven water. These areas shall include all areas within the local
                     government's jurisdiction where public facilities have been dama ged or undermined by coastal storms,
                     Federal Emergency Management Agency designated V zones, areas seaward of the coastal construction
                     control line established by the Florida Department of Natural Resources pursuant to Chapter 161, FS, and
                     inlets which are not structurally controlled."
                     24Ch. 258.393(2), F.S.


                                                                    63









                      source pollution, as well as correcting existing discharges causing pollution (e.g., WWT
                      discharge, septic tank usage, & stormwateT runoff).

                      Other objectives and policies within the City of Palmetto's comprehensive plan addressing this
                      issue appear to be consistent with the Tampa Bay SWIM plan, and not inconsistent with the Terra
                      Ceia Aquatic Preserve management plan. These include:

                         ï¿½  ensuring no net reduction in surface and subsurface water quality in coastal and inland
                            areas as a result of existing and future development

                         ï¿½  requiring all future urban development to be served by the City's wastewater treatment
                            system to prevent environmental degradation of surface waters, marine & aquatic
                            resources, and underlying groundwater resources

                         ï¿½  implementing programs to develop water reclamation and/or reuse alternatives for
                            wastewater effluent and stormwater by 1993

                         ï¿½  providing sanitary sewer service to all areas within City limits, and

                         ï¿½  requiring the City's sewage collection, treatment, and disposal system to meet or exceed
                            applicable local, state, and federal regulations and guidelines.

                      Perhaps the most potent policy within the City of Palmetto's comprehensive plan calls for
                      implementing upon adoption of the City's comprehensive plan the Terra Ceia Aquatic Preserve
                      management plan to measurably improve water quality and to increase the productivity of
                      conunercially important fisheries and other aquatic resources. However, this policy appears to
                      lack specific implementing mechanisms, and it does not adopt any regulatory wording within
                      Ch. 18-20, F.A.C., governing the management of aquatic preserves.



                      [2)   Nonpoint Source Water Pollution

                      (This issue is differentiated from issue #4, Urbanization/Land Use/Wildlife Habitat, in that it
                      concentrates more directly on nonpoint source stormwater runoff and septic tank seepage, while
                      issue #4 concentrates on land use and development regulations and their effect on ecosystems
                      and wildlife habitat, including Tampa Bay. This differentiation reflects both the Tampa Bay
                      SWIM plan and most local comprehensive plans' treatment of these issues, meanwhile
                      recognizing that land use and the quality and quantity of stormwater runoff are integral to each
                      other.)

                      Nonpoint source water pollution is an extremely important issue in Florida, especially for coastal,
                      urban counties, and a great deal of attention is presently being paid to this issue by both state and
                      federal governments. Policies within the Tampa Bay SWIM plan that specifically address this
                      issue include.

                         ï¿½  require (if feasible) that runoff quality be no worse than the state water quality criteria or
                            the odsting quality of the receiving waterbody, whichever is better

                         ï¿½  assist local governments in retrofitting high priority urban stormwater systems through
                            project cost-sharing

                         ï¿½  encourage the regulation of stormwater runoff rates for all new development or
                            redevelopment projects (if feasible), and


                                                                        64








                            ensure the proper regulation and disposal of septage waste.

                     In comparison, both the Cockroach Bay and Terra Ceia aquatic preserve plans simply require
                     (through the efforts of DER and SWFWMD) the maintenance and upgrading of the water quality
                     of the estuary, and to ensure the natural seasonal flow fluctuations of fresh water into the estuary.
                     There are no policies that address stormwater runoff, septic tanks, or regulating land use, and the
                     only policy directive that specifically addresses off-site conditions encourages DER and the
                     Enviroranental Regulatory Commission to extend OFW designations to wetlands above the
                     MHW line in areas within or adjacent to the aquatic preserve. However, this policy directive is
                     generally consistent with the SWIM plan.

                     The Hillsborough County comprehensive plan appears fairly consistent with the Tampa Bay
                     SWIM plan regarding the regulation of septic tanks and stormwater runoff, particularly
                     concerning septic tanks. Objectives and policies within the Hillsborough County comprehensive
                     plan that address nonpoint source water pollution include:

                        0   require all new developments to continue to provide stormwater treatment facilities which
                            meet or exceed appropriate local, state, and federal regulations

                        0   require appropriate existing development planned for expansion, modification, and/or
                            replacement to provide some effective form of stormwater treatment, in addition to new
                            development

                        0   restrict septic tanks in the CHHA

                        0   require Best Management Practices (BMPs) within the county where needed to minimize
                            poor quality runoff

                        0   require existing septic systems to connect to the county's wastewater treatment system

                        0   use wetlands for stormwater treatment pending pretreatment; doesn't support lowered
                            surface water quality standards & classification

                        0   provide improved wastewater treatment to developed areas where persistent water quality
                            problems from poorly functioning septic tank systems exist

                     Additional comprehensive plan policies addressing nonpoint source water pollution include:

                        0   request local and state agencies to improve monitoring and compliance enforcement of
                            point and nonpoint discharges

                        0   request the development via an interagency agreement of scientifically-defensible siting
                            criteria, performance standards, and density limitations for septic systems (with special
                            criteria for siting adjacent to Class 1, H, and Outstanding Florida Waters (OFWs))

                        0   restrict development around the Cockroach Bay Aquatic Preserve

                        0   under the Cockroach Bay Overlay District Study, part of the Cockroach Bay plan
                            amendment (explained below), seek to establish a buffer area between the preserve and
                            adjacent upland habitat land uses in order to help protect water quality and aquatic
                            vegetative habitats from degraded stormwater runoff25

                     2SPolicy C-37.4, part of the Cockroach Bay Plan Amendment CPA 92-03, seeks to establish a s cientifically-
                     defensible buffer zone between the Cockroach Bay Aquatic Preserve and adjacent upland uses in order to


                                                                     65








                         ï¿½   develop a program in conjunction with the EPC, SWFWMD, DNR, TECO and other
                             property owners to identify drainage system alterations that facilitate water quality and
                             habitat value improvements in the Cockroach Bay Aquatic Preserve utilizing a variety of
                             mechanisms, such as the use of natural plant communities for the treatment of stormwater,
                             detention of stormwater, and purchase of lands by the Environmental Lands Acquisition
                             and Protection Program (ELAPP) for multiple use as wildlife habitat and stormwater
                             management
                         ï¿½   request the ELAP Program to purchase suitable parcels in the Area of Concern26 and
                             incorporate site restoration projects that achieve water quality and/or habitat benefits to
                             the Preserve, and

                         ï¿½   provide public education to residential homeowners addressing surface water quality
                             impacts of improperly managed lawn litter and fertilizer/herbicide/pesticide applications.

                      Most of these policies are consistent with the Tampa Bay SWIM plan and the Cockroach Bay
                      aquatic preserve plan. Those policies that lack an equivalent policy within the Tampa Bay SWIM
                      plan and the Cockroach Bay aquatic preserve plan do not appear to be inconsistent with either
                      plan.

                      The Manatee County comprehensive plan appears fairly consistent with the Tampa Bay SWIM
                      plan and the Terra C6ia aquatic preserve plan; however, the Manatee plan has several policies
                      addressing this issue that do not have an equivalent within the Hillsborough plan. For instance,
                      the Manatee plan calls for n-dnin-jzing and/or elin-tinating pollutant loadings to Tampa Bay and
                      its tributaries from septic tank seepage; and specifically coordinating with SWFWMD's SWIM
                      program to complement regional water quality management programs with local stormwater
                      prograrnis.

                      Additional policies within the Manatee County plan that addre        ss nonpoint source water
                      pollution include:

                         ï¿½   require all projects to meet all applicable local, state and federal stormwater regulations
                             and comply with all coastal management plans (the most stringent standard applying)

                         ï¿½   require onsite detention of runoff to remove pollutants

                         ï¿½   consider county implementation of needed improvements to poorly maintained or
                             functioning private stormwater management systems and recovering the cost with special
                             assessments


                         ï¿½   use natural water storage areas for stormwater retention (if consistent with local, state, and
                             federal regulations)

                         ï¿½   prohibit alteration of natural watercourses or floodways unless in the public interest, and


                      prevent degradation of water quality and aquatic vegetation habitats as part of the Cockroach Bay Overlay
                      Study called for in Policy C-37.13. This policy is not inconsistent with both the SWIM and Cockroach Bay
                      Aquatic Preserve management plans, and is being currently implemented with the recent
                      ELAPP/SWIM/Coastal America-funded. land purchase and restoration adjacent to Cockroach Bay.
                      26The first step of the objective of the Cockroach Bay Plan Amendment is to identify the specific area
                      wherein new permitted discharges of stormwater runoff are likely to impact the Aquatic Preserve. This area
                      is to be known as the "Area of Concern," based on review of the boundaries of the Aquatic Preserve, the
                      Little Manatee River watershed, and drainage basins which discharge to Cockroach Bay and the Aquatic
                      preserve.



                                                                          66








                            protect natural drainage features and preserve their function for detention of stormwater.

                     Objectives or policies present in the SWIM plan but not included in the Manatee plan include
                     encouraging public education regarding the causes, effects, and solutions to the effects of water
                     pollution from degraded stormwater runoff; requiring, if feasible, the quality of stormwater
                     discharges be no worse than the state water quality criteria or the existing quality of the receiving
                     waterbody, whichever is better; and encouraging basinwide stormwater management studies to
                     determine existing stormwater deficiencies and future needs.

                     The City of Palmetto comprehensive plan has a number of policies that address nonpoint source
                     stormwater runoff.   'The majority of these appear to not be inconsistent with both the Tampa Bay
                     SWIM plan and the Terra Ceia aquatic preserve plan. However, according to DER, the City's
                     comprehensive plan lacks specific, measurable objectives and policies that direct programs and
                     activities towards correcting existing estuarine water quality problems from the wastewater
                     treatment plan discharge, septic tank usage, and stormwater runoff from agricultural and
                     urbanized areas of the City. In addition, the City's comprehensive plan does not specifically
                     recognize or coordinate with SWFWMD's SWIM program for Tampa Bay. Another policy that
                     restricts septic tank use to 'areas in which their efficient use can be determined without
                     environmental degradation of water resources or threat to public health' appears to be
                     inconsistent with another policy requiring all future urban development to be served by the
                     City's wastewater treatment system in order to prevent environmental degradation of surface
                     waters, marine & aquatic resources, and underlying groundwater resources.



                     [31    Phosphate Processing Operations

                     There is consistency among all three types of plans regarding phosphate processing operations.
                     The Tampa Bay SWIM plan calls for reducing point and nonpoint source pollutant loading to
                     attain the water quality necessary to restore and maintain healthy and productive natural
                     systems, protect human health, and attain the highest possible water use classification. Under this
                     initiative, toxic pollutants such as gypsum, a waste byproduct of phosphate mining, are to be
                     managed in such a manner so as to preclude all future adverse environmental impacts on Tampa
                     Bay. All other previously incurred environmental impacts on Tampa Bay resulting from
                     mismanagement of gypsum fields or other contaminant sources should be readdressed.

                     The Hillsborough County comprehensive plan mandates that mining activities within the county
                     shall comply with or exceed state regulations related to land reclamation and wetlands, water
                     quality and quantity, and wildlife habitat protection; restrict mining in ecologically unsuitable
                     areas; and continue to enforce the county's mining ordinance to prohibit mining within 25-year
                     river floodplains and restrict mining within the 100-year floodplains of rivers and streams.
                     However, there is no policy requiring reclamation or readdressment of previously incurred
                     environmental impacts from mining or management of waste byproducts.

                     The Cockroach Bay and Terra Ceia Aquatic Preserve management plans both prohibit the drilling
                     of oil and gas wells, the mining of materials, and dredging for the primary purpose of obtaining
                     upland fill within the aquatic preserve.

                     The Manatee County comprehensive plan is less restrictive about mining in environmentally
                     sensitive areas than Hillsborough County's plan is. The former requires new applications for
                     mineral resource extraction to be reviewed for adverse environmental impacts and to be in
                     compliance with county Reclamation Ordinance No. 81-22, although this policy and its
                     implementation mechanism lacks necessary wildlife protection measures, according to the
                     Florida Game and Freshwater Fish Commission (FGFWFC). The Manatee County comprehensive


                                                                       67









                     plan also requires that all applications for mineral extraction contain a reclamation program
                     which requires reestablishment of the "form and function of an appropriate land cover."27 There
                     is no policy requiring reclamation or readdressment of previously incurred environmental
                     impacts from mining or management of waste byproducts.

                     There is no mention of phosphate n-dning activities within the City of Palmetto comprehensive
                     plan.



                     [41   Urbanization/Land UsetWildlife Habitat

                     As mentioned above, this is one of the most inclusive and relevant issues binding all three types
                     of plans in this study together, concentrating on land use and associated development regulations
                     and their effect on ecosystems and wildlife habitat, including Tampa Bay. This includes programs
                     to conserve or preserve land (for the purposes of habitat protection and treatment of runoff,
                     among others), as well as regulation of both private and public development and other activities
                     in upland, riverine, intertidal and subtidal areas and their impact on water quality (water quality
                     and the means to address it being perhaps the most common issue between the three "s of
                     plans).

                     The Tampa Bay SWIM plan presents two major initiatives with associated programs and
                     strategies that address land use and its effects on water quality and habitat. These initiatives
                     include: (1) providing sound environmental policies governing land use which impact the Tampa
                     Bay ecosystem, and (2) preserving, enhancing, and/or restoring upland, riverine, intertidal and
                     subtidal habitats for biological communities, pollution abatement, and aesthetic and recreational
                     purposes.

                     Programs under the first initiative include: encouraging appropriate land use at the local, state,
                     and federal level; encouraging appropriate development or agricultural use of land bordering the
                     bay and its tributaries; evaluating the adequacy of existing zoning laws, environmental laws and
                     permitting processes as related to land use and environmental resources, and promoting
                     envirorunentaIly sound projects and practices. Major strategies for carrying out these programs
                     include the development, evaluation, and promotion of techniques, policies, and laws through
                     means such as technical assistance to local governments, district review of local comprehensive
                     plans and land use ordinances, and review of district rules pertaining to land use and
                     development practices.

                     Programs under the second initiative include: promoting the preservation of relatively pristine or
                     functional habitats already in existence; expanding and/or exchanging (mitigating) existing
                     habitats as replacement for habitat losses throughout the bay, tributaries, and associated uplands,
                     and restoring habitats as replacement for habitat losses throughout the bay, tributaries and
                     adjacent uplands. Major strategies for carrying out these programs include promotion and
                     support of local, state, and federal legislation designed to protect habitat, comprehensive
                     planning, and environmental education, stressing consistency among governments, enforcement
                     of existing laws governing habitat protection; existing land acquisition programs; and taxing
                     initiatives for acquisition. The augmentation and restoration of existing and historical habitat is
                     also a strategy that the district is very involved in, both for district lands and local government
                     properties within the Tampa Bay watershed (the latter utilizing cost-sharing between the district
                     and local governments).



                     27Policy 3.3.4.Z ftnalm County Comrahensive Plan.


                                                                      68








                      In contrast to the Tampa Bay SWIM plan, which seeks to influence land use within the Tampa
                      Bay watershed and to preserve and restore conservation areas, both aquatic preserve
                      management plans are preservation-oriented, and call for the protection and, where possible,
                      enhancement of threatened and endangered species habitat within the aquatic preserve.
                      Additional onsite policies and procedures include:

                            require additional authorization and approval for activities using submerged lands within
                            the aquatic preserve in areas where manatees are present.

                            prohibit development activities within the aquatic preserve that adversely impact
                            saltmarshes and other valuable submerged habitat (unless a prior determination has been
                            made by the Board of Trustees of the State of Florida of overriding public importance and
                            that no reasonable alternatives exist). Selected onsite policies and procedures include:

                            1.  identify and develop guidelines for areas and plant communities in need of restoration

                            2.  discourage developments within the aquatic preserve that require restoration or
                                mitigation

                            3.  develop an exotic plant control and removal plan following monitoring

                            4.  develop a cumulative impact analysis program for analyzing proposed uses within the
                                aquatic preserve.

                        0   prohibit the drilling of oil and gas wells, the mining of materials, and dredgi ng for the
                            primary purpose of obtaining upland fill within the aquatic preserve.

                        0   prohibit non-water dependent uses of submerged lands (including floating residential
                            units) within the aquatic preserve except in those cases where the Board has determined
                            that the project is overwhelmingly in the public interest and no reasonable alternatives
                            exist

                        a   prohibit storage of toxic, radioactive, or other hazardous materials within the aquatic
                            preserve.

                      Again, the operative phrase for all of these policies is "within the aquatic preserve." There is only
                      one policy in both aquatic preserve management plans that indirectly calls for influencing land
                      use offsite:

                            require, through the efforts of DER and SWFWMD, the maintenance and upgrading of the
                            water quality of the estuary and ensure the natural seasonal flow fluctuations of fresh
                            water into the estuary. In particular encourage DER and the Environmental Regulatory
                            Cornn-dssion to extend OFW designations to wetlands above the MHW line in areas within
                            or adjacent to the aquatic preserve.

                      Overall, these aquatic preserve policies are eitherconsistent with or not inconsistent with the
                      above SWIM plan policies. The possible exception is the aquatic preserve policy that discourages
                      developments within the aquatic preserve that require restoration or mitigation vs. the SWIM
                      plan strategy calling for the evaluation, promotion, and/or drafting of improved laws for
                      mitigation policies and practices, and the evaluation of mitigation banking and other criteria for
                      monitoring and determining the success of a project.28 The former is clear on the practice of


                      28Strategy #3, Program 1.c, Development And Public Use Initiative 1, Tampa Bay SWIM Plan.


                                                                       69








                      mitigation within the preserve, and the latter supports research and "fine-tuning" of mitigation
                      laws, policies, and practices throughout the Tampa Bay area.

                      In contrast to the SWFWMD's strategy of encouraging environmentally sound and appropriate
                      land use, and the aquatic preserves' concentration on protection of onsite resources (and lack of
                      control of land use outside preserve limits), is the power of local governments to regulate land
                      use. This power is explicitly codified within the local comprehensive planning process and the
                      subsequent creation and adoption of mandated land development regulations. Subsequently,
                      both the Hillsborough County and Manatee County comprehensive plans have a variety of CON
                      relating to land use, development practices, and conservation, especially within the coastal area.

                      The first requirement for consistency within this issue area is the recognizance by local
                      governments of any existing resource protection plans (e.g., aquatic preserve management plans)
                      within the coastal management element, along with regulatory or management techniques for
                      coordinating with the existing resource protection plans(s). Both Hillsborough County and
                      Manatee County comprehensive plans recognize the aquatic preserves within their jurisdictions,
                      and have issued policies within several elements for establishing coordination and consistency
                      with the respective aquatic preserve management plans. (This is discussed further within the
                      Intergovernmental Coordination and Planning Consistency issue below.)

                      Beyond this initial requirement, both comprehensive plans appears to be mostly consistent with
                      the Tampa Bay SWIM plan and the aquatic preserve plans. For instance, the Hillsborough County
                      comprehensive plan has a number of land development policies calling for:

                        ï¿½   protection of conservation, preservation, and other environmentally sensitive areas

                        ï¿½   multiple use of public lands, such as parks, stormwater treatment, and wildlife habitat

                        ï¿½   give priority to locating water-dependent or related )and uses along the shoreline of the
                            coastal area (but restricting development of water-related land uses by dredging and filling
                            wetlands or the natural shoreline)
                                                 '@ landfills and hazardous waste facilities !hat -may adversely affect rivers
                        ï¿½   prohibit solid waste
                            and tributaries

                        ï¿½   discourage dredging and filling of wetlands

                        ï¿½   protect floodplains

                        ï¿½   encourage buffers for wetlands, floodplains, and waterbodies, and

                        ï¿½   address cumulative environmental impacts.

                      The Cockroach Bay plan amendment has several policies that directly address land use and
                      assodated development regulations and their effect on ecosystems and wildlife habitat. These
                      include:

                            under the Cockroach Bay Overlay District Study, part of the Cockroach Bay plan
                            amendment (explained below), seek to establish a buffer area between the preserve (part of
                            the Area of Concern) and adjacent upland habitat land uses in order to help protect water
                            quality and aquatic vegetative habitats from degraded stormwater runoff

                            develop a program in conjunction with the EPC, SWFWMD, DNR, TECO and other
                            property owners to identify drainage system alterations that facilitate water quality and


                                                                         70








                              habitat value improvements in the Cockroach Bay Aquatic Preserve utilizing a variety of
                              mechanisms, such as the use of natural plant communities for the treatment of stormwater,
                              detention of stormwater, and purchase of lands by the ELAP Program for multiple use as
                              wildlife habitat and stormwater management, and

                              request the ELAP Program to purchase suitable parcels in the Area of. Concern and
                              incorporate site restoration projects that achieve water quality and /or habitat benefits to
                              the Preserve, and

                       These policies appear to be consistent with both the Tampa Bay SWIM plan and the Cockroach
                       Bay Aquatic Preserve management plan. However, according to DCA, a policy requiring soil
                       capability analyses for flood hazards, stability, etc. to be considered for new development
                       appears to be inconsistent with Chapter 163, FS, and 9J-5.006(3)(b)l, and that this policy needs to.
                       be strengthened to guide or coordinate new development to areas having suitable soils.

                       Mitigation, used by local governments as a tool for compensating for the impacts of new
                       development in environmentally sensitive areas, is controversial. Both local comprehensive plans
                       address mitigation; however, they appear not to perhaps be fully consistent with both aquatic
                       preserve plans regarding mitigation as a condition of development within aquatic preserves,
                       particularly in areas where seagrasses are present.

                       Both the Cockroach Bay and Terra Ceia Aquatic Preserve management plans call for prohibiting
                       development activities within the aquatic preserve that adversely impact saltmarshes and other
                       valuable submerged habitat. They also discourage developments within the aquatic preserve that
                       require restoration or n-dtigation.79 In contrast, the future land use element of the Hillsborough
                       County comprehensive plan supports mitigation as a condition of development by calling for
                       mitigation of adverse impacts from development, and requiring mitigation as a condition of
                       issuing development orders, including within Natural Preservation Areas (where development
                       for public use has been decided to be in the public interest), othernatural environmental
                       systerrW as defined in the conservation and coastal management elements, and in the county's
                       River Corridor Overlay Districts. Another policy within the same element, however, calls for
                       preserving wetlands by discouraging the use of mitigation, dredge and fill, and similar
                       development activities through revising the county's land development regulations to strictly
                       limit these practices. Additional policies also call for protection of tidal and other wetlands by
                       prohibiting 'unmitigated encroachment,' in addition to requesting regulatory agencies to develop
                       a unified and coordinated wetland mitigation and restoration program, consistent with the
                       Tampa Bay SWIM plan.

                       However, according to both the Hillsborough County Environmental Protection Commission
                       (EPQ, the local environmental regulatory agency for Hillsborough County, and DNIZ, there is no
                       conflict between the EPCs rules and DNR`s rules for mitigation in most aquatic preserves (and
                       no conflict between the EPC's regulations and the comprehensive plan.) Mitigation is not allowed
                       within pristine areas of the Terra Ceia and Cockroach Bay aquatic preserves, but is allowed or at
                       least considered within the less-pristine areas of the preserve. Specifically, on mitigation would
                       be accepted for a proposed project that would impact a resource area designated Resource
                       Protection Area (RPA) I or 2. A proposed project would be considered, and mitigation accepted,

                       "Additionally, both plans state that "Imlitigation measures, other that those associated directly with
                       programs for habitat reestablishment or rehabilitation, are viewed by the Board [of Trustees] as inadequate
                       attempts to compensate for alteration of essentially natural ecological conditions through the establishment
                       of artificial resource systems. Therefom mitigation will only be encouraged in conjunction with on and off-
                       site projects that are designed to reestablish natural habitat values and where the aquatic preserve will
                       biologically and aesthetically benefit from the proposed restoration actions." (Terra Ceia and Codcroach Bay
                       Aquatic Presem Managenwnt PLan(s), pp. 103 and 101 respectively.)


                                                                             71








                       if the area was designated an RPA 3. (RPA 1 is a resource. area of natural or pristine qualities
                       while an RPA 3 is usually a barren area with a sandy bottom with little of no vegetation.) This is
                       essentially the same application of EPC's wetlands rule, which governs the protection and use of
                       wetlands within Hillsborough County.30

                       The EPC, created by Florida Statute, is independent of the Hillsborough County Board of County
                       Commissioners and the County Administrator, and is not required to abide by or implement the
                       GOPs within the county's comprehensive plan. Accordingly, the county works cooperatively
                       with the EPC to implement and enforce the county's comprehensive plan. The EPC's wetland
                       policies and regulations supersede those in the comprehensive plan, and they also apply to the
                       Cockroach Bay aquatic preservOl Countywide, the EPC's wetlands rule seeks to preserve
                       wetlands, but also offers an alternative of nifigation as a condition of development of such
                       wetlands. In fact, EPC's rule has been overall fairly successful, resulting in a net paper gain of 298
                       acres of wetlands since 1985 as the result of mitigation.32

                       Hillsborough County has several plan amendments that are of significance to Cockroach Bay.
                       Plan amendment CPA 92-01, proposing a new growth management section to the Future Land
                       Use element, presents a Urban Service Area Map showing an Expansion Area overlapping into a
                       Wellfield Protection Area and the Cockroach Bay Aquatic Preserve. This overlap appears to be
                       inconsistent with Policy 4.3 of the Coastal Management element and Policy 18.3 of the
                       Conservation element. However, this overlap is most likely deliberate, and is part of an ongoing
                       controversy between the county, the state, and SWFWMD over the relationship between building
                       density and the provision and effectiveness of various wastewater treatment facilities within the
                       coastal areas of the county. (The County's strategy in these areas has been to encourage higher
                       building densities so that this will make the provision of centralized wastewater treatment
                       facilities preferable to septic tanks, which has been a major problem within the coastal area,
                       particularly within the watershed of the Manatee River and Cockroach, Bay.)

                       A land use issue in Hillsborough County that was significant several years ago, but is now moot,
                       was the tentative siting of an Tampa Electric Company (TECO) electrical power generating
                       facility on the southern shore of Cockroach Bay. Although the Hillsborough City-County
                       Planning Commission developed an Electrical Power Generating Facility (EPGF) land use
                       category for this purpose,@ the Cockroach Bay site was enviromneAtally controversial, and several
                       agencies and other groups filed objections to this land use. A citizen's committee was formed to
                       review the issues involved in locating such a facility in this location, and, partly a result of their
                       findings, TECO decided to build this facility in another location inland. Although the proposed
                       site on Cockroach Bay did not end up in the published future land use map as EPGF, this
                       category is still extant within the county's comprehensive plan (albeit with restrictions).

                       As a result of this threatened designation and other issues affecting Cockroach Bay the citizen's
                       committee brought to light, the Hillsborough CAty-County Planning Commission, with the
                       assistance with the county's Environmental Protection Commission, was directed to come up
                       with a full set of environmental data for Cockroach Bay for the purpose of creating a protection
                       plan and comprehensive plan amendment (CPA 92-03) for the protection of the bay and its

                       30thapter 1-11, Rules of the Environmental Protection Commission of Hillsborough County, Florida.
                       31By an act of the Legislature of Florida, the Tampa Port Authority owns and has jurisdiction over all
                       submerged lands within Hillsborough County (excluding the Cockroach Bay Aquatic Preserve). DNR,
                       although it has jurisdiction over the CBAP, only leases these lands for the preserve. Those who wish to
                       develop submerged lands need permission from both the EPC and the Port Authority (and DNR when
                       developing within the Cockroach Bay Aquatic Preserve).
                       32Courtney, C.M. , 'Me Role of a Local Government in Wetlands Protection" (to be presented to the Society
                       of Wetland Scientists, 14th Annual Meeting, Edmonton, Alberta, May 30-June 3,1993). Ecosystems
                       Management Division, Environmental Protection Commission, Hillsborough County, Florida.


                                                                            72








                     resources. The coordination of this effort takes place through the Cockroach Bay Aquatic Preserve
                     Management Advisory Team (CAPMAT), and involves a number of different local, state, and
                     federal agencies and other organizations. (The development of this amendment, the data
                     supporting it, the county's management plan, and the amendment itself, are discussed elsewhere
                     in this report.)

                     The Manatee County comprehensive plan appears to be less supportive of mitigation, although it
                     is still available as a tool to allow development activities such as dredge and fill in wetlands
                     where deemed necessary or justifiable, or to allow wetland encroachments under the same
                     criterion. Other selected policies include:

                        0   require special approval for projects adjacent to rivers, lakes and streams

                        0   prohibit new development within the floodway of any perennial stream

                        0   maximize the exclusion of all proposed development from the 25-year floodplain

                        0   n-dnin-dze alteration of any lake or stream by limiting the density credit transferred

                        9   limit the extent and impact of land development in the Coastal Area and CHHA so as to
                            preserve the high value of coastal resources

                        a   prohibit alteration of coastal wetland habitat except in instances of proposed water-
                            dependent uses, overriding public interest, deepwater ports or to avoid a taking. (DNR's
                            comments on the proposed version of this policy state that the county should carefully
                            weigh these exceptions, and that future activities of this type should be sited in areas that
                            have already been disturbed, especially deepwater port facilities.)

                        a   require any encroachments into wetlands be mitigated pursuant to the habitat-specific
                            mitigation ratios described and require monitoring of mitigation success

                        a   require 50 ft. buffer zones for post-development jurisdictional wetlands on development
                            sites within the coa9tal area contiguous with any special waters

                        0   review all proposed developments for compatibility with and determination of cumulative
                            impacts on adjacent natural resource reservation areas,-and

                        *   require all proposed development adjacent to the Terra Ceia Aquatic Preserve ensure that
                            no significant degradation of water quality, shoreline or estuarine habitat occurs.

                     The above policies appear relatively consistent with the Tampa Bay SWIM plan and the Term
                     Ceia Aquatic Preserve management plan. However, DNR, in their review of Manatee County's
                     proposed comprehensive plan, urged the county to take a stronger stand on mitigation, that this
                     position should be upfront, and that it should be monitored for the prescribed number of years.
                     Furthermore, DNR thinks that areas used for mitigation should, at the outset of development,
                     become conservation sites belonging to the county and not further developed.

                     Review comments for both counties' comprehensive plans have urged that their respective
                     objectives and policies concerning mitigation be strengthened by eliminating or restricting
                     mitigation beyond what is presently allowed. This has been a controversial issue for the last
                     decade, in that local governments have been forced to use mitigation as a tool to allow at least the
                     partial development of privately-owned environmentally sensitive lands in order to avoid the
                     taking issue, whereas state natural resource agencies such as DER and DNR have been less
                     supportive of mitigation, and generally discourage it.


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                     The Hillsborough County comprehensive plan has several policies concerning wildlife and
                     wildlife habitat, including protecting significant wildlife habitat and prevent any further net loss
                     of essential wildlife habitat; developing and implementing a comprehensive program to conserve
                     and protect significant wildlife habitat from development activities; restricting development
                     activities which adversely affect areas identified and mapped as essential wildlife habitat; and
                     considering the effects of development on significant wildlife habitat and protect wildlife
                     corridors during the land use planning and development review process. These policies are not
                     inconsistent with both the SWIM plan and the Cockroach Bay aquatic preserve plan.

                     The Manatee County comprehensive plan has several policies as well that address wildlife
                     habitat. These include protecting and enhancing significant vegetative communities which
                     support wildlife in the Coastal Area; protecting native wildlife and their habitat from
                     development which would significantly alter their function and character; requiring the
                     preservation of native habitat during land development activities; and encouraging the
                     development or preservation of wildlife corridors by intergovernmental coordination and
                     Transfer of Development Rights. These policies are not inconsistent with both the SWIM plan and
                     the Cockroach Bay aquatic preserve plan.

                     The City of Palmetto comprehensive plan has a number of elements that directly address
                     urbanization/land use/wildlife habitat, and that support many of the initiatives and programs of
                     the Tampa Bay SWIM plan for this issue. However, according to DCA, the City's comprehensive
                     plan lacks objectives and/or policies within its coastal management element that address:

                       ï¿½   improving estuarine environmental quality

                       ï¿½   the protection, conservation, and restoration of beaches or dunes, and

                           coordinating with other local governments to ensure adequate sites for water-dependent
                           uses, prevent estuarine pollution, control surface water runoff, protect living marine
                           resources, reduce exposure to natural hazards, and ensure public access.

                     The City of Palmetto comprehensive plan, according to DCA, also lacks objectives and/or
                     policies within its conservation element that address.:

                           the conservation, appropriate use, and protection of native vegetation and fisheries

                           the protection and conservation of the natural functions of existing soils, fisheries, rivers,
                           bays, floodplains, and harbors, and

                           the protection of existing natural reservations.

                     The City of Palmetto comprehensive plan, according to DER, also lacks a policy within its coastal
                     element that identifies regulatory or management techniques for the restoration or enhancement
                     of disturbed or degraded natural resources.

                     Overall, the City's comprehensive plan appears not to give adequate consideration to the Terra
                     Ceia Aquatic Preserve management plan, particularly within the City's land use criteria for
                     water-dependent uses and development within wetlands. The City's comprehensive plan also
                     appears to rely heavily on mitigation of adverse impacts as a planning technique to protect and
                     enhance natural resources such as wetlands and wildlife habitat. According to agency reviews of
                     the draft version of the City's comprehensive plan, the City's use of mitigation as outlined in
                     these policies is not adequate in its definition or specificity for this purpose. This is also true
                     concerning the City's land acquisition program or other activities.



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                      151   Agricultural Activities and Effects on Water Quality and Living Resources

                      The Tampa Bay SWIM plan recognizes agricultural stormwater runoff as a threat to the water
                      quality of Tampa Bay, and incorporates several strategies designed to address this issue. These
                      strategies include:

                            encourage the development of soil and water conservation plans employing Best
                            Management Practices (BMPs) for agricultural, aquacultural, and silvicultural operations in
                            the Tampa Bay watershed; identify priority sub-basins; develop conservation plans for
                            landowners in priority sub-basins by the Soil Conservation Service with assistance from the
                            district and local soil and water conservation districts

                            ensure compliance with approved conservation plans through establishment of new
                            positions within the district with responsibility for compliance monitoring and
                            enforcement, and

                            reduce the levels of nutrients and other contaminants in agricultural stormwater discharges
                            by requiring if feasible, that the quality of stormwater discharges be no worse than the state
                            water quality criteria or the existing quality of the receiving waterbody, whichever is better.

                      Neither of the two aquatic preserve management plans have policies that address agricultural
                      runoff and its effects. They both require only, through the efforts of DER and SWFWMD, the
                      maintenance and upgrading of the water quality of the estuary and ensure the natural seasonal
                      flow fluctuations of fresh water into the estuary. Regardless, there are several ongoing activities
                      that directly address agricultural and other types of runoff and their effects on Cockroach Bay.
                      These include a combined land acquisition and stormwater treatment project on the northern
                      shore of Cockroach Bay funded by the federal Coastal America program, Hillsborough County,
                      and SWFWMIYs SWIM program (for a total contribution of approximately $1 rnillion), and an
                      additional award of a $400,000 U.S. Environmental Protection Agency (EPA) Clean Water Act
                      Section 319(h) Nonpoint Source Pollution Set-Aside grant to fund construction of a stormwater
                      system designed to treat agricultural runoff presently entering the bay. (The latter is specifically
                      designed to address sediment contan-dnation from polluted runoff.) This project is described
                      further within this report

                      This project, along with the agricultural BMPs called for in both Hillsborough and Manatee
                      County comprehensive plans, are perhaps the most visible manifestation of consistency
                      regarding agricultural runoff for the Cockroach Bay Aquatic Preserve and (excluding the two
                      projects above) the Terra Ceia Aquatic Preserve.

                      The City of Palmetto comprehensive plan contains no objectives or policies that address this
                      issue.




                      [61 Mosquito Control Activities and Effects on Wetlands Habitat, Water Quality, And
                            Living Resources

                      Mosquito control activities such as diking, ditching, and the application of various biocides have
                      historically had deleterious effects on wetlands habitat, water quality, and living resources in
                      estuaries.






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                       The Tampa Bay SWIM plan does not specifically address mosquito control activities, although
                       Natural Systems Initiative 1 (preserving, enhancing, and/or restoring upland, riverine, intertidal
                       and subtidal habitats) and its strategy of promoting the preservation of relatively pristine or
                       functional habitats could be used to address this issue where necessary.

                       In contrast, both Terra Ceia and Cockroach Bay aquatic preserve plans prohibit mosquito control
                       practices (ie., diking, ditching) within the aquatic preserve that require habitat modification or
                       manipulation (unless there are no reasonable alternatives and failure to conduct such practices
                       would result in a threat to public health). Both plans also limit pesticide and biocide use within
                       the aquatic preserve to those that are approved by EPA for wetland and aquatic application.

                       There are no GOPs in either Hillsborough or Manatee County comprehensive plans that reference
                       mosquito control activities, past or present. However, although both Hillsborough and Manatee
                       Counties have only one mosquito control district each, both Terra Ceia and Cockroach Bay
                       aquatic preserve plans call for preserve managers to become familiar with the policies and
                       activities of each district, and to work with and monitor the activities of these districts.

                       The City of Palmetto comprehensive plan contains no objectives or policies that address this
                       issue.

                       Overall, there is no consistency between the t  hree types of plans for this issue.



                       171   Destruction/decline of Seagrasses

                       This is one of the most important issues affecting the Tampa Bay estuary. Seagrasses, important
                       as nurseries for many species, are affected by increased turbidity, thermal discharges from power
                       plants, dredge and fill, and physical damage from proUller scarring, and have declined to
                       approximately 19 percent of their coverage since 1876.

                       The Tampa Bay    SWIM plan has a number of programs and strategies that directly address the
                       causes of decline of seagrasses that are incorporated under two major initiatives. The plan calls
                       for (1) preserving, enhancing, and/or restoring upland, riverine, intertidal and subtidal habitats
                       (explained in detail above in Urbanization/Land Use/Wildlife Habitat), and (2) reducing
                       incidental destruction of environmentally sensitive areas. (The latter includes a program of
                       distributing signs and other markers throughout the bay in seagrass and other environmentally
                       sensitive areas.)

                       Because they are a key component of the submerged habitat within both Terra Ceia and
                       Cockroach Bay Aquatic Preserves, their management plans contain an extensive variety of
                       policies to protect this resource. These include:

                        ï¿½    protect and, where possible, enhance threatened and endangered species habitat within the
                             aquatic preserve. Additionally, require additional authorization and approval for activities
                             using submerged lands within the aquatic preserve in areas where manatees are present
                             (additional restrictions may apply)

                         ï¿½   prohibit development activities within the aquatic preserve that adversely impact
                             saltmarshes and other valuable submerged habitat (unless a prior determination has been
                             made by the Board of overriding public importance and that no reasonable alternatives
                             exisO. Additional onsite policies and procedures include:

                       33p. 27, Tanipa Bay SMM Plan, 1988.


                                                                          76








                             1.  identify and develop guidelines for areas and plant communities in need of restoration.

                             2.  discourage developments within the aquatic preserve that require restoration or
                                 mitigation.

                             3.  develop an exotic plant control and removal plan following monitoring.

                             4.  develop a cumulative impact analysis program for analyzing proposed uses within the
                                 aquatic preserve.

                         0   prohibit the drilling of oil and gas wells, the n-dning of materials, and dredging for the
                             primary purpose of obtaining upland fill within the aquatic preserve

                         a   prohibit non-water dependent uses of submerged lands within the aquatic preserve except
                             in those cases where the Board has determined that the project is overwhelmingly in the
                             public interest and no reasonable alternatives exist, including floating residential units

                         0   limit pesticide and biocide use within the aquatic preserve to those that are approved by
                             the EPA for wetland and aquatic application, and

                         0   prohibit the construction of new deepwater ports within the aquatic preserve boundaries.

                      One of the most potent activities that can impact seagrasses within aquatic preserves is the
                      emplacement of docks and piers. DNR has permitting authority for docks and piers within
                      aquatic preserves, but they cannot forbid the construction of docks and piers as long as they meet
                      criteria established by law and rule. However, they can influence their placement and design, and
                      do so when necessary.

                      Overall, the three types of plans within the study area appear to be generally consistent for this
                      issue. Both I-lillsborough and Manatee County comprehensive plans address seagrasses by
                      restricting development activities in submerged areas containing "significant seagrass" or
                      "significant seagrass habitat."34 However, in the case of the Manatee County comprehensive
                      plan, the terms "significant" and "adversely affect," part of a policy prohibiting non-water-
                      dependent development in submerged areas containing significant seagrass, are not defined.
                      Additionally, although Policy 4.1.1.1 (Conservation element) of the Manatee County
                      comprehensive plan prohibits any non-water-dependent development activities in submerged
                      areas containing "significant" seagr-ass habitats, it qualifies this policy by stating " . . . except as
                      expressly permitted by other policies (e.g., Policy 4.12.5) ... " Policy 4.12-5 restricts "... dredge
                      and fill operations within the Coastal Area to operations which facilitate the continuing use of
                      e3cisting channels, operations associated with appropriate wafer-dependent uses [italics added], or
                      operations caused by limited tidal circulation or other deficiencies of the environmental system."

                      This policy is also inconsistent with Policy 2.6 (Coastal Management element) of the Hfflsborough
                      County comprehensive plan, which prohibits development activities on submerged lands
                      containing significant seagrass habitat. Policy 4.1.2.5 could also possibly permit development in
                      areas where significant seagrass habitats are present. Furthermore, if development is allowed as
                      such, even if mitigated, and the aquatic preserve management plans call for prohibiting such
                      development within aquatic preserves (in addition to the SWIM plan calling for protecting and
                      restoring seagrass areas), then there is a possible inconsistency (or perhaps a lack of clarification)
                      among these two plans regarding development in areas where seagrasses are present.


                      34Policy 2.1, Coastal Management element and Policy 3.3, Conservation and Aquifer Recharge element. See
                      matrices for o more detailed listing of policies.


                                                                         77








                      Policy C-37-4 (Future Land Use element), part of the Cockroach Bay plan amendment CPA 92-03,
                      seeks to establish a scientifically-defensible buffer zone between the Cockroach Bay Aquatic
                      Preserve and adjacent upland uses in order to prevent degradation of water quality and aquatic
                      vegetation habitats as part of the Cockroach Bay Overlay Study called for in Policy C-37.13. This
                      policy is not inconsistent with both the SWIM and Cockroach Bay Aquatic Preserve management
                      plans. However, in DNR review comments on the earlier version of this policy (18.3,
                      Conservation and Aquifer Recharge element) in the draft comprehensive plan, the agency
                      suggested that the county needed to readdress its future land use designations if the county
                      wants a buffer around the preserve.

                      Policy C-37.5, also part of the Cockroach Bay plan amendment CPA 92-03, requires the Board of
                      County Commissioners to establish a Cockroach Bay Aquatic Preserve Management Advisory
                      Team (CAPMAT) by 1992, with members representing the County, the Planning Commission, the
                      Environmental Protection Commission, Hillsborough Community College, state and regional
                      agency staff, concerned citizens and area landowners. One of the tasks for the Management
                      Advisory Team is to document the extent and relative health of seagrasses and identify sources of
                      seagrass damage before recommending actions to ban boating or identify exclusionary areas in
                      the aquatic preserve. (Policy C-37.9, Future Land element, calls for the county to work with the
                      appropriate authorities, including the Environmental Protection Commission and DNR, to
                      implement means of protecting seagrasses from propeller dredging throughout the aquatic
                      preserve.)

                      Another task is to assist in the development of public education maps and to work with the
                      appropriate authorities in the placement of markers clearly indicating boating channels and
                      potential hazards in appropriate locations throughout the Cockroach Bay Aquatic Preserve. These
                      policies are clearly consistent with both the Tampa Bay SWIM plan and the Cockroach Bay
                      Aquatic Preserve management plan.

                      The Hillsborough County Environmental Protection Comn-tission recently amended Chapter 1-11
                      of its rules to include seagrass species as wetland plants and to give these areas special protection
                      when they are sufficiently damaged (e.g., from the impacts of propeller-driven boats). This
                      amendment creates marine recovery areas where this physical damage can be documented, and
                      ameliorated through the implementation of special management plans. With the assistance of
                      DNR, four recovery areas have been established within the Cockroach Bay Aquatic Preserve for
                      an initial period of three years. All of these areas have various restrictions on watercraft as well.
                      Additional activities related to the Cockroach Bay Recovery Areas include informational signage,
                      public educational brochures, marine enforcement by the Hillsborough County Sheriffs
                      Department, and a monitoring and research project to evaluate recovery (also part Of Policy 37.5).

                      The City of Palmetto comprehensive plan has several policies that address seagrasses. These
                      include: (1) review development regulations to ensure no net reduction in native vegetation,
                      marine grass beds, mangrove forests, coastal marshes, and living marine resources; and (2)
                      prohibit dredge and fill of marine grass beds except in instances of overriding public interest
                      (mitigation is required). However, according to review agencies, the City needs to specify how
                      mitigation will be required, and define "instances of overriding public interest." DNR specifically
                      stated in their review that the "loss of further seagrass beds is not in the public interest, as the
                      only seagrasses within the Palmetto are within the Terra Ceia Aquatic Preserve." This latter
                      policy appear inconsistent with the Terra Ceia Aquatic Preserve management plan.

                      Additionally, according to DCA, the City's comprehensive plan lacks objectives and/or policies
                      within its coastal management element that addresses coordinating with other local governments
                      to ensure adequate sites for water-dependent uses, prevent estuarine pollution, control surface
                      water runoff, protect living marine resources, reduce exposure to natural hazards, and ensure
                      public access. According to DER, this plan also lacks a policy within its coastal element that


                                                                         78








                        identifies regulatory or management techniques for the restoration or enhancement of disturbed
                        or degraded natural resources.



                        [81 Dredging and Disposal of Dredge Materials

                        Dredging and disposal of dredge materials is obviously closely related to the fate of seagrasses, as
                        destruction of submerged bottom and habitat from development activities requiring dredge and
                        fill (e.g., construction of marinas and navigation channels) is one of the reasons for the decline of
                        seagrasses in Tampa Bay.35 The placement and management of spoil, a byproduct of dredging,
                        and the spoil islands created by this activity is also a major concern within the Tampa Bay
                        estuary.

                        The Tampa Bay SWIM plan approaches this issue from the perspective of habitat protection and
                        restoration. Several programs under Natural Systems Initiative 1 (preserving, enhancing, and/or
                        restoring upland, riverine, intertidal and subtidal habitats) are designed to preserve existing
                        habitat, restore degraded habitat, evaluate the environmental impacts of marinas and their
                        construction, and promote improved marina designs and facilities.

                        Since the main objective of the aquatic preserve program is to protect the resources of the aquatic
                        preserves (largely being submerged lands) for the benefit of future generations, most activities
                        that would adversely affect this resource are prohibited. This includes drilling, mining,
                        construction of deepwater ports, bottom-trawlin& marina construction in RPAs 1 and 2361 and all
                        other development activities that would adversely impact saltmarshes and other valuable
                        submerged habitat.37 In addition, these plans call for managing spoil islands within the aquatic
                        preserve as bird rookeries and wildlife habitat areas.

                        There is only one policy within the Hillsborough County comprehensive plan that directly
                        addresses dredge and fill. Policy 2.8 (Coastal Management And Port element) calls for the county
                        to initiate an interagency agreement with the Tampa Port Authority38 to restrict dredge and fill in
                        the coastal area to maintenance dredging of existing channels, activities associated with
                        appropriate water    '-dependent uses, correction of environmental 1;roblems caused by limited tidal
                        circulation, and environmental restoration, all with additional provisions to be included within




                        3571is issue is also closely Mated to Ports and their impacts; however, because these impacts go beyond
                        dredge and fill, this is its own issue.
                        36As defined in Chapter 18-20.003(31), (32), and (33), F.A.C, an RPA 1 is an area within an aquatic preserve
                        which has resources of the highest quality and condition for that area. These resources may include, but are
                        not limited to, corals; marine grassbeds; mangrove swamps, saltwater marsh; oyster bars; archaeological and
                        historical sites; endangered or threatened species habitat; and, colonial water bird nesting sites. An RPA 2 is
                        an area within an aquatic preserve which is in transition with either declining RPA I resources or new
                        pioneering resources within RPA 3. An RPA 3 is an area within an aquatic preserve that is characterized by
                        the absence of any significant natural resource attributes.
                        37Dredge and fill activities within aquatic preserves allowed by law (Ch. 258-4Z FS.), pursuant to a permit,
                        include the minimum dredging and spoiling authorized for public navigation projects, marinas, piers, docks
                        and attendant navigation channels; other alteration of physical resources deemed necessary to enhance the
                        quality or utility of the preserve or public health; maintenance dredging for existing navigation channels;
                        restoration of land; reasonable improvements necessary for public utility installation or expansion; and the
                        installation and maintenance of oil and gas transportation facilities properly marked with marine navigation
                        aids.
                        -*Me Tampa Port Authority,


                                                                               79








                      the agreernent.39 This policy, while generally consistent with both the SWIM and aquatic preserve
                      plans, does not address submerged lands in terms of habitat and/or water quality protection.

                      The Manatee County comprehensive plan has several policies dealing with dredge and fill, all of
                      which are consistent with the Terra Ceia Aquatic Preserve management plan and Ch. 258.42, F.S.,
                      which addresses dredge and fill activities within aquatic preserves. These policies are sirnilar to
                      those of Hillsborough County, and include:

                         ï¿½   prohibit dredging and filling of submerged lands, except for uses classified and prioritized
                             in Policy 4.2.1.1 (Coastal Management element) as water-dependent. All dredge and fill
                             applications within or adjacent to the Terra Ceia Aquatic Preserve shall be submitted to
                             DNR for comiments which will be considered by Manatee County during project review,
                             and

                         ï¿½   require the management of developments that require dredge and fill to prevent further
                             degradation of adjacent waters and to insure placement of spoil on suitable upland areas.

                      The City of Palmetto comprehensive plan has two policies that directly address dredging. These
                      policies call for: (1) discouraging the hardening, channelizing, or structural modification of
                      natural drainageways, and (2) prohibiting the dredging and filling of undisturbed bay bottom
                      except in cases of overriding public interest (mitigation is required where appropriate). As
                      referred to earlier, several review agencies have recommended that the City specify how
                      mitigation will be required, and to define "overriding public interest."

                      With the possible exception of these latter qualifying phrases, there appear to be no obvious
                      inconsistencies for this issue and the policies addressing it within each of the three plans.



                      [9)    Wetlands

                      A major issue within the Tampa Bay area is the continued destruction of wetlands. Although the
                      Warren S. Henderson Wetlands Protection Act of 198440 has improved the protection of wetlands
                      within Florida, coastal and riverine marshes and swamps within the Tampa Bay watershed face
                      increasing pressure from development.41 Again, as with the issue of dredging and disposal of
                      dredge materials, the Tampa Bay SWIM program presents wetlands conservation as a habitat
                      issue (in addition to the more traditional water management district concerns for the beneficial
                      effects on ground and surface water that wetlands can have). Correspondingly, the Tampa Bay
                      SWIM plan calls for the preservation, enhancement, and/or restoration of upland, riverine,
                      intertidal and subtidal habitats for biological communities, pollution abatement, and aesthetic
                      and recreational purposes; and the encouragement of appropriate land use at the local, state, and
                      federal level, including appropriate development or agricultural use of land bordering the bay
                      and its tributaries. (The latter includes promotion of limiting or preventing land alterations via
                      incentives such as tax reductions, density tradeoffs, or transfers or purchases of developmental
                      rights, and promoting buffer zones, setback requirements, wildlife corridors, and conservation
                      easements.)



                      39Ch. 403.021(9), FS. requires deepwater ports to prepare a master plan which addresses port facilities and
                      expansion plans, environmental impacts, and other elements and impacts of the port. Ch. 1633178(2)(k), F.S.
                      requires these master plans to be submitted to the local government within whose jurisdiction the port is
                      located and integrated with*the coastal element of that government's local comprehensive plan.
                      4OCh. 403.91-403.929, F.S.
                      41p. 27, Ta?npa Bay SW7M plan, 1988.


                                                                           80








                      Both Terra Ceia and Cockroach Bay aquatic preserve plans have policies that are concerned with
                      protecting wetlands and wetland vegetation (e.g., saltmarsh, mangrove) from adverse impacts by
                      limiting or prohibiting development. Most of these policies apply to wetlands within the
                      jurisdiction of the preserve; however, several have the potential to enhance offsite wetlands.
                      These include:

                         ï¿½  prohibit the drilling of oil and gas wells, the mining of materials, and dredging for the
                            primary purpose of obtaining upland fill within the aquatic preserve, and

                         ï¿½  require, through the efforts of DER and SWFWMD, the maintenance and upgrading of the
                            water quality of the estuary and ensure the natural seasonal flow fluctuations of fresh
                            water into the estuary. In particular encourage the Department of Environmental
                            Regulation and the Environmental Regulatory Commission to extend OFW designations to
                            wetlands above the MHW line in areas within or adjacent to the aquatic preserve.

                      The first policy has the effect of cutting off a historical source of upland fill, and the second, if
                      successful, would hopefully help protect the water quality of the aquatic preserve by providing
                      an additional layer of protection for those wetlands that drain into the aquatic preserve.

                      Most policies within the Hillsborough County comprehensive plan appear consistent with
                      wetland-related objectives or policies or their equivalent in the Tampa Bay SWIM plan and both
                      aquatic preserve plans. One of the strongest is Policy 2.1 (Coastal Management element), which
                      continues the county's conservation and protection of tidal wetlands and prohibits unmitigated
                      encroachment into these areas. Additional policies that support both the SWIM and aquatic
                      preserve plans include:

                         a  initiate an interlocal agreement with SWFWMD to ensure that minimum freshwater flows
                            in river and streams needed to support natural optimal diversity and productivity in
                            estuarine areas are scientifically determined and maintained

                         *  amend existing land development regulations (LDRs) to require preservation of native
                            upland plant communities necessary to buffer coastal wedands

                         0  oppose destruction or degradation of intertidal/subtidal vegetative communities to
                            develop new manmade estuarine beaches

                         0  prohibit channelization or hardening of natural stream courses, except in cases of
                            overriding public interest

                         0  preserve wetlands by discouraging use of mitigation, dredge and fill, and similar
                            development activities by revising LDRs, and

                         0  encourage new development to maintain streams, lakes, wetlands, and estuaries for which
                            stormwater conveyance or attenuation is significant.

                      However, several policies appear to be inconsistent with the Cockroach Bay aquatic preserve
                      plan. Objective 2 and Objective 3 of the respective coastal management and conservation
                      elements are virtually identical in wording, and both call for the continuance of no net loss of
                      wetlands in the county's coastal and other areas, and a measurable annual increase in restored
                      wetlands. (The latt er is consistent with the Tampa Bay SWIM plan.) Both objectives require
                      mitigation and/or restoration to implement. Although Policy 2.1 (Coastal Management element)
                      continues the conservation and protection of tidal wetlands, it does so by prohibiting
                      'unmitigated encroachment' into these areas, a policy potentially inconsistent with DNR`s policy
                      discouraging developments within aquatic preserves that require restoration or mitigation. There


                                                                      81








                     is also no policy that directly addresses encroachment into the Cockroach Bay Aquatic Preserve.
                     However, as discussed within Issue # 4, Urbanization/Land Use/Wildlife Habitat, there is no
                     conflict between the Hillsborough County Environmental Protection Commission's wetlands
                     rule, the county comprehensive plan, and the Cockroach Bay Aquatic Preserve management plan.

                     Wetland-specific objectives and policies within the Manatee County comprehensive plan are
                     similar to Hillsborough County's, offering limited protection to wetlands within the county, but
                     also relying heavily on mitigation as an incentive for protection. For instance, Policy 4.1.1.2
                     (Coastal Management element) prohibits alteration of coastal wetland habitat except in instances
                     of proposed water-dependent uses, overriding public interest, deepwater ports, or to avoid a
                     taking. Policy 4.1.13 requires any encroachments into wetlands be mitigated pursuant to the
                     habitat-specific mitigation ratios described and the monitoring of mitigation success. However,
                     from their review of the county's draft plan, DNR thinks the exceptions in Policy 4.1.1.2 should be
                     carefully weighed, as alteration of wetlands is rarely in the public interest, and that future
                     activities of this type should be sited in areas that have already been disturbed, especially
                     deepwater port facilities. DNR also thinks the county should take a stronger stand on mitigation
                     in Policy 4.1.1.3, and that such mitigation should be monitored for the prescribed number of
                     years. Both comprehensive plans also have policies that encourage the use of wetlands to treat
                     stormwater runoff, and the creation of buffer zones around wetlands.

                     The City of Palmetto comprehensive plan has many objectives and policies that address wetlands
                     and wetlands protection. These include:

                        0  protect and enhance the City's natural resources by ensuring mitigation of adverse impacts
                           of pollution and restoration of natural systems disrupted by new development

                        0  protect freshwater wet prairies, marshes, and swamps from development that would
                           significantly alter their natural character (mitigation is required where development
                           intrudes). Require all applicable permits to be obtained before issuing DO.

                        0  not permit development to supplant key wetlands unless overriding public interest is
                           determined and mitigation required.

                        0  consider areas adjacent to wetlands to be important buffer areas for wetland management
                           and to be treated in a manner minimizing adverse environmental impacts on ecologically
                           sensitive wetlands

                        0  require all applicable permits to be obtained before issuing a development order

                        0  review development regulations to ensure no net reduction in native vegetation, marine
                           grass beds, mangrove forests, coastal marshes, and living marine resources

                        0  prohibit future development of mangrove forests and coastal marshes unless mitigation is
                           required

                        0  expand preservation of environmentally sensitive areas indicated on FLU plan, particularly
                           near Terra Ceia Bay, and

                        0  revise land development regulations to -specify standards and requirements for open space
                           conservation of private lands with the objective of preservation of Terra Ceia Bay.

                     However, agency reviews of these objectives and policies questioned what kind of mitigation and
                     to what level is required (eg., 1:1 basis); the size and location of key wetlands and buffer areas,



                                                                    82








                     and warned against the trimming of mangroves within the Terra Ceia Aquatic Preserve unless for
                     riparian access.
                     According to DCA, the City of Palmetto comprehensive plan lacks objectives and/or policies
                     within its coastal management element that address:

                       0 improving estuarine environmental quality, and

                       0 coordinating with other local governments to ensure adequate site for water-dependent
                           uses, prevent estuarine pollution, control surface water runoff, protect living marine
                           resources, reduce exposure to natural hazards, and ensure public access.

                     The City of Palmetto comprehensive plan, according to DCA, also lacks objectives and/or
                     policies within its conservation element that address:

                       * the conservation, appropriate use, and protection of native vegetation and fisheries

                       0   the protection and conservation of the natural functions of existing soils, fisheries, rivers,
                           bays, floodplains, and harbors, and

                       0   the protection of existing natural reservations.

                     The City of Palmetto comprehensive plan, according to DER, also lacks a policy within its coastal
                     element that identifies regulatory or management techniques for the restoration or enhancement
                     of disturbed or degraded natural resources.



                     1101, Development and Damming of Creeks and Rivers

                     Freshwater creeks and rivers are an integral part of the Tampa Bay estuary, providing critical
                     habitat, potable water, and increasingly scarce waterfront property. However, this development
                     and damn-dng pressure on these creeks and rivers present a threat to these features and the
                     benefits they bring to the estuary. Consequently, all three types of plans in this study address
                     directly or indirectly creek and river resources.

                     The Tampa Bay SWIM plan addresses creeks and rivers by calling for the protection,
                     enhancement,and /or restoration of upland, riverine, intertidal, and subtidal habitats by
                     promoting (through funding, technical assistance, or other actions) more stringent local, state,
                     and federal laws, regulations, and development practices; the enforcement existing laws and
                     regulations, including permit stipulations, public education; land acquisition programs,
                     restoration activities (eg., planting of native plants, eradication of non-native plants, stabilization
                     of beaches and shorelines); mapping; and ecological and other research.

                     Both Terra Ceia and Cockroach Bay aquatic preserve plans call for the protection of preserve
                     habitat by prohibiting (1) any development within the preserve that adversely impact
                     saltmarshes and other valuable submerged habitat, (2) the drilling of oil and gas wells, mining of
                     materials, and dredging for obtaining upland fill, and (3) the construction of new deepwater
                     ports within the preserve boundaries. The aquatic preserve policy directive that calls for the
                     maintenance and upgrading of the water quality and natural seasonal flow fluctuations of the
                     estuary (including encouraging the Department of Environmental Regulation and the
                     Environmental Regulatory Commission to extend OFW designations to wetlands above the
                     MHW line in areas within or. adjacent to the aquatic preserve) has perhaps the largest potential to



                                                                    83









                     affect development and other pressures on at least several of the creeks and rivers flowing into
                     Tampa Bay.

                     The Hillsborough County comprehensive plan has several policies that address the development
                     and damn-ting of creeks and rivers. These policies include:

                         ï¿½  amend floodplain regulations to protect wildlife habitat and natural floodwater
                            assin-dlation capacity

                         ï¿½  continue to prohibit unn-d tigated encroachment into I 00-year floodplains

                         ï¿½  continue to enforce the county's n-tining ordinance to prohibit n-tining within 25-year river
                            floodplains and restrict mining within 100-year floodplains of rivers and streams

                         ï¿½  preserve natural shorelines and reverse the trend towards hardening shores and
                            channelization by prohibit shoreline alteration through hardening

                         ï¿½  restore publicly-owned or controlled lands by vegetating riverbanks with native vegetation
                            to prevent erosion

                         ï¿½  conserve and preserve natural riverbanks & levees

                         ï¿½  initiate an interlocal agreement with SWFWMD to ensure that minimum freshwater flows
                            are scientifically detern-dned and maintained to support natural optimal diversity and
                            productivity in estuarine wetlands

                         ï¿½  consider appropriate provisions from the Cockroach Bay Aquatic Preserve plan for
                            incorporation into the Hillsborough County comprehensive plan (                                               I
                         ï¿½  develop regulations and performance standards to protect water quality and quantity,
                            environmentally sensitive areas, wildlife habitats, and rivers and creeks from degradation
                            by development

                         ï¿½  require the location and design of public roads and bridges with riverine corridors to
                            minimize impacts adverse to wildlife habitats and vegetative communities, and

                         ï¿½  restrict clearing or filling of natural plant communities within SY of the EPC jurisdictional
                            line of rivers and creeks designated as River Corridor Overlay Districts or within 100' of the
                            MHW line of such rivers and creeks, with rt@dtigation as necessary.

                     These policies appear consistent with both the SWIM plan and the Cockroach Bay aquatic
                     preserve plan. The Manatee County comprehensive plan has no policies that address the
                     development and damming of creeks and rivers.

                     The City of Palmetto comprehensive plan has an objective and several policies that address the
                     development and damming of creeks and rivers. These include:

                         0  ensure no net reduction in surface and subsurface water quality in coastal and inland areas
                            as a result of e)dsting and future development [this objective does not address untreated
                            agricultural runoff)

                         0  discourage hardenin& channelizin& or structural modification of natural drainageways;
                            preserving natural landscape barriers to flooding and stormwater as a requirement to
                            obtain a development order, and


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                             preserve private open space through the use of planned developments in order to conserve
                             environmentally sensitive areas at Terra Ceia Bay and Manatee River.

                       This objective and these policies do not appear to be inconsistent with the Tampa Bay SWIM plan
                       and the Terra Ceia Aquatic Preserve management plan.



                       [111 Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of
                             Information re.- Decline

                       The decline in commercial and recreational finfish and shellfish landings, and the lack of
                       infon-nation regarding this decline, is an important issue facing Tampa Bay. The Tampa Bay
                       SWIM plan presents this problem as a result of the degradation of water quality and natural
                       habitat, and so presents its goals, initiatives, programs, and strategies within this context.

                       Several programs and strategies establishing monitoring and research studies for addressing
                       fisheries decline under Natural Systems Initiative 1 (preserve, enhance, and/or restore upland,
                       riverine, intertidal and subtidal habitats) are presented within the SWIM plan. Selected programs
                       include:

                          *  evaluate the success of restoration and preservation projects (inclusive of projects begun or
                             completed prior to SWIM endeavors) through aerial habitat mapping and coordinated
                             ground-based studies

                          0  develop additional databases useful for design and implementation Of future projects

                          0  promote and /Or fund research concerning habitat restoration and functionality (e.g.,
                             wildlife utilization of submerged and intertidal habitat for gamefish, commercial species,
                             and other wildlife.

                       Programs under Natural Systems initiative 2 (preserve, enhance, and/or restore plant and animal
                       populations that use the bay, tributaries, and or associated uplands for part or all of their life
                       cycles) for addressing fisheries decline include:

                          a optimize habitats for use by botanical, invertebrate, and vertebrate populations and
                             communities through the above programs of preserving, augmenting, and restoring
                             habitats


                          0  promote and/or fund research which provides information important to the development
                             and implementation of ecologically sound wildlife management programs for the Tampa
                             Bay ecosystem, and, using the results of this research,

                          0  promote and/or draft wildlife management programs to protect populations and
                             cornmunities associated with the bay inclusive of threatened or endangered species
                             important to commercial and sport fishermen, including local, state, and federal legislation
                             and enforcement necessary to accomplish management goals.

                       Furthermore, under Bay Management Initiative 2 (promote the adoption and enforcement of laws
                       and regulation necessary to implement the Natural Systems, Water Quality and Land Use
                       Initiative of the plan), programs and strat egies designed to implement this initiative include:





                                                                         85








                       0  review the adequacy of governmental rules and regulations to carry out the SWIM plan's
                          programs, including reviewing the sufficiency of enforcement programs of pertinent
                          regulatory agencies and all other applicable fish and wildlife laws

                       0  enhance current commercial and sport fishing regulations and fishery productivity by
                          developing and implementing biologically defensible fishing regulations, stocking, and
                          habitat creation /restoration projects

                       0  implement protective regulations and management strategies for fisheries on the decline in
                          Tampa Bay, and

                       0  improve the enforcement of fishing regulations by consolidating and standardizing all
                          special acts and local laws related to fishing activities.

                    Finally, SWFWMD proposes under its SWIM plan to unify and consolidate all special acts and
                    local laws related to marine resource management and work to ensure adequate funding and
                    staffing levels for increased monitoring and enforcement capabilities for Tampa Bay.

                    Both Terra Ceia and Cockroach   Bay aquatic preserve plans are consistent with the SWIM plan,
                    particularly regarding research and environmental education, but they also seek to protect the
                    preserve from any adverse effects associated with artificial reef construction. Accordingly, both
                    aquatic preserve plans call for:

                       ï¿½  provide and actively encourage research and educational opportunities for scientists and
                          other interested researchers within the framework of a planned research program in the
                          aquatic preserve

                       ï¿½  prohibit any activity commercial or recreational that might impact the integrity of hard
                          bottom communities within the aquatic preserve

                       ï¿½  insure that artificial reef construction does not adversely impact environmentally fragile
                          areas within the aquatic preserve and that the construction will maintain the essentially
                          natural condition while enhancing the quality and utility ofthe preserve

                       ï¿½  require, through the efforts of DER and SWFWMD, the maintenance and upgrading of the
                          water quality of the estuary and ensure the natural seasonal flow fluctuations of fresh
                          water into the estuary, and, in particular, encouraging DER and ERC to extend OFW
                          designations to wetlands above the MHW line in areas within or adjacent to the aquatic
                          preserve

                       ï¿½  identify and document any problems caused by fishing, shellfishing, and collecting
                          activities and reporting them to the Marine Fisheries Comn-dssion, and

                       ï¿½  recognize and educate both the public and government that successful shellfish culture and
                          harvesting efforts in the aquatic preserve are dependent upon pollution prevention and
                          abatement and careful comprehensive planning.

                    Both Flillsborough and Manatee County comprehensive plans at least partially address the
                    decline in commercial and recreational finfish and shellfish landings, and the lack of infonnation
                    regarding this decline. Hillsborough County's plan has an objective calling for maintaining and
                    enhancing the abundance and diversity of living marine resources in Tampa Bay (although this is
                    made conditional by the accompanying qualifier ". . . where [environmentally and
                    econon-dcally] feasible - . . "). Accompanying policies call for opposing any proposal to
                    permanently dose the Cockroach Bay Aquatic Preserve to public shellfishing, improving water


                                                                   86








                    quality in order to maintain shellfish viability by improving sewage treatment in the vicinity of
                    the Cockroach Bay aquatic preserve, and coordinating with and support appropriate regulatory
                    agencies to ensure that land developments within the coastal area discharging into receiving
                    waters that flow into a "Conditionally Approved" or "Approved" DNR shellfish harvesting area
                    demonstrate nondegradation of water quality for all applicable discharges. Regarding the latter
                    policy, however, any discharges of sewer effluent will prompt DNR to place a protective buffer
                    within the area to protect the shellfish harvesting area impacted by the discharge, and that this
                    discharge would have to be removed in order to upgrade the classification (if warranted).

                    In spite of the lack of a specific objective to conserve, appropriately use, and protect fisheries and
                    marine habitat (the lack of which constitutes a lack of consistency with the Tampa Bay SWIM
                    plan), Manatee County's comprehensive plan has several other policies that address this issue.
                    These include an objective calling for improving the water quality of coastal resources such that
                    all DNR shellfish harvesting prohibition areas are upgraded to "Approved" by 1993, and that all
                    other coastal area waters meet their applicable standards. Other policies include:

                       ï¿½  prohibit development requiring the issuance of a point source discharge permit in a
                          "prohibited" DNR shellfish harvesting area (except in areas where "prohibited shellfish
                          harvesting" is due to the potential for contamination by sewage in areas receiving effluent
                          discharges)

                       a  require land developments within the coastal area which discharge into "Conditionally
                          Approved" or "Approved" DNR shellfish harvesting areas to demonstrate non-
                          degradation of water quality for all applicable parameters (compliance with OFW criteria),
                          and

                       ï¿½  coordinate with DER and DNR regarding water quality status, classification of shellfish
                          harvesting areas, pollution sources, and compliance with state water quality parameters.

                    The City of Palmetto comprehensive plan has an objective and several policies that address
                    fisheries. These include:

                       0  review development regulations to ensure no net reduction in native vegetation, marine
                          grass beds, mangrove forests, coastal marshes, and living marine resources

                       0  protect living marine resources from immediate and future degradation resulting from
                          improper development and/or waste disposal practices. Review and correct or revise
                          appropriate codes and ordinances as necessary to ensure no net loss of living marine
                          resources


                       0  implement upon adoption of comprehensive plan the Terra Ceia Aquatic Preserve
                          management plan to measurably improve water quality and increase productivity of
                          conunercially important fisheries and other aquatic resources

                          obtain DNR approval for shellfish harvesting in Terra Ceia Bay by 1993.

                    The first two policies use "no net reduction" as a criterion for development within these areas.
                    The Terra Ceia Aquatic Preserve management plan prohibits any commercial or recreational
                    activities that might impact the integrity of hard bottom communities within the preserve,
                    recognizes that successful shellfish culture and harvesting efforts in the aquatic preserve are
                    dependent upon pollution prevention and abatement and careful comprehensive planning, and
                    prohibits development activities within the aquatic preserve that adversely impact saltmarshes
                    and other valuable intertidal, submerged, and emergent habitats, including discouraging
                    developments within the aquatic preserve that require restoration or mitigation. Consequently,


                                                                   87









                      the "no net reduction" policies and the n-dtigation required to implement these policies are
                      potentially inconsistent with the Terra Ceia Aquatic Preserve management plan.

                      It is also the opinion of DER reviewers that this criterion and its implementing activity
                      (mitigation) does not adequately protect coastal wetlands, living marine resources, and wildlife
                      habitat because these policies do not restrict development, but merely requires them to mitigate
                      adverse impacts. DER further thinks that these coastal communities should be mapped and
                      classified as environmentally sensitive areas or preservation lands, and that other protective
                      mechanisms should be utilized as necessary to protect these areas. Additionally, the policy calling
                      for obtaining shellfish harvesting approval in Terra Ceia Bay is hindered by the presence of
                      sewage effluent from the Tropic Isles Mobile Home Park located on the shores of Terra Ceia Bay.



                      [121 Replacement of Native Vegetation with Exotic Plants

                      Although the Tampa Bay SWIM plan does not have a large number of programs, policies, or
                      strategies designed to address the replacement of native vegetation with exotic plants, a strategy
                      within Natural Systems Initiative 1 (preserve, enhance, and/or restore upland, riverine, intertidal.
                      and subtidal habitats) directly addresses this issue by calling for the eradication of non-native or
                      ecologically undesirable vegetation from subtidal, intertidal, riverine and nearby upland areas
                      and their replacement with appropriate native species. This strategy is already under way at a
                      number of SWFWMD and other sites around the Bay, and is one on which significant resources
                      are currently being expended.

                      Both Terra Ceia and Cockroach Bay aquatic preserve plans address this issue as a habitat issue,
                      and as such, are generally consistent with the SWIM plan. Both aquatic preserve plans call for.

                        9   protect and, where possible, enhance threatened and endangered species habitat within the
                            aquatic preserve

                        0   prohibit development activities within the aquatic preserve that adversely impact
                            saltmarshes and other valuable submerged habitats, unless bf overriding public importance
                            and that no reasonable alternatives exist

                            identify and develop guidelines for areas and plant communities in need of restoration,
                            discouraging developments within the aquatic preserve that require restoration or
                            mitigation

                        ï¿½   develop an exotic plant control and removal plan following monitoring; developing a
                            cumulative impact analysis program for analyzing proposed uses within the aquatic
                            preserve, and

                        ï¿½   limit pesticide and biocide use within the aquatic preserve to those that are approved by
                            the Environmental Protection Agency for wetland and aquatic application (removal of
                            native vegetation, including seagrasses, can potentially allow exotic vegetation to invade,
                            among other means).

                      The Hillsborough County comprehensive plan has several policies that address the replacement
                      of native vegetation with exotic plants. These policies are consistent with both the SWIM and
                      aquatic preserve plans, and include:

                            continue the county's existing programs to minimize the spread of exotic nuisance species



                                                                        88








                         0 incorporate these programs into management plans for newly-acquired preserves

                         * assist the Florida Department of Agriculture and Consumer Services, SWFWMD, and DNR
                           in eliminating exotic nuisance plant species, and

                        a  request Hillsborough Community College to include the study of land management
                           practices such as exotic plant control and fire management at the Cockroach Bay
                           Environmental Studies Center. The county's ELAP Program can utilize the results of such
                           studies to more effectively manage lands purchased throughout the Area of Concern.

                     Additionally, CAPMAT, in conjunction with the Southwest Florida Water Management District,
                     DNR, the Tampa Electric Company, and other property owners, is to initiate a program as part of
                     the Cockroach Bay plan amendment to reverse the spread of noxious exotic plant species in the
                     Cockroach Bay Area of Concern with the goal of replacing exotics with viable and desirable
                     native plant communities. This program would include an assessment of the extent of the
                     problem, identification of areas where work would be done, costs, and likely funding sources, an
                     assessment of the potential for a volunteer component, and solicitation of cooperation of affected
                     private property owners, if any.

                     The Manatee County comprehensive plan has several policies that address the replacement of
                     native vegetation with exotic plants. These policies are consistent with both the SWIM and
                     aquatic preserve plans, and include requiring the preservation of native habitat during
                     development through maintenance or planting of native vegetation such that at least 60% of all
                     post-development vegetation is indigenous (according to the FGFWFC, the second option in this
                     policy does not represent a viable means to preserve the plant communities' habitat values);
                     participating in or encouraging the restoration of natural plant communities on public lands; and
                     removing all exotic plant species from land development sites during construction. However, a
                     policy that would call for coordination and assistance with the appropriate regulatory agencies to
                     eliminate exotic nuisance plant species would help ensure a more complete level of consistency
                     between plans.

                     The City of Palmetto comprehensive plan contains no objectives or policies that address this
                     issue.





                     1131    Shoreline Erosion

                     Shoreline erosion along Tampa Bay has been identified by SWFWMD as a problem in areas not
                     planned for, but used as public walkways or pathways. Another aspect of this problem is erosion
                     of the shoreline as result of wave action from storms, boat traffic, and longshore currents.
                     Although the latter is not as severe a problem as it could be by the fact that Tampa Bay, being
                     basically a estuary, does not experience oceanic, high-energy waves, shoreline erosion is
                     nonetheless a significant problem, at least in some areas of the Bay.

                     The Tampa Bay SWIM plan does not directly address shoreline erosion in its goals, initiatives,
                     program, strategies, or projects. However, there are several initiatives, programs, and strategies
                     that indirectly address this issue. As detailed above, these include Natural Systems Initiative 1
                     (preserve, enhance, and/or restore upland, riverine, intertidal and subtidal habitats for biological
                     communities, pollution abatement, and aesthetic and recreational purposes, and Development
                     and Public Use Initiative 2 (provide opportunities for the public to utilize Tampa Bay for
                     recreational activities). Under the first initiative, there is a program that directly addresses
                     sediment stabilization and other sedimentological problems in Tampa Bay and another program
                     that establishes monitoring and research studies necessary for implementing all of the preceding


                                                                     89









                     habitat conservation and restoration programs. (Although the emphasis on the sediment
                     stabilization program is on bottom sediments, an evaluation of the sedimentary processes of
                     Tampa Bay, coupled with monitoring and other research studies, will presumably help address
                     the erosion issue.) The second initiative calls for programs to promote and provide public access
                     to Tampa Bay by developing master plans for public access to the bay's features (e.g., beaches,
                     shoreline, open waters) inclusive of boat ramps, boardwalks, pedestrian pathways, etc.), and to
                     promote and provide opportunities for various water-dependent activities such as public fishing
                     piers and a system of passive parks.

                     Both Terra Ceia and Cockroach Bay aquatic preserve plans do not directly address this issue, as
                     their jurisdiction ends at the MHW mark. However, there are several policies that indirectly
                     address shoreline erosion such as prohibiting development activities within the aquatic preserve
                     that adversely impact saltmarshes and other valuable submerged habitats; identifying and
                     developing guidelines for areas and plant communities in need of restoration; developing a
                     cumulative impact analysis program for analyzing proposed uses within the aquatic preserve;
                     and prohibiting the trimming and/or removal of salt marsh vegetation and other natural
                     shoreline vegetation within the aquatic preserve, except when necessitated.

                     The Hillsborough County plan directly addresses this issue through policies such as directing the
                     county to stabilize man-made beaches prone to erosional problems, and to support development
                     of man-made estuarine beaches only in environmental ly-acceptable locations; assessing the
                     present condition and erosional trends of significant public beaches, and developing an estuarine
                     beach enhancement program; using beach stabilization techniques recommended by DNR;
                     opposing the destruction or degradation of intertidal/subfidal vegetative communities to
                     develop new manmade estuarine beaches; and restoring publicly-owned or controlled lands by
                     vegetating riverbanks w/ native vegetation to prevent erosion. Another indirect policy calls for
                     protecting environmental and natural resources when planning parks and other recreational
                     facilities.


                     The Manatee County comprehensive plan addresses this issue by requiring all public access to be
                     consistent with appropriate environmental regulations and policies, and by limiting vehicular
                     access to publicly and privately-owned shoreline areas to designated parking areas except for
                     maintenance and natural resource enhancement and restoration. There are no other policies that
                     address beach erosion and/or stabilization.

                     The City of Palmetto comprehensive plan, according to DCA, lacks an objective and/or policy
                     within its coastal management element that addresses the protection, conservation, and
                     restoration of beaches or dunes.. The plan, according to DER, also lacks a policy within its coastal
                     element that identifies regulatory or management techniques for the restoration or enhancement
                     of disturbed or degraded natural resources.



                     [141 Marinas

                     The impact on the natural resources of Tampa Bay from new marina construction and expansion
                     is a major issue as expressed in the Tampa Bay SWIM plan. These impacts include physical
                     destruction of estuarine habitat, degradation of water quality from dredging and marina
                     operations, and reduction of tidal flushing from dredging and other construction. Regardless,
                     with exceptions, marinas are not generally prohibited in Tampa Bay, but the siting, design, and
                     operation of them are increasingly regulated, particularly within aquatic preserves.

                     The Tampa Bay SWIM plan has several strategies that address the environmental impacts of
                     marinas. These strategies are found under Development And Public Use Initiative 1 (provide


                                                                      90








                        sound environmental policies governing land use which impact the Tampa Bay ecosystem). They
                        include evaluating the environmental impacts of existing marinas, including impacts on
                        manatees and other protected species; developing a marina siting plan; and evaluating and
                        promoting improved marina designs and facilities, specifically addressing problems of fuel
                        storage, sewage, bilge pumping, solid waste, dredging, and related problems.

                        Both Terra Ceia and Cockroach Bay aquatic preserve plans do not directly address this issue
                        except within one policy, which calls for prohibiting marinas and associated construction
                        activities in RPAs 1 and 2. However, both plans have policies that address marina impacts,
                        including:

                           0  protect and enhance threatened and endangered species habitat within the aquatic preserve

                           0  require additional authorization and approval for activities using submerged lands within
                              the aquatic preserve in areas where manatees are present (new marinas and multiple slip
                              residential docking facilities shall not be sited within state-designated manatee
                              sanctuaries)42

                           0  prohibit development activities within the aquatic preserve that adversely impact
                              saltmarshes and other valuable submerged habitat

                           *  discourage developments within the aquatic preserve that require restoration or mitigation

                           0  develop a cumulative impact analysis program for analyzing proposed uses within the
                              aquatic preserve.

                           0  prohibit the trimming and/or removal of salt marsh vegetation and other natural shoreline
                              vegetation within the aquatic preserve, except when necessitated by the pursuit of legally
                              authorized projects and local protection ordinances
                           *  prohibit the drilling of oil and gas wells, the mining of materials, and dredging for the
                              primary purpose of obtaining upland fill within the aquatic preserve

                           0  prohibit any activity commercial or recreational that n-dght impact the integrity of hard
                              bottom communities within the aquatic preserve, and

                           0  require, through the efforts of DER and SWFWMD, the maintenance and upgrading of the
                              water quality of the estuary and ensure the natural seasonal flow fluctuations of fresh
                              water into the estuary, and in particular encouraging DER and EPC to extend OFW
                              designations to wetlands above the MHW line in areas within or adjacent to the aquatic
                              preserve.

                        The last policy would serve to create an additional layer of protection for these wetlands, and an
                        additional criterion for the siting of marinas within these areas. However, all of these policies also
                        coexist with another policy that encourages public utilization of the aquatic preserve, consistent
                        with the continued maintenance of its natural values and functions. This is similar to the US.
                        Park Service's mandate to manage national parks for both preservation and recreation, a 'double-
                        pronged' mandate whose two prongs don't always easily coexist.


                        42A full set of management policies, standards, and criteria for docking facilities within aquatic preserves,
                        including marinas and other multiple slip residential docking facilities, are included in Chapter 18-20.004(5),
                        F.A.C. Additionally, Ch. 258.42, FS, presents statutory criteria for dredging and erection of structures (eg,
                        docks and piers), as well as several other marina-related provisions.


                                                                             91








                      On the comprehensive plan level, one of the most important aspects regarding marinas is
                      regulating their siting. However, comprehensive plans also address other aspects such as design,
                      facilities, and their potential impact on natural resources and available infrastructure.
                      Hillsborough County, for instance, has a policy calling for encouraging the expansion of existing
                      marinas prior to siting new ones within the county. The county also requires permit applicants
                      desiring to site a marine in environmentally sensitive areas (e.g., aquatic preserves) to
                      demonstrate that a marina is clearly in the public interest and in accordance with all pertinent
                      regulatory agency rules, in addition to meeting other county marina siting criteria. Other policies
                      call for concentrating marine service land uses around existing marinas, and requiring fueling
                      facilities to be designed to contain land and water fuel spills. These policies are consistent with
                      both the SWIM plan and the Cockroach Bay aquatic preserve management plan.

                      The Manatee County comprehensive plan requires that any application for the siting of marina-
                      type uses meet a list of criteria (similar to Hillsborough County's) that includes complying with
                      any relevant DNR manatee protection plans, preparing a fuel management and spill contingency
                      plan, and preferably locating outside any Aquatic Preserve and Shellfish Harves      ting Area.
                      However, according to DNR in their review of the Manatee County draft comprehensive plan,
                      this policy should also address water circulation, live-aboards, availability of sewage pumpout
                      stations, and a prohibition on siting marinas within any aquatic preserve.

