Loxahatchee River--Lake Worth Creek aquatic preserve management plan

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

LOXAHATCHEE RIVER--LAKE WORTH CREEK
AQUATIC PRESERVE MANAGEMENT PLAN

ADOPTED JUNE 12, 1984

COASTAL ZONE,
INFORMATION CENTER

QH
90.75
T6
L64
1984

Department of Natural Resources

LOXAHATCHEE RIVER--LAKE WORTH CREEK
AQUATIC PRESERVE MANAGEMENT PLA-N

Dr. Elton J. Gissendanner
Executive Director
Department of Natural Resources

Division of Recreation and Parks

Bureau pf Environmental Land Management

US Department of Commerce
NOAA Coastal Services Center Library
2234 South Hobson Avenue
Charlestoj4 SC 29405-2413

Preparation of this management plan was primaxily supported
by a grant from the U.S. Office of Ocean and Coastal
Resource Management, National Oceanic and Atmospheric
Administration, and, the Florida Department of Environmental
Regulation, the Office of Coastal Management, through the
Coastal Zone Management Act of 1972 as amended.

EXECUTIVE SUMMARY

The Loxahatchee River-Lake Worth Creek area is a small dynamic estuary
important in this region for its value to fishing, boating and prime
residential development. The preserve is in a rapidly growing urban area with
the majority of the estuary's shoreline developed in single family residences.
The upper portion of the preserve in the Northwest Fork overlaps the
Loxahatchee River Wild and Scenic area and this portion of the preserve is
designated as wilderness. The remainder of the preserve is designated as
urban. The preserve is protected to the north by Jonathan Dickinson State
Park.

The estuary is an important home and nursery for an extensive array of fish
and wildlife. The major problems in the continued health of this area are
the massive amounts of freshwater released by drainage canals into the
estuary, saltwater intrusion moving up the Northwest Fork and water quality
problems associated with agricultural drainage and urban runoff.

The major objectives of the aquatic pregerve management program are to manage
the preserve to ensure the maintenance of an essentially natural condition,
and to restore and enhance those conditions which are not in a natural
condition. Management will also be directed to ensure public recreational
opportunities while assuring the continued propagation of fish and wildlife.
This task will be guided by the identification and mapping of natural
resources and habitats necessary to meet these objectives. An additional
management objective is the review and comment on applications for the use of
state-owned submerged lands. This will require, in a fully implemented
management program, the onsite investigation of these proposed uses by field
personnel assigned to the aquatic preserve. The field personnel are critical
to the realistic management of this aquatic preserve.

STATE OF FLORIDA

BOARD OF TRUSTEES OF THE INTERNAL IMPROVEMENT TRUST FUND

R E S 0 L U T 1 0 N

WHEREAS, the Board of Trustees of the Internal Improvement Trust Fund is

charged with the acquisition, administration, management, control, super-

vision conservation, protection, and disposition of all lands title to which

is vested in the Trustees under Chapter 253, Florida Statutes; and

WHEREAS, Chapter 258, Florida Statutes, directs that state-owned

submerged lands within aquatic pres erves be set aside forever in their

essentially natural or existing condition for the benefit of future

generations; and

WHEREAS, the Trustees are charged with the adoption and enforcement of

reasonable rules and regulations to carry out the provisions of Sections

258.35 through 258.46, Florida Statutes, regarding.the regulation of human

activity within the aquatic preserves so as not to unreasonably interfere with

lawful and traditional public uses of the preserves;

WHEREAS; Sectfon 16Q-20.13, Florida Administrative Code, mandates the

development of management plans for aquatic preserves; and

WHEREAS, the Trustees desire to serve the public by effectively planning,

managing and protecting aquatic preserve; and

WHEREAS, the Trustees recognize the importance and benefits of protecting

the natural resources and preserving the natural ecosystem of the aquatic

preserves in the Loxahatchee River-Lake Worth Creek area, and

... ........

NOW THEREFORE BE IT RESOLVED that the Board of Trustees of the Internal

Improvement Trust Fund hereby adopts the Loxahatchee River-Lake Worth Creek

Aquatic Preserve Management Plan; and

BE IT FURTHER RESOLVED that the Trustees designate the Loxahatchee

River-Lake Worth Creek Aquatic Preserve as a "wilderness preserve", north of

river mile 5.5 on the Northwest Fork, wherein the primary management objective

will be the maintenance of these ecosystems in an essentially natural state;

and

BE IT FURTHER RESOLVED that the Trustees designate the remainder of the

Loxahatchee River-Lake Worth Creek Aquatic Preserve as an "urban preserve",

wherein the primary management objective will be the maintenance of

essentially natural state, where present, and restoration to that condition

where possible; and

BE IT FURTHER RESOLVED that the Loxahatchee River-Lake Worth Creek

Aquatic Preserve Management Plan shall serve as a fundamental policy guideline

for the Trustees and other state and local agencies having jurisdiction

relative to maintaining the Loxahatchee River-Lake Worth Creek Aquatic Preserve

system, and shall provide the overall policy direction for the development and

implementation of all administrative rules'and programs related to the

management of state-owned submerged lands within the Loxahatchee River-Lake

Worth Creek Aquatic Preserve; and

BE IT FURTHER RESOLVED THAT the Department of Natural Resources, Division

of Recreation and Parks, is hereby designated as agent for the Trustees for

Purposes of aquatic preserve planning and management.