                      The City of Palmetto comprehensive plan has an objective and several policies that address
                      marinas. These include establishing future land use criteria giving priority to siting and
                      development of water-dependent uses in the coastal area (e.g., marinas), and establishing a
                      marina siting plan with criteria and minimum design specifications for a specific area within
                      Palmetto. However, the future land use criteria objective is considered by DNR to be inadequate
                      because the criteria do not consider the Terra Ceia Aquatic Preserve, which bounds a significant
                      part of Palmetto. The rationale for including the aquatic preserve within the list of criteria is that
                      all development upland of the preserve should receive the highest scrutiny.



                      1151 Construction & Operation of Transportation Facilities

                      The construction and operation of transportation facilities in the Tampa Bay region, both current
                      and planned, threaten to further degrade water quality and natural systems of the Bay. This
                      degradation results from polluted stormwater runoff, dredging, and impedance of natural tidal
                      flushing and other flows from causeways.

                      Under the Tampa Bay SWIM plan's Development And Public Use Initiative 1 (provide sound
                      environmental policies governing land use which impact the Tampa Bay ecosystem), there are
                      several programs and strategies that are designed to address this issue. These include promoting
                      environmentally sound projects and practices such as using existing natural features and native
                      plant species for landscaping and habitat, with special emphasis on transportation programs and
                      xeriscaping practices, as well as the establishment of wildlife corridors. The plan also calls for
                      evaluating the existing and proposed transportation network around, over, and on the bay and
                      its tributaries, including transportation (inclusive of shipping and boat traffic), roadway problems
                      as related to environmental impacts to the ecosystem, and transportation engineering practices.
                      The latter also includes promoting designs to reduce environmental impacts (e.g., stormwater
                      runoff).

                      Although both Terra Ceia and Cockroach Bay aquatic preserve plans do not directly address this
                      issue, two policies indirectly address several activities associated with the construction of
                      transportation facilities that could potentially affect the two aquatic preserves. These policies
                      include prohibiting the trimming and/or removal of salt marsh vegetation and other natural


                                                                        92








                     shoreline vegetation within the aquatic preserve (except when necessitated by the pursuit of
                     legally authorized projects and local protection ordinances), and prohibiting the drilling of oil
                     and gas wells, the n-dning of materials, and dredging for the primary purpose of obtaining
                     upland fill within the aquatic preserve.

                     The Hillsborough County comprehensive plan directly addresses the environmental impacts of
                     transportation facilities through policies such as:

                           require new roadways, interchanges, or bridge designs to undergo an environmental
                           assessment


                           require the location and design of public roads and bridges within riverine corridors to
                           n-dnin-dze impacts adverse to wildlife habitats and vegetative communities

                           ensure that transportation improvements meet all requirements for reducing or mitigating
                           impacts on the natural environment

                           avoid routing new roads through publicly-owned natural preserves, parks, recreation
                           areas, and significant or essential wildlife habitat

                           require all road construction projects to meet or exceed adopted state or local stormwater.
                           retention and treatment requirements, and

                           require all transportation improvements to elin-dnate or mitigate adverse impacts on
                           wetlands and other ESAs.

                     While not directly comparable to objectives and policies in either the SWIM plan or the aquatic
                     preserve plans, they appear to be consistent in addressing the impacts of proposed transportation
                     improvements. However, there are no objectives or policies that address the environmental
                     impacts of existing transportation facilities, a potential inconsistency.

                     The Manatee County comprehensive plan has several policies that address the environmental
                     impacts of transportation improvements. In addition, it contains dn objective that ensures that all
                     transportation improvements are conducted in a manner which minimizes adverse impact on
                     important natural resources. These policies are mostly directed towards minimizing any adverse
                     impacts to water quality from roadway improvements within the watersheds of the two major
                     sources of potable surface water in the county. The exception is a general policy calling for
                     locating and designing transportation improvements to reduce acreage of adversely altered
                     jurisdictional wetlands, and to minimize direct and indirect impacts on rivers, lakes, stream,
                     endangered and threatened species, and species of special concern. Again, while not directly
                         parable to objectives and policies in either the SWIM plan or the aquatic preserve plans, these
                     objectives and policies appear to be consistent in addressing the impacts of proposed
                     com

                     transportation improvements. However, there are no objectives or policies that address the
                     environmental impacts of existing transportation facilities.

                     The City of Palmetto comprehensive plan has an objective and several policies that address this
                     issue. These include:

                       0   develop and implement a transportation system which enhances environmental quality by
                           reducing environmental impacts of water, air, and noise pollution

                       0   require paving of parking lots in land development regulations to reduce fugitive dust, but
                           permit the use of other pervious surfaces and techniques to reduce unnecessary impervious
                           surface areas in such areas, and


                                                                    93








                           require the City and its developers to protect environmentally sensitive areas from future
                           road construction through applicable permitting processes.

                    The latter policy is potentially deficient because environmentally sensitive areas within the City
                    have not been specifically defined and mapped. However, these policies are consistent with both
                    the Tampa Bay SWIM plan and the Terra Ceia Aquatic Preserve management plan.



                    [161 Intergoverrunental Coordination and Planning Consistency

                    As of 1984, there are at least 12 federal agencies, ten state agencies, five regional agencies, and
                    approximately 40 local governments within the Tampa Bay region that regulate, review, or
                    develop policies concerning natural resources affecting Tampa Bay, including at least a dozen
                    local goverranent entities within Hillsborough, Pinellas, and Manatee Counties as well.43 All of
                    these agencies and other governmental entities either have their own internal plan and associated
                    programs, or are included in some way in another agency's plans or programs. In order to better
                    coordinate these agencies and to maximize planning consistency, the Agency On Bay
                    Management was organized in 1985 by the Tampa Bay Regional Planning Council for the
                    purposes of serving as a public forum for bay management issues and a liaison between
                    governmental agencies and interest groups, and to coordinate the implementation of the Tampa
                    Bay SWIM plan. The efforts of ABM to implement this plan have been hampered by lack of
                    funding and personnel.44 However, SWFWMD has been working closely with the Tampa Bay
                    National Estuary Program (TBNEP), located under the auspices of the Tampa Bay Regional
                    Planning Council, to secure addi tional funding and coordination expertise for implementing the
                    Tampa Bay SWIM plan, in addition to the TBNEPs other resource management efforts for Tampa
                    Bay. For instance, TBNEP was instrumental in securing in 1992 over $760,000 in additional
                    federal funds for habitat restoration and water quality improvements in the Tampa Bay region.
                    Over $700,000 of those funds were for the Cockroach Bay restoration project.

                    In addition to ABM and TBNEP, SWFWMD, as part of its Tampa Bay SWIM plan as well as its
                    review of local comprehensive plans, has been promoting the adoption of sound conservation
                    policies within local comprehensive plans and ensuring consistency of those plans with the
                    Tampa Bay SWIM plan. This involved having SWIM staff coordinate with the district's planning
                    department in order to establish criteria for the district's planning staff to review local
                    government comprehensive plans within the district's jurisdiction.

                    The review of local comprehensive plans was one of 18 projects to be implemented as part of the
                    original 1988 Tampa Bay SWIM plan, and it has been largely completed. Several other projects
                    related to this were called for the 1988 plan, including developing a set of model environmental
                    and land use ordinances for distribution to local governments within the district, and an
                    assessment of existing environmental and land use regulation. The first project has been
                    completed, and a set of ordinance language, issue papers, a critical analysis of legal and scientific
                    literature, and an assessment of related ordinances within the state has been completed for
                    distribution to local governments for the following issues:

                      0 stormwater management and treatment, including redevelopment

                      0 placement and maintenance of individual septic systems



                    43P. 29, Tanw Bay SW7M Plan, 1988.
                    441bid, p. 31.


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                         0  vegetative buffer zones, wildlife corridors, erosion control, and shoreline stabilization
                            while maintaining the natural shoreline and associated, plant and animal life

                         0  protection of littoral vegetation, and

                         0  regulation of docks and other appurtenant structures.

                     Initiatives, programs, and strategies within the 1988 SWIM plan addressing intergovernmental
                     coordination and planning consistency that preceded these projects includes the following under
                     Development And Public Use Initiative 1 (provide sound environmental policies governing land
                     use which impact the Tampa Bay ecosystem): (1) encourage appropriate land use at the local,
                     state, and federal level, and encourage appropriate development or agricultural use of land
                     bordering the bay and its tributaries through the following strategies:        .1

                         0  promote limiting or preventing land alterations via incentives such as tax reductions,
                            density tradeoffs, or transfers Or purchases of developmental rights. appropriate policies
                            and regulations will be developed by the district for consideration by local governments
                            through the review of,comprehensive plans and through preparation of model ordinances

                         0  promote designations of increased buffer zones, setback requirements, wildlife corridors,
                            and conservation easements; review local governments comprehensive plans and
                            ordinances; and recommend appropriate amendments to accomplish the above objectives,
                            and

                         0  promote environmentally sound local and state comprehensive plans, inclusive of land use
                            plans for preservation of habitats and land tracts.

                     Another program under this initiative includes evaluating the adequacy of existing zoning laws,
                     environmental laws, and permitting processes as related to land use and environmental resources
                     through the following strategies:

                         ï¿½  evaluate existing local, state, and federal laws concerning land use and the permitting
                            process (inclusive of agricultural uses)

                         ï¿½  promote and/or draft revisions of existing local, state, and federal laws concerning land
                            use and the permitting process (inclusive of agricultural uses). This will be accomplished
                            through the development of model ordinances in addition to specific proposed
                            amendments, and

                         0  evaluate, promote, and/or draft improved laws for mitigation policies and practices,
                            specifically addressing action to be followed if unanticipated impacts are detected after the
                            fact; mitigation banking should be evaluated as should criteria for monitoring and
                            determining the success of the project.

                     Both Terra Ceia and Cockroach Bay aquatic preserve plans have several policies that address
                     intergovernmental coordination and planning consistency. These policies include developing a
                     well-wordinated aquatic preserve management mechanism that recognizes and utilizes local
                     government programs and authorities; encouraging the assistance of federal, state, and local
                     government agencies in implementing the aquatic preserve management plans, especially in
                     areas of protection of natural and cultural resources and the enforcement of applicable resource
                     laws and ordinances; and ensuring that the aquatic preserve management plans are consistent
                     with all other state and local planning processes and completed plans that may impact aquatic
                     preserves. Although these policies are not inconsistent with the SWIM plan programs and
                     strategies, they appear rather general, and depend on field personnel to implement these policies.


                                                                      95








                    The HiIIsborough County comprehensive plan has a number of policies that directly address
                    intergovernmental coordination and planning consistency, particularly concerning both the ABM
                    and Cockroach Bay Aquatic Preserve.45 These policies, consistent with both the SWIM plan and
                    the Cockroach Bay Aquatic Preserve management plan, include:

                       0  cooperate with the appropriate regulatory and management agencies to implement
                          comprehensive & coordinated management plans for Tampa Bay (DCA, in their review of
                          the draft comprehensive plan, faulted this policy for lacking a specific result to achieve and
                          a standard by which to measure the accomplishment of this policy)

                       0  request regulatory agencies to develop a unified and coordinated wetland n-dtigation and
                          restoration program; providing county cooperation, representation, and assistance to both
                          ABM and SWFWMD regarding the Tampa Bay SWIM plan

                       0  provide county participation with DNR to fully implement the Cockroach Bay Aquatic
                          Preserve management plan (DNR's review comment regarding an earlier version of this
                          policy was that the county should formally adopt (incorporate) the Cockroach Bay Aquatic
                          Preserve management plan & Chapter 18-20, F.A.C., which governs the use and
                          management of aquatic preserves)

                       0  initiate a Memorandum of Agreement with the Tampa Port Authority to address
                          coordination and conflict resolution of issues in order to ensure orderly development of the
                          Port, and

                       0  assemble representatives of state & local governments having jurisdiction over the natural
                          resources of Hillsborough County and Tampa Bay in order to coordinate policies, data, and
                          research, and to elin-dnate duplicative reviews and contradictory standards through an
                          environmental issues forum.

                    These policies are consistent with the Tampa Bay SWIM plan and the Cockroach Bay Aquatic
                    Preserve plan, although several need to state specific actions or programs undertaken to achieve
                    their objective. However, CAPMAT, as part of the Cockroach Bay plan amendment, is designed
                    to:

                          assist the County with implementation of the Goal, Objectives and Policies that affect the
                          Cockroach Bay Aquatic Preserve area

                          identify an implementation procedure, thresholds and a tin-weline for review of applications
                          for development approval within the defined Area of Concern to ensure compatibility with
                          the intent of the Preserve, and

                          review proposed comprehensive plan and land development code revisions that may
                          impact the Area of Concern and recommend appropriate changes and other measures to
                          further these Goals, Objectives and Policies.

                    The Manatee County comprehensive plan has a number of policies that address
                    intergovernmental coordination and planning consistency, particularly within the plan's
                    Intergovernmental Coordination element. Selected policies relevant to this study include:



                    45Although several policies addressing coordination with port authorities in Tampa Bay have been included
                    in the intergovernmental coordination and planning consistency matrices, these policies and others related
                    to ports are addressed here in the Ports issue discussion.


                                                                    96








                         ï¿½   require consistency between the comprehensive plan and plans of other units of local and
                             state government

                         ï¿½   establish coordinating mechanisms with other local and regional planning entities to
                             ensure their activities are consistent with the comprehensive plan (one of the implementing
                             mechanisms for this policy requires the county to coordinate with DNR in obtaining their
                             reviews of proposed developments located adjacent to the Cockroach Bay Aquatic Preserve
                             in order to assess and address potential natural resource impacts)

                         ï¿½   require the county to identify a specific procedure for advising adjacent local governments
                             and appropriate state agencies of proposed developments impacting their area of
                             jurisdiction, and provide for their review and comment on these proposed developments

                         ï¿½   require the county to avoid inconsistency between the comprehensive plan, regional CRPP,
                             and state comprehensive plan (DCA faulted this policy in their review of the plan for not
                             including a policy or other implementing mechanism for analyzing and resolving specific
                             problems and needs throughout each element of the comprehensive plan), and

                             require the county to coordinate where necessary with other local governments to improve
                             the management of Tampa Bay, Terra Ceia Bay, and the Braden and Manatee rivers (DCA
                             faulted this policy in their review of the plan for not including a policy or other
                             implementing mechanism that addresses the consistent and coordinated management of
                             certain bays, estuaries and harbors that fall under the jurisdiction of more than one local
                             government).

                      The Manatee County comprehensive plan appears to lack policies that expressly encourage or
                      require intergovernmental coordination with SWFWMD, and that address the consistent and
                      coordinated management-of bays, estuaries, and harbors that fall under the jurisdiction of more
                      than one local government Overall, the policies listed above are generally consistent with both
                      the SWIM plan and the Cockroach Bay Aquatic Preserve management plan.

                      The City of Palmetto comprehensive plan has several objectives and policies that address this
                      issue. These concentrate on stormwater drainage and proposed land use and other plan
                      amendments, and are consistent with both the Tampa Bay SWIM plan and the Terra Ceia Aquatic
                      Preserve management plan. Perhaps the most direct within this study is a policy within the
                      Intergovernmental Coordination element that calls for consistent and coordinated management
                      of Terra Ceia Bay and the Manatee River. However, this policy does not specifically reference the
                      SWIM program, and there is no reference to the Terra Ceia Aquatic Preserve management plan
                      either within this element.

                      The City of Palmetto comprehensive plan, according to DCA, lacks an objective or a policy within
                      its coastal management element that addresses coordinating with other local governments to
                      ensure adequate site for water-dependent uses, prevent estuarine pollution, control surface water
                      runoff, protect living marine resources, reduce exposure to natural hazards, and ensure public
                      access.


                      Additionally, the City of Palmetto comprehensive plan, according to DCA, lacks objectives
                      and/or policies within its Intergovernmental Coordination element that require ensuring that the
                      impacts of development proposed i n the City's comprehensive plan upon development within
                      the county and the state be addressed through coordination mechanisms, and reviewing the
                      relationship of proposed development in the City's comprehensive plan to the existing
                      comprehensive, plans of adjacent local governments.




                                                                        97









                    [171 Enforcement of Laws and Regulations

                    As outlined in the Tampa Bay SWIM plan, the effective enforcement of laws and regulations
                    intended to protect the natural resources of Tampa Bay is hobbled by conflictin& redundant, and
                    inconsistent local laws, ordinances, regulations, and special acts among local governments, and
                    inadequate funding and staffing of compliance monitoring and enforcement sections of these and
                    other local governments within the Tampa Bay region. Both the Tampa Bay SWIM program and
                    the Tampa Bay National Estuary Program recognize this situation. Working with the Tampa Bay
                    Regional Planning Council and their Agency on Bay Management, they are attempting to bring
                    needed order and consistency to this situation through their respective plans and organizations.

                    The Tampa Bay SWIM plan has several specific initiatives, programs, and strategies that address
                    enforcement of laws and regulations. The most pertinent of these are located under two
                    initiatives, Development And Ilublic Use Initiative 1 (provide sound environmental policies
                    governing land use which impact the Tampa Bay ecosystem) and Bay Management Initiative 2
                    (promote the adoption and enforcement of laws and regulation necessary to implement the
                    Natural Systems, Water Quality and I-and Use Initiatives of the SWIM plan).

                    The former initiative calls for promoting the enforcement of existing zoning laws, environmental
                    laws and permit stipulations inclusive of compliance monitoring; additional funding and staffing
                    (inclusive of legal staff) for enforcement and compliance monitoring (through offering funding
                    incentives for qualifying local governmental environmental protection programs); and fines or
                    penalties commensurate with the infraction.

                    The latter initiative calls for promoting the adoption and enforcement of laws and regulation
                    necessary to implement the Natural Systems, Water Quality and Land Use Initiatives of the
                    SWIM plan. This includes:

                      ï¿½  review the adequacy of rules and regulations of those governmental jurisdictions that are to
                         carry out the SWIM plan's programs, including a review of the sufficiency of enforcement
                         programs of pertinent regulatory agencies, inclusive of all applicable fish and wildlife laws
                      ï¿½  develop and impler@ent biologically defensible fishing regulations, stockin& and habitat
                         creation/restoration projects

                      ï¿½  implement protective regulations and management strategies for fisheries on the decline in
                         Tampa Bay

                         improve the enforcement of fishing regulations by consolidating and standardizing all
                         special acts and local laws related to fishing activities

                      ï¿½  unify and consolidate all special acts and local laws related to marine resource
                         management, as well as ensuring adequate funding and staffing levels for increased
                         monitoring and enforcement capabilities for Tampa Bay, and

                      ï¿½  ensure that the necessary state legislation and agency rules are in place to carry out the
                         plan.

                    Both Terra Ceia and Cockroach Bay aquatic preserve plans have several policies that address
                    enforcement of laws and regulations. These include developing a well-coordinated aquatic
                    preserve management mechanism that recognizes and utilizes local government programs and
                    authorities, and encourages the assistance of federal, state, and local government agencies in
                    implementing the aquatic preserve management plans, especially in areas of protection of natural
                    and cultural resources and the enforcement of applicable resource laws and ordinances.


                                                                  98








                       The Hillsborough County comprehensive plan has a policy that calls for providing adequate
                       personnel to enforce rules and regulations on waterbodies throughout the county, and a policy
                       that calls for improving enforcement of marine conservation laws in the Cockroach Bay area, such
                       as the dedication of an environmen6l deputy to the area. The primary purpose of such a deputy
                       would be to educate boaters and fishermen about boating and safety laws, and secondarily to
                       issue warnings and citations. The Hillsborough County Sheriff's Office is currently training and
                       outfitting the preserve manager for the Cockroach Bay Aquatic Preserve in order to provide
                       additional law enforcement powers and protection.

                       The Manatee County comprehensive plan has no policies that directly addresses this issue.

                       The City of Palmetto comprehensive plan has one policy that directly addresses this issue. This
                       policy calls for the City to assist the enforcement of federal, state, and federal mitigation policies
                       by withholding building permits until all necessary environmental permits are received.
                       Although this policy is not inconsistent with both the Tampa Bay SWIM plan and the Terra Ceia
                       Aquatic Preserve management plan, there are no other policies that directly address this issue.



                       [181 Ports

                       Tampa Bay has several seaports (e.g., Port of Tampa, Port Manatee) that are administered by port
                       authorities created by the Florida Legislature. The authorities are required by statute to create
                       master plans to guide the development and operation of these ports, and to prevent or mitigate
                       any environmental impacts associated with port construction and operations. Port master plans
                       are required by the 1985 growth management act to be integrated into the coastal management
                       element of the comprehensive an of the appropriate local government within whose
                       jurisdiction the port is located.v Accordingly, the Port of Tampa's master plan is supposed to
                       have been integrated into Hillsborough County's comprehensive plan, and Port Manatee's master
                       plan integrated into Manatee County's comprehensive plan.

                       Although ports are included here as an separate issue, in reality, they represent a number of
                       issues, most of which are included wi thin this study under other issues. However, it is only Port
                       Manatee that appears to presents a potential, direct impact on one of the aquatic preserves within
                       this study area (Terra Ceia Aquatic Preserve). Therefore, only the consistency between Port
                       Manatee's master plan and the SWIM and aquatic preserve plans is particularly relevant to this
                       study at this time (assuming the Port of Tampa does not wish to develop Cockroach Bay after the
                       Port's lease with DNR expires). Nevertheless, all relevant objectives and policies for the Port of
                       Tampa and Port Manatee within their respective comprehensive plans are presented here that
                       address the issues in this study.
                       The Tampa Bay SWIM plan has no initiatives, programs, or sirategies that directly address the
                       development and operation of ports. However, there are many initiatives, programs, and
                       strategies that address the prevention or mitigation of environmental impacts associated with
                       port construction and operations. These are not described here, as they have been covered
                       sufficiently elsewhere within this report.

                       Both Terra Ceia and Cockroach Bay aquatic preserve plans have only one policy that directly
                       addresses ports. It calls for prohibiting the construction of new deepwater ports within the
                       aquatic preserve boundaries.



                       46Ch. 163.3178(2)(k), F.S.


                                                                         99








                     Both Hillsborough and Manatee County comprehensive plans, as described above, have
                     integrated port master plans within their coastal management elements. Hillsborough County's
                     plan calls for:

                       ï¿½   ensure that the expansion of existing or the siting of new port or related facilities is
                           coordinated with the future land use, coastal management, and conservation elements of
                           the comprehensive plan

                       ï¿½   assure the coordination of submerged land management & permitting programs with the
                           county's land use regulations

                           maintain an active membership with the Agency on Bay Management, and coordinate with
                           the Tampa Bay SWIM plan

                       0   continue support of estuarine resource restoration management programs in Hillsborough
                           County, and

                       0   continue to develop mitigation projects minimizing adverse port development on natural
                           resources.


                     The Florida Department of Community Affairs, in their review of the Port element of
                     HillsboTough County's draft Comprehensive plan, stated that the county needed to include an
                     objective to protect, conserve, or enhance remaining coastal wetlands, living marine resources,
                     coastal barriers, and wildlife habitats. DCA also noted that there were no policies within the port
                     element addressing cumulative impacts of activities on natural resources (Policy 19.5,
                     Conservation and Aquifer Recharge element, addresses this for the county); support of estuarine
                     research programs; or multijurisdictional estuaries and their management.

                     In the view of DER, the port element of the Manatee County comprehensive plan was simply a
                     continuation of outdated plans and programs which disregard the environmental protection and
                     restoration needs of Tampa Bay in favor of development. DER also stated that the GOPs within
                     the port element would result in the continued incremental loss of valuable estuarine resources,
                     were not consistent [italics added) with the coastal management and conservation elements, did
                     not meet the requirements of Chapter 9J-5 regarding protection of natural resources; and
                     appeared to be inconsistent with the initiatives and strategies in the Tampa Bay SWIM plan.47
                     Additionally, according to DER, port expansion plans would result in loss of approximately 100
                     acres of shoreline and bottom; the objectives in this element are ambiguous, the policies in this
                     element are not clear and are based on "encouraging" the Manatee Count Port Authority, which
                     is objectionable because the county is the Port Authority; and that the GOPs within the element
                     Are not derived from the facilities data & analysis. There are also no policies within the element
                     that address the quantity and character of dredged material, the environmental impacts
                     associated with proposed dredge methods, and the impacts associated with the placement of
                     dredge material at disposal sites.

                     However, there are additional port element objectives and policies within the Manatee County
                     comprehensive plan that are not inconsistent with either the SWIM plan or the Terra Ceia
                     Aquatic Preserve management plan. These objectives and policies call for:

                       0 n-dnimize the environmental impact caused by Port operations, tenants, or expansion;
                           protecting and supporting existing and restored natural habitat


                     47p. 5, Department of Environmental Regulation comments on the proposed Manatee County
                     Comprehensive Plan transmitted to the Department of Community Affairs, January 27,1989.


                                                                     100








                         ï¿½    cooperate with local, regional, and other governmental agencies to ensure all
                              environmental planning activities are coordinated

                         ï¿½    maintain a current inventory of unique habitats near the Port that could be affected by Port
                              activities

                         ï¿½    encourage contracts and Memorandums of Understanding between the Port and state
                              agencies for restoration and/or mitigation projects, and

                         ï¿½    adopt an overall environmental plan that includes clear GOPs.

                       The City of Palmetto comprehensive plan contains no objectives or policies that address this
                       issue.




                       1191 Identification of Areas, Land Use, Etc.

                       Identification of existing land uses, habitats, wetlands, uplands, and other environmentally
                       sensitive areas within a planning jurisdiction is essential for proper natural resource planning
                       and management. This has been done in a basic sense for all comprehensive plans, and the water
                       management districts and regional planning councils have been doing this by aggregation for
                       several years. However, the detailed identification and mapping of both these areas and their
                       attributes, along with analysis of this information by geographic information systems (GIS), is
                       still being done and is not yet fully operational in many areas.

                       SWFWMD and DNR both have GIS-based mapping and analysis capabilities, and each has
                       created (or are currently creating) spatial databases for these purposes. Several local governments
                       within the Tampa Bay area are creating the same, and are using data from SWFWMD and other
                       organizations, as well as using their own planning data acquired during the comprehensive
                       planning process.48

                       Under the Tampa Bay SWIM plan's Natural Systems Initiative 1 (preserve, enhance, and/or
                       restore upland, riverine, intertidal and subtidal habitats), there is a program to establish
                       monitoring/research studies that includes strategies such as evaluating the success of restoration
                       and preservation projects (including projects begun or completed prior to the SWIM program)
                       through aerial habitat mapping and coordinated ground-based studies; and developing
                       additional databases useful for the design and implementation of future projects. Furthermore, a
                       program under Initiative 2 (preserve, enhance, and/or restore plant and animal populations that
                       use the bay, tributaries, and or associated uplands for part or all of their life cycles) calls for
                       promoting and/or funding research which provides information important to the development
                       and implementation of ecologically sound wildlife management programs for the Tampa Bay
                       ecosystem. Under this program, strategies include establishing a wildlife inventory for subtidal,
                       intertidal and nearby upland communities (including the distribution and abundance of species
                       throughout ecosystem); and biennial, quantitative aerial mapping of subtidal, intertidal, and
                       nearby upland habitats.

                       Both Terra Ceia and Cockroach     Bay aquatic preserve management plans have only one policy
                       Chat directly addresses the identification of existing land uses, habitats, wetlands, uplands, and
                       other environmentally sensitive areas. It calls for the development of a resource inventory and

                       "Chapter 9J-5, F.A.C, Minimum Criteria for Review of Local Government Comprehensive Plans and
                       Determination of Compliance, outlines data and analysis requirements for each element of a local
                       comprehensive plan (e.g, maps, statistics, tables, etc.).


                                                                         101








                     map of natural habitat types within the aquatic preserve, with an emphasis on those habitat types
                     utilized by threatened and/or endangered species. However, DNR's Florida Marine Research
                     Institute in St. Petersburg has developed a marine resources GIS as a tool for watershed-oriented
                     resource management and to help evaluate related policies and data collection efforts across
                     various federal, state, and local agencies. Although this GIS has been used mostly foranalyzing
                     fisheries habitat within the Little Manatee River watershed and seagrasses within the Weedon
                     Island State Preserve, information collected for this GIS is being gathered by the Hillsborough
                     County Planning Commission for the development of a comprehensive resource management
                     plan for the Cockroach Bay area (as part of the Cockroach Bay plan amendment CPA 92-03). This
                     resource management plan will be developed with GIS data and analysis techniques gathered
                     from many goverranent age nicies with coordination assistance from the TBRPC's Agency on Bay
                     Management. It will be designed to assist in the implementation of the Cockroach Bay Aquatic
                     Preserve plan, as well as analyze areas and causes of water quality degradation and other
                     environmental issues and impacts outside of the Preserve. This planning activity is coincident
                     with another policy within the Cockroach Bay plan amendment that calls for the Planning
                     Cornn-dssion to develop a Cockroach Bay Aquatic Preserve Overlay District that addresses such
                     issues as land use, densities, setbacks, etc.

                     The Hillsborough County comprehensive plan also has several other policies that address the
                     identification of existing land uses, habitats, wetlands, uplands, and other environmentally
                     sensitive areas within the county. These include having the county monitor trends in wetland
                     losses and gains within the county with their GIS; identify and map natural plant communities
                     providing significant wildlife habitat as environmentally sensitive areas on the county's future
                     land use map; identify and map essential wildlife habitat; and incorporate and build upon the
                     LandSat digital database utilized by FGFWFC to develop a county database and GIS for
                     monitoring changes in land cover and essential wildlife habitat.

                     The Manatee County comprehensive plan has one policy, narrow in scope, that specifically
                     addresses the identification of existing land uses, habitats, wetlands, uplands, and other
                     environmentally sensitive areas. This policy requires land developments within the coastal area
                     to identify and preserve representative tracts of native upland communities before development
                     begins. However, another policy requires the county to review proposed developments for
                     threatened and endangered species by using inventories and assessments developed by several
                     state and federal agencies, and by requiring developers to choose between conducting their own
                     on-site inventory, including detailed mapping, or having the county do the same. Additionally,
                     since the county is developing a parcel-based GIS, it will be within their capability to better
                     identify, map, and analyze existing land uses, habitats, wetlands, uplands, and other
                     envirorunentally sensitive areas.

                     The City of Palmetto comprehensive plan contains no objectives or policies that address this
                     issue.




                     [201 Threatened and Endangered Species; Manatee Protection, Hazardous Waste Disposal;
                           Boundary Expansion and Other Acquisitions

                     Threatened and Endangered Sp    ecies

                     The Tampa Bay SWIM plan, under Natural Systems Initiative 2 (preserve, enhance, and/or
                     restore plant and animal populations that use the bay, tributaries, and or associated uplands for
                     part or all of their life cycles), calls for promoting and/or drafting wildlife management programs
                     (including local, state, and federal legislation and enforcement necessary to accomplish



                                                                      102








                    management goals) to Protect populations and communities associated with the bay inclusive of
                    threatened or endangered species important to commercial and sport fishermen.

                    Management policy directives within both Terra Ceia and Cockroach Bay aquatic preserve
                    management plans simply call for managing spoil islands within the aquatic preserve as bird
                    rookeries and wildlife habitat areas. However, management policies in both management plans
                    require preserve managers to become familiar with, document, and monitor any occurrences of
                    threatened and endangered species within the preserves, and to develop management guidelines
                    for the preservation of these species and their habitat. Additional emphasis is placed on manatee
                    protection measures and preservation and restoration of mangrove vegetation.

                    The Hillsborough County comprehensive plan has many policies that address threatened and
                    endangered species or species of special concern, such as:

                       0  assist DNR and the U.S. Fish and Wildlife Service in recovery programs for the West Indian
                          Manatee and other threatened or endangered species

                       0  cons ult with the FGFWFC when determining whether to issue land development approvals
                          and conditions in coastal areas on sites containing listed species

                       a  amend county LDRs and zoning ordinance to restrict development in essential wildlife
                          habitat

                       a  implement a public education program on the need to protect and manage the habitat of
                          threatened and endangered species, and species of special concern.

                       0  maintain populations of threatened and endangered species and species of special concern,
                          and increase abundance and distribution of populations where feasible and appropriate.

                       0  consult with and consider the recommendations of the FGFWFC in determining the
                          issuance and conditions upon land development approvals which would impact upon
                          threatened and endangered species or species of special concern (conditions of approval
                          shall ensure the maintenance and, where environmentally and economically feasible,
                          increase the abundance and distribution of populations of such species)

                       0  recommend to landowners specific management and recovery strategies for key listed
                          species, as developed by FGFWFC and the U.S. Fish and Wildlife Service (USFWS), and
                          incorporate the same into county land management plans

                       0  assist USFWS, FGFWFC, and DNR in implementing recovery programs for threatened and
                          endangered species or species of special concern, and

                       0  request the assistance of FGFWFC to conduct inventories of threatened and endangered
                          species and species of special concern.

                    The Manatee County comprehensive plan calls for requiring the evaluation and proper
                    management of endangered and threatened species by requiring that each proposed
                    development site be examined for location of listed species. It also calls for permitting the transfer
                    Of density/intensity credits from wetlands, required buffers, and endangered species habitats to
                    upland areas on the same development site withinthe coastal area of the county.

                    The City of Palmetto comprehensive plan has two policies that directly reference threatened or
                    endangered species and/or their habitat.Me plan calls for the City to restrict development that
                    would result in a net reduction in fish and wfldlife habitat for rare, threatened, and endangered


                                                                  103








                     species (the City is to coordinate with the FWTGC to implement this policy); and to identify and
                     adopt appropriate measures and management plans to protect threatened or endangered species
                     known to inhabit the Palmetto area. As discussed above, it is the opinion of DER that the former
                     policy's criterion of "no net reduction" will not offer the necessary protection for fish and wildlife
                     habitat for rare, threatened, and endangered species.

                     With the possible exception of the City of Palmetto comprehensive plan, all three types of plans
                     are consistent with each other concerning this issue, although the Manatee County
                     comprehensive plan has few policies compared to Hillsborough County's comprehensive plan.

                     Manatee Protection

                     The Tampa Bay SWIM plan, under Development And Public Use Initiative I (provide sound
                     environmental policies governing land use which impact the Tampa Bay ecosystem), calls for a
                     program to evaluate the environmental impacts of existing marinas within Tampa Bay and its
                     tributaries, including impacts on manatees and other protected species.

                     Both Terra Ceia and Cockroach Bay aquatic preserve management plans have a policy that
                     requires field personnel to notify the State Manatee Coordinator when an application for use of
                     submerged lands within the aquatic preserve or adjacent upland activities will affect a manatee
                     sanctuary, critical manatee habitat, or manatees known to use an area. (These applications or
                     activities will require the coordinator's authorization and approval before further approval.)
                     Additional policy requirements include monitoring and mapping of manatees and manatee
                     habitat, including marking such habitats; review of applications for use of submerged lands
                     within the aquatic preserve, restricting new marinas and associated construction within manatee
                     habitat areas; coordinating with local governments concerning comprehensive plan objectives
                     and policies; and assisting in public awareness and education efforts.

                     The Hillsborough County comprehensive plan has a policy that requires the county to assist DNR
                     and USFWS in recovery programs for the West Indian Manatee and other threatened or
                     endangered species, in addition to policies addressing the latter. CAPMAT, as part of the
                     Cockroach Bay plan amendment, is required direct the county to initiate a request to the DNR,
                     the Governor and Cabinet, and the Legislature to expand the boundaries of the Cockroach Bay
                     Aquatic Preserve, if deemed ecologically appropriate and beneficial, in order to promote more
                     effective management of the natural system and its biological resources. CAPMAT is also
                     required to assist in the development of public education maps and work with the appropriate
                     authorities in the placement of markers clearly indicating boating channels and potential hazards
                     in appropriate locations throughout the Cockroach Bay Aquatic Preserve. In addition, they are to
                     work to post manatee educational information and warning signs as needed throughout the
                     Preserve.

                     The Manatee County comprehensive plan has several policies that address manatee protecti      on.
                     These include requiring all development within the range of manatees to adhere to DNR
                     guidelines; and developing "slow speed zones" for boaters. However, DNR's comments on the
                     county's proposed comprehensive plan suggested that the county develop a manatee protection
                     plan that expands on these two policies.


                     as of yet with each other's respective aquatic preserve plan concerning manatee protection
                     Neither Hillsborough County nor Manatee County's comprehensive plan are not fully consistent

                     measures. The Tampa Bay SWIM plan is only marginally consistent with both aquatic preserve
                     management plans when specifically applied to manatees.

                     The City of Palmetto comprehensive plan has no policies that address manatee protection.



                                                                     104









                      Hazardous Waste Disposal

                      The Tampa Bay SWIM plan, under Water Quality Initiative 1 (reduce point and non-point source
                      pollutant loading to attain water quality necessary to restore and maintain healthy and       I
                      productive natural systems, protect human health, and to attain the highest possible water use
                      classification), outlines a program for hazardous waste disposal and management in the Tampa
                      Bay area with the following policies:

                         0  implement the requirements of the state water quality assurance act for a comprehensive
                            statewide hazardous waste management program, including the location of temporary
                            storage/transfer facilities for hazardous wastes

                         0  provide needed surface water, groundwater and leachate characterization in and adjacent
                            to potentially dangerous dump sites for application in state and local regulatory
                            responsibilities (delegated to the water management districts), and

                         0  initiate the eventual rehabilitation of dump sites through restorative actions.

                      Both Terra Ceia and Cockroach Bay aquatic preserve management plans call for prohibiting the
                      storage of toxic, radioactive, or other hazardous materials within the aquatic preserve, as well as
                      closing and eliminating any hazardous waste dumps now located within the aquatic preserve.

                      Both Hillsborough and Manatee County comprehensive plans address hazardous waste
                      management. Hillsborough County's plan calls for:

                         0  develop comprehensive hazardous waste management and emergency response progranLs,
                            including source reduction and the proper transfer, storage, disposal, and recycling of
                            hazardous wastes


                         0  further federal and state regulatory agencies' objectives regarding the enforcement of
                            hazardous waste laws and regulations, and
                         0  provide technical asi6istance to DER and EPA for inventorying, ranking, and increasing   'the
                            utilization and direction of federal and state funds for investigations and cleanup of
                            SuperFund and other hazardous chemical contamination sites within county.

                      The Manatee County comprehensive plan has several policies addressing hazardous waste
                      management, including.

                         0  require the county to conduct proper management and disposal of all hazardous materials
                            as required by state law

                         0  develop and implement a hazardous materials management plan, and

                            provide for the safe elimination of abandoned dump sites.

                      The City of Palmetto comprehensive plan has several policies that address hazardous waste and
                      its disposal, and appear consistent with policies within the other plans within this study area.
                      These policies call for the City to:

                            assess the City's hazardous waste handling program, and coordinate with the Manatee
                            County Public Works Department to ensure the implementation of appropriate collection,
                            storage, and transfer programs



                                                                      105








                       ï¿½   enter into an interagency agreement with the Manatee County Public Works Department to
                           develop a hazardous waste transfer/temporary storage facility to serve the City. All
                           hazardous waste shall be collected, stored and disposed consistent with applicable laws.
                           Assess the effects of such wastes on City's natural resources if applicable, and

                       ï¿½   coordinate with the Manatee County Public Works Department toward developing a
                           hazardous waste transfer/ temporary storage facility to serve the City. Siting and design of
                           such a facility shall be consistent with adopted regional and state hazardous waste
                           management programs.

                     All three types of plans appear to be consistent with each other concerning this issue.

                     Boundary Expansion and Other Acquisitions

                     Acquisition of environmentally sensitive land is being conducted at virtually every level of
                     government in Florida, especially within the coastal area, for reasons such as flood control,
                     habitat preservation and restoration, recreation, mitigation, and others. These activities are
                     coordination between as many programs as possible in order to maximize acquisition funds and
                     other resources. All three types of plans address acquisition of environmentally sensitive land in
                     some way.

                     For instance, the Tampa Bay SWIM plan, under Natural Systems Initiative 1 (preserve, enhance,
                     and/or restore upland, riverine, intertidal and subtidal habitats), has several strategies under a
                     program promoting the preservation*of relatively pristine or functional habitats already in
                     existence. These policies include:

                       ï¿½   support existing acquisition programs such as Save Our Rivers (SCIR) and Conservation
                           and Recreational Lands (CARL)

                       ï¿½   when appropriate, cooperate with environmental groups and local, state, and federal
                           governments and agencies in the purchase of lands by identifying areas in need of
                           preservation and contributing to their purchase, and

                           encourage and support private donations of funds and land parcels, parks, etc., as well as
                           the passing of local taxing initiatives.

                     Both Terra Ceia and Cockroach Bay aquatic preserve management plans call for acquiring, where
                     feasible, privately owned submerged lands and adjacent lands and islands located within the
                     boundaries of the aquatic preserve, as well as areas upstream of the present boundary of streams
                     flowing into the preserves, and previously conveyed sovereign lands. The Cockroach Bay aquatic
                     preserve management plan specifically targets the barrier islands at the mouth of the Little
                     Manatee River and those along the coast of Cockroach Bay. The Terra Ceia aquatic preserve
                     management plan specifically targets the barrier islands that are located along the coastline and
                     the low-lying areas of Terra Ceia Island adjacent to Bishop Harbor and Frog Creek. Both plans
                     also call for the application of management criteria contained within the plans to all subsequent
                     legislative additions of land.

                     The Hillsborough County comprehensive plan addresses acquisition of environmentally sensitive
                     lands. The county's comprehensive plan calls for increasing the acreage of publicly-owned or
                     otherwise protected natural preserve land in the county, using the county's natural systems and
                     land use cover inventory to help identify lands suitable for acquisition by the county's
                     Environmental Lands Acquisition Program (ELAPP). The plans also calls for using and
                     promoting alternatives for acquiring and protecting environmental lands, including easements,
                     transfer of development rights, and long-term leases, and continuing to request assistance in


                                                                      106








                    public acquisition of natural preserves under federal, state, and regional programs, including the
                    state's Conservation And Recreation Lands and Save Our Rivers programs.

                    Following the adoption of the recent Cockroach Bay plan amendment (CPA 92-03), the county
                    has a policy which seeks to expand the boundaries of the Cockroach Bay Aquatic Preserve where
                    ecologically appropriate and beneficial (Policy C-37.5, Future Land Use element). This is part of
                    the county's CAPMAT organization.

                    The Manatee County comprehensive plan permits and encourages the designation of
                    environmentally sensitive areas as "Conservation Lands" on the Future Land Use Map (as long
                    as this does not constitute a taking without compensation). The county also has a land acquisition
                    program that is similar to Hillsborough County's ELAPP program.

                    The City of Palmetto comprehensive plan has no policies that address this issue.



                    CONSISTENCY OF DATA COLLECTION, ANALYSIS, AND STANDARDIZATION

                    This information is discussed within Appendix A, which is entitled Cockroach Bay Case Study.


































                                                                107











                  INDIAN RIVER LAGOON STUDY AREA CONSISTENCY ANALYSIS

                  Consistency in planning and programs was identified as a critical need in the Indian River
                  Lagoon prior to the passage of the Local Government Comprehensive Planning and land
                  Development Regulation Act, the passage of the SWIM Act, and the revision of the state's aquatic
                  preserve management plans. Years of research, civic involvement, and political action regarding
                  the restoration and protection needs of the lagoon system led to its designation as a "priority
                  waterbody' in the original version of the SWIM Act and its inclusion into the National Estuary
                  Program, a federal resource planning and management program adn-dnistered by the U. S.
                  Environmental Protection Agency, in 1990. With the SWIM plan undergoing its mandatory three-
                  year revision, local comprehensive plans undergoing the statutory five-year evaluation and
                  review, and the management plans for the three aquatic preserves within the lagoon undergoing
                  revision, a sufficient base is available for evaluating the consistency of these three programs as
                  they apply to the resource management needs of the system.



                  Description of Indian River Lagoon Study Area

                  The Indian River Lagoon extends along Florida's eastern coast from Ponce de Leon Inlet in
                  Volusia County south to Jupiter Inlet in Palm Beach County. The area of the Indian River Lagoon
                  addressed within this study includes the southernmost of the state's three aquatic preserves
                  located in the lagoon, which extends from Jensen Beach south to Jupiter Inlet. The boundaries of
                  the preserve are shown in Figure 3. Three counties (Palm Beach, Martin, and St. Lucie) and eight
                  municipalities (Jupiter, Tequesta, Jupiter Inlet Colony, Jupiter Island, Ocean Breeze Park, Sewall's
                  Point, Fort Pierce and Stuart) surround the Jensen Beach to Jupiter Inlet Aquatic Preserve and
                  constitute the study area for the portion of this research addressing the Indian River Lagoon.

                  The Indian River Lagoon is a long and wide estuarine body situated between the Florida
                  mainland and a chain of barrier islands. The lagoon is shallow primarily, with an average depth
                  of five feeL49 However, the Atlantic Intracoastal Waterway, a federal navigation channel, has
                  been dredged through the lagoon with a dve),th of 10 to 12 feet. The lagoon has the highest species
                  diversity of any estuary in North America and supports ove'r thirty endangered or threatened
                  species.51 It provides prime habitat for fisheries and a suitable location for the commercial and
                  recreational fishing industries. Within the state's Treasure Coast and East Central regions, the
                  lagoon itself is surrounded by both urban and agricultural development. The National Oceanic
                  and Atmospheric Administration estimates that over 30 percent of the land within the estuary's
                  drainage basin is classified as agricultural and 17 percent as urban.52

                  The economic and recreational value of the lagoon's resources and the land uses of the
                  surrounding region have jeopardized the environmental quality of the waterbody. Authors of the
                  Indian River Lagoon Joint Reconnaissance Report, published in 1987, attributed "the intensity of
                  human use of the regional resources and associated activities over the last 80 years"W to the
                  system's dynamic behavior. More specifically, human-related impacts on the lagoon's hydrology,


                  49Department of Natural Resources. (1990). Aquatic Preserve Management Plan, Jensen Beach to Jupiter Inlet
                  (Phase 1), p. 17.
                  50SJRWMD and SFWMD. (September, 1989). SWL&4 Plan for Indian River Lagoon.
                  51Palm Beach Post. Quly 30,1992). "Hope for the lagoon." (Editorial).
                  52NOAA (U.S. Department of Commerce). (October, 1990). Estuaries of the United States: Vital Statistics of a
                  National Resource Base, pp. 31-31
                  -53SJRWMD and SFWMD, P. V-1.


                                                              108








                      circulation and flushing, biological habitats, and trophic /community structures have contributed
                      to a decline in water and sediment quality and the habitat and species diversity of the lagoon.


                      A number of factors upset the ecological balance of the entire lagoon system, but the* focus of this
                      chapter is on those factors affecting the southernmost portion of the lagoon, from Jensen Beach to
                      Jupiter Inlet. The entire lagoon system is experiencing a decline in water and sediment quality
                      and a loss and alteration of habitat due primarily to two factors. First, pollution from human-
                      related point and nonpoint sources threaten to convert gradually the lagoon from a macrophyte-
                      based to a phytoplankton-based system and damage the estuarine resources.54 Second,
                      alterations in the lagooWs natural circulation patterns and inflow of freshwater affect salinity,
                      create turbidity problems, and inhibit growth of seagrasses, a habitat and species vital to the
                      lagoon's ecosystem. Environmental problems more specific to the portion of the lagoon addressed
                      in this study include the following-

                        * unregulated freshwater inflows;

                        0   wastewater effluents;

                        0   leachates from septic tanks systems;

                        0   turbidity problems due to dredging and upland uses;

                        0   shoreline development and alteration;

                        0   alteration of seagrass beds due to increasing boat and jet ski traffic; and

                        0   impoundment of estuarine marshes and wetlands.

                      Major system-wide issues of the Indian River Lagoon were identified in 1981 during the Future of
                      the Indian River System Symposium. This event precipitated a series of efforts during the 1980S
                      that further defined these major issues and resource protection and management needs for the
                      systen-L A primary concern of the SymposiurWs broad cross-section of scientists, government
                      officials, and concerned citizens was the absence of a planning and regulatory framework to
                      integrate the many related but discrete efforts to restore and manage the lagoon. More than 40
                      separate goverriment entities at the local, regional, state, and federal levels play a role in the
                      management of the resources within or surrounding the lagoon and create a complicated milieu
                      of overlapping, uneven, and potentially conflicting authorities. Participants in American
                      Assembly consensus-building processes conducted in 1985 and 1986 concluded that three major
                      problems besieged the managers of the lagoon: (1) no central control of management, (2)
                      unregulated freshwater inflows and introduction of materials into the lagoon; and (3) decline of
                      seagrass beds vital to overall lagoon productivity.55

                      Efforts are underway to sort out this management milieu and create a coordinated, system-wide
                      approach to managing and protecting the resources of the lagoon. In 1986, the Indian River
                      Lagoon Field Comn-dttee of the state's Interagency Management Comn-dttee forwarded to the
                      governor recommendations for the improved management of the system's resources.56 They

                      54SWIM Plan (1989), p. 9.
                      55Barile, Diane D., et a]. (1987). Estuarine management - the Indian River Lagoon. In Coastal Zone '87
                      (Proceedings of the Fifth Symposium on Coastal and Ocean Management), Volume 1, pp. 237-250. (New
                      York:- American Society of Civil Engineers).
                      -rl6lndian River Lagoon Field Committee of the Interagency Management Committee. (May 1986). Report to
                      the Governor tvith Recommendationsfor Resource Management in the Indian River LAgwns System.


                                                                     109









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                                                                                                       110









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                                        3\            ....   CORPORATE LIMITS              4              3       2IL                          CI
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                                                                                             -A
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                                                      FLORIDA                                                     L
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                                                                                                                           13









                     recommended the creation of an "interagency task force charged with developing and
                     implementing an Ecosystem Management Plan." The St. Johns River Water Management District,
                     serving as the host agency for the National Estuary Program for Indian River Lagoon, began to
                     develop in early 1991 a comprehensive conservation and management plan (CCMP) for the
                     lagoon. Also, the NEP established a Management Conference which includes representatives of
                     SJRWMD, SFWMD, and state, local, and federal agencies. These Conferences are established for
                     each NEP waterbody and are designed to to get financial and other comn-titments from the
                     various actors to develop and implement the CCMP for a waterbody. In addition to this, the
                     Indian River Lagoon Conference adopted the three goals of the SWIM plan for the Indian River
                     Lagoon to guide their actions and the development of the CCMP.

                     In 1992, the NEP took an important step toward ensuring consistency among resource planning
                     and management efforts in the lagoon and adopted the goals of the SWIM plan. According to the
                     draft revised SWIM plan (September 1992)     ..... the goals of NEP and SWIM, being virtually
                     identical, are intended to emphasize the mutual purposes of the two major programs, reflect the
                     similar and complementary functions of both, and create the philosophical basis for the merging
                     of both programs as a unified local, State, and Federal initiative for the Indian River Lagoon
                     system" (p. 4). Authors of the draft revision indicate that this action would " . . . help ensure
                     consistency among other local, state, and federal plans that affect resources" of the lagoon and
                     lead to the adoption of a joint plan, or single management plan, by 1996. However, this single
                     management plan will not render obsolete the SWIM plan for the lagoon and the management
                     plan for the aquatic preserve extending from Jensen Beach to Jupiter Inlet. These plans still serve
                     specific state policy purposes and they differ in scope of issue, jurisdiction, and geography, as
                     discussed above. Both address, in general, issues relating to water and sediment quality, habitat,
                     and Interagency management.

                     The designation of the Indian River Lagoon as a National Estuary adds another government
                     agency to the multiplicity of agencies with some degree of responsibility in managing the
                     resources of the lagoon. However, the designation also introduces an additional source of
                     funding for restoration, management, and research but perhaps more important, provides a
                     program that focuses on the system-wide resource management needs for the waterbody and for
                     staff that can focus completely on the resource. Representatives of the South Florida Water
                     Management District indicated that the SWIM program for the lagoon has benefited from the
                     NEP, particularly since funding of the state's SWIM trust fund has din-dnished. However, the
                     NEP also has caused the district to rearrange its program priorities and, as a result, other equally
                     important waterbodies within the district receive less attention. Nevertheless, the SWIM, aquatic
                     preserve, and local government comprehensive planning programs will figure largely in
                     developing a coordinated and consistent regulatory and management framework for the Indian
                     River Lagoon. A review of the three types of plans as they relate to protection and management
                     of the southern portion of the lagoon is an important step in determining how they will fit within
                     a comprehensive planning framework for the entire lagoon.



                     Indian River Lagoon SVM1 Plan Description

                     The original version of the SWIM Act designated the Indian River lagoon system as a "priority
                     waterbody" and directed the adoption of a plan to restore and protect the lagoon. The lagoon lies
                     mostly within the jurisdiction of St. Johns River Water Management District (SJRWMD) but its
                     southernmost portion, which includes the Jensen Beach to Jupiter Inlet Aquatic Preserve, is
                     within the jurisdiction of South Florida Water Management District (SFWMD). The two districts
                     entered into a Memorandum of Understanding in 1987 and jointly undertook drafting and
                     adopting the SWIM plan for the lagoon, with SJRWMD taking the lead. The governing boards of



                                                                     112








                      each district were responsible for conducting public workshops to obtain input before formally
                      adopting the plan.

                      The SWIM plan sets forth three broad goals in order to address the water and sediment quality,
                      habitat alteration and loss, and interagency management of the lagoon system. These goals
                      include the following:

                        a attain and maintain water and sediment of sufficient quality

                        0 attain and maintain a functioning macrophyte-based ecosystem, and

                        9 heighten public awareness and coordinate agency management of the Indian River lagoon
                            ecosystem.

                      In order to accomplish these goals, the plan sets forth five separate programs: (1) water and
                      sediment quality; (2) habitat preservation and restoration; (3) regulation and enforcement; (4)
                      public awareness; and (5) administration, planning, and coordination. The SWIM plan also
                      identifies twelve geographic target areas for various research, restoration, and conservation
                      projects undertaken as part of the SWIM program. Only one of these target areas, Manatee
                      Pocket, lies within the study area for this research. Another, the St. Lucie Estuary vicinity, was
                      added in the 1992 draft of the SWIM plan.

                      As required by statute and agency rules of DER, the SWIM plan for the Indian River Lagoon
                      contains a description of the lagoon system and its current conditions and uses; identification of
                      government entities with management responsibilities of the lagoon system; a description of
                      point and nonpoint pollution sources, permitted discharges, and surrounding land uses; and
                      descriptions of current and needed strategies, studies, and measures to restore and maintain the
                      waterbody. These elements of the lagoon's SWIM plan are not complete and are emerging
                      through the different research and inventorying tasks specified in the plan's five programs. Since
                      the plan indicates the need for further research, its goals are fairly broad and general and the
                      means, or objectives, for accomplishing these goals are not defined clearly.

                      The two districts have updated annually the plan and recently published a draft revision of the
                      entire SWIM plan (September, 1992) in accordance with statutes which require revision every
                      three years. The 1992 draft is undergoing review by staff of DER, DNR, Florida Came and
                      Freshwater Fish Commission, DCA, DACS, Treasure Coast Regional Planning Council (TCRPC),
                      and local governments within the lagoon basin. The 1989 version of the SWIM plan was reviewed
                      for this study since the 1992 draft was not available until after the study team conducted its
                      review of plans.



                      State and Local Review of SWIM Plans

                      Interagency review of SWIM plans, required by statute, is designed to facilitate coordination
                      among agencies involved in the management of the lagoon' s resources but more importantly,
                      serves as a checkpoint for consistency among plans. Interviews with state and local agency staff
                      from the Indian River Lagoon study area revealed varying levels of participation in the SWIM
                      plan review process. DNR staff managing the Jensen Beach to Jupiter Inlet aquatic preserve
                      indicated active involvement in the development of the initial version of the SWIM plan for the
                      lagoon and on-going involvement in reviewing revisions of the plan. DNR field staff did not
                      review the SWIM plan to the degree they reviewed proposed local comprehensive plans since
                      they participated on the cDmn-dttee that developed the SWIM plan and were deeply familiar with
                      the contents of the plan before its release as an official draft.


                                                                      113








                     SFWMD staff commented that DNR's participation was critical to development of the SWIM plan
                     due to the district's then lack of expertise with problems related to estuarine areas. Previously, the
                     district only managed freshwaterbodies. The district relies on DNR to manage the portions of the
                     lagoon under DNR's jurisdiction and to ensure protection of water and habitat quality consistent
                     with SWIM objectives. Many of the goals and policies of the aquatic preserve management plan
                     are consistent with the SWIM plan, but the district does not have the authority, like DNR, to
                     regulate specific activities that may conflict with SWIM goals and objectives, such as construction
                     of docks and dredging within the preserve. This interdependence underscores the importance of
                     close coordination between agencies in achieving mutual objectives for the preserve.

                     Similarly, the district must rely on the authority of local governments to regulate land use
                     activities in accomplishing SWIM plan goals and objectives. However, in the Indian River Lagoon
                     study area, local governments as a whole do not review the SWIM plan as closely as the district
                     reviews local plans. Some local government staff indicated that they have "never even seen a
                     SWIM plan" and other staff commented that they depend on the state (i.e., DCA, SFWMD, and
                     DER) to ensure consistency of SWIM plans with local plans. Overwhelmingly, local government
                     staff commented that due to fiscal constraints, they do not have the staff to regularly monitor
                     impacts of SWIM projects on local plans and activities, or vice versa. In fact, several of the
                     municipalities within the study area do not employ staff to manage implementation of the
                     comprehensive plan Or environmental resource programs. Furthermore, these municipalities
                     retained private contractors to develop initially the comprehensive plan and to prepare any
                     amendments-57 The local governments contacted seemed to display more concern regarding
                     consistency with neighboring local plans and the Treasure Coast Regional Policy Plan, and
                     compliance with Rule 9J-5, F.A.C., a logical conclusion given the state's mandates for local plan
                     consistency and the penalties for non-compliance with these mandates.

                     Local involvement or fan-dliarity with the Indian River Lagoon SWIM plan also seemed to relate
                     to proxin-dty of the local government to the lagoon. St. Lucie and Martin Counties indicated
                     greater awareness of the Indian River Lagoon SWIM plan than Palm Beach, which is situated at
                     the very southern end of the lagoon. Rather, Palm Beach County staff were more fan-dliar with
                     the SWIM program for Lake Okeechobee. In addition, the cities of Tequesta and Jupiter indicated
                     greater interest in the Loxahatchee River SWIM plan and the city of Stuart in the St. Lucie River
                     Estuary since these waterbodies figure more pron-dnently than Indian River Lagoon within their
                     corporate limits.

                     The local governments and TCRPC did not participate actively in the development and revision
                     of the SWIM plan and nearly all staff indicated that they will review the draft revision once the
                     district forwards it to them. None responded that he/she reviews SWIM Plans according to in-
                     house criteria or guidelines. Instead, the local governments and TCRPC review SWIM plans for
                     general consistency with local plans and the comprehensive regional plan, respectively, and for
                     potential impacts to local resources and activities, as directed by statute.



                     Indian River Lagoon, Jensen Beach to Jupiter Inlet Aquatic Preserve Plan Description

                     Two versions of the plan for the Jensen Beach to Jupiter Inlet Aquatic Preserve plan were
                     considered in this research. The first, the 1985 version, addresses the management of this preserve
                     as well as the Vero Beach to Fort Pierce Aquatic Preserve, situated directly north of the Jensen
                     Beach area. The second, the 1990 revised version, represents the first phase in the development of
                     a complete resource management plan for the Jensen Beach to Jupiter Inlet preserve. However,

                     -57Due to the lack of staff to comment constructively on issues relevant to this research, several
                     municipalities were not included in the interviews of agencies.


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                      this 1990 plan only encompasses the submerged lands from Hobe Sound to Jupiter Inlet, or
                      approximately half of the lands within the entire preserve. DNR field staff indicated that the
                      resource inventory is c6mpleted in order to develop the second phase of the aquatic preserve
                      plan, but funding was still not available for the drafting of the plan. Thus, the 1985 and 1990
                      versions of the management plans for the Jensen Beach to Jupiter Inlet preserve were considered
                      in this review since the 1990 version only addresses the management needs of the southern half
                      of the preserve.
                      The geographic and jurisdictional scope of the aquatic preserve plan' is less comprehensive than
                      the SWIM Plan's, which encompasses the entire basin of the Indian River Lagoon. The aquatic
                      preserve plan focuses on activities within the jurisdiction of the preserve and land uses directly
                      adjacent to it while the SWIM plan addresses land uses and human-related activities as they
                      impact water and habitat quality of the whole waterbody. For example, the aquatic preserve plan
                      concentrates on points of discharge of the drainage systems into the preserve but the SWIM plan
                      addresses entire drainage systems within the basin of the lagoon.

                      The stated purpose of the 1990 plan for the Jensen Beach to Jupiter Inlet preserve is       to serve
                      as a useful Vide to the aquatic preserve field staff and others in maintaining the integrity of the
                      preserves." The 1990 plan provides a more specific basis for the identified management and
                      protection needs of the preserve than the previous plan. Furthermore, it tailors the directives of
                      the statutes governing the management of all the state's aquatic preserves to serve more
                      appropriately the specific management needs of the Jensen Beach to Jupiter Inlet preserve. The
                      revised management plan designates primary and secondary resource areas and identifies
                      compatible uses within each area. Scientific thresholds were developed for distinguishing
                      between these two types of areas. Preserve staff indicated that criticism of the 1985 plan centered
                      on the generality of its management policies and that in response, more specific policies were
                      developed based on the particular resources and management needs of the preserve.

                      DNR staff attempt to ensure consistency between the objectives for the preserve and locally
                      approved actions through review of local comprehensive plans, amendments to the
                      comprehensive plans, proposed land development regulations, proposed site plans, and permits
                      for activities and uses under both state and local jurisdiction. They recognized that the
                      implementation of the aquatic preserve plan depends on complementary actions of local
                      governments and SFWMD, a point also emphasized throughout the revised plan's goals and
                      objectives. Although staff must coordinate the management and protection of the preserve with
                      local governments and the district, they also indicated that coordination efforts vary from agency
                      to agency, depending on the presence of staff and resources to complement their functions. In
                      general, staff found coordination with the county governments more consistent than with the
                      municipalities since the counties in this study area tend to perform more functions related to land
                      use planning and environmental management.

                      Preserve management staff reviewed local comprehensive plans as they were subrnitted to DCA
                      for compliance certification and conducted their review according to DCA's prescribed review
                      and comment procedures for state agencies. They reviewed local plans for policies and planned
                      actions relating to surface water runoff, permitting of docks, and protection and establishment of
                      wetland buffers. DNR provided preserve staff with guidelines for their review. Staff felt that their
                      comments to DCA regarding local plans were effective because they noticed an overall change in
                      address of local policies affecting the preserve. In fact, one local government recently proposed
                      plans for a marina based on policies of the aquatic preserve plan.

                      Preserve staff indicated that their involvement in the development of the SWIM plan influenced
                      their subsequent revision of the aquatic preserve plan, but they did not indicate active

                      58DNR. (1990). Jensen Beac* to Jupiter Inlet Aquatic Preserve Managenient Plan (Phase 1), pp'. 1-2.


                                                                      115








                    participation on behalf of SFWMD Or the local governments in revision of the aquatic preserve
                    plan. However, the limits of DNR's jurisdiction within the mean high water line preclude the
                    preserve staff s, complete management of all human activities impacting the preserve's resources
                    and requires that they depend on the SWIM plan and local plans to address activities outside the
                    preserve. The revised plan describes its relationship to other applicable plans, namely the State
                    Comprehensive Plan, the Conceptual State Lands Management Plan, and the comprehensive
                    plans of Martin and St. Lucie counties. The plan was developed to be consistent with the State
                    Comprehensive Plan, but the intent of the aquatic preserve program is to guide county
                    governments " . . . during their planning processes towards developing local planning criteria
                    and standards that will be consistent with the objectives of the program."59



                    Local Govemment Comprehensive Plans

                    In accordance with the state's n-dnimum criteria, the local government comprehensive plans
                    reviewed for the Indian River Lagoon study area address a broad range of issues, much broader
                    tha 'n those issues of the SWIM and aquatic preserve plans. Each element of the eleven local plans
                    relevant to the study area was reviewed for goals, objectives, and policies potentially consistent
                    or inconsistent with issues relevant to the protection and management of the Jensen Beach to
                    Jupiter Inlet portion of the lagoon. These issues are outlined below.

                    Development of the SWIM plan for the Indian River Lagoon coincided generally with the
                    development of comprehensive plans for the local governments in this study area. SFWMD staff
                    reviewed local plans as submitted to DCA for compliance certification. Interviews with district
                    staff disclosed that the agency's scope of review of local plans evolved throughout the process. At
                    first, the district had no specific plans or criteria on which to base reviews of local plans for
                    relevance to the lagoon system. However, the goals and objectives of the SWIM plan, once
                    developed, guided partly their review. The district's two primary concerns were consistency of
                    policies within local plans and compatibility of local plans with SWIM goals and objectives. The
                    district staff described a voluntary approach to ensuring consistency between the SWIM plan and
                    local plans. In effect, the district filled a void for local governments and provided assistance
                    necessary to develop local plans in compliance with state requirements. However, this assistance
                    was uneven, depending on the technical capacity and resources of the local government. For
                    example, the larger county governments tend to employ staff to administer programs focused on
                    environmental resources protection and management. In fact, the district often contracts with the
                    counties to conduct projects as part of the SWIM program.

                    Furthermore, interviews indicated that district staff worked closely with local governments in
                    preparing relevant elements of their comprehensive plans, namely conservation and
                    drainage/aquifer recharge elements. The district essentially provided technical assistance to the
                    local governments but perceived this role as vital to establishing consistency with SWIM goals
                    and objectives. For example, the district provided data in order to assist local governments in
                    meeting minimum data requirements for local plans, assisted in development of policies and
                    objectives, and provided model ordinances for drainage and stormwater regulation.



                    CONSISTENCY BY ISSUE

                    Since its geographic scope is the broadest of the three types of plans reviewed, the SWIM plan for
                    the Indian River Lagoon served as the primary basis for identifying the major issues relevant to

                    59DNR, p. 16.


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                     the lagoon. The research team also used the Indian River Lagoon Joint Reconnaissance Report as a
                     source for determining issues relevant to the southern portion of the lagoon. The plan for the
                     Jensen Beach to Jupiter Inlet preserve of the Indian River Lagoon was then reviewed to identify
                     issues common with those of the SWIM plan and issues relevant to the resource management and
                     protection of this portion of the SWIM body. The following list of issues functioned as the basis of
                     review of the comprehensive plans of local governments bordering the aquatic preserve for
                     consistency with the goals and objectives of the SWIM and aquatic preserve plans:

                     A. Water and Sediment Quality

                         1.  Unregulated freshwater inflows and excessive stormwater discharges due to extensive
                             drainage networks, artificially lowered water tables, and loss of wetlands
                         2.  Excessivenutrient loadings from point and nonpoint sources, particularly canals
                             draining agricultural and urban areas
                         3.  Releases of artificial substances from urban, marina, and agricultural activities
                         4.  Wastewater and sewage effluents and leachates from septic tanks, treatment plants, and
                             agricultural activities
                         5.  Dredge and fill activities/shoreline alteration

                     B., Habitat

                         1.  Loss and alteration of seagrass beds due to shoreline development, mosquito
                             impoundments, and increased boat/jet ski traffic
                         2.  Loss of wetlands and mangroves ,
                         3.  Protection of manatee and bird rookery habitat

                     C   Interagency Management

                         I.  Inadequate permit enforcement, environmental protection rules and ordinances
                         2.  Lack of technical knowledge, research, and awareness
                         3.  Inconsistent resource management among regulatory agencies and need for improved
                             coordination among DER, DNR, WMDs, and local governments regarding water quality
                             and land use planning

                     The degree of consistency for each issue is summarized below, starting with major areas of
                     consistency or inconsistency.



                     Water and Sediment Quality Issues

                     The characteristics of the water that drains or discha!ges into the Indian River Lagoon affect most
                     directly the estuary's "habitability and healthiness."6u The protection, restoration, and
                     management of water and sediment quality is extremely vital to the habitat and species diversity
                     of the lagoon.61 The SWIM plan in particular emphasizes water and sediment quality issues,
                     particularly through the management of the release of artificial substances and nutrient loadings
                     and of the discharge of stormwater and freshwater into the. lagoon system. 7be SWIM plan also
                     identifies two major types of impacts contributing to a decline in water and sediment quality. (1)



                     6ODNR. (1985). Indian River Lagoon Aquatic Preserves Alanagement Plan (Vero Beach to Fort Pierce and Jensen
                     Beach to Jupiter Inlet), p. 49.
                     61SJRWMD and SFWMD. (September, 1989). indon River Lagoon S WIM Plan, p. 7.


                                                                   117








                     "...pollution from anthropogenic point and nonpoint sources" and (2) "...alterations in the
                     natural patterns of circulation in the lagoons and freshwater flow into the lagoons."62

                     The aquatic preserve plan is not as comprehensive in its address of water and sediment quality.
                     The 1985 plan for the entire preserve recognizes that " . . . management of water resources for the
                     protection of human health and recreational enjoyment of aquatic preserve water, as well as for
                     the protection and enhancement of the preserves lant and animal communities is ... the most
                     critical aspect of aquatic preserve management-"@FHowever, the plan then indicates that this
                     objective depends greatly on DER and water management districts, the agencies charged with
                     regulating water quality and quantity. The revised plan (1990) for the preserve includes
                     cooperating with other agencies in water quality improvement"64 as one of the four primary
                     goals of resource management within the state's aquatic preserves. Specifically, Goal AA of the
                     revised plan is to "improve water quality" through coordination with DER, the water
                     management districts, and local governments.

                     According to the Joint Reconnaissance Report, water and sediment quality does not appear to be
                     poor in the Jensen Beach to Jupiter Inlet segment of the lagoon. 7bis might account partly for the
                     de-emphasis of water and sediment quality issues in the aquatic preserve plan for this segment,
                     relative to the SWIM plan for the entire waterbody. Furthermore, the SWIM plan identifies
                     twelve "problem areas" in which water quality conditions are poor relative to the entire lagoon.
                     Only two of these problem areas, Manatee Pocket and the St. Lucie Estuary vicinity, lie within or
                     adjacent to the area considered in this research. 'Me remainder of the problem areas are located
                     within the central and northern portions of the lagoon system. Thus, it appears that the primary
                     geographic focus of water and sediment quality issues for the lagoon is on areas north of the
                     Jensen Beach to Jupiter Inlet aquatic preserve.

                     The local government comprehensive plans in this study area address water and sediment
                     quality issues to varying degrees. Interviews with staff of DNIZ, SFWMD, and the local
                     governments indicated that this variation is likely due to the breadth of water quality problems
                     within each local jurisdiction and the technical capacity of the local government to manage
                     complex problems which are not understood completely by any agency. Both the Indian River
                     Lagoon SWIM plan and aquatic preserve plan acknowledge the need for further research to
                     detect sources of pollution in the lagoon, to determine the ultimate impacts of human-related
                     activities on the lagoon, and to develop appropriate strategies for mitigating or eliminating these
                     impacts. The Jupiter Inlet, one of two natural inlets along the east coast of Florida, contributes
                     greatly toward the presence of good water quality in this portion of the preserve. The aquatic
                     preserve plan states that the area adjacent to the Jupiter Inlet     is noted for its high water
                     clarity and rich, tropical marine life."



                     Issue Unregulated freshwater inflows and excessive stormwater discharges due to extensive
                     drainage networks, artificially lowered water tables, and loss of wetlands

                     The Indian River Lagoon receives substantial discharges of freshwater from natural streams and
                     canals draining agricultural areas and developed lowlands to the west of the lagoon.65 Runoff
                     also enters the lagoon from the barrier islands to the east and as overland flow. The Jensen Beach
                     to Jupiter Inlet segment of the lagoon is affected greatly by inflows from the St. Lucie River and
                     the five subwbasins that drain into the estuary, including discharges from Lake Okeechobee.

                     621d.
                     63p. 69.
                     64DNR. (1990). Jensen Beach to Jupiter Inlet Aquatic Preserve Manage?nent Plan, Phase 1, p. 55.
                     65SJRWMD and SFWMD. (November, 1987). Wian River Lagoon Joint Reconnaissance Report,.


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                    Overall, these inflows impact circulation and tidal flushing in the lagoon and influence ultimately
                    water and sediment quality. The SWIM plan indicates that unregulated freshwater inflows and
                    excessive stormwater discharges create salinity fluctuations and impair the functioning of the
                    lagoon as estuarine habitat.

                    Of the three types of plans reviewed, the SWIM plan places the most emphasis on the regulation
                    and management of freshwater inflows and stormwater discharges into the lagoon. ne aquatic
                    preserve plan addresses surface water runoff from a coordination standpoint since their
                    jurisdiction does not extend beyond the mean high 'water line of the preserve and these problems
                    originate landward. Thus, the scope of the plan is limited in its capacity to address the
                    management of stormwater and freshwater inflows. DNR staff managing the aquatic preserve
                    indicated that they reviewed local government plans and provided comments to DCA regarding
                    the plans' treatment of surface water runoff issues.

                    The SWIM Plans address of this issue is much more systemic since it relates directly to the
                    mission of the plan. Its objective is to manage inflows from both point and non-point sources to
                    minimize salinity fluctuations. Several sub-basin projects are described, but none for the study
                    area. However, the plan states that local governments must manage, "to the greatest extent
                    feasible," stormwater.66 projects to develop a model stormwater ordinance and an inventory of
                    stormwater outfalls are specified as measures to assist local governments in implementing
                    stormwater management programs. In addition, the SWIM plan commits SJRWMD and SFWMD
                    to provide SWIM funding to support local stormwater management projects of St. Lucie County
                    and Martin County-

                    Local governments primarily address, either directly or indirectly, freshwater inflows within the
                    Infrastructure and Drainage elements of the comprehensive plans. Most of the local plans provide
                    for both adoption of stormwater management plans and regulations, consistent with state
                    regulations and criteria, and for protection of floodplains and natural drainage features-Nearly
                    all of the municipal comprehensive plans propose to manage stormwater discharges and
                    sheetflow through land use designations, land development regulations, and preservation and
                    protection of wetlands. Some even specify the planned adoption of a stormwater management
                    ordinance and retrofit of existing drainage systems.

                    However, most of the municipalities indicated a need for further analysis and study of the issue
                    before implementation of stormwater management actions. In addition, most of the municipal
                    comprehensive plans addressed stormwater management as a general need, not as an action to
                    specifically protect the water and sediment quality of Indian River Lagoon and /or the aquatic
                    preserve. In their comments regarding draft local plans, the state agencies were concerned with a
                    lack of documentation and analysis of stormwater quality problems and with the levels of service
                    set for stormwater. DCA in particular demonstrated concern with the lack of specific and
                    measurable policies addressing stormwater runoff and drainage. DER's comments centered on
                    the absence of policies to adopt master plans for watershed and stormwater management.

                    Interviews with SFWMD staff revealed that the district recognizes a general lack of technical
                    capacity and funding at the local level to implement stormwater management programs. The
                    district intends to provide to local governments on-going technical assistance and funding
                    support from the SWIM Trust Fund.





                    66SJRWMD and SFWMD, p. 38.


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                     JL&Uj. Excessive nutrient loadings from point and nonpoint sources, particularly canals
                     draining agricultural and urban areas

                     According to the joint Reconnaissance Report, nutrient oveT-enrichment contributes to the
                     transition of the lagoon from a macrophyte-based system to a phytoplankton-based systern. The
                     SWIM plan identifies several point and nonp6int sources increasing the loading of nutrients into
                     the lagoon system, including tributaries and canals draining agricultural, residential and
                     commercial land uses, groundwater, and wastewater treatment plants. These sources are largely
                     external to the waterbody. The SWIM plan also recognizes that no significant agricultural
                     pumped discharges are present within the southern portion of the lagoon under SFWMD
                     jurisdiction.67 (However, there are many existing gravity flow stormwater discharges that affect
                     the Lagoon.)(18 The aquatic preserve plan addresses the impacts of agricultural and urban
                     drainage, particularly the impacts of the nutrients carried from these areas, but also indicates that
                     the Jupiter Inlet facilitates the tidal flushing necessary to maintain a healthy balance in the
                     estuary-

                     The primary objective of the SWIM plan in addressing this issue is to further identify and
                     inventory point and nonpoint sources contributing to the loading of nutrients into the lagoon.
                     These results will lead to recommendations by the two water management districts to reduce
                     nutrient loadings into the lagoon system. Furthermore, the aquatic preserve plan does not include
                     specific goals or objectives to reduce overloading of nutrients but does commit to adopt
                     agreements with DER to conduct demonstration projects for improving water quality, in general.

                     In general, the local plans appear to indicate reliance on DER and the water management districts
                     to assist in identifying nonpoint sources of nutrient loadings, to set precedents and standards for
                     reducing nonpoint loadings, and to help develop master drainage plans. Some of the local plans
                     comn-dt to enforcing regulations of SFWMD, DER, DNR, and HRS in protecting water quality.
                     The ob*tive of local governments is to manage the loading of nutrients into water resources
                     through plans and regulations. Comments of the water management districts and. DER
                     demonstrated concern with a lack of specificity or methodology regarding implementation of
                     policies to reduce nonpoint loadings. Other state agency concerns also included inconsistencies
                     within local plans, particularly between allowable future land uses and policies regarding
                     pollutant reductions.

                     Ft. Pierce's policy is perhaps the strongest by prohibiting nonpoint loadings into drainage
                     systems and the Indian River Lagoon. St. Lucie County's plan includes a policy to begin
                     wastewater reuse in order to improve water quality and reduce discharge of treated wastewater
                     into waterbodies. The comprehensive plan for Jupiter Inlet Colony proposes to use "best
                     management practices" to reduce nonpoint pollutant loadings, but does not specify the lagoon as
                     the receiving body. On the other hand, Ocean Breeze Park's comprehensive plan proposes to
                     review by 1991 the towWs nonpoint discharge into the lagoon and its impact on water quality.
                     The other local governments indicate plans to adopt drainage ordinances and/or drainage master
                     plans by 1992 or 1993.



                     Issue: Releases of artificial substances from urban, marina, and agricultural activities

                     According to the SWIM plan, the operation of marinas and boatyards can introduce toxic
                     substances, such as heavy metals, to the lagoon system.69 The SWIM plan also attributes the
                     67p. 60
                     68DEX
                     69p. 9


                                                                       120








                      release of artificial substances to more extensive and remote activities, such as agricultural,
                      industrial, and residential construction activities occurring outside the waterbody itself. An
                      objective of the SWIM plan in addressing water and sediment quality issues is to "elin-dnate or
                      reduce the releases of toxic substances from point and nonpoint sources." In order to achieve this
                      objective, the plan proposes two programs to identify the sources of toxic substances, establish a
                      data base, and create a network to monitor real and potential problems. In particular, the Toxic
                      Substance Monitoring Network is underway to ". . . establish a baseline for levels of toxic organic
                      compounds and metals in the lagoon system ... against which future measurements can be
                      compared."70 The creation of this network represents an attempt to ensure consistency among
                      agencies in regulating and managing the release of toxic substances into the lagoon.

                      The revised plan for the Jensen Beach to Jupiter Inlet Aquatic Preserve recognizes the potentially
                      deleterious impacts of marina activities but includes no specific goals or objectives for addressing
                      this particular issue. Aquatic preserve management staff indicated that they review local
                      government comprehensive plans and amendments for policies and planned actions relating to
                      marina activities and provide active technical support to local governments in developing marina
                      siting criteria.71 Likewise, staff of one county government commented that they worked with
                      DNR staff when developing their "strict" marina siting criteria.

                      The local comprehensive plans address this issue to a limited degree. They do not include any
                      policies that conflict directly with SWIM and aquatic preserve objectives but, on the other hand,
                      they do not directly address releases of toxic substances. Their policies tended to be more general
                      and related to identification of point and nonpoint pollution sources and regulation Of Surface
                      water runoff and marina activities. The comprehensive plans for the City of Tequesta and St.
                      Lucie Village include policies to reduce nonpoint source pollution into the aquatic preserve. Palm
                      Beach County proposes to expand its program to identify all point and nonpoint sources of
                      pollution. Ocean Breeze Park's plan includes policies to not permit multi-slip marinas and to
                      restrict marina construction. Other plans propose to modify existing land development
                      regulations to incorporate SWIM-based district regulations. For the most part, it appears that the
                      consistency of local plans with the SWIM plan in particular could be improved once the SWIM,
                      program to identify sources of toxic substances is completed and more specific programs and
                      objectives are implemented.



                      L%WW. Wastewater and sewage effluents and leachates from septic tanks,      treabnent plants, and
                      agricultural areas

                      Domestic wastewater treatment facilities and septic tank systems represent two major human-
                      related sourcesof pollution affecting the water quality of Indian River Lagoon.72 Since
                      discharges from wastewater treatment plants are easily identifiable, these sources appear to pose
                      fewer concerns in the lagoon than septic tank systems. The joint Reconnaissance Report depicts 14
                      domestic and four industrial wastewater treatment plants that discharge to surface waters
                      around the Fort Pierce and St. Lucie Inlets and states that many of these sources are now better
                      controlled and regulated:73 The revised plan for the aquatic preserve indicates that wastewater
                      treatment facilities and package plants are not present, and therefore are not a concern in the
                      Hobe Sound to Jupiter Inlet segment of the preserve.


                      70p. 27
                      71in fact, DNR recommended the adoption of a local "marine sanitation ordinance in its review of Martin
                      County and St. Lucie County's comprehensive plans.
                      72SJRWMD and SFWMD, Indian River Lagoon SWLM Plan, p. 35.
                      73SJRWMD and SFWMD, p. 5-47.


                                                                      121








                     On the other hand, both the aquatic preserve and SWIM plans indicate concern with the impacts
                     of septic tank systems on the lagoon. But neither plan includes specific policies requiring the
                     elin-driation or regulation of septic tank systems in order to protect surface water quality. Rather,
                     these plans indicate the need for further analysis and coordination in order to better address this
                     issue. A water quality objective of the SWIM plan is to reduce "anthropogenic loadings of fecal
                     and coliform. bacteria" but the plan also reveals that the impacts of on-site sewage disposal
                     systems (OSDS) on the lagoon are curTently under investigation by the Department of Health and
                     Rehabilitative Services (HRS). The district will work with HRS and the counties to designate
                     "OSDS problem areas." The aquatic preserve plan comn-dts DNR to ". .. coordinate with
                     SJRWMD and SFWMD and local governments toward improving the management of surface
                     water" and suggests that DNR will simply assist in the enforcement of another agency's efforts to
                     improve water quality in the lagoon. The generality and uncertainty of the SWIM and aquatic
                     preserve plans regarding septic tank systems results in an overall lack of consistency of local
                     plans regarding this issue. These findings indicate that a high level of coordination and technical
                     assistance must occur between DER, SFWMD, and the affected local governments in order to
                     ensure consistent management of sewage treatment systems as they affect the water quality of the
                     lagoon.

                     However, a local act was passed in 1990 requiring SJRWMD and SFWMD by July 1993 to identify
                     areas where improper septic tank use poses a threat to the water quality of the Indian River
                     Lagoon. As indicated above, these efforts are underway as part of the SWIM Plan. Then, by July
                     1994, the law requires that each county and municipality within the Lagoon basin shall develop
                     and beT*n implementing programs to provide centralized sewage collection and treatment
                     facilitie74 for the problem areas identified by the districts. At the time the plan review was
                     conducted for this research, the SWIM Plan did not indicate that the identification of problem
                     areas had been completed. However, a number of local plans did include policies comn-dtting to
                     initiating plans for centralized septic systems.

                     Local government comprehensive plans within the Indian River Lagoon study area vary widely
                     in their address of wastewater and sewage treatment issues. First, the county plans address
                     wastewater system issues while the municipal plans do not. Wastewater treatment and disposal
                     appears to be an emerging policy area for county governments as the three county plans comn-dt
                     to developing and adopting master wastewater plans. These policies are generally consistent with
                     the SWIM and aquatic preserve plans in that the local policies recognize the need to
                     comprehensively plan for and manage wastewater treatment and disposal. The county plans also
                     contain policies addressing the siting and operation of wastewater treatment facilities consistent
                     with state standards. However, DER commented on the draft Martin County plan that it needed a
                     policy to reduce the number of package plants discharging into the Indian River Lagoon.

                     On the other hand, local policies regarding septic tank use are generally not consistent with
                     concerns raised in the SWIM and aquatic preserve plans. Some of the local governments have
                     proactive policies in which they comn-dt to centralizing e)dsting septic tank systems and
                     eventually eliminating septic tank use, prohibiting septic tank use in coastal areas; and
                     conducting environmental impact assessments of septic tanks. Other local governments (i.e,
                     Ocean Breeze and Jupiter Inlet Colony) have policies indicating that they will apply and enforce
                     standards and regulations of the state, particularly HIRS, governing septic tank use. At the other
                     end of the spectrum though, some of the local governments within the study area either do not
                     address the issue, or include policies permitting the conditional use of septic tank systems. For
                     ocample, Jupiter Island's comprehensive plan contains a policy that maintains permitting
                     wastewater effluent disposal through septic tanks while also protecting water quality, which
                     DCA found inconsistent with other policies in the plan. St. Lucie Village's plan includes a policy
                     restricting septic use in order to protect the water quality of the lagoon, but other agencies,
                     74Chapter 90-26Z Laws of Florida.


                                                                      122







                        namely SFWMD and DER, commented that septic tanks should not be permitted at all due to soil
                        limitations.




                        Issige: Dredge and fill activities/shoreline alteration

                        Both the SWIM and aquatic preserve plans identified dredge and fill activities and shoreline
                        alteration (eg., removal of mangroves) as potential sources for soil erosion and ultimately,
                        degradation of water quality in the lagoon. The revised plan for the aquatic preserve attributes
                        the reduced flushing capacity and altered circulation patterns of the lagoon to, among other
                        activities, dredging and filling. The SWIM plan cites dredge and fill as a suspected upland source
                        ofsuspended     matter that increases turbidity in the lagoon, disrupts habitat, and potentially
                        releases toxic substances and nutrients, thereby degrading water quality.75

                        The revised plan for the aquatic preserve focuses on dredging activities for navigational and
                        mooring purposes and the impacts of dredging on the seagrasses within the preserve. Florida
                        Statutes limit the circumstances under which dredging and filling of submerged lands may occur
                        within aquatic preserves. The aquatic preserve plan commits DNR to "ensure that human use of
                        the preserve does not create turbidity levels that adversely affect submerged vegetation" (Obj-
                        B.1.4) and to "fr1equire that all dredge and fill projects use effective turbidity control practices"
                        (Task B.1.4.2). A major directive of the plan is to "[plrohibit ... dredging (within the preserve) for
                        the primary purpose of obtaining upland fill."76 However, concern still remains regarding
                        allowable dredging for boating and navigational purposes. The revised plan also indicates that
                        few sites suitable for dredging exist within the Juno Beach to Jupiter Inlet segment of the lagoon
                        and the authors of the plan anticipate that           increasing boat use in this area will result in an
                        increase in dredging applications."77

                        On the other hand, the SWIM plan proposes to further research the impacts of dredging and
                        other activities contributing toward soil erosion on the water, sediment, and habitat quality of the
                        lagoon. The plan includes programs to "... decrease inputs of suspended materials from point
                        and non-point souTcesr78 and to map the distribution of sediments and develop
                        recommendations for its control or removal. likewise, the joint Reconnaissance Report indicated
                        that the extent of inorganic-rich "muck" deposits is unknown outside of the north central
                        segment of the lagoon, thereby underlining the need to locate the sources of these deposits and
                        assess their impacts on water quality. However, the report also suggests that areas of the lagoon
                        near intensely developed land likely contain substantial deposits. The SWIM plan indicates that
                        recommendations will be made to local governments to control the sources of suspended matter
                        into the lagoon.

                        In general, most of the local comprehensive plans establish policies to mitigate the impacts of
                        development on water quality through regulation of development practices, particularly the
                        construction of seawalls, construction along the waterline, and the alteration of shoreline. These
                        policies require the implementation of soil erosion reduction practices, shoreline perfonnance
                        standards, native shoreline vegetation and landscaping, and conditional permitting of seawall
                        construction. Although seawall construction was not addressed directly in either the SWIM or
                        aquatic preserve plans, both DER and DNR recommended to the local governments in their
                        review of draft comprehensive plans that the local plans encourage removal of seawalls, that


                        75p. 20
                        7@ï¿½p. 22
                        77 P. 52
                             24



                                                                             123








                     seawall construction be permitted after exhausting other alternatives, or that seawalls be replaced
                     with slopes or riprap.

                     Dredging presents the greatest potential for inconsistency between local plans and the SWIM and
                     aquatic preserve plans. Most of the local plans commit to uphold state regulations as they pertain
                     to dredge and fill activities. The comprehensive plan for St. Lucie Village specifies compliance of
                     local dredge and fill activities with the aquatic preserve management plan. However, some of the
                     plans also appear to pern-dt dredging and filling under certain circumstances. For example, the
                     Town of Jupiter's plan permits dredging of submerged and wetland areas if mitigated according
                     to state and federal guidelines. The City of Tequesta's plan supports the dredging of the Jupiter
                     Wet. In effect, the generality of the SWIM and aquatic preserve plans regarding dredging
                     corresponds to general local policies that appear to permit dredging for purposes not excluded by
                     state and federal agencies.

                     The local governments primarily address the control and management of construction activities
                     disruptive to the lagoon through the coastal management and conservation elements of their
                     comprehensive plans. These elements demonstrate varying degrees of consistency with the
                     SWIM and aquatic preserve plan regarding this issue, possibly due to lack of certainty regarding
                     the direct impacts of construction activities, particularly dredge and fill, on the water and
                     sediment quality of the lagoon. (Impacts of such activities on habitat quality are addressed
                     below.) Nearly all of the local plans include a policy to require turbidity control practices for
                     development activities in and around the lagoon. Some of these local policies directly address the
                     Indian River Lagoon, such as required shoreline vegetative buffers along the lagoon (Fort Pierce);
                     lirr@dted or prohibited development on the submerged lands or along the western border of the
                     lagoon (Ocean Breeze Park); and regulations to prohibit structures constricting circulation with
                     the lagoon (Jupiter Island). Other plans more generally propose to protect coastal resources, such
                     as the City of Stuart's, which proposes to prohibit the construction of future canals.



                     Habitat Quality Issues

                     The protection and management of habitat in the Indian River Lagoon depends on the
                     maintenance of the lagoon's water quality. Just as upland uses impact water and sediment
                     quality, water and sediment conditions affect habitat viability in the lagoon system. Both the
                     SWIM and aquatic preserve plans recognize the critical link between water and habitat quality.
                     However, like the water quality issues described above, the two plans differ in their treatment of
                     habitat quality issues with the SWIM plan being more holistic and addressing habitat in context
                     of the entire lagoon system, and the aquatic preserve plan focused more specifically on activities
                     within the preserve. The SWIM plan attributes much of the habitat loss in the Indian River
                     Lagoon system to coastal development and shoreline alteration, navigational improvements, and
                     marsh management practices.79 On the other hand, the aquatic preserve plan attributes habitat
                     loss and alteration within the preserve to human-related activities.occurring within the
                     jurisdiction of the preserve, particularly boat and jet ski traffic and dredging.

                     A primary goal of the SWIM plan is to ". . . attain and maintain a functioning macrophybe-based.
                     ecosystem which supports endangered and threatened species, fisheries and recreation."80 The
                     two main habitat concerns expressed in the SWIM plan are the loss of seagrass, beds and the loss
                     of emergent wetlands. Similarly, the aquatic preserve plan concentrates on the loss and alteration
                     of seagrass beds and emergent vegetation, but also on protection of bird rookery and estuarine
                     habitat in general.
                     79p. 7


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                         According to the revised plan for the aquatic preserve, residential and commercial development
                         is altering gradually the vegetated shoreline, namely the mangrove fringes, throughout the
                         preserve. For the area covered in the first phase of the revised plan, Hobe Sound to Jupiter Inlet,
                         most of the naturally vegetated shoreline of the lagoon enjoys the protection of a nationally
                         designated wildlife refuge and the Nature Conservancy's Blowing Rocks Preserve. However, the
                         revised plan still includes a management policy guideline to "[plromote the revegetation of
                         shorelines by stipulating in the permit review process that native wetland vegetation be used for
                         shoreline stabilization either alone or in conjunction with riprap."81 The SWIM plan focuses on
                         restoring and preserving these habitat resources while the aquatic preserve plan focuses on
                         managing activities within the preserve that could disrupt habitat and on researching factors that
                         affect the integrity of estuarine habitats. For example, a primary objective of the revised plan for
                         the aquatic preserve is to " - - . ensure that human use of the preserve does not create turdibity
                         levels that adversely affect submerged vegetation." (Obj. B.I.Q.

                         The local government plans vary in their address of habitat issues, but all propose to protect and
                         conserve habitat in general. Some plans specify protection of habitat within the Indian River
                         Lagoon and cooperation with DNR and other agencies in implementing management policies for
                         the aquatic preserve. The overall emphasis of local objectives and policies is on minimizing
                         impacts of land uses and development on identified habitat. All of the local plans reviewed
                         include a policy to ensure that land development regulations serve to mitigate the impacts of
                         development on habitat.



                         Issue Loss and alteration of seagrass beds due to shoreline development, including marinas
                         and docks, general construction practices, dredging, and increased boat1jet ski traffic

                         The foremost habitat issue for the Indian River Lagoon is the rapid decline of seagrass beds
                         which are vital to the fisheries and the overall productivity of the system.82 The SWIM plan
                         acknowledges that decreased water quality in the lagoon, due to the effects of nutrient and
                         chemical loading from agricultural and other upland uses, significantly impacts the survival of
                         seagrass beds. The objective of the SWIM plan is to first, preserve healthy seagrass beds through
                         acquisition of adjacent wetlands and uplands in order to minin-dze the impacts of human-related
                         uses on seagrasses. Second, the plan encourages enforcement of existing regulations and
                         improvement of regulations that control dredge and fill and construction of docks, and location
                         of marinas outside of seagrass beds, and diversion of boat traffic from seagrass beds. The SWIM
                         plan also includes research and pilot projects to support its objective to restore lost seagrass beds.
                         Research is underway to identify the impacts of excessive nutrients, freshwater inflows, and
                         turbidity on seagrasses. Based on the results of this research, the water management districts
                         hope to develop a turbidity target specific to the lagoon.

                         More specifically, the aquatic preserve plan proposes to n-dnin-dze potential damage to seagrass
                         beds, and other submerged vegetation, through " . . . the review of applications for use of state-
                         owned land in the aquatic preserve" (Obj. B.1.1). This review is to be based on a scientific method
                         (to be developed) to inventory submerged resources at each site under review. Interviews with
                         preserve staff indicated that mapping of seagrass beds is underway, in conjunction with the
                         water management district, and that scientific standards for review will be developed after
                         mapping is complete. joint mapping efforts, resource inventories, and development of standards
                         will likely contribute toward the consistency of management and protection of seagrass, beds by
                         creating a uniform base of knowledge among all responsible agencies. In addition, the

                         81P1DIiCY Cuideline 7, p. 53.
                         82Barile, Diane, et al. (1987). Estuarine Management - The Indian River Lagoon. In Coastal Zone 1987 (Seattle,
                         WA).



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                     development of a detailed data base and resource inventory for the preserve can lead to the
                     adoption of more specific policies within the preserve management plan, and then to more
                     specific parallel policies within the local plans.

                     Although the aquatic preserve plan recognizes increasing boat and jet ski traffic as disruptive to
                     seagrass beds, it also indicates that such issues are not addressed by statutes or rules governing
                     DNR's jurisdiction to protect the preserve. To provide direction for managing these issues, the
                     plan puts forth "policy guidelines" for review of planned activities within the preserve. These
                     include prohibiting jet ski traffic in particular areas, seeking to designate idle-speed zones in
                     certain parts of the Atlantic Intracoastal Waterway, prohibiting new dredging to only
                     accommodate boats with greater drafts, and designating unvegetated areas for open mooring
                     sites.

                     Nearly all of the local government comprehensive plans reviewed include policies regarding the
                     protection of seagrasses within the coastal and conservation elements. These policies range from
                     prohibitive measures, such as prohibiting modification of seagrass beds and prohibiting
                     alterations of tidal circulation; to protective measures, such as providing protection of seagrass
                     beds, to restoration measures, such as replanting seagrass beds and implementing aquatic
                     planting programs; to mitigative measures, such as restricting marina development, regulating
                     dock construction, establishing boat speed limits, and adopting turbidity control procedures for
                     shoreline construction. In addition, the majority of local plans indicated that land development
                     regulations either were adopted or would be adopted by a certain date to support policies
                     addressing seagrass beds.

                     Two aspects of the local policies, in general, diminish their apparent consistency with the SWIM
                     and aquatic preserve plans. First, the local plans tend to include policies to mitigate, rather than
                     to eliminate, impacts of development and boating activities to seagrass beds. Second, most of the'
                     local plans do not specify measures or methods for implementing policies relating to protection
                     of seagrasses. In some cases, DNR's comments on local plans demonstrated concern with a lack of
                     assessment of the cumulative impacts of shoreline uses, even with local measures in place to
                     mitigate impacts on seagrasses.



                     L%=: Loss of wetlands, mangroves, and vegetation due to mosquito impoundments and
                     shoreline development

                     A primary objective of the SWIM plan's Habitat Protection and Restoration Program is to restore
                     marshes and mangrove communities impounded to provide mosquito control. According to the
                     plan, the majority of emergent saltwater wetlands, including mangrove forests, surrounding the
                     lagoon are impounded, inhibiting their function as habitat and as a filter and buffer between
                     uplands and the lagoon. The lagoon's marshes and mangrove swamps serve as breeding grounds
                     for many species of aquatic animals within the lagoon system.83 The SWIM plan proposes to
                     restore, where feasible, the functions of impounded marshes and to preserve existing marshes.
                     However, the plan also indicates that the first step is to inventory existing impoundments and
                     map wetlands and vegetated communities surrounding the lagoon, and the next step is to
                     identify options for restoration and areas for preservation. The draft of the revised SWIM plan
                     mentions that 715 acres of salt marsh in the southern portion of the lagoon are already
                     reconnected.84



                     &ISJRWMD. (1991). Reconnecting lagoort with marshes benefits fish. SW7M Update, p. 7.
                     84SJRWMD and SFWMD. (September, 1992). Indian River Lagoon SWA4 Plan (Draft), p. 79.


                                                                       126








                     Another objective of the SWIM plan is to acquire existing marshes, in conjunction with state,
                     local, and private acquisition efforts. Both Palm Beach and Martin counties have implemented
                     countywide programs to acquire environmentally sensitive and recreation lands. However,
                     neither has proposed to acquire lands within the study area. These local land acquisition
                     programs can serve as an effective tool for ensuring consistency between the SWIM and local
                     plans, provided that the local programs prioritize lands consistent with the SWIM program.

                     The goals and objectives of the aquatic preserve plan seem to indicate the limited capacity of
                     DNR and aquatic preserve staff to effectively and completely address the loss of wetlands and
                     mangroves within the preserve. In support of its overall goal to "restore estuarine habitat" (Goal
                     A.3), the aquatic preserve plan proposes to revegetate "suitable" shoreline areas with mangrove
                     and marsh plantings, to coordinate with DER and the water management districts in restoring
                     habitat through mutual agreements, and to reconnect impounded marshes through coordination
                     with local mosquito control districts. Furthermore, the plan includes a goal to study factors
                     affecting estuarine habitat, specifically mangrove and marsh plant species. Permit review is
                     probably the most effective mechanism, albeit limited., that preserve staff possess to ensure
                     consistency between the management plan and local plans and activities. Policy Guideline 7 of
                     the preserve plan stipulates that the permit review process should require that native wetland
                     vegetation be used for shoreline stabilization.

                     The local government comprehensive plans propose primarily tc@protect wetlands and
                     mangroves, either in general or specifically within the lagoon system, through mitigation or
                     restriction of land use and development. These policies include retention of vegetative buffers
                     between the lagoon and shoreline development, adoption of performance criteria for coastal area
                     development, and re-planting of vegetation. Most of the local objectives and policies for wetlands
                     protection, however, do not outline clearly the local government's method for implementing
                     these policies. This lack of specific measures is a concern frequently expressed in the formal
                     comments of DER, DNR, and SFWMD of the local plans, as submitted to DCA. Some of the local
                     plans do indicate the existence or future adoption of ordinances consistent with objectives of the
                     SWIM and aquatic preserve plans, such as mangrove protection ordinances (Martin and Palm
                     Beach counties, Jupiter Inlet Colony, and Tequesta) and wetlands protection ordinances (Palm
                     Beach County). Only one of the local plans contains policies addressing restoration of wetlands
                     and prohibition of development in "designated" wetlands areas. Depending on the local
                     government's definition of wetlands, this policy may or may not be consistent with sin-diar
                     policies of the SWIM and aquatic preserve plans.

                     Most of the local plans relevant to the study area include objectives and policies regarding
                     mosquito impoundments and    'control practices. For a few of the local plans, DNR cornmented on
                     the insufficiency of policies in addressing the restoration of impoundments to their natural state.
                     Discussions with aquatic preserve management staff indicated that local governments and local
                     mosquito control districts are restoring gradually estuarine marshes impounded for mosquito
                     control and that DNR's concern with impounded marshes is diminishing.



                     IL=: Protection of manatee and bird rookery habitat

                     A primary difference between the Indian River Lagoon SWIM plan and aquatic preserve plan is
                     their treatment of habitat issues. The SWIM plan emphasizes more the restoration and protection
                     of habitat in light of its function within the lagooifs ecosystem. On the other hand, the
                     management plan for the aquatic preserve focuses on the protection of habitat in terms of species
                     protection, mainly the West Indian Manatee and several species of birds. However, the goals and
                     objectives of the management plan propose further study of factors that affect the survival of



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                     habitat and designated species, and identification of portions of the preserve that serve as habitat
                     for designated species.

                     Three of the local plans reviewed specify protection of bird rookery habitat, in particular
                     retaining the spoil islands within the aquatic preserve in public ownership for bird rookery. For
                     the most part, the local plans contain objectives and policies to protect habitat in general or to
                     provide measures to n-dnin-dze threats to survival of manatees, mainly the designation of idle-
                     speed zones. For example, the City of Tequesta proposed to adopt a Manatee Protection
                     Ordinance which designates idle-speed zones in waterways. Another municipality, Jupiter Inlet
                     Colony, commits to posting signs in the Atlantic Intracoastal Waterway in order to mark the area
                     as a "manatee protection area." The local plans primarily include habitat protection and
                     mitigation policies within the coastal management and conservation elements.



                     Interagency Management Issues

                     As discussed throughout this chapter, the protection and management of the Indian River
                     Lagoon depend greatly on cooperation and mutual objectives among all agencies governing the
                     resource and governing land uses that might impact the resource. Both the SWIM plan and the
                     aquatic preserve plan incorporate objectives to ensure the coordinated management of the
                     respective responsibilities encompassed in each plan. More important, both plans recognize the
                     critical role that local governments serve in implementing completely these objectives. However,
                     these objectives require direction from DER, DNR, and the water management districts to local
                     governments in order to ensure consistent implementation at the local level of state objectives for
                     resource protection and management.

                     The need for coordinated and consistent management of the Indian River Lagoon was identified
                     prior to the adoption of either the SWIM plan or the revision of the plan for the Jensen Beach to
                     Jupiter Inlet preserve. Participants in an American Assembly in 1985 identified the lack of
                     coordinated management of the lagoon's resources as a primary issue affecting the future of the
                     estuary.85 The designation of the lagoon as a National Estuary in 1990 has provided funding for
                     the development of a Comprehensive Conservation and Managerhent Plan (CCMP) for the
                     lagoon to resolve the problem associated with the milieu of agencies and plans managing the
                     system. The goals of the National Estuary Program and the SWIM plan for the lagoon are nearly
                     identical and are intended to serve as the "philosophical basis" for a unified approach to
                     protecting and managing the resources of the lagoon system.86 The revised SWIM plan indicates
                     that the adoption of a joint SWIM and NEP plan, or even a single management plan, would ". . .
                     help ensure consistency among_other local, state, and federal plans that affect resources of the
                     Indian River Lagoon system."57

                     The third primary goal of the SWIM plan is to promote coordination among responsible
                     regulatory entities and consistent regulation and enforcement of relevant rules and ordinances.
                     The preserve management plan reiterates the same objective throughout its four major goals.
                     Furthermore, the locaJ plans are replete with policies addressing coordination with other agencies
                     to ensure effective resource protection and management. Either broadly through the
                     intergovernmental coordination elements or specifically through the coastal management
                     elements, the local plans commit to coordinating with the district and DNR in order to
                     accomplish the following-

                     85VanArman, Joel, and Steward, Joel. (1987). Intergovernmental Management. In SJRWMD and SFWMD,
                     Indian River Lagoon joint Reconnaissance Report, p. 10-1.
                     86SJRWMD and SFWMD. (September, 1992). Indian River Lagoon S WLA4 Plan (Draft), p. 4.
                     $71d.


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                         0   enforcement of state regulations related to surface water and habitat protection

                         0   protection of surface water, habitat quality, and estuarine resources

                         0   development of master plans for drainage and stormwater management

                         *   protection of wetlands, and

                         0   consistent implementation of SWIM and aquatic preserve plans.

                      However, the local plans generally do not specify methods or processes for guaranteeing that this
                      coordination takes place. It seems that the most frequent comments of state agencies in reviewing
                      these local plans are "What is the method?" and "Too vague." The most direct way in which the
                      local plans propose to ensure implementation consistent with SWIM and aquatic preserve goals is
                      through the review of applications for development. Ultimately, the consistency of these three
                      types of plans hinges on the coordinated implementation of all their water quality, habitat, and
                      land development goals and policies.

                      Both the Indian River Lagoon SWIM plan and the aquatic preserve plan indicate the need for
                      further research, data collection, and resource inventorying to determine sources of water and
                      habitat quality degradation, to pinpoint locations of sources, and to develop feasible solutions
                      and standards. Nearly all of the local government plans indicate need for direction from the state
                      agencies, particularly the water management district, in how to implement actions consistent
                      with water and habitat quality objectives, such as the development of stormwater management
                      ordinances, best management practices for drainage, implementation for turbidity control
                      standards, and siting and construction of docks and marinas. Consistency of local plans with the
                      SWIM and aquatic preserve plans will likely improve once both are more resource-specific and
                      technically specific.



                      CONSISTENCY OF DATA COLLECTION, ANALYSIS, AND STANDARDIZATION

                      Consistent implementation of resource management and protection plans for the Indian River
                      Lagoon depends upon the degree of consistency among the efforts of SFWMD, SJRWMD, DER,
                      DNR, and other agencies in collecting and analyzing data, particularly water quality samples.88
                      These agencies are responsible for monitoring the quality of water and habitat within the lagoon
                      system. SJRWMD staff initiated the Indian River Lagoon Water Quality Monitoring Network in
                      1989 to resolve problems associated with collection and analysis of physical and chen-dcal data
                      specific to the lagoon. Members of the network have established a forum to standardize water
                      quality data. The participants of the network strive to resolve not only data sharing and collection
                      problems but problems arising from comparison of results from different laboratories.
                      Participants agree that the resources and efforts of the agencies involved in data collection and
                      sampling are better expended under one set of guidelines to ensure consistency.

                      The network oversees the quarterly testing of "'split samplesr among the several laboratories that
                      conduct water quality sampling and analysis for the agencies. Split samples are several samples
                      taken from the same location at the same time and distributed among the labs for comparison of
                      results. Members of the network also meet quarterly to discuss the results of split samples and
                      methods to improve collectin& storing, and testing in the labs. The difficulty of rectifying

                      88Kenworthy, W. Judson, and Haunert, Dan. (1991). Results and Recommendations of a Workshop Convened to
                      Examine the CepaKlity of Water Quality Criteria. (Submitted to NOAA, Coastal Ocean Program, Estuarine
                      Habitat Studies).



                                                                         129









                    statistically the differences among lab results remains unresolved as no parameters are set for
                    assessing these variances.

                    SJRW%4D has compiled the Qualify Assurance, Quality Control manual for the network. The
                    manual serves as a composite of the manuals from each laboratory involved in testing water
                    quality samples and defines a mutually agreeable methodology for collecting and storing water
                    quality samples. Perhaps another accomplishment of the network is their communication of
                    remaining unstandardized quali ty control procedures among the labs.













































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                                                         Chapter IV

                                           C onclusions & Recommendations



                    This chapter presents the conclusions and recommendations of this study in three parts: key
                    findings for the Tampa Bay study area, key findings for the Indian River Lagoon study area, and
                    overall recommendations.




                    KEY FINDINGS: TAWA BAY


                    General Consistency

                    The Tampa Bay SWIM Plan, Terra Ceia and Cockroach Bay Aquatic Preserve Management Plans,
                    and relevant local government comprehensive plans are all generally consistent with each other,
                    albeit with qualifications, within the overall categories of water and habitat quality protection
                    and management. There are also many policies that, while not reflected or addressed in all three
                    types of plans, are nonetheless "not inconsistent" with the other plans.

                    All of the plans contain goals and policies that call for increasing coordination and consistency
                    with state and local agencies, including local governments, SWFWMD, DNR, and the TBRPC, in
                    order to ensure the protection of estuarine and other surface water resources. However, several
                    local comprehensive plan policies do not indicate exactly how coordination will be ensured and
                    or which agency will serve as the lead agency for conducting a coordinated effort. Agency
                    comments on the draft local comprehensive plans tended to be concerned about definitions of
                    terms, lack of specific policies or other implementing measures, and the methods of
                    implementation for policies relating to water and habitat quality protection.

                    Although both Hillsborough and Manatee County local comprehensive plans are generally
                    consistent with the SWIM and aquatic preserve management plans, the Cockroach Bay Plan
                    Amendment (CPA 92-03) to the Hillsborough County comprehensive plan significantly increases
                    the degree of consistency among the Cockroach Bay Aquatic Preserve Management Plan, the
                    Hillsborough County comprehensive plan, and the Tampa Bay SWIM plan. The county created
                    this plan amendment to address several resource management issues that DNR presently cannot
                    because of funding difficulties. Although the county stopped short of adopting the Cockroach
                    Bay plan and DNR's aquatic preserve rule Chapter 18.20 (as recommended by DNR in their
                    review of the draft Hillsborough County comprehensive plan), CPA 92-03 will address several
                    important issues that are also addressed within the aquatic preserve management plan.

                    Both the SWIM and aquatic preserve management plans call for further research, data collection,
                    and inventorying and mapping of resources. However, SWFWMD has already conducted a
                    significant amount of impping, and is concentrating on physical restoration activities within its
                    SWIM plan for Tampa Bay, and the integration of Chapter 1740.420, F.A.C. requirements to
                    identify and establish Pollutant Load Reduction Goals and Watershed Management Goals for
                    Tampa Bay. Additionally, both Manatee and Hillsborough Counties have their own independent
                    environmental commissions and land acquisition programs, and both are conducting significant
                    mapping programs for environmentally sensitive areas and other natural features and resources.









                    In contrast, the City of Palmetto comprehensive plan, while generally consistent in several
                    significant areas, can be characterized more for what it does not address than whether its existing
                    objectives and policies are adequate and/or consistent with the Tampa Bay SWIM plan and the
                    Terra Ceia Bay Aquatic Preserve management plan. For instance, the City's comprehensive plan
                    does not, as commented on by DNR, adequately consider the Aquatic Preserve regarding future
                    land use criteria, point source permitting, and development of environmentally sensitive areas.
                    Furthermore, the City's use of mitigation as a condition of development in environmentally
                    sensitive areas is regarded by several state agencies as not adequate for protecting these areas and
                    their features.

                    Local comprehensive plans within the lower Tampa Bay study area include strongly consistent
                    objectives and policies as they relate to the following areas:

                     1. regulation of point source discharges into Tampa Bay, includingwastewater treatment

                     2.  regulation and treatment of nonpoint source discharges (stormwater) into Tampa Bay

                     3.  regulation of phosphate mining activities and effects

                     4.  establishment of vegetative buffers between new developments and aquatic preserves

                     5.  prohibition of future construction of seawalls and other major shoreline alterations
                         bordering aquatic preserves

                     6.  regulation of agricultural runoff through use of BMPs and other techniques

                     7.  protection of mangroves, seagrasses, and other wetlands and wetland vegetation

                     8.  regulation of dredge and fill in coastal areas

                     9.  regulation and protection of shellfish harvesting areas

                    10.  control and/or eradication of exotic nuisance vegetation

                    11.  regulation of environmental impacts of construction and operation of transportation
                         facilities

                    12.  intergovernmental coordination and consistency of resource management efforts with
                         sin-dlar efforts of state agencies

                    13.  identification and mapping of land use, environmentally sensitive areas

                    14.  protection of threatened and endangered species, including manatees

                    15.  regulation of hazardous waste disposal, and

                    16.  land acquisition and boundary expansion.

                    Local comprehensive plans within the lower Tampa Bay study area include marginally
                    consistent (or a lack of) objectives and policies within the following areas:

                     1. restriction and regulation of septic tanks in environmentally sensitive areas

                     2. mosquito control activities

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                      3.  development and damn-dng of creeks and rivers

                      4.  shoreline erosion

                      5.  enforcement of state laws and regulations for habitats, permit conditions and stipulations,
                          fish and other wildlife (including threatened or endangered species), zoning, compliance
                          and other monitoring, other environmental programs, and

                      6.  manatee protection.

                    Included below are several issue areas that merit additional explanation.



                    Mitigation

                    Wetlands mitigation and restorati on is controversial. From the federal to state to local
                    governments, there has been much discussion over the delineation and fate of wetlands, and
                    whether mitigation and restoration of wetlands is truly feasible. Most local governments see
                    mitigation as a useful and necessary tool that allows the regulation of wetlands and other
                    environmentally sensitive features, and it provides these governments the ability to avoid the
                    taking issue. However, there is little doubt that the science of recreating wetlands is still
                    imperfect. Local governments often do not have the resources to conduct long-term monitoring of
                    such sites, which is necessary for rnitigation/restoration to succeed. State and regional agencies
                    do not presently support mitigation to the same degree as local governments, desiring instead for
                    developers and others to avoid the need to mitigate altogether.

                    The Hillsborough County Environmental Protection Commission, the local environmental
                    regulatory agency for Hillsborough County, supports and encourages wetlands mitigation as
                    part of their wetlands rule. The rule seeks to preserve wetlands, but it offers an alternative of
                    mitigation as a condition of development of such wetlands, requiring strict restoration ratios and
                    follow-up monitoring. This rule has been successful, resulting in a net (paper) gain of 298 acres of
                    wetlands since 1985 as the result of mitigation. Regardless, according to both the Terra Ceia and
                    Cockroach Bay Aquatic Preserve Management Plans, mitigation and/or restoration projects are
                    discouraged within most of the area of both Terra Ceia and Cockroach Bay aquatic preserves, and
                    is discouraged at the agency level by both DNR and DER. Overall, there appears to be a lack of
                    clarification and/or consistency between the state agency and local governments concerning
                    wetlands mitigation and its effectiveness and use.

                    Ports


                    Port&-their charters, privileges, constraints, planning requirements, and other factors-are
                    potentially problematic in terms of planning consistency. This is because ports have broad,
                    powers within which they operate under Florida law, and their environmental impacts,
                    especially within sensitive coastal environments, are both significant and economically necessary
                    (eg., maintenance dredging).

                    This issue is even more complex within Hillsborough County because the Tampa Port Authority
                    has title to the submerged lands within the county, and DNR only leases the submerged lands
                    within the two aquatic preserves within the Tampa Bay portion of Hillsborough County.
                    Additionally, although the EPC and the Port Authority work closely together on environmental
                    issues, permits from both organizations are necessary to develop or impact submerged lands.
                    However, there appears to be no direct threat from the Port of Tampa itself to the Cockroach Bay
                    Aquatic Preserve.

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                    Although Port Manatee, located within Manatee County, is not within the jurisdiction of
                    Cockroach Bay or Terra Ceia aquatic preserve, it nevertheless bisects the two preserves, and
                    potentially impacts both. DER, in their review of Manatee County's draft comprehensive plan,
                    severely faulted the adequacy and consistency of the port element of the plan. There is no
                    evidence that Manatee County has addressed all of the issues, comments, and recommendations
                    of DER concerning this element. However, there are several policies that call for expansion of the
                    port only where consistent with other portions of the comprehensive plan not contained within
                    the Port Master plan.

                    Land Use Planning

                    Of the three planning programs studied here, only the local comprehensive planning program
                    can dirwfly influence and regulate land use. However, SWIM program staff have generally made
                    a great effort to provide land use planning technical assistance and guidance to the local
                    comprehensive planning process.

                    In contrast, aquatic preserves are often directly impacted by the consequences of upland land use,
                    but DNR does not have any authority to regulate this land use. The aquatic preserve program can
                    only work through the review portion of the local comprehensive planning process, and even this
                    is subject to the availability of DNR personnel to comment on plans and plan amendments, go to
                    public meetings, and conduct other coordination activities. However, all aquatic preserve
                    management plans, original and revised, call for increased coordination, especially in the area of
                    land use planning and regulation.



                    Processes to Ensure Consistency among SWIM, Aquatic Preserve, and Local Comprehensive
                    Plans


                    Water management district and aquatic preserve staff make co.ncerted efforts to ensure
                    consistency of local plans with SWIM and aquatic preserve plans, primarily through review of
                    proposed comprehensive plans and amendments and technical assistance. Their level of
                    coordination varies among local governments depending on the availability of local staff.
                    However, they do not review local plans according to any established statewide criteria.

                    Local governments within the Tampa Bay study areas, for the most part, indicate less concern
                    regarding consistency with SWIM and Aquatic Preserve plans. Their approach is more reactive
                    than proactive and they rely on the state agencies, primarily DCA, to alert them to
                    inconsistencies. However, both Hillsborough and Manatee Counties have policies that call for
                    coordination with the water management district and the aquatic preserves within the counties'
                    jurisdiction.



                    KEY FINDINGS: U14DIAN RIVER LAGOON


                    General Consistency

                    The Indian River Lagoon SWIM Plan, Aquatic Preserve Plan, and local government
                    comprehensive plans are consistent, generally, with each other in terms of water and habitat
                    quality protection and management.

                    All of the plans include goals and policies committing to continued and improved coordination
                    with relevant state and local agencies, namely local governments, the water management district,

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                      DNR, DER, and the Treasure Coast Regional Planning Council, to ensure the protection of water,
                      coastal, and estuarine resources in general or the Indian River Lagoon specifically. However,
                      most do not indicate how coordination will be ensured and do not indicate which agency will
                      serve as the lead agency for conducting a coordinated effort. State agency comments on local
                      plans, as submitted to DCA, demonstrate concern regarding lack of analysis and methods of
                      implementation for policies relating to water and habitat quality protection and to
                      intergovernmental coordination. Frequent comments include "What is the method?" and "Too
                      vague."

                      Both the Indian River Lagoon SWIM Plan and the Aquatic Preserve Plan indicate the need for
                      further research, data collection, and resource inventorying to determine sources of water and
                      habitat quality degradation, to pinpoint locations of sources, and to develop feasible solutions
                      and standards. Nearly all of the local government plans indicate need for direction from the state
                      agencies, particularly the water management district, in how to implement actions consistent
                      with water and habitat quality objectives, such as the development of stormwater management
                      ordinances, best management practices for drainage, implementation for turbidity control
                      standards, and siting and construction of docks and marinas. Consistency of local plans with the
                      SWIM and Aquatic Preserve Plans will likely improve once both are more resource and
                      technically specific.



                      Consistency of Local Policies with SWIM and Aquatic Preserve Plans

                      In general, the local plans include strongly consistent policies as they relate to the following
                      areas:


                        1.  elin-driation or restriction of point-source discharges into lagoon

                        2.  enforcement and monitoring of state regulations for stormwater, septic tanks, species
                            protection, water quality protection, dock and marina construction, and wetlands
                            protection                                                    r
                        3.  establishment of vegetative buffers between development and lagoon

                        4.  minimization of future construction of seawalls and other major shoreline alteration
                            techniques

                        5.  resource management consistent with similar efforts of state agencies

                        6.  protection of seagrasses through turbidity controls

                        7.  adoption and/or enforcement of boat speed limits to protect manatees and seagrass beds

                        8.  retention of spoil islands for bird rookery habitat

                        9.  protection of mangroves and adoption /enforcement of related ordinances, and

                        10. modification of mosquito impoundments

                      In general, the local plans include marginally consistent polices regarding the following areas:

                        1. allowable uses and sites for septic tanks and package plants


                                                                    135









                   I disposal of treated wastewater

                   3.  conversion from septic tanks to centralized sewer systems

                   4.  preservation of wetlands (nearly all allow mitigation)

                   5.  land acquisition, and

                   6.  monitoring of substances entering lagoon via marinas and urban and agricultural drainage



                 Processes to Ensure Consistency among SWIM, Aquatic Preserve, and Local Comprehensive
                 Plans

                 The water management district and aquatic preserve staff make concerted efforts to ensure
                 consistency of local plans with SWIM and aquatic preserve plans, primarily through review of
                 proposed comprehensive plans and amendments and technical assistance. Their level of
                 coordination varies among local governments depending on the availability of local staff.
                 However, they do not review local plans according to any established criteria.

                 Local governments, overall, indicate less concern regarding consistency with SWIM and Aquatic
                 Preserve plans. Their approach is more reactive than proactive and they rely on the state
                 agencies, primarily DCA, to alert them to inconsistencies.



                 CONCLUSIONS AND RECONEWENDATIONS-OVERALL

                 All recommendations presented herein are made in light of the fact that the SWIM and local
                 government comprehensive planning programs are relatively new and in a state of evolution.
                 Additionally, many local government plans in both study areas were prepared prior to or
                 coincidentally with SWIM plans and aquatic preserve management plans, therefore precluding or
                 inhibiting any meaningful attempts to develop local plans consistent with SWIM or aquatic
                 preserve management plans. Also, local comprehensive plans are local in nature, and although
                 they may reflect the general goals and objectives of other plans, their policies reflect local
                 conditions and needs, as they should. Therefore, it is not always feasible to expect 100%
                 consistency, or to necessarily require it.

                 The third Environmental Land Management Study Committee's (ELMS 111) final reportl has
                 many recommendations in the subject areas of local planning and intergovernmental
                 coordination, the use of Evaluation and Appraisal Reports, and coastal management that are
                 consistent with several of the recommendations in this report. For instance, Recommendation 142
                 states that a Strategic Growth and Development Plan should be developed as a companion to the
                 State Comprehensive Plan, and that it should ". . . include a comprehensive watershed
                 management guideline to coordinate stormwater management programs for coastal jurisdictions
                 with certain priority waters of habitat." This is necessitated by the need for a ". . .
                 multidisciplinary and coordinated management program involving intergovernmental
                 coordination ... to address the relationship between nonpoint sources of water pollution and
                 land use. This is to be implemented by IsItronger and clearer statutory language... to link the


                  Building Successfid Communities. Final Report of the Environmental Land Management Study
                 Committee. December 1992, Tallahassee, Florida.

                                                        136








                     local planning and growth management programs with the SWIM program and environmental
                     regulatory programs ... [and that] ... this linkage would result in a comprehensive stormwater
                     management program that coordinates programs of local governments with SWIM priority watersheds,
                     Outstanding Florida Waters, aquatic preserves, Class I and Class 1I waters, marine or estuarine
                     sanctuaries, and critical habitat for endangered or threatened species [italics added]." Furthermore,
                     Recommendation 143 states that the "Whe Legislature should authorize (DER] to develop a pilot
                     coastal water quality improvement program integrated with SWIM and district water
                     management plans ... [and that this] ... program should be based on a comprehensive
                     watershed management approach which integrates preventive and nonstructural solutions with
                     structural solutions."

                     The achievement within Florida's comprehensive planning framework of the consistent
                     application of state policies from state to regional to local levels requires constant and proactive
                     direction from the state, as well as technical and funding assistance. Uniform guidelines for the
                     adoption of plans from the state, including clearly enunciated expectations for inter-plan
                     consistency, would assist this goal. Many state and regional agencies, particularly the water
                     management districts, have recognized the opportunities that local comprehensive plans offer in
                     the way of improving the protection and management of the state's natural resources, and are
                     working through the state and local comprehensive planning processes to encourage and
                     advance such goals and objectives. However, much can be done to formalize and encourage this
                     complementary implementation process. The following recommendations are presented in
                     furtherance of that objective.



                     Recommendation #1

                     77re research team does not recommend statutory revisions to mandate consistency among the
                     three types of plans.

                     Overall, the review and consistency analysis of the SWIM, aquatic preserve, and local
                     government comprehensive plans within the two study areas of Florida revealed general
                     consistency among these three types of plans. At a minimum, all local government
                     comprehensive plans have policies that call for coordinating with the agencies responsible for
                     writing and implementing the aquatic preserve and SWIM plans within their jurisdiction, and
                     most local government comprehensive plans within both study areas directly acknowledge the
                     existence of aquatic preserve and SWIM plans within their jurisdiction. Furthermore, the review
                     and analysis of the statutes and administrative rules enabling the three programs revealed no
                     obvious inconsistencies among them. However, although each program calls for consistency with
                     other existing plans and programs, there is no clear, direct mandate for consistency among these
                     three plans and planning programs. It is therefore essential that the water management districts,
                     DNR, and local governments make proactive attempts to maintain effective coordination
                     processes in order to ensure an adequate level of consistency among these three programs.
                     Consistency can be achieved through intergovernmental coordination conducted for mutual
                     benefit instead of simply being mandated, but effective coordination nonetheless depends greatly
                     on sufficient and available staff and resources.




                     Recommendation #2

                     77te research team recommends that the sta to adequately fund the SWIM, aquatic preserve, and
                     local government comprehensive planning programs in order to ensure the intergovernmental


                                                                  137









                     coordination necessary for the success of each and the resultant protection and conservation of
                     coastal resources.

                     As recommended by the 1992 ELMS III Comn-dttee's final report and many other study reports,
                     sufficient funding for these programs is essential for intergovernmental coordination, which is a
                     vital part of these individual programs and necessary for consistency and coordination among
                     them, if they are to function correctly and sufficiently. Although local governments have mostly
                     funded the development of their comprehensive plans (along with grants from the state), and
                     several water management districts are trying to cover their share of the SWIM program with
                     internal fundin& the aquatic preserve program has the most urgent need of these three programs
                     at this time for adequate funds to conduct intergovernmental coordination as a part of its
                     planning activities. In the near future, all three planning programs will require adequate funds in
                     order to implement each of their respective plans. However, better intergovernmental
                     coordination should increase the consistency of design and implementation among these plans,
                     and will most likely increase the cost-effectiveness of and reduce the total funding amount
                     necessary to implement these plans.



                     Recommendation #3


                     77te research team recommends that DCA's local plan review process should be amended to
                     ensure notification of reviewing state agencies of the outcome of their agency comments and the
                     outcome of compliance negotiations between DCA and local governments.

                     Draft SWIM plans are reviewed both by state and regional agencies and affected local
                     governments. At the very least, prior review of draft plans provides state agencies and local
                     governments with the opportunity to address and hopefully resolve conflicts between the
                     proposed SWIM plan and state and local plans.
                     The formal review and comment process accompanying the adoption and revision of
                     management plans for aquatic preserves has evolved and greatly improved within the last few
                     years. INis improved probess allows revisions of existing plans to be more specific within their
                     statutory limits, and more consistent with local comprehensive plans. However, it appears that
                     DNR makes a more conscientious attempt to ensure consistency with local comprehensive plans
                     than the reverse.

                     The external review and comment process for local government comprehensive plans and
                     amendments provides an effective means for water management districts and DNR to evaluate
                     the degree of consistency of local plans with SWIM plans and aquatic preserve plans. However,
                     the actual revision of proposed plans and amendments according to agency comments and the
                     determination of compliance of local comprehensive plans with Chapter 163 and Rule 9J-5 is up
                     to the discretion of DCA and the local government. Furthermore, there is no formal mechanism
                     or requirement to bring this process to closure if a state agency has serious objections to the local
                     plan. State agencies contributing review comments to DCA are often unaware of the fate of their
                     objections, comments, and/or recommendations concerning comprehensive plans.

                     7be research team also recommends that state review agencies receive a copy of final adopted
                     comprehensive plans and plan amendments.



                     Recommendation #4



                                                                    138








                     The research team recommends that the FAR process for local government comprehensive plans
                     should be used to promote consistency of local plans with SVWM plans and aquatic preserve
                     plans.

                     As noted earlier, there is no clear, direct mandate for consistency among these three plans and
                     planning programs. Although increasing the degree of consistency among these plans and
                     planning programs is clearly advantageous towards meeting common goals and objectives,
                     mandating consistency is potentially problematic in several areas. For instance, a direct mandate
                     would create more process for state agencies and local governments to follow, increasing the cost
                     and time needed to fulfill such a mandate. It would also probably be difficult to define, thereby
                     increasing the need for interpretation, as well as the chance for error or disagreement.
                     Furthermore, DCA revealed in interviews that their authority and capability to serve as an agent
                     for consistency on behalf of other state agencies is limited due to budgetary constraints and the
                     limitations of 9J-5. DCA also questions whether local government comprehensive plans are the
                     appropriate tool for implementing other state programs. Given these caveats, the Evaluation and
                     Appraisal Report (EAR) requirements in Chapter 163 for local comprehensive plans nevertheless
                     appears to offer an opportunity, without creating an additional mandate, to enhance the degree
                     of consistency among the three types of plans in this study. This opportunity, if it truly exists,
                     should not be missed.




                     Recom endation #5


                     77se research team recommends that DNR be encouraged to coordinate further with other
                     planning programs (i.e., SVV7M and local comprehensive plans) and that the agency be included
                     in other planning activities and efforts (local, state, federal, and other) where necessary.

                     The role of DNR in the development and implementation of SWIM and other plans is important
                     because of DNR's regulatory authority over specific activities within aquatic preserves, such as
                     dredge and fill. This is particularly true in Tampa Bay and the Indian River Lagoon SWIM bodies,
                     both of which encompass areas designated as aquatic preserves. DNR has been criticized in the
                     past for limiting its perspective of resource management in aquatic preserves to the jurisdictional
                     limits of the preserve, ie. the mean high water line. However, it is necessary to recognize that
                     DNR particularly lacks the resources and staff to adequately revise, refine, and coordinate all
                     aquatic preserve management plans with all other relevant plans and programs. It is also vital to
                     recognize that DNR's jurisdiction within aquatic preserves is delimited; however, this jurisdiction
                     and the accompanying regulatory powers are important to SWIM planning. Additionally, DNRs
                     revised plan format for aquatic preserves requires cooperation and coordination beyond the
                     mean high water line for the success@of these plans to protect aquatic preserve resources.




                     Recommendation #6

                     774 research team recommends that both the water management districts and DNR should
                     coordinate more actively with regional planning councils on a policy level to ensure consistency
                     of local plans and amendments with SWLM and aquatic preserve plans.

                     The role of regional planning councils should not be overlooked by either the water management
                     districts or DNR in the pursuit of improved planning coordination and consistency with local
                     governments. Regional planning councils offer a way to reach a large number of local
                     governments through their Comprehensive Regional Policy Plans, with which local
                     comprehensive plans are required to be consistent. Additionally, some RPCs offer other services,

                                                                    139








                    an example of this is the role of Tampa Bay Regional Planning Council in both serving as a host
                    agency for the Tampa Bay National Estuary Program and sponsoring the Agency on Bay
                    Management. These organizations were created in order to encourage and assist the coordinated
                    management of the natural resources of Tampa Bay. The Agency on Bay Management serves as
                    an advocate for the better management of bay issues, and conducts activities such as locating
                    funding sources for local and regional governments and governmental entities; advising and
                    providing information and data to local and regional governments and governmental entities,
                    and serving as a watchdog and troubleshooter for public issues that have regional impacts (e.g.,
                    power plant sitings).

                    The water management districts and DNR should work more closely with the regional planning
                    councils to identify policy similarities and differences among'the planning councils'
                    Comprehensive Regional Policy Plans, the water management districtsSWIM plans, and DNR's
                    aquatic preserve management plans. Water management districts and DNR should also continue
                    to work with local governments on a technical assistance level, particularly with counties (since
                    many municipalities do not have adequate planning staff and resources), to ensure that the
                    implementation of policies through ordinances, regulations, and capital improvements is
                    consistent with SWIM and aquatic preserve plans.




                    Recommendation #7

                    7he research team recommends that DNR's aquatic preserve managementplan development and
                    revision process be continued and funded as necessary.

                    DNR is revising and updating many of the original aquatic preserve management plans. In this
                    process, greater attention is given to the resources of the site and surrounding land uses, which
                    increases the capacity of DNR to make more plan-based decisions regarding activities within the
                    preserves, as well as the opportunity for increased consistency with other plans. In addition, the
                    revised review and comment process has been strengthened as well. However, this revision
                    process relies on increaseo staff time and more detailed and specific data.



                    Recommendation #8

                    77se research team recommends that the federal National Estuary Program pro@ess as planned
                    should be encouraged and supported where feasible.

                    Perhaps the most potentially significant development within both the Tampa Bay and Indian
                    River Lagoon areas is their designation as National Estuaries, which qualifies them for funding
                    through the National Estuary Program. The NEP offers an opportunity for encouraging and
                    enhancing regional consistency among resource management plans and activities by providing a
                    program under which all governments with jurisdiction over major estuarine water resources can
                    coordinate plans, data collection and analysis, and other activities and processes as they relate to
                    the estuary. Although Coastal Conservation Management Plans (CCMPs) are to be written for
                    each of the three program areas in Florida (Tampa Bay, Sarasota Bay, Indian River Lagoon), the
                    NEP authorities for both study areas will eventually "mold" their plan around each estuary's
                    SWIM plan, allowing the CCMPs to function as master plans, built upon the basic framework of
                    SWIM plans. (In addition, the Tampa Bay NEP office will take over the data modeling and
                    management functions presently performed by SWFWMD for Tampa Bay.) The implementation
                    of CCMPs will be conducted mostly by the water management districts and local governments,
                    but NEP will help fund these efforts as resources are available. Other planned actions to be taken

                                                                  140








                    by the NEP towards implementing CCMPs consistent with other plans (includ   ing SWIM plans)
                    include:

                      0 working with the WMDs and DER to develop pollution load reduction goals for managing
                          stormwater and other nonpoint source runoff

                      0   developing and providing tools such as data and models to assist local governments with
                          stormwater management plans and related comprehensive planning language

                      0   coordinating the National Pollution Discharge Elimination System perrnitting program
                          with DER and the WMDS, and

                      0   working with the water management districts and local governments in the development
                          and distribution of land development regulations and model ordinances.




                    EPrLOGUE

                    Overall, these programs are evolving towards more consistency. Although'the process is not yet
                    perfect, state and regional agencies have mostly come to recognize the value and potential of local
                    comprehensive plans, and are writing their plans with these in mind. DNR is writing their
                    revised aquatic preserve plans to recognize and take advantage of local programs, concerns, and
                    funding opportunities, as well as create linkages to local comprehensive plans. The water
                    management districts are also now writing district water management plans that will be
                    coordinated with state water policy and the state water management plan. These plans will,
                    through the EPA's NPDES program, be linked to local water use and management at both the
                    point and nonpoint source levels. And finally, the federal NEP program presents a good
                    opportunity to both coordinate all plans within an estuarine waterbody and to provide the
                    necessary funding to allow this. Although much necessary work and changes to the process
                    remain to be conducted, there is much that has been accomplished, especially within the last five
                    years.



























                                                              141







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                    (Author unknown). Palm Beach County Comprehensive Plan. 1991.

                    Barile, Diane D., et al. Estuarine management - the Indian River Lagoon. In Coastal Zone '87
                        (Proceedings of the Fifth Symposium on Coastal and Ocean Management), Volume 1, pp.
                        237-250. New York: American Society of Civil Engineers, 1987.

                    Barile, Diane, et al. Coastal Zone 1987. Seattle, Washington.

                    Calvarese, Stephen C. et al. "State and Federal Regulation of Construction Activities in the Waters
                        and Wetlands of Florida." Florida Environmental and Land Use Law, Vol. 1. The Florida Bar,
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                    Christie, Donna R. Florida Coastal Law and Policy. Cases and Readings. Sea Grant Project Number IR-
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                    City of Fort Pierce, et al. The Comprehensive Plan, Fort Pierce, Florida, 1990.

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                    Courtney, C. M. 'Me Role of a Local Government in Wetlands Protection" (to be presented to
                        the Society of Wetland Scientists, 14th Annual Meeting, Edmonton, Alberta, May 30-June 3,
                        1993). Ecosystems Management Division, Environmental Protection Commission,
                        Hillsborough County, Florida.

                    Environmental Land Management Study Committee 111. Building Successful Communities. Final
                        Report. Tallahassee, Florida, 1992.

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                        (Vero Beach to Fort Pierce and Jensen Beach to Jupiter Inlet). Bureau of Environmental Land
                        Management, Division of Recreation and Parks, Florida Department of Natural Resources,
                        Tallahassee, Florida, 1985.

                    Florida Department of Natural Resources. Cockroach Bay Aquatic Preserve Management Plan.
                        Bureau of Submerged Lands and Preserves, Division of State Lands, Florida Department of
                        Natural Resources, Tallahassee, Florida, 1987.

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                        Inlet (Phase 1). Bureau of Submerged Lands and Preserves, Division of State Lands, Florida
                        Department of Natural Resources, Tallahassee, Florida, 1990.

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                        Orlando, Florida, 1989.



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                         1989.

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                         Plan for Unincorporated Hillsborough County, Florida, Vols. 1& 11. Tampa, Florida, 1989.

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                     Kenworthy, W. Judson, and Haunert, Dan. Results and Recommendations of a Workshop Convened to
                         Examine the Capability of Water Quality Criteria, Standards and Monitoring Programs to Protect
                         Seagrasses. (Submitted to NOAA, Coastal Ocean Program, Estuarine Habitat Studies), 1991.

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                         Econon-dcs and Real Estate, Institute of Science and Public Affairs. Florida State University,
                         Tallahassee (In cooperation with the Florida Atlantic University/Florida International
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                         1992).

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                         dissertation. Florida State University, Tallahassee, 1982.

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                         Administration, U.S. Department of Commerce, 1990.

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                         Florida, 1991.

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                         Gardens, Florida, 1990.

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                         River Lagoon Joint Reconnaissance Report. Palatka and West Palm Beach, Florida, 1987.

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                         Stuart, Florida, 1990.

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                         Management Plan. Brooksville, 1988.


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                                     Appendix 1

                               Cockroach Bay Case Study







                                                     Cockroach Bay Case Study



                      DMODUCTION

                      The Homer Hoyt Center at Florida State University, as part of its research contract with the
                      Florida Department of Community Affairs entitled Coordination Of SWIM, Aquatic Preserve, And
                      Local Government Comprehensive Plans, planned to conduct an in-kind case study exan-dning plan
                      consistency in regard to technical data and information transfer. The following sub-tasks were to
                      be conducted with the computer resources of the Florida Resources and Environmental Analysis
                      Center's (FREAQ Local Government Assistance program:

                        1.  analyze common data requirements for the three different types of plans in digital format
                            to satisfy these requirements and identify available datasets

                        2.  create a common database that agencies working in all three of these planning areas can
                            have access to as well as share their data and work products

                        3.  develop computerized analysis techniques that support plan development and
                            implementation

                        4.  develop common data and information outputs for final production and presentation
                            purposes (e.g. formats for digital data, customized maps, color slides, desktop computer
                            presentations, etc.).

                      However, a change in the scope of these tasks was made necessary after discovering during the
                      early phases of the project that the Hillsborough County Environmental Protection Commission
                      was also beginning to conduct the first two tasks. They initiated this work as part of a local
                      comprehensive plan amendment concerning Cockroach Bay, which ultimately will include the
                      two remaining tasks. Consequently, in order to avoid redundancy, the Homer Hoyt Center
                      suggested instead to the Florida Department of Community Affairs (DCA) that it study and
                      document for inclusion into the final report the Environmental Protection Commission's efforts to
                      develop a GIS database using methodology developed by the Florida Growth Management Data
                      Network Coordinating Council. In addition, FREAC, in coordination with the Homer Hoyt
                      Center, offered technical assistance to the Hillsborough County Environmental Protection
                      Comn-dssion and the Tampa Bay Regional Planning Council in their efforts to acquire, process,
                      analyze, and distribute GIS data pertinent to the Cockroach Bay Aquatic Preserve, This
                      suggestion was accepted by DCA, and the Homer Hoyt Center's report is presented herein.

                      The Environmental Protection Commission's efforts are also being documented as part of a study
                      funded by the Tampa Bay office of the federal National Estuary Program to develop a data
                      management strategy for the Tampa Bay National Estuary Program. The purpose of this study is
                      to see how well the GMDNCC's method of data sharing and acquisition would work for
                      developing and implementing the Tampa Bay National Estuary Program. The Homer Hoyt
                      Center, therefore, has documented this effort within the larger scope of its original proposal.

                      Activities conducted by the Homer Hoyt Center in support of documenting the County's efforts
                      in acquiring and using data for the Cockroach Bay area include interviewing personnel involved
                      in conducting data selection and acquisition, including those planning the eventual use of this
                      data, and being listed as a participant in the Cockroach Bay Data Consolidation Working Group
                      (described below) to receive all mailings generated by the Working Group. In addition, the FSU








                     Florida Resources and Environmental Analysis Center has offered their data holdings and
                     technical expertise to the Working Group as needed.



                     COCKROACH BAY STRATEGY

                     The Hillsborough County Environmental Protection Commission, under direction from the
                     Hillsborough County Commission, and using methodology developed by the Growth
                     Management Data Network Coordinating Council (GMDNCC), is currently working closely with
                     the Tampa Bay Regional Planning Council to inventory and acquire natural resource and other
                     data for the purpose of developing a resource management strategy for the Cockroach Bay
                     Aquatic Preserve. Many federal, state, and local organizations having jurisdictional authority
                     within Tampa Bay are contributing data to this effort. The data will be eventually transferred to
                     the Hillsborough County GIS Department for analysis by the Hillsborough County City/County
                     Planning Commission, the Environmental Protection Commission, and other agencies and
                     offices. Project benefits include the development of a database accessible to other county agencies
                     and offices, as well as other counties or other governmental entities, since the portion of the
                     county being studied lies in the watersheds of both Terra Ceia and Cockroach Bay Aquatic
                     Preserves.

                     The Cockroach Bay Aquatic Preserve is located entirely within Hillsborough County, Florida.
                     Regarded as the most pristine natural area left in Tampa Bay, Cockroach Bay is experiencing
                     environmental degradation from human-related activities and effects. These effects include:

                       ï¿½   damage to seagrasses from boat propeller scarring

                       ï¿½   deterioration of water quality from stormwater runoff (contamination from pesticides,
                           excess nutrients, heavy metals, and pathogenic bacteria and viruses

                       ï¿½   encroachment of exotic plants, including submerged plants

                       ï¿½   habitat modification and destruction.1

                     The Florida Department of Natural Resources published a management plan in 1987 to protect
                     the environmental integrity and biota of the Cockroach Bay Aquatic Preserve. However, the
                     implementation of this plan has not been fully funded, with the exception of providing a aquatic
                     preserve manager. the manager patrols and conducts site inspections of the preserve, reviews all
                     applications for permits within the preserve, and attends public and other meetings.



                     County Response

                     Following a controversial attempt by the Tampa Electric Company to locate a new electric
                     generating facility adjacent to Cockroach Bay, and in response to other environmental issues
                     affecting the Bay, an overlay study of this area was requested by the Hillsborough County Board
                     of County Commissioners (HCBC0 for the purpose of preparing a comprehensive plan
                     amendment recognizing the Bay and its resources as a special area, and to protect it from further
                     deterioration. However, one of the initial findings of this study, conducted by the Hillsborough


                     lCockroach Bay Dr* Issue Statmerd, June 29,1992, Hillsborough County Environmental Protection
                     Commission.



                                                                       2








                       County City-County Planning Comrnission, is that there was a lack of planning data for this
                       geographic area.

                       As a result of this attempt, and in response to other pressures to ad    dress the environmental issues
                       affecting the Bay, the HCBCC requested the City-county Planning Commission to devise a
                       tentative strategy to address the problems of Cockroach Bay through a comprehensive plan
                       amendment. In addition to this, Mllsborough County Comn-dssioner Ed Turanchik formed a task
                       force in January 1992 to coordinate the county's response to the environmental issues affecting
                       the Bay. Created by the HCBCC under Policy C-37Z of the proposed amendment, the Cockroach
                       Bay Aquatic Preserve Management Advisory Team (CAPMAT) consists of staff and a set of
                       appointees (to be appointed by the Hillsborough County Environmental Protection Comn-dssion)
                       representing local, regional, state, and federal government agencies and other groups. With the
                       assistance of the Environmental Protection Comn-dssion and the City-County Planning
                       Commission, CAPMAT is to develop a management strategy for Cockroach Bay. This strategy is
                       intended not to replace but to enhance and assist the implementation of the Cockroach Bay
                       Aquatic Preserve Management Plan.

                       The first component of this strategy was to draft an amendment to the Hillsborough County.
                       comprehensive plan. Ibis amendment, adopted in October 1992 by the HCBCC, creates the
                       Cockroach Bay Aquatic Preserve Planning Area, consolidates several existing policies, and adds
                       several new policies referencing Cockroach Bay. The amendment specifically removes all existing
                       policies dealing with Cockroach Bay in the Coastal Management and Conservation and Aquifer
                       Recharge elements of the comprehensive plan and transfers them to the Future Land Use Element
                       under an existing area of the element called Section C- Special Areas of Concern, creating a new
                       section entitled "Me Cockroach Bay Aquatic Preserve Planning Area." This focuses all of the
                       pertinent policies in one place for ease of reference. In addition, the Future Land Use Element is
                       the primary element of the plan, the focus of the most public attention, and the most widely
                       distributed.2



                       DATA ACQUISMON

                       The second component of the Cockroach Bay management strategy was to acquire sufficient
                       planning data necessary to implement this strategy. CAPMAT organized a subcommittee,
                       coordinated by the Hillsborough County Environmental Protection Comn-dssion, to analyze data
                       needs, and to determine how to best acquire it. Once acquired, this data is to reside within the
                       county's GIS under the guidance of Bob Keim, Hillsborough County's GIS coordinator.

                       A committee called the Consensus Group used several adn-dnistrative tools developed by
                       GMDNCC staff from a pilot study conducted in the Tampa Bay. The GMDNCC is housed within
                       the Office of the Governor and is composed of state agency heads and staff that generate or use
                       digitized spatial data. It was created to help develop ways that these and other agencies and local
                       governments could share data statewide and thereby avoid the high costs of developing the data
                       themselves, as well as data redundancy-3 The GMDNCC is an excellent example of a state-led
                       initiative to address the problem of sharing planning and resource management data at the local



                       2CPA 92-03, Future of Hillsborough Comprehensive    Plan (Unincorporated Hillsborough County), 1992.
                       3Stage, David, and Riney, CorL 1990. A Model Geographic Information System for Coastal Zone Management:
                       Final Report. Office of Planning and Budgetin& Executive Office of the Covernor. Tallahassee, Florida. 59
                       pp. wl appendices.



                                                                           3








                     level without imposing a top-down solution using a centralized database. It has been successful
                     to date in developing Workable methodologies for accomplishing this goal.

                     Documents and methodologies developed by the GMDNCC as a part of the Tampa Bay pilot
                     study include a consensus group methodology for determining what data are relevant and
                     needed, quality and accuracy report templates, data descriptive summaries, and a centralized
                     Florida Spatial Data Directory or "card catalogue." A Regional Advisory Committee was also
                     formed as an outgrowth of the GMDNCC Tampa Bay pilot study. It is composed of lead GIS and
                     other staff in various governmental agencies in the Tampa Bay area (e.g., county adn-dnistrators,
                     EPC, FDOT, FDER, SWFWMD) who have signed a Memorandum of Understanding to cooperate
                     in interagency data sharing within the Bay area. The Regional Advisory Comn-dttee has a
                     Facilitator from the Tampa Bay Regional Planning Council who is also the GMDNCC liaison. A
                     subcommittee of CAPMAT, composed of Environmental Protection, Commission, City-County
                     Planning Comn-tission, and other county staff, devised a matrix of natural resource data types
                     useful to CAPMAT. This subcommittee, with the assistance of the Facilitator, then used the
                     GMDNCC`s consensus group methodology, data descriptive surnmaries, and quality and
                     accuracy templates to inventory and catalogue data available from the members of the Regional
                     Advisory Comn-dttee and others in the Tampa Bay area. After this was completed, the list of
                     available data was transferred to the GMDNCC in Tallahassee for review and input to the Florida
                     Spatial Data Directory (the "card catalogue"). This card catalogue, located in Tallahassee and
                     accessible by modem, describes the data and its attributes (e.g., scale, quality, and accuracy) and
                     its place of residence.




                     Actors

                     Below is a list of participants in the Cockroach Bay consensus group organized by the TBRPC and
                     the Hillsborough County Environmental Protection Commission:

                     Elle Araj                Hillsborough County Stormwater Utility

                     Arnold Banner            U.S. Fish & Wildlife Service

                     Gene Boles               Hillsborough County Planning & Development Management Dept.

                     Peter Clark              Tampa Bay Regional Planning Council

                     Steve Dicks              Mapping & GIS Manager, SWFVVMD

                     Dale Friedley            Manatee County Property Appraiser's Office

                     Dave Gowen               DER/STORET, Tallahassee

                     Holly Greening           Tampa Bay National Estuary Program

                     Kurt Grin-dey            Hillsborough County Endangered Lands Acquisition Prog

                     Carl Harker              National Weather Service (SW Agricultural Center)

                     Rob Heath                Hillsborough County Parks Department.

                     Steve Hodges             Homer Hoyt Center, FSU



                                                                      4








                   Mike HoIcamp          SWIM/SWFWMD

                   Walid Houtom          Hillsborough County Stormwater Utility

                   Bob Keim              Hillsborough County GIS Manager

                   David Kriz            U.S. Soil Conservation Service

                   Jordan Lewis          Environmental Health, Florida HRS

                   Robin Lewis           Lewis Environmental Services, Inc.

                   Bill Lofgren          Staff Director, TBRPC

                   Gail MacAulay         Marine Research Institute, DNR

                   Susan Mariner         Hillsborough County Planning & Development Management Dept.

                   Yvonne Stoker         USGS

                   Nick Toth             Cockroach Bay Aquatic Preserve Manager, DNR

                   The above list includes local, regional, state, and federal representatives, all of which have data
                   that are potentially useful to the Regional Advisory Committee and the Hillsborough County
                   City-County Planning Comn-dssion. Again, as stated above,'the State of Florida is interested in
                   seeing this process replicated across the state in those areas where data is locally needed but not
                   centrally located. The federal Tampa Bay National Estuary Program is interested in transposing
                   this process to the entire Tampa Bay area.

                   At this time, data descriptive summaries from most of the participants in the Consensus Group
                   have been received and transmitted to the Florida Spatial Data Directory (Card Catalogue). These
                   sources. and data descriptions include.

                    9   EPQ non-GIS data inclusive of water quality monitoring, old and active sanitary landfills,
                        small quantity generators of hazardous waste, wetland delineations, stationary storage
                        tank facilities, wastewater/sludge application sites, wastewater treatment plants, industrial
                        treatment facilities, air monitoring ambient data, and major air pollution sources

                    0   FDNR Marine Researdt Institute: results of the little Manatee River Study inclusive of
                        Florida shoreline, roads, boat ramps, detailed soil maps, artificial reef sites, digitized
                        NOAA nautical chart bathymetry, plant communities, 1990 and 1988 seagrass mappings,
                        1950 and 1982 land cover, and aids to navigation

                    0   NEP: benthic sampling locations 1961 to 1989, SWFWMD/SWIM bibliographic database

                    0   USFWS: Land use and biological coverage of eagle's nests, woodstork and wading bird
                        colonies, breeding bird survey, bird nesting and feeding areas, and information on 50
                        priority species

                    a   TBRPC: water quality database

                    0   Hillsborough County- phosphate n-tining map, NPDES map, county parcel map, water
                        quaIity map, SLOSH grid map, census tracts map, significant wildlife habitat map, zoning
                        map, e)dsting land use map, base map containing physical and major road/ railroad


                                                              5









                         infrastructure elements, SWFWMD 5-foot contour map, commission district map, primary
                         care facilities map, and impervious areas map

                      ï¿½  USGS: water resources databases


                      ï¿½  FGFWFC: habitat cover and wildlife occurrence records

                      ï¿½  National Weather Service: meteorological data

                      ï¿½  Lewis Environmental Services, Inc.: seagrass aerial cover trend maps for 1938, 1957, 1991,
                         and FLUCCS coded Maps

                      ï¿½  SWFWNM: Section, Township and Ranges, stormwater management permit points,
                         stormwater management permit boundaries, seagrass, mappings of Tampa Bay for 1988,
                         and 1990, USDA/SCS detailed soil maps from county soil atlas, FEMA flood insurance
                         rates 1970-1980s, drainage basin boundaries of SWFWMD, Land Use/Cover based on
                         FDOT scheme Level IL five-foot contours, two-foot contours and spot elevations, and

                         Florida Natural Areas Inventory. rare/endangered species.

                   The above data is being transferred to the Hillsborough County GIS Department as of this
                   writing. This process should be completed in early 1993.



                   Future Use of Data

                   The primary end user of the data is to going to be CAPMAT. There are presently no firm plans on
                   how this data is specifically going to be used, due to the fact that CAPMAT is not yet formally
                   organized. However, it can be safely assumed I that the data will be used to help implement the
                   policies present in the Cockroach Bay comprehensive plan amendment through the development
                   of a management strategy for the Bay. This strategy will include the computerized mapping of
                   natural resources and resource protection areas within the Bay area, such as pollution sources
                   (e.g., permitted NPDES outfalls, land uses, conservation or restoration projects, and other objects
                   or processes within the watershed of, Cockroach Bay.

                   This spatial and tabular database is also going to be available to DNR, including the Aquatic
                   Preserve manager for Cockroach Bay. It is also likely that other agencies will be able to utilize this
                   data as well in developing rules, ordinances, and other means to further the management
                   strategy for Cockroach Bay. These agencies will likely include the county's Environmental
                   Protection Commission, Planning and Zoning, Stormwater Utility, and ELAPP; and other
                   m-gional agencies such as SWFWMD. Manatee County could also benefit from having access to
                   such a database since portions of the watershed are within Manatee County's jurisdiction. Finally,
                   federal and other interests within the watershed will be able to benefit from this database. These
                   interests include the federal Coastal America program's $300,000 grant toward an estuarine
                   restoration project on the north shore of Cockiroach Bay, and a $400,000 Set-Aside grant to fund
                   construction of a stormwater system designed to treat agricultural and other runoff in the Bay.
                   Both of these projects are part of a SWFWMD SWIM project for the same area, which also
                   encompasses the ELAPP Endangered Lands site recently acquired by Hillsborough County.






                                                                  6




    I
    I                                   Appendix 2
    1                            List of Agencies Interviewed
    I
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    I
    I
    I
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                                               List of Agencies Interviewed





                    Counties
                    Hillsborough
                        Environmental Protection Commission
                        City/County Planning Comn-dssion
                    Manatee
                    Martin
                    Palm Beach
                    St. Lucie

                    Municipalities
                    Fort Pierce
                    Jupiter
                    Jupiter Inlet Colony
                    Jupiter Island
                    Ocean Breeze Park
                    Palmetto
                    Sewall's Point
                    Stuart
                    Teq uesta

                    Rgoonal Aggncies
                    South Florida Water Management District
                    Southwest Florida Water Management District
                    St. Johns River Water Management District
                    Tampa Bay Regional Planning Council
                    Treasure Coast Regional Planning Council

                    State Aggncies
                    Department of Community Affairs
                    Department of Environmental Regulation
                    Department of Natural Resources
                    Executive Office of the Governor

                    Federal Aancies
                    Indian River Lagoon National Estuary Program
                    Tampa Bay National Estuary Program

                    Other
                    1000 Friends of Florida
                    Wade-Trim, Inc.






                                      Appendix 3


                  Issue Matrices: Hillsborough County Comprehensive Plan






             Issuefl: Point Source Water Pollution [S                                        &
             Tampa Bay SWIM Plan                                                      Cockroach Bay Aquatic Preserve                                          Hillsti rough Count Com rehensive Plan
             lWdadv4% Progmawk & Strateglea                                                                                                                                                                  P
                                                                                      Management Policy Dimcoves                                              Element IPR          (;OP              Descriptloni
             wATER QuALm INFlIXTIVE I                                                7W     Require. through the efforts of DER old the southwest             SNSW         10      P01. 1. 1         WWT facilities effluent shall meet AWT stds prior to
             Iteduce point and nompotat source Pollutant loatft to atlab                    Florida Water Management District (SWFWMD), the                                                                     to Surface Wawa or natural wetlands.
             water qodq secenw, to ralore and maintain heafthy and                          maintenance and UpFading of the water quality of the
             productive natural syskms, project human health, and to                                                                                                               ObJ. 2            =rgeto utilize & expand existing water re-use
                                                                                            estuary and ensure the natural Seasonal flow fluctuations of                                             systems were viabl
             41112111 the highest possible water we classification.                         fresh water into the estuary. In particular encourage the                      12      Obj. 3            Utilize existing & corrently programmed facilities
                                                                                            Department of Envisom. ental Regulation and the                                                          before Service area extension is conducted.
             PROGRAMS                                                                       Environmental Regulatory Catimission to extend OFW                                     Pol. 4.5          New WWT facilities shall not be constructed w/i the
             La. Reduction of Domestic still Indtistrial Pollutant Discharge                designations to wetlands above the MHW line in areas                                                     CHHA [see CM Pol. 10.21.
             STRATEGIES                                                                     Witldn Or adjacent to the aquatic preserve.                                                              171 Policies are needed to address non-permined
                                                                                                                                                                                                     point sources discharging into Sur
             ï¿½   Achieve a thorough understanding of the quality and                                                                                                                                                                      fiace wate" a
                 coni   . .   Of domestic and midustrial effluents being                                                                                                                             reduction ofPermitted sources neg. impacting WQ
                 -. pomon
                 discharged into Tampa Bay through the previously describeil                                                                                                                         and cOmmercialli"durtrial harwaste discharged into
                 watt juality assessment program.                                                                                                                                                    septic tanAs.
                                                                                                                                                              CONS & 54&48 Pol. 2.1 & 1.1            Not =rt lowered surface WQ standards &
             ï¿½   Minfinize and/or eliminate Pollutant loadings from domestic                                                                                  Cm                                     class' ication; upgrade where economically feasible,
                 and industrial wastewater discharged into Tamp Bay through
                 alternative re-use and disposal options and other effective                                                                                                                         [I] 'unless necessary' is conditional.
                                                                                                                                                                                                     [21 Same as above; delete phrase.
                    ons as determined duough the previously described water                                                                                   CONS         55      Pol. Z2           Require all DWTPs dischar           into Tampa Bay or
                        assessment program.                                                                                                                                                          tributaries provide adv=WT or eliminate
                        h le all=enfaroesble, resource based, effluent                                                                                                                               discharge in order to meet SWIM criteria where
                        offil lor    esfic and industrial point sources                                                                                                                              economically feasible.
                 discharges if such allocations an shown to be necessary                                                                                        ONS & 55&49 Pol. 2.3 & 1.4           Develop and promote effluent disposal alternatives,
                 through the water quality assessment process.                                                                                                CM                                     including re-use.
                 Discourage overcommitment of wastewater treatment and                                                                                                             Pol. 2-4 & 1.3    Plan for construction of regional WWT facilities to
                 disposal capacities on the pan of the bay area local                                                                                                                                serve higher density areas.
                 overnments by providing the DER's Southwest District
                 Goe with a Stronger bads for evaluation of discharge permit                                                                                                                         [31 Re: 2.4, Address how to payfor, and what are the
                                                                                                                                                                                                     targeted and priority areas? Re: 1.3, No timeframe
                 IPPlicstions. This will be accomplished through Step I of the                                                                                                                       is included.
                         ly described water quality assessment process.                                                                                                            Pol. 2.5 & 1.5    Initiate IA to maintain or expand surface WQ
                 =.;e greater Private interest Oost-sharing (impact fees)                                                                                                                            monitoring program.
                 in the construction of new regional wastewater treatment                                                                                                                            [31 Re: 1.5, No limeframe is included
                 facilities.                                                                                                                                  CM           49      Pol. 1.2          Require all DWTPs discharging into TB or tributaries
                 Discourage the construction of wastewater treatment plants                                                                                                                          to meet AWT stds prior to discharge or eliminate to
                       serve          PrMects and Promote construction Of                                                                                                                            meet SWIM criteria.
                    ?n@ pn     a.       -                                                                                                                                          Pol. 1.6          Initiate IA w/ appropriate regulatory agencies to,
                           and/or eliminate pollutant loadings to Tampa Bay                                                                                                                          require developments identified as sources of WP
                 end its tribmaries from septic tank seepag&                                                                                                                                         within the CA to est. & implement WQM plans to
                 hurnote s=Vm draft new local. State, end federal legislation                                                                                                                        eliminate or improve all substd point source
                 and rules necessasy to teduce domestic and industrial                                                                                                                               dischar
                                                                                                                                                                                                           . ;es.
                 pollutant discharges to acceptable levels at determined                                                                                                                             [31 Which agencies need to be included?
                 dmmgh the water quality assessment pt          s.                                                                                                         52      Pol. 3.1          Improve WQ to maintain shellfish viability by
             Lb. Enforcement of Effluent Discharge Limitations,                                                                                                                                      unprov. sewage treatment in vicinity of CAAP.
                                                                                                                                                                             2     Pol. 10.3         WWT facilities shall not be con     .structed wA the
                                                                                                                                                                                                     CHHA unless meets Poi. 10.2 criteria (see SNSW
                 Bring all domestic and industrial point source discharges into                                                                                                                      Policy 4.51.
                 compliance with applicable effluent limitations including                                                                                    FLU          33      Obj. C-1          Maintain or improve WQ in rivers where does not
                 alloiikW waft leads by strength - local government                                                                                                                                  meet state WQ stds.
                 environstiental enforcement and =ce monitoring                                                                                                                    Pol. C-1.2        Prohibit discharges of raw sewage to rivers and
                 program thmugh cofft-shaing incentives.                                                                                                                                             tributaries.
                                                                                                                                                                                         C-37        Identify t@euojrsphic area by 1993 wherein discharges
                                                                                                                                                                                                               ik .
                                                                                                                                                                                                     are very e, y to affect Cockroach Bay. Once
                                                                                                                                                                                                     identified, new permitted discharges will be required
                                                                                                                                                                                                     to meet or exceed   appliFable federal, state, regional,
                                                                                                                                                                                                     and local WQ !tds. Initiate   plan to address WQ &
                                                                                                                                                                                                   I habitat restoration within CBAP by end of 1993.



             'NOTES: Agency objections, recommendations. and/or comments are shown in italics and are source-codecl: [1) DCA. 121 DER, [3) DNR, 141 HLLSBOROUGH COUNTY, 151 MANATEE
             COUNTY, [61 CITY OF PALMEM. [7) TBRPC, [81 SWFWMD. [911000 RMMS OF FLORR)A. [10] DOT, R I I FGFWFC. [121 DOS, 1131 DACS.