IN TESTIMONY WHEREOF THE Board of Trustees of the Internal Improvement
iv

Trust Fund have hereunto subscribed their names and have caused the Official

Seal of the Board of Trustees of the Internal Improvement Trust Fund to be

hereunto affixed in the City of Tallahassee, The Capitol, on this the 12th

day of June A.D., 1984.

Governor

Secretary of State

Commisioner of Education ney General
Yo r

A
Commis@/one'r of Agriculture Comptroller
-7wJA'0'7 J. VAen-et--C7@n
ion

X'@J@

As and Constituting the State of Aa& 2LZ

Florida Board of Trustees of the Treasurer

Internal Improvement Trust Fund
v

TABLE OF CONTENTS

Chapter Page

I. INTRODUCTION .................................................. I

II. MANAGEMENT AUTHORITY .......................................... 7

III. MAJOR PROGRAM POLICY DIRECTIVES ............................... 19

IV. RESOURCE DESCRIPTION .......................................... 23

A. Geologic Features and Landforms ........................... 24

B. Community Associations .................................... 25

C. Archaeological and Historical Sites ....................... 34

D. Water Resources ........................................... 41

E. Cultural .................................................. 42

V. RESOURCE MANAGEMENT ........................................... 45

A. Introduction .............................................. 45

B. Onsite Management Objectives .............................. 45

C. Resource Mapping and Resource Protection Areas ............ 68

D. Administrative Management Objectives ...................... 71

VI. MANAGEMENT IMPLEMENTATION NETWORK ............................. 79

A. Federal ................................................... 79

B. State ..................................................... 82

C. Regional .................................................. 87

D. Local Governments and Special Districts ................... 89

E. Other Entities ............................................ 92

Table of Contents (Continued)

CHAPTER Page

VII. PUBLIC USES ................................................... 95

A. Consumptive Uses ........................................... 95

B. Non-Consumptive Uses ....................................... 96

VIII. PRIVATE NON-COMMERCIAL USES ................................... 97

IX. COMMERCIAL USES ............................................... 101

A. Traditional Commercial Uses ............................... 101

B. Non-Traditional Commercial Uses ........................... 104

X. SCIENTIFIC RESEARCH ........................................... 105

XI. ENVIRONMENTAL EDUCATION.: ..................................... 107

XII. IDENTIFIED PROGRAM NEEDS ...................... o............. o. 109

A. Acquisition of Additional Property ...o .................... 110

B. Boundary Problems and Systems Insufficiences. ............. 110

C. Legislative Needs ............... o ........ o......o ....... O.o
D. Administrati,ve Rule Changes ...... oo ...........o...........
E. Data (Information) Needs ......... o........................ 112

F. Resource Protection and Enforcement Capabilities. ......... 112

G. Funding and Staffing Needs ........ o................... o... o 113

BIBLIOGRAPHY ................................. oo .................. o ... 115

CONTENTS OF APPENDICES ........ o ...o .......... o...o........ o .......... 119

vii

Chapter I

INTRODUCTION

This management plan addresses the Loxahatchee River-Lake Worth Creek Aquatic
Preserve (Figure 1) in southeast Florida, approximately 16 miles south of

Stuart and 16 miles north of West Palm Beach. The surface water area of the

preserve is approximately 9,000 acres while the Loxahatchee River drainage

basin encompasses 210 square miles, reduced from the probable 270 square mile

historic basin (McPherson, et. al. 1980). The major portion of the preserve

is within Palm Beach County, with the smaller portion in Martin County. There'-

are two incorpora ted cities bordering the preserve's boundary, Jupiter and the

Village of Tequesta.

The Loxahatchee River estuary drains northeast Palm Beach County and southeast

Martin County (Figure 1). The Loxahatchee River (Northwest and Southwest

Forks (C-18)).drained the Loxahatchee Slough from the southwest to these

forks. The natural drainage patterns in this area have been redirected and

greatly effected by extensive artificial drainage. The North Fork drains the

eastern portion of Jonathan Dickinson State Park and the Village of Tequesta

on the coastal ridge. The estuary also includes Intercoastal Waterway, to the

north on Hobe Sound and to the south on Lake Worth Creek. The estuary and

lower river basin shoreline has extensive urban residential development and

bulkheading. Mangrove trees are limited to a shoreline fringe with the

exception of a few islands and undeveloped areas on the Northwest Fork.