                                                                                                                                                                                                             
              Issue#2: Nonpoint Source Water Polluti                                          [SWIM & AP]                                                                    Hillsborough County Comprehensive Plan            
              Tampa Bay SWIM Plan                                                            Cockroach Bay Aquatic Preserve                                                       Element        Pg       GOP                 Description                                                                                                                                                                                                                                                                                               
              Reduce Point and nonpoint mearce polloqbat loading to attain                            that adversely impact saqhmarshes and other valuable                                                                   to correct current deficiencies and meet projected
              water quality necessary to restore and maintain healthy and                             intertidal, submerged, and emergent habitats unless a prior                                                        demands based on meeting or exceeding adopted
              productive natural systems, protect human health, and to                                 determination has been made by the Board of overriding                                                            LOS through 1995.
              attain the highest possible water on classification.                                   public importance and that no reasonable alternatives exist.                                   Pol. 4.4           Eliminate interim WWT plants as ...capacity becomes
                                                                                                    Selected Additional Onsire Policies & Procedures:                                                                 avail. in the County system.
              I.a. Reduction of Domestic and Industrial Pollutent Discharge                          1.      Identify and develop guidelines for areas and plant                            13       Pol. 4.8           Prohibit new develop from using septic tank systems
                                                                                                           communities in need of restoration.                                                                        in the CHHA (exceptions provided).
                 Minimize and/or eliminate pollutant loadings to Tampa Bay                           2.     Discourage developments within the aquatic preserve                            14       Pol. 7.1           Continue to require septic systems connect to the
                 and its tributaries from septic tank seepage.                                               that require restoqntion or mitigation.                                                                     county where available unless undue hardship is 
                                                                                                    3.     Develop an exoticqpqlant control and removal plan                                                            proven.
              l.c. Urban Stormwater Management                                                            following monitoring.                                            STMA          21       Pol. 1.1          Complete comprehensive Countywide Stormwater
                                                                                                    4.     Develop a cumulative impact analysis program for                                                           Management Master Plan in FY96, and initiate
                 Reduce the levels of nutrients and other contaminants in                                  analyzing proposed uses within the aquatic preserve.                                                       subbasin/watershed master plans by FY94.                                                                        Pol. 4.5           Initiate NP
                 quality of stormwater discharges be no worse than the state                          maintenance am upgrading of the water quality of the                                                              formal designee.
                 water quality criteria or the editing quality of the receiving                     estuary and ensure the natural seasonal flow fluctuations of                                  Pol. 5.1           Develop & implement program to improve problem
                 water body, whichever is better. The feasibility of                                fresh water into the estuary. In particular encourage the                                                         areas; BMPs will be used to minimize poor WQ
                 implementing this objective will be examined through a                                Department of Environmental Regulation and the                                                                    runoff to ground and surfacewater bodies.
                 review of federal, state, District, and local rules pertaining to                   Environmental Regulatory Commission to extend OFW                                            Pol. 5.2           All new developments shall continue to provide SWT
                 storm water management.                                                             designations to wetlands above the MHW line in areas                                                               facilities which meet or exeed appropriate local,
                 Minimize the quantities of nonpoint source pollutants                               within or adjacent to the aquatic preserve.                                                                       state, and federal regulations.
                 entering Tampa Bay through selection of high priority urban                                                                                                                                         [8} Vague; need to describe county interagency
                 stromwater system retrofit projects and providing cost-                                                                                                                                              coordination and treatment requirements for 
                 sharing incentives to local governments for project                                                                                                                                                  stormwater.
                 implementations.                                                                                                                                                                 Pol. 5.3           Require appropriate existing development planned
                 For all new development or redevelopment within the                                                                                                                                                 for expansion, modif., and/or replacement to provide
                 Tampa Bay watershed, runoff rates should not exceed those                                                                                                                                           some effective form of SWT (see CONS 2.10).
                 of natural, undisturbed conditions. The feasibility of                                                                                                                           Pol. 5.4           Include use of wetlands for SWT, pend, pretreatment,
                 implementing this objective will be examined through a                                                                                                                                              in WPR prog. in Pol. 2.11.
                 review of federal, state, district, and local rules pertaining to                                                                                                                                     [2] General STMA comment: obj. 2 does not
                 stormwater management.                                                                                                                                                                               mention add'l uses & re-uses for stormwater runoff
                 Conduct a multi-year public awareness campaign regarding                                                                                                                                            (e.g, greywater).
                 the causes of nonpoint source pollution and actions the public                                                                                                 CONS & 544.48  Pol. 2.1 &                  Not support lowered surface WQ standards &
                 can take to reduce nonpoint source pollution.                                                                                                                  CM             1.1                classification.
                                                                                                                                                                                                                      [1] 'unless necessary...welfare is conditional.
              I.h. Control of Seepage Waste                                                                                                                                                                           [2] Same as above, delete phrase.
                                                                                                                                                                            CONS          55       Pol. 2.6           Provide improved DWT service to developed areas
                Determine the degree to which Tampa Bay is being burdened                                                                                                                                              where persistent WQ problems are attributable to
                 by illegal disposal of septage waste through the previously                                                                                                                                          poorly functioning septic tak systems and where
                 described water quality assessment program.                                                                                                                                                         economically feasible.
                Eliminating existing health hazards due to seepage of septage,                                                                                                                                       [3] Define persistent WQ problems', address
                 waste into the bay and its tributaries.                                                                                                                                                               commercial systems, larget priority areas.
                Ensure the proper ragulation and disposal of seqptage waste.                                                                                                                                         [8] 'Where economically feasible' is conditional;
                                                                                                                                                                                                                      need to est. coordination mechanism w/ incorp.
                                                                                                                                                                                                                      areas, ID areas to be served by septic tanks, &
                                                                                                                                                                                                                      analyze soils for suitability.
                                                                                                                                                                                                   Pol. 2.7           Develop (via IA) seientifically-defensible siting
                                                                                                                                                                                                                      criteria, performance standards, and density
                                                                                                                                                                                                                      limitationsfor septic systems, w/special criteria for
                                                                                                                                                                                                                      siting adj. to Class I,II & OFWs.
                                                                                                                                                                                                                      (3) Fails to address impact of systems on adjacent
                                                                                                                                                                                                                      DNR shellfish designated areas.
                                                                                                                                                                                                   Pol. 2.9           Request local & state agencies to improve monitoring
                                                                                                                                                                                                                      and compliance enforcement of point and nonpoint
                                                                                                                                                                                                                      discharges.
                                                                                                                                                                            CONS &  550&50  Pol. 2.10 &               Require existing development planned for expansion,
                                                                                                                                                                            CM              1.11                      modif., and/or replacement to provide SWT
                                                                                                                                                                                                                      improvement, where lacking, and retrofit of SWT                                                                                                                                                                                                                      facilities. 0qh
                                                                                                                                                                                                                      facilities in urban areas (see STRMGT 5.3).
                                                                                                                                                                                                                      (3). Re: 1.11, Developments need to provide state-of-
                                                                                                                                                                                                                      the-art facilities before permit is issued.
                                                                                                                                                                                                                      (continues)                  





              Issue#2: Nonpoint Source Water Pollution [SWIM & AP]                                        [SWIM & AP)
              Tampa Bay SWIM Plan                                                           Cockroach Bay Aquatic Preserve                                              Hillsborough County Comprehensive Plan
              Initiatives, Programs, & Strategies                                                                                                                                                                  
                                                                                            Management Policy Directives                                                  Element    Pg           GOP              Description
                                                                                                                                                                          CONS       56           Pol. 2.11     Monitor emerging SWT and BMP techniques &
                                                                                                                                                                                                                practices and cooperate w/SWFWMD to ensure WQ
                                                                                                                                                                                                                objectives are met through methodologies.
                                                                                                                                                                                                  Pol. 2.12     Provide public education for homeowners which
                                                                                                                                                                                                                addresses impacts on surface waters of pesticides and
                                                                                                                                                                                                                fertilizers.
                                                                                                                                                                                     57           Pol. 3.6      Promote use of native plants for SWT.
                                                                                                                                                                                     73           Pol. 19.1     Determine construction setbacks & buffer distances
                                                                                                                                                                                                                from wetlands, floodplains, and WBs and integrate
                                                                                                                                                                                                                into LDrs where neccessary.
                                                                                                                                                                                                                Re: 1.5, No time frame is included.
                                                                                                                                                                                                                [9] Need to include a CONS policy requiring all new
                                                                                                                                                                                                                development to adequately manage new stormwater
                                                                                                                                                                                                                runoff to protect WQ of surface water resources,                                                                                                                                                                                                               
                                                                                                                                                                                                                partic. Tampa Bay.
                                                                                                                                                                                                                [9] Revise STMA GOPs to address need for basin
                                                                                                                                                                                                                stormwater management studies to determine                                                                                                                                                                                      
                                                                                                                                                                        CM&          49&55    Pol. 1.5 & 2.5    Initiate IA to maintain or expand WQ monitoring
                                                                                                                                                                        CONS                                    program.
                                                                                                                                                                        CM           49       Pol. 1.7          Provide improved DWT service to coastal areas where
                                                                                                                                                                                                                WQ problems are attributable to poorly functioning
                                                                                                                                                                                                                septic treatment systems.
                                                                                                                                                                                                                [2] The phase 'where economically feasible' is
                                                                                                                                                                                                                conditional; should be based on need.
                                                                                                                                                                                     52       Pol. 1.9          Request local & state agencies to improve monitoring
                                                                                                                                                                                                                & compliance enforcement of point & nonpoint
                                                                                                                                                                                                                source discharges to TB & tributaries.
                                                                                                                                                                                                                [1] Need to state specific action of program
                                                                                                                                                                                                                undertaken to achieve objective.
                                                                                                                                                                                     55       Pol. 6.7          Prohibit use of septic tanks w/i CHHA.
                                                                                                                                                                                     61       Pol. 10.2         Publicly-funded infrastructure shall not be constructed
                                                                                                                                                                                                                w/i the CHHa unless retrofitting SWM facilities for
                                                                                                                                                                                                                WQ enhancement of SW runoff.
                                                                                                                                                                                     19       Pol. A-8.7        Require SWM systems be designed to reduce
                                                                                                                                                                                                                pollution through compliance with regional & local
                                                                                                                                                                                                                filtration, retentin, and detention standards.
                                                                                                                                                                                     33       Obj. C-1          Maintain or improve WQ in rivers where does not
                                                                                                                                                                                                                meet state WQ stds.
                                                                                                                                                                                              Pol. C-1.1        Development shall provide storm. mgmt. systems
                                                                                                                                                                                                                before discharge to rivers, including swales.
                                                                                                                                                                                     42       Pol. C-21.1       Prohibit septic tanks & dranfields w/i 200' of the
                                                                                                                                                                                                                Little Manatee River & tributaries.
                                                                                                                                                                                              Pot. C-37.3       Mitigate or restrict development likely to impact the
                                                                                                                                                                                                                CBAP to prevent degradation through the
                                                                                                                                                                                                                development review process.
                                                                                                                                                                                                                [2] Re: previously designated Pol. 2.9: The phrase 'as
                                                                                                                                                                                                                appropriate' is conditional; remove phrase & define                                                                                                                                                                                                                                                                                                                                         TRANS   58              Pol 1.7.2       'significant degradation.'
                                                                                                                                                                                                                All road construction projects shall meet or exceed
                                                                                                                                                                                                                adopted state or local SR&T requirements.
                                                                                                                                                                                                               (continue)








                                                                                                                                          3
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Issue#2:	Nonpoint Source Water Pollution  [SWIM & AP]
Tampa Bay SWIM Plan				    Cockroach Bay Aquatic Preserve		Hillsborough County Comprehensive Plan
Initiatives, Programs, & Strategies		    Management Policy Directives		Element Pg	GOP			Description
														FLU		Pol. C-37.4		Seek to establish a scientifically-defensible buffer								
																			zone between CBAP & adj. upland uses to prevent
                                                                           							degrad. of WQ & aquatic vegetation habitats as part
																			of the CB Overlay Study in Policy C-37.13.
																			[3] re. previously designated Pol. 183. need to
																			readdress FLU designations if county wants a buffer
																			around CBAP.
																Pol. C-37.6		By the end of 1992, the County, in conjunction with
																			the EPC, SWFWMD, DNR, TECO, and other
																			property owners, will develop a program to identify
																			drainage system alterations that facilitate water
																			quality and habitat value improvements in the
																			Preserve.  The area of Concern shall receive priority
																			as the County implements its stormwater
																			management basin studies.  The County will utilize a
																			variety of mechanisms, such as the use of natural
																			plant communities for the treatment of stormwater,
																			detention of stormwater, and purchase of lands by the
																			Environmental Lands Acquisition and Protection
																			Program (ELAPP) for multiple use as wildlife habitat
																			and stormwater management.
																Pol. C-37.8		The County will request the ELAP Program to
																			purchase suitable parcels in the Area of Concern and
																			incorporate site restoration projects that achieve
																			water quality and/or habitat benefits to the Preserve.
																Pol. C-37.10	By the end of 1992, the County will encourage all
																			appropriate agricultural or construction operations
																			within the Cockroach Bay drainage basin to develop
																			and apply a Soil Conservation Services Soil
																			Conservation Plan and implement Best Management
																			Practices (BMPs).  Upon completion of the County's
																			Stormwater Management Master Plan for this area,
																			the County will require the use of BMPs.
																Pol. C-37.11	By the end of 1993, the County, in cooperation with
																			EPC, the Hillsborough County Public Health Unit
																			and other appropriate entities, will undertake a study
																			to evaluate the impact of existing septic systems on
																			water quality in the Area of Concern.  If warranted,
																			the County will initiate a program, by the end of
																			1995, to address and fund timely remediation of any 
																			identified water quality problems to the extent
																			reasonably feasible.												

       																									 




Issue#3:	Phosphate Processing Operations [SWIM & AP]
Tampa Bay SWIM Plan				  				Cockroach Bay Aquatic Preserve						Hillsborough County Comprehensive Plan
Initiatives, Programs, & Strategies						Management Policy Directives							Element	Pg.	GOP		Description
WATER QUALITY INITITATIVE I							(1) Prohibit the drilling of oil and gas wells, the mining of	CONS		63	Obj. 8	MA...shall comply w/or exceed state reclamaton
Reduce point and nonpoint source pollutant loading to attain	    materials, and dredging for the primary purpose of							and wetlands, WQ&Q, and WH regs.
water quality necessary to restore and maintain healthy and		    obtaining upland fill within the aquatic preserve.				64	Pol. 8.2	Amend mining ordinance to restrict mining in
productive natural systems, protect human health, and to		    									 	    						ecologically unsuitable areas.
attain the highest possible water use classification.																	Pol. 8.3	Continue to enforce mining Ordinance to prohibit
																											mining w/i 25-yr. river floodplains and restrict w/i
1.f Management of Toxic Pollutants																						100-yr. floodplains of rivers and streams.

*  Gypsum fields and other toxic waste sources should be
   managed in such a manner so as to preclude all future adverse
   environmental impacts on Tampa Bay.
*  Previously incurred environmental impacts on Tampa Bay
   resulting from mismanagement of gypsum fields or other
   contaminant sources should be readdressed.



































                                                                                                                            5
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Issue#4: Urbanization/Land Use/Wildlife Habitat[SWIM & AP]
Tampa Bay SWIM Plan									Cockroach Bay Aquatic Preserve					Hillsborough County Comprehensive Plan
Initiatives, Programs, & Strategies							Management Policy Directives						Element	Pg.	GOP		Description
DEVELOPMENT AND PUBLIC USE INITIATIVE 1						(D) Protect and, where possible, enhance threatened and	FLU		13	Obj. A-1	DOs shall not be issued unless development is
Provide sound environmental policies governing land use	   		    endangered species habitat within the aquatic preserve.						compatible, w/physical conditions of land &
which impact the Tampa Bay ecosystem.				   		    Selected Additional Onsite Policies & Procedures:	                                    mitigation of adverse impacts affecting HS&W is
				       					     	 	    1. Require additional authorization and approval for                                  conducted.
1.a. Encourage Appropriate Land Use: at the local, state, and		       activities using submerged lands within the aquatic                                [1]Need to analyze soil conditions, topography, &
federal level, encourage appropriate development or agricultural			 preserve in areas where manatees are present.                                       availability of services & facilities to support
use of land bordering the bay and its tributaries.				       (Additional restrictions may apply.)							       objective.
												(E) Prohibit development activities within the aquatic preserve			Pol. A-1.2	Soil capability analyses for flood hazards, stability,
* Promote limiting or preventing land alterations via incentives		    that adversely impact saltmarshes and other valuable						etc. shall be considered for new development
  such as tax reductions, density tradeoffs, or transfers or		    submerged habitat unless a prior determination has been						[2]Inconsistent w/Chap. 163, F.S., and 9J.
  purchases of developmental rights.  Appropriate policies and		    made by the Board of overriding public importance and						5.006(3)(b)1; policy needs to be strengthened to
  regulations will be developed by the District for consideration		    that no reasonable alternatives exist.								guide/coordinate new development to areas having
  by local governments through the review of comprehensive			    Selected Additional Onsite Policies & Procedures:							suitable soils.
  plans and through preparation of model ordinances.				    1. Identify and develop guidelines for areas and plant			14	Pol. A-3.2	No new, expansion, nor replacement development
* Promote designations of increased buffer zones, setback				 communities in need of restoration.								shall be permitted within NPAs (excepting gov't
  requirements, wildlife corridors, and conservations easements		    2. Discourage developments within the aquatic preserve						development in the public interest w/mitigated
  reviewing local governments comprehensive plans and					 that require restoration or mitigation.								impacts).
  ordinances, and recommending appropriate amendments to			    3. Develop an exotic plant control and removal plan						[2]Remove conditional phrase; need to protect
  accomplish the above objectives.								 following monitoring.											resource, esp. w/o mitigation.
* Promote environmental sound local and state comprehensive			    4. Develop a cumulative impact analysis program for				Pol. A-3.5	LDRs shall address & limit activities having potent,
  plans, inclusive of land use plans for preservations of habitats		 analysing proposed uses within the aquatic preserve.						to contaminate soil, water, or crops.
  and land tracts.									(I) Prohibit the drilling of oil and gas wells, the mining of		18	Obj. A-8	Require new development to mitigate adverse
												    materials, and dredging for the promary purpose of						impacts upon natural, environmental systems as
1.c. Laws and Permitting Review: evaluate adequacy of existing		    obtaining upland fill within the aquatic preserve.						described & required within the CONS&AR and CM
zoning laws, environmental laws and permitting processes as			(J) Prohibit non-water dependent uses of submerged lands						elements of comp. plan.
related to land use and environmental resources.				    within the aquatic preserve except in those cases where the			Pol. A-8.1	Encourage future population growth into existing
												    Board has determined that the project is overwhelmingly in					urbanized areas.
* Evaluate existing local, state, and federal laws concerning		    the public interest and no reasonable alternatives exits.			Pol. A-8.2	Require new development to protect C&P areas as
  land use and the permitting process (inclusive of agricultural		    This prohibition shall include floating residential units, as					defined in the CONS&AQR element.
  uses).											    defined in Section 125.0106(6), F.S.						19	Pol. A-8.9	Utilize public lands for multiple uses (e.g., parks,
* Promote and/or draft revisions of existing local, state and		(K) Prohibit storage of toxic, radioactive, or other hazardous					SWM systems, natural habitats.
  federal laws concerning land use and the permitting process		    materials within the aquatic preserve.  Any hazardous waste			Pol. A-8.13	Preserve wetlands by discouraging use of mitigation
  (inclusive of agricultural uses).  This will be accomplished		    dumps not located within the squatic preserve should be						D&F, and similar development activities by revising
  through the development of model ordinances in addition to		    closed and eliminated.											LDRs.
  specific proposed amendments.							(T) Require, through the efforts of DER and the Southwest						[1]Need policy(ies)protecting ESAs.
* Evaluate, promote, and/or draft improved laws for mitigation		    Florida Water Management District (SWFWMD), the							[2]Need to strengthen policy by allowing
  policies and practices, specifically addressing action to be		    maintenance and upgrading of the water quality of the						development w/o mitigation and D&F.
  followed if unanticipated impacts are detected after the fact;		    estuary and ensure the natural seasonal flow fluctuations of			Pol. A-8.14	Require new roadways, interchanges, or bridge
  mitigation banking should be evaluated as should criteria for		    fresh water into the estuary.  In particular encourage the					designs undergo an environmental assessment.
  monitoring and determining the success of the Project.			    Department of Environmental Regulation and the				34	Pol. C-1.3	Prohibit any solid waste landfills and hazwaste
												    Environmental Regulatory Commission to extend OFW							facilities that may adversely affect R&T.
1.d. Developmental Designs and Practices: promote				    designations to wetlands above the MHW line in areas			47	Obj. C-30	Regs. & perform. stds. shall be developed to protect
environmentally sound projects and practices.					    within or adjacent to the aquatic preserve.								WQ&Q, ESAs, wildlife habitats, rivers and creeks
																											from degradation by development.
* Promote use of exixting natural features and native plant																Pol. C-30.2	Require location & design of public roads & bridges
  species for landscaping and habitat, with special emphasis on																	w/i riverine corridors to minimize impacts adverse to
  use of transportation programs and xeriscaping practices as																	wildlife habitats & vegetative communities.
  well as the establishment of wildlife corridors.																			[2]Need to strengthen policy by replacing
* Promote and/or draft zoning and environmental laws																			"minimize" w/"prevent."
  requiring increased buffer zones, setback requirements,																Pol. C-30.6	Restrict clearing or filling of natural plant
  habitat retention, transplantation, xeriscaping practices, and																	communities w/i 50' of EPC jurisdictional line of
  wildlife corridors and requiring reductions in project																		rivers & creeks designated as River Corridor Overlay
  densities, percent impervious surfaces, use of chemicals, and																	Districts or w/i 100' of MHW line of such rivers &
  use of non-native plant species.  These objectives will be																	creeks, w/mitigation as necessary.
  implemented through the following series of projects: (i)															52	Pol. C-35.2	Forbid all electrical power generating facility
  review local comprehensive plans and land use ordinances																		construction in or thur CBAP & adjoining ESAs not
  and recommend appropriate revisions, (ii)prepare model																		included w/i EPGF boundary, unless waived as
  ordinances, and (iii) review District rules pertaining to land																	rezoning or other conditions.
  use and development practices.
* By examining incentives such as tax reductions, or mitigation
  banking, stimulate redevelopment of existing projects to	
  reduce environmental impacts and improve habitat values.
(continues)                 																							(continues)			 	 	  


Issue#4: Urbanization/Land Use/Wildlife Habitat [SWIM & AP]
Tampa Bay SWIM Plan                                                  Cockroach Bay Aquatic Preserve        	Hillsborough County Comprehensive Plan									
Initiatives, Programs, & Strategies                                  Management Policy Directives     	Element	Pg.	GOP		Description
NATURAL SYSTEM INITIATIVE I                                                                                 FLU         52    Pol. C-35.3 Zoning approval of an electrical power generating
Preserve, enhance, and/or restore upland, riverine, intertidal                                                                            facility adj. to CBAP is contingent upon absence of
and subtidal habitats for 1) biological communities, 2)                                                                                   adverse impact(s) to CBAP and adjoining ESAs.                                                                                                                                                                         
pollution abatement, and 3) aesthetic and recreational                                                                                    [1]Need to define "adverse impact" and rethink
purposes.																						appropriateness of EGPF LU category located	
                                                                                                                                          adjacent to CBAP and w/i CHHA(moot issue-plant
1. Preservation of Existing Habitats: promote the preservation                                                                            moved to Polk Co.).
of relatively pristine or functional habitats already in existence.                                                           Obj.C-37    Identify geographic area by 1993 wherein discharges
                                                                                                                                          are very likely to affect Cockroach Bay.  Once
Promote more stringent local, state, and federal legislation to                                                                           identified, new permitted discharges will be required
protect habitats, stressing consistency among governments.                                                                                to meet or exceed applicable federal, state, regional
Local government regulations will be emphasized initially                                                                                 And local WQ stds. Initiate plan to address WQ &
through District review and advice on developmental                                                                                       habitat restoration within CBAP by end of 1993.
practices permitted by local rules and through preparation of                                                                 Pol. C-37.4 The County shall seek to establish a scientifically
model ordinances.																					defensible protective buffer zone between the
Promote environmentally sound local, regional, and state                                                                                  Cockroach Bay Aquatic Preserve and adjacent upland
comprehensive plans, inclusive of preservation categories.                                                                                habitat land uses to prevent degradation of water
Because of deadlines imposed on local governments by the                                                                                  quality and aquatic vegetative habitats as part of the
state, emphasis will be placed on reviewing and advising                                                                                  Cockroach Bay Overlay District Study called for in
local governments regarding comprehensive plans.                                                                                          Policy C-37.13.
Promote enforcement of existing laws protecting habitats                                                                                  [3] Re.previously designated Pol. 183, need to
through funding incentives for local government                                                                                           readdress FLU designations of county wants a buffer
environmental enforcement and compliance monitoring                                                                                       around CBAP.
programs.                                                                                                                     Pol. C-37.6 By the end of 1992, the County, in conjunction with
Promote enforcement of permit stipulations mandated by                                                                                    the EPC, SWFWMD, DNR, TECO and other
local, state, aid federal agencies (inclusive of compliance                                                                               property owners, will develop a program to identify
monitoring) through funding incentives for local government														drainage system alterations that facilitate water
environmental protection programs.																		quality and habitat value improvements in the
Promote and/or conduct public education programs (i.e.,														Preserve.  The area of Concern shall receive priority
television, radio, newspaper, area magazines, speakers													`	as the County implements its stormwater
bureaus, public schools, civic groups, homeowners'															management basin studies.  The County will utilize a
associations, public/guidebooks and handouts, continuing														variety of mechanisms, such as the use of natural
education courses, etc.); efforts designed to teach people the													plant communities for the treatment of stormwater,
importance of leaving habitats intact.																	detention of stormwater, and purchase of lands by the
Support existing acquistion programs such as Save Our															Environmental Lands Acquisition and Protection
Rivers (SOR) and Conservation and Recreational Lands															Program (ELAPP) for multiple use as wildlife habitat
(CARL).																						and stormwater management.
When appropriate, cooperate with environmental groups and									CM		55	Pol. C-37.8	The County will request the ELAP Program to
local, state, and federal governments and agencies in the														purchase suitable parcels in the Area of Concern and
purchase of lands by identifying areas in need of preservation													incorporate site restoration projects that achieve
and contributing to their purchase.																		water quality and/or habitat benefits to the Preserve.
Encourage and support private donations of funds and land												Obj. 7	Give priority to locating water-dependent/related
parcels, parks, etc., as well as passing of local taxing														LUs along shoreline of CA.	
initiatives.																			Pol. 7.1	Amend the FLU Element & Map to create marine-
Strategically place channel markers and educational signs for													related LU category.
the public and boaters.																		Pol. 7.4	Water-related LUs shall not be developed by
																							dredging & filling wetlands or natural shoreline.
1.b. Augmentation of Existing Habitats: expand and/or exchange								CONS		58	Pol. 4.1	Amend floodplain regs. by 1995 to protect wildlife
existing habitats as replacement for habitat losses throughout the												habitat and natural floodwater assimilation capacity.
bay, tributaries, and associated uplands.																	(3)Is 1992 an appropriate date, esp. since LDRs
																							must be developed 1 yr. after plan adoption?
Expand habitats such as salterns, mud flats, seagrass beds,											68	Pol. 4.2	Continue to prohibit unmitigated encroachment into
salt marshes, mangrove forests, and uplands as well as some														100-yr floodplains.
components of spoil islands by selecting high priority projects													(3) Specify level of mitigation.
and funding cost-effective augmentation designs.													Obj. 14	Protect significant wildlife habitat and prevent any
Use appropriate native plants to supplement habitats offered													further net loss of essential wildlife habitat.
by spoil islands as well as those of subtidal, intertidal,												Pol. 14.5	Develop and implement comprehensive program to
riverine, and adjacent upland areas.																	conserve and protect significant wildlife habitat from
																							development activities.
(continues)																					Pol. 14.6	Restrict development activities which adversely
																							affect area identified and mapped as essential wildlife
																							habitat.
																							(continues)

Issue#4:	Urbanization/Land Use/Wildlife Habitat(SWIM & AP)			Hillsborough County Comprehensive Plan

Tampa Bay SWIM Plan		Management Policy Directives			Element	Pg	GOP		Description
Eradicate non-native or ecologically undesirable vegetation			CONS		70	Pol. 14.7	Consider the effects of development on significant
from subtidal, intertidal, riverine and nearby upland areas and							wildlife habitat and protect wildlife corridors during
replace with appropriate native species.											the LU planning and development review process.
Design and strategically place artificial reefs throughout the					Pol. 16.5&	Protect Conservation/Preservation Areas through
bay and its tributaries.											16.6		LDRs & zoning codes.
Expand oyster beds through additions of culch.							72	Pol. 17.8	Restrict incompatible activities adj. to preserves
																	through LU planning and DR process.
1.c. Restoration of Habitats: restore habitats as replacement for							(3)Inappropriate adjacent LU categories.
habitat losses throughout the bay, tributaries and adjacent					73	Pol. 19.1	Determine construction setbacks and buffer distances
uplands.																for wetlands, floodplains, and WBs and integrate into
																	LDRs & zoning code where necessary.
Restore habitats such as uplands, riverine areas, salt marshes,				74	Pol. 19.2	Encourage development clustering away from ESAs,
mangrove stands, seagrass beds, oyster reefs, and mud flats as							EWH, or EIAMs.
well as restoration utilizing existing spoil islands by selecting					Pol. 19.5	Review and amend LDRs to better address
high priority projects and funding cost-effective restoration							cumulative environmental empacts.
designs.														Pol. 19.8	Identify Resource Protection Areas on the FLU Map
																	series.
																	(8)Need timetable, methodology, mapping of areas.

Issue#5:	Agricultural Activities and Effects on Water Quality and Living Resources (AP)
Tampa Bay SWIM Plan								Cockroach Bay Aquatic Preserve						Hillsborough County Comprehensive Plan
Initiatives, Programs, & Strategies						Management Policy Directives							Element	Pg		GOP			Description
WATER QUALITY INITIATIVE 1							(T)	Require, through the efforts of DER and the Southwest		CM &		49&55		Pol.1.8&2.8		Initiate IA to develop agricultural nutrient monitoring
Reduce point and nonpoint source pollutant loading to attain		Florida Water Management District (SWFWMD), the			CONS							& control program for agricultural LUs adjacent to
water quality necessary to restore and maintain healthy and			maintenance and upgrading of the water quality of the									Tampa Bay; require implementation of BMPs where
productive natural systems, protect human health, and to			estuary and ensure the natural seasonal flow fluctuations of							economically feasible consistent w/SWIM plan.
attain the highest possible water use classification.				fresh water into the estuary.  In particular encourage the								(2)The phrase 'where economically feasible' is
												Department of Environmental Regulation and the							`			conditional; delete phrase.
1.d. Agricultural Stormwater Management						Environmental Regulatory Commission to extend OFW									(3)Re. 1.8, list appropriate reg. agencies. Re: 2.8,
												designations to wetlands above the MHW line in areas									fails to define appropriate reg. agencies or
Develop soil and water conservation plans employing Best			within or adjacent to the aquatic preserve.										'significant nutrient loadings,'BMPs should be used
Management Practices for agricultural, aquacultural, and																				regardless of economic feasibility; activities
silvicultural operations in the Tampa Bay watershed.  Priority																			impacting ESAs should not be permitted.
sub-basins will be identified by the District; conservation													CONS		66		Pol. 11.2		Require use of topsoil BMPs to minimize erosional
plans will be identified by the District; conservation																				soil loss.
by the Soil Conservation Service with assistance from the													FLU		31		Obj. B-9		Protect ESAs from degradation or damage from
district and local soil and water conservation districts.																				agricultural activities by establishing regulatory
Ensure compliance with approved conservation plans through																				activities.
establishment of new positions within the district with																	Pol. B-9.1		Regulate the agricultural use of chemical pesticides.
responsibility for compliance monitoring and enforcement.
Reduce the levels of nutrients and other contaminants in
agricultural stormwater discharges by requiring if feasible,
that the quality of stormwater discharges be no worse that the
state water quality criteria or the existing quality of the
receiving water body, whichever is better.  The feasibility of
implementing this objective will be examined through a
review of federal, state, District, and local rules pertaining to
storm water management.

DEVELOPMENT AND PUBLIC USE INITIATIVE 1
Provide sound environmental policies governing land use
which impact the Tampa Bay ecosystem.

1.a. Encourage Appropriate Land Use: at the local, state, and
federal level, encourage appropriate development or agricultural
use of land bordering the bay and its tributaries.

Promote limiting or preventing land alterations via incentives
such as tax reductions, density tradeoffs, or transfers or
purchases of developmental rights.  Appropriate policies and
regulations will be developed by the District for consideration
by local governments through the review of comprehensive
plans and through preparation of model ordinances.
Promote designations of increased buffer zones, setback
requirements, wildlife corridors, and conservation easements
reviewing local governments comprehensive plans and
ordinances, and recommending appropriate amendments to
accomplish the above objectives.
Promote environmental sound local and state comprehensive
plans, inclusive of land use plans for preservation of habitats
and land tracts.





      Issue#6: Mosquito Control Activities and Effects on Water Quality and Living Resources [AP]
      Tampa Bay SWIM Plan                                 Cockroach Bay Aquatic Preserve                     Hillsborough County Comprehensive Plan
      Initiatives, Programs & Strategies                    Management Policy Directives                      Element   Pg GOP          Description
                                                          (L) Prohibit mosquito control practices within the aquatic
                                                              preserve that require habitat modification or manipUlation
                                                              (i.e., diking, ditching) unless there are no reasonable
                                                              alternatives and failure to conduct such practices would
                                                              result in a threat to public health.
                                                          (M) Limit pesticide and biocide use within the aqUatic  preserve
                                                              to those that are approved by the Environmental Protection
                                                              Agency (USPEA) for wetland and aquatic application.














































                                                                                         10


Issue #7      Destruction/decline of Seagrasses                       
Tampa Bay SWIM Plan                                                   Cockroach Bay Aquatic Preserve                                Hillsborough County Comprehensive Plan
Initiatives, Programs, & Stategies                                    Management Policy Directives                                  Element            Pg            GOP           Description
NATURAL SYSTEMS INITIATIVE 1                                          (D) Protect and, where possible, enhance threatened and       CM                 51           Pol.26         Prohibit dev. activities on submerged land containing
Preserve,enhance, and or restore upland, iverine, intertidal          endangered species habitat within the aquatic preserve                                                       significant seagrass habitat, and seek to restore 
and subtidal habitats for 1) biological communities, 2)               Selected Additional Onsite Policies & Procedures                                                             seagrass coverage. 
pollution abatement, and 3) aesthetic and recreational                1.  Require additional authorization and approval for                                         Pol.28         Initiate interagency agreement w/Tampa Port
purposes.                                                                 activities using submerged lands within the aquatic                                                      Authority to restrict coastal area dredge & fill (D&F)
                                                                          preserve in areas where manatees are present.                                                            to channel maintenance, activities assoc. w/water-
1.a. Preservation of Existing Habitats: premote the preservation          (Additional restrictions may apply.)                                                                     dependent uses & environmental restoration w/
of a relatively pristine or functional habitats already in existence.  (E) Prohibit development activities within the aquatic preserve                                             accompanying criteria.
                                                                           that adversely impact saltmarshes and other valuable                                                                                                                                                                                                                                          
   protect habitats, stressing consistency among governments.              made by the Board of overriding public importance and                                                   (3) Need to refine disposal criteria to emphasize
   Local government regulations will be emphasized initially               that no reasonable alternatives exist.                                                                  more ecological alternatives. 
   through District review and advice on developmental                     Selected Additional Onsite Policies & Procedures:                                                       (7) Inconsistent w/ CRPP Policy 9.45 prohibiting 
   practices permitted by local rules and through preparation of           1.  Identify and develop guidelines for areas and plant                                                 D&F of undisturbed bottom. 
   model ordinances.                                                           communities in need of restoration.                                                                 (9) Inconsistent w/ Port of Tampa Master Plan, 
*  Promote environmentally sound local, regional, and state                2.  Discourage developments within the squatic preserve                     54           Pol.53         which lacks policies protecting further loss of natural                                                                                                                                                                                                                                                                  
   comprehensive plans, inclusive of preservation categories.                  that require restoration or mitigation.                                                             resources.                                                                            
   Because of deadlines imposed on local governments by the                3.  Develop and exotic plant control and removal plan                                                   Oppose destruction or degratation of                       
   state, emphasis will be placed on reviewing and advising                    following monitoring.                               FLU                                             intertidal/subtidal vegetative communities to develop  
   local governments regarding comprehensive plans.                        4.  Develop a cumulative impact analysis program for                                                    new manmade estuarine beaches.          
*  Promote enforcement of existing laws protecting habitats                    analyzing proposed uses within the aquatic preserve.                                                Seek to establish a scientifically defensible buffer 
   through funding incentives for local government                     (I)  Prohibit the drilling of oil and gas wells, the mining of                                              zone between CBAP & adj. upland uses to prevent
   environmental enforcement and compliance monitoring                      materials, and dredging for the primary purpose of                                                     degrad of WQ & aquatic vegetation habitates as part      
   programs.                                                                obtaining upland fill within the equatic preserve.                                                     of the CB Overlay Study in Policy C-37,13.  
*  Promote enforcement of permit stipulations mandated by              (J)  Prohibit non-water dependent uses of submerged lands                                                   (3) Re. previously designated Pol. 183 need to 
   local, state, and federal agencies (inclsive of compliance               within the aquatic preserve except in those case where the                                             readdress FLU designations if county wants a buffer                                                                                                                                                                                                                                                                                                        
   environmental protection programs.                                       Board has determined that the project is overwhelmingly in                                             around CBAP.
*  Promote and/or conduct public education programs (i.e.,                  the public interest and no reasonable alternatives exist.                                              Establish a Cockroach Bay Aquatic Preserve                
   television, radio, newspaper, area magazines, speakers,                  This prohibition shall include floating residential units, as                                          Management Advisory Team (CAPMAT) by 1992,
   bureaus, public schools, civic groups, homeownvers'                      defined in Section 125.0106(6), F.S.                                                                   with members representing the County, the Planning         
   associations, public/guidebooks and handouts, continuing            (M)  Limit pesticide and biocide use within the aquatic preserve                                            Commission, the Environmental Protection
   education courses, etc.): efforts designed to teach people the           to those that are approved by the Environmental Protection                                             Commission, Hillsborough Community College, state 
   importance of leaving habitats intact.                                   Agency (USEPA) for wetland and aquatic application.                                                    and regional agency staff, concerned citizens and            
*  Support existing acquisition programs such as Save Our              (N)  Prohibit the construction of new deepwater ports within the                                            area landowners.  The Management Advisory Team
   Rivers (SOR) and Conservation and Recreational lands                     aquatic preseve boundaries.                                                                            shall (selected policies):        
   (CARL).                                                                                                                                                                         5.  Document the extent and relative health of                     
*  When appropriate, cooperate with environmental groups and                                                                                                                           seagrasses and identify sources of seagrass          
   local, state, and federal governments and agencies in the                                                                                                                           damage before recommending actions to ban         
   purchase of lands by identifying areas in need of preservation                                                                                                                      boating or identify sources of seagrass          
   and contributing to their purchase.                                                                                                                                                 Preserve.             
*  Encourage and support private donations of funds and land                                                                                                                      11.  Assist in the development of public education        
   parcels, parks, etc., as well as passing of local taxing                                                                                                                            maps and work with the appropriate authorities                          
   initiatives.                                                                                                                                                                        in the placement of markers clearly indicating       
*  Strategically place channel markers and educational signs for                                                                                                                       boating channels and potential hazards in   
   the public and boaters.                                                                                                                                                             appropriate locations throughout the Cockroach  
                                                                                                                                                                                       Bay Aquatic Preserve.                
(continues)                                                                                                                                                                       By the end of 1992, the County will work with the 
                                                     																					    appropriate authorities, including the Environmental
                                                                                                                                                                                  Protection Commission and the Florida Department of 
                                                                                                                                                                                  Natural Resources, to implement means of protecting
                                                                                                                                                                                  seagrasses fro propeller dredging throughout the 
                                                                                                                                                                                  Cockroach Bay Aquatic Preserve. 
                                                       							


Issue #7            Destruction/decline of Seagrasses
Tampa Bay SWIM Plan                         Cockroach Bay Aquatic Preserve                                Hillsborough County Comprehensive Plan
Initiative, Programs, & Strategies          Management Policy Directives                                  Element       Pg         GOP         Description 
1.b. Augmentation of Existing Habitats: Expand and or exchange 
existing habitats as replacement for habitat losses throughout the 
bay, tributaries, and associated uplands.

*  Expand habitats such as salterns, muc flats, seagrass beds, 
   salt marshes, mangrove forests, and uplands as well as some 
   components of spoil islands by selecting high priority projects
   and funding cost-effective sugmentation designs. 
*  Use appropriate native plants to supplement habitats offered 
   by spoil islands as well as those of subtidal, intertidal, 
   riverine, and adjacent upland areas. 
*  Eradicate non-native or ecologically undesirable vegetation 
   from subtidal, intertidal, riverine and nearby upland areas and
   replace with appropriate native species. 
*  Design and strategically place artificial reefs throughout the
   bay and its tributaries.
*  Expand oyster beds through additions of culch. 

1.c. Restoration of Habitats: restore habitats as replacement for 
habitat losses throughout the bay, tributaries and adjacent 
uplands.

*  Restore habitats such as uplands, riverine areas, salt marshes, 
   mangrove stands, seagrass beds, oyster reefs,and mud flats as
   well as restoration utilizing existing spoil islands by selecting
   high priority projects and funding cost-effective restoration
   designs. 
*  Restoration in lieu of or supplemental to sea walls.
*  Create littoral shelves via dredging and filling, perhaps in 
   concert with planters boxes and breakwater structures. 
*  Evaluate filling borrow pits within the bay, thereby creating 
   additional euphotic habitat. 

1.d. Dediment Stabilization: address sedimenttological problems
of the Tampa Bay system. 

*  Reduce turbidity via programs 1.a-c coupled with alternative
   technologies (e.g., dredging).

DEVELOPMENT AND PUBLIC USE INITIATIVE 3
Reduce incidental destruction of environmentally sensitive 
areas.

3.a.  Signs and Markers:  Distribution of visual and educational 
aids throughout the bay.

*  Provide marking of small boat channels in problematic or 
   envoronmentally sensitive areas (e.g.,seagrass beds, oyster
   reefs, etc.).
*  Provide educational signs concerning environmentally 
   sensitive areas; signs to be placed at boat ramps, public
   beaches, nature preserves, public parks, valuable habitats such
   as seagrass beds, algae beds, oyster reefs, artificial reefs, 
   restoration Projects, and aresa frequented or inhabited by
   protected species (e.g., osprey, eagles, dolphins, sea turtles, 
   manatees, etc.).      




                                              qM MUM qW2p          Issueft           Dredging and Disposal of Dredge Materials [SWIM & AqPI
            Tampa Bay SWIM Plan                                                    Cockroach Bay Aquatic Preserve                                        Hills rough Count                     Compri
            Initiative0 qrq!2qwvnlq & sqtqmqte2qwes                                         Manaltement Poqlkqy Dqire4qdqlyes                                           Element Pit IGOP                      DeqKrqiqpt8qi
            NATURAL SYSrEqm INqUIATIVE I                                            (E)    Prohibit de el          activities within the aquatic          CM           q51      Pol. q2-q8         Mate intqe
            PI'vep 411118111c andqlor restore upland, rqiverqine, qluterqad0qd              Preserve tqhVtl = impact saltqmanqhes and other                                                         Authority to
            ad sublidaql babqkats for 1) biological coqmmunqdes, 2q)                         valuable submerged habitat unless a prior determination                                              to channel
            pollution abatement, and 3)&edqbdqk and go                  III                has been made by the Board of overriding public                                                      dependent u
            pm                                                                       importance and that no reasonable alternatives exist.
                                                                                                                                                                                               scooqmpqaqnyqi
                                                                                   Selected Additional Onsite policies & Procedures:                                                           13q) Need to
            L Preservation of Existing Habitats: promote the preservation         I .    Identify and develop, guidelines for areas and plant                                                 more CCOI004
            of relatively pristine or functional habitats already in existence.           communities in need of restoration.                                                                  171 liscon
                                                                                   2.     Discourage developments within the aquatic preserve that                                             D&F of und
              Promote mom stringent local, state, and federal legislation to              re 0
                                                                                            uim restoration or mitigation.                                                                    [91 Incon
                      habitats, stressing consistency among governments.           3.     Develop an exotic plant control and removal plan                                                     which lac04qb
                      ovemment regulations will be emphasized initially                   following monitoring.                                                                                resources.
              dEgi District review and advice on developmental                     4.     Develop a cumulative impact analysis program for
              practices permitted by local rules and through preparation of               analyzing proposed uses within the aquatic preserve.
              model ordinances.                                                    (1)    Prohibit the drillin of oil and gas wells. the mining of
                                                                                          materials, d d        in4     the primary purpose of
            I  Restoration of Habitats: restore habitats as replacement for            obtaining     and        tt the aquatic preserve.
            habitat losses throughout the bay, tributaries and adjacent            (N)    Prohibit the cons ctqion of 0Tw deepwater ports within
            uplands.                                                                      the aquatic preserve           nes.
                                                                                   (0)    4M0Ent any activity commercial or recreaiond that
             Restore habitats such as uplands, rivaine areas, salt marshes,              might impact the integrity of hard bottom communifies
              mangrove stans. scaprass beds, oyster reds, and mud flats as        (Q)    withill the aquatic preserve.
              wen as m5toration utilizing existing spoil islands by selecting             Manage   spoil islands within the aquatic preserve as bird
              high priority projects and funding cost-effective restoration               rookeries and wildlife habitat areas.
              designs.                                                             8M      Require, through the efforts of DER and the Southwest
             Restoration in lieu of or supplemental to sea walls.                        Florida Water Management District (SWF;WM4qD), the
             Create littoral shelves via dredging and filling, perhaps in                maintenance and upgrading of the water quality of the
              COOM with planters boxes and breakwater structures.                       estuary and ensure the natural seasonal flow fluctuations
             Evaluate filling borrow pits within the bay, thereby creating               of fresh water into the estuary. In particular encourage the
              additional euphotic habitaL                                                 Department of Environmental Regulation and the
                                                                                          Environmental Regulatory Commission to extend OFW
            L Marinas: evaluate environmental impacts of marinas within                 designations to wetlands above the 8MHW line in am"
            Tampa Bay and its tributaries.                                                within or adjacent to the aquatic preserve.
                                                                                   (W)    Prohibit Marinas and associated construction activities in
              Evaluate environmental impacts of existing marinas,                         Resource Protection Areas I and 2.
              including impacts on manatees and other protected species.
              Develop a marina 6" plan.
              Evl te d           I unproved marina designs and facilities,
              sp=y =dqmising problems of fuel storage. sewage.
              bilge pumpina. solid waste. dredgiqm. and related problems. I




















                                                                                                                             13






         ssue#9: Wedands [SWIM & API
         Tampa Bay SWIM Plan                                        Cockroach Bay Aquatic Preserve                             Hills         uqgh Count          Comp8
         Initiatives, qt0qmqm0q% & Strateales                             Management Poql2qk-y Directives                               Element P2 IGOP                  Descrqipt8qiqa
         NATURAL SYSTEM INITIATIVE I                                (D)  Protect and, where possible, enhance threatened qi-uqW- C0qM &      54qM.56 OqbJ. 2 0q& 3     -go- -net loss
         Preserve, enhance, and/or restwe upland, rqiverbse,           hatertq1qdaql   endangered        habitat within The aquatic preserve. CONS                            mandated qiqn
         and suddal habitats for 1) biological communities, 2)          Selected Ail      Onilete Policies & Procedures:                                       acreage.
         pollution abatement, and 3) aeeqdc and recreadonal             1. Require additional authorization and approval for                                   q11q] Re: Ob8qj.
         pe                                                             activitics using submerged lands within the aquatic                               lacks a 0qWc
                                                                              preserve in areas where manatees am present.                                      q(21 qIq-qJw4qk
         Lit. Preservation of Existing Habitats: promote thepreservation      (Additional restrictions may apply.)                                              q[3q1 Re: Ob8qj.
         of relatively pristine or functional habitats already in existence. (E) Prohibit development activities within the aquatic preserveqMq51 qPOqL q2-q1         Continue qcq(qX
                                                                         that adversely impact saqhmarshes and other valuable                                    rohibit
                                                                                                                                                                     11
          Prote more stringent local, state, and federal legislation to submerged habitat unless a prior determination has been                             31 Deg
           protect habitats, stressing consistency among governments.    made by the Board of overriding public importance and                  Pbl. 2.2        Mbqitchar
           In government regulations will be emphasized initially       that no reasonable alternatives exist.                                                 shorelines
           through District review and advice on developmental           Selected Additional Onsqite Policies & Procedures:                                      overriding pi
           practices permitted by local rules and through preparation of 1.   Identify and develop guidelines for areas and plant                               [I] Need to
           model ordinances.                                                  communities in need of restoration.                                               underwken t
          Promote environmentally sound local. regionaqL and aide        2.   Discourage developments within the aquatic preserve               Pol. 2-4        Request mg.
           comprehensive plans, inclusive of preservation categories.         that require restoration or mitigation.                                           coordinate00qA
           Because of deadlin .5 uin iosed on local governments by the   3.   Develop an exotic plant control and removal plan                                  131 Need go
                           
           t, emphasis will be 0qJaced on reviewing and advising             following monitoring.                                             Pol. qZ5         Initiate 1A to
           local governments regarding comprehensive plans.              4.   Develop a cumulative impact analysis program for                                  rivers & sqt
           Promote enforcement of existing laws protecting habitats           analyzing proposed uses within the aquatic preserve.              Pol. 17         Amend LDR
           through funding incentives for local government          (F)  Prohibit the trimming and/or removal of sn marsh                                      upland plant
           environmental enforcement and compliance monitoring           vegetation and other natural shoreline vegetation within the                           wetlands.
           programs.                                                     a tic preserve, except when necessitated by the pursuit                                11q1'neceqsqsa
         ï¿½ Promote enforcement of permit stipulations mandated by        O4qrqlq:gsquqy authorized projects and local protection                                      [31 What is
           local, state, and federal agencies (inclusive of compliance   ordinances.                                                                            beconm e32qf32qfqec
           monitoring) through funding incentives for local government (1) Prohibit th drillin of oil and gas wells. the mining of              Pol. 2.8        Initi2te intera
           environmental proteAiien p. nuns.                             mater i0qsi, 4qQ d0q2i2q&q4 tot the primary Purpose of                                          Authority to
          Promote and/or conduct 4qPqlic education programs (ie.,        obtaining upland fill within the aquatic preserve.                                     to channel qiqn
           television. radio. newspaper, age& magazines, speakers   (q7)  Require, through the efforts of DER and the Southwest                                  dependentu
           bureaus, public schools, civic groups. homeowners-            Florida Water Management District (SWFWMD), the                                        accompanyin
           associations, public/guidebooks and handouts, continuing      maintenance and upgrading o(the water quality of the                                   q13q1 Need to
           education courses, etc.qY. efforts designed to teach people the estuary and ensure the natural seasonal flow fluctuations of                          more ecolo0qg
                                                                                                        
           importance of leaving habitats intact.                        fresh water into 0qf0qt estuary. In TU    encourge the                                     [7q1 Incoqns
          Support existing   . tqi          s such as Save Our           Department of Environmental Regulation and the                                         D&Fof
                          
           Rivers (SOR) and Conservation and Recreational Lmds           Environmental Regulatory Commission to extend OFW                                      q1q9q1 Incoqn
           (CARL).                                                       desi4qrations to wetlands above the MHW line in areas                                    which lacqi0qlqy
          When appropriate, cooperate with envimn t&ql groiqr and        within or adjacent to the aquatic preserve.                                            resources.
           local, state, am federal governments and agen in un                                                                            4     Pol. 5.3        Oppose des
           purchase of lands by identifying areas in need of preservation                                                                                       intertqiqdal/su
           and contributing to their purchase.                                                                                                                  new manrna0q
          Encourage and support private donations of funds and land                                                           CONS      57     Pol. 3.1        Continue to
           parcels, parks, etc., greql markers and educational signs for                                                                                       131 Define
           the public and boaters.                                                                                                              Pol. 3.2        Prohibit
                                                                                                                                                                stream couqn
         Lb Augmentation of Existing Habitats: expand and/or exchange
         existing habitats as replacement for habitat losses throughout the                                                                     Pol. 3.3
         bay, tributaries, and associated uplands.                                                                                                              wetlands.
          Expand habitats such as saltems, mud flats, seaqgran beds,                                                                                            [31 Address I
                                                                                                                                                                encroach2qme
           salt marshes, mangrove forests, and uplands as well as same                                                                          PDL 3.4         Request a
           coCents of sqpoqd islands by selecting high priority projects                                                                                        develop unif
           and   (ding cost-effective augmentation designs.                                                                                                     A restoration
          Use roqpriate native plants to supplement habitats offered
           by spoil islands well as those of subtidal, intertidal,
           rived and adjacent upland areas.

         (continues)
                                                                                                                                                             I (continues)

                                                                                                       14
 






             Issue#9: Weqdands [SWIM & AP]
             Tampa Bay SWIM Plan                                                         CockrqWch Bay Aquatic Preserve                                                Hillsborough Count Compri
             IItldveq& pr4qMUqM0q& 6q& Striste2qges                                              MIM4qNqLe-Ment Polk.q1 DIrectives                                                Element PK iG2qOP
               Eradicate nou-nstqive or ecoqlo6qocally undesirable vegetation                                                                                                                                      Descriptle
               from guqbqdqd&qt intertidal, riverme and nearby upland am" and                                                                                             CONS         57       Pol. 3.8           Initiate IA qtqj
               replace with
                                            native species.                                                                                                                                                    0P4d
               Ensign d uvqfqtglq!c&quqy place artificial web throughout the                                                                                                                                                  S.
               bay n4qAu tributanes.                                                                                                                                                                            19) Revise
               Expand oyster beds through additiong of culch.                                                                                                                                                  filecessmy
                                                                                                                                                                                                               IaMw Bay.
             I  Restoration Of Habitats: Mature habitats as replacement for                                                                                                                                 91 Potable
             habitat losses throughout the bay, tributaries and adjacent                                                                                                                                       addressing
             uplands.                                                                                                                                                                                          protect Tam
                                                                                                                                                                                      8     Pol. 4.1           Amend floo
               Restore habitats such a uplands.fiverine areas, salt marshes.                                                                                                                                 natural flo(x
               mangmVe stands. seagrass beds, oyster reefs, and mud flats as                                                                                                                                   1311992
               well as restoration utilizing existing spoil islands by selecting                                                                                                                               nwt be dev
               high priority projects and funding cost-effective restoration                                                                                                                Pol. 4.2           Continue to
               designs.                                                                                                                                                                                        100 ff flood
                                                                                                                                                                                                                      r
              Restoration in lieu of or supplemental to sea wa8qW.                                                                                                                                              [31 4q12q32q6 0q1
              Create littoral shelves via dredging and filling. perhaps in                                                                                                        64       qPol. q9.3           Continue to
               concert with planters boxes and breakwater structures.                                                                                                                                          mining wA
              Evaluate filling borrow pits within the bay. thereby creating                                                                                                                                   I 0q0-yr flood
               additional euphotic habitat.                                                                                                                           FLU          19       Obj. A-8           Require new
                                                                                                                                                                                                               impacts u4qpqo
                                                                                                                                                                                                               described &
                                                                                                                                                                                                               elements of
                                                                                                                                                                                            Pot A-8.2          Re_qquim new
                                                                                                                                                                                                               defined in
                                                                                                                                                                                            PoqL A-8.4          Give densit
                                                                                                                                                                                                               enviroomqenqi
                                                                                                                                                                                            POL A-q8.13         Preserve we
                                                                                                                                                                                                               DF, and
                                                                                                                                                                                                               11) Need pqo
                                                                                                                                                                                      2     POL C-22,2         Prohibit
                                                                                                                                                                                                               hydric ham
                                                                                                                                                                                            Pol. C-213         Restrict clea
                                                                                                                                                                                                               communitiqe
                                                                                                                                                                                                               line or w/i I
                                                                                                                                                                      TRANS 58              PbqL 1.7.3.        Tmnqqxqmtqaqt4qi
                                                                                                                                                                                                               mitigate a0qdqv
                                                                                                                                                                                                               ESA9.
                                                                                                                                                                      SIMA         23       PoqL 24qm             Encourage n
                                                                                                                                                                                                               lakes, wt4qd
                                                                                                                                                                                                               conveyance
                                                                                                                                                                                                               18]Encoqur


















                                                                                                                                       15
 





           Issue#10: Development and Damming of Creeks and Rivers [SWIM& API
           Tampa By SWIM Plan                                                         Cockroach Bay Aquatic Preserve                                              HUM ugh Count                            Compre
           tieq ft0qf0qf0qi6qnqm q& ï¿½6qQqWeManagement Polky Directives                                                 Element P9 GOP                           Dewriptqloqi
           NATURAL SYSTEM INITIATIVE 1                                                 (D) Protect and, where possible. enhance threatened and                     CONS         57       Pbl. 3.8           Initiate an ism
           Preserve, valiance, asidq/or restore upland, riverqloe, qlnqkrqddsqd                     endangered 1 eci habitat within die aquatic preserve.                                                         ensure that
                                                                                                            
           and slddal baqbqitats for 1) blo8qWcoqd comqmusiqlqdes, 2)                              Selected Additional Onsite Policies & Procedures:                                                             scientifically
           poludo abatement, and 3) sesibeqdc sod an domal                                   1.    Require additional authorization and approval for                                                      natural optim,
           ppm                                                                                  activities using submerged lands within the aquatic                                                     wetlands.
                                                                                                     in areas where manatees am present.                                     8     Pol. 4.1           Amend flood
           I. Preservation of Existing Habitats- promote thejpreservation                         (Additional restrictions may a
                                                                                                                                                                                                        natural flood
           of relatively pristine or functional habitats already in existence.         (E)    Prohibit development activities within the aquatic piresem                                                    131 Is 1992 a
                                                                                              that adversely impact sahmanqhes and other valuable                                                            nuist be dev.
             Ormte more stringent local, state, and federal legislation to                  submerged habiua unless a prior detemusudiqm has him                                        Pot. 4.2           Continue to
              protect habitats                                                                                                                                                                              100-yrflood
                                stressing consistency among governments.                     made by the Board of overriding public importance and
              Load government regulations will be emphasized initially                        that no reasonable alternatives exist.                                                                        31 Specify It
              through District review and advice an developmental                             Selected Additional Onsite Policies & Procedures:                                 64       Pal. 8.3           Continue to
              practices permitted by local rules and through preparation of                   I .   Identify and develop guidelines for areas and plant                                                     mining w2A 0q2
              model ordinances.                                                                     communities in need of restoration.                                                                     100-yr flood
             Promote eirrvironmentally sound locaL regional, and state                       2.    Discourage developments within the aquatic preserve FLU                     34       Obi. C-2           Preserve n
              comprehensive plans, inclusive of preservation categories.                            that require restoration or mitigation.                                                                 hardening s4qb
              Because of deadlin i esed on local govemments by the                            3.    Develop an exotic plant control and removal plan                                     PbqL C-2.1          Prohibit sho
              state. emphasis wiU0qUqnqIsceqd on reviewing and advising                                 following monitoring.                                                                POL C-2.2          Publicly-own
              local govenn. ents rega          com rensive plans.                            4.    Develop a cumulative impact analysis program for                                                        by vegetating
                                                      
                                                      
             Promote enforcement oMqatinqg                 ,protecting habitats                      analyzin               uses within the aquatic pmaerve.                                                 prevent CFO
              through funding incentives for local government                          (1)    Prohibit the d oil and gas wells, the mining of                                      DqL C-2.3          Natural rive
              environmental enforcement and compliance monitoring                             materials, and for the primary purpose of                                                               preserved.
                                                                                              obtaining upland fill within the aquatic preserve.                                                            [21 Need to
             foroemlsit of permit StipUlAtiOl mandated by                   (N)    Prohibit the construction of new deepwater ports within the                       43       Pol. C-24.2        Appropriate
              local, state, and federal agencies (inclusive of compliance                     preserve boundaries.                                                                                     (re. LMR) sh
              monitoring) through funding incentives for local government              (1)    Require, through the efforts of DER and the Southwest                                                         the Hills. Cot
              nviroitental protection tuns.                                                Florida Water Management District (SWFWMD), the                                                   C-30        Regs. 0q& qpeqr4qb
             Promote andof conduct public education programs (ie..                          maintenance and upgrading of the water quality of the                                                         protect 0qW24qQ00q&
              television, radio. newspaper, area magazines. speakers                          estuary and ensure the natural seasonal flow fluctuations                                                   cqmeks from
              bureaus, public schools, civic groups, liceneowners                            fresh water into die estuary. In particular encourage the                                  Pol. C-30.2        Require locaqt
              associations, public/guidebooks and handouts. continuing                        Department of Environmental Regulation and the                                                                wA riverine
              education courses, etc.qy, efforts designed to teach people the                  Environmental Regulatory Commission to extend 0F                                                            wildlife habit
              importance of leaving habitats intsm                                            desi0qrations to wetlands above the MHW line in areas                                                           [21 Need to s
             Support existing aquisition programs such as Save Our                           within or adjacent to the aquatic preserve.                                                                   MiRLnize Wq
              Rivers (SOR) and           ervation and Recreational I.Ands                                                                                                                PoL C30.6         Restrict c4qlqeqs
              (CARL).                                                                                                                                                                                       communities
             When appropriate, cooperate with envonmental g                       and                                                                                                                    rivers 4q& cqrqeqaql
              locaL state, and federal govemments mid agencies m                                                                                                                                           Districts or
              purchase of lands by identifying areas in need of preservation                                                                                                                                creeks. w/
              and contributing to qtheir purchase.
             Encourage and support private donations of funds and land
              parcels. puts. etc.. as well as passing of local taxing
              initiatives.
             Stt call place channel markets and educational signs for
              the Vqlqic and boaters.
           I.b. Augmentation of Existing Habitats: expaqm and/or exchange
           bay. tAutaries, and associated uplands.         throughout the
              Expand habitats such as saltem. mud flats, seagass beds,
              d marshes, mangrove forests, and uplands as well as some
              ompneqws of spoil islands by selecting high priority projects
              and funding cost-effective augmentation designs.
              Use                          MIX to           ent habitats o cred
                             ate native ants to
              by        is     a as well as     to    subfidal, intertida
              riv            adjacent        d areas.
              Eadii      non-native or                   undesirable vegetation
              from        i    inerqd      riverine and nearby upland areas
              and replace with appropriate native species.

         I (continues)
        M 8qo2qw                                                                                                WAS 2qM
 





           ssue#10: Development and Damming of                               ks and Rivers [SWIM & AP)
           Tampa Bay SWIM Plan                                           Cockroach Bay Aquatic Preserve                                 Hillsborough County Comprehensive
           IItladves.  & Strateides                                  Manalement Paqlky Direfives                                    Element pg     GOP             Description
            Design 4 strategically place artificial reefs throuhout the
             bay and its tributaries.
            Expand oyster beds through additions of culcqh.
           I  Restoration of Habitats: mom habitats as replacement for
           haWtalosses throughout the bay, tributaries and IqjqWqM
           uplands.
            Restore habiLsU such as uplands, Tiverine arm. gaqlt marshes,
             mangrove stsnh, , pyster reds, and mud f1sts as
             well as restorstion uduzing cuumg spoil islands by selecting
             high priority prou and funding cost-effective restoration
             designs.
            Restoration in lieu of or. supplemend to am walls.
             Crse qlittoral shelves via dndqging and filling, perhaps in
             concert with planters boxes and breakwater structures.
            Evaluate filling borrow piu within the bay, thereby creating
             additional eq
                         otic habitat








































                                                                                                               17
 





           Issue#1 1: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lake of Information re: Decline (SWIM & AP)
           Tampa Bay SWIM Plan                                                         Cockroach Bay Aquatic Preserve                                      Hillsborough County Comprehensive Plan
          Initiatives, Programs & Strategies                                           Management Policy Directivies                                      Element       Pg       GOP             Description
           NATURAL SYSTEM INITIATIVE I                                                (E) Prohibit development activities within the aquatic preserve      CM           52       Obj. 3            Maintain & enhance abundance & diversity of living
           Preserve, enhance, and/or upland, riverine, intertidal                          that adversely impact saltmarshes and other valuable                                                      marine resource in Tamp Bay.
           and subtidal habitats for 1) biological communities, 2)                         intertidal, submerged. and emergent habitats unless a prior                                            (2) The phrases where (environmentaly & 
           pollution abatement and 3) aesthetic and recreational                           determination has been made by the Board of overriding                                                   economically
           purposes                                                                        public importance and that no reasonable alternatives exist.                                             remove phrase.
                                                                                             Selected Additional Onsite Policies & Procedures:                                    Pol. 3.2          Coordinate with and support appropriate reg.
           l.a. Preservation of Existing Habitats: promote the Preservation                  1. Identify and develop guidelines for areas and plant                                                  agencies to ensure land developments w/i the CA
           of relatively pristine or functional habitats already in existence.                      communities in need of restoration.                                                              discharging into receiving waters flowing inot 
                                                                                             2. Discourage developments within the aquatic preserve                                                 'conditionaly approv' or approv.' DNR shellfish
           * Promote more stringent local, state and federal legislation to                     that require restoration or mitigation.                                                              harvesting area demonstrate nondegradation of WQ
             protect habitats, stressing consistency among governments.                          3.     Develop an exotic plant control and removal plan                                             for all applicable discharges.
             Local government regulations will be emphasized initially                              following monitoring.                                                                          (3) COM (re: previously disignated CM Pol. 3.2):
             through District review and advice an developmental                             4.     Develop a cumulative impact analysis program for                                                Any discharges of sewer effuent will prompt DNR to 
             practices permitted by local rules and through preparation of                          analyzing proposed uses within the aquatic preserve.                                             place a protective buffer; discharges would have to
             model ordinances.                                                        (G)    Provide and actively encourage research and educational                                                be removed in order to upgrade area
           * Promote environmentally sound local, regional, and state                        opportunities for scientists and other interested researchers                           Pol. 3.3          Request Marine Fisheries Comm. to restrict fishing
             comprehensive plans,inclusive of preservation categories.                       within the framework of a planned research program in the                                                 where necessary to prevent depletion of resource.
             Because of deadlines imposed on local governments by the                        aquatic preserve.                                              FLU                      Pol. C-37.2       Work with DNR,EPC,and county Public Heatlh
             state, emphasis will b                reviewing and advising             (0)    Prohibit any activity commerical or recreational that might                                       Unit to identify source of pollution responsibe for          local governments regarding comprehensive plans.                                impact the integrity of hard bottom communities within the                                                   closure of CB
           * Promote enforcement of existing laws protecting habitats                        aquatic preserve.                                                                                        closure of CBAP to public shellfishing, and develop
             through funding incentives for local govermment                           (P)    Insure that artificial mef construction does not adversely                                        program to identify means of eliminating such
             environmental enforcement and compliance monitoring                             impact environmentally fragile areas within the aquatic                                                   sources.
             programs.                                                                       preserve and that the construction will maintain the
           * Promote enforcement of permit stipulations mandated by                          essentially natural condition while enhancing the quality
             local, state. and federal agencies (inclusive of compliance                     and utility of the preserve.
             monitoring) through funding incentives for local government              (T)     Require, through the efforts of DER and the Southwest
             environmental protection programs.                                              Rorida Water Management District (SWFWMD), the
           * Promote and/or conduct public education programs (i.e..                         maintenance and upgrading of the water quality of the
             television. radio, newspaper, area magazines. speakers                          estuary and ensure the natural seasonal flow fluctuations of
             bureaus. public schools, civic groups. homeowners'                              fresh water into the estuary. In particular encourage the
             associations, public/guidebooks and handouts, continuing                        Department of Environmental Regulation and the
             education courses, etc.); efforts designed to teach people the                  Environmental Regulatory Commission to extend OFW
             importance of leaving habitats intact                                           designations to wetlands above die MHW line in areas
           * Support existing acquisition programs such as Save Our                          within or adjacent to the aquatic preserve.
             River (SOR) and Conservation and Recreational Lands                    (X)    Identify and document any problems caused by fishing,
             (CARL).                                                                         shellfishing, and collecting activities and report than to the
             When appropriate. cooperate with environmental groups and                      Marine Fisheries Commission.
             local, state, and federal governments and agencies in the              (Z)    Recognize that successful shellfish cultum and harvesting
             purchase of lands by identifying areas in need of preservation                  efforts in the aquatic preserve am dependent upon
             and contributing to their purchase.                                             Pollution prevention and abatement and careful
             Encourage and support private donations of funds and land                       comprehensive planning.
             parcels,parks,etc., as well as passing of local taxing
             initiatives.
             Strategically place channel markers and educational signs for
             the public and boaters.
           1.b. Augmentation of Existing Habitats: expand and/or exchange
             existing habitats as replacement for habitat losses throughout the
             bay, tributaries, and associated uplands.

           * Expand habitats such as salterns, mud flats, seagrass beds beds,
             salt marshes, mangrove forests, and uplands as well as same
             components of spoil islands by selecting high priority projects
             and funding cost-effective augmentation designs.
           * Use appropriate native plants to supplement habitat offered
             by spoil island as well as those of subtidal, intertidal,
             riverine, and adjacent upland areas.
           * Eradicate non-native or ecologically undesirable vegetation
             from subtidal, intertidaL riverine and nearby upland areas and
             replace with appropriate native species.

         (continues)
 


            Issue#11: Decline in Commercial& Recreational Finfish and Shellfish Landings and Lack of Information re: Decline[SWIM & AP)
            Tampa Bay SWIM Plan                                                   Cockroach Bay Aquatic Preserve                                         Hillsborough  Count Comprehensive Plan
            Initiatives, Programs & Strategies                                    Management Policy Directives                                            Element       Pg    GOP            Description
            * Design and strategically place  place artificial reds throughout the
              bay and its tributaties
             Expand oyster beds through additions of culch.
            
            1.c. Restoration of Habitats: restore habitats as replacement for
            habitat losses throughout the bay, tributaries and adjacent
            uplands.
            * Restore habitats such as uplands. riverine areas, salt marshes.
              mangrove stands. seagrass beds, oyster reefs, end mud flats as
              well as restoration utilizing existing spoil islands by selecting
              high priority projects and funding cost-effective restoration
              designs.
             Restoration in lieu of or supplemental to seawalls.
             Create littoral shelves via dredging and filling, perhaps in
              concert with planters boxes and breakwater structures.
             Evaluate filling borrow pits within the bay, thereby creating
              additional euphotic habitat
            I.e. Monitoring and Research: establish monitoring/research
            studies associated with strategies of programs I.".
              Evaluate success of restoration and preservation projects
              inclusive of projects begun or completed prior to SWIM
              endeavors through aerial habitat mapping and coordinated
              ground based studies,
              Develop additional databases useful for design and
              implementation of future projects.
              Promote and/or fund research concerning habitat restoration
              and functionality (e.g.. wildlife utilization of submerged end
              intertidal habitat for gamefish, commercial species, and other
              wildlife.

            2.a. Optimize Habitats. performance of programs 1.a-e  to
            optimize habitats for use by botanical invertebrate, and
            vertebrate populations and communities.
            2.b. Research: promote and/or fund research which provides
            information important to the development and implementation
            of ecologically sound wildlife management programs for the
            Tampa Bay ecosystem.
            * Address systems ecology questions, inclusive of ecosystem
              modeling dealing with carbon flow/energy budgets,
              secondary production. food webs, standing crops, etc. This
              strategy will commence by defining the. framework of a
              comprehensive ecosystem model and culminate in the
              application of the model decision-making on bay
              management issues.
            * Establish data base concerning a wildlife inventory for
              subtidal, intertidal and nearby upland communities; inventory
              should include distribution and abundance of species
              throughout ecosystem.
            * Conduct biennial, quantitative serical mappling of  mapping of subtidal,
              intertidal, and nearby upland habitats.
              Evaluate existing commercial and sport fishing practices to
              determine effects, if any, on habitat, population, and/or
              community structures.

         (continues)


                                                                                                                             19
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          Issue#1 1: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline (SWIM & AP)
          Tampa Bay SWIM Plan                                                  Cockroach Bay Aquatic Preserve                           Hillsborough Count Comprehensive Plan
          Initiative& Programs, & Strategies                                  Management Policy Directives                              Element Pg GOP                     Description
          NATURAL SYSTEM INMATIVE 2
          Preserve, enhance, and/or restore plant and animal
          populations that use the bay,tributaries, and or associated
          uplands for part or al of their Life cycles.
          2a. Optimize Habitats: performance of programs 1.a-e to
          optimize habitats for use by botanical. invertebrate. and
          vertebrate populations and communities.
          2.b. Research:, promote and/or fund research which provides
          information important to the development and implementation
          of ecologically sound wildlife management programs for the
          Tampa Bay ecosystem.

          *  Address systems ecology questions. inclusive of ecosystem
             modeling dealing with carbon flow/energy budgets,
             secondary production, food webs, standing crops. etc. This
             strategy win commence by defining the framework of a
             comprehensive ecosystem model and culminate in the
             application of the model decision-making on bay
             management issues.
          ï¿½  Establish data base concerning a wildlife inventory for
             subtidal. intertidal and nearby upland communities; inventory
             should include distribution and abundance of species
             throughout ecosystem.
          *  Conduct biennial. quantitative serial mapping of subtidal,
             intertidal, and nearby upland and habitats.
          ï¿½  Evaluate existing commercial and sport fishing practices to
             determine effects, if any, on habitat. population, and/or
             community structures.

          2.c. Wildlife Management Programs: Promote and/or draft
          wildlife management programs to protect populations and
          communities associated with the bay inclusive of threatened or
          endangered species important to commercial and sport
          fishermen. Programs must include local, mate. and federal
          legislation and enforcement necessary to accomplish
          management goals.

          BAY MANAGEMENT INITIATIVE 2
          Promote the adoption and enforcement of laws and
          regulation necessary to Implement the Natural Systems,
          Water Quality and Land Use Initiative of the Plan.
          2.a. Review of Rules and Regulations: Reviews  adequacy of
          mks and regulations of the previously described governmental
          jurisdictions to carry out die Plan's programs. This will include
          a review of the sufficiency of enforcement programs of pertinent
          regulatory agencies and be inclusive of all applicable fish and 
          wildlife laws.

        (continues)









                                                                                                                       20

                                                                                                               Moo
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          Issue#l1: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline(SWIM & AP)                                     
          Tampa Bay SWIM Plan                                          Cockroach Bay Aquatic Preserve.                               Hillsborough County Comprehensive Plan
          Initiatives, Programs, & Strategies                          Management Policy Directives                                   Element Pg GOP     Description
          2.b. Commercial and Sport Fishing Regulations.
          
          * Enhance fishery productivity by developing and 
            implementing biologically defensible fishing regulations,
            stocking and habitat creation/restoration Projects.
          * Implement protective regulations and management strategies
            for fisheries on the decline in Tampa Bay
          * Improve the enforcement of fishing regulations by
            consolidating and standardizing all special acts and local laws
            related to fishing activities.
          2.c. Enforcement: Unify and consolidate an 'special acts and
            local laws related to marine resource management and work to
            ensure adequate funding and staffing levels for increased
            monitoring and enforcement capabilities for Tampa Bay.










































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          Issue#12: Replacement of Native Vegetation with Exotic Plants [SWIM &
          Tampa Bay SWIM Plan                                                     Cockroach Bay Aquatic Preserve                                         Hillsborough County Comprehensive plan
          Initiatives. PPrograms, & Strategies                                         Management Policy Directives                                              Element Pg        GOP               Description
          NATURAL SYYSTEM INITIATIVE I                                             (D)     Ptotect and, where possible, enhance threatened and             ONS        70           Obj 16          Continue
          Preserve enchance , and or restore upland , riverine Intertidal                          endangered species habitats: preserve.                                               exotic nuisance Species and incorporrate into
          and subtidal habitats for 1) biological communities, 2)                    (E)     Prohibit development activities within  the aquatic                                                         ement
          pollution abatement, and 3) aesthetic and recreational                                       that adversely impact saltmarshes and other                                                  Tana
                                                                                                                                                                             Pol. 16.1 Assist DACS, SWFWMD, and DNR in eliminating       
          purposes.                                                                          valuable submerged habitats. unless a prior determination                                            exotic nuisance plant species.
                                                                                                                                                                                               ex
                                                                                          has been made by the Board of overriding public                               71      pol . 16.8         Reduce exotic nuisance plants on county owned or
          I b. Augmentation of Existing Habitats: expand and/or exchange                  importance and that no reasonable alternative exist.                                                  leased natural preserved lands.
          existing habitats as replacement for habitat losses throughout                  Selected Additional Onsite policies & Procedures:              FLU                 Pol. C-37.5       Establish a Cockroach Bay Aquatic preserve
          bay, tributaries, and associated uplands.                                       1.  Identify and develop guidelines for areas and plant                                              Management Advisory Team (CAPMAT) by 1992,
                                                                                              communities in need of restoration.                                                              with members representing the county, the Planning
             Eradicate non-native or ecologically undesirable vegetation                  2.  Discourage developments within die aquatic preserve                                              Commission, trhe environmental Protection
             from subtidal, intertidal, rivenne and nearby upland am&% and                    that require restoration or mitigation.                                                          Commission, Hillsborough community College, State
             replace with appropriate native species.                                     3.  Develop an exotic plant control and removal plan                                                 and regional agency staff, concerned citizen and
                                                                                              following monitoring.                                                                            area landowners. the Management Advisory Team
                                                                                          4.  Develop a cumulative impact analysis program for                                                 shall (selected policies)
                                                                                              analyzing proposed uses within the aquatic preserve.                                              12.  In conjunction with the Southwest Florida
                                                                                  (M)     Limit pesticide and biocide use within the aquatic                                                        Water management District (SWFWMD), the 
                                                                                          preserve to those that am a     ved     the Environmental                                                 Florida Department of Natural Resources
                                                                                          Protection Agency (USEPA)for weland and aquatic                                                         (DNR),the Tampa electric Company (TECO)
                                                                                          application.                                                                                              and other property owners, initiate a program to
                                                                                                                                                                                                    reverse the spread of noxious exotic plant
                                                                                                                                                                                                    species in the area of concern, with the goal of 
                                                                                                                                                                                                    replacing exotics with viable e desirable native
                                                                                                                                                                                                    Plant communities. Such a program should 
                                                                                                                                                                                                    include assessment of the extent of the problem,
                                                                                                                                                                                                    identification of the geographic focus of action,
                                                                                                                                                                                                    identification of the costs and likely funding 
                                                                                                                                                                                                    sources, assess the potential for a volunteer
                                                                                                                                                                                                    component of the program, and enlist the 
                                                                                                                                                                                                    cooperation of affected private property 
                                                                                                                                                                                                    owners, if any.
                                                                                                                                                                             Pol. C-37.7         By the end of 1992, the County will request 
                                                                                                                                                                                               Hillsborough communityCollege to expand the 
                                                                                                                                                                                               focus at the cockroach Bay Environmental Studies
                                                                                                                                                                                               Center to include the study of land management
                                                                                                                                                                                               practices such as exotic plant control and fire
                                                                                                                                                                                               management. The Enviromental Lands Acquisition
                                                                                                                                                                                               And protection Program can utilize the result of such 
                                                                                                                                                                                               studies to more effectively manage lands purchased
                                                                                                                                                                                            I  throughout the area of concern.
                                                                                                                                                                             
                                                                                                                                                                             
                                                                                                                                                                             




























































                                                                                                                            22
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                                                                                                        Issue#13: Shoreline Erosion [SWIM &&
           Tampa Bay SWIM Plan                                                      Cockroach Bay Aquatic Preserve                                         Hillsborough County Comprehensive Plan
           Initiatives, Programs, & Strategies                                          Management Policy Directives                                             Element Pg          GOP            Description
                                                                                   (E)   Prohibit development activities within the aquatic preserve                   53      Obj. 5           The county shall stabilize those manmade beaches
                                                                                         that adversely impact saltmarsha and other valuable                                                    prone to erosion problems and shall only support
                                                                                         submerged habitats, Unless a 	prior determination  has been                                            development of manmade estuarine beaches in 
                                                                                         made by the Board of overriding public importance and                                                   environmental acceptable locations.
                                                                                         that no reasonable alternatives exist.                                        54      Pol. 5.1         Assess present conditiopn and erosion trends of 
                                                                                         Selected Additional Onsite Policies A Procedures:                                                     significant public beaches. Develop estuarine beach
                                                                                         1.    Identify and develop guidelines for areas and plant                                             enhancement program.
                                                                                               communities in need of restoration.                                            PoL 5.2          Use beach stabilization tenchique recommended by
                                                                                         2.    Discourage developments within the aquatic preserve                                               DNR.
                                                                                               that require restoration or mitigation.                                        Pol. 5.3           Oppose destruction or degradation of 
                                                                                         3.    Develop an exotic plant control and removal plan                                                  intertidal/ subtidal vegetive communities to develop
                                                                                               following monitoring.                                                                           new manmade estuarine beaches.
                                                                                         4.    Develop a cumulative impact analysis program for          FLU          34      Pol. C-2.2         Publicly-owned or controlled lands shall e restored
                                                                                               analyzing proposed uses within the aquatic preserve.                                              by vegetating riverbanks w/native vegetation to 
                                                                                   (F)   Prohibit the trimming and/or removal of salt marsh                                                     prevent erosion.
                                                                                         vegetation and other natural shoreline vegetation within the RECOS           12      Pol. 1.4             Protec environmental and natural resources, energy                                                                                                                                                                    a Usti      serve, except when necessitated by the pursuit                                            efficiency.
                                                                                         of legally authorized projects and local protection                                                     efficiency, and the orderly extension and expansion
                                                                                                                                                                                                 of other public facilities and services during the 
                                                                                         ordinances.                                                                                           planning of parks and other recreational facilities.
                                                                                                                                                                                              
                                                                                                                                                                                               










































                                                                                                                            23
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           Issue#14: Marinas [SWIM]
           Tampa Bay SWIM Plan                                                      Cockroach Bay Aquatic Preserve                                         Hillsborough County Comprehensive Plan
          Initiative, Programs, & Strategies                                        Management Polky Directives                                             Element Pg           IGOP              Description           DEVELOPMENT AND PUBLIC USE INITIATIVE I                                  (D)   Protect and, where possible. enhance threatened and          55  Pol. 7.6  Encourag expansion of exixting 
           Provide sound environmental policies governing land use                          endangered species habitat within the aquatic preserve.                                                                                                                               endangered species habitat within the aquatic preserve.
                                                                                                                                                                                             siting new on
           which Impact the Tampa Bay ecosystem                                            Selected Additional Onsite Policies & Procedures:                              56      Pol. 7.7          Implement marina siting guidelines(w/
                                                                                          1. Require additional authorization and approval for                                                     environmemtal considearation
          1.e. Marinas: evaluate environmental impacts of marinas within                        activities using  submerged lands within the aquatic                       58      Pol. 7.8          Concentrate marine service land uses around existing        Tampa Bay and its tributaries.                                                       preserve in  areas where manatees am present.                                                       marinas.
                                                                                                (Additional restrictions may apply.)                                             Pol. 7.9          Fueling facilties shall be designed to contain land 
           . Evaluate environmental impacts of existing marinas,                    (E)   Prohibit development activities within the aquatic preserve                                              and water fuel spills.
             including impacts on manatees and other protected species.                  that adversely impact saltmarshes and other valuable
           . Develop a marina siting plan                                                 submerged habitat unless a prior determination has been
           . Evaluate and promote unproved marinas designs and facilities.                  made  by the Board of overriding public importance and
             specificially addressing problems of fuel storage, sewage                      that no reasonable alternatives exist.
             specifically addressing problems of fuel storage, sewage.
             bilge pumping, solid waste. dredging, and related problems.                  Selected Additional Onsite Policies & Procedures:
                                                                                          I .   Identify and develop guidelines for areas and plant
                                                                                                communities in need of restoration.
                                                                                          2.    Discourage developments within the aquatic preserve
                                                                                                that require restoration or mitigation.
                                                                                          3.    Develop an exoticplant control and removal plan
                                                                                                following monitoring.
                                                                                          4.   Develop a cumulative impact analysis program for
                                                                                                analyzing proposed uses within the aquatic preserve.
                                                                                    (F)   Prohibit the trimming and/or removal of salt marsh
                                                                                          vegetation and other natural shoreline vegetation within the
                                                                                          aquatic preserve. except when necessitated by the pursuit
                                                                                          of legally authorized projects and local protection
                                                                                          ordinances.
                                                                                    (1)   Prohibit the drilling of off and gas wells, the mining of
                                                                                          materials, and dredging for the primary purpose of
                                                                                          obtaining upland fill within the aquatic preserve.
                                                                                    (0)   Prohibit any activity commercial or recreational that might
                                                                                          impact the integrity of hard bottorn communities within the
                                                                                          aquatic preserve-
                                                                                    (R)   Encourage public utilization of the aquatic preserve,
                                                                                          consistent with the continued maintenance of its natural
                                                                                          values and functions.
                                                                                    (T)   Require, through the efforts of DER and the Southwest
                                                                                          Florida Water Management District (SWFWMD), the
                                                                                          maintenance and upgrading of the water quality of the
                                                                                          estuary and ensure the natural seasonal flow fluctuations of
                                                                                          fresh water into he estuary. In particular encourage the
                                                                                          Department of Environmental Regulation and the
                                                                                          Environmental Regulatory Commission to extend OFW
                                                                                          designations to wetlands above the MEN line in areas
                                                                                          within or adjacent to the aquatic preserve.
                                                                                     Prohibit Marinas and associated construction activities in
                                                                                  I       Resource Protection Areas I and 2.
















                                                                                                                              24
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             Issue# 15: Costruction  & Operation Of Transportation Facilities [SWIM]
             Tampa Bay SWIM Plan                                                          Cockroach Bay Aquatic Preserve                                              Hillsborough      county Compreehensive Plan
             Initiatives, programs, & strategies                                                Management Policy Directives                                                 Element Pg            GOP                Description
             DEVELOPMENT AND PUBLIC USE INITIATIVE I                                      (F)   Prohibit the trimming and/or removalof salt marsh                    Flu         19      Pol. A-814      Require new raodways, interchanges, or bridge
             Provide sound environmental policies governing land use                            vegetation and other natural shoreline           designs undergo an environmental assessment.
             which Impact the Tampa Bay ecosystem                                    aquaticpreserve except when necessitated by the pursuit                                                   Require location & design of public roads & bridges
             I d. Developmemetal Design and practices; promote                                 of legally authorized projects and local protection                                                       w/ riverine corridors to minimize impacts adverse to
              sound Projects and practices.                                  ordinances.                                                                                              wildlife habitat & vegetative communities.
              .Promote use of existing natural features and native plant                                                                            (1)   Prohibit the drilling of oil and gas wells, the mining of                                                [2] Need to strengthen policy by replacing 
               species for landscaping and habitat,with special empahsis on                                                                                materials,                                                  minimize w/ prevent.                                                                                                                                                                                                         
                use of transportation programs and xeriscaping practices as                                                                                                                                                                                
                obtaining uPland fill within the aquatic preserve.           TRANS      58   Obj. 1.7           Ensure transportation improvements meet all
                                                                                                                                     requirement for reducing or mitigating impacts on
                                                                                                                                         
               well as the establishment of wildlife corridors.                                                                                                                                        the natural
                                                                                                                                                                                            Pol. 1.7.1     Avoid routing new roads thru publicly owned natural
             1.f. Transportation Network: evaluate the existing and proposed                                                                                                                               preserves, parks recreation areas, and significant or
             transportation network around, over and on the bay and its                                                                                                                                     essential wildlife habitat      
                                                                                                                                                                                            Pol. 1.7.2     All roads construction projects shall meet or exceed
                                                                                                                                                                                                            adopted state or local stormwater retention and 
              Evaluate transportation (inclusive of shipping and boat                                                                                                                                      treatment requirements.
               traffic) and roadway problems as related to environmental                                                                                                                    Pol. 1.7.3      Transportation improvements shall eliminate or
               unpacts to the ecosystem. 
              Reveiw transportation engineering and promote design to                                                                                                                                                                    mitigate adverse impacts on wetland and other             Review transportation engineering and promote design, 10                                                                                                                                        ESAs.
           reduce environmental impacts (eg., run off).































                                                                                                                                       25
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           Issue#16: Intergovemmental Coordination and Planning Consistency [SWIM& AP]
           Tampa Bay_SWIM Plan                                                        Cockroach Bay Aquatic Preserve                                            Hillsborough County Comprehensive Plan
           Initiatives, Programs. & Strategies                                        Management Policy Directives                                               Element	 Pg 	GOP                  Description
           DEVELOPMENT AND PUBLIC USE INITIATIVE I                                    (S)   Develop a well-coordinated aquatic preserve management              CM &    	50&57 POL 2.4 & 3.4        Request regulatoty agencies to develop unified &
           Provide sound environmental policies governing land use                          mechanism that recognizes and utilizes local government              CONS                                    coordininated wetland migition & restoration prog.
           which impact the Tampa Bay ecosystem.                                              programs and authorities.                                                                                    [3] Re: 2.4,  need to include time frame.
                                                                                      (V)   Encourage the assistance of federal, state. and local              CM           53       ObJ. 4            cooperate w/ appropriate regularly & mgmt.
           I.a. Encourage Appropriate Lind Use: at the local state, and                      government agencies in implementing the aquatic preserve                                                   agencies to implement comprehensive & coordinated
           federal level, encourage  appropriate development or agricultural           management plans, especially in areas of protection of                                                        mgmt. plans for Tampa Bay.
           use of land bordering the bay and its tributaries.                           natural  and cultural resources and the enforcement of                                                        [1] Need to include a specific result to achieve & a 
                                                                                            applicable resource laws and ordinances.                                                                    std. to measure accomplishment.
           Promote limiting or preventing land alterations via incentives            (Y)   Insure that the aquatic preserve management plans are                                58     Pol. 4.1          Provide county cooperation, representation, and
              such as tax reductions, density tradecoffs, or tranfer or                     consistent with all other state and local planning processes                                                  assistance to ABM & SWFWMD re:  Tampa Bay
              purchases of developmental fights. Appropriate policies and                   and completed plans that may impact aquatic preserves.                                                      SWIM Plan.
              regulations will be developed by the District for consideration                                                                                   FLU          53       Pol. 7. 10        lnitiate MA w/ Tampa POrt authority to address
              by local qgovtnunents through the review of comprehensive                                                                                                                                  coordination & conflict resolution of issues to ensure
              plans and through preparation of model ordinances.                                                                                                                                        orderly development of the port.
             Promote designations of increased buffer zones, setback                                                                                                                 C-22.1 &          Participate w/ DNR to fully implement CBAP
              requirements, wildlife corridors, and conservation easements                                                                                                             C-37.1     management plan.
              reviewing local governments comprehensive plans and                                                                                                                                       [1] Need to state specific action or program
              ordinances, and recommending appropriate amendments to                                                                                                                                 undertaken to achieve objective.
              accomplish the above objectives.                                                                                                                                                          [3] Re: 18.8 [now 37.1], county should formally
             Promote environniental sound local and mate comprehensive                                                                                                                                 adopt (incorporate) CBAP plan & 18-20, FAC
              plans, inclusive of land use plans for preservation of habitats                                                                                                         Pol. C-37.5       Establish a cockroach bay aquatic preserve
              and land tracts.                                                                                                                                                                          Management  advisory team (CAPMAT)by 1992,
                                                                                                                                                                                                        with members representing the county, the planning 
           1.c. Laws and Permitting Review: evaluate adequacy of existing                                                                                                                               Commission,the Environmental protection
           zoning laws, environmental laws and permitting processes as                                                                                                                                  Commission,Hillborough community college, state
           related to land use and environmental resources.                                                                                                                                              and regional agency staff, concerned citizens and
                                                                                                                                                                                                        area landowners. The management advisory team
             Evaluate existing local, state, and federal laws concerning                                                                                                                              shall (selected policies):
              land use and the permitting process (inclusive of agricultural                                                                                                                            1.    Assist the county with implementation of the
              uses).                                                                                                                                                                                          Goal, Objectives and Policies that affect the
             Promote and/or draft revisions of existing local, state, and                                                                                                                                    Cockroach Bay Aquatic Preserve area;
              federal laws concerning land use and the permitting process                                                                                                                          6.    Identify an implementation procedure,
              (inclusive of agricultural uses). Ihis will accomplished                                                                                                                                   thresholds and a timeline for review of     
             through the development of model ordinances in addition to                                                                                                                                  applications for development approval within
              specific proposed amendments.                                                                                                                                                               the defined Area of Concern to ensure
             Evaluate, promote, and/or draft improved laws for mitigation                                                                                                                                  compatibility with the intent of the Preserve;
             policies and practices, specifically addressing action to be                                                                                                                              7.    Review proposed comprehensive plan and land
               followed if unanticipated impacts are detected after the fact;                                                                                                                                 development code revisions that may impact
              mitigation banking should be evaluated as should criteria for                                                                                                                                  the Area of Concern and recommend
              monitoring and determining the success of the Project.                                                                                                                                         appropriate changes and other measures to
                                                                                                                                                                                                              further these Goals, Objectives and Policies.
                                                                                                                                                                IC           56       Obj. 5            Assemble representatives of state & local gov'ts
                                                                                                                                                                                                        having jurisdiction over aspects of Hills, Co. and
                                                                                                                                                                                                        Tampa Bay (thru an environmental issues forum) to
                                                                                                                                                                                                        coordinate policies, data, & research, and eliminate
                                                                                                                                                                                                        duplicative reviews and contradictory standards.
                                                                                                                                                                                                        [7] County should require MPO coordination w/
                                                                                                                                                                                                        ABM.















                                                                                                                                  26

                                    




          Issue # 17:  Enforcement of Laws and Regulations [SWIM & AP]
Tampa Bay SWIM Plan									Cockroach Bay Aquatic Preserve 						Hillsborough County Comprehensive Plan
Initiatives, Programs, & Strategies							Management Policy Directives							Element	Pg		GOP			Description
Preserve, enhance, and/or restore upland, riverine, intertidal		(S) Develop a well-coordinated aquatic preserve management		REC&OS	18		Pol. 10.2		Adequate personnel shall be provided to enforce 
and subtidal habitats for 1)biological communities, 2)			    mechanism that recognizes and utilizes local government									rules and regulations on waterbodies.
pollution abatement, and 3)aesthetic and recreational				    programs and authorities.							FLU				Pol. C-37.12 	By the end of 1992, the County will implement
purposes.											(V) Encourage the assistance of federal, state, and local									means of improving enforcement of marine
												    government plans, especially in areas of protection of									conservation laws in the Cockroach Bay area, such as 
1.a. Preservation of Existing Habitats:  Promote the preservation		   natural and cultural resources and the enforcement of									the dedication of an environmental deputy to the
of relatively pristine or functional habitats already in existence.	   applicable resource laws and ordinances.											area.  The primary purpose of such a deputy would be
																														to educate boaters and fishermen about boating and									
	Promote enforcement of existing laws protecting habitats																				safety laws and secondarily to issue warnings and
	through funding incentives for local government																						citations.
	environmental enforcement and compliance monitoring
	programs.
	Promote enforcement of permit stipulations mandated by
	local, state, and federal agencies (inclusive of compliance
	monitoring) through funding incentives for local government
	environmental protection programs.

INITIATIVE 2
Preserve, enhance, and/or restore plant and animal 
populations that use the bay, tributaries, and or associated
uplands for part or all of their life cycles.

2.c. Wildlife Management Programs:  Promote and/or draft
wildlife management programs to protect populations and
communities associated with the bay inclusive of threatened or
endangered species important to commercial and sport
fishermen.  Programs must include local, state, and federal
legislation and enforcement necessary to accomplish
management goals.

DEVELOPMENT AND PUBLIC USE INITIATIVE 1
Provide sound environmental policies governing land use
which impact the Tampa Bay ecosystem.

1.b. Enforcement:  promote enforcement of existing zoning laws,
environmental laws and permit stipulations inclusive of
compliance monitoring

	Promote additional funding and staffing (inclusive of legal 
	staff) for enforcement and compliance monitoring by offering
	funding incentives for qualifying local governmental
	environmental protection programs.
	Promote fines or penalties commensurate with the infraction.

BAY MANAGEMENT INITIATIVE 2
Promote the adoption and enforcement of laws and 
regulation necessary to implement the Natural Systems,
Water Quality and Land Use Initiative of the Plan,

2.a. Review of Rules and Regulations:  Reviews adequacy of
rules and regulations of the previously described governmental 
jurisdictions to carry out the Plan's Programs.  This will include
a review of the sufficiency of enforcement programs of pertinent
regulatory agencies and be inclusive of all applicable fish and
wildlife laws.


(continues)														27






         Issue#17: Enforcement of Laws and Regulations [SWIM & AP]
         Tampa Bay SWIM Plan                                            Cockroach Bay Aquatic Preserve                                 Hillsborough County Comprehensive Plan
         Initiatives, Programs, & Strategies                             Management Policy Directives                                    Element  Pg      GOP             Description
         2-b. Commercial and Sport Fishing Regulations.
          Enhance fishery productivity by developing and
           implementing biologically defensible fishing regulations.
           stocking and habitat creation/restoration Projects.
          Implement protective regulations and management strategies
           for fisheries on the decline in Tampa Bay
          Improve the enforcement of fishing regulations by
           consolidating and Standarizing all special acts and local laws
           related to fishing activities.

         2.c. Enforcement:  Unify and consolidate all special acts and
         local laws related to marine resource management and work to
         ensure adequate funding and staffing levels for increased
         monitoring and enforcement capabilities for Tampa Bay.
         2.d. State Legislation: Work to ensure that the necessary state
         legislation and agency rules am in place to carry out die Plan.



































                                                                                                             28


Issue # 18:  Ports
Tampa Bay SWIM Plan				Cockroach Bay Aquatice Preserve						Hillsborough County Comprehensive Plan
Initiatives, Programs, & Strategies		Management Policy Directives							Element	Pg	GOP		Description
							(N) Prohibit the construction of new deepwater ports within the	PORT		148	Obj. 1	Ensure that expansion of existing or the siting of new
							    aquatic preserve boundaries.											port or related facilities is coordinated with the
																							Future Land Use, Coastal Management, and
																					Pol. 1.1	Conservation Elements of the Comprehensive Plan.
																							Promote Port & related facilities development &
																							resource protection consistent w/Tampa Port Master
																							Plan and coordinated w/HCCP via MA encouraging
																							Port Authority to:
																							a) assure coordination of submerged land
																							management & permitting programs w/co.LU 
																							regulations.
																							b) maintain active membership w/TBRPC/ABM &
																							coordinate w/TB SWIM Plan.
																							c) continue support of estuarine resource restoration
																							management programs in Hillsborough Co.
																							d) continue to develop mitigation projects
																							minimizing adverse port development on natural
																							resources.
																							e) continue to implement consolidated berth
																							maintenance dredging & disposal plan.
																							f) develop a comprehensive resource management
																							plan for incorporation into dredge plan.
																							g) develop methods for managing bird nesting & 
																							feeding habitats on Port Authority diked disposal
																							islands.
																							h) monitor & mitigate adverse impacts on WQ from
																							dredging projects.
																							i) continue to augment HCEPC WQ monitoring
																							program in inner harbor areas.
																							j) incorporate stormwater treatment capability in port
																							projects where feasible.
																							[1] incl. objective protecting, conserving, or
																							enhancing remaining coastal wetlands, living marine
																							resources, coastal barriers, and wildlife habitats.
																							-No policy addressing cumulative impacts of
																							activities on natural resources.
																							-No specific action specified re:  support of estuarine
																							research programs.
																							-No policy(ies) addressing multijurisdictional
																							estuaries & their management.
								29






           Issue#19: Identification of Areas, Land Use, Etc.
           Tampa Bay SWIM Plan                                                        Cockroach Bay Aquatic Preserve                                             Hillsborouth County Comprehensive Plan
           Initiatives,Programs,& Strategies                                          Management Policy Directives                                       Element      Pg       GOP                Description
           NATURAL SYSTEMS INITIATIVE 1                                                 (C) Develop a resource inventory and map natural habitat         CONS         57       Pol. 3.7           Develop GIS and digital database to monitor trends
                                                                                            types within the aquatic preserve, with an emphasis on                                                in wetland losses & gains.    
           Preserve, enhance, and/or restore upland, riverine,intertidal                                                           
           and subtidal habitats for 1) biological communities, 2)                          those habitat types utilized by threatened and/or                         68       Pol. 14.2          Identify and map natural plant communities                                                                                                                                                                                                                         and
           pollution abatement, and 3) aesthetic and recreational                            endangered species.                                                                                  providing significant wildlife habitat as ESAs on
           purposes.                                                                                                                                                                              FLU map.
                                                                                                                                                                               Pol. 14.3          Identify and map essential wildlife habitat.
           Le. Monitoring and Research: establish monitoring/research                                                                                                          Pol. 14.4          Incorporate and build upon LANDSAT database
           studies associated with strategies of programs l.a.d.                                                                                                                                  utilized by FGFWFC to develop county database and
                                                                                                                                                                                                  GIS for monitoring changes in LU cover and
           . Evaluate success of restoration and preservation projects                                                                                                                            essential wildlife habitat.
              inclusive of projects begun or completed prior to SWIM                                                                                             FLU           Obj. C-37          Identify geographic area by 1993 wherein discharges
              endeavors through aerial habitat mapping and coordinated                                                                                                                            are very likely to affect Cockroach Bay. Once
              ground based studies.                                                                                                                                                               identified, new permitted discharges will be required
           .  Develop additional databases useful for design and                                                                                                                                  to meet or exceed applicable federal, state, regional,
              implementation of future projects.                                                                                                                                                  and local WQ stds.  Initiate plan to address WQ &
                                                                                                                                                                                                  habitat restoration within CBAP by end of 1993.
           INITIATIVE 2                                                                                                                                                        Pol. C-37.5        Establish a Cockroach Bay Aquatic Preserve
           Preserve, enhance, and/or restore plant and animal                                                                                                                                     Management Advisory Team (CAPMAT) by 1992,
           populations that use the bay, tributaries, and or associated                                                                                                                           with members representing the County, the Planning
           uplands for part or all of their life cycles.                                                                                                                                          Commission,Hillsborough Community College, state
                                                                                                                                                                                                  and regional agency staff, concerned citizens and
           2.b. Research: promote and/or fund research which provides                                                                                                                             area landowners.  The Management Advisory Team        
           information important to the development and implementation                                                                                                                            shall (selected policies):                                                                                                                                               Tampa Bay ecosystem.                                                                                                                                                                   2.    Identify the specific area of likely impact on the
                                                                                                                                                                                                        Aquatic Preserve, to be known as the "Area of
           .  Establish data base concerning a wildlife inventory for                                                                                                                                   Concern," based on review of the boundaries of
              subtidal, intertidal and nearby upland communities; inventory                                                                                                                             the Aquatic Preserve, the Little Manatee River
              should include distribution and abundance of species                                                                                                                                      watershed, and drainage basins which discharge
              throughout ecosystem.                                                                                                                                                                     to Cockroach Bay and the Aquatic preserve;
           .  Conduct biennial quantitative serial mapping of subtidal,                                                                                                                           3.    Identify concerns and problems that may affect
              intertidal and nearby upland habitats.                                                                                                                                                    the Preserve area;
                                                                                                                                                                                                  4.    Identify research needs and collect data that
                                                                                                                                                                                                        may assist in resolving identified problems and
                                                                                                                                                                                                        concerns.
                                                                                                                                                                                                 13.    Develop a means through which to base
                                                                                                                                                                                                        decisions and recommendations on sound,
                                                                                                                                                                                                        scientifically-defensible research in order to
                                                                                                                                                                                                        avoid arbitrary recommendations.
                                                                                                                                                                                    Pol. C-37.13        By the end of 1994, the Planning Commission will
                                                                                                                                                                                                        develop a Cockroach Bay Aquatic Preserve Overlay
                                                                                                                                                                                                        District that addresses such issues as land use,
                                                                                                                                                                                                        densities, setbacks, etc. 

















                                                                                                                                   30
 


Issue #20: Threatend and Endagered Species; Manatee Protectin; Hazardous Waste Disposal; Boundary Expansion and Other Acquisitions
Tampa Bay SWIM Plan									Cockroach Bay Aquatic Preserve						Hillsborough County Comprehensive Plan
Intitiavtives, Programs, & Strategies						Management Policy Directives							Element 	Pg		GOP				Description
NATURAL SYSTEMS INITIATIVE 1								(H) Acquire, where feasible, privately owned submerged lands	CM		52		Pol.3.4			Assist DNR and USFWS in West Indian Manatee
Preserve, enhance, and/or restore upland, riverine, Intertidal		and adjacent lands and islands located within the											and other threatend or endangered species recovery
and subtidal habitatis for 1) biological communities, 2)			boundaries of the aquatic preserve pursuant to the											programs.
pollution abatement,and 3) aesthetic and recreational				authorities contained in Section 253.02(4), F.S. Of											(3) DNR criteria was suggested for inclusion into the	
purposes.											greatest interest are the barrier islands that are at the mouth									HCCP, along with support for a manatee protection
												of the Little Manatee River and those along the coast of 										plan to be developed by local, state,and federal
1.a. Preservation of Existing Habitats: promote the preservation		Cockroach Bay.																	gove't. The Port of Tampa Master Plan should also	
of relatively pristine or functional habitats already in existence.	(K) Prohibit storage of toxic, radioactive, or other hazadous									incorporate protective measures to avoid and/or
												materials within the aquatic preserve should be								Pol.3.5			minimize impacts to manatees.
Support existing acquisition programs such as Save Our			closed and eliminated.                                                                                            Consult with FGFWFC when determining issuance 
Rivers(SOR) and Conservation and Recreational Lands				(Q) Manage spoil islands within the aquatic preserve as bird                                                      of and condition upon land development approvals in
(CARL).											rookeries and wildlife habitat areas.									Pol.3.5	            coastal areas on sites containing listed species.
												(U) Apply the management criteria contained in the adopted                                                        Amend LDRs & zoning to restrict development in
When appropriate, cooperate with environmental groups and			Terra Ceia Aquatic Preserve Plan to all subsequent			CM		65		Pol.13.6			essential wildlife habitat.
local, state, and federal governments and agencies in the			legislative additions of land to the Aquatic Preserve.                                                            Prohibit new solid waste and hazardous waste sites in
purchase of lands by identifying areas in need of preseration                                                                                                                             the CHHA.
and contributing to their purchase.																		CONS		66		Obj.12                  (7) County should stengthen its public interest
																											Obj.13		       test description, similar to that found in the RPC's
Encourage and support private donations of funds and land																67		Pol.13.1			 CRPP glossary.	
parcels, parks, etc., as well as passing of local taxing																		Pol.13.2			Develop comprehensive hazardous waste	
initiatives.																													management and emergency response programs.
																															Further fedral and state regulatory agencies'
NATURAL SYSTEMS INITIATIVE 2																							Pol.13.3	            objectives re: enforcement of hazwaste laws & regs.
Preserve, enhance, and/or restore plant and animal																							Provide technical assistance to DER & USEPA for	
populations that use the bay, tributaries, and or associated															69		POl.14.9			inventorying hazardous chemical contamination sites
uplands for part or all of their life cycles.																								within county.
																											Obj.15			Provide technical assistance to USEPA and DER for	
2.c. Wildlife Management Program: Promote and/or draft																						ranking chemical contamination sites within county;
wildlife management programs to protect poputlations and																						increase utilization and direction of federal and state
communications associated with the bay inclusive of threatened or															70		Pol.15.2			funds for investigations and cleanup of chemical
endangered species important to commercial and sport																							contamination sites within county.
fishermen. Programs must include local,state, and federal																						Provide technical assistance to USEPA and DER for
legislation and enforcement necessary to accomplish																							increasing utilization and direction of federal and
management goals.																													state funds for investigations and cleanup of
  																															Superfund sites within county.
DEVELOPMENT AND PUBLIC USE INITIATIVE 1																									Implement a public education program on the need to
which impact the Tampa Bay ecosystem.																									protect and manage the habitat of threatended and
																															endangered species, and species of special concern.
1.e. Marinas: evaluate environmental impacts of marinas within																					Maintain populations of threatened and endangered 
Tampa Bay and its tributaries.																										species and species of special concern, and increase
																															abundance and distribution of populations where
Evaluate environmental impacts of existing marinas,																							feasible and appropriate.
including impacts on manatees and other protected species.																						Consult w/and consider recommendations of
																															FGFWFC in determining the issuance and conditions
(continues)																														upon land development approvals which would 
																															impact upon threatened and endangered species or
																															species of special concern. Conditions of approval		
																															shall ensure the maintenance and, where	
																															environmentally and economically feasible, increase
																															the abundance and distribution of populations of such
																															species.
																															Identify lands suitable for acquisition by ELAPP
																															prog.
																															Use & promote protection alternatives for acquiring
																															and protecting environmental lands, including
																															purchase, easements, TDRs, and long-term leases.
																															(continues)

Issue #20: Threatened and Endangered Species;Manatee Protection;Hazardous Waste Disposal;Boundary Expansion and Other Acquisitions

Tampa Bay SWIMM Plan

Initiatives, Programs, & Strategies

WATER QUALITY INITIATIVE 1
Reduce point and non-point source pollutant loading to attain water quality necessary to restore and maintain healthy and
productive natural systems, protect human health, and to attain the highest water use classification.

1.g. Hazardous Waste Disposal and management

	Implement the requirements of the water Quality Assurance Act for a comprehensive statewide hazardous waste 
	management program including the location of temporary storage/transfer facilities for hazardous wastes. 
	Provide needed surface water, groundwater and leachate characterization in and adjacent to potentially dangerous
	dump sites for application in state and local regulatory responsibilities.
	Initiate eventual rehabilitation of dump sites through restorative actions.

Cockroach Bay Aquatic Preserve

Management Policy Directives

Hillsborough County Comprehensive Plan

Element
CONS

FLU

Pg
70

71

72

Description
Recommend to landowners specific management and recovery strategies for key listed species, as developed by FGFWFC and
USFWS. Incorporate into county land management plans.
Assist USFWS, FGFWFC, and DNR in implementing recovery programs for threatended and endangered species or species or
species of special concern.
Request assistance of FGFWFC to conduct inventories of threatended and endangered species and species of special concern.
Increase acreage of publicly-owned or otherwise protected natural preserve land in the county.
Use natural systems and I.U. cover inventory to help identify lands suitable for acquisition by ELAPP prog.
Use & promote protection alternatives for acquiring and protecting environmental lands, including purchase, easements,
TDRs, and long-term leases. Continue to request assistance in public acquisition of natural preserves under federal, state,
and regional programs, including CARL and SOR.
Establish a Cockroach Bay Aquatic Preserve Management Advisory Team (CAPMAT) by 1992, with members representing the 
County, the Planning Commission, the Environmental Protection Commission, Hillsborough Community College, state and regional
agency staff, concerned citizens and area landowners. The Management Advisory Team shall (selected policies):
10. 	Require the County to initiate a request to the Florida Department of Natural Resources and the Governor and Cabinet
and the Legislature to expand the boundaries of the Cockroach Bay Aquatic Preserve, if deemed ecologically appropriate
and beneficial, to promote more effective management of the natural system and its biological resources;
11.	Assist in the development of public education maps and work with the appropriate authorities in the placement of 
	markers clearly indicating boating channels and potential hazards in appropriate locations throughout the Cockroach
	Bay Aquatic Preserve. In addition, work to post manatee educational information and warning signs as needed 
	throughout the Preserve.
	






                                     Appendix 4


                   Issue Matrices: Manatee County Co.mprehensive Plan


Issue#1:  Point Source Water Pollution (SWIM & AP)
Tampa Bay SWIM Plan
Initiatives, Programs, & Strategies
WATER QUALITY INITIATIVE 1

Reduce point and and nonpoint source pollutant loading to attain water quality necessary to restore and maintain healthy 
and productive natural systems, protect human health, and to attain the highest possible water use classification.

PROGRAMS
1.a. Reduction of Domestic and Industrial Pollutant Discharge

STRATEGIES
	Achieve a thorough understanding of the quality and composition of domestic and industrial effluents being discharged
	into Tampa Bay through the previously described water quality assessment program.
	Minimize and/or eliminate pollutant loadings from domestic and industrial wastewater discharged into Tampa Bay through
	alternative re-use and disposal options and other effective options as determined through the previously described
	water quality assessment program.
	Establish legally enforceable, resource based, effluent allocations for domestic and industrial point sources
	discharges if such allocations are shown to be necessary through the water quality assessment process.
	Discourage overcommitment of wastewater treatment and disposal capacities on the part of the bay area local 
	governments by providing the DER's Southwest District Office with a stronger basis for evaluation of discharge
	permit applications. This will be accomplished through Step 1 of the previously described water quality assessment
	process. 
	Encourage greater private interest cost-sharing (impact fees) in the construction of new regional wastewater 
	treatment facilities.
	Discourage the construction of wastewater treatment plants which serve specific projects and promote construction
	of regional plants.
	Minimize and/or eliminate pollutant loadings to Tampa Bay and its tributaries from septic tank seepage.
	Promote and/or draft new local, state, and federal legislation and rules necessary to reduce domestic and industrial
	pollutand discharges to acceptable levels as determined through the water quality assessment process.
	
1.b.	Enforcement of Effluent Discharge Limitations
	
	Bring all domestic and industrial point source discharges into compliance with applicable effluent limitations 
	including allocated waste loads by strengthening local government environmental enforcement and compliance 
	monitoring programs through cost-sharing incentives.

Terra Ceia Aquatic Preserve
Management Policy Directives
(T)  Require, through the efforts of DER and SWFWMD, the maintenance and upgrading of the water quality of the 
estuary and ensure the natural seasonal flow fluctuations of fresh water into the estuary. In particular encourage the
Department of Environmental Regulation and the Environmental Regulatory Commission to extend OFW designations to wetlands
above the MHW line in areas within or adjacent to the aquatic preserve.

Manatee County Comprehensive Plan

Element
CM
PF

Pg
4-9
4-7
11-1
11-4
11-8
11-10

GOP
Pol. 4.1.2.11
Pol. 4.1.2.7
Goal 11.1
Pol. 11.1.1.4
Pol. 11.1.1.9
Obj. 11.1.5
Obj. 11.1.7
Pol. 11.1.7.1

Description 1

Require all dev.w/i the Coastal Area which will require issuance of a point source discharge permit to establish and 
implement WQM plans which shall eliminate all discharges not treated to appropriate state standards.
Prohibit new and expansion of existing WWT plants w/i the coastal area that will affect coastal receiving waters.
Provide regional sanitary sewer system in the USEPA 201 facilities plan service area west of adopted future 
development area boundary consistent with other public facilities and natural resource constraints.
Prohibit the use of any interim wastewater treatment plant for any project with the USEPA 201 facilities plan service
area unless plan is operational and due to be supplanted by the county's planned sanitary sewer system; overridden in the
public interest by BCC; or subject to further criteria.
Require any onsite sewage disposal system be located and constructed consistent with all applicable local, state, and 
federal regulations, and permitted only where consistent with other applicable GOPs in this comprehensive plan.
Continue the current practice of effluent disposal by spray irrigation on agricultural and urban land uses.
New growth will be assessed a fair share of capital costs associated with the county's wastewater system.
Continue to require that new growth pay its full share of needed capital facilities.





           Issue#2: Nonpoint Source Water Pollution [SWIM & Ap]
           Tampa Ba SWIM Plan                                                          Terra Ceia Aquati Preserve                                               Manatee County Comprehensive
           Initiatives, Program& & Strategies                                          Management Policy Directives                                               Element       Pg            GOP               
           WATER QUALITY INITIATIVE 1                                                    (E)  Prohibit development activities within the aquatic                   CONS          3-13     Pol. 3.3-1.4      DECSCRIPTION
           Reduce point and nonpoint source pollutant leading to attain                     that adversely impact saltmarshes and other valuable                                                              PROTECT FLOODPLAIN NATURAL AREAS HAVING BENEFICIAL
           water quality necessary to restore and maintain healthy and                      intertidal, submerged, and emergent habitats unless a Prior                                                        HYDROLOGICAL CHARACTERISTICS THROUGH REGULATORY.
           productive natural systems, protect humans health, and to                        determination has been made by the Board of overriding                                                       	MECHANISMS, INCLUDING DISCOURAGING NEW DEV. IN THE	
           Main the highest possible water we classification.                               public importance and that no reasonable alternatives exist.            FLU          2-79     Pol. 2.3.3.1     25-YEAR FLOODPLAIN. 
                                                                                            Selected Additional Onsite Policies & Procedures:                                                                 Limit density in a manner which will protect all
           L. Reduction of Domestic and Industrial Pollutant Discharge                    I .    Identify and develop guidelines for areas and plant                 PF          11-4    Pol. 11.1.1.9     groundwater from septic tank contamination. Require 
                                                                                                                                                                                                         any onsite sewage disposal system to be located and consturcted
                                                                                                   communities in need of restoration.                                                                   in a manner consisten w/all applicable local, state and federal          
             Minimize and/or eliminate pollutant loadings to Tampa Bay                      2.     Discourage developments within the aquatic preserve                                                  regs and permitted only where consistent with other GOPs of the
             and its tributaries frown septic tank seepage.                                         that require restoration or mitigation.                                                               comp. plan.
                                                                                            3.     Develop an exotic plant control and removal plan                                                      Require storm water mgmt planning and consturction of capital
           I.c. Urban Stormwater Management                                                        following monitoring.                                                          11-21 Pol. 11.3.1.5      improvements to coincide with the grown of county.
                                                                                            4.     Develop a cumulative impact analysis program for                                                      Minimize investment w/i the 25-year floodplain by keeping
            Reduce the levels of nutrients and other contaminants in                              analyzing proposed uses within the aquatic preserve.                                                   impervious surface area and structures to a minimum.
             urban stormwater runoff requiring if feasible, that the                                                                                                                                     Require all fill w/i the 100-year floodplain to be compensated
             quality of stormwater discharges be no worse than the state                  (T) Require, through the efforts of DER ad SWFWMD, the                                                         by an equal or greater volume of storage capacity w/i the floodplain.
             water quality criteria or the existing quality of the receiving                estuary and ensure the natural seasonal flow fluctuations of                                               Areas adj. to a tidally-influenced water body are not subject to this level
             water body, whichever is better. Ile feasibility of                            fresh water into the estuary. In particular encourage the                              11-21     Pol. 11.3.1.9        of service performance standard.
             implementing this objective will be examined through a                             Department of Environmental Regulation and the                                                               All projects sahll meet all applicable local, state and federal storm
             review of federal, state,District, and local rules pertaining to             Environmental Regulatory Commission to extend OFW                                                            storm water regs and shall comply w/ all CM plans. The most stringent standard
             storm water management.                                                        designations to wetlands above the MHW line in areas                                                          shall apply. IMprove habitat and natural systems by including, where appropiate
           Minimize the quantities of nonpoint source pollutants                          within or adjacent to the aquatic preserve.                                                                 development of artificial wetland systems within the design of public stormwater
                                                                                             
             entering Tampa Bay through selection of high priority urban                                                                                                            11-21          DETENTION BASINS.[2] The condition "where approiate" should be replaced with		
             stormwater system retrofit projects and providing cost-                                                                                                                               "whenver possible". Coordinate w/swfwmd's swim program to completment regional water  
                                                                                                                                                                                                      mgmt. programs iwth local storm water programs. Ensure new development         
             sharing incentives to local governments for project                                                                                                                                            provides onsite detention of runoff to remove pollutants at levels
             implementation.                                                                                                                                                         11-22               required by applicable fed., state, regional, and local regs. Funding for public
            For all new upland development or redevelopment within the                                                                                                                                  drainage facilities: create a stirnwater ngnt, fee, [6] While the intent of the fee
             Tampa Bay watershed, runoff rates should not exceed those                                                                                                                                   is clear its implemntation and effect on unicipalities w/i county is unclear. Consider
             of natural undisturbed conditions. The feasibility of                                                                                                                                      count implemntation of needed imporvements to poorly maintained of functioning private 
             implementing this objective will be examined through a                                                                                                                                      storm water mgmt systems and recover the cost w/special assessments. Use natural water storage
             review of federal, state, district, and local rules pertaining to                                                                                                                            areas for stromwater retention if consistent w/lcoal, state,a nd fed. regs. Prohibit alternation
             stormwater management.                                                                                                                                                    11-23                Pol. 11.3.2A         of natural watecourses or floodways unless in the public interest.
           Conduct a multi-year public awareness campaign reguarding                                                                                                                                 Protect natural drainage features and preserve their function for detention of stormwater.
             the causes of nonpoint source pollution and actions me public                                                                                                                               Recongnize periodic flooding of 25-year floodplain is natural and prohibit habitable structurs
             can take to reduce nonpoint source pollution.                                                                                                                              11-24                      Pol. 11.3.4.2       and other public and private investment in the area. Policy shall
                                                                                                                                                                                                         not preclude water-dependent uses, stormwater mgmt. sturctures, and passive recreation facilites.
           Lh. Control of Seepage Waste                                                                                                                                                                  (continues)
                                                                                                                                                                                                           
                                                                                                                                                                                         11-24        
             Determine the degree to which Tampa Bay is being burdened                                                                                                                              
             by illegal disposal fo septage waste through the previously                                                                                                                                             
             described water quality assessment program.                                                                                                                                                
             Eliminating existing health hazards due to seepage of septage                                                                                                                               
             waste into the bay and its tributaries.                                                                                                                                     11-26                 
             Ensure die proper regulation and disposal of septage waste.                                                                                                                                 
                                                                                                                                                                                                         
                                                                                                                                                                                                         
                                                                                                                                                                              11-27 11.4.1.1   
                                                                                                                                                                                                         
                                                                                                                                                                                       Poql. 11.4.1.2     
                                                                                                                                                                                                         
                                                                                                                                                                                       Pol. 11.4.1.3     
                                                                                                                                                                                                         
                                                                                                                                                                                       P. 11.4.1.4     
                                                                                                                                                                                                         
                                                                                                                                                                                                         
                                                                                                                                                                                                         
                                                                                                                                                                                                         

                                                                                                                                                                                                         (continues)



                                                                                                                                2
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            Issue#2: Nonpoint Source Water Pollution [SWIM & AP]
            Tampa Bay SWIM Plan                                                        Terra Ceia Aquatic Preserve                                                Manat County Comprehensive Plan
            Initiatives, Programs, & Strategies                                       Management Polley Directives                                                Element      Pg    GOP                    Description
                                                                                                                                                                  ME           14.6  Proc 2.4               (b) Monitor HRS and other septic tank studies to
                                                                                                                                                                  (FLU)              (2.3.3.1)              ensure that impact of wastwater on groundwater
                                                                                                                                                                                                            quality is minimized.
                                                                                                                                                                                                            (c) Evaluate conclusions in HRS or other studies for
                                                                                                                                                                                                            applicability to countyand determine whether a
                                                                                                                                                                                                            change in policies related to septic tanks is needed.
                                                                                                                                                                                                            (d) Where new studies by HRS and others
                                                                                                                                                                                                            recommend or allow for policy change, consider
                                                                                                                                                                                                            other policies which increase level of consistency.
                                                                                                                                                                  ME (PF) 14-28   Proc. 11.10               (b) Determine, during 1989, whether or not a 
                                                                                                                                                                                  (11.3)                    stormwater mgmt. fee is in place.
                                                                                                                                                                                                            (c) No evaluation necessary  (NEN).
                                                                                                                                                                                                            (d) If no fee adopted, revise comp. plan and Capital
                                                                                                                                                                                                            Improvements Element accordingly.
                                                                                                                                                                  CM       4-8    Pol. 4.1.2.9              Establish buffer zones from all state designated APs
                                                                                                                                                                                                            and OFWs, pursuant to CONS element.













































                                                                                                                                 3
 





          Issue#3: Phosphate Processing Operation [SWIM & AP]
          Tampa Bay SWIM Plan                                                          Terra Ceia Aquatic Preserve                                                   Manatee County Comprehensive Plan
          Initiatives, Programs, & Strategies                                          Managmement Policy Directives                                         Element    Pg     GOP                     Description
          WATER QUALITY INITIATIVE 1                                                   (1) Prohibit the drilling of oil and gas wells, the mining of         CONS       3-18   Pol. 3.3.4.1            Require new applications for mineral resource
          Reduce point and nonpoint source pollutant loading to attain                     materials, and dredging for the primary purpose of                                                          extraction to be reviewed for adverse environmental
          water quality necessary to restore and maintain healthy and                      obtaining upland fill within the aquatic preserve.                                                          impacts and require compliance with county
                                                                                                                                                                                                       Reclamation Ordinance No. 81-22. 
          attain the highest possible water use classification.                                                                                                                                        [11] Policy and its implem. mechanism does not 
                                                                                                                                                                                                       provide necessary wildlife protection measures.
          1.f Management of Toxic Pollutants                                                                                                                            3-19   Pol. 3.3.4.2            Require all applictions for mineral extraction
                                                                                                                                                                                                       contain a reclamation program which requires
          ï¿½ Gypsum fields and other toxic waste sources should be                                                                                                                                      reestablishment of the form and function of an
            managed in such a manner so as to preclude all future adverse                                                                                                                              appropriate land cover. 
            environmental impacts on Tampa Bay.
          . Previously incurred environmental impacts on Tampa Bay
            resulting from mismanagement of gypsum fields or other
            contaminant sources should be readdressed.























































                                                                                                                     4
 





             Issue#4: Urbanization/Land Use/Wildlife Habitat [SWIM & Ap]
             Tampa Bay SWIM Plan                                                         Terra Ceia Aquatic Preserve                                                 Manatee County Comprehensive Plan
             Initiatives, Programs, & Strategies                                         Manastement Policy Directives                                                Element 	Pg	 GOP                         Descriptive
             DEVELOPMENT AND PUBLIC USE INITIATIVE 1                                     (D)    Protect and, where possible, enhance threatened and                  FLU          2-77     Pol. 2.3.2.1       		Require special approval for projects adjacent to
             Provide sound environmental policies governing land use                             endangered species habitat within the aquatic preserve.                                                        		rivers, lakes and streams.
             which impact an Tampa Bay ecosystem.                                                 Selected Additional Onsite Policies & procedures:                                          Pol.2.3.2.2		      Prohibit new development within the floodway of 
                                                                                                1. Require additional authorization and approval for                                                          		any perennial stream.
             1.a. Encourage Appropriate Land Use: at the local, state, and                            activities using submerged lands within the aquatic                                                     		[13] It is not clear if silviculture activities are
             federal level. encourage appropriate development or agricultural                  preserve in areas where manatees are present.                                                           			allowed w/i floodway of perennial stream.
             use of land bordering the bay and its tributaries.                                                (Additional restrictions may apply.)                                          Pol. 2.3.2.3   	      Maximize the exclusion of all proposed development
                                                                                         (E)    Prohibit development activities within the aquatic preserve                                                   		from the 25-year floodplain.
               Promote limiting or preventing land alterations via incentives                  that adversely impact saltmarshes and other valuable                                2-78    Pol. 2.3.2.4       		Minimize alteration of any lake or stream by limiting
                such as tax reductions. density tradeoffs, or transfers or                      intertidal, submerged, and emergent habitats unless a prior                                                      		the density credit transferred.
                purchases of developmental rights. Appropriate policies and               determination has been made by the Board of overriding                            		2-89     Pol. 2.3.6.1       		Limit the extent and impact of land development in
                regulations will be developed by the District for consideration                public importance and that no reasonable alternatives exist.                                                   		the CA and CHHA so as to preserve the high value of
                 by local governments through the review of comprehensive                        Selected Additional Onsite Policies & Procedures:                                                             		coastal resources.
                plan through preparation of model ordinances.                               1.    Identify and develop guidelines for areas and plant                CM          	4-1      Pol. 4.1.1.1     		Protection and enhancement of significan vegetative
              Promote designations of increased buffer zones, setback                                  communities in need of restoration.                                                                     		communities which support wildlife in the Coastalc
                requirements, wildlife corridors, and conservation easements                     2.    Discourage developments within the aquatic preserve                                                     		Area.
                reviewing local governments comprehensive plans and                                     that require restoration or mitigation.                                                                 		[2] Objectives are unmeasurable and should be re-
                ordinances, and recommending appropriate amendments to                         3.    Develop an exotic plant control and removal plan                                                        		written so they reflect "A specific, Imeasurable,
                accomplish the above objectives.                                                      following monitoring.                                                                                   		intermediate end that is achievable and marks
               Promote environmental sound local and state comprehensive                       4.    Develop a cumulative impact analysis program for                                                        		progress toward a goal".
                plans, inclusive of land use plans for preservation of habitats                       analyzing proposed uses within the aquatic preserve.                             		Pol. 4.1.1.2	      Prohibit alteration of coastal wetland habitat except
                                                                                                         
                and land tracts.                                                         (7)    Prohibit the drillin of oil and gas wells, the mining of                                                     		in instances of proposed water-dependent uses,
                                                                                                                   
                                                                                                materials, and dredging for the primary purpose of                                                             		overriding public interest, deepwater ports or to avoid
             1.c. Laws and Permitting Review: evaluate adequacy of existing                     obtaining upland fill within the aquatic preserve.                                                            		a taking.
             zoning laws, environmental laws and permitting processes as                 (J)    Prohibit non-water dependent uses of submerged lands                                                          		[3] The county should carefully weigh these
             related to land use and environmental resources.                                   within the aquatic preserve except in those cases where the                                                       	exceptions.  Future activities of this type should be
                                                                                                Board has determined that the project is overwhelmingly in                                                      		sited in areas that have already been disturbed,
               Evaluate existing local, state, and federal laws concerning                       the public interest and no reasonable alternatives exist.                                                     		especially deepwater port facilities.
                land use and the permitting process (inclusive of agricultural                  This prohibition shall include floating residential units, as                     	4-2      Pol. 4.1.1.3       		Require any encroachments into wetlands be
                uses).                                                                          defined in Section 125.0106(6), F.S.                                                                          		mitigated pursuant to the habitat specific mitigation
               Promote and/or draft revisions of existing local, state, and               (K)    Prohibit storage of toxic, radioactive, or other hazardous                                                    		ratios described and require monitoring of mitigation
                federal laws concerning land use and the permitting process                    materials within the aquatic preserve. Any hazardous waste                                                    		success.
                (inclusive of agricultural uses). This will be accomplished                    dumps now located within the aquatic preserve should be
                                                                                                                                                                                                 				[3]The county is urged to take a stronger stand on
		   through the development of model ordinances in addition to                      closed and eliminated.                                                                                        		mitigation.  It should be upfront and be monitored for
                   specific proposed amendments.                                            (T)    Require, through the efforts of DER and SWFWMD, the                                                           		the prescribed number of years.  Areas used for
               Evaluate, promote, and/or draft improved laws for mitigation                    maintenance and upgrading of the water quality of the                                                         		mitigation should, at the outset of development
                policies and practices, specifically addressing action to be                    estuary and ensure the natural seasonal flow fluctuations of                                                  		become conservation sites and property of county to
                followed if unanticipated impacts are detected after the fact:                    fresh water into the estuary. In particular encourage the                                                     		not be further developed.
                mitigation banking should be evaluated as should criteria for                   Department of Environmental Regulation and the                                    	4-4      PoL 4.1.1.8        		Reuire 50 ft. buffer zones for post-dev.
                monitoring and determining the success of the project.                          Environmental Regulatory Commission to extend OFW                                                             		jurisdiction wetlands on development sits w/i CA
                                                                                                designations to wetlands above the MHW fine in areas                                                          		contiguous w/any special waters.
             1.d. Developmental Designs and Practices: promote                                  within or adjacent to the aquatic preserve.                                       	4-5      Pol. 4.1.1.9       		Review all proposed developments for compatibility
             environmentally sound projects and practices.                                                                                                                                                    		w/ and determination of cumulative impacts on
                                                                                                                                                                                                              		adjacent natural resource reservation areas.
                Promote use of existing natural features and native plant                                                                                                                                     		[3] Cumulative impacts are extremely difficult to
                species for landscaping and habitat, with special emphasis an                                                                                                                                 		define and measure.  A policy statement on a working
                use of transportation programs and xeriscaping practices as                                                                                                                                   		definition of cumulative impacts is needed to begin
                well as the establishment of wildlife corridors.                                                                                                                                              		measuring how minor impacts combine into major
               Promote and/or draft zoning and environmental laws                                                                                                                                           		damages.  This policy should state that the working
                requiring increased buffer zones, setback requirements.                                                                                                                                     		definition is subject to updating as newer methods
                habitat retention, transplantation, xeriscaping practices. and                                                                                                                                		are available to more accurately measure these
                wildlife corridors and requiring reductions in project                                                                                                                                        		activities.
                densities, percent impervious surfaces, use of chemicals, and                                                                                                    4-8      Pol. 4.1.2.8       		Require all proposed development adjacent to the
                use of non-native plant species. These objectives will be                                                                                                                                   		TCAP ensure that no significant degradation of water
                implemented through the following series of projects: (i)                                                                                                                                    		quality, shoreline or estuarine habitat occurs.  DNR
                review local comprehensive plans and land use ordinances                                                                                                                                      		will review all development applications.
                and recommend appropriate revisions, (ii) prepare model                                                                                                                                  			[3] The addition of the removal of sewage effluent at
                ordinances, and (iii) review District rules pertaining to land                                                                                                                                   		Tropical Isles and the placing of all dwellings on a
                use and development practices.                                                                                                                                                                		sewer line rather than on septic tanks.
               By examining incentives such as tax reductions, or mitigation
                banking, stimulate redevelopment of existing projects to
                reduce environmental impacts and improve habitat values.
           (continues)






            Issue#4: Urbanization/Land Use/Wildlife Habitat [SWIM & AP)
            Tampa Bay SWIM Plan                                                          Terra Ceia Aquatic Preserve                                                  Manatee County Comprehensive Plan
            Initiatives, Programs, & Strategies                                            Management Policy Directives                                                  Element   	Pg        GOP             	Discription
            NATURAL SYSTEM INITIATIVE 1                                                                                                                              	  CM        4-11    Obj. 4.2.1             Est. land use criteria giving priority to siting and dev-
            Preserve, enhance, and/or restore upland, riverlee, intertidal                                                                                                                                    of water-depend, uses w/i the Coastal area, as
            and subtidal habitat for 1) biological communities, 2)                                                                                                                                              compared with other shoreline uses.
            pollution abatement, and 3) aesthetic and recreational                                                                                                                                              [3] Not all water-depend. uses are compatible w/
            purposes.                                                                                                                                                                                           natural shorelines.  These areas should be set aside
                                                                                                                                                                                                               and ports, industry, marinas, non-water-depend, uses
            1.a. Preservation of Existing Habitats: promote the preservation                                                                                                                                   and all the activities in 4.2.1.1(5) should be
            of relatively pristine or functional habitats already in existence.                                                                                                                                prohibited there.
                                                                                                                                                                                                               [2] Objectives are unmeasurable and should be re-
            ï¿½ Promote more stringent local, state, And federal legislation to                                                                                                                                   written so they reflect "A specific, measurable,
              protect habitats. stressing consistency Among governments.                                                                                                                                       intermediate end that is achievable and marks
              Local government regulations will be emphasized initially                                                                                                                                         Progress toward a goal".
                                                                                                                                                    
		 through District review and advice on developmental                                                                                                                  4-11     Pol. 4.2. 1.1      Utilize the following priority list in reviewing
              practices permitted by local rules and through preparation of                                                                                                                                    applications for shoreline uses, so as to provide
              model ordinances.                                                                                                                                                                                increased priority for water-dependent uses.
             Promote environmentally sound local, regional, And state                                                                                                                                         [11] Policy identifies and prioritiezes a list of water-
                                                                                                                                                                                                                              
              comprehensive plans, inclusive of preservation categories.                                                                                                                                       dependent uses and the first priority group includes
              Because of deadlines imposed on local governments by the                                                                                                                                         possible incompatible uses (i.e., wildlife and
              state, emphasis will be placed on reviewing and advising                                                                                                                                         marinas).
              local governments regarding comprehensive plans.                                                                                                                    4-14 	Pol. 4.2.1.6        Establish minimum construction setback lines for all
             Promote enforcement of existing laws protecting habitats                                                                                                                                         Coastal Areas which have not been delineated for a
              through funding incentives for local government                                                                                                                                                  Coastal Construction Line by 1993.
              environmental enforcement and compliance monitoring                                                                                                                4-20 	Obj. 4.3.2             Limit development density and intensity w/i the
              programs.                                                                                                                                                                                         CHHA and direct it outside the CHHA.
             Promote enforcement of permit stipulations mandated by                                                                                                               4-33     PbL 4.5.1.5        Ensure that no development or redevelopment
              local, state, And federal agencies (inclusive of compliance                                                                                                                                       activities adversely affect the TCAP.
              monitoring) through funding incentives for local government                                                                                                                                      [1] A policy that addresses cumulative impacts of
              environmental protection programs.
                                                                                                                                                                                                       		dev. and redev. upon water quality and living marine
             Promote and/or conduct public education programs (i.e.,                                                                                                                                            organisms has not been included.
              television, radio, newspaper, area magazines, speakers                                                                                           CONS         3-24     Obj. 3.37          		Protect native wildlife and their habitat from
              bureaus, public schools, civic groups, homeowners'                                                                                                                                                development which would significantly alter their
              associations, public/guidebooks And handouts, continuing                                                                                                                                         function and character.
              education courses, etc.); efforts designed to teach people the                                                                                                       3-25     Pol. 5.3.7.1       Require the preservation of native habitat during land
              importance of leaving habitats intact.                                                                                                                                                           development activities.
             Support existing    acquisition programs such as Save Our                                                                                                               3-31     PbL 3.3.7.9        Permit and encourage the designation of env.
              Rivers (SOR) and Conservation And Recreational Lands                                                                                                                                             sensitive areas as "Conservation Lands" on the
              (CARL).                                                                                                                                                                                          Future Land Use Map, as long as this does not
             When appropriate, cooperate with environmental groups and                                                                                                                                        constitute a taking w/o compensation.
              local, state, And federal governments and agencies in the                                                                                                                                         [6] Though not w/i incorporated Palmetto, the
              purchase of lands by identifying areas in need of preservation                                                                                                                                    extensive mangroves on Sneed Is. and along Terra
              and contributing to their purchase.                                                                                                                                                                Ceia Bay should be designated as Conservation on
             Encourage and support private donations of funds and land                                                                                                                                        the FLU Map.
              parcels, parks, etc., as well as passing of local taxing                                                                                                                                         [10] A policy is needed to selectively prohibit the
                                                                                                                                                                                                                       
              initiatives.                                                                                                                                                                                     expenditure of public funds for new roads in such 
             Strategically place channel markers and educational signs for                                                                                                                                    areas might be given consideration in order to 
              the public an boaters.                                                                                                                                                                           protect such lands.
                                                                                                                                                                                                               [11] Policy does not identify the process through
            1.b. Augmentation of Existing Habitats: expand and/or exchange                                                                                                                                      which a parcel of land is designated as
            existing habitats as replacement for habitat losses throughout the                                                                                                                                   "environmentally sensitive" and should be explicit in
            bay, tributaries, and associated uplands.                                                                                                                                                          listing those env. attributes where such a designation
                                                                                                                                                                                                               is in the public interest.
             Expand habitats such as salterns, mud flats, seagrass beds,                                                                                                          3-32 PoL 3.3.7.10           Encourage the development or preservation of
              salt marshes, mangrove forests, and uplands As well a some                                                                                                                                        wildlife corridors through IGC and TDRs.
               components of spoil islands by selecting high priority projects
              and funding cost-effective augmentation designs.
             Use appropriate native plants to supplement habitats offered
              by spoil islands as well as those of subtidal, intertidal,
              riverine, and adjacent upland areas.

            (continues)


                                                                                                                                    6


0

                                                                                                                               
            Issue#4: UrbanizationALand Use/Wildlife Habitat [SVVI & ApI
            Tapa Bay SWI Plan                                                      Terra Ceia Auatic Preserve                                               anatee C unty Coprehe8n
            Initiative% Progran0n & Strategies                                         anageent Policy Directives                                             Eleent Pit         IGOP               Descri0pt2io
               Eradicate non-native or Cologically undesirable vegetation                                                                                     TC          5-48     Pol. 5.2.4.3      l"ate r0igh
               f suldal, intertidal, rivere and nearby upland a-, and
               replace with         .                                                                                                                                                                in;.!cts an
                            wr%j- native species.
             Dn and strategically Place Utificial rech throughout the                                                                                                                                 es
               bay and its tributaries.                                                                                                                        REC0&OS      10-15    POL 10.3.1.1      rcourgc I
             Expand oyster beds through additio of adch.                                                                                                                                            in settings
                                                                                                                                                                                                      bripleenta
            I c Restoration of Habitats: restore habitats as fcpiant for                                                                                                                          ate fdL
            habitat losses throughout the bay, Uilarits and adjaft                                                                                                                                   Encourage
            uplands.                                                                                                                                                                                  in settings
                                                                                                                                                                                                      finpleents
               Rtrt habitats such as uplands, riverine Areas. salt arshes,                                                                                                                        state funds.
               angrove stanc, seagFass beds, oyster e4h, and ud flats as
               well as restoration utilizing existing spoil islands by selecting
               high priority pfo2*-u and fiuWing cost-efffive restoration
               designs.











































                                                                                                                               7
 




          Issue#5: Agricultural Activities and Effects on Water Quality and Living Resources (AP)
          Tampa Bay SWIM Plan                                                  Terra Ceia Aquatic Preserve                                         Mantee County Comprehensive Plan                     
          Initiatives, Programs, & Strategies                                  Management Policy Directives                                        Element Pg  GOP                    Description
          DEVELOPMENT AND PUBLIC USE INITIATIVE 1                              (1) Require, through the efforts of DER and SWFWMD, the             CM      4-8 Pol 4.1.2.10           Require all agricultural activites contiguous to, or
          Reduce point and nonpoint source pollutant leading to attain             maintenance and upgrading of the water quality of the                                              that have runoff discharging to, the TCAP and
          water quality necessary to restore and maintain healthy and              estuary and ensure the natural seasonal flow fluctuations of                                       Sarasota Bay OFW to implement a program of BMPs
          productive natural systems, protect human health, and to                 fresh water into the estuary. In particular encourage the                                          by 1995.
          attain the highest possible water use classification.                    Department of Environmental Regulation and the                                                     (13) Where agricultural uses include silviculture, the
          l.d. Agricultural Stormwater Management                                  Environmental Regulatory Commission to extend OFW                                                  Division of Forestry should be the primary agency
          *  Develop soil and water conservation plans employing Best              designations to wetlands above the MHW line in areas                                               concerning forest mgmt, plan review and
             Management practices for agricultural, aquacultural and               within or adjacent to the aquatic preserve                                                         implementing of BMPs.
             silvicultural operations in the Tampa Bay watershed. Priority
             sub-basins will be identified by the District; conservation
             plans Will be developed for landowners in priority sub-basins
             by the Soil Conservation Service with assistance from the
             district and local soil and water conservation districts.
          *  Ensure compliance with approved conservation plans through
             establishment of new positions within the district with
             responsibility for compliance monitoring and enforcement.
          *  Reduce the levels of nutrients and other contaminants in
             agricultural stormwater discharges by requiring if feasible,
             that the quality of stormwater discharges be no worse than the
             state water quality criteria or the existing quality of the
             receiving water body, whichever is better. The feasibility of
             implementing this objective will be examined through a
             review of federal, state, District, and local rules pertaining to
             storm water mangement.

          DEVELOPMENT AND PUBLIC USE INITIATIVE AND
          PROGRAMS

          INITIATIVE 1
          Provide sound environmental policies governing land use
          which impact the Tampa Bay ecosystem.
          La. Encourage Appropriate Land Use: at the local, state, and
          federal level. encourage appropriate development or agricultural
          use of land bordering the bay and its tributaries.

          * Promote limiting or preventing land alterations via incentives
            such as tax reductions, density tradeoffs, or transfers or
            purchases of developmental rights.  Appropriate policies and
            regulations will be developed by the District for consideration
            by local governments through the review of comprehensive
            plans and through preparation of model ordinances.
          * Promote designations of increased buffer zones, setback
            requirements, wildlife corridors, and conservation casements
            reviewing local governments comprehensive plans and
            ordinances, and recommending appropriate amendments to
            accomplish the above objectives.
          * Promote environmental sound local and state comprehensive
            plans, inclusive of land use plans for preservation of habitats
            and land tracts.












                                                                                                                      8
 





        Issue#6 Mosquito Control Activities and Effects on Water Quality and Living Resources (AP)
        Tampa Bay SWIM Plan                                   Terra Ceia Aquatic Preserve                                        Manatee County Comprehensive Plan
        Initiatives, Programs, & Strategies                   Management Policy Directives                                       Element Pg   GOP    Description
                                                              (L)  Prohibit mosquito control practices within the aquatic
                                                                   preserve that require habitat modification or manipulation
                                                                   (i.e., diking, ditching) unless there at no reasonable
                                                                   alternatives and failure to conduct such practices would
                                                                   result in a threat to public health.
                                                              (M)  Limit pesticide and biocide use within the aquatic preserve
                                                                   to those that are approved by the Environmental Protection                                                                                                                                                                  
                                                                   Agency (USEPA) for wetland and aquatic application.    I









































                                                                                             9
 






             Issue#7:          Destruction/decline of Seagrasses                          
             Tampa Bay SWIM Plan                                                              Terra Ceia Aquatic Preserve                                               Manatee County Comprehensive Plan                                                                                                          
             Initiatives, Programs & Strategies                                               Management Policy Directives                                              Element  Pg   GOP                Discription
		 NATURAL SYSTEM INITIATIVE I                                                      (D)  Protect and, where possible, enhance threatened and                  CM       4-1  Pol.4.1.1.1.       Prohibit non-water dependent development in                                                                  
             Preserve, enhance, and restore upland, riverine, Intertidal                           endangered species habitat within the aquatic preserve.                                               submerged areas containing significant seagrass.                                                                                               
             and subtidal for 1) biological communities, 2)                                        Selected Additional Onsite Policies & Procedures:                                                     (3) The words "significant" and "adversely affect"                                                      
             purposes.                                                                             activities using submerged lands within the aquatic                                                   need to be defined. "Significant" should be definted
                                                                                                   preserve in areas where manatees are Present.                                                         both on a local (Manatee Co.) and a regional
             I.a Preservation of Existing Habitats: promote the preservation                       (Additional restrictions may apply.)                                                                  (Tampa Bay) basis.
             of relatively pristine of functional habitats already in existence.              (E)  Prohibit development activities within the aquatic preserve                                           (2) Objectives are unmeasurable and should be re-
                                                                                                   that adversely impact saltmarshes and other valuable                                                  written so they reflect "A specific, measurable,
             * Promote more stringent local, state, and federal legislation to                     submerged habitat unless a prior determination has been                                               intermediate and  that is achievable and marks 
               protect habitats, stressing consistency among governments.                          made by the Board of overriding public importance and                                                 progress toward a goal".
               Local Government regulations will be emphasized initially                           that no reasonable alternatives exist.                                            4.5  Pol.4.1.1.10   Designate all significant seagrass habitat as idle-     
               through District review and advice on developmental                                 Selected Additional Onsite Policies & Procedures:                                                     speed zones.
               practices permitted by local rules and through preparation of                       1. Identify mid develop guidelines for areas and plant                                 Pol.4.1.1.11   Prohibit the location of new boat ramps in areas of
               model ordinances.                                                                      communities in need of restoration.                                                                significant  seagrass flats.  
             * Promote environmentally sound local, regional, and age                              2. Discourage developments within the aquatic preserve
               comprehensive plans, inclusive of preservation categories.                             that require restoration or mitigation.
               Because of deadlines imposed on local governments by the                            3. Develop an exotic plain control and removal plan
               state, emphasis will be placed on reviewing and advising                               following monitoring.
               local governments regarding comprehensive plans.                                    4. Develop a cumulative impact analysis program for
             * Promote enforcement of existing laws protecting habitats                               analyzing proposed uses within the aquatic preserve.
               through funding incentives for local government                               (I)   Prohibit the drilling of oil and gas wells, the mining of
               environmental enforcement and compliance monitoring                                 materials, and dredging for the primary purpose of
               programs.                                                                           obtaining upland fill within the aquatic preserve.
             * Promote enforcement of permit stipulations mandated by                        (J)   Prohibit non-water dependent uses of submerged lands
               local, state, and federal agencies (inclusive of compliance                         within the aquatic preserve except in those cuts where the
               monitoring) through funding incentives for local government                         Board has determined that the project is overwhelmingly in
               environmental protection programs.                                                  the public interest and no resonable alternatives exists.
             * Promote and/or conduct public education programs (ie.,                              This Prohibition shall include floating residential units, as
               television, radio. newspaper. area magazines, speakers                              defined in Section 125.0106(6), F.S.
               bureaus, public schools, civic groups, homeowners-                            (M)   Limit pesticide and biocide use within the aquatic preserve
               associations, public/guidebooks and handouts, continuing                            to those that are approved by the Environmental Protection
               education courses, etc); efforts designed to teach people the                       Agency (USEPA) for wetland and aquatic application.
               importance of leaving habitats intact.                                        (N)   Prohibit the construction of new deepwater ports within the
             * Support existing acquisition programs such as Save Our                              aquatic preserve boundaries.
               Rivers (SOR) and Conservation and Recreational Land,
               (CARL).
             * When appropriate, cooperate with environmental group and
               local, state, and federal governments and agencies in the
               purchase of lands by identifying areas in need of preservation
               and contributing to their purchase.

          (continues)


















                                                                                                                                  






           Issue#7:          Destruction/decline of Seagrasses
           Tampa Bay SWIM Plan                                                     Terra Ceia Aquatic Preserve                                             Manatee County Comprehensive Plan
           Initiatives, Programs, & Strategies                                     Management Policy Directives                                            Element  Pg  GOP      Description
           * Encourage and support private donations of funds and land
             parcels, parks. etc., as well as passing of local taxing
             initiatives.
           * Strategically place channel markers and educational signs for
             the public and boaters.

           1.b.Augmentation of Existing Habitats: expand and/or exchange
           existing habitats as replacement for habitat losses throughout the
           bay, tributaries, and associated uplands.

           * Expand habitats such as saltems mud flats, seagrass beds,
             Salt marshes, mangrove forests, and uplands as well as some
             components of spoil islands by selecting high priority projects
             and funding cost-effective augmentation designs.
           * Use appropriate native plans to supplement habitats offered
             by spoil islands as well as those of subtidal, intertidal,
             riverine, and adjacent upland areas.
           * Eradicate non-native or ecologically undesirable vegetation
             from subtidal, intertidal, riverine and nearby upland areas and
             replace with appropriate native species.
           * Design and Strategically place artificial reefs throughout the
             bay and its tributaries.
             Expand oyster beds through additions of culch.
           I.c. Restoration of Habitats: restore habitats as replacement for
           habitat losses throughout the bay, tributaries and adjacent
           uplands.
           * Restore habitats rich as uplands, riverine areas, salt marshes,
             mangrove stands, seagrass beds, oyster reefs, and mud flats as
             well as restoration utilizing existing spoil islands by selecting
             high priority projects and fund cost-effective restoration
             designs.
           * Restoration in lieu of or supplemental to sea walls.
           * Create littoral shelves via dredging and filling, perhaps in
             concert with planters boxes and breakwater structures.
           * Evaluate filling borrow pits within the bay, thereby creating
             additional euphotic habitat.
           1.d. Sediment Stabilization: address sedimentological problems
           of the Tampa Bay System.
           * Reduce turbidity via programs 1a-c coupled with alternative
             technologies (e.g., dredging).

           DEVELOPMENT AND PUBLIC USE INITIATIVE 3
           Reduce incidental destruction of environmentally sensitive
           areas.

           3.a. Signs and Markers: Distribution of visual and educational
           aids throughout the bay.

           * Provide marking of small boat channels in problematic or
             environmentally sensitive arm (eg., seagrass beds, oyster
             reefs, etc.).
           * Provide educational sips concerning environmentally
             sensitive areas; sips to be placed at boat ramps, public
             beaches, nature preserves, public parts, valuable habitats such
             as seagrass beds, algae beds, oyster reefs, artificial reefs.
             restoration Projects, and areas frequented or inhabited by
             protected species (eg.. osprey, eagles. dolphins, sea turtles,
             manatees. etc.).
 





             Issue #8: Dredging and Disposal of Dredge Materials [SWIM & AP]
             Tampa Bay SWIM Plan                                                                Term Ceia Aquatic Preserve                                                Manatee County Comprehensive Plan
             Inititives, Programs, & Strategies
  				                                                                       Management Policy Directives                                                 Element      Pg           GOP                    Description
             NATURAL SYSTEMS INITIATIVE I
             Preserve, enhance, and/or restore upland, riverine, Intertidal                    (E)  Prohibit development activities within the aquatic preserve             CM           4-7          Pol. 4.1.2.5           Restrict D&F operations within the coastal area to
             and subtidal habitats for 1) biological communities, 2)                                that adversely impact saltmarshes and other valuable                                                                     operations which facilitate the continuing use of                                                                                                      intertidal, submerged, and emergent habitats unless a prior                                                  
             purposes.                                                                         determination has been made by the Board of overriding                                                                        existing channels, water-dependent uses, or to correct
                                                                                               public importance and that no reasonable alternatives exist.                                                                  circulation or other deficiencies.
                                                                                               Selected Additional 0nsite Policies & Procedures:
             1. a. Preservation of Existing Habitats: promote the Preservation                 1.    Identify and develop guidelines for areas and plant                                 4-7          Pol. 4.1.2.6           Limit construction of artificial waterways to
             of relatively pristine or functional habitats already in existence.                     commiunities in need of restoration.                                                                                    necessary drainage improvements required to 
                                                                                               2.    Discourage developments within the aquatic preserve                                                                     implement the goals of the Public Facilities Element.
                                                                                                     that require restoration or mitigation.                                             4-12         Pol. 4.2.1.2           Prohibit dredging and filling of submerged lands,
               Promote more stringent local, state, and federal legislation to                 3.    Develop an exotic plant control and removal plan                                                                        except for uses classified and prioritized in Policy
               protect habitats, stressing consistency among governments.                            following monitoring.                                                                                                   4.2.1.1 as water dependent.  All D&F applications w/i
               Local government regulations will be emphasized initially                       4.    Develop a cumulative impact analysis program for                                                                        or adjacent to the TCAP shall be submitted to DNR 
               through District review and advice on developmental                                   analyzing proposed uses within the aquatic preserve.                                                                    for comments which will be considered by Manatee                                                                                                                                
               model ordinances.                                                                                                                                                                                             County during project review.                                               
                                                                                           (I) Prohibit the drilling of oil and gas wells, the mining of
                                                                                               materials, and dredging for the primary purpose of 
                                                                                               obtaining upland fill within the aquatic preserve.                                                     Pol. 4.2.1.3           Require the management of developments that 
                                                                                           (N) Prohibit the construction of new deepwater ports within the 
                                                                                               aquatic preserve boundaries.                                                                                                  require D&F to prevent further degradation of                                                                                                                                                     (O) Prohibit any activity commercial or recreational that might
             1. c. Restoration of Habitats: restore habitats as replacement for                impact the integrity of hard bottom communities within the                                                                    adjacent waters and to insure placement of spoil on 
             habitat losses throughout the bay. tributaries and adjacent                       aquatic preserve.                                                                                                             suitable upland areas.
             uplands.                                                                      (Q) Manage spoil islands within the aquatic preserve as bird
                                                                                               rookeries and wildlife habitat areas.
               Restore habitats such as uplands, riverine areas, salt marshes,             (T) Require, through the efforts of DER and SWFWMD, the 
               mangrove stands, seagrass beds, oyster reefs and mud flats as                   maintenance and upgrading of the water quality of the 
               well as restoration utilizing existing spoil - lands by selecting               estuary and ensure the natural seasonal flow fluctuations of 
               high priority projects and funding cost-effective restoration                   fresh water into the estuary.  In particular encourage the 
               designs.                                                                        Department of Environmental Regulation and the 
               Restoration in lieu of or. supplemental to sea walls.                           Environmental Regulatory Commission to extend OFW
               Create littoral shelves via dredging and filling, perhaps in                    designations to wetlands above the MHW line in areas
               concert with planters boxes and break water structures.                         within or adjacent to the aquatic preserve.
               Evaluate filling borrow pits within the bay, thereby creating               (W) Prohibit Marinas and associated construction activities in
               additional euphotic habitat.                                                    Resource Protection Areas 1 and 2.
                                                                                              
          1. e. Marinas: evaluate environmental impacts of marinas within                     
             Tampa Bay and its tributaries.                                                  
               Evaluate environmental impacts of existing marinas.                            
               including impacts on manatees and other protected species.
               Develop a marina siting plan.
               Evaluate and promote improved marina designs and facilities.
               specifically addressing problems of fuel storage, sewage
               bilge pumping, solid waste, dredging, and related problems.











                                                                                                                                  12
 





            Issue #9:  Wetlands [SWIM & AP]
            Tampa Bay SWIM Plan                                                          Terra Ceia Aquatic Preserve                                                                Manatee County Comprehensive Plan                          
            Initiatives, Programs, & Strategies                                          Management Polky Directives                                                                Element          Pg             GOP              Description
            NATURAL SYSTEM INITIATIVE 1                                                  (D)  Protect and, where possible. enhance threatened and                                   CONS             3-12          Pol. 3.3.1.1      Prohibit removal of native vegetation with 50 ft of
            Preserve enhance, and/or restore upland, riverine, intertidal                     endangered spades habitat within the aquatic preserve.                                                                                 wetlands contiguous to AP/OFW.
            and subtidal habitats for 1) biological communities, 2)                           Selected Additional Onsite Policies & Procedures:                                                                    Pol. 3.3.1.2      Prohibit removal of native vegetation within 30 ft of
            pollution abatement, and 3) aesthetic and recreational                            1. Require additional authorization and approval for                                                                                   wetlands not listed in Policy 3.3.1.1.
            purposes.                                                                            activities using submerged lands within the aquatic                                                               Pol. 3.3.1.3      Encourage us of bio. treatment w/i man-made
                                                                                                 preserve in areas where manatees are present.                                                                                       storm water detention ponds and permit the use of 
            1.a. Preservation of Existing Habitats: promote the preservation                     (Additional restrictions may apply.)                                                                                                isolated wetlands for storm water treatment in dev.
            of relatively pristine or functional habitats already in existence.          (E)  Prohibit development activities within the aquatic preserve                                                                            that discharges into OFW/SHA.
                                                                                              that adversely impact saltmarshes and other valuable                                                                                   [3] Future man-made stormwater detention facilities
              Promote more stringent local, state. and federal legislation to                 intertidal, submerged, and emergent habitats unless a prior                                                                            should be designated so that runoff will not be 
              protect habitats, stressing consistency among governments.                      determination has been made by the Board of overriding                                                                                 discharged directly into OFW or SHAs. Existing              Local government regulations will be emphasized initially                       public importance and that no reasonable alternatives exist                                                      
              through District review and advice on developmental                             Selected Additional Onsite Policies & Procedures:                                                                                      facilities should retrofitted as they come in for re-

              practices permitted by local rules and through preparation of                     1.     Identify mid develop guidelines for areas and plant                                            3-21         Pol. 3.3.6.2      Prohibit D&F activities w/i wetlands unless 
              model ordinances.                                                                        communities in need of restoration.                                                                                           consistent w/Pols. 4.1.2.5 and 4.1.2.6 and unless
              Promote environmentally sound local, regional, and state                          2.     Discourage developments within the aquatic preserve                                                                           adequate mitigation of any adverse alterations and 
              comprehensive plans, inclusive of preservation categories.                               that require restoration or mitigation.,                                                                                      approp. justification made.
                                                                                                                                                                                                                                     [3] Section 18-30.004 (1)(e-d), F.A.C. limit D&F
              Because of deadlines imposed on local governments by the                          3.     Develop an exotic plant control and removal plan                                                                              activities ina dquatic preserves.  A policy statment              state, emphasis will be placed on reviewing and advising                                 following monitoring.                                                                                      
              local governments regarding comprehensive plans.                                  4.     Develop a cumulative impact analysis program for                                                                              should be included to reflect these limitations.
              Promote enforcement of existing laws protecting habitats                                 analyzing proposed uses within the aquatic preserve.                                                                          "Adequate mitigation" and "appropriate 
              through funding incentives for local government                            (F)    Prohibit the trimming and/or removal of salt marsh                                                                                   justification" need to be defined so they are legally
              environmental enforcement and compliance monitoring                               vegetation and other natural shoreline vegetation within the                                                                         defensible.
              programs                                                                          aquatic preserve, except when necessitated by the pursuit                                                                            [11] Policy does not contain adequate criteria to 
              Promote enforcement of permit stipulations mandated by                            of legally authorized projects and local protection                                                                                  protect or mitigate the loss of a wetland's wildlife
              local, state, and federal agencies (inclusive of compliance                       ordinances.                                                                                                                          values. Any mitigation proposal should also be
              monitoring) through Funding incentives for local government                (I)    Prohibit the drilling of oil and gas wells, the mining of                                                                            evaluated for its replacement of lost wildlife
              environmental protection programs.                                                materials, and dredging for the primary purpose of                                                                                   utilization.
              Promote and/or conduct public education programs (ie.,                            obtaining upland fill within the aquatic preserve.                                                   3-22         Pol. 3.3.6.4       Establish buffer zones or setbacks around post-dev.

                                                                                                                                    
              television. radio, newspaper, area magazines. speakers                     (T)    Require, through the efforts of DER and SWFWMD, the                                                                                  wetlands (natural & mitigated) pursuant to the 
              bureaus, public schools, civic groups. homeowners'                                maintenance and upgrading of the water quality of the                                                                                restrictions in Policies 3.3.1.1 and 3.3.1.2.
              associations, public/guidebooks and handouts, continuing                          estuary and ensure the natural seasonal flow fluctuations of                                                                         [3] The terms "all wetland mitigation" should be 
                                                                                                                                                                                                                                     "all previous and future wetland mitigation sites".
              education courses, etc.); efforts designed to teach people the                    fresh water into the estuary.  In particular encourage the
              importance of leaving habitats intact.                                            Department of Environmental REgulation and the                                                                                       The implementation mechanism should then closely
              Support existing acquisition programs such as Save Our                            Environmental Regulatory Commission to extend OFW                                                                                  define these areas and should set forth a plan to map
              Rivers (SOR) and Conservation and Recreational Lands                              designations to wetlands above the MHW line in areas                                                                                 all wetland mitigation activities and their setbacks so
              (CARL).                                                                           within or adjacent to the aquatic preserve.                                                                                          that a monitoring program can be implemented by 
              When appropriate. cooperate with environmental groups and                                                                                                                                                              the county or a state agency.
              local, state, and federal governments and agencies in the                                                                                                                              3-23        Pol. 3.3.6.6        Support all efforts to restore man-altered wetland
              purchase of lands by identifying areas in need of preservation                                                                                                                                                         systems within developments.
              and contributing to their purchase.                                                                                                                                                                                    [3] If possible, the county should provide incentives
              Encourage and support private donations of funds and land                                                                                                                                                              in dev. activities for setting aside areas for 
              parcels, parks, etc., as well as passing of local taxing                                                                                                                                                               restoration at this time, but restoration activities
              initiatives.                                                                                                                                                                                                           often shall for lack of good sites.
                                                                                                                                                                                                                  
              Strategically place channel markers and educational signs for                                                                                                                          3-23        Pol. 3.3.6.8        Require that any wetland encroachments be mitigated
              the public and boaters.                                                                                                                                                                                                pursuant to the habitat-specific mitigation ratios
                                                                                                                                                                                                                                     described and require monitoring of mitigation
            1.b. Augmentation of Existing Habitats: expand and/or exchange                                                                                                                                                           success.
            existing habitats of replacement for habitat losses throughout the                                                                                                                                                       [3] A further statement is necessary here to clarify
            bay, tributaries, and associated uplands.                                                                                                                                                                                that encroachments into the Aquatic Preserves are 
                                                                                                                                                                                                                                     not allowed accept when the activity is in the public
              Expand habitats such as saltems, mud flats, seagrass beds.                                                                                                                                                             interest and meets the management policies.
              salt marshes, mangrove forests, and uplands as wall as some                                                                                                                                                            standards and criteria set forth in 18-20.004, F.A.C.
              components of spoil islands by selecting high priority projects                                                                                                                                                        [11] The mitigation criteria should also inclue a
              and funding cost-effective augmentation designs.                                                                                                                                                                       requirement that all created wetlands be of similar
              Use appropriate native plants to supplement habitats offered                                                                                                                                                           plant diversity and composition as the original
              by spoil islands as well as those of subtidal, intertidal,                                                                                                                                                             wetland being mitigated, ensuring that the wetland's
              riverine, and adjacent upland areas.                                                                                                                                                                                   wildlife values shall be replaced. 
            (continues)                                                                I                                                                                                                         (continues)


                                                                                                                                    13
 




                                                                                              
             Issue#9: Wetlands [SWIM & AP]
             Tampa Bay SWIM Plan                                                           Terra Ceia Aquatic Preserve                                            Manatee County Comprehensive Plan
             Initiatives, Programs, & Strategies                                           Management Policy Directives                                           Element           Pg              GOP            Description
                Eradicate non-native or ecologically undesirable vegetation                                                                                       CM                4-1             Obj. 4.1.1     Protection and enhancement of significant vegetative
                from subtidal, intertidal, riverine and nearby upland areas and                                                                                                                                    communities which support wildlife in the Coastal
                replace with appropriate native species.                                                                                                                                                           Area.
                Design and strategically place artificial reefs throughout the                                                                                                                                     [2] Objectives are unmeasurable and should be re-
                bay and its tributaries.                                                                                                                                                                           written so they reflect "A specific, [measurable,
                Expand oyster beds through additions of culch.                                                                                                                                                     intermediate end that is achievable and marks
                                                                                                                                                                                                                   progress toward a goal".
             1.c. Restoration of Habitats: restore habitats as replacement for                                                                                                                      Pol. 4.1.1.2   Prohibit alteration of coastal wetland habitat except
             habitat losses throughout the bay, tributaries and adjacent                                                                                                                                           in instances of proposed water-dependent uses,
             uplands.                                                                                                                                                                                              overriding public interest, deepwater ports or to avoid
                                                                                                                                                                                                                   a taking.
                Restore habitats such as uplands, riverine areas, salt marshes.                                                                                                                                    [3] The county should carefully weigh these
                mangrove stands, seagrass beds, oyster reefs, and mud flats as                                                                                                                                     exceptions.  Future activities of this type should be 
                well as restoration utilizing existing spoil islands by selecting                                                                                                                                  sited in areas that have already been disturbed,
                high priority projects and funding cost-effective restoration                                                                                                                                      especially deepwater port facilities.
                designs.                                                                                                                                                             4-2            Pol. 4.1.1.3   Require any encroachment into wetlands be                                                                                                                                                                                                                    .quire any
                Restoration in lieu of or. supplemental to sea walls.                                                                                                                                              mitigated pursuant to the habitat-specific mitigation
                Create littoral shelves via dredging and filling, perhaps in                                                                                                                                       ratios described and require monitoring of mitigation
                concert with planters boxes and breakwater structures.                                                                                                                                             success.
                Evaluate filling borrow pits within the bay, thereby creating                                                                                                                                      [3] The county is urged to take a stronger stand on 
                additional euphotic habitat.                                                                                                                                                                       mitigation.  It should be upfront and be monitored for 
                                                                                                                                                                                                                   the prescribed number of years.  Areas used for 
                                                                                                                                                                                                                   mitigation should, at the outset of development 
                                                                                                                                                                                                                   become conservation sites and property of county to 
                                                                                                                                                                                                                   not be further developed.
                                                                                                                                                                                      4-4           Pol. 4.1.1.7   Permit the transfer of density/intensity credit from
                                                                                                                                                                                                                   wetlands, require buffers and endangered species
                                                                                                                                                                                                                   habitats to upland areas of the same dev. site in the 
                                                                                                                                                                                                                   Coastal Area.
                                                                                                                                                                                      4-5           Pol. 4.1.1.8   Require 50 ft. buffer zones for post-dev.
                                                                                                                                                                                                                   jurisdiction wetlands on dev. sites w/i CA
                                                                                                                                                                                                                   contiguous w/any special waters.
                                                                                                                                                                                      4-6           Pol. 4.1.2.1   Permit utilization of isolated wetlands w/i the Coastal
                                                                                                                                                                                                                   Area as a part of an approved stormwater
                                                                                                                                                                                                                   management plan to limit offsite discharge into 
                                                                                                                                                                                                                   coastal waters.

























                                                                                                                                      14
 




           Issue #10: Development and Damming of Creeks and Rivers [SWIM & AP]
           Tampa Bay SWIM Plan                                                                 Terra Ceia Aquatic Preserve                                                    Manatee County Comprehensive
           Initiatives, Programs, & Strategies                                                 Management Policy Directives                                                Element      Pg        GOP             Description
           NATURAL SYSTEMS INITIATIVE I                                                        (D)   Protect and, where possible, enhance threatened and
           Preserve, enhance, and/or restore upland, riverines, intertidal                           endangered species habitat within the aquatic preserve.
           and subtidal habitats for 1) biological communities, 2)                                   Selected Additional Onsite Policies & Procedures:
           pollution abatement, and 3) aesthetic and recreational                                1.  Require additional authorization and approval for     
           purposes.                                                                                 activities using submersed lands within the aquatic
                                                                                                     preserve in areas where manatees are present.
           1. a. Preservation of Existing Habitats: promote the preservation                            (Additional restrictions may apply.)
           of relatively pristine or functional habitats already in existence.                 (E)   Prohibit development activities within the aquatic preserve
                                                                                                     that adversely impact saltmarshes and other valuable
              Promote more stringent local, state, and federal legislation to                        intertidal, submersed, and emerged habitats unless a Prior
              protect habitats, stressing consistency among governments.                             determination has been made by the Board of overriding
              Local government regulations will be emphasized initially                              public importance and that no reasonable alternatives exist.
              through District review and advice on developmental                                    Selected Additional Onsite Policies & Procedures:
              practices permitted by local rules and through preparation of                      1.  Identify and develop guidelines for areas and plant
              model ordinances.                                                                      communities in need of restoration.
              Promote environmentally sound local, regional, and state                           2.  Discourage developments within the aquatic preserve
              comprehensive plans. inclusive of preservation categories.                             that requite restoration or mitigation.
              Because of deadlines imposed on local governments by the                           3.  Develop an exotic plant control and removal plan
              state, emphasis will be placed on reviewing and advising                               following monitoring.
              local governments regarding comprehensive plans.                                   4.  Develop a cumulative impact analysis program for
              Promote enforcement of existing laws protecting habitats                               analyzing uses within the aquatic preserve.
              through funding incentives for local government                                 (I)    Prohibit the drilling of  oil and gas Wells, the mining of
              environmental enforcement and compliance monitoring                                    materials, and dredging for the primary purpose of
              program.                                                                               obtaining upland fill within the aquatic preserve.
              Promote enforcement of permit stipulations mandated by                          (N)    Prohibit the construction of new deepwater ports within the
              local, state, and federal agencies (inclusive of compliance                            aquatic preserve boundaries.
              monitoring) through funding incentives for local government                     (T)    Require, through the efforts of DER and SWFWMD, the
              environmental protection "nuns.                                                        maintenance and upgrading of the water quality of do
              Promote and/or conduct public education programs (i.e.,                                estuary and ensure the natural seasonal flow fluctuations of
              television, radio, newspaper, areas magazines. speakers                                fresh water into the estuary. In particular encourage the
              bureaus. public schools, civic groups. homeowners'                                     Department of Environmental Regulation and the
              associations, public/guidebooks and handouts, continuing                               Environmental Regulatory Commission to extend OFW
              education courses, etc.); efforts designed to teach people the                         designations to wetlands above the MHW line in areas
              importance of leaving habitats intact.                                                 within or adjacent to the aquatic preserve.
              Support existing acquisition programs such as Save Our
              Rivers (SOR)and Conservation and Recreational Lands
              (CARL).
              When appropriate, cooperate with environmental groups and  
              local, state, and federal governments and agencies in the 
              purchase of lands by identifying areas in need of preservation
              and contributing to their purchase.
              Encourage and support private donations of funds and land
              parcels, parks, etc., as well as passing of local taxing
              initiatives.
              Strtegically place channel markets and educational signs for
              the public and boaters.        