Extensive marine grassbeds are found mainly in the central basin of the

estuary, at the confluence of the three forks.

The climate in this region is subtropical, with an average annual rainfall of

approximately 60 inches. The majority of this rainfall occurs from May to
October (Land, et al., 1973). This area along with south Florida in general,

has experienced drought periods, with the period of 1981-1982 being one of the

worst on record.

The Loxahatchee River Estuary is supplied with freshwater by the North Fork

and Northwest Fork, and C-18 via the Southwest Fork. The upper floodplain of

the Northwest Fork approximates the historic condition of the basin before

manis intervention. The Loxahatchee River basin has been redefined through

man-madefeatures such as canals, levees, roads and other agricultural and

.water management practices.

The Loxahatchee River-Lake Worth Creek Aquatic Preserve is designated and

managed in two sections. The larger section including, Lake Worth Creek, the

North Fork, Southwest Fprk and Northwest Fork up to river mile 5.5 is

designated as an urban preserve. The remaining areas on the upper Northwest

Fork is designated a wilderness preserve. The management emphasis in the

urban section will be aimed at restoring and enhancing the natural condition

of the resources, as much as possible. The wilderness section will be managed

to emphasize maintaining and enhancing the existing wilderness condition. As

more site specific information becomes available essentially natural condi-

tions shall be identified and resources in disturbed areas restored to that

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COUNTY BOUNDARY LINE

CORPORATE LIMITS
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A4UA PR
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MAP OF CIS
LOXAHATCHEE RIVER-LAKE WORTH GREEK 2000 1000 0 2000 4000
14
AQUATIC PRESERVE SCALE IN FEET
AQUATIC PRESERVE A-11
MARTIN AND PALM BEACH COUNTIES, FLORIDA
CREATED BY

STATE OF FLORIDA BOARD OF
TRUSTEES OF THE INTERNAL IMPROVEMENT TRUST FUND PREPARED BY Fj HANSEN
OCTOBER 21, 1969 OIVISION OF LAND MANAG GEMENT
RESOLUTION ADOPTED OCTOBER 2i, 1969 JUNE,1970
23 24

condition where possible. This plan advocates a multiple use approach to

management due to the extensive and diverse uses within the Preserve. These

uses include boating, fishing, and swimming.

Due to the current limitation of onsite staff resources, the management

program in this aquatic preserve will be restricted in the scope of

operations. However, the program will fill the minimum need for active

management in the preserve and should provide the framework for future program

growth. The administrative support for this management program will be

provided by the Division of Recreation and Parks' Bureau of Environmental Land

Management (BELM) in Tallahassee, known as the "central office". Field

personnel support will be through the Florida Park Service Division of Marine

Resources and the BELM staff, when available. On-site experience and

additional resource information will likely require modifications, (i.e.,

additions and deletions) of the program and plan, which are both designed to

accommodate such changes or at least identify areas needing improvement.

Initially, the resource inventory will be heavily dependent on LANDSAT

satellite imagery, DOT yegetation and land use mapping, and existing

scientific and other literature. As the program proceeds and on-site managers

are present, a better knowledge of the resources within the preserve and how

man interacts and affects them will develop.

This plan is divided into chapters according to their management application.

Chapter II cites the authorities uponwhich this management program and plan

are built. Chapter III (Major Program Policy Directives) highlights the major

policy areas that are within this plan. Chapter IV presents a brief resource

description and reference the appendices which contain more detailed

information on the resources.

Chapter V presents the management objectives of both the on-site managers, who

actually work in the preserve, and the administrative staff in Tallahassee.

Chapter VI addresses how this plan will interface with local, regional, state,

and federal agencies and programs; as well, as its relevance to non-government

organizations, interest groups, and individuals.

Chapters VII through IX address the various uses, from public to private to

commercial. Chapters X and XI address the use of the aquatic preserve for

scientific research and environmental education, respectively.

Chapter XII is an internal management improvement section identifying problems

and needs in the progressive improvement of this aquatic preserve management

plan.

This plan was written by the Department of Natural Resources, Division of

Recreation and Parks, Bureau of Environmental Land Management staff. Funding

for the plan was by a coastal management grant (CM-78) through the U.S.

De partment of Commerce' National Oceanic and Atmospheric Administration,

Office of Ocean and Coastal Resource Management, and the Florida Department of

Environmental Regulation, Office of Coastal Management.