           1.b. Augmentation of Existing Habitats: expand and/or exchange
           existing habitats as replacement for habitat losses throughout the
           bay, tributaries, and associated uplands.                                  
                                            
           ï¿½ Expand habitats such as saltems, mud flats, seagrass beds,
             salt marshes, mangrove forests, and uplands as well as some 
             components of spoil islands by selecting high priority projects
             and funding cost-effective augmentation designs.
             Use appropriate native plants to supplement habitats offered    
             by spoil islands as well as those of subtidal, intertidal,        
             riverine, and adjacent upland areas.
             Eradicate non-native or ecologically undesirable vegetation
             from subtidal, intertidal, riverine and nearby upland arm
             and replace with appropriate native species.

        1 (continues)
 



     
          Issue#10: Development and Damming of                                   ks and Rivers [SWIM & AP]
          Tampa Bay SWIM Plan                                               Terra Ceia Aquatic Preserve                                      Manat County Co prehe
          Initiatives, Proltrams, & Strategies                              Management Policy Directives                                     Element Pg GOP                    Description
             Design and strategically place artificial ads throughout the
             bey and its tributaries.
             Expand oyster beds through additions of culch.
          I.c Restoratiom of Habitats: restore habitats as replacement for
          habitat losses throughout the boy, tributaries and adjacent
          uplands.
             Restore habitats such as uplands. riverine areas. salt marshes.
             mangrove stands, seagrass beds. oyster reefs. and mud flats as
             well as restoration utilizing existing spoil islands by selecting
             high priority projects and funding cost-effective restoration
             designs.
             Restoration in lieu of or supplemental to sea walls.
             Create littoral shelves via dredging and filling, perhaps in
             concert with planters boxes and breakwater structures.
             Evaluate filling borrow    within the bay. thereby creating
             additional euphotic habitat.                                 I







































                                                                                                                16
 





            ssu1 1: Decline in Commercial & Recreational Finfish and Shellfish I.Andings and Lack of Information re: Decline [S
            Tampa Bay SWIM Plan                                                          Terra Ceia Aquatic Preserve                                                  Manatee County C                           prehens
            InititiqS Pri4qgqaqms, & Strategies                                            Man ement Policy Directives                                                  Element 2f2t             8qg2op                 Descriptiot
            NATURAL SYSTEMS INITIATIVE I                                                 (E)    Prohibit development activities within dw aquatic serve                                                          [1q1 An object
            Pswv enhusc4 amilqler restwe up4qbsel, rqivaine, qlnqkrqddal                           that adversely impact sahmarshes and other valuair.                                                              Protectiber
            and mk0qW qhaqbqkats for 1) qbqloqk6qocal coqminusiqlqdesi 2)                                  intertidal, submerged, and emergent habitats unless a pnior                                                      included.
            pollution aqbakqniiat, said 3) sesthetqic and en 8q"iqd                                   determination has been made by the Board of Overriding                CM            4-5      Obj. 4. 12          T i            t]
                                                                                                                                                                                                                 10
                                                                                         public importance and that no reasonable alternatives exist.                                                     1rusnirt
                                                                                                Selected Additional Onsite Policies & Procedures:                                                                areas are up
            I.&. Preservation of Existing Habitats: promote the preservation                    I .   Identify arA develop guidelines for areas and plant                                                        other Coastal
            of relatively pristine or functional habitats already in existence.                       communities in need of restoration.                                                                        standards.
                                                                                                2.    Discourage developments within the aquatic preserve                                    Pol. 4.1.12         Prohibit deve
             promote mom stringent local, sure. and federal legislation to                           that a
                                                                                                             quur. restoration or mitigation.                                                                    a point sourc
              352qs
                      habitats, stressing consistency among governments.                        3.    Develop an exotic plant control and removal plan                                                           6DNR she
                      ovemment regulations will be emphasized initially                               following monitoring.                                                                                      -prohibited sl
              eview and advice on develoPmental                                4.    Develop a cumulative impact analysis prograin for                                                          potential for
              practices Permitted by local mitt and through preparation of                            analyzing proposed uses within the aquatic preserve.                                                       receiving tffl
              model ordinances.                                                          (G)    Provide and actively encourage research and educational                                                          [3) Point so
             Promote environmentally sound local, regional, and state                          8r6qX6qre, mfor socialists and other interested researchers                                                           and dependin
              comprehensive piano, inclusive of preservation categories.                                    fra w 'k of a planned research program in the                                                        circulation jx
              Beu of deadlin I n            on local governments by the                    aquatic preserve.                                                                                                designatedfo
              state, :pbasis =qF6=aced on reviewing and advising                           (0)    Prohibit any activity commercial or recreational that might                                                      use treated el
              local governmtsits regardinp comprehensive plans.                                 impact the integrity of hard bottom cornmunitits within the                                                     downitream
             Prore enforcement Of existing laws Protecting habitats                         aquatic prtser!e.                                        k                                                       handledprop
              through funding incentives for local government                            (P)    Insure that artificial reef construction does not adversely                                  Pbl. 4.1.2.3        uire that
              environmental enforcement and compliance monitoring                               impact environmentally fragile areas within the squatic                                                          which discha
              programs.                                                                         preserve and that the construction will maintain the                                                             Approved
             Promote enforcernent of permit stipulations mandated by                           essentially natural condition while enhancing the quality                                                        non-deqfradati
              local, mate, and federal agencies (inclusive of compliance                        and utility of the preserve.                                                                                     (compliance
              monitoring) through funding incentives for local government                8qM      Require. through the efforts of DER and the Southwest                 ME (CM) 14-13 Proc. 4.2                    (qb) CDOrdinat
              virmental Protection proprams.                                                 Florida Water Management District (SWFW8qMD), the                                              (4.1.2)             water quality
             Promote and/or conduct public education programs (i.e.,                           maintenance and upgrading of die water quality of the                                                            classification
              television, radio. newspaper. aqn magazines, speakers                              estuary and ensure the natural seasonal flow fluctuations of                                                     (c) Evaluate
              bureaus, public schools. civic groups, homeowners-                                fresh water into the estuary. In particular encourage the                                                        toward achie
              associations, public/guidebooks and handouts. continuing                          Department of Environmental Regulation and the                                                                   'prichibited"
              education courses, eic.X efforts designed to inch people the                      Environmental Regulatory Commission to extend OFW                                                                degradation
              importance Of leaving habitats intact.                                            desiratqions to wetlands above the MHW line in areas                                                              (d) If any D
             Support am" acquisi'don programs such as Save Our                                 within or adjacent to the aquatic preserve.                                                                      approved" b
              Rivers (SOR) and Conservation and Recreational Lands                       (X)    Identify and document spy problems caused by fishing,                                                            achieve objec
              (CARL).                                                                           shellfishin and collecting activities and report than to the                                                     reasonably
             When appropriate. cooperate with crivirournental groups and                       Marine Fiskelries Conimission.                                                                                   waters is occt
              local, state. and federal governments and agencies in f                   (Z)    Recognize that successful shellfish culture and harvesting                                                      Programs to
              purchase of Issids by identifying areas in need of preservation                   efforts in the aquatic preserve am dependent !it
              and contributing to their purchase.                                               pollution prevention and abatement and careful
             Encourage and support private donations of funds and land                         comprehensive planning.
              parcels, parks, etc., as well as passing of local taxing
              initiatives.
             Staticall Is channel markets and educational signs for
                           ce
              th              boaters,

            l.b. Augmentation of Existing Habitats: expand and/or exchange
                                                             losses throughout the
            bay, tAtaries, and a;sociated uplands.

              Expand habitats such as salterns. mud flats, seagrass beds,
              salt marshes, mangrove forests, and uplands as well as some
              CM      tint Of spoil idands by selecting high priority projects
              and =g cost-effective augmentation designs.
             Use           .ate native ants to              eenwd
              by         is     as well as those of subtidal, intertidal.
              ivrine. and adjacent upland areas.
                                                                                              erra    Ceh

                                                                                              a2    emellt


                                                                                                    is
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                                                                                         @(f
                                                                                                nite  U     I
























































              Eradicate non-native or acol               undesimble vegetation
              from subtidal, intertidal, riverine and nearby upland areas and
              replace with appropriate native species.

            (continues)                                                                  L
 



	      No M M @ ton "a IM J"M M M Mme "a M aw"
            Issue#1 1: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline
            Tampa Bay SWIM Plan                                                    Terra Ceia Aquatic Preserve                                            Manat County Co prehe
            Initiative Program% & Strateoes                                       Manaltentent Polky Diredives                                           Element Pit         I GOP             Description
             Design and "tegicatly place artificial reefs throughout the
               bay and its tributaries.
             Expand oyster heds through additions of culch.
            L. Restoration of Habitats: restore habitats as replacement for
            habitat losses throughout the bay. tributaries and adjacent
            uplands.
              Restore habitats such as uplands, fiverine &=a, sAt marshes,
               mangrove a", senass beds, oyster reefs, and mud flats as
               well as restoration utilizing existing spoil islands by selecting
               high priority projects and fividing cost-effective restorsition
               designs.
              Restoration in lieu of or supplemental to ses walls.
              Create littOrOl shelves via dredging and filling, perhaps in
               concert with planters boxes and breakwater structures.
              Evaluate filling borrow pits within the bay, hereby creating
               additional cuphotic habitat
            I  Monitoring mid Research: establish monitoring/resarch
            studies associated with strategies of programs La-d.
              Evaluate success of restoration and reservation projects
               inclusive of projects begun or comp[cled prior to swim
               endeavors through aerial habitat snapping and cooniinated
               ground based studies.
              Develop additional databases useful for design and
               implementation of future projects.
              Promote and/oT fund research concentins habitat restoration
               and functionality (e.g.. wildlife utilization of submerged and
               intertidal habitat for qgansefish. commercial species. and other
               wildlife.

            2 Optiu8w Habitats: performance of prograrns I.&-e to
            ophiz habitats for on by botanical, invertebrate, and
            vertebrate populstions and communities.
            2.b. Research: promote Md/or fund research which provides
            information finpostant to the development and implementation
            of ecologically sound wildlife management programs for the
            Tampa Bay ecosystem.

              Address systems ecology C        .  5, inclusive of ecosystem
               modeling dealing with           flow/energy budgets,
               W0dary2p0qWuction. food webs, suuxiing on8", etc. This
               strategy will commence by ddining the frarnework of a
                    rehensive ecosystem model and culminate in the
                           of the model decisionmalting an bay
               nuns  ement issues.
              Eats i Is data base concerning a wildlife inventory for
               ubtial, qintertidal and nearby upland communities; inventory
               should include distribution and abundance of species
               throughout ecosystem.
              Conduct biennial.     Mutative serial mapping of gubtidal,
               inteidal, and n= upland habitats.
              Evaluate existing commercial and spit fishing practices to
               determine effects, if any, on habitat, population, and/or
               community stmaures.

            (continues)


                                                                                                                          18
 





          Issue#ll: Decline in Commercial& Recreational Finfish and Shellfish Landings and                                                    k of Information re: Decline [
          Tampa By SWIM Plan                                             Terra Ceia Aquatic Preserve                                      Manat County C prehens
          11m Programs. & Stratesdes                                 Maement Polky Directives                                     Element P         IGOP
          NATURAL SYSTEM INITIATIVE 2
          Preserve, enhance, and restore plant and asilinal
          populations that use the bay, tributaries and or associated
          uplands for part or all of their life cycles.
          2.. Optimize Habitats- performance of programs 1.&-e to
          optimize habitats for use by botanical, invertebrate, and
          vertebrate populations and communities.
          2b. Research: pmnxft utfor fund research which provide
          information impectent to the development and implementation
          of ecololically sound wildlife management programs for the
          Tampa Bay ecosystem.

           Address systems ecology questions, inclusive of ecosystem
            modeling dealing with carbon flow/energy budgets,
            secondary production, food webs. standing crops, etc. This
            strategy will commence by defining the framework of a
            comprehensive ecosystem model and culminate in the
            application of the model decision-making on bay
            mans  ment issues.
           Estbtsh data ban concerning a wildlife inventory for
            subtidal, intertidal and nearby upland communities; inventory
            should include distribution and abundance of species
            throughout ecosystem.
           Conduct biennial, uantflahve serial mapping of subtidal,
            intidal, and nea8qgy pland habitat..
           Evl                 imercial and sport fishing practices to
            determine effects, if any, on habitat. population. and/or
            community structures.

          2. Wildlife Management Programs: Promote and/or draft
          wildlife management programs to protect populations and
          communities associated with the bay inclusive of threatened or
          endangered species important to conunercial and sport
          fishermen. Programs must include local, mate. and federal
          legislation and enforcement necessary to accomplish
          management goals.

          BAY MANAGEMENT INUTIVE 2
          Promote the adoption and enforcement of laws and
          regulation necessary to linplement the Natural Systems,
          Water Quality and Land Use Initiative of the Plan.

          Is. Review of Rules and Regubtions: Reviews adequacy of
          rules and regulations of the previously described ovenunental
          jurisdictions to carry out the Plan's Programs. This win include
          a review of the sufficiency of enfoxce: ent   rams f dineft
          208qn
          r ulory agencies and be inclusive of all
            dlife laws.

          (continues)










                                                                                                               19
 

0




          Issue#11: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline
          Tamps Bay SWIM Plan                                         Terra Ceia Aquatic Preserve                                 Manatee   County Comprehensive 
          Initiatives  Programs & Strategies                                    Management Policy Directives                                        Element IPR       GOP
          2b. commercial and Spun Fishing Regulations.                                                                                                         Description      
          Enhance fishery productivity  by   developing and
          implementing biologically defensible  fishing regulations,
          stocking and habitat creation/restoration Projects.
          Implement protective regulations and management strategies
          for fisheries on the decline in Tampa Bay
          Improve the enforcement of fishing regulations by
          consolidating  and standardizing an special acts and load laws
            related to fishing activities.
          2.c. Enforcement: Unify and consolidate all special acts and
          local laws related to marine resource management and work to
          ensure adequate funding and staffing levels for increased
          monitoring and enforcement capabilities for Tampa Bay.     I










































                                                                                                        20
 

0



         Issue#12: Replacement of Native Vegetation with Exotic Plants [SWIM & AP]
         Tampa Bay SWIM Plan                                                   -Terra Ceia Aquatic Preserve                                     Manatee County Comprehensive Plan
         Initiatives, programs & Strategies                                    Management Polky DIrectives                                            Element Pa. IGOP                      Description 
         NATURAL SYSTEMS INITIATIVE I                                           (D)     Protect and, when possible, enhance threatened and                CONS     3-25 Pol. 3.3.7.1          Require preservation
         Preserve, enhance , and/or restore upland, riverine, lntertidal               endangered species habitat within the aquatic preserve
                                                                                                                                                                   development
         and subtidal habitats  for 1) biological communities, 2)       (E)   Prohibit development  activities Within the aquatic                                                  vegetation gu
         pollution abatement and 3) aesthetic and recreational      preserve that adversely impact saltmarshes and other                                                 vegetation is
         purposes                                                                      submerged habitats. unless a   Prior determination                                                 fill Policy
                                                                                                 Indentify              of  overriding public                                                   plant communication
         Lb. Augmentation of Existing Habitats- expand  and/or exchange                  importance and that no reasonable alternatives exist.                                                a viable means    
         existing habitats as replacement for habitats  losses throughout the                Selected Additional Onsite Policies A Procedures:                                                    habitat value,
         bay. tributaries. and associated uplands.                                      I . Identify and develop guidelines for areas and plant                   3-34 Pol. 3.3.10.1         Participate in
                                                                                            communities in need of restoration.                                                              plant comm
                                                                                                                                                                                             
            Eradicate non-native or ecologically undesirable vegetation                 2.  Discourage developments within die aquatic preserve CM                4-4      Pol. 4.1.1.6      remove all a
            from subtidal intertidal. riverine and nearby upland areas and                 that require restoration or mitigation.                                                          development
            replace with appropriate native species.                                    3.  Develop an exotic plant control and removal plan                                                 [13] The major      
                                                                                            following monitoring.                                                                            can be extremely  
                                                                                        4.  Develop a cumulative impact analysis program for                                                   probably req
                                                                                            analyzing proposed uses within the aquatic preserve.                                             do so.
                                                                                  (M)     Limit pesticide and biocide use within the aquatic
                                                                                        preserve to those that an a              the Environmental
                                                                                        Protection Agency (USEPA)        for   w and and aquatic
                                                                                        application.
                                                                                                                                                             
                                                                                                                                                             
                                                                                                                                                              
                                                                                                                                                           































































                                                                                                                       21

                                                                                                                              low
 

0

      
          Issue #13: Shoreline Erosion [SWIM &
          Tampa Bay SWIM Plan                                               Terra Ceia Aquatic Preserve                                         Manatee County Comprehensive                    
          Initiatives Programs,& Strategies                                   Management Policy Directives                                      Element Pg IGOP                     Description 
                                                                            (E)   Prohibit development activities within the aquatic preserve   CM         4-10 Pol 4.1.3.4         Require   all
                                                                                  that adversely impact saltmarshes and other valuable                                             
                                                                                                                                                                                                          
                                                                                  submerged habitat. unless a prior determination has been                     Pol 4.1.3.5      Limit vehia
                                                                                  made by the Board of overriding public importance and                                           owned sh
                                                                                  that no reasonable ahematives exist                                                               except for
                                                                                  Selected Additional Onsite Policies & Programs:                                                  enhancement 
                                                                                  I -   Identify and develop guidelines for areas and plant
                                                                                        communities in need of restoration.
                                                                                  2 .    Discourage developments within the aquatic preserve
                                                                                        that require  restoration or mitigation.
                                                                                  3.    Develop an exotic plant control and removal plan
                                                                                        following monitoring.
                                                                                  4.    Develop a cumulative impact analysis program for
                                                                                        analysis proposed uses within the aquatic preserve.
                                                                            (F)   Prohibit the trimming and/or removal of salt marsh
                                                                                  vegetation and other natural shoreline vegetation within the
                                                                                  aquatic preserve, except when necessitated by the pursuit
                                                                                  of legally authorized projects and local protection
                                                                                  ordinances.

















































                                                                                                                22
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0



          Issue#14: Marinas [SWIM)
          Tamps Bay SWIM Plan                                                     Term Ceia Aquatic Preserve                                              Manatee County C                       Description
          Initiatives Programs & Strategies                                           Management Policy Directives                                             Element Pit IGOP                                      
          DEVELOPMENT AND PUBLIC USE Initiative                                                (D)   Protect and  where possible, enhance threatened and              pol.4.2.1.4                       Require dial
          Provide sound environmental policies governing land use                           endangered species                                                                                        type uses meet
                                                                                                                     habitat within the aquatic preserve.
          which impact the Tamps Bay ecosystem.                                          Selected Additional Onsite Policies & Procedures:                                                                 any    
                                                                                        1. Require additional authorization and approval for                                                              rid
          i.e. Marinas: evaluate environmental impacts of marinas within                      activities using submerged lands within the aquatic                                               [3]Criteria
          Tampa Bay and its tributaries.                                                      Preserve in areas where manatees am present.                                                       county   
                                                                                              Additional restriction may apply)                                                                  developed    
            Evaluate environmental impacts of existing marinas,                   (E)   Prohibit development activities within the aquatic preserve                                                 federal     
            including impacts on manatees and other protected species.                  that adversely impact  saltmarshes and other valuable                                                      agencies  
            Develop                                                                     intertidal   submerged  and emergent habitats unless a prior                                               of sewage        
            E                                                                             determination has been made by the Board of overriding                                                    sittings               
                                                                                                                                                                        4-14 Pol.4.2.1.5           Limit densities    
                                                                                      public importance and that no reasonable alternatives exist 
                                                                                        Selected Additional Onsite Policies & Procedures:                                                        facility to no
                                                                                        I .   Identify and develop guidelines for areas and plant                                                shoreline unless
                                                                                              communities in need of restoration.                                                                require facilities
                                                                                        2.    Discourage developments within the aquatic preserve                                                access chum
                                                                                              that require restoration or mitigation.                                                            zones.
                                                                                        3.    Develop an exotic plant control and removal plan                                                  [3]  Add the
                                                                                              following monitoring.                                                                              pLan and mar
                                                                                        4.    Develop a cumulative impact analysis program for                                                   implemented                       
                                                                                              analyzing proposed uses within the aquatic preserve.                                                If the county
                                                                                  (F)   Prohibit the trimming and/or removal of salt marsh                                                        stringent than
                                                                                        vegetation and other natural shoreline vegetation within the
                                                                                        aquatic preserve, except when necessitated by the pursuit
                                                                                        of legally authorized projects and local protection
                                                                                        ordinances.
                                                                                  (1)   Prohibit the drilling of oil and gas wells. the mining of
                                                                                        materials, and dredging for the primary purpose of
                                                                                        obtaining upland fin within the aquatic preserve.
                                                                                  (0)   Prohibit many activity commercial or recreational  that might
                                                                                        impact the integrity of hard bottom communities within the
                                                                                        aquatic preserve.
                                                                                  (R)   Encourage public utilization of the aquatic preserve,
                                                                                        consistent with the continued maintenance of its natural
                                                                                        values and functions.
                                                                                        Require , through the efforts of DER and SWFWMD, the
                                                                                        maintenance and upgrading of the water quality of the
                                                                                        estuary and ensure the  natural seasonal flow fluctuations of
                                                                                        fresh water into the estuary. In particular  encourage the
                                                                                        Department of Environmental Regulation  and the
                                                                                        Environmental Regulatory Commission to extend OFW
                                                                                        designations to wetlands above the MHW line in areas
                                                                                        within or adjacent to the aquatic preserve.              
                                                                                       Resource Protection Areas I and 2.                                            
















                                                                                                                          23
 


	ISSUE #15:  Construction & Operation of Transportation Facilities [SWIM]
	Tampa Bay SWIM Plan								Terra Ceia Aquatic Preserve								Manatee County Comprehensive Plan
	Initiatives, Programs, & Strategies						Management Policy Directives								Element  Pg    GOP		Description
	DEVELOPMENT AND PUBLIC USE INITIATIVE 1					(F)  Prohibit the trimming and/or removal of salt marsh			TRCI	   5-47  Obj. 5.2.4	Ensure that all transportation improvements are
	Provide sound environmental policies govening land use         	     vegetation and other natural shoreline vegetation within the							conducted in a manner which minimizes adverse
	which impact the Tampa Bay econystem.				           squatic preserve, except when necessitated by the pursuit							impact on important natural resources.
											           of legally authorized projects and local protection				  	   Pol. 5.2.4.1   Coordinate with DOT to ensure that alignment of any	 		
	1.d. Developmental Designs and Practices: promote		           ordinances.															new E-W expressway is located (to the maximum																     				         
	environmentally sound projects and practices.				(I)  Prohibit the drilling of oil and gas wells, the mining of							extent possible) outside of WO-M and WO-E overlay
											           materials, and dredging for the primary purpose of								districts (watersheds for Lake Manatee and Evers	 	
	* Promote use of existing natural features and native plant 	     obtaining upland fill within the squatic preserve.								Reservoirs);encourage DOT to consider minimal
	  species for landscaping and habitat, with special emphasis on																		impact design if county is overridden.		
	  use of transportation Programs and exriscaping practices as	  
	  well as the establishment of wildlife corridors.	
																			   			  	  		  5-48   Pol. 5.2.4.2 	Require all roadway improvements discharging  	
	1.f. Transportation Network: evaluate the existing and proposed 																		stormwater into Lake Manatee and Evers Reservoirs																																																															
	transportation network around,over and on the bay and its																			or any inflowing watercourse within WO-M and	
	tributaries.																										WO-E overlay districts to include stormwater	
																													treatment at 50% of treatment criteria required for	
	* Evaluate transportation (inclusive of shipping and bost																			OFWs.		
	  traffic) and roadway problems as related to environmental														  		   Pol. 5.2.4.3  	Locate and design transportation improvements to  	
	  impacts to the ecosystem.																								reduce acreage of adversely altered jurisdictional	
	* Review transportation engineering and promote designs to																			wetlands; minimize direct and indirect impacts on		
	  reduce environmental impacts (e.g.,runoff).	   																				rivers, lakes, streams, endangered and threatened			
																													species, and species of special concern.		


































                                                                                                                                     24
 

	

	Issue #16: Intergovernmental Coordination and Planning Consistency [SWIM & AP]
	Tampa Bay SWIM Plan								Terra Ceia Aquatic Preserve							Manatee County Comprehensive Plan
	Initiatives, Programs, & Strategies						Management Policy Directives							Element  Pg    GOP		Description
	DEVELOPMENT AND PUBLIC USE INITIATIVE 1					(S)  Develop a well-coordinated aquatic preserve management 	CONS	   3-22  Pol. 3.3.6.5   Cooperate with DER, SWFWMD, DNR and COE to
	Provide sound environmental policies governing land use 	           mechanism that recognizes and utlizes local government							monitor compliance with dredge & fill permitting
	which impact the Tampa Bay econystem.				           programs and authorities.											process.
												(V)  Encourage the assistance of federal, state, and local							[3] A monitoring compliance map should be devised
	1.a. Encourage Appropriate Land Use:at the local,state,and 	           government agencies in implementing the aquatic preserve						for the county's use in determining if developers are
	federal level,encourage appropriate development or agricultural	     management plans, especially in areas of protection of							in compliance w/the stipulations in theri permits.
	use of land bordering the bay and its tributaries.			     natural and cultural resources and the enforcement of		CM	   3-31  Pol. 3.3.7.8   Participate in intergovernmental activities to
												     applicable resource laws and ordinances.									conserve and manage vegetation and wildlife.
	*  Promote limiting or preventing land alterations via incentives	(Y)  Insure that the aqustic preserve management plans are			   4-7   Pol. 4.1.2.4   The county or approved agent shall review and
	   such as tax reductions, density tradeoffs, or transfers or	     consistent with all other state and local planning processes						comment on dredge and fill applications and all other
	   purchases of developmental rights. Appropriate policies and	     and completed plans that may impact aquatic preserves.							federal,state or regional permit applications.
	   regulations will be developed by the District for consideration     											PORT	   7-3   Pol. 7.2.1.2   Encourage Port Authority to cooperate w/local,
	   by local governments through the review of comprehensive																		regional and other gov. agencies to insure that all
	   plans and through preparation of model ordinances.																			environmental planning activities are coordinated.
	*  Promote designations of increased buffer zones, setback														   7-4   Obj. 7.3.1	Operate and expand Port activities in a manner
	   requirements, wildlife corridors, and conservation casements																	resulting in minimum impact on facilities operated
	   reviewing local governments comprehensive plans and																		and maintained by other govt. agencies.
	   ordinances, and recommending appropriate amendments to													Ic	   13-5  Obj. 13.1.5    Require consistency between this comp. plan and the
	   accomplish the above objectives.																		    				plans of other units of local and state gov't.
	*  Promote environmental sound local and state comprehensive													   	   Pol. 13.1.5.1  Establish coordinating mechanisms with other local
	   plans, inclusive of land use plans for preservation of habitats													   (9)		and regional planning entities to ensure their
	   and land tracts.																					   Incl. Matrix	activities are consistent with the comp. plan.
																												Mechanism:Coordinate to obtain DNR reviews to					
	1.c. Laws and Permitting Review: evaluate adequacy of existing																	asscess and address potential natural resource impacts
	zoning laws, environmental laws and permitting processes as																		of proposed dev. when located adjacent to the TCAP.
	related to land use and environmental recources.																			(1) Analysis of specific problems and needs w/ieach
																												element would benefit from improved or additional				
	*  Evaluate existing local,state,and federal laws concerning																	IGC and the means for resolving those problems and
	   land use and the permitting process (inclusive of agricultural																	needs have not been included.
	   uses).																										(8) Policy discusses IGC w/several local and
	*  Promote and/or draft revisions of existing local,state,and																	regional entities but does not mention the SWFWMD.
	   federal laws concerning land use and the permitting process																	The SWIM program should be an area of substantial
	   (inclusive of agricultural uses). This will be accomplished																	coordination. (A list of other specific mechanisms for
	   through the development of model onfinances in addition to																	IGC is presented here).
	   specific proposed amendments.																		   13-11  Pol. 13.1.6.1 Establish procedures for review of development
	*  Evaluate,promote,and/or draft improved laws for mitigation																	proposals to identify effects on comprehtensive plans
	   policies and practices, specifically addressing action to be																	of adjacent municipalities and counties.
	   followed if unanticipated impacts are detected after the fact;													   13-11  Pol. 13.1.6.2	Identify specific procedure for advising adjacent
	   mitigation banking should be evaluated as should criteria for																	local gov'ts and appropriate state agencies of
	   monitoring and determining the success of the Project.																		proposed developments impacting their area of																	 																								 																																
																												jurisdiction,and provide for their review and	
																												comment on same.
																								   13-12  Obj. 13.1.8   Avoid inconsistency between the comp. plan,
																												regional CRPP, state comprehensive plan.
																												(1) Analysis of specific problems and needs w/i each
																												element would benefit from improved or additional
																												IGC and the means for resolving those problems and
																								   				needs have not been included.
																								   13-13  Pol. 13.1.9.3 Coordinate where necessary with other local
																												governments o improve the management of Tampa
																												Bay,Terra Ceia Bay,Braden River and Manatee
																												River.
																												(1) A policy that addresses the consistent and
																												coordinated mgmt. of certain bayr, estmaries and
																												harbors that fall under the jurisdiction of more than
																												one local government has not been included.	
																
																												(continues)																								   											 																									  																									  						 			 							 		  													 			 						 



	Issue#16:  Intergovernmental Coordination and Planning Consistency [SWIM & AP]
	Tampa Bay SWIM Plan				Terra Ceia Aquatic Preserve		Manatee County Comprehensive Plan
	Initiatives,Programs, & Strategies		Management Policy Directives		Element  Pg	  	GOP		Description
														ME (CM)  14-13	Proc. 4.3	b)Coordinate annually with the Manatee River Soil
																	(4.1.2.9)	and Water Conservation District to determine	
 																			progress in developing and implementing
																			conservation plans w/i the Coastal Area. Maintain
																			estimates of the number of agricultural operations
																			adopting such plans.
																			(c)Evaluate whether or not progress in policy
																			compliance is acceptable.
																			(d)If progress not acceptable,revisit timing on
																			objective or revistit reliance on approach to WQ non-
																			degradation that is dependent on voluntary
																			development of conservation plans.
														ME (IC)  14-31    Proc. 13.1  (b)Continuously monitor effectiveness of IGC
																	(13.1)	mechanisms.
																			(c)Evaluate effectiveness of informal (voluntary)
 																			mechanisms and formal (mandatory) procedures and
																			interlocal agreements.
																			(d)Consider other procedures and policies where
																			mechanisms aren't achieving purpose.
















					26

	

	Issue#17:  Enforcement of Laws and Regulations [SWIM & AP]
	Tampa Bay SWIM Plan								Terra Ceia Aquatic Preserve							Manatee County Comprehensive Plan
	Initiatives,Programs, & Strategies						Management Policy Directives							Element  Pg    GOP	Description
	NATURAL SYSTEMS INITIATIVE 1							(S)  Develop a well-coordinated aquatic preserve management 
	Preserve,enhance,and/or restore upland,riverinc,intertidal	   	     Mechanism that recognizes and utilizes local government
	and subtidal habitats for 1)blological communities, 2)	     	     programs and authorities.
	pollution abatement, and 3)aesthetic and recreational			(V)  Encourage the assistance of federal,state,and local
	purposes.									           government agencies in implemeanting the aqustic preserve
											           management plans,especially in areas of protection of
	1.a. Preservation of Existing Habitats: promote the preservation	     natural and cultural resources and the enforcement of
	of relatively pristine or functional habitats already in existence.    applicable resource laws and ordinances.

	*  Promote enforcement of existing laws protecting habitats
	   throught funding incentives for local government
	   environmental enforcement and compliance monitoring
	   programs.
	*  Promote enforcement of permit stipulations mandated by
	   local,state,and federal agencies (inclusive of compliance
	   monitoring) through funding incentives for local government
	   environmental protection programs.

	INITIATIVE 2	
	Preserve,enhance,and/or restore plant and animal
	populations that use the bay,tributaries,and or associated
	uplands for part or all of their life cycles.

	2.c. Wildlife Management Programs: Promote and/or draft
	wildlife management programs to protect populations and
	communities associated with the bay inclusive of threatened or
	endangered species important ot commercial and sport
	fishermen. Programs must include local,state,and federal
	legislation and enforcement necessary to accomplish
	management goals.

	DEVELOPMENT AND PUBLIC USE INITIATIVE 1	
	Provide sound environmental policies governing land use
	which impact the Tampa Bay ecosystem.

	1.b. Enforcement: promote enforcement of existing zoning laws,
	environmental laws and permit stipulations inclusive of
	compliance monitoring

	*  Promote additional funding and staffing (inclusive of legal
	   staff) for enforcement and compliance monitoring by offering
	   funding incentives for qualifying local governmental
	   environmental protection programs.
	*  Promote fines or penalties commensurate with the infraction.

	BAY MANAGEMENT INITIATIVE 2
	Promote the adoption and enforcement of laws and
	regulation necessary to implement the Natural Systems,
	Water Quality and Land Use Initiative of the Plan.

	2.a. Review of Rules and Regulations: Reviews adequacy of
	rules and regulations of the previously described governmental
	jurisdictions to carry out the Plan's Programs. This will include
	a review of the sufficiency of enforcement programs of pertinent
	regulatory agencies and be inclusive of all applicable fish and
	wildlife laws.

	(continues)



												27  		  									     			






          Issue#17: Enforcement of Laws and Regulations [SWIM & AP]
          Tampa Bay SWIM Plan                                             Terra Ceia Aquatic Preserve                                    Manatee County Comprehensive Plan
          Initiatives, Programs, & Strategies                             Management Policy Directives                                    Element Pg GOP                   Description
          2b. Commercial and sport Fishing Regulations.
            Enhance fishery productivity developing and
             implementing biologically defensible fishing regulations,
             stocking and habitat creation/restoration Projects.
            Implement Protective regulations and management strategies
             for fisheries an the decline in Tampa Bay
            Improve the enforcement of fishing regulations by
             consolidating and standardizing all special acts and local laws
             related to fishing activities.
          2.c. Enforcement: Unify and consolidate all special acts and
          local laws related to marine resource management and work to
          ensure adequate funding and staffing levels for increased
          monitoring and enforcement capabilities for Tampa Bay.
          2.d. State Legislation: Work to ensure that the necessary state
          legislation and agency rules am in place to carry out the Plan.





































                                                                                                             28
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          issue#18: Ports
          Tampa Bay SWIM Plan                                                      Terra Ceia Aquatic Preserve                                              Manatee County Comprehensive Plans
          Initiatives, Programs, & Strategies                                      Management Policy Directives                                             Element    Pg       GOP                       Description
                                                                                   (N) Prohibit die construction of new deepwaterports within the             CM       4-35     Obj. 4.7.2.            Maintenance of the port and appropriate expansion of
                                                                                   aquatic preserve boundaries.                                                                                        Port Manatee, in a manner consistent with this comp.
                                                                                                                                                                                                       plan and with the Port Master Plan.
                                                                                                                                                                                                       [2] The Port element is a continuation of outdated
                                                                                                                                                                                                   plans and programs which (a) disregard the env.
                                                                                                                                                                                                   protection and restoration needs of Tampa Bay in
                                                                                                                                                                                                   favor of developmen,(b)will result in the continued
                                                                                                                                                                                                   incremental loss of valuable estuarine resources,(c) 
                                                                                                                                                                                                   are not consistent wi the CM and CONS elements,(d)
                                                                                                                                                                                                   does not neet the requirements of Chapter 9j-5
                                                                                                                                                                                                   regarding protection of natural resources, and (e)
                                                                                                                                                                                                   appear to be inconsistent wi initiatives and strategies
                                                                                                                                                                                                   in the Tampa Bay SWIM Plan. Specifically,port 
                                                                                                                                                                                                   expansion plans would result in loss of approx 100
                                                                                                                                                                                                   acres of shoreline and bottom; objectives in element
                                                                                                                                                                                                   are ambiguous; policies are not clear and are based 
                                                                                                                                                                                                   on encouraging Man.Co.Port Auth.-county is Port
                                                                                                                                                                                                   Auth;GOPs of element are not derived from 
                                                                                                                                                            PORT         7-2     Obj. 7.2.1     Minimize environmental impact caused by Port 
                                                                                                                                                                                                   operations, tenants, or expansion.
                                                                                                                                                                                 PoL 7.1.3.1    Investigate environmental aspects of acquiring 
                                                                                                                                                                                                   additional shore frontage and adjacent land.
                                                                                                                                                                                 Obj. 7.2.2     Protect & support existing & restored natural habitat.
                                                                                                                                                                         7-3     Pol. 7.2.1.2      Cooperate w/local, regional, and other gov't
                                                                                                                                                                                                   agencies to ensure all environmental planning
                                                                                                                                                                                                   activities are coordinated.
                                                                                                                                                                                 Pol. 7.2.1.4      Establish the Environmental Director to insure safe
                                                                                                                                                                                                   storage and transportation of hazardous materials.
                                                                                                                                                                         7-4     pol. 7.2.2.1      Adopt a plan to manage Port facilities in a manner
                                                                                                                                                                                                   that will protect natural habitat.
                                                                                                                                                                                 Pol. 7.2.2,2     Maintain a current inventory of unique habitats near
                                                                                                                                                                                                   the Port that could be affected by Port activities.
                                                                                                                                                                                 PoL 7.2.2-3       Encourage contacts and MOUs between the Port and 
                                                                                                                                                                                                   state agencies for R/M  projects.
                                                                                                                                                                                 PoL 7.2.2.4       Remain activr in the Little Redfish Creek
                                                                                                                                                                                                   rehabilitation project.
                                                                                                                                                                                 Pol. 7.2.2.5      Adopt an overall environmental plan and include
                                                                                                                                                                                                   clear GOPs.
                                                                                                                                                              ME          14-20  Proc. 7.1          (b) Monitor,after adoption of LDRs, development at
                                                                                                                                                            (PORT)               (7.1.3.1)         the Port each year.
                                                                                                                                                                                                   (c) Determine, evaluate and refine technical
                                                                                                                                                                                                   requirements of regulations related to Port physical
                                                                                                                                                                                                   development requirements.
                                                                                                                                                                                                   (d) Where regulations are not achieving development
                                                                                                                                                                                                   requirements, consider amendments to LDRs.
                                                                                                                                                                         14-21   Proc. 7.3         (b) Review environmental aspects of proposed Port
                                                                                                                                                                                 (7.2.1.2)         development and determine impacts.
                                                                                                                                                                                 (see IGC-.        (c) Evaluate impact of Port facilities development in 
                                                                                                                                                                                 Bay Mgmt)         light of conservation, coastal mgmt, and future land
                                                                                                                                                                                                   use policies of the comprehensive plan.
                                                                                                                                                                                                   (d) Determine if policies of comprehensive plan are
                                                                                                                                                                                                   being implemented.








                                                                                                                           29
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            Issue#19: Identification of Areas, Land Use, Etc.
            Tampa Bay SWIM Plan                                                      Terra Ceia Aquatic Preserve                                              Manatee County Comprehensive Plan
            Initiatives. Programs & Strategies                               Management Policy Directives                                        Element    Pg       GOP                        Description
            NATURAL SYSTEMS INITIATIVE I                                             (C) Develop a resource inventory and natural habitat                CM         4-3      Pol. 4.1.1.4               Require land dev.w/i the Coastal Area to identify
            Preserve,enhance,and/or restore upland,riverine,intertidal                   types within the aquatic preserve, with an emphasis on                                                         and preserve representative tracts of native upland
            and subtidal habitats for 1) biological communities, 2)               those habitat types utilized by threatened and/or                                                              communities before development begins. 
            pollution abatement, and 3) aesthetic and recreational                 endangered species.                                                                                            [3] The term "considered" needs to be defined
            purposes.                                                                                                                                                                                 in a policy statement so that decisions are consistent
                                                                                                                                                                                                        from project to project and not subject to legal
            Le. Monitoring and Research: establish monitoring/research                                                                                                                                
            studies associated with strategies of programs I.a-d.                                                                                                                                     review.
                                                                                                                                                                                                        [11] Data reflecting the location,status, distribution,
             Evaluate success of restoration and Preservation projects                                                                                                                                 and occurrence of state and federally listed wildlife
               inclusive of projects begun of completed prior to SWIM                                                                                                                                 species or unique upland communities are not
               endeavors through aerial habitat mapping and coordinated                                                                                                                               included in the plan.
                round based studies.                                                                                                                                                                  [11]No information on the extent and character of
                 
             Develop additional databases useful for design and                                                                                                                                       the coastal zone vegetation and wildlife communities
               implementation of future projects.                                                                                                                                                     is provided.
            INITIATIVE 2                                                                                                                                                                              [11]Policies are not adequate for the protection of
                                                                                                                                                                                                      listed wildlife and their habitats w/i the Coastal Zone
            Preserve, enhance, and/or restore plant and animal                                                                                                                                       overlay, since no preservation uses are identified,
            populations that use the bay, tributaries, and or associated                                                                                                                              rather the plan has given preference to water-
            uplands for part or all of their life cycles.                                                                                                                                     dependent uses, with a wide spectrum of possible
                                                                                                                                                                                                      environmental impacts.
            2b Research- promote and/or fund research which Provides                                                                                          CONS        3-25   Pol 3.3.7.2           Require the evaluation and proper management of
            information important to the development and implementation                                                                                                                                endangered and threatened species through site
            of ecologically sound wildlife management programs for the                                                                                                                                review Of proposed developments.
            Tampa Bay ecosystem.                                                                                                                                                                      [11] Within the implementation mechanism, the listed
                                                                                                                                                                                                      approaches will not be sufficient unless the following
              Establish data base concerning a wildlife inventory for                                                                                                                                are incorported.
               subtidal, intertidal and nearby upland communities; inventory
               should include distribution and abundance of species
               throughout ecosystem.
              Conduct biennial, quantitative aerial mapping of subtidal.
               intertidal, and nearby upland habitats.
                                                                                   
                                                                                        
                                                                                         
                                                                                     
                                                                                                































































                                                                                                                              30
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           Issue#20: Threatened and Endangered Species; Manatee Protection; Hazardous Waste Disposal; Boundary Expansion and Other Acquisitions
           Tampa Bay SWIM Plan                                                           Terra Ceia Aquatic Preserve                                                  Manatee County Comprehensive Plan
           Initiatives, Programs & Strategies                                            Management Policy Directives                                                Element     Pit      GOP                Description
           NATURAL SYSTEMS INIATIVE I                                                  (H)   Acquire, when feasible, privately owned submerged lands                CONS         3-25     Pol. 3.3.7.2       Require the evaluation and proper management of
           Preserve, ehance, and/or restore upland, riverine, Intertidal                     and adjacent lands and islands lowed within the                                                                 endangered and threatened species through site
           and subtidal habitats for 1) biological communities, 2)                           boundaries of the aquatic preserve pursuant to the                                                              review of proposed developments.
           polution abatement, and 3) aesthetic and recreational                             authorities contained in Section 253.02(4),F.S. Of                                                              [11] Within the implementation mechanism, the listed
           Purposes.                                                                         greatest interest are the barrier islands that are located                                                      approaches will not be sufficient unless the following
                                                                                             along die coastline and the low lying areas of Terra Ceia                                                       are incorporated.
           I.a. Preservation of Existing Habitats: promote the preservation                    Island adjacent to Bishop Harbor and Frog Creek.                                      3-29 Pol. 3.3.7.4     Protect the Manatee by requiring all development w/i
           of relatively pristine or functional habitats &heady in existence.          (K)   Prohibit storage of toxic, radioactive, or other hazardous                                                      its range to adhere to DNR guidelines.
                                                                                               materials within the aquatic preserve. Any hazardous waste                                                    [3] For long range protection, a county manatee
             support existing aquisition programs such as Save Our                       dumps now located within the aquatic preserve should be                                                protection plan and marina siting element is needed
              Rivers (SOR) and Conservation and Recreational Lands                                 closed and eliminated.                                                                             which will expand on these criteria.
              (CARL).                                                                    (Q)   Manage spoil islands within the aquatic preserve as bird                                        [3] Include a lighting ordinance on beaches where
             When appropriate,cooperate with environmental groups and                  rookeries and wildlife habits areas.                                                                       there are sea turtle nesting attempts.
              local,state,and federal governments and agencies in the                         (U)   Apply the management criteria contained in the adopted           3-30 Pol. 3.3.7.5            Designate areas cited in Section 370.12(2)(f)12,F.S.,
              purchase of lands by identifying areas in need of preservation                   Terra Ceia Aquatic preserve Plan to all subsequent                                                    as slow speed zones based upon heavy boat and
              and contributing to their purchase.                                              legislative additions of land to the Aquatic Preserve.                                                    manatee concentrations.
             Encourage and support private donations of funds and land                                                                                                                                          [3) Needs to be modified to read "Manatee county
              parcels, parks, etc,, as well as passing of local taxing                                                                                                                                         and DNR shall designate the areas cited in Section
              initiatives.                                                                                                                                                                                      370.12(2)(f)12,F.S. and other areas as appropriate
                                                                                                                                                                                                                as caution manatee or slow speed zones based on
                                                                                                                                                                                                                         
           NATURAL SYSTEMS INITIATIVE 2                                                                                                                                                                 heavy boat and manatee concentrations."
           Preserve, enhance, and/or restore plant and animal                                                                                                                      3-31 Pol. 3.3.7.9          Permit and encourage the designation of env.
           populations that use the bay, tributaries, and or associated                                                                                                                                         sensitive areas as "Conservation Lands" on the
           uplands for part or all of their life cycles.                                                                                                                                                   Future LAnd Use Map, as long as this does not
                                                                                                                                                                                                                constitute a taking w/o compensation.
           2.c. Wildlife Management Programs: Promote and/or draft                                                                                                                                           [6] Though not w/i incorporated Palmetto, the 
           wildlife management programs to protect populations and                                                                                                                                              extensive mangroves on Snead Is. and along Terra
           communities associated with the bay inclusive of threatened or                                                                                                                                      Ceia Bay should be designated as Conservation on
           endangered species important to commercial and sport                                                                                                                                           the FLU Map.
           fishermen. Programs most include locaL state. and federal                                                                                                                                        [10] A policy is needed to selectively prohibit the
           legislation and enforcement necessary to accomplish                                                                                                                                                  expenditure of public funds for new roads in such
           management goals.                                                                                                                                                                                    areas might be given consideration in order to 
                                                                                                                                                                                                                protect such lands.
           DEVELOPMENT AND PUBLIC USE INITIATIVE I                                                                                                                                                              [II] Policy does not identify the process through
           Provide sound environmental policies governing land use                                                                                                                                               which a pacel of land is designated as 
           whIch impact the Tampa Day ecosystem.                                                                                                                                                              "environmentally" sensitive" and should be explicit in
                                                                                                                                                                                                                listing those env. attributes where such a designation
           1.e. Marinas: evaluate environmental impacts of marinas within                                                                                                                                        is in the public interest.
           Tampa Bay and its tributaries.                                                                                                                                          3-32 Obj. 3.3.8      Proper management and disposal of all hazardous 
                                                                                                                                                                                                                materials as required by state law.
              Evaluate environmental impacts of existing marinas,                                                                                                         Pol. 3.3.8.1             Develop & implement a hazardous matierals
              including impacts an manatees and other protected species.                                                                                                                                        management plan.
                                                                                                                                                                                            Pol. 3.3.8.2       Provide for the safe elimination of abandoned dump
           (continues)                                                                                                                                                                                         sites.
                                                                                                                                                                      CM           4-5      Pol. 4.1.1.7        Permit the transfer of density/intensity credit from
                                                                                                                                                                                                                wetlands, required buffers and endangered species
                                                                                                                                                                                                                habitats to upland areas of the same dev. site in the
                                                                                                                                                                                                                Coastal Area.
















                                                                                                                                   31
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            Issue #20: Threatened and Endangered Species   Manatee Protection; Hazardous Waste Disposal; Boundary Expansion
            Tampa Bay SWIM Plan                                             Terra Ceia Aquatic Preserve                                     Manatee County Comprehensice Plan
            Initiatives, Programs & Strategies                                                                                                              
             WATER QUALITY INITIATIVE 1
                                                      Management Policy Directives                        Element   Pg     GOP     Description                              
            Reduce point and non-point source pollutant loading to 
            attain water quality necessary to restore and maintain
            healthy and productive natural systems, protect human
            health , and to attain the highest possible water use
            classification.

            I.g. Hazardous Waste Disposal and water Quality Assurance

              Implement the requirements of the water Quality Assurance
              Act for a comprehensive statewide hazardous wage
              management program including the location of temporary
              storage/transfer facilities for hazardous wastes.
                 
              Provide needed surface water, groundwater and leachate
              characterization in and adjacent to potentially dangerous
              dump sites for application in state and local regulatory
              Initiate eventual rehabilitation of dump sites through
              restorative actions.














































                                                                                                                32




    I
    I                                   Appendix 5
    I                Issue Matrices: City of Palmetto Comprehensive Plan
    I
    I
    i
    I
    I
    I
    I
    I
    I
    I
    I
    I
    I
    I
    I
    II






          lssue i: Point Source Water Pollution [S                                     & API
          Tampa Bay SWIM Plan                                                   Terra Ceia Aquatic Preserve                                            City of Pal - no Comprehens
          Initiatives, Program 4 & Strategies                                    Management Policy Directives                                          Element PR          GOP              Description
          WATER QUALITY INITIATIVE 1                                            (1)   Rejuite. through the efforts of                             CONS       VII-2 ObJ. 1.2           Ensure no net
          Reduce point and nonpolat source pollutant loading to attain                maintenance and upgrading of the water quality of do                                                 water quality
          water quality necessary to restore and maintain healthy and                 estuary and ensure the natural seasonal flow fluctuations of                                         existing; and
          productive natural systems, protect human health, and to                     fresh water into the          In micular encourage the                                               [2] Objective
          attain the highest possible water useclassification.                       Department of Environmental regulation and die                                                        agric. runoff.
                                                                                      Environmental Regulatory Commission to extend OFW                                                    [3] Incorpon
          PROGRAMS                                                                    designations to wetlands above the MHW line in areas                                                 treaftnent
          I.a Reduction of Domestic and hJustrial Pollutant Discharge                within or adjcent to the aquatic preserve.                                                           reduction in
                                                                                                                                                                                           infidure.
          STRATEGIES                                                                                                                                              V11-3 Pol. 1.2.3         Ali future u
             Achieve a thorough understanding of the quality and                                                                                                                           City's WWT
             composition of domestic and industrial effluents being                                                                                                                        degradation
             disfirged into Tampa Bay throtigh the previously described                                                                                                                  resources. an
             water quality assessment program.                                                                                                                            Pol. 1.2.7       Im lement
             Minimize and/or eliminate pollutant loadinits from domestic                                                                                                                   = reuse
             and industrial wastewater discharged into Tampa Bay through                                                                                                                   stormwater 1998
             lt.mive re-ust and disposal options and other effective                                                                               CM          VII-1 I ObJ. 1.7         Ensure that n
             options as determined through die previously descdbed weer                                                                                                                    to discharge
             qrality assessment program.                                                                                                                                                    Ceis Bay do
             ablish legally enforceable, resource baud. effluent                                                                                                                        (21 Expand o
             aocaons tor domestic and industrial point sounes                                                                                                                                  
             discharges if such allocations are shown to be necessary                                                                                                                      Wiwi- 4q(e0qg
             through the water quality assessment process.                                                                                                                                 storm*wler r
             Discourage overcommitment of wastewater treatment and                                                                                                                         "Knagement
             disposal capacities on the part of the bay area local                                                                                                                         [31 Does not
             governments by providing the DER's Southwest District                                                                                                        Pol. 1.7.2       Implement
             Office with a stronger basis for evaluation of discharge permit                                                                                                               Terra Ceia A
             applications. This will be accomplished through Step I of the                                                                                                                 measurably'
                   isly described water quality assessment process.                                                                                                                       productivity
             C=age greater = interest cost-sharinS (impact fees)                                                                                                                          other aquatic
             in the construction        regional wastewater treatment                                                                                                                      [31 Does this
             facilities.                                                                                                                                                                   w1i Ch. 18-246
             Discourage the construction of wastewater treatment plants                                                                                                   Pol. 1.7.3       Pollution disc
             which serve specific projects and promote construction of                                                                                                                     compliance
             regional plants.                                                                                                                                                              stds.
             Minimize and/or eliminate pollutant loadings to Tampa Bay                                                                                SNSW        VII-29 Obj. 1.1          Provide sar0qd
             and its tributaries from sepac tank seepage.                                                                                                                                  lintits.
             Promote and/or draft new local. state. and federal legislation                                                                                               POL 1.1.1        City's sew
             and rules necessary to reduce domestic and industrial                                                                                                                         system 8=
             pollutant discharges to acceptable levels as determined                                                                                                                       and federal it
             through the water quality assessment process..
          Lb. Enforcement of Effluent Discharge limitations

             Bring all domestic and industrial point source discharges
             compliance with applicable effluent limitations including
             allocted waste loads by strengthening local govenn. ent
                                                    lian
              I 11prit, PnfDroqment and camp     ce monitoring
             Program through oost-sharing incentives.








          NOTES: Agency objections, Teconimendations, mid/or comments are shown in itahcs and we source-coded: [I) DCA, 121 DER, 131 DNR, 141 H0RI2SBOROUG
          COUNTY, [61 CITY OF PALMETTO, [7] TBRPC, [81 SWFWMD, (911000 FRIENDS OF FLORIDA, [101 DOT. [III FGFWFC, [12] DOS, [131 DACS.




      
              Issue#2: Nonpoint Source Water Pollution [SWIM & AP]
              Tampa Bay SWIM Plan                                                              Terra Ceia Aquatic Preserve                                             City of Paletto Comprehensive Plan
              Initivies, & Strategies                                               Management Policy Directives                                                   Element Pg              GOP                Description
              WATER QUALITY INITIATIVE I                                                       (E)   Prohibit development activities within the aquatic preserve CONS                        VII-2 ObJ. 1.2                 Ensure no net reduction in surface and subsurface
              Reduce Point and nonpoint source pollutant leading to attain                         that adversely impact saltmarshes and other valuable                                                                 water quality in coastal and inland areas as a result of
              water quality necessary to restore and maintain healthy and                            intertidal, submerged, and emergent habitats unless a prior                                                           existing and future development.
              productive natural systems, protect human health, and to                               determination has been made by the Board of overriding                                                               [2] Objective lacks a policy addressing untreated
              attain the highest possible water we classification.                                    public importance and that no reasonable alternatives exist.                                                         agric. runoff.
                                                                                                     Selected Additional Policies & Procedures:
                                                                                                                                                                                                                          [3] Incorporate Ch. 17-25.035(1)(b),F.A.C.
              I.a. Reduction of Domestic and Industrial pollutant Discharge                          I .    Identify and develop guidelines for areas and plain                                                           treatment criteria and wording guaranteeing no
                                                                                                            communities in need of restoration.                                                                           reduction in strenght of policy.
                 Minimize and/or eliminate pollutant loadings to Tampa Bay                       2.     Discourage developments within the aquatic preserve                                       Pol. 1.2.1              Drainage systems in all new development or
                 and its tributaries from septic tank seepage.                                              that require restoration or mitigation.                                                                       redevelopment shall be designed to collect and treat
                                                                                                     3.    Develop an exotic plant control and removal plan                                                               stormwater to minimize pollution loadings to
              l.c. Urban Stormwater Management                                                              following monitoring.                                                                                         receiving water bodies consistent w/adopted LOSs. 
                                                                                                     4.     Develop a cumulative impact analysis program for                                                              All  new development will be required to comply w/
                 Reduce the levels of nutrients and other contaminants in                                   analyzing proposed uses within the aquatic preserve.                                                          most recent stormwater requirements of SWFWMD.
                 urban stormwater runoff requiring if feasible, that the                    (T)     Require, through the efforts of DER and SWFWMD, the                                              Pol. 1.2.2           Assess by 1993 the economic feasibility/cost benefit
                 quality of stormwater discharges be no worse than the state                          maintenance and upgrading of the water quality of the                                                               of retrofitting existing stormwater mangement
                 water quality criteria or the existing quality of the receiving                     estuary and ensure the natural seasonal flow fluctuations of                                                         facilities to provide treatment and removal of
                 water body, whichever is better. The feasibility of                                fresh water into the estuary. In particular encourage the                                                             pollutants prior to discharge into receiving
                 implementing this objective will be examined through a                               Department of Environmental Regulation and the                                                                      waterbodies.
                 review of federal, state, District, and load rules pertaining to                    Environmental Regulatory Commission to extend OFW                                                                    [8] City should coordinate w/WMD'S	SWIM
                 storm water management.                                                             designations to wetlands above the MHW line in areas                                                                 program, and sooner than 1993.
                   Minimize the quantities of nonpoint source pollutants                             within or adjacent to the aquatic preserve.                                            VII-3 Pol. 1.2.4              Septic tank use shall be restricted to areas in which
                 entering Tampa Bay through selection of high priority urban                                                                                                                                              their efficients use can be determined w/o
                 stormwater system retrofit projects and providing cost-                                                                                                                                                  environmental degradation of water resources or
                 sharing incentives to local governments for project                                                                                                                                                      threat to Public health.
                 implementation.
                 For all new upland development or redevelopment within the                                                                                                                                               [I]] Specify how septic tanks shall be limited.
                                                                                                                                                                                                                          [8] Inconsistent w/ Pol. 1.2.3., CONS element.

                 Tampa Bay watershed, runoff rates should not exceed those                                                                                                                                                Consider requiring all new development to connect
                 of natural undisturbed conditions. The feasibility of                                                                                                                                                    to City WWT system, & phase out septic tanks.
                 implementing this objective will be examined through a                                                                                                                                Pol. 1.2.6         Review development regulations by 1991 to
                 review of federal, state, district, and local rules pertaining to                                                                                                                                        encourage use of innovative development practices
                 stormwater management.                                                                                                                                                                                   minimizing negative water quality impacts.
                 Conduct a multiyear public awareness campaign regarding                                                                                                                                Pol. 1.2.7        Imp1ement programs to develope water reclamation
                 the causes of nonpoint source pollution and actions the public                                                                                                                                           and/or reuse alternatives for wastewater effluent and
                 can take to reduce nonpoint source pollution.                                                                                                                                                            stormwater by 1993.
                                                                                                                                                                                                      POL 1.2.9           Discourage hardening, channelizing, or structural
              1h. Control of Seepage Waste                                                                                                                                                                                modification of natural drainageways
                                                                                                                                                                                            VII-4     Pol 1.2.10          Preserve natural landscape barriers to flooding and
                Determine the degree to which Tampa Bay is being burdened                                                                                                                                                 stormwater as a requirement to obtain a DO.
                 by illegal disposal of septage waste through the previously                                                                                                       CM       VII-11    Pol 1.7.2           Implement upon adoption of comprehensive plan the
                 described water quality assessment program.                                                                                                                                                              Terra Ceia Aquatic Preserve Management Plan to
                Eliminating existing health hazards due to seepage of septage                                                                                                                                             measurably improve water quality and increase
                 waste into the bay and its tributaries.                                                                                                                                                                  productivity of commercially important fisheries and
                Ensure the proper regulation and disposal of septage waste.                                                                                                                                               other aquatic resources.
                                                                                                                                                                                                                          [3] Does this include adoption of regulatory wording
                                                                                                                                                                                                                          w/i Ch. 18-2, F.A.C?
                                                                                                                                                                                                      Pol. 1.7.3          Pollution discharges into Terra Ceia Bay shall be in

                                                                                                                                                                                                                          compliance w/at least minimum DER Class II WQ
                                                                                                                                                                                                                          sts.
                                                                                                                                                                              DRNG          VII-35 Obj. 1.1               Adopt a stormwater management plan by 1993 to
                                                                                                                                                                                                                          ensure adequate drainage facilities are available

                                                                                                                                                                                                                          commensurate w/future development.
                                                                                                                                                                                                      Pbl 1.1.2           Review existing drainage regulations by 12/89 as
                                                                                                                                                                                                                          well as those of other jurisdictional agencies and
                                                                                                                                                                                                                          implement appropriate interim drainage regulations
                                                                                                                                                                                                                          pending completion of stormwater management plan.
                                                                                                                                                                                                      Pol 1.1.5           City Public Works Dept. shall coordinate its
                                                                                                                                                                                                                          stormwater management activities w/other gov't
                                                                                                                                                                                                                          agencies to ensure optimal protection of human life
                                                                                                                                                                                                                          & property.
                                                                                                                                                                                                                          [8] Make policy more specific re: coordination.

                                                                                                                                                                                                                         (continues)
 





         Issue#2: Nonpoint Source Water Pollution [SWIM & AP]
         Tampa Bay SWIM Plan                                                     Terra Ceia Aquatic Preserve                                            City of Palmetto Comprehensive Plan
         Initiatives, Programs, & Strateiges                                     Management Policy Directives                                           Element Pg     GOP                Description
                                                                                                                                                        DRNG    VII-36 Pol. 1.1.8          City shall not permit development that will have
                                                                                                                                                                                           irreversible adverse impact on storage capabilities,
                                                                                                                                                                                           increase flood prone areas, significantly increase
                                                                                                                                                                                           rates of runoff or cause unfavorable drainage
                                                                                                                                                                                           conditions (except in cases of overriding public
                                                                                                                                                                                           interest).
                                                                                                                                                                       Pol. 1.1.9          Pollution control structures and techniques shall be
                                                                                                                                                                                           required during, and, if necessary, after construction
                                                                                                                                                                                           activities to prevent water pollution from erosion and
                                                                                                                                                                                           siltation.
                                                                                                                                                                                           [I] Specifiy how structures will be required.
                                                                                                                                                                VII-37 Obj. 1.3            City shall coordinate w/DER, SWFWMD, and
                                                                                                                                                                                           Manatee Co. Utilities Dept. toward identification and
                                                                                                                                                                                           resolution of City's long-range drainage problems.
                                                                                                                                                        FLU     VII-42 Pol. 1.1.4          New development shall be permitted only when
                                                                                                                                                                                           adequate drainage & storm water mgmt., open space,
                                                                                                                                                                                           & traffic flow & parking are provided.
                                                                                                                                                                VII-46 Pol. 1.9.1          Adopt & enforce LDRs containing specific &
                                                                                                                                                                                           detailed provisions necessary or desirable to
                                                                                                                                                                                           implement this plan [selected]:
                                                                                                                                                                                           (c) regulate areas subject to seasonal & periodic
                                                                                                                                                                                           flooding & and provide for drainage & storm water
                                                                                                                                                                                           management.
                                                                                                                                                                                           (d) ensure protection of environmentally sensitive
                                                                                                                                                                                           land designated in the comperhensive plan.
                                                                                                                                                        CPIM    VII-51 Pol. 1.1.2          Those projects needed to correct existing deficiencies
                                                                                                                                                                                           in meeting adopted LOS stds. shall receive highest
                                                                                                                                                                                           priority in scheduling & funding. Priorities shall be
                                                                                                                                                                                           based on [selected]:
                                                                                                                                                                                           --whether project furthers objectives and facilities
                                                                                                                                                                                           state or WMD plans for providing public facilities
                                                                                                                                                                                           within the City.











                                                                                                                                                    





















                                                                                                                          3






       Issue#3: Phosphate Processing Operations  [SWIM & AP]
       Tampa Bay SWIM Plan                                             Terra Ceia Aquatic Preserve                                       City of Palmetto Comprehensive Plan
       Initiatives, Programs, & Strategies                             Management Policy Directives
       WATER QUALITY INITIATIVE 1                                      (1) Prohibit the drilling of oil and gas wells, the mining of     Element  Pg   GOP     Description
       Reduce point and nonpoint source pollutant loading to attain        materials, and dredging for the primary purpose of
       water quality necessary to restore and maintain healthy and         obtaining upland fill within the aquatic preserve.
       productive natural systems, protect human health, and to                      
       attain the highest possible water use classification.

       1.f Management of Toxic Pollutants

        Gypsum fields and other toxic waste sources should be
        managed in such a manner so as to preclude all future adverse
        environmental impacts on Tampa Bay.
        Previously incurred environmental impacts on Tampa Bay
        resulting from mismanagement of gypsum fields or other
        contaminant sources should be readdressed.





















































                                                                           4






            Issue#4: Urbanization/Land Use/Wildlife Habitat [SWIM & AP]
            Tampa Bay SWIM Plan                                                        Terra Ceia Aquatic Preserve                                               City of Palmetto Comprehensive Plan
            Initiatives, Programs, & Strategies                                        Management Policy Directives                                              Element   Pit     GOP           Description
            DEVELOPMENT AND PUBLIC USE INITIATIVE 1                                    (D)   Protect and, where possible, enhance threatened and                 CONS      VII-1   Obj. 1.1      Protect and enhance its natural resources by ensuring
            Provide sound environmental policies governing land use                          endangered species habitat within the aquatic preserve.                                             mitigation of adverse impacts of pollution and
            which impact the Tampa Bay ecosystem.                                             Selected Additional Onsite Policies & Procedures:                                                  restoration of natural systems disrupted by new dev.
                                                                                              1.   Require additional authorization and approval for                               Pol. 1.1.1    Restrict development that will result in net reduction
            1.a. Encourage Appropriate Land Use: at the local, state, and                          activities using submerged lands within the aquatic                                           in fish and wildlife habitat for rare, threatened, and
            federal level, encourage appropriate development or agricultural                       preserve in areas where manatees are present.                                                 endangered species. (Coordinate w/FWFGC to
            use of land bordering the bay and its tributaries.                                    (Additional restrictions may apply.)                                                           implement.)
                                                                                       (E)    Prohibit development activities within the aquatic preserve                                        (1)Specify how development will be restricted.
              Promote limiting or preventing land alterations via incentives                  that adversely impact saltmarshes and other valuable                                               (2)Use of "net" does not offer adequate protection
              such as tax reductions, density tradeoffs, or transfers or                      intertidal, submerged, and emergent habitats unless a prior                                        to habitat. Suitable habitat should be identified &
              purchases of developmental rights. Appropriate policies and                     determination has been made by the Board of overriding                                             protected from activities that would disturb such
              regulations will be developed by the District for consideration                 public importance and that no reasonable alternatives exist.                                       areas, except restoration activities.
              by local governments through the review of comprehensive                        Selected Additional Onsite Policies & Procedures:                            VII-2   Pol. 1.1.8    Enter into an interlocal agreement with Manatee Co.
              plans and through preparation of model ordinances.                               1. Identify and develop guidelines for areas and plant                                            to ensure continuation of cooperation to conserve,
              Promote designations of increased buffer zones, setback                             communities in need of restoration.                                                            use, and or protect unique vegetative communities w/                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                    																																																																	                                																																																																																																																																																																																																																							        requirements, wildlife corridors, and conservation easements                     2. Discourage developments within the, aquatic preserve                                           shared boundaries.
              reviewing local governments comprehensive plans and                                 that require restoration or mitigation.                          CM      VII-5   Obj. 1.1      Review development regulations by 12/89 to ensure
              ordinances, and recommending appropriate amendments to                           3. Develop an exotic plant control and removal plan                                               no net reduction in native vegetation, marine grass
              accomplish the above objectives.                                                    following monitoring.                                                                          beds, mangrove forests, coastal marshes, and living
              Promote environmental sound local and state comprehensive                        4. Develop a cumulative impact analysis program for                                               marine resources (after mitigation).
              plans, inclusive of land use plans for preservation of habitats                     analyzing proposed uses within the aquatic preserve.                                           (1)Specify what mitigation will be required
              and land tracts.                                                         (I)    Prohibit the drilling of oil and gas wells, the mining of                                          (2)Coastal communities should be mapped and
                                                                                              materials, and dredging for the primary purpose of                                                 classified as ESAs/Preservation lands, and other
            1.c. Laws and Permitting Review: evaluate adequacy of existing                    obtaining upland fill within the aquatic preserve.                                                 protective mechanisms should be utilized as
            zoning laws, environmental laws and permitting processes as                (J)    Prohibit non-water dependent uses of submerged lands                                               necessary.
            related to land use and environmental resources.                                  within the aquatic preserve except in those cases where the                          Pol. 1.1.3    Protect living marine resources from immediate and
                                                                                              Board has deterimined that the project is overwhelmingly in                                        future degration resulting from improper
              Evaluate existing local, state, and federal laws concerning                     the public interest and no reasonable alternatives exist.                                          development and/or waste disposal practices. Review
              land use and the permitting process (inclusive of agricultural                  This prohibition shall include floating residential units, as                                      and correct or revise appropriate codes and
              uses).                                                                          defined in Section 125.0106(6), F.S.                                                               ordinances as necessary to ensure no net loss of
              Promote and/or draft revisions of existing local, state, and             (K)    Prohibit storage of toxic, radioactive, or other hazardous                                         living marine resources.
              federal laws concerning land use and the permitting process                     materials within the aquatic preserve. Any hazardous waste                                         [2] Coastal communities should be mapped and
              (inclusive of agricultural uses). This will be accomplished                     dumps now located within the aquatic preserve should be                                            classified as ESAs/Preservation lands, and other
              through the development of model ordinances inaddition to                       closed and eliminated.                                                                             protective mechanisms should be utilized as
              specific proposed amendments.                                            (T)    Require, through the efforts of DER and SWFWMD, the                                                necessary.
              Evaluate, promote, and/or draft improved laws for mitigation                    maintenance and upgrading of the water quality of the                                Pol. 1.1.6        Review development regulations by 12/89 to assess 
              policies and practices, specifically addressing action to be                    estuary and ensure the natural seasonal flow fluctuations of                                           feasibility of:      
              followed if unanticipated impacts are detected after the fact;                  fresh water into the estuary. In particular encourage the                                              --preserving 20% of onsite native vegetation after
              mitigation banking should be evaluated as should criteria for                   Department of Environmental Regulation and the                                                         development
              monitoring and determining the success of the Project.                          Environmental Regulatory Commission to extend OFW                                                      --using pilings in place of fill to elevate structures in
                                                                                              designations to wetlands above the MHW line in areas                                                   areas of extensive native vegetation
            1.d. Developmental Designs and Practices: promote                                 within or adjacent to the aquatic preserve.                                                            --providing buffer strips to separate developed
              environmentally sound projects and practices.                                                                                                                                          portions of sites from onsite native vegetation
              Promote use of mining natural features and native plant                                                                                                                                --utilizing maximum amount of native vegetation for                     
              species for landscaping and habitat, with special emphasis on                                                                                                                          landscaping in buffer areas, setbacks, and/or open
              use of transportation programs and xeriscaping practices as                                                                                                                            spaces
              well as the establishment of wildlife corridors.                                                                                                                                       --establishing mitigation stds. for development in
              Promote and/or draft zoning and environmental laws                                                                                                                                     and around ESAs.                                                                          
              requiring increased buffer zones, setback requirements,                                                                                                              Pol. 1.1.7        Assit in enforcement of federal, state, and federal
              habitat retention, transplantation, xeriscaping practices, and                                                                                                                         mitigation policies by withholding building permits
              wildlife corridors and requiring reductions in project                                                                                                                                 until all necessary environmental permits are
              densities, percent impervious surfaces, use of chemicals, and                                                                                                                          received.
              use of non-native plant species. These objectives will be                                                                                                    VII-7   Obj. 1.3          Establish land use criteria giving priority to siting and         
              implemented through the following series of projects: (i)                                                                                                                              development of water-dependent usea in the coastal
              review local comprehensive plans and land use ordinances                                                                                                                               area.
              and recommend appropriate revisions, (ii) prepare model                                                                                                                                [3] Objective fails to consider AP. All developments
              ordinances, and (iii) review District rules pertaining to land                                                                                                                         upland of the AP should receive highest scrutiny. 
              use and development practices.                                                                                                                                       Pol. 1.3.1        Establishes FLU criteria for water-dependent uses.
              By examining incentives such as tax reductions, or mitigation                                                                                                                          [3] Does not consider AP. 
              banking, stimulate redevelopment of existing projects to                                                                                                     VII-8   Obj. 1.5          Restrict development activiteis and public funding
              reduce environmental impacts and improve habitat values.                                                                                                                               for facilities within CHHAs.
            (continues)                                                                                                                                                                                    
                                                                                                                                                                                                     (continues)          





             Issue#4: Urbanization/and Use/Wildlife Habitat [Swim & AP]									CITY OF PALMETTO COMPREHENSIVE PLAN
             Tampa Bay SWIM Plan                                                            Terra Ceia Aquatic Preserve       Element  Pg    GOP      DESCRIPTION			                                             
             Initiatives. Programs. & Strategies                                           Management Policy Directives       CM       VII-9 Pol.1.5.2Review ldrs by 1991 to ensure at a minimum that		                                                                                                              
             NATURAL SYSTYEMS INITIATIVE I                                                                                                            state model coastal development code                                          
             Preserve, enhance, and/or restore upland, riverine, intertidal                                                                           requirements are met.                      
             and subtidal habitats for 1) biological communities, 2)                                                                         Pol.1.5.5Restrict expenditure of public funds for facility                                                                            
             Pollution abatement, and 3) aesthetic and recreational														development in CHHA unless facility is for public 				
                                                                                                                                                      access or resource restoration.                                                             
             purposes.                                                                                                                 VII-11Pol.1.7.2Implement upon adoption of comprehensive plan the                                                            
                                                                                                                                                      Terra Ceia Aquatic Preserve Management Plan to                                                                 
             I -a- Preservation of Existing Habitats:  promote      the preservation                                                                  measurably improve water qualtiy and increase                                                              
             of relatively pristine or functional habitats already in existence.                                                                      productivity of commercially important fisheries and                                           
                                                                                                                                                      other aquatic resources.                                                               
                Promote more stringent local, state, and federal legislation to                                                              Obj.1.8  Develop a plan by 1993 to restore or enhance natural                                                                        
                protect habitats. stressing consistency among governments.                                                                            resources and habitat value of severely damage,                                                               
                Local government regulations will be emphasized initially                                                                             newly formed, or extensively altered coastal areas                                                               
                through District review and advice on developmental                                                                                   following disastrous storm events.                                            
                practices permitted by local rules and through preparation of                                                 REC&OS   VII-15Obj.2.2  Expand preservation of ESAs indicated on FLU plan,                                                                                          
                model ordinances.                                                                                                                     particularly near Terra Ceia Bay.                                                               
               Promote environmentally sound local, regional, and state                                                                     Pol.2.2.1Preserve private open space through the use of PDs                                                                         
                comprehensive plans. inclusive of preservation categories.                                                                            to conserve ESAs at TerraCeia Bay and Manatee                     
                                                                                                                                                      River.                                                                                                                                                                                                                                                                                                             
                local governments regarding comprehensive plans.                                                                       VII-16Pol.2.2.2Revise LDRs to specify stds. & requirements for                                                                                
                Promote enforcement of existing Clews protecting habitats                                                                             private open space conservation with the objective of                                                                                                                                                                                     
                environmental enforcement and compliance monitoring                                                                                   preservation of Terra Ceia Bay.                                                               
                programs.                                                                                                                             [3] Recommend inclusion of Ch. 18-20 criteria, and                                                               
               Promote enforcement of permit stipulations mandated by                                                                                 a 50' setback along the AP boundary.                                                              
                local, State, and federal agencies (inclusive of compliance                                                         FLU VII-42Pol.1.1.1Development of ESAs such as wetlands shall be	                                                                                 
                monitoring) through funding incentives for local government                                                                           avoided through the use of PUDs which transfer                     
                environmental protection "rains.                                                                                                      development density from coastal areas to upland                                                               
                promote and/or conduct public education programs (i.e.,                                                                               areas of the same development.                                                               
                television, radio, newspaper. area magazines, speakers                                                                                [2]Identify & map ESAs, including wetlands,                                                               
                bureaus, public schools. civic groups. homeowners-                                                                                    floodplains, flood prone areas, endangered species                                                               
                associations, public/guidebooks and handouts, continuing                                                                              habitat, etc.                                                                
                education courses, etc), efforts designed to teach people                                                                             [3]Development w/i environmentally sensitive                                                                .
                importance of leaving habitats intact.                                                                                                wetlands should be consistent w/rules of AP.                                                          
                Support existing acquisition programs such as Save Our                                                                                [7]Define "ESAs."                                                              
                Riven (SOR) and conservation and Recreational Lands                                                                          Pol.1.1.2Residential development w/i low-lying areas shall                                                                         
                (CARL).                                                                                                                               meet flood insurance stds. of elevation and be limited                                            
                Men appropriate, cooperate with environmental groups and                                                                              to densities that permit safe evacuation.                                                              
                local, state, and federal governments and agencies in tne                                                                             [2]Identify & map 100-yr flood hazard areas for                                                              
                purchase of lands by identifying areas in need of preservation                                                                        conservation use as part of an overall floodplain                                                               
                 and contributing to their purchase.                                                                                                  mgmt. program.                                                               
                Encourage and Support private donations of funds and land                                                                    Pol.1.1.4New development shall be permitted only when                                                                             
                parcels, parks, e1c., as well as passing of local timing                                                                              adquate drainage & storm water mgmt, open space,                                            
                initiatives.                                                                                                                          & traffic flow & parking are provided.                                                            
               Strategically place channel markers and educational signs for                                                           VII-44Obj.1.4  Conserve & protect natural & historic resources from                                                                             
                the pulic and boaters.                                                                                                                unnecessary.                                      
                                                                                                                                             Pol.1.4.2Protect conservation areas identified on FLU map by                                                                       
             1.b. Augmentation of Existing Habitats: expand and/or exchange                                                                           enactment of appropriate ordinances or by public                                            
             existing habitats as replacement for habitat losses throughout the                                                                       acquisition.                                                                                                          
             bay. tributaries, and associated uplands.                                                                                       Obj.1.5  Limit coastal area population densities consistent w/                                                                         
                                                                                                                                                      the need for an effective hurrican evacuation plan.                                            
               Expand habitats Such as salterns, mud flats, seagrass beds.                                                                                                                                          
                salt marshes, mangrove forests. and uplands as well as some                                                                  Pol.1.5.1Conserve & protect coastal areas by restricting                                                       
                components of spoil islands by selecting high priority projects                                                                       development, encouraging use of PD techniques, and                                                              
                and funding cost-effective augmentation designs.                                                                                      encouraging acquisition of public open space for                                                                     
                Use appropiate native plants to supplement habitats offered                                                                           parks & water access.                                                             
                by spoil islands as  well as those of subtidal, intertidal,                                                                           [1]Policy does not specify how Cit will encourage                                                              
                riiverine, and adjacent upland areas.                                                                                                 acquisition.  Specify implementation program or                                                                 
                                                                                                                                                      activity.                                                               
             (continues)                                                                                                               VII-46Obj.1.9  Enact land use development regulations consistent w/                                                 
                                                                                                                                                      & implement this plan.         (continues)                                                     
                                                                                                               6                                 







          Issu#4: Urbanization/Land Use/Wildlife Habitat [SWIM & AP]
          Tampa Bay SWIM Plan                                                    Terra Ceia Aquatic Preserve                                     City of Palmetto Comprehensive Plan                            
          Initiatives, programs, & strategies                                           Management Policy Directives                             Element  Pg     GOP        Description               
           Eradicate non-native or ecologically undesirable vegetation                                                                           FLU      VII-47 Pol.1.9.1  Adopt & enforce LDRs containing specific &	         
            from subtidal, intertidal, riverine and nearby upland areas and                                                                                                 detailed provisions necessary or desireable to                     
            replace with appropriate native species.                                                                                                                        implement this plan [selected]:                    
           design and strategically place artificial reds throughout the                                                                                                    [d]ensure protection of environmentally sensitive                
            bay and its tributaries.                                                                                                                                        land designated in the comprehensive plan.                 
            Expand oyster beds through additions of culch.                                                                                                                  LDRs shall contain performance stds. which address 
                                                                                                                                                                            buffering and open space requirements.                  
          1.c. Restoration of Habitat: restore habitats as replacement for
          habits losses throughout the bay. tributaries and adjacent
          uplands.
            Restore habitats such as uplands. riverine areas. salt marshes,
            mangrove stands, seagrass beds, oyster reefs, and mud flats as
            well as restoration utilizing existing spoil islands by selecting
            high priority projects and funding cost-effective restroation
           designs.                                                                                                                                    










































                                                                                                                          7




                                                                                                 
            Issue#5: Agricultural Activities and Effects on Water Quality and Living Resources [AP]
            Tampa Bay SWIM Plan                                                   Terra Ceia Aquatic Preserve                                            City of Pal etto Comprehens
            Initiatives, programs, & strategies
            DEVELOPMENT AND PUBLIC USE INITIATIVE 1                               Management Policy Directives                                          Element  Pg    GOP       Description
            Reduce point and nonpoint source pollutant loading to attain           Require. through the efforts of DER and SWFWMD, the
                                                                                        maintenance and upgrading of die water quality of the
            water quality necessary to restore and maintain healthy and                 estuary and ensure the natural seasonal flow fluctuations of
            productive natural systems, protect human health, and to                     fresh water into the          In     particular encourage the
            attain the highest possible water use classification.                         Department ofEnvironmental regulation and the
                                                                                        Environmental Regulatory Commission to extend OFW
            ld. Agricultural Stormwater Management                                    designations to wetlands above the MHW line in areas
             Develop soil and water conservation plans employing Best                  within or adjacent to the aquatic preserve.
              Management Practices for agricultural, aquacultural, and
              silvicultural operations in the Tampa Bay watershed. Priority
                            
              sub-basins will be identified by the District; conservation
              plans will be developed for landowners in priority sub-basins
              by the Soil Conservation Service with assistance from the
              district and local sail mid water conservation districts.
             Ensure compliance with approved conservation plans through
              establishment of new positions within the district with
              responsibility for compliance monitoring and enforcement.
              reduce the level, of nutrients and other contaminants in
              agricultural stormwater discharges by requiring if feasible,
              that the quality of stormwater discharges be no worse than the
                                                    
                   'water quality criteria or the existing quality of the
              receiving water body, whichever is better. The feasibility of
              implementing this objective will be examined through a
                         
              review Of           state, District, and local rules pertaining to
              storm water Management.

            DEVELOPMENT AND PUBLIC USE INITIATIVE AND
            PROGRAMS

            INITIATIVE I
            Provide sound environmental policies governing land use
            which Impact the Tampa Bay ecosystem.
            La. Encourage Appropriate Land Use: at the local, state. and
            federal level, encourage appropriate  development or agricultural
                                  
            use of land bordering       the bay and its tributaries.

              Promote limiting at preventing land alterations via incentives
              such as tax reductions, density tradeoffs, ortransfers at
              purchases of developmental rights.  Appropriate Policies and
                                                           
              regulations will be developed by the district for consideration
              
                 local            governments through review of comprehensive
                    an through         ration of model ordinances.
                   promote designations of increased buffer zones, setback
                   requirements, wildlife corridors, and conservation casements
                  wing local governments comprehensive plans and
              ordinances, mid recommending appropriate amendments to
              accomplish the above objectives.
              Promote environmental sound local and state comprehensive
              plans. inclusive of land use plans for preservation of habitats
              mid land tracts.











                                                                                                                          8





       Issue#6: Mosquito Control Activities and Effects on Water                    ality and Living Resources [AP]
       Tampa Bay SWIM Plan                                   Terra Ceia Aquatic Preserve                                         City of Palmetto C prehens
       Initiatives, Programs, & Strategies                     Management Policy Directives                                      Element Pg      GOP         Description
                                                             (L) Prohibit mosquito control practices within aquatic
                                                                        that require habitat modification or manipulation
                                                                 i.e., diking, ditching) unless them am no reasonable
                                                                      
                                                                 alternatives and failure to conduct such practices would
                                                                 result in a threat to public health.
                                                             (M) Limit pesticide and biocide use within the aquatic preserve
                                                                 to those that am approved by the Environmental Protection
                                                                 Agency (USEPA I or w etland and aquatic application,I











































                                                                                          9
 



      
            Issue#7:           Destruction/decline of Seagrasses
            Tampa Bay SWIM Plan                                                        Terra Ceia Aquatic Preserve                                           City of Palmetto Comprehensive Plan  
            Initiatives, Programs, & Strategies                                        Management Policy Directives                                             Element Pg     GOP                        Description
            NATURAL SYSTEMS INITIATIVE I                                               (D)   Prow and, where possible, enhance threatened and                   CM      VII-5  Obj. 1.1                   Review development by 12/89 to ensure
            Preserve, enhance, and/or restore upland, riverine, intertidal                   endangered species habitat within the aquatic preserve.                                                      no net reduction in native vegetation,marine grass
            and subtidal habitats for 1) biological communities, 2)                          Selected Additional Onsite Policies & Procedures:                                                            beds, mangrove forest,coastal marshes, and living
            pollution abatement, and 3) aesthetic and and recreational                       1.    Require: additional authorization and approval for                                                     marine resources
            purposes.                                                                              activities using submerged lands within the aquatic                                                   (2) Coastal communities should be mapped and 
                                                                                                   preserve in areas where manatees am present.                                                           classified as ESAs/Preservation lands and other
            I.a. Preservation of Existing Habitats: promote the preservation                       (Additional restrictions may apply.)                                                                   protective mechanisms should be utilized as 
            of relatively pristine or functional habitats already existence.        (E)   Prohibit development activities wig" aquatic preserve                                                           necessary.
                                                                                             that adversely impact saltmarshes and other valuable                                     Pol.1.1.1           Prohibit dredge & fill of marine grass beds except in
            *  Promote mom stringent local, state, and federal legislation to                submerged habitat unless a prior determination has been                                                     instances of overriding public interest (mitigation is 
               protect habitats. stressing consistency among governments.                   made by the Board of overiding public importance and                                                         required).
               Local government regulations will be emphasized initially                     that no reasonable alternatives exist.                                                                       (1) Specify how mitigation will be required
               through District review and advice on developmental                           Selected Additional Onsite Policies & Procedures:                                                          (2) Coastal communities should be mapped and         
              practices permitted by local rules and through preparation of                 1.    Identify and develop guidelines for areas and plant                                                       classified as ESAs/Preservation lands, and other
              model ordinances.                                                                   communities in need of restoration.                                                                       necessary.    
           *  Promote environmentally sound local,regional,and state                         2.    Discourage developments within the aquatic preserve                                                 
              comprehensive plans,inclusive of preservation categories.                          that require restoration or mitigation.                                                                     (3) Define "mitigation" Loss of further seagrass               
              Because of deadline imposed on local govemments by the                         3. Develope an exotice plant control and removal plan                                                        bed is not public interest as only seagrasses w/i
              state, emphasis will be placed on on reviewing and advising                        following monitoring.                                                                                   Palmetto are w/i Terra Ceia Aquatic Preserve.
             local governments regarding comprehensive plans.                                4. Develop a cumulative impact analysis program for
          *  Promote enforcement of existing laws protecting habitats                            analyzing  proposed uses within the aquatic preserve.
             through funding incentives for local government                             (1)   Prohibit the drilling of oil and gas wells the mining of
              environmental enforcement and compliance monitoring                           materials, and dredging for the primary purpose of
              programs.                                                                     obtaining upland fill within the aquatic preserve.
          *  Promote enforcement of  permit stipulations mandated by                 (J)    Prohibit non-water dependent uses of submerged lands
               local, state, and federal agencies (inclusive of compliance                   within the aquatic preserve except in those cases where die
               monitoring) through funding incentives for local government                   Board has determined that the project is overwhelmingly in
               environmental protection programs.                                           the public interest and no reasonable alternatives exist.
          *  Promote and/or conduct public education programs (i.e.,                       This prohibition shall include floating residential units, as
               television, radio, newspaper, area magazines, speakers                        defined in Section 125.0106(6). F.S.
               bureaus, public schools, civic groups, homeowners,                      (M)  Limit pesticide and biocide use within die aquatic preserve
               associations. public/guidebooks and handouts, continuing                      to those that am approved by the Environmental Protection
               education courses, etc); efforts designed to teach people the                Agency (USEPA) for wetland and aquatic application.
               important of leaving habitats intact                                    (N)   Prohibit the construction of new deepwater ports within the
            *  Support existing acquisition acquisition such as Save Our                     aquatic preserve boundaries.
               Rivers (SOR) and Conservation  and Recreational Lands
               (CARL).
               When appropriate, cooperate with environmental groups and
               local, state, and federal governments and agencies in die
               purchase of lands by identifying areas in need of preservation
               and contributing to their purchase
          (continues)                                                                                                                                         I
















                                                                                 10
 






           Issue#7:         Destruction/decline of Seagrasses
           Tampa Bay SWIM Plan                                                   Terra Ceia Aquatic Preserve                                            City o Palmetto Co prehensive Plan
           Initiatives, Programs, & Strategies                                   Management Policy Directives                                           Element  PG        GOP              Descripition
           * Encourage and support private donations of funds and land
             parcels, parks. etc. as well as passing of local taxing
             initiatives.
           * Strategically lace charnel markers and educational signs for
             the public and boaters.
           1.b.  Augmentation of Existing Habitats: expand and/or exchange
           existing habitats as replacement for habitat losses throughout the
           bay, tributaries, and associated uplands.
           * Expand habitats such as salterns,mud flats, seagrass beds,
             salt marshes, mangrove forests, and upland as wall as some
             components of spoil islands by selecting high priority Projects
             and funding cost-effective augmentation designs.
           * Use appropriate native plants to supplement habitat offend
             by spoil island an well as those of subtidal, intertidal,
             riverine, and adjacent upland areas.
           * Eradicate no-native or ecologically undesirable vegetation
             from subtidal, intertidal. riverme and nearby upland areas and
             replace with appropriate native native species.
           * Design and strategically place artificial reefs throughout the
             bay and its tributaries.
           * Expand oyster beds through additions of culch.
           1.c. Restoration of Habitats: restore habitats as replacement for
           habitat losses throughout the bay, tributaries and adjacent
           uplands.

           * Restore habitats such as uplands, riverine areas, salt marshes,
             mangrove stands, seagrass beds, oyster reefs. and mud flats as
             well as restoration utilizing existing spoil Islands by selecting
             high priority projects and funding cost-effective restoration
             designs.
           * Restoration in lieu of or supplemental to as walls.
           * Create littoral shelves via dredging and filling, perhaps in
             concert with Planters boxes and breakwater structures.
           * Evaluate filling borrow pits within the bay, thereby creating
             additional euphotic habitat.
           I.d. Sediment Stabilization: address sedimentological problems
           of the Tampa Bay system.
             Reduce turbidity via programs I.a.c. coupled with alternative
             technologies (e.g., dredging).

           DEVELOPMENT AND PUBLIC USE INITIATIVE 3
           Reduce incidental destruction of environmentally sensitive
           areas.

           3.a. Signs and Markers: Distribution of visual and educational
           aids throughout the bay.
           * Provide marking of small boat channels in problematic or
             environmentally sensitive areas (e.g..seagrass beds, oyster
             reefs, etc.).
           * Provide educational sips concerning environmentally
             sensitive areas; signs to be placed at boat amps, public
             beaches, nature preserves,public parks, valuable habitats such
             as seagrass beds. algae beds, oyster reefs, artificial reefs,
             restoration Projects, and areas frequented or inhabited by
             protected spaces (e.g., osprey. eagles, dolphins, sea turtles,
             manatees. etc.).
 


             Issue#8: Dredging and Disposal of Dredge Materials [SWIM & AP)
             Tampa Bay SWIM Plan                                                      Terra Ceia Aquatic Preserve               City of Palmetto Comprehensive Plan
             Initiatives, Programs, & Strategies                                      Management Policy Directives            Element Pg  GOP                                                               Description 
             NATURAL SYSTEMS INITIATIVE 1                                           
             Preserve, enhance, and/or restore upland,riverine, intertidal                (E)   Prohibit development activities within the aquatic preserve        CONS        VII-2 Obj.1.2                Ensure no net reduction in surface and subsurface                                                                                 Ensure no a
             and subtidal habitats for 1) biological communities, 2)                         that adversely impact saltmarshes and other valuable                                                          water quality in coastal and inland areas as a result of
             Pollution abatement, and 3) aesthetic and recreational                          intertiidal, submerged, and emergent habitats unless a prior                                                   existing and furture development
             purposes.                                                                       determination has been made by the Baud of overriding                                                          (2) Objective lacks a policy addressing untreated
                                                                                            Public importance and that no reasonable alternatives exist.                                                    agric. runoff.
             1.a. Preservation Of Existing Habitats: promote the preservation                  Selected Additional Onsite Policies & Procedures:                                                           (3) Incorporated Ch 17.25.035(1)(b), F.A.C.
               of relatively pristine or functional habitats already in existence                                                                                                                              treatment criteria, and wording guaranteeing no     
                                                                                             1. Identify and develop guidelines for area and plant                                                             reduction in strength of policy.
              * Promote more stringent local,state, and federal legislation to                  communities in need of restoration.                                                                                                                                                          
      	    protect habitats, stressing consistency amon governments			    2. Discourage developments within the aquatic preserve                      VII-3 Pol. 1.2.9                  Discourage hardening and filling of undisturbed bay
                Local goverment regulations will be emphasized initially                         that require restoration or mitigation                                                                     Modification of natural drainageways.                
                through district review and advice on developmental                          3. Develop An exotic plant control and removal plan                                                                                                                    modification
                practices permited by local rules and through preparation of                     following monitoring.                                                                                      Prohibit dredging and filling of undisturbed bay              
                model ordinances.                                                            4.  Develop a cumulative impact analysis program for                                                           Bottom execept in cases of overriding public interest.             
                                                                                                analyzing proposed uses within the aquatic preserve.                                                         Mitigation is required where appropriate.
             1.c. Restoration of Habitats: restore habitats as replacedment of           (1)   Prohibit the drilling of oil and gas wells, the mining of                                                  (1) Specify how mitigation will be required.
                habitat losses throughout the bay, tributaries and adjacent                        materials. and dredging for the primary purpose of
                uplands.                                                                                 obtaining upland fill within the a aquatic preserve.
                * Restore habitats such as uplands, riverine area, salt marshes             (N)   Prohibit the construction of new deepwater ports within the
                  mangrove stands, seagrass beds, oyster reefs, and mud flats as                 aquatic preserve boundaries.
                well as restoration utilizing existing spoil islands by selecting           (0)   Prohibit any activity commercial or recreational that might
                high priority projects and funding cost-effective restoration                     impact the integrity of hard bottom communities within the
                designs.                                                                                aquatic Preserve.
                                                                                             (Q)  Manage spoil islands within the aquatic preserve as bird                              
                                                                                                  rookeries and wildlife habitat area.
                                                                                       (T)   Require, through the efforts of DER and SWFWMD, the
              * Restoration in lieu of or supplemental to sea walls.                                 maintenance and upgrading of the water quality of die
              * Create littoral shelves via dredging and filling, perhaps in                        estuary and ensure the natural seasonal flow fluctuations of
                 concert with planters boxes and breakwater structures.                             fresh water into the estuary. In particular encourage the
              * Evaluate filling borrow pits within the bay, thereby creating                       Department of Environmental Regulation and the
                additional euphoric habitat                                                       Environmental Regulatory Commission to extend OFW
                                                                                                designations to wetlands above die MHW line in areas
             1.e. Marinas: evaluate environmental impacts of marinas within                     within or adjacent to the aquatic preserve
                Tampa Bay and its tributaries.                                              (W)   Prohibit Marinas and associated construction activities in
             * Evaluate environments impacts of existing marinas,                           Resource Protection Ann I and 2.
               including impacts on manatees and other protected species.
             * Develop a marina siting plan.
             * Evaluate and promote unproved marina designs and facilities,
               specificially  addressing problems of fuel storage, sewage,
               bilge pumping, solid waste, dredging, and related problems.








                                                                                                                               12
 

Issue#9: Wetlands (SWIM & AP)
TAMPA BAY SWIM Plan
Initiavtives,Programs & Strategies
NATURAL SYSTEMS INITIATIVE 1
Preserve, enhance, and/or restore upland, riverine intertidal and subtidal habitats for 1)biological communities 2)pollution abatement,and 
3)aesthetic and recreational purposes.
1.a. Preservation of Existing Habitats: promote the preservation of relatively pristine or functional habitats already in existence 
 * Promote more stringent local,state,and federal legislation protect habitats, stressing consistency among goverments Local govenment regulations
 will be emphazized intitally through District review and advice on developmental practices permitted by local rules and through prepartion of model ordinances.
*Promote environmentally round local,regional,and state comprehensive plans, inclusive of preservaton categories. Because of deadline imposed on local 
governments by the state, emphasis will be placed on reviewing and advising local governments regarding comprehensive plans.
*Promote enforcement of existing laws protecting habitats through funding incentives for local government environmental enforcement 
and compliance monitoring programs.
* Promote enforement of permit stipulations mandated by local, state,and federal agencies (inclusive of compliance monitoring) through funding incentives for local 
governments environmental protection programs.
*Promote and/or conduct public education programs (i.e, television,radio,newspaper,area magazines,speakers bureaus,public schools,civic groups, homeowers'
associations,public/guidebooks and handouts,continuing education courses, etc); efforts designed to teach peopel the importance of leaving habitats intact.
*Support existing acquistion programs such as Save Our River (SOR) and Conservation and Recreational Lands (CARL).
*When appropriate, cooperate with environmental groups and local, state, and federal governments and agencies in the purchase of lands by identifying areas in need of
preservation and contributing to their purchase.
Encourage and support private donations of funds and land parcels, parks, etc., as well as passing of local taxing intitiatives.
Strategically place channel markers and educational signs for the public and boaters.

1.b. Augmentiation of Existing Habitats: expand and/or exchange existing habitats as replacement for habitat losses throughout bay,tributaties, and associated uplands.
 
* Expand habitats such as saltems, mud flats, seagrass beds, salt marshes, mangrove forests,and uplands as well as some components of spoil islands by selecting high 
priority projects and funding cost-effective augmentation designs.
Use appropriate native plants to supplement habitats offered Use approprite native plans to supplement habitats offered by spoil islands as well as those of 
subtidal, intertidal, riverine, and adjacent upland areas.
 
TERRA CEIA AQUATIC PRESERVE
Management Policy Directives
(D) Protect and, where possible, enhance threatened and endangered species habitat within the aquatic preserve.
Selected Additional Onsite Policies & Procedures:
1. Require additional authorization and approval for activities using submerged lands within the aquatic preserve in areas where manatees are present.
   (Additional restrictions may apply.)
(E) Prohibit development activities within the aquatic preserve that adversely impact saltmarshes and other valuable intertidal, submerged,and emergent habitats unless a 
prio determination has been made by the Board of overriding public importance and that no reasonable alternatives exist.
Selected Additional Onsite Policies & Procedures:
1. Identify and develop guidelines for areas and plant communities in need of restoration.
2. Discourage developments within the aquatic preserve that requires restoration or mitigation.
3. Develop an exotic plant control and removal plan following monitoring.
4. Develop a cumulative impact analysis program for analyzing proposed uses withint the aquatic preserve.
Prohibit the trimming and/or removal of salt marsh vegetation and other natural shoreline vegatation within the aquatic preserve,expect when neccessitated by the pursuit of 
legally authorized projects and local protection ordinances.
Prohibit the drilling of oil and gas wells, the mining of materials,and dredging for the primary purpose of obtaining upland fill within the aquatic preserve. Require, 
through the efforts of DER and SWFWMD, the maintenance and upgrading of the water quality of the estuary and ensure the natural seasonal flow fluctuations of fresh water into
the estuary. In particular encourage the Department of Environmental Regulation and the Environmental Regulatory Commission to extend OFW designations to wetlands above the 
MHW  line in areas within or adjacent to the aquatic preserve.

CITY OF PALMETTO COMPREHENSIVE PLAN
Element Cons  Pg VII-1  GOP obj. 1.1  

Description  Protect and enhance its natural resources by ensuring mitigation of adverse impacts of pollution and restoration of natural systems disrupted by new dev. Freshwater wet prairies,
marshes, and swamps shall be protected from development that would significantly alter their natural character. Mitigation is required where development intrudes. Require all
applicable permits to be obtained before issuring.DO
(1) Specify what mitigation shall be required.
(3) Define mitigation levels.
GOP  Pol 1.13 
Description  Development shall not be permitted to supplant key wetlands unless overriding public interest is determined and mitigation required. 
(2) "Key wetlands" should be idenified, & mapped w/i ESA category w/ no disturbance allowed.
(3) Define miligation levels
(8) Indicate how "key wetlands" protection differ from that offered in Pol. 1.1.2.
GOP 1.1.4
  Description  Areas adjacent to wetlands shall be deemed important buffer areaa for wetland management and shall be treated in a manner minimizing adverse environ. impact on
ecologically sensitive wetlands.  Require all applicable permits to be obtained before issuing DO.
(2) Buffer areas need to be mapped & classified into conservation or ESA LU category, or protected otherwise.
(3) Define size of buffer area.
 Pg VII-2 GOP Pol 1.1.7  
Description  In order to protect wetlands and adjacent areas,DOs shall not be issued until all required permits from applicable agencies have been obtained.
ELEMENT CM Pg VII-5 GOP Obj.1.1 
Review development regulations by 12/89 to ensure no net reduction in native vegetation, marine grass beds, mangrove foreest,coastal marshes, and living marine resources.
(2) Coastal communities should be mapped and classified as ESAs/Preservation lands, and other protective mechanisms should be utilized as neccessary
GOP Pol. 1.1.2
Prohibit future development of mangrove forests and coastal marshes unless mitigation is required,
(1) Specify how mitigation will be required.
(2) Coastal communities should be mapped and classified as ESAs/Preservation lands, and other protective mechanisms should be utilized as necessary.
(3) Mangrove trimming is not per mitted w/i APs unless minimal for riparian access.
(7) Unavoidable destruction should be mitigated on at least a 1:1 basis.
ELEMENT REC&OS  Pg VII-15  GOP Obj 2.2  
Expand preservation of ESAs indicated on FLU plan, particularly near Terra Ceia Bay.
 Pg VII-16 GOP Pol 2.2.2
Revise LDRs to specify aids & requirements for private open space conservation with the objective of preservation of Terra Ceia Bay.
(continues)



 

)





            Issue#9: Wetlands [SWIM & AP]
            Tampa Bay SWIM Plan                                                     Terra Ceia Aquatic Preserve                                               City of Palmetto Comprehensive Plan
            Initiatives, Program, & Strategies
                                        Management Policy Directives                                             Element Pit [GOP                       Description
               Eradicate non-native or ecologically undesirable vegetation
              from subtidal, intertidal, riverine and nearby upland arm and                                                                                       FLU         VII-42 Pol 1. 1. 1    Development of ESAs such as wetlands shall be      
              replace with appropriate native species.                                                                                                                                              avoided th
            Design and strategically place artificial reefs throughout be                                                                                                                             development
              bay ad in tributaries.                                                                                                                                                                 aim of the
                  and oyster beds through addition$ of culch.                                                                                                                                        [21 Identify
                                                                                                                                                                                                    floodplains,
            Ic. Restoration of Habitats: restore habitats as replacement for                                                                                                                        habitat, tic.
            habitat losses throughout the bay, tributaries and ad*=                                                                                                                                 171 Define "ESAs."
            uplands.                                                                                                                                                     VII-44 Pol. 1.4.2           protect cons
                                                                                                                                                                                                    enactment of
             Restore habitats such as uplands, riverine areas, salt marshes,                                                                                                                       acquisition.
              mangrove stanands,"pass beds. oyster reefs, aid mud flats as                                                                                                VII-46 Pol. 1.9.1            Adopt & enforce
                                                                                                                                                                                                    detailed pro
              well as restoration utilizing existing spoil islands by selecting                                                                                                                     implement
              high priority projects and funding cost-effective restoration                                                                                                                         (c) regulate
              designs.                                                                                                                                                                              flooding &
             Restoration in lieu of of supplemental to sea walls.                                                                                                                                  management.
             Create littoral shelves via dredging and filling, perhaps in                                                                                                                          (d) ensure
              concert with planters boxes and breakwater structures.                                                                                                                                 land designated
             Evaluate filling borrow pits within the bay, thereby creating
              additional euphotic habitat.





































                                                                                                                             14
 




            Issue#10: Development and Damming of Creeks and Rivers [SWIM & AP]
            Tampa Bay SWIM Plan                                                           Terra Ceia Aquatic Preserve                                                   City of Pal etto Comprehensi
            Initiatives, Programs,& Strategies                                              Management Policy Directives                                                  Element Pg IGOP                          Description
            NATURAL SYSTEM INITIATIVE I                                                    (D)    Protect and, where possible, enhance threatened and                    CONS         VII-2 Obj. 12               Ensure no net
            Preserve, enbance, and/or restore upland, riverine, intertidal                 endangered species habitat within the aquatic preserve.                                                         water quality
            and subtidal habitats for 1) biological Communities, 2)                               Selected Additional Onsite Policies & Procedures:                                                                existing and
            pollution abatement, and 3)aesthetic and recreational                              L     Require additional authorization aid approval for                                                        [2] Objective
            purpose&                                                                                  activities using submerged lands within die aquatic                                                       agric. runoff.
                                                                                                                 in areas where manatees are present.                                                           [3]Incorporate
            La. Preservation of Existing Habitats: promote the preservation                           (Accigionzl restrictions may apply.)                                                                   treatment criteria,
            of relatively pristine or functional habitats already in existence.                  (E)    Prohibit development activities within the aquatic preserve                                                     reduction in s
                                                                                                that adversely impact saltmarshes and other valuable                                VII-3    Pol. 1.2.9         Discourage h
             Promote more stringent local, state, and federal legislation to                   intertidal, submerged, and emergent habitats unless a prior                                                     modification
                      habitats, stressing consistency among governments.                        determination his been nude by the Board of overriding                             VII-4 Pol. 1.2.10            Preserve natu
                      overnment regulations will be emphasized initially                        public importance and that no reasonable alternatives exist.                                                   stonnwater a
             through District review and advice on developmental                                  Selected Additional Onsite Policies & Procedures:                      REC&OS       VII-15 Pol. 2.2.1            Preserve priv
              practices permitted by local rules and through preparation of                     I .   Identify and develop guidelines for areas and plant                                                       to conserve
              model ordinances.                                                                       cominunities in need of restoration.                                                                      River.
             Promote environmentally sound local, regional, and state                          2.    Discourage developments within the aquatic preserve
              comprehensive plans, inclusive of preservation categories.                              that require restoration or mitigation.
              Because of deadlines imposed on local governments by the                             3.    Develop an exotic plain control and removal plan
              state, emphasis will be placed on reviewing and advising                                     following monitoring.
              local governments regarding comprehensive plus.                                      4.    Develop a cumulative impact analysis program for
             Promote enforcement of existing laws protecting habitats                                 anal                ad uses within the aquatic preserve.
              through funding incentives for local government. .                         (I)    Prohibit the drilling of oil and gas wells, the mining of
              environmental enforcement and compliance monitoring                              Materials,        d       g for the primary purpose of
              programs.                                                                         obtaining upland                 the aquatic        preserve.
             Promote enforcement of permit stipulations mandated by                     (N)    Prohibit the construction now deepwater ports within the
              local,state, and federal agencies (inclusive of compliance                         aquatic preserve             net.
              monitoring) through funding incentives for local government                (T)    Require, through the efforts of DER and SWFWMD, the
              environmental protection programs.                                                maintenance and upgrading of the water quality of the
             promote and/or conduct public education programs (le.,                            estuary and ensure the natural seasonal flow fluctuations of
                                                                                                                                         
              television, radio, newspaper, area magazines, speakers                            fresh water into the estuary. In particular encourage the
              bureaus. public schools, civic groups. homeowners-                                Department of Environmental Regulation aid the
              associations, public/guidebooks and handouts, continuing                          Environmental Regulatory Commission to extend OFW
              education courses, etc.); efforts designed to teach people the                    designatons to wetlands above the MHW line in areas
              importance of leaving habitats intact.                                            within or adjacent to the aquatic preserve.
             Support existing acquisiton programs such as Save Our
                                   
              Rivers (SOR) and Conservation and Recreational IAnds
              (CARL).
             When appropriate, cooperate with environmental groups and
              local, state, and federal govenunents and agencies in the
              purchase of lands by identifying areas in need of preservation
              and contributing to their purchase.
             Encourage and support private donations of funds and land
              parcels, parks, etc.. as well as passing of local taxing
              initiatives.
             Strategically place channel markers and educational signs for
              the public and boaters.
            l.b. Augmentation of Existing Habitats: expand and/or exchange
            existing habitats as replacement for habitat losses throughout the
            bay, tributaries, and associated uplands.
             Expand habitats such as salterns, mad flats, seagrass beds.
              salt marshes, mangrove forests, and uplands a well as sane
             components of spoil islands by selecting high priority projects
              and funding cost-effective augmentation designs.
             use appropriate native plants to supplement habitats offered
             
                  spoil islands as well as those of subtidal, intertidal,
              riverine, and adjacent upland areas.
            Eradicate non-native or ecologically undesirable vegetation
                                                                                                           
                                                                                                               
                                                                                                            
                                                                                                                     
                                                                                                                     
                                                                                                                     
































              from subtidal, intertidal, riverine and nearby upland areas and
              replace with appropriate native species.

            (continues)
 





           Issue#10: Develbpment and Damming of Creeks and Rivers [SWIM & AP]
           Tampa Bay SWIM Plan                                                Terra Ceia Aquatic Preserve                                      -City of Pal etto Comprehensive Plan
           Initiatives, Programs, & Strategies                                   Management Policy Directives                                          Element Pg [GOP                    Description
            Design and strategically place artificial reds throughout the
             by and its tributaries.
           ï¿½ Expand oyster beds through additions of culch.
           I.c. Restoration of Habitats: restore habitats as replacement for
           habitat losses throughout the bay, tributaries and adjacent
           uplands.
            Restore habitats such as uplands,riverine areas, salt marshes,
             mangrove stands, seagrass beds, oyster reefs,and mud flats as
             well as restoration utilizing existing spud islands by selecting
             high priority projects and funding cost-effective restoration
             designs.
            Restoration in lieu of or supplemental to sea wells.
            Create littoral shelves via dredging and filling. perhaps in
             concert with planters boxes and breakwater structures.
            Evaluate filling borrow pits within the bay, thereby creating
            additional euphotic: habitat.                                                                                                                     I       I              I







































                                                                                                                    16
 



          lssue# 1: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline [S
          Tampa Bay SWIM Plan                                                    Terra Ceia Aquatic Preserve                                            City of Palmetto Comprehensive Plan
          Initiaties,  Programs & Strategies                                       Management Policy directives                                            Element Pt IGOP                       Description
          NATURAL SYSTEM INTIATIVE I                                              (E)   Prohibit development activities within die aquatic preserve      CM          V11-5 Obj. 1.1            Review devlopment regulations by 12/89 to ensure 
          Preserve, enhance,and/or restire upland, riverine, intertidal                 that adversely impact saltmarshes and other valuable                                                 no net reduction in native vegetation, marine grass
          and subtidal habitats for 1) biological communities, 2)                       intertidal, submerged. and emergent habitats unless a prior                                            beds, mangrove forests, coastal marshes, and living
          pollution abatement, and 3) aesthetic and recreational                         determination has been nude by the Board of overriding                                                 marine resources.
          purposes.                                                                      public importance and that no reasonable alternatives exist.                                             [2] Coastal communites should be mapped and
                                                                                       Selected Additional Onsite policies & procedures:                                                     classified as ESAs/Preservation lands, and other
          I. Preservation of Existing Habitats: promote the preservation             I .   Identify and develop guidelines for areas and plant                                               protective mechanisms should be utilized as
          of relatively pristine or functional habitats already in exists=.                  communities in need of restoration.                                                              necessary.
                                                                                       2.    Discourage developments within the aquatic preserve                             Pol. 1.1.3       Protect living marine resources from immediate and
            Promote  more stringent local, state, and federal legislation to                that require restoration or mitigation.                                                          future degradation resulting from improper
           																															
                    habitats. stressing consistency among governments.                 3.    Develop an exotic plant control and removal plan                                                 development and/or waste disposal practices. Review
             Local government regulations will be emphasized initially                      following monitoring.														and correct or revise appropriate codes and
            through District review and advice an developmental                        4.    Develop a cumulative impact analysis "run for                                                    ordinances as necessar to ensure no net loss of
             practices permitted by local rules and through preparation of                   analyzing proposed uses within the aquatic preserve.                                                living marine resources.
             model ordinances.                                                   (G)  Provide and actively encourage research and educational                                                [2] Coastal ccommunities should be mapped and 
            Promote environmentally sound local, regional, and state                  opportunities for scientists and other interested researchers                                           classified as ESAs/Preservation lands, and other
             comprehensive plans, inclusive of Preservation categories.                within the framework of a planned research program in the                                              protective mechanisms should be utilized as
             Because of deadlines imposed on local governments by the.    'serve.                                                                                     					necessary.
             state, emphasis will be placed on reviewing and advising                 (0)  Prohibit any activity commercial or recreational that might            VII-11 PD1. 1.7.2         Implement upon adoption of comprehensive plan the
             local governments regarding comprehensive plans.                          impact the integrity of hard bottom communities within the                                               Terra Ceis Aquatic Preserve Managemtne Plan to
          ï¿½  Promote enforcement of existing laws protecting habitats                  aquatic preserve.                                                                                       measurably improve water quality and increase
             through funding incentives for local government                        (P)   Insure that artificial reef construction does not adversely                                           productivity of commercially important fisheries and                
             environmental enforcement and compliance monitoring                       impact environmentally fragile &max within the aquatic                                                  other aquatic resources.                                                                                      preserve and that the construction will maintain the                                                       
             programs.                                                                                                                                                                        [3] Does this include adoption of regulatory wording
            Promote enforcement of permit stipulations mandated by                    essentially natural condition while enhancing the quality                                              w1i Ch. 18-20, F.A.C.?
             local, state, and federal agencies (inclusive of compliance                and utility of the preserve.                                                          POL.1.7.4        DNR approval for shellfish harvesting in Terra Ceia
                                                                                                                                                                                                     
             monitoring) through funding incentives for local government         (T) Require, through the efforts of DER and the Southwest                                                  Bay shall be obtained by 1993.
             environmental protection programs.                                              Florida Water Management District (SWFWMD), the                                                      [7]Policy should state that "city shall pursue
                                           
            Promote and/or conduct public education programs (i.e.,                   maintenance and upgrading of the water quality of the                                                  shellfish harvesting in Terra Ceia Bay.
             television, radio, newspaper. am magazines. speakers                      estuary and ensure the natural seasonal flow fluctuations of                                           [3]DNR approval for shellfishing is hindered by
             bureaus, public schools, civic groups, homeowners                        fresh water into the estuary. In particular encourage the                                              presence of sewage efficient from Tropic Isles Mobile
             associations, public/guidebooks and handouts, continuing                  Department of Environmental Regulation and the                                                         Home Park.
             education courses, etc.) efforts designed to teach people the            Environmental Regulatory Commission to extend OFW
             importance of leaving habitats intact.                                    designations to wetlands above the MHW line in &max
             Support existing acquisition programs such as Save Our                   within or adjacent to the aquatic preserve.
                                 
             Rivers (SOR) and Conservation and Recreational Lands                 (X)   Identify and document any problems caused by fishing.
             (CARL).                                                                   shellfishin and collecting activities and report than to the
            When appropriate, cooperate   with environmental groups and              Marine Fisheries Commission.
             local, state, and federal governments and agencies in the                      (Z)   Recognize that successful shellfish culture and harvesting
             purchase of lands by identifying areas in need of preservation            efforts in the aquatic preserve am dependent upon
             and contributing to their purchase.                                       pollution prevention and abatement and careful
            Encourage and support private donations of funds and land                 comprehensive planning.
             parcels, parks, etc., as well as passing of local taxing
             initiatives.
            Strategically place channel markets and educational signs for
             the public and boaters.
          1.b. Augmentation of Existing Habitats: expand and/or exchange
             existing habitats as replacemnt for habitat losses throughout the
         	bay , tributaries, and associated uplands.
				  Expand habitats such as saltems, mud flats, seagrass beds,
             salt marshes, mangrove forests. and uplands as well as scene
             components of spoil islands by selecting high priority projects
             and funding cost-effective augmentation designs.
            Use appropriate native plants to supplement habitats offered
             by spoil islands as well as those of subtidas, intertidal,
            riverine, and adjacetn upland areas.
                                    
          Eradicate non-native or ecologically undesirable vegetation 
	from subtidal, intertidal, riverine and nearby upland areas and
	replace with appripriate native species.

         (continues)






            Issue#l 1: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline
            Tampa Bay SWIM Plan                                                      Terra Ceia Aquatic Preserve                                              City of Palmetto Comprehensive Plan
            Initiatives, Programs. & Strategies                                         Management Polky Directives                                              Element Pit           GOP              Description
            * Design and strategically place artificial itch throughout the
              bay and its tributaries.
            * Expand oyster beds through additions of culch.
            I -c Restoration of Habitats: restore habitats as replacement for
            habitat losses throughout the bay, tributaries and adjacent
            uplands.
              Restore habitats such as uplands. riverine areas, salt marshes,
              mangrove stands, seagrass beds, oyster reefs, and mud flats as
              well as restoration utilizing existing spoil islands by selecting
              high priority projects and funding cost-effective restoration
              designs.
              Restoration in lieu of or supplemental to sea walls
              Create littoral shelves via dredging and filling, perhaps in
              concert with planters boxes and breakwater structures.
              Evaluate filling borrow pits within the bay. thereby creating
              additional euphotic habitat.
            1.c. Monitoring and Research: establish monioring/research
            studies associated with strategies of programs I.a-d.
            * Evaluate success of restoration and reservation projects
              inclusive of projects begun or completed prior to SWIM
              endeavors through aerial habitat mapping and coordinated
              ground based studies.
            - Develop additional databases useful for design and
              implementation of future projects.
            - Promote and/or fund research concerning habitat restoration
              and functionality (e.g.. wildlife utilization of submerged and
              intertidal habitat for gamefish, commercial species, and other
              wildlife.

            2.a. Optimize Habitats: performance of programs I.a-e to
            optimize habitats for use by botanical, invertebrate, and
            vertebrate populations and communities.
            2.b. Research: promote and/or fund research which provides
            information important to the development and implementation
            of ecologically sound wildlife management programs for the
            Tampa Bay ecosystem.
              Address systems ecology questions, inclusive of ecosystem
              modeling dealing with carbon flow/energy budgets.
              secondafy production, food webs, standing crops, etc. This
              strategy will commence by defining the framework of a
              comprehensive ecosystem model and culminate in the
              application of the model decision-making on bay
              management issues.
t issues.
           *  Establish data base concerning a wildlife inventory for
              subtidal, intertidal and nearby upland communities; inventory
              should include distribution and abundance of species
              throughout ecosystem.
            ï¿½ Conduct biennial, quantitative aerial mapping of subtidl,
              intertidal, and nearby upland habitats.
            * Evaluate existing commercial and sport fishing practices to
              determine effects, if any, on habitat, population, and/or
              community structures.

            (continues)


                                                                                                                             18
 






          Issue#11: Decline in Commercial & Recreational Finfish and Shellfish Landings aandd                                                       k of Information re: Decline
          Tampa Bay SWIM Plan                                                 Terra Ceia Aquatic Preserve                                         City of Palmetto Comprehensive Plan 
          Initiatives, Programs, & Strategues                                 Management Policy Directives                                             Element    pg        GOP            Description
          NATURAL SYSTEMS INITIATIVE 2
          Preserve, enhance and/or restore plant and animal
          populations that use the bay, tributaries, and or associated
          uplands for part or all of their life cycles
          2.a. Optimize Habitats: performance of programs l.s-e to
          optimize habitats for use by botimical, invertebrate, and
          vertebrate populations and communities.
          2.b. Research: promote and/or fund research which provides
          information important to the development and implementation
          of ecologically sound wildlife management programs for the
          Tampa Day ecosystem.

          * Address systems ecology questions, inclusive of ecosystem
            modeling dealing with carbon flow/energy budgets,
            secondary production, food webs, standing crops, etc. This
            strategy will commence by defining the framework of a
            comprehensive ecosystem model and culminate in the
            application of the model decisionmaking on bay
            management issues.
          * Establish data base concerning a wildlife inventory for
            subtidal, intertidal and nearby upland communities; inventory
            should include distribution and abundance of species
            throughout ecosystem. 
          * Conduct biennial, quntitative aerial mapping of subtidal, 
            intertidal, and nearby upland habitats.   
          * Evaluate existing commercial and sport fishing practices to
            determine effects, if any, an habitat. population, and/or
            community structures.

          2.c. Wildlife Management Programs: Promote and/or draft
          wildlife management programs to protect populations and
          communities associated with the bay inclusive of threatened or
          endangered species important to commercial and sport
          fishermen. Programs must include local, state, and federal
          legislation and enforcement necessary to accomplish
          management goals.

          BAY MANAGEMENT INITIATIVE 2
          Promote the adoption and enforcement of laws and
          regulation necessary to implement the Natural Systoms,
                            
          Water Quality and Land Use Initiative of the Plan.
          2.a. Review of Rules and Regulations: Reviews adequacy of  
          rules and regulations of the previously described governmental 
          jurisdictions to carry out the Plan's Programs. This will include
          a review of the sufficiency of enforcement programs of pertinent
          regulatory agencies and be inclusive of all applicable fish and
          wildlife laws.

          (continues)









                                                                                                                    19
 



          ISSUE#11: Decline in Commercial & Recreational Finfish and Shellfish Landings and Lack of Information re: Decline {SWIM & AP}         
          Tampa Bay SWIM Plan                                           Terra Ceia Aquatic Preserve                                   City of Palmetto Comprehensive Plan
          Initiatives Programs, & Strategies                            Management Policy Directives                                  Element Pg    GOP     Description
          2.b. Commercial and Sport Fishing Regulations.
          * Enhance fishery productivity by developing and
          implementing biologically defensible fishing regulations.
          stocking and habitat creation/restoration Projects.
          * Implement Protective regulations and management strategies
            for fisheries on the decline in Tampa Bay
          * Improve the enforcement of fishing regulations by
            consolidatinad and standardizing all special acts and local laws
                              
            related to fishing activities.
          2.c. Enforcement: Unify and consolidate all special acts and
          local laws related to marine resource management and work to
          ensure adequate funding and staffing levels for increased
          monitoring and enforcement capabilities for Tampa Bay.       










































                                                                                                          20
 




         Issue 12: Replacement of Native Vegetation with Exotic Plants [SWIM & AP]
         Tampa Bay SWIM Plan                                                   Terra Ceia Aquatic Preserve                                   City Palmetto Comprehensive Plan 
         Initiative, Program, & Strategies                                     Management Policy Directives                                  Element  Pg   GOP    Description                            NATURAL SYSTEMS INITIATIVE I                                           (D)  Protect and, where possible, enhance threatened and 
                                                                                     endangered species habitat within the equatic preserve. 
         Preserve, enhance, and/or restore upland, riverline, intertidal        (E)  Prohibit development activities within the equatic 
                                                                                     preserve that adversely impact saltmarshes and other 
         and subtidl habitats for 1) biological communities, 2)                      valuable submerged habitats, unless a prior determination                                       .2qr
                                                                                     has been made by the Board of overriding public 
         pollution abatement, and 3) acethetic and recreational                      importance and that no reasonable alternatives exist. 
         purposes.                                                                   Selected Additional Onsite Policies & Procedures: 
                                                                                      
         1.b. Augmentation of Existing Habitats: expand and/or exchange                         
         existing habitats as replacement for habitat losses throughout the                    
         bay, tributaries, and associated uplands.                                    I.  Identify and develop guidelines for areas and plant
                                                                                          communities in need of restoration.
         *  Eradicate non-native or ecologically undesirable vegetation               2.  Discourage developments within the aquatic preserve
            from subtidal, intertidal, riverine and nearby upland areas and               that require restoration or mitigation.
            replace with appropriate native species.                                  3.  Develop an exotic Plant control and removal plan
                                                                                          following monitoring.
                                                                                      4.  Develop a cumulative impact analysis program for
                                                                                          analyzing proposed uses within the aquatic preserve.
                                                                               (M)    Limit pesticide and biocide use within the aquatic
                                                                                      preserve to those that are approved by the Environmental
                                                                                      Protection Agency (USEPA) for wetland and aquatic
                                                                             I        application.









































                                                                                                                    21
                                                                                                                                         




    M                                                                        On                                  NW VW -am,
                                         UM go M
       Issue#13: Shonline Erosion [SWIM &
       Tampa Bay SWIM Plan                               Terra Ceia Aquatic Preserve                      city 0 Palmetto Co prehens
       Initiatives, Programs, & Strateales               Management Polky Directives                      Element Pit   IGOP        Deserlodo
                                                         (E) Prohibit development activities within the aquatic
                                                             that adversely impact sahmarshes and other 0q"U4q20q7M
                                                             submerged habitat. unless a prior determination has been
                                                             made by the Board of overriding public importance and
                                                             that no reasonable alternatives exim
                                                             Selected Additional Onsite Pblicies 0q& Procedures:
                                                             I  Identify and develop guidelines for areas and plant
                                                                 conununities in need of resunation.
                                                             2.  Diax4q"e developments within the aquatic preserve
                                                                 that require restoration or mitigation.
                                                             I   Develop an exotic plant control and removal plan
                                                                 following mordtoring.
                                                             4.  Develop a cumulative impact analysis program for
                                                                 analyng proposed uses within the tic preserve.
                                                                                    W1     =
                                                         (F) prohibit the uumning and/or removal arsh
                                                             vegetation and other natural shoreline vegetation within the
                                                             aquatic preserve, except when necessitated by the pursuit
                                                             of legally authorized projects and local protection
                                                        I    ordinances.










































                                                                                    22






          Issue#14: Marinas [SWIM]
          Tampa Bay SWIM Plan                                                     Terra Ceia Aquatic Preserve                                           City 0 Palmetto Co                    prehensi
          2p716;900;36;108ql4m bm-M & Stratides                                              Maltmt Plky Directives                                         Element [P GOP                       Mwrltloi
          DEVELOPMENT AND PUBLIC USE INIT                         VE1             (D)   Protect And, where possible, enhance threatened and             C8qM          V11-7 Obj. 13             Establish 0qb8qw
          Provide sound euvlr@ossnenhd po4qWas governing lmd un                           endangered species habitat within the aquatic preserve.                                               development
          1c ipact the Txmps Bay ecosystem.                                        Selected Additional Onshe Policies & Procedures:                                                      Area.
                                                                                        1. Re4juire additional authorizatim and appraval for                                                  131 Objective
          L. Marinas: evaluate environmental impacts of marinas within                      activities.using submerged lands within the aquatic                                              upland of the
          Tampa Bay And its tributaries.                                                     Preserve in areas where manatees ate present.                                   Pol. 1.3.1       Establishes
                                                                                             Additional rtstrictiy may.                                                                      L31 Does not
                                                                                  (E)   Prohibit development activities wia 6q#y
           Evaluate environniental impacts of existing marinas.                                                            4qL 6qU Aquatic preserve                    VII-8    Pol. 1.3.4       Encourage
            including impacts on manatees and other protected species.                  that adversely impact saltmanhes and other valuable                                                   And recreatia
           Develop a marina siting plan                                                intersidal, submerged, And emergent habitats unless a 0qpior                                            Blvd. in PD
           Evaluate and promote unproved marine designs and facilities.                determination has been rude by the Board of overriding                                                criteria And
                 ifially addressing problems of fuel storage, sew!4e                     blic unportance and that no reasonable alternstives exist.                                          to 1993.
            bilge pumping, solid waste, dredging, and related promems.                  collected Additional Onsite Policies 8q& Procedures:
                                                                                        1.   Identify and develop guidelines for areas and plant
                                                                                             communities in need of restoration.
                                                                                        2.   Discourage developments within the aquatic preserve
                                                                                             that require restoration or mitigation.
                                                                                        3.   Develop an exoticplant control and removal plan
                                                                                             following monitoring.
                                                                                        4.   Develop a curnulative impact Analysis program for
                                                                                             analyzmg proposed uses within th a          tic preserve.
                                                                                  (qF)   Prohibit the trimming and/or removal 4q724q2um4q".1h
                                                                                        vegetation and other natural shoreline vegetation within the
                                                                                        Aquatic preserve, except when necessitated by the pursuit
                                                                                        of legally Authorized projects and local protection
                                                                                        ordinances.
                                                                                  (1)   Prohibit the drilling of oil And gas wells. the mining of
                                                                                        materials, and dTt6qgdng for the p          purpose of
                                                                                        obtaining upland      within the          preserve.
                                                                                  (0)   Prohibit any activity commercial or recreational that might
                                                                                        impact the integrity of hard bottom communities within the
                                                                                        aquatic preserve.
                                                                                  (R)   Encourage public utili-tion of the aquatic preserve,
                                                                                        consistent with the continued maintenance of its natural
                                                                                        values and functions.
                                                                                  (1)   0q"re, through the efforts of DER and S4qWWMD, the
                                                                                        maintenance and uporading of the water quality of the
                                                                                        estuary and ensure the natural seasonal flow fluctuations of
                                                                                        fresh water into the estuary. In     icular encourage the
                                                                                                                         Parti
                                                                                        Department of Environmental Regulation and the
                                                                                        Environmental Regulatory Commission to extend OFW
                                                                                        desi8qrations to wedands above the MHW line in areas
                                                                                        within or adJacesit to the aquatic preserve.
                                                                                  (W) Prohibit Marinas and associated construction activities in
                                                                                        Resource Protection Areas I And 2.                              1           1        1              1
















                                                                                                                         23
       Elm                                                                 6q0-8q0          111110q0       8qf2qf2qt          4qA2qW            -6q00q0,          1116q"'




      M so 1W 8W 00) low IWO so ipm "a Wl WK M NO am
           Issue#15: Construction & Operation Of                                   sportation Facilities [SWIM]
           Tampa Bay SWIM Plan                                                     Terra Ceia Aquatic Preserve                                           City 0 Pal etto Comprehens
           Initiatives, 6qD0qM0qM 2q& Strategies                                           Manaqlternent Policy Directives                                        Element PH           GOP              Dewriptlo,
           DEVELOPMENT AND PUBLIC USE INITIATIVE I                                 (F)  Prohibit the trimming and/or removal of uh marsh                 T0qRCI        VII-21   Obj. 1.7         Develop and
           Provide sound envqhvnmen0qW policies goveming bad use                           vegetation and other natural shoreline vegetation within the                                           which enh
           which Ipad the Tampa Bay ecosystem.                                        aquatic preserv except when necessitated by the pursuit                                                environment
                                                                                        of legally auth44q=d projects and local protection
           I.d. Developments! Designs and Practices: promote                            ordinances.                                                                                                  non.
                                                                                                                                                                              Pol. 1.7.1                 4qpav4qi
           environmentally sound projects and practices.                                                                                                                                       2qr-9@1 8q@
                                                                                   (1)  Prohibit the drilling of oil uW gas wells, the mining of                                               fugitive Gust
                                                                                        materials, and dredging !8qT the      '      purpose of                                                  surfaces and
              Promote use at editing natural features and native plant                  obtaining upland fill within thcp;qm4qX preserve.                                                        impervious
                    I for lindscapm' and habitat, with spec4qW emphasis on                                                                                                                       [J] Does not
                    transportation grain$ WA lefiscaping Practices as                                                                                                                          paving W0qi4qH
              well as the establishment of wildlife corridors.                                                                                                                Pol. 1.7.2       City & devel
                                                                                                                                                                                               road constm
           11 Trnsportittion Network: evaluate the extting wid proposed                                                                                                                        rocesses.
           trspormon network around, over w on the bay and its                                                                                                                              f8m] Define a
           tributaries.

            Evaluate transportation ('inclusive of shing and boat
              traffic) and roadway problems as rel= envircrunental
              impacts to the ecosystem.
            Review transportation engineering and promote designs to
              reduce environmental impacts (eg., runoff).



















                                                                                                                                                     16




















                                                                                                                          24






           Issue# 16:       Intergovemmental Coordination and Planning Consistency [SWIM & API
           Tampa Bay SWIM Plan                                                       Terra Ceia Aquatic Preserve                                                City of Palmetto C                     prehensi
           Initiatives. D!Vams, & Stratles                                         Maenet Plky Directives                                               Element P IGOP                        Desiptlot
           DEVELOPMENT AND PUBLIC USE INITIATIVE I                                   (S)              aw                                  rve management        CONS        VII-2 Pbl. 1.1.8           Enter into an
           Provide sound eavb@wmentsl policies govierning land an                                        that       nizes awn           local goverurnent                                              to ensure c6qm
           which Impact The Tampa Bay ecosystesst.                                         4qrograms and authorities.                                                                                   use and or
                                                                                     (V)    Encourage the assistance affederal. state, and local                                                       shared bound
           La. Encourage Appropriate Land Use: at the local. state, and                     government agencies in implementing the aquatic preserve            CM          VII-11 Pol. 1.7.2          Implement
           federal level, encourage           .ate development or agricultural              management plans, especially in areas of protection of                                                     Tent Ceia A
           use of land bordering 4qL8q%mymprd"its tributaries.                                  natural and cultural resources and the enforcement of                                                      measurably
                                                                                     (Y     applicable resource laws and ordinances.                                                                   productivity
             promote limiting or preventing land alterations via incentives                Insure that the aquatic preserve management plans am                                                       other aquatic
              such as tax reductions, density tradeoffs. or transfers or                    consistent with all other state and local planning processes                                               13] Does this
              purchases of devel2qrental rights. A2qgropriste policies and                      and completed plans that may impact aquatic preserves.                                                     w1i Ch. 18-8q20q6
              regulations will be eveloped        the strict for consideration                                                                                  DRNG        VII-35 Pol. 1.1.5          City Public V
                                              6qe review of comprehensive                                                                                                                               stormwater m
              Plans wJ through pmparati;n of model ordinances.                                                                                                                                         agencies to el
             Promote designations of increased buffer zones, setback                                                                                                                                  &         Ityq.
              requirements, wildlife corridors, and conservation casements                                                                                                                             18 6q74qMke         pot
              reviewing local governments comprehensive plans and                                                                                                           VU-37 ObJ. 1.3             City shall      
              ordinances, and recommending appropriate amendments to                                                                                                                                   Manatee CO.
              accomplish the above objectives.                                                                                                                                                         resolution of
             Promote environmental sound local and state comprehensive                                                                                         Ic          VIIA8 Pol. 1.1.2           Regional issu
              plans, inclusive of land use plans for preservation of habitats                                                                                                                          the Regional
              and land tracts.                                                                                                                                                                         Proposed LU
                                                                                                                                                                                                       boundaries, to
           l.c Laws and Permitting Review: evaluate adequacy of existing                                                                                                                              forwarded to
                  laws, environmental laws and permitting processes as                                                                                                                                 consutency,g
                  to land use and environmental resources.                                                                                                                                             adjacent local
                                                                                                                                                                                     Pol. 1.1.4        Proposed LU
             Evaluate existing local, state, and federal laws coriceming                                                                                                                              boundaries, t4
              land use and the permitting process (inclusive of agricultural                                                                                                                           forwarded to
              uses).                                                                                                                                                                                   consistency v
             Promote and/or draft revisions of existing locaL state, and                                                                                                   VII-49 Pol. LZ3            Consistent &
              federal laws conceming land use and the 8qCYTTIMIng Process                                                                                                                                mid the 4qMan
              (inclusive of agricultural uses@ Thu will acom                                                                                                                                          III Spec2qo 0q&
              through the development of model ordinances m                   to                                                                                                                       (81 1 olic0qy S0qh
              Fcific proposed amendments.                                                                                                                                           Pol. 1.2.4        Planning a
           valuate, promote, and/or draft improved laws for mitigation                                                                                                                               comprehensi
              Folicis and practices, specifically addressing action to be                                                                                                                             low gov'ts
              1
              dtowd if unanticipated impacts am detected after the fact;                                                                                                                              but not havin
              miti4ion baniting should be evaluated as should criteria for                                                                                                                           land, the re0qgi
              ndtorin& and determining the success of the Project                                                                                              CPIM        VII-54 Pbl. 1.5.2          Requested p
                                                                                                                                                                                                       p       als, 0qpu
                                                                                                                                                                                                       0 8q7eir anticipw
                                                                                                                                                                                                       LA)S. Estab0ql4qis
                                                                                                                                                                                                       procedure to
                                                                                                                                                                                                       amendments
                                                                                                                                                                                                       planning area
                                                                                                                                                                                                       -Vonsisten0qq
                                                                                                                                                                                                       elements [Co
                                                                                                                                                                                                       & service a
                                                                                                                                                                                                       Waste, Drain
                                                                                                                                                                                                       Groundwater
                                                                                                                                                                                                       -Effects u
                                                                                                                                                                                                       and state fun(










                                                                                                                              

                      I"            OWN



issue #17: enforcement of laws and regulations (swim & ap)
tampa bay swim plan				terra ceia aquatic preserve		         city of palmetto comprehensive plan
initiatives, programs & strategies		management policy directives		             element   pg  gop     description
natural systems initiative 1        (s) develop a well-coordinated aquatic preserve management cm   vii6  pol. 1.1.m  assist in enforcement of federal, state, and federal
preserve, enhance, and/or restore upland, riverine, intertidal   mechanism that recognizes and utilities local government         mitigation policies by withholding building permits
and subtidal habitats for 1) bilogical communities, (2     programs and authorities.                              until all necessary environmental permits are received.
pollution statement, and 3) aesthetic and recreatinal    (v) encourage the assistance of federal, state, and local
purposes.                                               government agencies in implementing the aquatic perserve

1.a. preservation of existing habitats: promote the preservation             management plans, especially in areas of protection of
of relatively pristine or functional habitats already in existence.          natural and cultural resources and the enforcement of
promote enforcement of existing laws protecting habitats			    applicable resource laws and ordinances.
through funding incentives for local government
environmental enforcement and compliance monitoring
programs.
promote enforcement of permit stipulations mandated by
local, state, and federal agencies(inclusive of compliance
monitoring) through funding incentives for local government
environmental protection programs.

initiative 2
preserve, enhance, and/or restore plant and animal
populations that use the bay, tributaries, and or associated
uplands for part or all of their life cycles.

2.c. wildlife management programs: promote and/or draft
wildlife management programs to protect populations and
communities associated with the bay inclusive of threatened or
endangered species important to commerical and sport
fishermen. programs must include local, state, and federal
legislation and enforcement necessary to accomplish
management goals.

development and public use initiative 1
provide sound environmental policies governing land use
which impact the tampa bay ecosystem.

1.b. enforcement: promote enforcement of existing zoning laws,
environmental laws and permit stipulations inclusive of
compliance monitoring.

promote additional funding and staffing (inclusive of legal
staff) for enforcement and compliance monitoring by offering
funding incentives for qualiying local governmental
environmental protection programs.
promote fines or penalties commensurate with the infraction.

bay management initiative 2
promote the adoption and enforcement of laws and
regulation necessary to implement the natural systems,
water quality and land use initiative of the plan.
2.a. review of rules and regulations: reviews adequacy of
rules and regulations of the previously described governmental
jurisdictions to carry out the plan's programs. this will include
a review of the sufficiency of enforcement programs of pertinent
regulatory agencies and be inclusive of all applicable fish and
wildlife laws.

(continues)

													26
	

                                                                                                                 
      





        Issue#17: Enforcement of Laws and Regulations [SWIM & AP)
        Tampa Bay SWIM Plan                               Terra Ceia Aquatic Preserve                 City of Palmetto Comprehensive plan
       initiatives, programs, & strategies                Management Polky  Directives        Element Pg   GOP     description          

        2.b. Commercial and Sport Fishing regulations.
        enhance fishery productivity by developing and
        implementing bilogically defensible fishing  regulations,
         stocking and habitat creation/restoration projects.
        ï¿½ Implement protective regulations and management strategies
          for fisheries on the decline in Tamps Bay
        ï¿½ Improve the enforcement of fishing regulations by
          consolidating and standardizing all special acts and local laws
          related to fishing activities.
        2.c. Enforcement: Unify and consolidate all special acts and
        local laws related to marine resource management and work to
        ensure adequate funding and staffing levels for increased
        monitoring and enforcement capabilities for Tampa Bay.
        2.d. State Legislation: Work to ensure that the necessary state
        legislation and agency rules am in place to carry an the Plan.




































                                                                                                  27
    

ISSUE# 18: PORTS
tampa bay swim plan			terra ceia aquatic preserve			city of palmetto comprehensive plan
initiatives, programs, & strategies  management polky directives			element pg gop description
						(n) prohibit the construction of new deepwater ports within the
							aquatic preserve boundaries









                                                                 28






         Issue#19: Identification of Areas, Land Use, Etc.
         Tampa Bay SWIM Plan                                                Terra Ceia Aquatic Preserve                                        city o Palmetto Comprehensive Plan
         initiatives, programs, &  Strategies                                 Management Polky Directives                                       Element Pg         GOP             Description
         NaTuRAL SYStems INITIATIVE 1                                      (C) Develop a resource inventory and map        natural habitat
                                                                                  types within the aquatic preserve, with emphasis on
         Preserve, enhance, and/or restore upland, riverine, intertidal                                             
         and subtidal habitats for 1) biological communities, 2)                  those habitat types utilized by threatened and/or
         pollution abatement, and 3) aesthetic andrecreatinal            endangered species.
         purposes.

         1.e.  Monitoring and Research: establish monitoring/research
         studies associated with strategies of programs 1.a-d.
          Evaluate success of restoration and preservation projects
           inclusive of projects begun or completed prior swim
           endeavors through aerial habitat mapping and coordina
           ground based studies.
          Develop additional databases useful for design and
           implementation of future projects.

         INITIATIVE 2
         Preserve, enhance, and/or restore plant and animal
         populations that use the bay, tributaries, and or associated
         uplands for part or all of their life cycles.

         2.b. Research: promote and/or fund research which provides
         information important to the development and implementation
         of ecologically sound wildlife management programs for the
         Tampa Bay ecosystem.

          Establish data base concerning a wildlife inventory for
           subtidal, intertidal and nearby upland communities; inventory
           should include distribution and abundance of species
           throughout ecosystem.
          Conduct biennial, quantitative aerial mapping of subtidal,
           intertidal. and nearby upland habitats.



























                                                                                                                 29
 


                                                                                                                                                                                    at, WWI Im
             Issue#20: Threatened and Endangered Species; Manatee Protection; Hazardous Waste Disposal; Boundary Expansion
             Tampa Bay SWIM Plan                                                         Terra Ceia Auatic Preserve                                                 City of Palmetto Comprehens
             Initiatives, Prcerams. & Strategies                                         Management Policy Directives                                                Element P2            IGOP               Descript6io
             NATURAL SYSTEM INITIATIVE I                                                 (H)    A                         e,           0
                                                                                                .42uife. where fe4uibl          ' ately wned submerged lands          CONS         VII-I Pol. 1.1.1
             Preserve, enhance, and/or reftm upland, riverine, Intertidal                           adjacent lands and is l4and's located within the
             and sbddal babitals for 1) biological P r nuaidek 2)                              boundaries of the auatic preserve pursuant to the                                                            endangered
             pollution abatement, and 3) aesthetic and recreational                             authorities contained irk Section 253.02(4). F.S. Of                                                          .   I ent)
                                                                                                                                                                                                              imp em .
             ppsm                                                                            g"eat interest am the barrier islands that am located                                                         [I] spec2yy
                                                                                                along the coastline and the low lying areas of Term Ceia                                                      12] Use of
             I.a. Preservation of Existing Habitats: promote the preservation                   Island adjamt to Bishop Harbor and Frog Creek.                                                                to habitiu. S
             of relatively pristine or Functional habitats already in existence.         (K)    prohibit storage of toodc. radioactive. or other hazardous                                                    protected
                                        . hion                                                  materials within the auatic preserve. Any hazardous waste                                                    areas,ezc
              Support existing                           s such a Save Our                     dumps now located within the auatic preserve should be                                    pol. 1. 1.5        Identify A
                                  a4=n rog                           4: Lands
               Rivers (SOR) and               at4M Z4T4=tion                                       closed and eliminated.                                                                                        managemen
               (CARL).                                                                   ()    Manage spoil islands w6" the auatic preserve as bird                                                          endangered
              When appropriate, cooperate with envu-crimental g                and             rookeries and wildlife habitat areas.                                                                         area,
               local, state, and fedend governments and agencies =                       (U)    Apply the management criteria contained in the adopted                            V114     Pol. 1.2.11        Enter into 10)
               purchase of lands by identi.Pying areas in need of preservation                  Terra Cein Auatic Preserve Plan to all subseuent                                                            develop a It
               and contributing to their purchase.                                              legislative additions of land to the Auatic Preserve.                                                        facility to se
              Encourage and support private donations of hinds and land                                                                                                                                      stored and
               parcels, parks, etc.. as well as passing of local taxing                                                                                                                                       Assess e00f00fec
               .initiatives.                                                                                                                                                                                  resources if
                                                                                                                                                                      0W           VII-33 POL 1.1.6            Coordinate
             NATURAL SYSTEMS INITIATIVE 2                                                                                                                                                                     Dept. towas
             Preserve, enhance, and/or restore plant and arilinal                                                                                                                                             t!nnpomry st
             populations that use the bay, tributaries, and or associated                                                                                                                                     design shall
             uplands for part or all of their life cycles.                                                                                                                                                    state hazwas
                                                                                                                                                                                                              shall be
             2.c. Wildlife Management Programs: Promote arklJor draft                                                                                                                                         w/ applicabl.
             wildlife management programs to protect populations and                                                                                                                       Pbl. 1. 1. 9       Assess City'
             communities associated with the bay inclusive of threatened or                                                                                                                                   coordinate
             endangered species important to commercial and sport                                                                                                                                             ensure imp4i
             fishermen. Programs must include locaL state, and federal                                                                                                                                        storage, and
             legislation and enforconent necessary to accomplish
             management goals.

             DEVELOPMENT AND PUBLIC USE INITIATIVE I
             Provide sound environmental policies governing land use
             which Impact the Tampa Bay ecosystem.
             Le. Marinas: evaluate environmezital impacts of marinas within
             Tampa Bay and its tribtstaries.
               Evaluate environmental impacts of existing marinas,
               including impacts on manatees and other protected species.

             (continues)

















                                                                                                                                   30
 




         Issue 20 Threatened and Endangered Species; Manatee Protection; Hazardous Waste Disposal; Boundary Expansion and Other Acuisitions
         Tampa Bay SWIM Plan                      Terra Ceia Auatic Preserve              City of Palmetto Comprehensive
         Initiatives, programs. & Strategies      Management Polky Directives             Element Pg  GOP     Description
         WATER QUALITY INITIATIVE 1
         Reduce point and son-point source pollutant loading to
         attain water uality necewsary to restore and maintain
         healthy and productive natural systems, protect human
         health, and to attain the highest possible water use
         classification.

         1.g. Hazardous Waste Disposal and management
          Implement the requirements of the water Quality Assurance
           Act for a compmhensive statewide hazardous waste
           management program including the location of temporary
           storage/transfer facilities for hazardous wastes.
          Provide needed surface water, groundwater and leachate
           characterization in and adjacent to potentially dangerous
           dump sites for application in state and local regulatory
           responsibilities.
          Initiate eventual rehabilhadon of dump sites through
           restorative actions.















































                                                                                                            31
 



 
                                      Appendix 6

                       Issue Matrices: Indian River Lagoon Study Area
 


  





         ISSUE: Unregulated freshwater inflows and excessive stonnwater discharges due to extensive drainage networks, artifici
                           and loss of wetlands
            Indian River Lagoon                              Jensen Beach/Jupiter Inlet
            SWIM Plan                                        Aquatic Preserve Mgt Plan                             Ft. Pierce Compr                     hensive Plan
            Natural Systems                                  Mgmt. Policy Directives                               Element            P2                GOP                     Descriptloni
            011J. A: Mgmt. of ftesqhwateT inflows             GOAL A* Improve water quality.                        FLU                1-70              PqI.I.4.5                Dev allowed in 100-yr floo
            from point 0& nonpoint sources                    TASK A.4.1.2: Coordinate with                                                                                      storm drainage system.
            (W/S quality program).                           SIRWMD/SFWMD & local g". toward                       8WRA                4-75              P4.1.6.4                Increase retention. detent4io
                                                             improving do management of surface water                                                                           reduce stormwater outfall
                                                             & stormwater discharges into aquatic                                     4-76              P4.1.6.6                Retrofit existing stormwate
                                                             preserve.                                                                                                          redeveL8rent*8,
                                                                                                                                                        P4.1.&8                 Adopt I    Rs to    rotect nati
                                                                                                                                                                                             tL I
                                                                                                                                                        P4.1.6.9                City to adopt L Rs for surf
                                                                                                                                                                                        nt with SFWMD.
                                                                                                                                                                                121 No sai2qf2f2icient anaqlyj0is re
                                                                                                                                                                                stormwaterruno2f2or mgmt.
                                                                                                                                                                                121 Comprehensive storm
                                                                                                                                                                                assess performance. Storm
                                                                                                                                                                              I 90M by source cc rot tha
                                                                                                                   Jupiter            ornprehensive             Plan
                                                                                                                   FLU                1-4               P1.3.3                  Adopt LDRs which address
                                                                                                                                      1-12              P1039                    Density of wetlands 112 D4t
                                                                                                                   0W4MA                IV-6              P1.3.11                 Update land regs. to provid
                                                                                                                                                                                stormwiter discharge crite
                                                                                                                                      Iv-9              01.6                    Protection of recharge area
                                                                                                                                                                                stOrrnwater mgs.. open spa
                                                                                                                                      VI-6              PIA2                    Retrofit substandard drains
                                                                                                                                                     I  P1.4.4                I Alteration of tidal cimulati
                                                                                                                   Jupiter Inlet             Colo y Compreh                   nsive Plan
                                                                                                                   FLU                12                P 3.1                         rty owner responsible
                                                                                                                   4WRA                33                P 3.2                       nage policies.
                                                                                                                                      34                06                      Provide stormwater dminag
                                                                                                                                                                                [11 Objective & policies an
                                                                                                                                                                                COM0ME8WS:
                                                                                                                                                                                I]] Need poli re: degrade
                                                                                                                                                                                dramag to maigatefuture
                                                                                                                                                                                I]] Nee0mjectivefor use,
                                                                                                                                                                                into estuarine waters
                                                                                                                                                                                16 Address new Mtem, re
                                                                                                                                                                                discharge of storm drainage
                                                                                                                                                                              1 161 Changes to stormwater
                                                                                                                   Jupiter          sland Co            prehensive Plan
                                                                Town has no central stormwatet drainage            FLU                I                 P1.06.02.02             Development to accomin
                                                             system.                                                                                                            standards.
                                                                                                                   114F4RA             23                04.01.03                Provide SOfMWSICF MgML
                                                                                                                                      23                P4.01.03.01             Regulate development to as
                                                                                                                                                                                stormwater.
                                                                                                                   (4M                 24                04.01.06 &              Protect natural drainage fea
                                                                                                                                                        P4.01.06.01              rotecdon of natural drina
                                                                                                                                                                                  ,41 By what method?
                                                                                                                                      27                P5.01.04.04                v should be required to
                                                                                                                                                                                [I] No method.
                                                                                                                                                                                12] Need to develop master






          INOTES: Agency comments are shown in italics and are source-coded: [I I DCA, 121 DER, (31 DNR, [41 RESPECTIVE COUNTY, 151 MANATEE COUNTY, [60)

                                                                                                                                                             8A2o



ISSUE:  Unregulated freshwater inflwos and excessive storm water discharges due to extensive drainage networks, artificially lowered water tables, 
        and loss of wetlands 

                                                    Martin County Comprehensive Plan
                                                    CONSOS              9-14                  PA.3.c                Surface & stormwater mgmt system for retention.
                                                                        9-15                  PA.4a&b               Implement, update surface & stormwater regs & retrofit 
                                                                                                                    drainage systems.
                                                                        9-16                  PA.4.g                Drainage plans to protect water quality per regs..
                                                     DRGWAQ            13-31                  PA.2.f                Stormwater retention, detention sysstem so enhance recharge.
                                                                                                                    (1) No dates, how. 
                                                                       13-34                  OA.5                  Reduce environmental impacts of over drainage & restore
                                                                                                                    impacted. 
                                                                                              PA.5a                 1992 wetland protection ordinance.
                                                                                              PA.5d                 Certain areas unsuited for urban/agricultural use wetland regs.
                                                                                                                    apply.
                                                                                    
                                                                                                                    COMMENTS:
                                                                                                                    (2) No inventory of estuary pollution from runoff or remedial 
                                                                                                                    actions.
                                                                                                                    (2) Didn't use regs. for nonpoint source pollution-need master
                                                                                                                    watershed mgmt. plan.                         
                                                                                                                    (2) Excessive stormwater storage considered in Drainage & 
                                                                                                                    Aquifer Recharge element. 
                                                                                                                    (2,7) To correct facilities deficiencies & stormwater quality.
                                                                                                                    (7) Redo stormwater facilities re: existing development. 
                                                                                                                    (8) Need analysis of problems with stormwater quality, volume
                                                                                                                     increases affecting estuaries. 
                                                                                                                    (8) Need regs. for stormwater, interim, regulate volume 
                                                                                                                     discharged without compromise to estuaries.
                                                                                                                    (8) Interim standards improving surface waters until 
                                                                                                                     stormwater mgmt. study & plan.
                                                    Ocean Breeze Park Comprehensive Plan
                                                                                                         
                                                     FLU               18                     P1.8                  No changes in development that affect drainage & stormwater
                                                                                                                    mgmt.
                                                                                                                    (6) Town has urban runoff problem that must be addressed in 
                                                                                                                    stormwater mgmt. plan
                                                     INFRA             104                    P1.3                  LOS standards for existing drainage shall use IRL mgmt. plan
                                                                                                                    & SWIM manual as guidelines. 
                                                                       110                    O 10                  Address drainage deficiencies, I policy re: priorities
                                                                                                                    (2) Urban runoff is a problem.
                                                                       111                    P 12.1                Regulate land use & development to protect functions of 
                                                                                                                    natural drainage thru use of SFWMD regs--
                                                     CM                142                    P 2.1                 By 1990, stormwater mgmt. plan, coordination with county.
                                                                       146                    P 5.2                 By 1991, review nonpoint discharge into IRL & impact on 
                                                                                                                    water quality. 
                                                                                                                    (1) No specifics or measure.
                                                     CONS              161                    P1.2& P1.4            Restrict floodplains use, establish floodplains ordinance by 91.
                                                                                                                    (1) No specifics
                                                                                                                    (1.2) Plan doesnt address deficiency of stormwater runoff, is 
                                                                                                                    not specific, measurable.
                                                                                             Palm Beach County Comprehensive Plan               
                                                                                                                    COMMENTS:
                                                                                                                    (7) Need correcting impacts of existing stormwater sources.
                                                                                                                    (7) Take proactive response to protect surface water from 
                                                                                                                    stormwater pollution thru land planning/stormwater mgmt.
                                                                                                                    (7) Drainage, surplus water incompatible with beneficial uses-
                                                                                                                    outdated premise of preserving wetlands in natural state. P4-d
                                                                                                                    unclear re:timing.
                                                                                                                    (7) No specific policy for indirect adverse impacts caused by 
                                                                                                                    drainage, development.
                                         2                                                                                                                                                                                             
                                                                                                                   
                                                                                                                                                                                                            





        ISSUE: Unregulated freshwater inflows and excessive stormwater discharges due to extensive drainage networks, artificial
                          and loss of wetlands
                                                                                                                    Sewalls's Point omprehensive Plan
                                                                                                                    DRNG             76                01.0                   -Identify & improve Wit d
                                                                                                                                                                                & development reqgs.-4qI
                                                                                                                                                                                [I/ No method.
                                                                                                                                     78                P 1.2                    StormwateT discharge facili
                                                                                                                                                                                truality criteria.
                                                                                                                                     79                P 1.34                   Revise Mgs. re: drainage 8
                                                                                                                                                                                I]] No measure.
                                                                                                                    POTH20           89                P 3.1                    Regs. in 1990 to require s
                                                                                                                                                                                to maximize retention cap
                                                                                                                    (4M               117               P 1.4                    1990 Code to require retrof
                                                                                                                    CONS             152               02.0                     Water qmgqmt. & conservqsqti
                                                                                                                                                                                storqmwater retention in cod
                                                                                                                                     153               P 2.2                    Regs. in 1990 to maximize
                                                                                                                                                                                storqmwater retention.
                                                                                                                                     153               03.0                     Adopt StOrMWater TML &
                                                                                                                                                                                121 No stormwater LDS.
                                                                                                                                     154               P 3.2                    1990 land code to require r
                                                                                                                                                                                161 Stormwuler mgmt. too
                                                                                                                    St. Lucie County                 Comprehensive Plan
                                                                                                                    DGDWTAQ          6C-39             G6C.1                    Ensure adequate stormwate
                                                                                                                                                                                [I/ What is the method?
                                                                                                                                                       0 6C.1.1                 County stormwater master
                                                                                                                                                                                devel8goent, LOS, pLruo32Xran
                                                                                                                                     7-120             P7.2.3.4                 B;      location & stuo
                                                                                                                                                                                171 Questions its construct
                                                                                                                                     7-110             7.1.4.1                 Enact LDRs by 1990 consis
                                                                                                                                                                                criteria & prohibit new pt
                                                                                                                                                                                storm event.
                                                                                                                                     7-112             P7.1.4.10b               Adopt stormwater MgML Of
                                                                                                                                                       P7.1.4.10d               Support reservoir to reduce
                                                                                                                                     B-38              P8.1.2.1-5               5 policies re: development
                                                                                                                    CONS             8-40              08.1.3                   B 1990 have LDR& to re0
                                                                                                                                                                                47100-yr floodplain.
                                                                                                                                                       P8.1.3.1                 LDRs to have programs to
                                                                                                                                                                                easement, cluster planning.
                                                                                                                                                       P8.1.3.3                 By 1995, county to conduct
                                                                                                                                                       08.1.4                   B 1990. enact LDRs requi
                                                                                                                                                       P8.1.4.2                 4Ms to evaluate of propos
                                                                                                                                                                                CO0M0ME0MS:
                                                                                                                                                                                [1,21 Slornnwter LOS not a
                                                                                                                                                                                adjacent land uses.
                                                                                                                                                                                [21 Consider parks as paten
                                                                                                                                                                                rechar4y,0,v
                                                                                                                                                                             1  151 NO Sfor sanitary se















                                                                                                                                3
       awl          11801                                                                              0o6w            an                                       'Wit         so           2w             owl






           ISSUE: Unregulated freshwater inflows and excessive stormwater discharges due to extensive drainage networks, artificially lowered water tables,
                             and loss of wetlands
                                                                                                                         Stuart Comprehensive Plan
                                                                                                                         INFRA              IV-3              PAl.8                  Locate, remove stormwater & sanitary sewer interconnection.
                                                                                                                                                              PA1.11                 Establish maintenance for water distribution system.
                                                                                                                                                              PA1.9                  LDRs to ensure stormwater treatment consistent with SFWMD
                                                                                                                                                                                     permit regs.
                                                                                                                         CONS               V-1               O A1                   Protect surface water quality-3 policies re: stormwater
                                                                                                                                                                                     ordinance & outfall.
                                                                                                                         INFRA              IV-4              P A4.2                 Regs. for stormwater treatment.
                                                                                                                                            IV-5              P A4.6                 Regs. re: stormwater treatment.
                                                                                                                                                              PA4.4                  By 92 stormwater drainage masterplan re: water quality.
                                                                                                                         CONS               V-3               0 A4                   Adopt floodplain, stormwater mgmt. ordinance by 1990.
                                                                                                                                            V-4               0 A5                   Regs. re: Comprehensive drainage master plan, stormwater
                                                                                                                                                                                     mgmt. & pollution, dredging, shore alterations -8 policies.
                                                                                                                                            V-1               PA1.1-2                Enforce stormwater ordinance & redo stormwater outfalls to
                                                                                                                                                                                     St. Lucie estuary/tributaries consistent with DER.
                                                                                                                         CM                 IX-2              PA4.2                  Retrofit public drainage systems during expansion & redev.
                                                                                                                                                                                     COMMENTS:
                                                                                                                                                                                      [2] Stormwater LOS compatible with adj. county. Parks/open 
                                                                                                                                                                                       space used as stormwater mgmt. & recharge areas.
                                                                                                                                                                                       [6]City has reduced threshold area {RTA} & wells by
                                                                                                                                                                                       contamination from various sources, analysis required.
                                                                                                                         Tequesta Comprehensive Plan
                                                                                                                         DRNG               DR-1              P1.1.3                   Develop stormwater mgmt. plan.
                                                                                                                                            DR-2              P1.1.6-7                 By 1995, funds for stormwater mgmt. plan.
                                                                                                                                            DR-3              P1.2.1                   Support, enforce development stormwater drainage regs.
                                                                                                                                            DR-3              P1.2.3                   Continue retention, detention criteria for regs.
                                                                                                                         AQFRCH             NG-1              P1.1.2                   Stormwater regs. amended for retention of runoff.
                                                                                                                         CONS               C-1               P1.2.1                   Adopt stormwater retention,detention criteria for regs.
                                                                                                                                            C-3               01.6                     Development to restrict stormwater pollutants runoff.
                                                                                                                         CM                 CM-4              02.1                     Analyze drainage system in reducing urban stormwater
                                                                                                                                                                                       pollutants from entering estuaries & groundwater.
                                                                                                                         St. Luci Village Comprehensive Plan
                                                                                                                                                                                       [1] No mention of protecting function of natural drainage, IRL.



























                                                                                                                                      4
 





         ISSUE: Excessive nutrient loadings from point and nonpoint sources, particularly canals draining from agricultural & urban drainage areas
            Indian River Lagoon                             Jensen Beach/Jupiter Inlet
            SWIM Plan                                       Aquatic Preserve Mgt Plan                              Ft. Pierce Comprehensive Plan
            Natural Systems                                 mgmt. Policy Directives                              Element             Pg               GOP                     Description
            GOAL 1: To attain & maintain water &             GOAL A.4: Improve water quality.                    INFRA               76               P4.1.6.9                Adopt LDRs that provide for strict sediment control measures
            sediment of sufficient quality in order to       OBJ. A.4.1: To coordinate with DER. WMD                                                                          to deter erosion into waterways.
            support a healthy, macrophyte-based              and local govts toward improving water               CM                 5-56             P5.1.1.7                Regulate all development in coastal area to take measure to
            estuarine lagoon ecosystem.                     quality in lagoon.                                                                                                prevent increased soil erosion.
            OBJ. C: Reduction of excessive                  TASK A.4.1.l: Enter into mutual agreement                                5-59             P5.1.3.1                Drainage regs. to be, consistent with SFWMD/DER and prohibit
            point/nonpoint source loadings of               with DER to utilize Pollution Recovery Trust                                                                      new pt sources discharging into IRL.
            nutrients to levels that promote                Funds to conduct demonstration projects that                                              P5.1.3.4                To reduce nonpoint pollution loadings, dumping into drainage
            macrophyte-based system.                        improve water quality.                                                                                            systems, IRL to be prohibited.
                                                                                                                                                                              COMMENTS:
                                                                                                                                                                               (2) SWIM & other pollutant load reduction goals for area's
                                                                                                                                                                               surface incorporated into LOS.
                                                                                                                   Jupiter Comprehensive Plan
                                                                                                                   CONS               V-5              P1.4.6                  Urban off controlled by updated drainage system.
                                                                                                                   CM                 VI-6             P1.4.3                  Coordinate with govts. to minimize pollutants & excessive silt.
                                                                                                                                                                               
                                                                                                                   SWIM               Ps IV            TABLE A                 Contract IR-1-112-M, feasibility study re: stormwater system,
                                                                                                                                                                               salinity, material loadings.
                                                                                                                   Jupiter Inlet Colony Comprehensive Plan
                                                                                                                   INFRA              34               P 6.1                   Limit post-development runoff.
                                                                                                                                                                               (I) No method, measure, implementation.
                                                                                                                   CM                 37               P 2.3                   Use BMPs to reduce nonpoint pollutant loadings.
                                                                                                                                                                               (I) Eliminate nonpoint pollution into estuary.
                                                                                                                   CONS               42               P2.1                    Development to provide irrigation to reduce demands.
                                                                                                                   Jupiter Island Comprehensive Plan
                                                                                                                   FLU                I                P1.06.02.01             New point sources discharging into the IRL should be
                                                                                                                                                                               restricted.
                                                                                                                   CM                 26               P5.01.04.02             Regs. should restrict new point sources of pollution discharge
                                                                                                                                                                               into IRL.
                                                                                                                                                                               (4)By what method?
                                                                                                                   Martin County Comprehensive Plan
                                                                                                                   DRGWAQ             13-32            0 A.3                   Maintenance, improvement of existing drainage.
                                                                                                                                      13-32            PA.3.c                  In 1993 adopt county master drainage ordinance.
                                                                                                                                      13-33            PA.3.1                  Have stormwater utility ordinance to fund drainage basin
                                                                                                                                                                               improvements.
                                                                                                                                                                               COMMENTS:
                                                                                                                                                                               (2) Agricultural runoff affecting discharge quality into
                                                                                                                                                                               Intracoastal to be addressed. Confirmed in updated
                                                                                                                                                                               comprehensive plan.
                                                                                                                   Palm Beach County Comprehensive Plan
                                                                                                                   CONS               8-C              P6-c                    Implement program to reduce nonpoint discharge to surface
                                                                                                                                                                               waters when not subject to SFWMD permit. Develop surface
                                                                                                                                                                               water quality & stormwater runoff ordinance.
                                                                                                                   CONS               9-C              P6-d                    Coordinate with WMD to develop agency practices that
                                                                                                                                                                               reduce degradation of water quality.
                                                                                                                   DRNG               3-DR             01                      Drainage LOS adequate to 3 conditions, 5 policies.
                                                                                                                                      5-DR             02                      Regs. to require no adverse development impact on drainage,
                                                                                                                                                                               2 policies.
                                                                                                                                      7-DR             05                      7 policies re: drainage planning, drainage plan for
                                                                                                                                                                                  
                                                                                                                                                                               unincorporated area.








                                                                                                                                5
 






          ISSUE: Excessive nutrient loadings from point and nonpoint sources, particularly canals draining from agricultural & urban drainage areas
                                                                                                                   Sewall's Point Comprehensive Plan
              GOAL 1: To attain & maintain water &           GOAL A.4: Improve water quality.                                  
                                                                                                                    FLU         16               P 3.5                    Drainage & stormwater controlled by development meeting
                                                             OBJ.A.4.1: To coordinate with DER, WMD                                                                       LOS regs. in LDR/code.
              sediment of sufficient quality in order to                
              support a healthy. macrophyte-based            and local govts toward improving water                 DRNG         77               P 1.1                   LOS for drainage.
              estuarine lagoon ecosystem.                    quality in lagoon.                                                                                           (1,6,7) NO identification of existing & not specific.
              OBJ. C: Reduction of excessive                 TASK A.4.1.1: Enter into mutual agreement                           80               P 2.1                   Land code to retrofit drainage to meet LOS.
              point/nonpoint source loadings of              with DER to utilize Pollution Recovery Trust                                         O 3.0                   Protect IRL as natural drainage by regulating development in
              nutrients to levels that promote               Funds to conduct demonstration projects that                                                                 land code to restrict runoff.
              mcrophyte-based system.                        improve water quality.                                                               P 3.1                   Post-development runoff limited to pre-development volume in
                                                                                                                                                                          1990 Code.
                                                                                                                                                                          COMMENTS:
                                                                                                                                                                          (1) No objectives re: natural drainage protection.
                                                                                                                                                                          (7) CONS has no data on water needs
                                                                                                                                                                          (1,2,7,) NO data on capacity, LOS for development, artificial
                                                                                                                                                                          substances from urban, marina & agricultural sources.
                                                                                                                   St. Lucie County Comprehensive Plan
                                                                                                                   DGDWTAQ            6C41             06C.2.1                 Drainage master plan by 1992, 3 policies re: development
                                                                                                                                                                               regs., improvements.
                                                                                                                   CM                 7-111            P7.1.4.4                To reduce nonpoint pollutant loadings, dumping of debris into
                                                                                                                                                                               drainage/IRL to be prohibited.
                                                                                                                                      7-112            P7.1.4.9                By 1991, prioritize point & nonpoint source pollution problems
                                                                                                                                                                               with assistance from DER/SFWMD.
                                                                                                                                                       P7.1.4.10c              Adopt regs. to improve control of illegal dumping into canals,
                                                                                                                                                                               ditches & increase BMPs.
                                                                                                                                                                               COMMENTS:
                                                                                                                                                                               (7) NO future water demands & drainage plan.
                                                                                                                                                                               (1,7) Interim drainage LOS not sufficient re: capacity.
                                                                                                                   St. Lucie Village Comprehensive Plan
              GOAL 1:To atttain & maintain water&            GOAL A.4: Improve water quality.                       INFRA              4-19             04.1.4 &                Drainage regs. & natural drainage(IRL), 5 policies re: DOs,
              sediment of sufficient quality in order to     OBJ. A.4. 1: To coordinate with DER, WMD                                                   P4.1.4.1-5              ordinances, drainage LOS.
              support a healthy, macrophyte-based            and local govts toward improving water                 INFRA              4-20             04.1.7                  Regs. for aquifer recharge area protection, 4 policies re:
              estuarine lagoon ecosystem.                    quality in lagoon.                                                                                                 study, aquifers, wellfield protection program.
              OBJ. C: Reduction of excessive                 TASK A.4.1.1: Enter into mutual agreement              CONS               6-34             P6.1.2.1                Adopt drainage system design regs. consistent with SFWMD &
              point/nonpoint source loadings of             with DER to utilize Pollution Recovery Trust                                                                       DER.
              nutrients to levels that promote               Funds to conduct demonstration projects that                                                                       COMMENTS:
              macrophyte-based system.                       improve water quality.                                                                                            (1) No mention of correcting existing drainage facility
                                                                                                                                                                                                 
                                                                                                                                                                               deficiencies.
                                                                                                                   Stuart Comprehensive Plan
                                                                                                                   CM               IX-2             PA4.1                    By 1992, adopt drainage ordinance.
                                                                                                                   Tequesta Comprehensive Plan
                                                                                                                   CM               CM-8             P3.1.3                    Urban drainage, tanks & hydrological changes main causes of
                                                                                                                                                                               water quality
                                                                                                                                                                               COMMENTS:
                                                                                                                                                                                      
                                                                                                                                                                               (2) Need basinwide planning to control nonpoint pollution.                                                                                                                                                                               
                                                                                                                                                                               (3) Eliminate tanks, develop stormwater mgmt. plan & review
                                                                                                                                                                               of new development.
                                                                                                                   Ocean Breeze Park Comprehensive Plan
                                                                                                                   CONS               161              P1.5                    Establish program to control nonpoint sources of water
                                                                                                                                                                               pollution into IRL.












                                                                                                                                6
 





       ISSUE: Releases of artificial substances from urban, marina, and agricultural activities
          Indian River Lagoon                     Jensen Beach/Jupiter Inlet
          SWIM Plan                               Aquatic Preserve Mgt Plan                     Jupiter Comprehensive Plan
          Natural Systems                         Mgmt. Policy Directives                      Element        Pg             GOP                 Description
          GOAL 1: Maintain water. sediment to     GOAL A.4: Improve water quality.             CONS           V-5            P1.4.8              Parking facilities to be located away from water & runoff
          Support healthy. macrophyte-based,      OBJ. A.4.1: To coordinate with DER, water                                                      controls.
          estuarine lagoon system.                mgmt. districts & local govts toward improving                                                 (2) Need financial plan to correct deficiencies in stormwater
          0BJ. D: Elimination or reduction in     water quality in the lagoon-three tasks re:                                                    mgmt. system.
          releases of toxic substances from point agreements & coordination.
          & nonpoint sources.                     POL. GUIDELINE 5: Protect biological
                                                  resources & water quality by prohibiting
                                                  fueling facilities in the lagoon, except at
                                                  commercial docks & marinas that have been
                                                  approved as fueling sites & which incorporate
                                                  procedures & equipment for spill prevention
                                                  & clean-up.
                                                                                               Jupiter Island Comprehensive Plan
                                                                                               CONS           33             P6.01.03.09         Regs. to be modified to include SWIM.
                                                                                               FLU                           P1.06.03.09         New point sources of pollution discharging into IRL, or
                                                                                                                                                 drainage canals should be restricted
                                                                                               Martin County Comprehensive Plan
                                                                                               SANSEW         10-19          PA.2.k & PA.1.1      Use treated wastewater effluent for irrigation uses.
                                                                                               DRGWAQ         13-29                              (2) Provide objectives & policies for SWIM. Need SWIM &
                                                                                                                                                 other pollutant reduction goals for surface water included in
                                                                                                                                                 LOS.
                                                                                                                                                 (3) No policy for liveaboards, open water mooring. Consider
                                                                                                                                                 marine sanitation ordiance.
                                                                                               Stuart Comprehensive Plan
                                                                                               CM             IX-3           PA4.3               City seeks cooperation of all surrounding in minimizing &
                                                                                                                                                 eliminating pollutant sources entering estuarine waters. Will
                                                                                                                                                 coordinate with SFWMD in permitting process
                                                                                                                                                 (2) St. Lucie River in suspected condition re: untreated urban
                                                                                                                                                 runoff. Need to identify industrial discharge.
                                                                                                                                                 (2) Drainage inconsistent with elements. Water &
                                                                                                                                                 environmental effects with marinas & boats-need marina
                                                                                                                                                 recommendations re: IRL AP.
                                                                                               Palm Beach County Comprehensive Plan
                                                                                               CONS            8-C            P6-b. c, f, g, i    Adopt ordinance for surface water quality, expand program to
                                                                                                                                                  identify point & nonpoint, prevent saltwater intrusion.
                                                                                               Tequesta Comprehensive Plan
                                                                                               CM             CM-5            P2.1.3              Incorporate plan to reduce nonpoint pollutant to IRL Aquatic
                                                                                                                                                  Preserve.
                                                                                               Sewall's Point Comprehensive Plan
                                                                                                                                                 (1) No policies re: activity that affect water quality.
                                                                                                                                                 (2) No reference re: point, nonpoint pollution & regs.
                                                                                                                                                          














                                                                                                          7

                            
 





         ISSUE: Releases of artificial substances from urban, marina, and agricultural activities
                                                                      St. Lucie County Comprehensive Plan
                                                                      CM        7-108  07.1.3        Protect marine resources by mgmt. program & regs.
                                                                                                     (1,2) No criteria re: water quality & environmental effects.                                                          
                                                                                                     (3) Doesn't contain marine sanitation ordinance or address                                                        
                                                                                                         live-boards.                                                   
                                                                                                     (2) Need to address reuse.
                                                                                                     (3) Consider acquisition of buffers along shoreline.
                                                                                                     (7) CM policies re: culverts, fertilizers into drainage.
                                                                     St.   Lucie Village Comprehensive Plan
                                                                     CM        5-53  P5.1.3.1-13     13 policies re: marinas, point pollution, docks, drainage, regs.,
                                                                                                        nonpoint pollutant reduction.
                                                                     Ft.   Pierce Comprhensive Plan
                                                                     INFRA     76    P4.1.9           City to adopt LDRs for cooperation plan for identification &
                                                                                                      elimination of illegal discharges & connections to drainage
                                                                                                      waterways. 
                                                                     CM      5-57    P5.1.1.11        Marina siting criteria to require sewage pump-out service
                                                                                                      measures to prevent fuel storage tank leakage, compliance w/
                                                                                                    DNR pollutant spill contingency plan.







































                                                                                                                    8
 





          ISSUE: Wastewater and sewage effluent and leachates from septic tanks, treatment plants and agricultural areas
           Indian River Lagoon                                Jensen Beach/Jupiter Inlet
             SWIM Plan                                        Aquatic Preserve Mgt Plan                               Ft. Pierce Comprhensive Plan
             Natural Systems                                   Mgmt.  Policy Directives                               Element            Pgt               GOP                      Description
             OBJ. C: Reduction of excessive point              GOAL A.4: Improve water quality.                       INFRA              4-70               P4.1.11-4                Priority to monitor wastewater plant effluent & sanitary sewer
             and nonpoint source loadings of nutrients         OBJ  A.4.1: Coordinate with DER, WMDs, &                                                                                to septic tanks. Seek alternate wastewater effluent disposal
             to level that promotes macrophyte-based           local govts to improving water quality in                                                                               strategies as outfall extension, dechlorination, mixed zone
             system                                            lagoon.                                                                                                                 expansion if surface water disposal not feasible. Altering
             (W/S quality program).                            TASK A.4.1.1. Enter into a agreement with                                                                               wastewater sludge disposal.                                                
             OBJ. E: Reduction of anthropogenic                DER to utilize Pollution Recovery Trust Funds          CM                 5-59               P5.1.3.2                 Aquatic toxicity testing on treated effluent.                                                           
             loadings of fecal & coliform bacteria of          to conduct demonstration projects that                                                                                 COMMENTS:                                 
             shellfish harvesting areas to levels below        improve water quality.                                                                                                 [3] require hookup of existing septic, new permits not granted
             state standards or to natural, background         TASK A.4.1.2- Coordinate with                                                                                          except special circumstances.
             levels.                                           SJRWMD/SFWMD & local govts to improving                                                                                [5] Eliminate wastewater disposal into IRL.              
                                                               surface water mgmt. & stormwater discharges                                                                            [5] Need more specifics than toxicity testing.         
                                                               into aquatic preserve.                                                                                
                                                                                                                                             
                                                               
                                                                                                                       Jupiter Inlet Colony Comprehensive Plan
                                                                                                                       FLU                13                 P 4.3                    Those on tanks governed by FL law.
                                                                                                                       04                 36                 P 1.3                    Prohibit individual wells for potable water.
                                                                                                                                                                                      {1} No regulation, management techniques.
                                                                                                                                                             P 2.1                    Strict maintenance of tanks
                                                                                                                                                                                      COMMENTS:
                                                                                                                                                                                      [1] No method, date.
                                                                                                                                                                                      [2] Establish standards to convert tanks to system.
                                                                                                                       Jupiter Island Coprehensive Plan
                                                                   ** Town has no central sewer system.                INFRA     23     P4.01.05.0 3             Permit wastewater effluent disposal thru septic tanks while
                                                                                                                                                                 protecting water.
                                                                                                                                                                 [4,5] No detail, data, in conflict with previous policies.
                                                                                                                                        P4.01.05.0 4             Consider program for periqa
                                                                                                                                                                 [4]No specifics.
                                                                                                                                                                 COMMENTS:
                                                                                                                                                                 [2] Shallow monitoring wells to be installed.
                                                                                                                                                                 [2] Analysis of poullution from tanks to be performed. Need                     
                                                                                                                                                                  measurable objectives to ensure impacts of tanks.
                                                                                                                       Martin County Comprehensive Plan
                                                                                                                       SANSEW  10-15    P 1.e                    Regulate collection to areas with septic failure, ground,
                                                                                                                                                                 surface water pollution.
                                                                                                                                                                  [1] No objectives for determining impact spetic discharges.
                                                                                                                       SANSEW  10-17    Pl.i &j                  Package treatment plants prohibited in certain areas.
                                                                                                                                                                 Deficiencies corrected prior to development order.
                                                                                                                               10-18    P2.b-d                   Wastewater plant facilities location, inspection & 
                                                                                                                                                                 development.
                                                                                                                               10-18    P2.e                     LOS for packaging wastewater treatment plants not listed.
                                                                                                                               10-19    PA.2.j                   By 1992, have industrial waste effluent program.
                                                                                                                               10-22    05&P5a-c                 Sanitary sewer deficiencies
                                                                                                                       DRGWAQ  13-29    PA.l.o                   Tanks allowed on single family lots with minimum acreage.
                                                                                                                               13-30    PA.l.q                   All development to have well & septic evaluation.
                                                                                                                                        PA.l.m                   New, existing development to connect to water, wastewater
                                                                                                                                                                 system
                                                                                                                                                                 COMMENTS:
                                                                                                                                                                 [2] Needs lank mgmt. plan & specific policy to limit, reduce
                                                                                                                                                                  tanks & package plants in IRL.










                                                                                                                                    9
 






           ISSUE: Wastewater and sewage effluent and leachates from septic tanks, treatment plants and agricultural areas
                                                                                   Ocean Breeze Park Comprehensive Plan
                                         ** City's wastewater plant no longer       INFRA     103          P 1.1                    All tanks mantain LOS per Health Dept.
                                            discharges into IRL                               106          02                       Correct sanitary sewer facilities deficiencies.
                                                                                                                                    [I] No date, method.
                                                                                                           03                       Coordinate regulating future develpement sanitary sewer.
                                                                                                           P 3.1                    Developers submit formal notice re: sanitary sewer along with
                                                                                                                                    development impact.
                                                                                              111          012                      Protect natural drainage features thru design & regs.
                                                                                                                                    [1] No dates, method.
                                                                                                                                    COMMENTS:
                                                                                                                                     [2] Doesn't address disposal of sludge from package plants.                                              
                                                                                                                                     [4] Consider hookup with county wastewater plants, eliminate                                                  
                                                                                                                                      septic & package plants, risk of groundwater contamination.                                          
                                                                                   Palm Beach County Comprehensive Plan
                                                                                    SANSEW   15-SS         P 2-b,c                   Septic tanks allowed on single-family lots & LOS for tanks.
                                                                                                           03                        Correct sanitary sewer deficiencies.
                                                                                                                                      [I] What is the method?
                                                                                             17-SS         04                        Rehabilitate sanitary sewer system.
                                                                                    DRNG     3-DR          01                        Adopt LOS to maintain runoff levels with receiving waters.
                                                                                             6-DR          04                        3 policies address monitoring to evaluate LOS for drainage.
                                                                                             7-DR          05                        Adopt drainage plan in cooperation with SFWMD.
                                                                                   Sewall's Point Comprehensive Plan
                                                                                    FLU      19           O6.0                       Development to connect with county potable water & sanitary
                                                                                                                                     sewer.
                                                                                             22           P9.5                       Identify tanks contaminating water & sensitive lands,
                                                                                                                                     feasibility of eliminating tanks within 5 yrs.
                                                                                    SANSEW   61           O2.0                       Coordinate with county for sanitary sewer service & protect
                                                                                                                                     IRL & water supplies.
                                                                                                                                     [1,2,3.6] No specifics or measure.
                                                                                                                                     COMMENTS:                                             
                                                                                                                                     [4] Should mandate region wastewater treatment hookup,                                              
                                                                                                                                     [7] Should not encourage tanks.



























  





         ISSUE: Wastewater and sewage effluent and leachates from septic tanks, treatment plants and agricultural areas
                                                                  St. Lucie County Comprehensive Plan
                                                                  FLU                1-63              P1.1.5.4                Complete wastewater master plan.
                                                                                     1-64              P1.1.5.9                Septic disposal system for
                                                                                                                               [1,2] No method.
                                                                                     1-64              P1.1.5.11               Existing development re: central water & sewer system.
                                                                                     1-64              P1.1.5.12               Subdiv/development have water/wastewater collection.
                                                                                     1-86              Pl.1.9.14-15            New development allowed in floodplain, to be consisten with
                                                                                                                               soils.
                                                                                     1-88              O1.1.12                 DO if public facilites meet LOS
                                                                                     1-88              P1.1.12.4               Development not with central water & sewer
                                                                  SANSEW             6A-24             P6A.1.1.2               Central sanitary sewer limited utility service areas.
                                                                                                                               [1,2] Not measurable.
                                                                                     6A-24             P6A.1.2.2               Sanitary sewer LOS for unicorperated areas.
                                                                                     6A-25             P6A.1.2.7               Development/regional sanitary sewer system.
                                                                                     6A-27             P6A.1.4.2               Limit onsite wastewater system to existing septic/package
                                                                                                                               plants.
                                                                                     6A-28             P6A.1.4.4               Amend ordinance to regulate expansion of site WWTPs &
                                                                                                                               comply with stds.
                                                                                     6A-28             P6A.1.5                 Develop sanitary sewer master plan.
                                                                                     6A-29             O6A.2.1                 Develop unincorporated areas wastewater masterplan.6A-29            
                                                                                     6A-29             P6A.2. 1.1              Wastewater master plan &
                                                                                     6A-31             06A.2.3                 Acquire private utilities in unicorperated areas, policies, re:
                                                                                                                               acquisition, package.
                                                                   DGDWTAQ           6C-43             P6C.3.2.2               County health re: issue of tank permit.
                                                                   POTWAT            6D-21             P6D.1.4.2               Those with tanks evaluate for water service.
                                                                   CM                7-110             P7.1.4.2                Sewage treat plants required to connect to central treat plants
                                                                                     7-111             P7.1.4.7                By 1995, plan for central treat & disposal of effluent from
                                                                                                                               development on barrier isles not served.
                                                                                                                               COMMENTS:
                                                                                                                               [1]No LOS for package plants, sanitary sewer facilities
                                                                                                                               [7] Need to address possible contamination of private wells.
                                                                   St. Lucie Village Comprehensive Plan
                                                                   INFRA              4-17              O4.1.1                  Land regs. re: development, 3 policies re: permits, treatment, &
                                                                                                                                septic system.
                                                                                                        O4.1.2                  Central sanitary sewage system introduced to village, 4
                                                                                                                                policies re: feasibility of system, permits.
                                                                                                                                [3] Should connect to central sewer system.
                                                                                      4-18              P4.1.2.4                If development within 50 yards of IRL, septic drainfields at least
                                                                                                                                4 feet above highest groundwater level.
                                                                                                                                COMMENTS:
                                                                                                                                [1] Inconsistent LOS re: sanitary sewer & reliance on tanks.
                                                                                                                                [1] No mention of attending LOS when converts to central                                                                                                                               
                                                                                                                                    system.
                                                                                                                                [1] Inconsistency re: use of tanks & density of single family.
                                                                                                                                [2] Tanks should not be permitted due to soil limitations.
                                                                                                                                [2] With individual wells and tanks not used, sanitary sewer LOS
                                                                                                                                    not applicable.
                                                                                                                                [6] Sanitary sewer LOS not applicable due to septic tanks.
                                                                   Stuart Comprehensive Plan
                                                                   INFRA              IV-1             PA1.1                   Correct deficiencies of wastewater & water, drainage system.
                                                                                      IV-2             PA1.4B                  Implement water/sewer master plan.
                                                                                      IV-4             PA3.1                   Update, implement recs of water/wastewater master plan.
                                                                                      IV-6              0 A6                   Determine tanks impacts on water quality, study by 1995.
                                                                                                       PA7.4                   LOS re: sanitary sewer & drainage
                                                                                                                               COMMENTS:                                                   
                                                                                                                               [2] Need policy for tank removal.
                                                                                                                               [4] Replace tanks with central system.
     																					 [5] Need study on tanks & effects on estuary.		     


	

	ISSUE: Wastewater and sewage effluent and leachates from septic tanks,treatment plants and agricultural areas
											Tequesta Comprehensvie Plan
											DRNG       DR-3		012		Incorprate wastewater system design/construction criteria.
											SANSEW     SS-1		P1.1.1	Installation/use of spetic tanks governed by FAC & new
																	development to connect to central sytem.
												     SS-1		P1.13		Eliminate use of spetic in all development.
												     SS-2		P1.17		Tanks accetable alternative,yet study taken if water quality
																	tests prove contamination.
											CONS		C-7		P252		Prohibit tank & private sanitary sewer systems in coastal areas.
											Jupiter Comprehensive Plan
											INFEA		IV-4		P1.35		New & existing development to connect wiht ENCON sewer.










														12			




ISSUE: Dredge and fill operations/shoreline alteration

Indian River Lagoon				Jenson Beach/Jupiter Inlet				Ft. Pierce Comprehensive Plan
SWIM plan						Aquatic Preserve Mgt Plan				
Natural Systems					Mgmt. Policy Directives					Element	Pg	GOP		Description
OBJ.B: ASsessment of suspended matter	POL GUIDELINE 7: Promove revegetation 		CM		5-56	P5.1.18-11	Alternation which degrades estuarine quality prohibited unless it
loadings.						of shoreline by stipulating in permit review						provides acess to marine resources. Require vegetative
							process that wetland vegetation be used for						buffers to IRL, tributaries. Encourage pilings. Marina siting
							shoreline stabilization either alone or with						criteria, 12 parts.
							riprap									5-59	P5.1.33	No constriction re: water circulation in lagoon pemitted
							POL GUIDLINE 8: Reduce impact of 								unless environment studied.
							turbidity on seagrasses by banning dredging	CONS		6-46   P61.23	Cooperation re: dredging, fill permits.
							for sole aim of accommodating boats with							COMMENTs:
							drafts greater tahn the mooring, operational						(3) Replace seawalls with slopes or riprap. Acquire buffer
							capabilities.											areas between development & shorelines.
							GOAL A.1: Maintain resource inventories				
							OBJ. A.22: Inventory & assess cumulative
							impacts on natural resources.
							TASK A.221: Survey docks, piers, dredged
							areas, shoreline stabilization & other human
							uses.
							GOAL 4: Improve water quality.
							OBJ. A.4.1: Coordinate with DER,WMDS &
							govts to improve water quality in lagoon.

								Jupiter Comprehensive Plan

							TASK A.4.1.: Enter into agreement with			FlU	I-12	P1.3.12		Development to have environmetnal assessment.
							DER to utilize Pollution Recovery Trust Funds							(5) Should be in all alnd use decisions
							to conduct demonstration projects thath 			INFRA	IV-3	P1.1.8		Continue maintenance of drainage system & plant shoreline
							improve water quality.											vegetation.
							OBJ. B.1.1.4: Ensure that human use of the		CONS	V-6	P1.4.10-11		Seawalls discouraged, can be replaced if exists.
							preserve doesn't create hubidity levels thath				p1.4.12		Sloping revetments used instead of seawalls.
							adversely affect submerged vegetation					P1.4.13		Dredge & fill of submerged lands & wetlands prohibited unless
							TASK B.1.42: Require that all dredge & fill							approved or mitigated.
							projects use effective turbidity control								(2)Is inconsitedn, irresponsible, some unprotected.
							practices.										P1.4.18-19		Dredging for navigational access/flood control.
																CM	VI-4	P1.1.6		Encourage wetland reestablishment in previous areas where
																					fessible.
																	VI-6	P1.45			Canals prohibited except for agricultural & drainage.
																	VI-7	P1.5.4		Discourage development projects thath require dredge & fill.
																					Preven unescessary channels.
																	VI-8   P1.5.10          Docks & piers constructed in wya so as to not restrct water
																					flow or block view.
																					Prevent & regulate flood barrier construction.
																		P1.5.15	      Marina siting study & development of criteria.
																	VI-9  P1.62			Turbidity control procedures to protect water quality adjacent
																CONS&	V-7   P1.4.20&P1.46	to construction.
																CM					COMMENTS:
																					(3) Need buffer between development & shoreline. Encourage
																					seawall removal.
													Jupiter Inlet Colony
													INFRA     29	P1.2		All development to be consitent with LOS.
														    31      P1.5	      No more than 50% of lot to be developed.
													CM	    36	P1.1-2	Prohibit development that impacts wetland, seagrasses,
																		mangroves, habitats thru reveiw process.
														    37	03		(1) No method & impacts of development on water.
																		dependent uses.
																		(1) No specifics or measures.
													CONS	     42	P3.1		 Work with owners re: shoreline erosion.
																		 (1) No metods.





											13


ISSUE: Dredge and fill operations/shoreline alteration

		Jupiter Island Comprehensive Plan

		FLU		1		P1.06.01.01			Marine & estuary wetland "should" be produced from
										dredging & fill activities.
										(3,45) Allows for mitigation, conflicts with P1.06.01.02.
										LOA for infrastructure applied to development approval.
		INFRA		2		P1.05.05.01			Require new homes to have onsite irrigation wells.
		CM		24		P4.01.05.06			Marine & estuarine wetland protected from dredge/fill
				26		P5.01.01.01			activities thru standards.
										(1,4) No method or measure.
				27		P5.01.04.03			Shoreline planted with vegetation, hardening of shore to
										stabilize it, trap sediments & nonpoint source pollution.
						P5.01.04.05			Regs. to prohibit structures that impede IRL circulation.
						O5.01.05			Protect natural functions of coastal barrier.
										(4) No mention with regs.
						P5.01.05.06			Construction/seawall permitted seaward of CCL in
				28						accordance with regs.
										(3,4) No date, analysis, specifics.
						P5.01.05.07			Rebuilding of seawalls as appropriate to town's character.
						P5.01.05.08			(3,4) Inconsistent with 935, unnecessary.			
										Construction of N Beach Rd & preservation of mangroves.

		Martin County Comprehensvie Plan
		CM		8-32		PA.4a-e			Pol include shoreline perform stand, buffers, fill, mgmt, plans,	   	
										construction, coordination.
		CONS&OS	9-16		PA.5a-h			8 policies for erosion reduction from agicultural &
										development slope protection, bank stabilization, drainage
										outfalls.
				9-35		PA.8a				Shoreline perform standards-protection zone, vegetation, uses,
										mangroves, exceptions
				9-39		PA.8.b-d			Regulation of shore construction activity near estuary.
										landscape, tidal flushing, circulation & prohibiting canals.
		DRGWAQ	13-30		PA.2.c			Activties not permitted which affects recharge quality.
										COMMENTS:
										(1) Establishment of LOS, none for existing development.
										(3) Before seawall construction, vegetative shoreline method to
										be shown ineffective.
										(7) Shoreline stabilization, protection of marine resources need 
										policies.

		Ocean Breeze Park Comprehensive Plan
		CM		143	P2.7					Limit development, no development on submerged lands &
										western part of IRL.
				146	P5.1					Revise bldg. code to ensure estuarine quaility not degraded.
										(1) No method.
					P5.3					No permittin multi-slip marina in town's intracoastal.
				147	P5.6					Shoreline landscape to include native species, xcriscape.
					O6					Prioritize shoreline uses.
	     CONS		161	O1&P1.1&P1.3			(1) Objectives is not specific.
										Improve shore along IRL. Maintain natural vegetation along
				164	P42					shoreline for stabilizaiton. Restrict construction to eliminate
										possiblity of marina in IRL.
	     CIE		208	O 4					Continue shoreline mgmt. & regulate new development to
										accommodate protection & conservation.
										Improvements of IRL shoreline to seawall maintenance.
										COMMENTS:		
										(3) Town constructed seawall along IRL border-not
										environmetally sensitive.

			Palm Beach County Comprehensive Plan

	 		CONS		6-C		P4-a			Adopt marina siting ordinance to prevent no net loss of
										wetland values & functions.
			CM		4-CM		P3-c			Prohibit shoreline alter & construct that degrades wetland.
					7-CM		P5-b`			Re: placement of material form inlet dredging not haveing
										effect on water quality, resources.


									14



ISSUE: Dredge and fill operations/shoreline alteration

Sewall's Point Comprehensive Plan

FLU		12		O2.0			Development must be consistent with FLU.
		12		P21			Amend development code in 1990 to prohibit development not
							consistent with existing use of area.
		13		P24			Development orders continuing with facilities & services by
							1990.
POTH20	88		P1.2			1990 land code require development concurrent with LOS.
CM		116		P1.2			Restore resources, estuary & drainage with regs. to mitigate
							degradation, buffers, landscape, ordinance.
							(1)Not measurable, specific.
							COMMENTS:
							(2)No reference to dredging, filling of wetlands & no specifics
							re: marina siting criteria.
St. Lucie County Comprehensive Plan
FLU		1-64	     P1.15.11		Existing development re: central water & sewer system.
		1-64	     P1.15.12		Subdivision & development have water & wastewater
							collection.
		1-86	     P1.1.9.14-15		New development allowed in floodplain, to be consistent with
							soils.
		1-88	     O1.1.12		DO if public facilities meet LOS.
SANSEW	6A-25	     P1.1.12.4		Development not with central water & sewer.
CM		7-111	     P7.1.4.3		New causeways across IRL to be prohibited to reduce water
							circulation constriction.
				P7.1.45		Dredging of IRL to be placed on uplands except as authorized.
				P7.1.4.8		By 1990, enact LDRs to prohibit shoreline alteration &
							construction that degrades esturaine productivity.	
CONS		8-40		O8.14			Regs. re: wetland protection,9 policies re: buffer, dredge/fill,
							acquisition, coordinaton, mitigation.
St. Lucie Village Comprehensive Plan
FLU		1042		01.1.2		Development orders, permits if resources protected &
							consistent with GOP.
				P1.1.2.2		Development which endangers exotic or endangered species
							prohibited, regs. re: flora, wetlands.
							(1) Not supported by data.
							(2) Should be part of planning process & not review process.
		1-43		P1.1.2.5		Developer responsible for runoff consistent with GOP.
							(2) What is the method?
		1-44		01.1.3		Orders issued if soil & topography compatible, 2 policies.
				01.1.4		Orders issued if facilities meet LOS, 3 policies re: timing,
							location.
CM		5-59		P5.1.7.7		Seawall repair after hurricane.
		5-61		05.1.9		LOS, infrastructure & development orders, 3 policies re:
							funding, LOS, development.
CONS		6-35		P6.1.2.3		Require compliance re: dredge & fill process & IRL, AP mgmt.
							plan.
							(2) Needs method, measure.
				P6.1.2.4		Adopt regs. re: buffer around wetland, retention, deepwater
							habitats.
							COMMENTS:
							(5) Need policy re: vegetation in landscaping in coastal zones.



ISSUE:  Dredge and fill operations/shoreline alteration
Stuart Comprehensive Plan
FLU	1-1		PA3.2	Developement to those served by utilities.
	1-2		O A4	Construction along water, drainage, not increase flooding, 1
				policy re:  Stormwater ordinance.
				(1) No method.
INFRA	V-4		PA4.2	Post development runoff not to exceed pre-development,
CONS	V-2		PA2.5	No adverse effects on aquifer, quality, re: runoff, mgmt,
				recharge.
				(1) No method.
CIE	VIII-3	PA2.2	Develop amendments based on 6 guidelines.
			PA3.1	Future development to pay drainage, water, sewer facilities.
	VIII-5	PB1.2	Development orders coordinated with development regs,
	VIII-9	PB2.2	Develop if facilities & services are available.
CM	IX-3		PA4.5	Prohibit canals.
			PA4.4	Development to prevent negative alteration of tidal flushing,
				circulation.
			PA4.6	Turbidity control procedures used to protect water quality.
				COMMENTS:
				[2,3] Encourage removal of existing seawalls.
				[6] Describe efforts to implement SWIM policies.  Need
				acquisition buffers between development & shorelines.

Tequesta Comprehensive Plan
FLU	FLU-3		P1.6.1 Require surface water mgmt. permit/water use permit for development order.
FLU	FLU-3		P1.4.5 Mangrove trimming/removal consistent with county mangrove protection ordinance.
FLU 	FLU-5		P1.4.7 In 1990, adopt mangrove protection ordinance.
DRNG	DR-4		1.2.4-5 Regs. for runoff & protection of water quality thru use of BMPs.
				  [6] SWIM to eliminate this.
CONS	C-1		01.2	 Subdivision regs. to have recharge standards.
CONS	C-6		02.3	 Prohibit development in IRLAP that affects water quality, wetlands.
CONS	C-7		P27.1	 Support Jupiter Inlet District dredging for relief from hurricane flood.
CM	CM-3		P1.3.1.Prohibit dredging & filling activities near areas.
	CM-12		P4.1.1.Require 20 ft. buffer along IRL Aquatic Preserve.

							16




         ISSUE: Loss and alteration of seagrass beds due to shoreline development, jet s1d & boat activity
            Indian River Lagoon                             Jensen Beach/Jupiter Inlet
            SWIM Plan                                       Aquatic Preserve Mgt Plan                             Jupiter Island Co prehensive Plan
            Natural Systems                                 Mgmt. Policy Directives                              Element                     Pg         GOP                Description
            0bj A: Preservation of existing               POL GUIDELINE 1: Promote recognition                    CM                         26         P5.01.03.01       Estuarine fauna should be protected by establish of boat speed
            seagrass beds.                                  that seagrasses provide habitat & food source.                                                                     limits in designated manatee habitis & those containing
            0BJ. B: Restoration of lost seagrass          POL GUIDELINE 2: Designate waterway as                                                                             seagrass.
            beds.                                           year-round idle speed zone.
            OBJ C:  Creation of new seagrass beds             POL GUIDELINE 8: Reduce turbidity impact
            where feasible                                  on seagrasses by banning dredging for
            (Habitat Pres. Program).                        purpose of boats.
            0BJ. B: Assessment of suspended matter         OBJ. B.1.4: Ensure human use of preserve
            loadings fees as to contribution to             does not create turbidity levels that adversely
            "much" & turbidity problems & reduction          affect submerged vegetation.
            of suspended matter loadings to maintain
            overall health of IRL
            (W/S quality program).
                                                                                                                  MARTIN COUNTY COMPREHENSIVE PLAN
                                                                                                                  CONSOS            9-42              P A.8.h                  No modification of grassbeds, through sensitive to turbidity,
                                                                                                                                                                               nutrients consistent with natural system
                                                                                                                  JUPITER COMPREHENSIVE PLAN
                                                                                                                  CONS              V-7               P1.5.1-20                20 policies re: habitats, vegetation, wetlands & regulations for
                                                                                                                                                                               protection,
                                                                                                                                                                               COMMENTS:
                                                                                                                                                                              [2] Need policies re: seagrass beds & construction.
                                                                                                                  SEWALL'S POINT COMPREHENSIVE PLAN
                                                                                                                  CONS             155              P5.1-4                4 policies re: protect of marshes, mangroves, grassbeds, ESAs.
                                                                                                                  ST. LUCIE COUNTY COMPREHENSIVE PLAN
                                                                                                                  CM                7-109             P7.1.3.4&5               Policies re: seagrass, sanctuaries, endangered.
                                                                                                                                    7-114             07.1.7                   Regs. re: prioritizing shoreline uses, water uses.
                                                                                                                                                                               COMMENTS:
                                                                                                                                                                               [3] Port expansion hurts seagrass.
                                                                                                                  Tequesta Comprehensive Plan
                                                                                                                  CONS              C-5               02.2                     Prohibit development along IRL AP that destroys seagrass.
                                                                                                                                    C9-11             P2.13.1-13               Policies re: wetlands, mangroves, seagrasses, preservation/LU.
                                                                                                                                    C-9               02.13                    Protect/conserve mangroves, wetlands & seagrasses.
                                                                                                                                                      P2.13.1-13               Specify policy re: above & those that affect them.
                                                                                                                                                                               COMMENTS:
                                                                                                                                                                               [3] Both CONS & CM neglect negative effects associated with
                                                                                                                                                                               cumulative impacts to seagrasses.
                                                                                                                  Stuart Comprehensive Plan
                                                                                                                  CONS              V-7               P A8.2                   Sloping revetments along shoreline.
                                                                                                                                                      P A8.3                   Replant seagrass during redev shall be encouraged.
                                                                                                                  CM                IX-2              P A3.1-2                 Site review re: habitat, wildlife, fish, endangered.
                                                                                                                  Ocean Breeze Park Comprehensive Plan
                                                                                                                  CONS              161               0 1 & P1.1-5             Improve IRL banks & shores, 5 policies re: native vegatation,
                                                                                                                                                                               shoreline buffer, marina construction & floodplains use.
                                                                                                                                                                               Establish nonpoint control program & floodplains ordinance by
                                                                                                                                                                               1991.
                                                                                                                                                                               [1] No specifics.
                                                                                                                                    163               P4.1                     Developers to consider hydrological, vegetation covers in
                                                                                                                                                                               development plans & include development regs.
                                                                                                                                


























                                                                                                                             17
						



                                                   
         ISSUE: Loss and alteration of seagrass beds due to shoreline development, jet ski & boat activity
                                                                                                    Ft. Pierce Comprehensive Plan
                                                                                                    CM               5-57            P5.1.1.11            marina siting critons to require dock design have light
                                                                                                                                                           penetration enough for shallow water habitats.
                                                                                                                   5-58            P5.1.2.2             All docks require approval by DNR, DER, COE & city.
                                                                                                                                   P5.1.12.2            Marina  proposals to include plans designating boat speed limits
                                                                                                                                                        in sesgrass beds
                                                                                                    Palm Beach Comprehensive Plan
                                                                                                    CM           5-CM                  P3-1                 Shall protect seagrasses thru development & improvement of
                                                                                                                                                        freshwater & marine wetland ordinances.


























































                                                                                                              18






        ISSUE: LOSS of wetlands, mangroves due to shoreline development, navigational improvements and mosquito impoundments
           Indian River Lagoon                         Jensen Beach/Jupiter Inlet
           SWIM Plan                                   Aquatic Preserve Program                          Jupiter Comprehensive Plan
           Natural Systems                             Mgmt. Policy Directives                          Element         Pg               GOP                  Description
           OBJ. D: Restoration of ecological            POL GUIDELINE 7: Permit review process           CONS            V-6               P1.4.14-15           Buffer zones along waterway. Avoid connections that disrupt
           functions of impounded marshes where       stipulation that native wetland vegetation used                                                           wetlands, grasses & shellfish.
           feasible.                                   for shore stabilization.                         CM              VI-1              01.1                 Protect/preserve wetland thru regs.
           OBJ. E: Preservation of existing            GOAL.3: Restore estuarine habitat.                               VI-3              P1.1.4               Mgmt. of wetlands to be consistent with other plans.
           marshes.                                    OBJ.A3.1: Identify suitable unvegetated &                        VI-4              P1.1.9               Re:-establish wetland vegetation C-18 canal.
           OBJ. F: Creation of marshes where           disturbed shoreline areas as restoration sites.                                    P1.1.8               Impoundments modified for provision of marine fisheries
           feasible                                                                                                                                            habitat, water quality.
           (Habitat Pres. Program).                                                                                     VI-5              P1.2.5               Support SFWMD wetland restoration program.
                                                                                                                        VI-6              P1.4.4               Alterations of tidal circulation & flushing pattern not permitted.
                                                                                                                                                               COMMENTS:
                                                                                                                                                               [1] Objectives of CONS elements not measurable.
                                                                                                        JUPITER INLET COLONY COMPREHENSIVE PLAN
                                                                                                        CONS            42                P 4.3                Protect mangroves, stabilize shoreline, enforce Mangrove
                                                                                                                                                               Protection Ordinance.
                                                                                                                                                               [1] No method, no implementation.
                                                                                                        Jupiter Island Comprehensive Plan
                                                                                                        FLU                               01.06.01             Protect, conserve wetlands & natural resources.
                                                                                                                                                               [3,4,5] Objective & policies aren't specific & have no data,
                                                                                                                                                               analysis for support.
                                                                                                                                          P1.06.01.01          Marine & estuarine wetlands to be protected from dredge/fill
                                                                                                                                                               activities.
                                                                                                                                          P1.06.01.02          Future alteration of wetlands to be accompanied by mitigation
                                                                                                                                                               Measures.
                                                                                                        CM              26                P5.01.01.02          Degradation of wetlands should be accompanied by mitigation.
                                                                                                                                                               [4,5] Contradicts previous policy above.
                                                                                                        CONS            33                P6.01.06.03          Regs. revised to protect IRI, wetlands associated with
                                                                                                                                                               development.
                                                                                                                        33                06.01.06             Regs. for vegetated communities to require environmental
                                                                                                                                                               assessments for large development & road construction.






























                                                                                                                  19


ISSUE: Loss of wetlands, mangroves due to shoreline development, navigational improvements and mosquito impoundments

										MARTIN COUNTY COMPREHENSIVE PLAN

				CM		8-13		PA.1.a-b	Wetlands protected-perform standards met before order.
						8-16		PA.1.b.7b	Wetlands encroachment.
										[3,7] Not consistent with PA.1.a. Allows wetland mitigation
										without environmental agencies.
						8-18		PA1.b.8d	Wetland deficiencies, criteria, performance standards,
										dredging.
						8-19		PA.1.c-d	Two policies re: wetlands protection,mgmt. plan, exceptions,
										density.
						8-31		PA.3.f	No development allowed except as listed.
				CONSOS	9-18		O7		Protect/preserve function of wetland & upland systems.
						9-18		PA.7.a-b	Defines wetland & protection.
						9-23		PA.7.c	Designated wetland areas.
						9-24		PA.7.d	Buffer zones & performance criteria for wetland.
										COMMENTS:
										[1] Consider lower intensity land use in wetlands.
										[2] Wetland definition re: soils
										Density transfer not for wetlands.
										[3] Evaluate impoundments to natural. Habitat alteration
										prohibited in parks.
										[3] Loss of wetland thru mitigation, relocation revised.
										[3] Boating guidelines/marina siting to include manatee
										protection, slow or idle speeds.
										[7} No specifics on identification of wetland as condition for
										approval. Avoid effects of wetland as option.
										[7] Explain exemption for wetland & mitigation, density
										wetlands to uplands. Reevaluate wetland on LU map. Explain
										sites of wetland [GFWFC] County wetland policy revised in
										function, accommodate restoration.

                                                   Ocean Breeze Park Comprehensive Plan
                             CONS    161   O 1 & P1.1-5     Improve IRL banks & shores, 5 policies re: native vegetation
                                                            shoreline buffer, restrict marina construction & floodplains
                                                            use, establish nonpoint control program, establish floodplains
                                                            ordinance by 1991.
                                                            (1) No specifics.

                                                   Palm Beach County Comprehensive Plan
                             CONS    6-C   O 4 	            Maintain functions & values of wetlands, with ordinance,
                                                            buffer, restoration--6 policies.
                                                            (7) Little detail.
                                     6-C   P4-b,c           Wetland protection & mitigation.
                             CM      4-CM  P3-c,f,h,l       Protection of wetlands, marine resources thru freshwater &
                                                            marine wetlands, marina siting, sea turtle ordinance.
                                     6-CM  P3-m             Prohibit shoreline alteration & construction that degrades
                                                            natural resources, wetlands.








            20    

ISSUE:   Loss of wetlands, mangroves due to shoreline development, navigational improvements and mosquito impoundmnets
                                            St. Lucie County Comprehensive Plan
                                            CM      7-106      07.1.2      Protect wetlans & habitat by development criteria, no loss, 8
                                                                           policies re: regs., buffer, erosion.
                                                                           (1,2) Isn't measurable, specific.
                                                                           (3) Verbiage allows mitigation.
                                                    7-107      P7.1.2.1-4  By 1990 regs. re: buffer, exotic vegetation, native vegetation.
                                                                           (1,2,3) No specifics.
                                                    7-108      P7.1.2.5    By 1994 mosquito impoundments assessed for marine fisheries
                                                                           habitat, water quality.
                                                    7-108      P7.1.2.6-7  Regs. Re: site plans & wetland alterations, mitigation,
                                                                           identification.
                                                    7-109      P7.1.3.3    Specific/cumulative impacts of development/redevelopemnt on
                                                                           wetlands limited by implement of policy under 07.1.2.
                                                    7-115      P7.1.7.1-4  4 policies re: marinas, regs., construction
                                                                           (3) Consider shoreline stabilization ordinance, no policy for
                                                                           wetland vegetation.
                                         CONS       8-41       P8.1.4.4    LDRs to require buffer zone of native vegetation around
                                                                           wetland & deepwater habitat.
                                                               P8.1.4.5    Cooperate with DER, DNR, SFWMD & COE on dredge/fill
                                                                           permits by commenting on county wetland regs.
                                                               P8.1.4.56   LDRs to protect wetlands thru reduced paving, easements,
                                                                           cluster site planning & micrositing of bldgs.
                                                    8-51       O8.1.12     Designating wetlands & ESAs, 3 pol re: coordination,
                                                                           vegetation. 
                                                                           COMMENTS:
                                                                           (1,2) No restoration of degraded natural resources.
                                                                           (7) Proposed residential density in environmentally snesitive
                                                                           areas.
                                                                           (3) Any non-functional impoundmnets to be returned to natural
                                                                           system.
   	                                  St. Lucie Village Comprehensive Plan
                                        INFRA       4-20        O4.1.5     Assist mosquito control district re: maintenance, drainage
                                                                           canals improvement, 4 policies re: LOS, development,
                                                                           discharge, water sheds.
                                         CM         5-50        O5.1.1     Regs. re: development & wetlands, marine resources &
                                                                           wildlife habitat.
                                                                           (1) Need analysis of impacts on natural resources.
                                                                           (5) Need policies re: manatee protection, native vegetation.
                                                               P5.1.1.1-8  8 policies re: density, IRL mgmt, flora, grasses, wetland alter,
                                                                           buffers, exotic vegetation.
                                         CONS        6-34      P6.1.2.2    Regs. re: site plan, wetland alterations.
                                                                           (5)While protecting wetland from alteration, policy needs
                                                                            clarification.
                                         Stuart Comprehensive Plan
                                         FLU         I-2        PA3.3       Adopt protection measures providing perform stds. for
                                                                            wetlands shoreline alteration, mangrove protection.
                                         CONS        V-3        PA4.1       Continue to implement its mangrove protection ordinance.
                                                                PA4.2       New development to preserve buffer zone of 125 ft from
                                                                            MHW line of native vegetation.
                                                     V-5        PA.5.5      Require, thru development approval process, wetlands
                                                                            presvered & maintained thru site design.
                                         CM          IX-5       PA6.2       To adopt Matin county marina siting criteria.
                                                                            COMMENTS:
                                                                            (4) Need conservation policy re: wetlands & water habitat
                                                                            managed & protected. Need analysis of water demand, 
                                                                            alterations.
                                                                            (6) Need polices re: protection & identification of wetland
                                                                             habitat.                                        

          


        21


ISSUE: Loss of wetlands, mangroves due to shoreline development, navigational improvements and mosquito impoundments
                                Tequesta Comprehensive Plan
                                CM          CM-1       01.1              Restrict development affecting mangrove area.                                  
                                CM          CM-3       P13.3             Coordinate marina siting ordinance with county & regional
                                                                         authorities.                                                    
                                CM          CM-8       03.2              Minimize impact on mangroves from mosquito control,      
                                                                         drainage.                          
                                                                         COMMENTS:                                                         
                                                                         (3) Palm Beach county wetlands ordinance.
                               
                                Ft. Pierce Comprehensive Plan
                                CONS        6-46       P6.1.2.4           LDRs to provide buffer zones around wetlands & deepwater
                                                                          habitats constructed or preserved on new development sites.
                                                                          This does not preclude construction of seawalls












                   22

































                                                                                                                            22
 

ISSUE: Protection of manatee and bird rookery habitat
Indian River Lagoon                   Jensen Beach/Jupiter Inlet                             Ft. Pierce Comprehensive Plan
SWIM Plan                             Aquatic Preserve Program                             Element       Pg         GOP         Description                     
Natural Systems                       Mgmt. Policy Directives                                CM          5-58      P5.1.1.1 3  Spoil islands retained for bird nesting & feeding, new islands to 
OBJ.D: Restoration of ecological      POL. GUIDELINE 4: Promote use of                                                         serve same.  
function of impounded marshes         HSNWR as rookery & protection to manatees              CONS        6-47      P6.1.5.1-5  Development regs.re:endangered species, TDRs, protection,   
(Habitat preservation program).       by designating areas as idle-speed zone.                                                 ESAs, CARL. Proposals for new marinas to provide for  
OBJ.E: Preservation of existing       OBJ. A.1.2: Inventory of wading birds &                                                  manatee protection program approved by appropriate
marshes.                              habitats.                                                                                agencies.
OBJ. F: Creation of marshes were      TASK A.1.3.1:Inventory of coastal birds in                                               COMMENTS:
feasible.                             lagoon                                                                                   (3) Should be consistent with county IRL spoil island Mgmt.
                                      GOAL B.1: Protection of submerged &                                                      plan, by DNR, FIND. 
                                      emergent vegetation.
                                      OBJ. B.1.1:Minimize damage to vegetation
                                      thru application review for use of state land in
                                      aquatic preserv.
                                      TASK B.1.1.1: Develop policy for inventory 
                                      of biological resources.
                                      GOAL B.2: Protection of designated species                   Jupiter Comprehensive Plan
                                      habitat.                                                   CM        VI-4      P1.17      Spoil island retained in public ownership for bird rookery,  
                                      OBJ.B.2.2:Ensure habitat protection thru                                                  applicable water-oriented recreation areas.
                                      review process.
                                      OBJ.C.2.1: Determine aquatic area to                         Tequesta Comprehensive Plan
                                      preserve as habitat for designated species.                CONS       C-12     O2.14 & 15,        These objectives & policies address measures to protect nativ    e 
                                      TASK. C.2.1.2: Establish system of monitoring                                  P2.14.1-3,P2.15.1  wildlife & habitats and the use of native plants in lanscape.
                                      sites to determine preserves use by designated                        C-13     5                   
                                      species.                                                    CM        CM-6     P2.2.7             Manatee protection ordinance to be adopted which designates 
                                                                                                                                        boat speed
                                                                                                            CM-6     P2.2.6-7           Policies re: manatee protection progra, ordinance, marina
                                                                                                                                        siting.
                                                                                                            CM-11     P3.7.2            By 1991, adopt sea turtle protection ordinance.
                                                                                                                                        COMMENTS:
																						    (3) Palm Beach county manatee protection speed zone.
																	Martin County Comprehensive Plan
																	CM	8-28	   	PA.2.a-i		Guidelines to protect wildlife/habitat, manatee  protection,
																							endangered species.
																	CONS	5-C		03			Protect endangered species, habitat-6 policies.
																		5-C		P3-c			Regs. to protect species during development.
																		5-CM		P3-h			Manatee mgmt. plan enhancement of habitat & coordination of
																							Intracoastal waterway speed zone program
																	St. Lucie County Comprehensive Plan
																	CM	7-109		P7.1.3.2		Enact regs. to protect manatee by providing local criteria, i.e.,
																							boat speed, critical habitats, marina construction.
																				P7.1.3.1-10		10 policies re: sea turtle, manatees, wetland, spoil isles,
																							seagrass, sanctuaries, endangered.




									23																				(Other) No manatees mentioned.
														                                          

0




          ISSUE: Protection of manatee and bird rookery habitat
                                                                                                               St Lucie Village Comprehensive Plan
                                                                                                                                5-52              05.1.2                 Adopt regs. it       al
                                                                                                                                                I                      I de"N.P.Mt. Mao.=
                                                                                                               Stuart          omprehensive Plan
                                                                                                               CONS             4V_5              PA6.1-3                Policies re: endangered s
                                                                                                                                                                         sanctalry.
                                                                                                               (8M               DC-1              OA1                            0 MeI4M0&
                                                                                                                                                                       1 0O0C effects on manate
                                                                                                               Jupiter        Inlet     Colony Comprehensive Plan
                                                                                                               CONS           1 42              1 P 4.4                1 Post signs in Intracoastal
                                                                                                               Jupiter        Island Comprehensive Plan
                                                                                                               C4M               26                P5.91.03.01            Estuarine fauna, including
                                                                                                                                                                         with boat speed limits in d












































                                                                                                                          24-
 

0



          ISSUE: Inconsistent resource management among regulatory agencies and need for improved coordination among DNR,
                            governments regarding water uality and land use pl                                         Ing
             Indian River Lagoon                               Jensen Beach/Jupiter Inlet
             SWIM Plan                                       -Auatic Preserve Program                                  Ft. Pierce Compr                     hensive Plan
             Natural Systems                                   6Mltmt. Policy Directives                                 Element           P2                 GOP                      Description
             GOAL III.                                         GOAL A.3: Restore estuarine habitat.                     IT0*0RA             4-73               P4.1.4.2                 Establish permit procedure
             OBJ. C: Coordination among state,                 OBJ. A.3.2: Coordinate with DER & W4MD in                                   4-76               P4.1.6.10-12             Participate m: water ualit0]
             regional & local pom regulatory units to            $to in estuarine habitat.                                                                                            with SWIM.
                                                               re Tin
             unplement regs. in consistent manner              TASK 1.3.2.2: Have agreement with                                                                                      161 How, need specific SW0J
             (Regulation & enforcement program).               SJRWMD/SFWMD m: habitat restoration.                     CM                5-65               05.1.12                  Assist enforcing other state
             OBJ. A: Organization of SJRWMD &                  GOAL AA: Improve water uality.                                                               P5.1.12.4                Reuest TCRPC to conven
             SFWMD personnel re: conducting 5                  OBL A.4. 1: Coordinate with DER. WMI)s &                                                                               other regs
             SWIM programs                                     govts m: water uality.                                  CONS                                 0M 1.2.6                  Development to meet SFW
             (Administration, planninp progran@).              GOAL A.5: Coordinate with local govts on                                                                               criteria.
             OBL B: Enhancement of cooperation,                land use lanning.                                                          6-48               P6.1.5.4                 Coordinate w/adjacent govt
             involvement, coordination among                   OBJ. A.411: Coordinate with pla@ning depts.,              IGOCO             8-26               08.1.1                   Coordinate comprehensive
             various public agencies.                          regional councils & DCA to revise                                                             P8.1.1.4-5               Coordinate comprehensive
                                                               comprehensi                                                                                                            development plans.
                                                                             ve
                                                               TASK A.5. 1. 1 6TNave field rep. for DNR &                                  8-27               P8.1.2.2                 Support agreements re: mg
                                                               govu. Assist in ordinance affecting                                                                                    resources.
                                                               submerged lands.                                                                              P8.1.2_4                 City to review developmen
                                                                                                                                                             08.1.3                   Establish LOS coordination
                                                                                                                                                                                      COMMEN73:
                                                                                                                                                                                      I]] Support agreement re:
                                                                                                                                                                                      development i7spacis of oth
                                                                                                                                                                                      coordination. Coordinate
                                                                                                                                                                                      programs.
                                                                                                                                                                                      121 Stormwuler nigmt., rec
                                                                                                                                                                                      coordinated.
                                                                                                                                                                                      121 No adeuate j?ovt. coo
                                                               GOAL B.I: Protect submerged & emergent                   FLU               1-68               PI.I.I.1                 Development review analy
                                                               vegetation.                                                                                                            impacts.
                                                               0131. B. 1. 1: Minimize damage to vegetation                               1-70               PI.I.4.4-5               Development to meet local
                                                               thru     Ii it    review.                                                                                              Development in 100 yr. fl
                                                               TAS       .1. 1.2-3: Coordinate with regional                                                                          system, auifers.
                                                               DNR re: staff comments & with other                      0M0RA               4-72               P4.1.3.1                 Update mcs. of water, was
                                                               regulatory agencies .                                                      4-75               04.1.6                         ct recharge & drainag
                                                               GOAL B.1.2: Ensure projects am in                                                                                          BY        method?
                                                               compliance.                                                                4-76               P4.1.6.5                     orce development of stA
                                                               TASK B.1.2.1-3: Coordinate re: leases.                                                                                  FWMD.
                                                               agreements, special conditions.                          (4M                5-55               05.1                     Increase economic benefits
                                                               OBL B. 1.3: gnsum pmjects am authorized.                                                                               resources.
                                                               TASK B.I.3.1-2: Report unauthorized                                        5-56               P5.1.1.5                 Revise regs. to reuire nati
                                                               activities. Coordinate with regulatory                                                                                 landscaping.
                                                               agencies.                                                                  5-63               05.1.10                  Programs to increase wate
                                                               GOAL B.2: Protect designated speciFs habitat. RECOS                        7-36               IY7.1.3.2-3              Access to be-aches, shores
                                                               TASK B.2.2.2: Ensure habitats am given                                     7-37               V7.1.4.2                 Connections created by we
                                                               maximum protection thru review process.                                                                                COMME4M:
                                                                                                                                                                                      III Need policies re: restor,
                                                                                                                                                                                      drainage, estuaries. No met
                                                                                                                                                                                      121 No su
                                                                                                                                                                                                .8f8f8icient an0djtr0is re
                                                                                                                                                                                              sier runoff or mgmt.
                                                                                                                                                                                      121 No sufficient objective a
                                                                                                                                                                                      storm%uter nig"d. system.
                                                                                                                                                                                      121 Comprehensive stor8m8m
                                                                                                                                                                                      assess performance. Storm
                                                                                                                                                                                   I Mgmt. by source control tha
                                                                                                                                                                                      Prote
                                                                                                                                                                                      6Llf
                                                                                                                                                                                      S






















                                                                                                                                  25
 

0



           ISSUE: Inconsistent resource Management among regulatory agencies and need for improved coordination among D8NR
                             governments regarding water uality and land use pl                                    ing
                                                                                                                    Jupiter           omprehensive Plan
                                                                                                                    FLU                                 pl. 1. 1                Development approved if
                                                                                                                                                        P1.3.4-7                Uses in vironmenta4f4fy
                                                                                                                    R4*4RA              IV-3              P1.1.9                  Work 4Z others re: d
                                                                                                                                      IV-4              P1.3.3                  Coordinate for water ma
                                                                                                                                      IV-6              P1.3.12                 Coordinate drainage desi
                                                                                                                    CONS              V-3                                       county, towns, other ag
                                                                                                                                                        P1.2.4                  Participation re: hydrolog
                                                                                                                                      V-5               P1.4.4-5                Support Loxahstchee mg,
                                                                                                                    (8M                VI-4              P 1.2.1                 Along Loxahatchee to
                                                                                                                                      VX-6              P I.S. I                Adopt objectives & po0l0ic0i
                                                                                                                                      vl_8              P1.5.11                 Coordination of shoreline
                                                                                                                                                                                coastal resources.
                                                                                                                                      VI-8              P1.5.13                 Coordinate with DNR for
                                                                                                                                      VI-17             P2.5.1                  Coordinate to implement
                                                                                                                    IGOCO             V111-3            P1.1.16                 Technical assistance re:
                                                                                                                                      VU1.5             P1.1.30-33              Coordination re: CONS &
                                                                                                                                      V111-6            P1.1.34- 35             Technical assistance re: C
                                                                                                                                                                                COMMENTS:
                                                                                                                                                                                [1,21 Coordinate 4knd use
                                                                                                                                                                                (1.21 Void between town
                                                                                                                                                                                deficiencies, analysis o4ffa
                                                                                                                                                                                extensions, improvingJac
                                                                                                                                                                                121 Natural resource as w,
                                                                                                                                                                             -conservation land use, en
                                                                                                                    INFRA          -IV--6T-              01.4                    Public facilities expensici
                                                                                                                                                                                drainag0" policies re:
                                                                                                                    CONS              V-9               P1.5.19                 Planning DepL to review
                                                                                                                                                                                areas.
                                                                                                                    (8M                VI-17             02.5                    Ensure resources in more
                                                                                                                    RECOS             VH-6              P3.1.1                  ESA% preserved for open
                                                                                                                                                                                enhancement.
                                                                                                                                                                                CO8MME-A8M:
                                                                                                                                                                                [11 Need policies re: re8s
                                                                                                                                                                                septic tanki. Need measur
                                                                                                                                                                                mgnd. study & o8ram. S
                                                                                                                                                                                COMPadbl, wij4fplr, allutant
                                                                                                                                                                                [21 IN4FRA element needs
                                                                                                                                                                                $-face & sroundwater 
                                                                                                                                                                                with a4f. land & sovis.
                                                                                                                                                                             1  [61 LOS standards re: de





















                                                                                                                              26
 

0



         ISSUE: Inconsistent resource management among regulatory agencies and need for improved coordination among DNR,
                           governments regarding water uality and land use pl                                   ing
                                                                                                                 Jupiter Inlet Colo                  Y Compreh             nsive Plan
                                                                                                                 FLU               11                P 1.8                  Submerged lands in Intrao
                                                                                                                                   13                05                     Coordinate with govu. re:
                                                                                                                 (4M                36                02                     Maintain environmental u
                                                                                                                                                                            seagrasses.
                                                                                                                                                                            [I] No method, i4mple-enta
                                                                                                                                                     P 2.2                  Support MgML Program Of
                                                                                                                                   40                012                    Assure estuarine uality th
                                                                                                                                                                            [I] No spec2ocs, measures.
                                                                                                                 CONS              41                P 1.1                  Coordinate with others re:
                                                                                                                                                                            Loxahatchee River.
                                                                                                                                                                            I]] There is no implemenla
                                                                                                                                                     P 1.3                  County coordination re: su
                                                                                                                                                     P 1.4                  Coordinate re: stormwater
                                                                                                                                   42                P 3.3                  Coordinate re: vegetated
                                                                                                                                                                            [I] No method.
                                                                                                                                                     06                     Development compatible v
                                                                                                                                                                            I]] No measurelmethod to
                                                                                                                                                                            degradation re: enforceme
                                                                                                                                                     P 3.5                  Preserve coastal resources
                                                                                                                                                     P 4.5                  Prohibit destruction of end
                                                                                                                                                                            coordinate in enforcement.
                                                                                                                 IGOCO             46                P6.1-3                 Establish stds., policies to
                                                                                                                                                     PLIA                   Coordinate with county, re
                                                                                                                                   47                                       amend, impacts.
                                                                                                                                                     P 2.2                  Participate with county, a8d
                                                                                                                                                                            impactsAand use.
                                                                                                                                                     P 3.2                  Review plans re: landscap
                                                                                                                                                                            [I] No method.
                                                                                                                                   1 48           1  P 4.3                 1Participate in mgmt. of estt
                                                                                                                 Jupiter           sland Co          prehensive            Plan
                                                                                                                 FLU                                 P1.06.03.01            Adopt policies & LDRs to
                                                                                                                                                                            MgML plans.
                                                                                                                 c4m                .26               P5.01.03.02            Continue coope7tc with th
                                                                                                                                                                            MSOUrcle protection plans
                                                                                                                                                                            141 By what method?
                                                                                                                                                     05.01.04               Improve estuarine env0irom
                                                                                                                                                                            [41 By what method.   2
                                                                                                                                                     P5.01.04.01            LDRs to reuire IRL water
                                                                                                                                   28                05.02.02               Establish LOS of infrastru
                                                                                                                                                                            12,41 By what method?
                                                                                                                 CONS              32                P6.01.02.01            Cooperation re: wetlands
                                                                                                                                                     P6.01.03.05            Investigate freshwater len
                                                                                                                                                     P6.01.03.10            Reuire water usage study
                                                                                                                                   33                P6.01.03.09            Modify LDRs to include S
                                                                                                                 IGCO              39                P8.01.03.02            Coordinate with Navigatioi
                                                                                                                                                                            dredging.
                                                                                                                                                     P8.01.03.04            Cooperate with BEIM on
                                                                                                                                                                            activities waterward of M
                                                                                                                                                                            [41 Too vague.
                                                                                                                                   40                P8.01.03.09            Cooperation re: protecting
                                                                                                                                                                            12,41 Too vague.
                                                                                                                                                     P8.01.04.01           ICoordinate efforts with Te









                                                                                                                            27
 

		ISSUE: Inconsistent resource management along regulatory agencies and need for improved coordination
                  among regulatory agencies and need for improved coordination among DNR,DER,WMDs and local
                  governments regarding water quality and land use planning                                                         
 ________________________________________________________________________________________________________________                                                                                                                 
                   Martin County Comprehensive Plan
_________________________________________________________________________________________________________________
                   IGOCO	3-3		O A.1-9	9 objectives & 69 policies for coordinating plans, agreements
                   CM		8-28		P A.1.k     Buffer zone & preserve area setbacks.
					8-39		O A.5		5 policies (7 pgs.) re: water uses, marinas,zoning,
									environmental restraints.
			CONSOS	8-59		O A.6		7 policies for interjurisdictional resource mgmt.
					9-15		P.A.4.c.	Coordination re:minimizing impacts to St. Lucie.
					9-16		PA.4.d-f	Improve water quality of estuary & agricultural areas.
									Complete drainage projects-this effects IRI.
					9-41		P A.8.e	Coordinate activities along shore re: coastal resource
							0 12		Objectives. & policies relate to interjurisdictional resource
									mgmt.,no SWIM.
				      9-47		0 6		Coordinate with DER for deficiencies-3 policies.
			POTWAT	11-22		P A.1.k	Development regs to limit water supply.
			DRGWAQ	13-29		P A.3.b	By 1992 watershed mgmt. master plan
					13-32		P A 3.j	Coordinate re: offsite drainage facilities
					13-33		O A.7		Ensure ground surface water resource are preserved
					13-35		PA.7.a-t	20 polices re: intergovernmental coordination (DER,
									SFWMD,TCRPC,no SWIM).
_________________________________________________________________________________________________________________
			CM		8-15		PA.1.b.5	Preservation mgmt. plan required of wetland.
					8-22		PA.1.d-g	Planting & waste disposal in wetlands & wetland buffer.
			CONSOS	9-41		PA.8.g.	Evaluate growth mgmt. & adoption of mgmt. estuarine
                                                      techniques.                                        			                  28
 			DRGWAQ      13-33       O A.4		Maintain surface water levels to reduce environmental
									impacts-4 policies
        				13-34		PA.5.b	County engineer assist in ecology of water resources.
					13-35		PA.5.f	Monitor water & stormwater wetland.
_________________________________________________________________________________________________________________

ISSUE:  Inconsistent resource management among regulatory agencies and need for improved coordination among DNR,DER
	  governments regarding water quality and land use planning                                                                 ________________________________________________________________________________________________________
		
			Ocean Breeze Park Comprehensive Plan

			FLU		17		P1.7		Development permits coordinated with county & TCRPC.
					18		P1.8		Cooperate with WMD re: soil percolation capacity.
							P1.10c	Development agreement re: DNR & endangered species
									protection.
					19		P1.10f	Coordinate development approval w/resource & mgmt.plans,
									review IRL mgmt. plan.
					20		0 4		Comply w/SWIM plan.
							0 6		Review IRL mgmt plan every 2 yrs re: development &
									consistency w/mgmt. plan.
			INFRA		103		0 1 		Complete buildout by 1995 & adopt LOS for sanitary sewer,
									drainage.
					104		0 4		Drainage LOS determined by study, use IRL mgmt.guidelines.
					107		011		Development to connect with county sewage.
									(1) No policies,date,method.
					111		P1.3		Coordinate drainage facility expansion, no policy.
									(1) Not specific.
			CM		104		P2.8		Cooperate w/county re: town's comprehensive plan & regs. to
									protect IRL.
					144		P2.9		Coordinate with SWIM & IRLAP plan.
					145		P4.1		Development to require infrastructure at time of impact.
									(1) No date, method.
					146		P5.5		Regs. & mgmt. for restoration of estuarine wetlands &
									drainage system include mitigation during development or
									redev.
					147		0 7		Limit expenses in coastal hazard areas, except restoration of
									natural resources, no policies.
			IGOCO		190		P1.1		Meet w/SFWMD,DNR,DER to interface on plans for
									consistency.
					191		0 2		Ensure development impacts coordinate w/county,state thru
									agreements & comprehensive plan.
					192		P2.1-2	Coordinate intergovernmental mgmt. of IRL thru mgmt. plan &
									agencies.
			CONS		161		G 1		Conserve and maintain IRL ecological value, 5 objectives.
			
			Palm Beach County Comprehensive Plan
			
			RECOPS      13-RO		P3-e		Participate with agencies in conservation projects.
			CONS		8-C		P6-a,d,e	Coordinate with SFWMD,SCS re: water resource,quality,6 
									objectives, 48 policies. 
									(1) No methods,dates.
			IGOCO		7-1G		0 4		County to coordinate planning efforts re: land use.
							P4-a-z	25 policies re: coordination, no specific re: environmental preservation.
					14-1G		P5,c,d,g	Coordination re: sewer & water plans, strategies for protecting 
									resources & for review process.
			LU		13-LU		P4-d-f	3 policies re: development review, resource planning.
							P4-b		Impact of development resources during environmental 
									review process.
			CM		3-CM		P3-6		Environ review process to consider consistency of proposed 
									development w/AP mgmt. plan.				
		

				
			

ISSUE:   Inconsistent resource management among regulatory agencies and need for improved coordination among DNR,
	   DER,WMDs and local governments regarding water quality and land use planning

		 Sewall's Point Comprehensive Plan
				
		FLU		18		O 5.0		Review resource planning, mgmt & coordinate LU decisions
								with plan -1 policy.
								(2) No date, method.
		CM		117		P 1.3		Identify programs to mitigate estuarine degradation.
						P 1.5		Within 2 yrs, discuss policies with RPC re: IRLAP & SWIM.
								(1) No action, method.
				118		P 1.6		Annual review re: estuary system & impacts of development.
		FLU		20		O 9.0		Development to require facilities, are available 
								concurrently-2 policies.
		DRNG		81		O 4.0		Protect groundwater aquifer recharge & drainage by
								regulating land.
								(1) No method.
		CONS		152		P 2.2		Development dedicate open space & in 1990 land code, 2
								policies.
		RECOSP	165		O 3.0		Cooperate w/SFWMD re: evaluation of groundwater sources.
		IGOCO		173		O 1.0		Coordinate with govts, county, RPC re: growth managment.
				174		O 2.0		Coordinate development with adjacent govt.,use RPC for
								mediation.
				175		P3.2-4	Communications re: agreements, LOS with other govts. 
								COMMENTS:
								(1) No specific policy re: pollution, water runoff, marine 
								resource protection. No policies re: vegetation,designating
								ESAs, coordinate bay mgmt,estuaries, harbors.
								(1,2) No specifics re: SWIM, stormwater mgmt.coordination.
								(3) Amend land code for development effect on fish, wildlife,
								habitate-5 policies re: habitat,marina development & buffers.
		
	
























                                                                                                                         30
 





 ISSUE: Inconsistent resource management among regulatory agencies and need for improved coordination among DNR, DER, WMDs and local
        governments regarding water quality and land use planning
                                                                  St. Lucie County Comprehensive Plan
                                                                  FLU               1-55             G1.1               Ensure quality. natural resources.
                                                                                                                        [1,2} Not specific or measurable.
                                                                                                                        [1] No ESAs, inconsistent land use.
                                                                                    1-85             Pl. 1.9.10-13      Regs. re: impacts and resources & post run off, extractions.
                                                                                    1-89             01.1.13            Coordination re: development & mitigation.
                                                                                                                        [I] No data, analysis.
                                                                                                     P1.1.13.1          Coordinate DO, permits.
                                                                  SANSEW            6A-28            P6A.1.4.4          Coordination re: wastwater system ordinance.
                                                                                    6A-30            06A.2.2            Specific sites re: sewer system & sanitary sewer service.
                                                                  DGDWTAQ           6C-41            06C.I.4            Coordination re:    drainage study & stormwater regs., 3 policies
                                                                                                                        re: coordination, identification, LOS.
                                                                                    6C-43            06C.3.2            Rego. re: LU/groundwater recharge.
                                                                  IGOCO             10-11            010.1.4 &          Establish intergovernmental process re: development, policies
                                                                                                     P10.1.4.1-3        re: agreements with IRL, TCRPC.
                                                                  PORT              4-36             04.1.3             Aviation & port sited with little impacts on environment.
                                                                                                                        (1) No data, analysis.
                                                                                    4-36             P4.1.3.1-4          Aviation & port not to destroy wetlands/habitat, mitigation &
                                                                                                                         runoff as with SFWMD & DER.
                                                                      CM                7-106            p7.1.1.         Coordinate w/agencies re: IRL AP Mgmt. & surface water
                                                                                                                  improvement plans.
                                                                                        7-112            P7.1.4.10a               Continue cooperation w/SWIM programs.
                                                                                        7-123            07.3.1                   Improved public access re: IRL.
                                                                                        7-124          P.3.1.7                 Identify marinas & criteria
                                                                                                                      [2,3) Lack specifics.
                                                                  CONS              8-44             08.1.6                   Comprehensive Mgmt. plan re:soils, 5 policies.
                                                                                    8-50             P8.1.10.1-5       5 policies re: education, planning, coordination.
                                                                                                                       COMMENTS:
                                                                                                                       (2) No policy re: coordinating AP mgmt. plan & govt.
                                                                                                                            coordinate with SWIM & AP mgmt. plan.
                                                                                                                        (4) No policies re: land use & resource preservation &
                                                                                                                           protection.
                                                                                                                         (5) No policy re: coordination w/IR county SWIM.
                                                                                                                          (7) Weak conservation policies,
                                                                                                                          (1,7) Need measure. Note model water shortage ordinance.


                                                                                                            31
 





            ISSUE: Inconsistent resource management among regulatory agencies and need for improved coordination among DNR, DER, WMDs and local
                              governments regarding water quality and land use planning
                                                                                                                            St. Lucie Village Comprehensive Plan
                                                                                                                            FLU               1-45               01.1.5                    Growth, development in suitable areas with sound planning, 7
																															 policy.
                                                                                                                                              1-47                P1.1.7.3                 Coordinate development with GOP of IRLAP mgmt. plan.
                                                                                                                                                                                           (2,3) What is method?
                                                                                                                            CM                5-62               05.1.10                   Single family low density & non-conforming uses thru regs., 4
                                                                                                                                                                                           policies.
                                                                                                                            CONS              6-37               P6.1.5-3                  TCRPC to convene IRL planning task force re: development,
                                                                                                                                                                                           water use.
                                                                                                                                              6-38               06.1.7                    Trust for land acquisition,
                                                                                                                            RCOSP             7-7                P7.1.2-2                  Cooperate with other re: IRL Aquatic Preserve protection.
                                                                                                                                                                                           [1,2,3) No method, measure, indices.
                                                                                                                            IGOCO             8-11               G 8.1                     Coordination among entities re: efficient use of resources.
                                                                                                                                                                                           [1] What is method?
                                                                                                                                                                 08.1.1                    Establish formal coordination with adjacent cities & others.
                                                                                                                                                                 P8.1.1.1                  Notify county fe: rezoning/LU amendments.
                                                                                                                                                                 P8.1.1.2                  Formal request of liaisons between state agencies & village.                                                                                                                                                                 
                                                                                                                                                                 P8.1.1.3                  Mayor responsible for development/enforcement of
                                                                                                                                                                                           intergovernmental coordination program.
                                                                                                                                              8-12               08.1.2                    Work w/county re: performance stds., 3 policies re: timing,
                                                                                                                                                                                           location & improvement.
                                                                                                                                              8-11               P8-1.1.4                  Request RPC to play active role between village & county.
                                                                                                                                              8-12               P8.1.1.5                  Cooperative education programs & regs. with TCRPC
                                                                                                                                                                                           assistance.
                                                                                                                                              8-13               P8.1.3.1-4                Request county re: rezoning amend, liaison (school, SFWMD,
                                                                                                                                                                                           TCRP) agreements.
                                                                                                                                                                 08.1.4                    BY 1990 establish intergovernmental coordination process re:
                                                                                                                                                                                           development impacts.
                                                                                                                                                                 P8-1.4.1-3                Adopt agreements re: IRL mgmt, work with TCRPC,
                                                                                                                                                                                           coordinate with adjacent govts.
                                                                                                                                                                                           (2,3) What is method?
                                                                                                                                                                                           COMMENTS:
                                                                                                                                                                                           (1) Need policy re: implement programs for regulating land
                                                                                                                                                                                           use & development to protect drainage features.
                                                                                                                            FLU               1-39               G 1.1                     Quality environment thru land uses that maximize natural
                                                                                                                                                                                           resources.
                                                                                                                                              1-39               P1.1.1.1                  Regs. re: land & water, buffers, species, conservation, LOS,
                                                                                                                                                                                           [2,) Does not specify how, method.
                                                                                                                                              1-43               Pl.l.2.6                   Extracting natural resources permitted where compatible
                                                                                                                                                                                           (2) What is the method of determination.
                                                                                                                            INFRA             4-17               04.1.2                    Central sanitary sewage systems introduced to village, 4
                                                                                                                                                                                           policies re: feasibility of system, permits.
                                                                                                                                                                                           (3) Should connect to central sewer system.
                                                                                                                            CM                5-50               G 5.1                     Environmental resources maintained thru regs.
                                                                                                                                                                                           (1) How, method.
                                                                                                                                              5-60               05.1.8                     No loss of public access to IRL, 6 policies.
                                                                                                                            CONS              6-34               G 6.1                     Natural resources protected.
                                                                                                                                                                                           [1] What is the method, measure.
                                                                                                                            ROOSP             7-7                07.1.2                    Maintain IRL access, rec. facilities.
                                                                                                                                              7-8                P7.1.2.4                   LOS of IRL access maintained,
                                                                                                                            CIE               9-13               09.13                     Future development to share costs for facility improvements to                                                                                                                                                                                         
                                                                                                                                                                                           maintain LOS.











                                                                                                                                       32
 




         ISSUE: Inconsistent resource management among regulatory agencies and need for improved coordination among DNR, DER, WMDS and local
                          govemments regarding water quality and land use planning
                                                                                                                 Stuart Comprehesive Plan
                                                                                                                 INFRA            IV-5             PA-4.3                   Coordinate drainage design, construction & maintenance.
                                                                                                                                  Iqv-8             0 AlO                    Protect & enhance recharge areas & drainage features.
                                                                                                                                                                             
                                                                                                                 CONS             V-I              PAq1.3                    Coordinate w/agencies re: IRL AP, SWIM plans
                                                                                                                 IGOCO            VII-1            OA1                      Coordinate w/agencies re: FLU.
                                                                                                                                                   PA1.14                 Govt cooperation thru agreements, policy, landscape regs.
                                                                                                                                  VII-2            P A1.9                    Coordination with public works dept. re: stormwater mgmt.
                                                                                                                                                                                          
                                                                                                                                  VII-4             0 A3                    Implement CONS/CM w.advice from DNR, DER, WMD,
                                           																					    TCRPC.
                                                                                                                                                   PA3.1-11                 11 policies re: CONS, CM, IRLAP, groundwater,conservation,
                                                                                                                                                                            erosion, development plans.                
                                                                                                                                  VII-6            PA5.1-6                  6 policies re: coordination & drainage master plan, technical
                                                                                                                                                                            assistance.
                                                                                                                 CIE              VIII-6           0 A2                     Development to be coordinated with regs, & public facility
                                                                                                                                                                            availability.
                                                                                                                 CM               IX-3             PA4.3.3                  Cooperation in minimizing pollutants in estuary.
                                                                                                                                  IX-5             PA6.2                    Adopt county marina siting criteria.
                                                                                                                                  IX-10            OB4                      Resources with 1+ jurisdiction to coordinate, 4 policies re:                                                                                                                                                                            
                                                                                                                                                                            estuarine/resources. no IRL.
                                                                                                                                                                            COMMENTS:
                                                                                                                                                                            (1) No participation with aquatic programs in
                                                                                                                                                                            intergovernmental coordination, other.
                                                                                                                 FLU              1-1              0 A3                     Regs. re: natural resource protection, 4 policies.
                                                                                                                                                   P A3.3                   Protect ESAs, recharge, wetlands, habitat.
                                                                                                                                                                            (1,3) No method, measure.
                                                                                                                 INFRA            IV-1             OAl                      Program for facility deficiencies & corrections.
                                                                                                                                                                            (1,3) No measure.
                                                                                                                 CONS             V-1              G A                      Protect resources.
                                                                                                                                                                            (1) No method.
                                                                                                                                  V-4              PA5.2                    Protection/mgmt. of wetland & deepwater habitats consistent
                                                                                                                                                                            w/ARL plan & other resource plans.
                                                                                                                                  V-6              PA8.1                    Native vegetation in site review, buffer.
                                                                                                                 CM               IX-1             PA2.1-2                  Rec. activities compatible with land.
                                                                                                                                                                            (2) No method
                                                                                                                                  IX-2             O A4                       Support SFWMD, DER re: estuarine quality, 6 policies.
                                                                                                                                  IX-5             0 A6                     Water activities, 2 policies re: marein development/siting.
                                                                                                                                                                            (1,2) No method.
                                                                                                                 Tequesta Comprehensive Plan
                                                                                                                 SANSEW           SS-2             01.3                      Coordinate with development to meet wastewater treatment
                                                                                                                                                                            needs.
                                                                                                                                  C-5              P2.1.2                   Cooperate with DERM & DER re: plans, development,
                                                                                                                                                                            consistency for IRLAP.
                                                                                                                 CONS             C-6              P2.2.1                    Prohibit development within AP except for water-related uses.
                                                                                                                                                   P2.5.1                   Limit impervious area in flood zones.
                                                                                                                 IGOCO            IGC.1            01.1                     Include townsq/2 counties/school
                                                                                                                                                                            board part of plan review.
                                                                                                                                  IGC-2            P1.2-3                   Review state plan for intergovernmental coordination.
                                                                                                                                  IGC-3            P1.33                    Coordinate to protect IRLAP by estuarine policies.
                                                                                                                 HOUSNG           H-3              P1.3.2                   Utilize mgmt. to alleviate residential water pllution, with
                                                                                                                                                                            special ettention to Loxahatchee River, Intracoastal
                                                                                                                                                                                                                                                                                                                                                         
                                                                                                                                                                             
                                                                                                                                                                            Waterway.
                                                                                                                 DRNG             DR-3             PL.2.2                     Enforce open space regs. for development for impervious
                                                                                                                                                                            areas.
                                                                                                                 AQFRCH           NG-1             01.1                     By 93, have protection of natural groundwater recharge areas.
                                                                                                                                  NG-1             P1.13                    Coordinate, implement aquifer recharge area protection
                                                                                                                                                                             programs to meet standard.





                                                                                                                           33
 


   I
   I                                Appendix 7
   i                          Acronyms & Abbreviations
   I
   I
   II
   I
   I
   I
   I
   I
   I
   I
   I
   I
   I
   I
   I
   I







                 Acronyms and Abbreviations                                               Natural Groundwater, Aquifer
                                                                                          Recharge
                 AP            Aquatic Preserve                             IRL           Indian River Lagoon
                 AWT           Advanced Wastewater Treatment                LDRs          Land Development Regulations
                 C&P           Conservation and Preservation                LMR           little Manatee River
                               Areas                                        LOS           Level of Service
                 CA            Coastal Area                                 MA            Mining Activities [or]
                 CBAP          Cockroach Bay Aquatic Preserve                             Memorandum of Agreement
                 CHHA          Coastal High Hazard Area                     ME            Monitoring and Evaluation
                 CM            Coastal Management                                         element [Manatee County]
                 Co            county                                       MHW           Mean High Water
                 CONS & AR     Conservation and Aquifer                     MOU           Memorandum of Understanding
                               Recharge element [Hillsborough               NEP           National Estuarine Program
                               County]                                      NPA           Natural Preservation Area
                 CONS          Conservation                                 OFW           Outstanding Florida Water
                 CPIM          Capital Improvements element                 ID            Planned Development
                               laty of Palmetto]                            PF            Public Facilities element [Manatee
                 DACS          [Florida] Department of                                    County]
                               Agriculture and Consumer                     PORT          Port element [Hillsborough
                               Services                                                   County]
                 DCA           [Florkla) Department of                      R&T           Rivers and Tributaries
                               Community Affairs                            R/M           Restoration/Mitigation
                 DER           [Florida] Department of                      REC&OS        Recreation and Open Space
                               Environmental Regulation                     SHA           Shellfish Harvesting Area
                 DNR           [Florida] Department of Natural              SM            Stormwater Management [may be
                               Resources                                                  used individually]
                 DO            Development Order                            SNSW          Sanitary Sewerage element
                 DOS           [Florida] Department of State                              Hillsborough County & City of
                 DOT           [Florida] Department of                                    Palmetto]
                               Transportation                               SR&T          Stormwater Retention and
                 DR            Development Review                                         Treatment
                 DRNG          Drainage element [City of                    ST            Sewage Treatment
                               Palmetto]                                    St            State [Florida]
                 DWT           Domestic Wastewater Treatment                Stds,         Standards
                 DWTP          Domestic Wastewater Treatment                STMA          Stormwater Management element
                               Plants                                                     "llsborough County)
                 EIAMRs        Economically Important                       SW            Solid Waste element [City of
                               Agricultural or Mineral Resources                          Palmetto]
                 EPC           Environmental Protection                     SWFWMD        Southwest Florida Water
                               Commission                                                 Management District
                 EPGF          Electric Power Generating                    SWT           Stormwater Treatment
                               Facilities (LU Plan Category]                TBRPC         Tampa Bay Regional Planning
                 ESAs          Environmentally Sensitive Areas                            Council
                 EWH           Essential Wildlife Habitat                   TCAP          Terra Ceia, Aquatic Preserve
                 FLU           Future Land Use                              TRCI          Traffic Circulation
                 FWFGC         [Florida] Freshwater Fish and                WH            Wildlife Habitat
                               Game Commission                              WMD           Water Management District
                 GOPs          Goals, Objectives, & Policies                WPR           Wetland Preservation and
                 Hazwaste      Hazardous waste                                            Restoration
                 HRS           [Florida] Department of Health               WQ            Water Quality
                               and Rehabilitative Services                  WQ&Q          Water Quality and Quantity
                 HS&W          Health, Safety, and Welfare                  WWT           Wastewater Treatment
                 IA            Interlocal Agreement
                 IC            Intergovernmental Coordination
                 IGC           Intergovernmental Coordination
                 INFRA         Sanitary Sewer, Solid Waste,
                               Drainage, Potable Water and



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