Chapter II

MANAGEMENT AUTHORITY

Chapter 258, F.S., clearly establishes the proprietary management overview

role of the Governor and Cabinet, sitting as the Board of Trustees of the

Internal Improvement Trust Fund and are variously referred to as the

"Trustees" or the "Board". Furthermore, all management responsibilities

assigned to the Trustees by this plan may be fulfilled directly by the

Governor and Cabinet or indirectly via staff or agents of the Trustees,

pursuant to delegations of authority, management agreements, or other legal

mechanisms. All subsequent references to the Board or Trustees should,

therefore, be presumed to potentially include staff and designated agents, in

addition to the Governor and Cabinet.

In many respects, the authorities available supporting aquatic preserve

planning and management are the cumulative result of the publics' awareness of

the importance of Florida's environment . The establishment of the present

system of aquatic preserves is a direct outgrowth of public concern with

dredge and fill activities rampant in the late 1960's.

The Loxahatchee River-Lake Worth Creek Aquatic Preserve was approved by the

Trustees on November 2, 1970, by resolution. The boundary line of Figure 1

represents the gross boundary of the aquatic preserve. The actual preserve

includes those sovereignty submerged lands located waterward of the mean

high waterline within this boundary area.

In 1967, the Florida Legislature passed the Randall Act (Chapter 67-393, Laws

of Florida), which set up procedures regulating previously unrestricted dredge

and fill activities on state-owned submerged lands. That same year the

legislature also provided statutory authority (Section 253.03, F.S.) for the

Board of Trustees of the Internal Improvement Trust Fund (the Governor and

Cabinet) to exercise proprietary control over state-owned lands. In 1967,

this governmental focus on protecting Florida's productive estuaries from the

impacts of development led to.the Governor and Cabinet imposing a moratorium

on the sale of submerged lands to private interests. In that same year, this
action was followed by the creation of an inter*agency Advisory Committee on

submerged lands management. In late 1968, that Committee issued a report

recommending the establishment of a series of aquatic preserves. Twenty-six

separate waterbodies were addressed in the original recommendation.

Also in 1968, the Florida Constitution was revised, declaring in Article II,

Section 7, the State's policy of conserving and protecting the natural

resources and scenic beauty of the state. That constitutional provision also

established the authority for the Legislature to enact measures for the

abatement of air and water pollution.

It was not until October 21, 1969 that the Governor and Cabinet acted upon the

recommendations of the Interagency Advisory Committee and adopted, by

resolution, 18 of the water bodies as aquatic preserves. Other preserves were

similarly adopted at various times through 1971.

Prior to the October 1969 action by the Governor and Cabinet, the Legislature

had created the Boca Ciega Aquatic Preserve. Subsequent Legislative action in

1972, 1973 and 1974, created the Pinellas County, Lake Jackson and Biscayne

Bay Aquatic Preserves, respectively.

In 1975, the Legislature established a Florida Aquatic Preserve Act (Codified

in Chapter 258 of the Florida Statutes), thereby bringing all existing

preserves under a standardized set of maintenance criteria. Additional acts

were passed subsequent to the 1975 action, such as the addition of the

Cockroach Bay Aquatic Preserve in 1976 and the Gasparilla Sound-Charlotte

Harbor Aquatic Preserve to the system in 1978.

The primary authorities available to staff in implementing management

directives affecting aquatic preserves are found in Chapters 258 and 253,

Florida Statutes. These authorities stipulate a lead responsibility for the

Governor and Cabinet, sitting as the Board of Trustees of the Internal

Improvement Trust Fund. Acting as "agents" for the Trustees, the staff of the

Bureau of Environmental Land Management (BELM) is able to review all requests

for uses of/or directly affecting state-owned sovereignty submerged lands

within aquatic Preserves. The review and subsequent staff comments are

primarily geared toward the environmental consequences of any proposed use of

state-owned submerged land. The review is conducted within the confines of

the criteria contained in the "maintenance" provisions for aquatic preserves

in Chapter 258, Florida Statutes.

Formal review comments are provided to the Department of Natural resources,

Division of State Lands by the Bureau of Environmental Land Management for

inclusion in the comments and recommendations accompanying agenda items for

Trustees consideration. This mechanism allows the Governor and Cabinet,

sitting as owners of the land, to evaluate public interest and project merits

within the context of environmental impact upon the preserve.

Chapters 16Q-21 and 16Q-20, Florida Administrative Code, are two adminis-

trative rules directly applicable to the Department of Natural Resources/

Trustee's actions regarding allowable uses of submerged lands, in general, and

aquatic preserves specifically. Chapter 16Q-21, F.A.C. controls activities

conducted on sovereignty submerged lands, and is predicated upon the

provisions of Sections 258.03 and 253.12, F.S. The stated intent of this

administrative rule is:

"(1) To aid in fulfilling the trust and fiduciary responsibilities of

the Board of Trustees of the Internal Improvement Trust Fund for

the administration, management and disposition of sovereignty

lands;

(2) To insure maximum benefit and use of sovereignty lands for all

the citizens of Florida;

(3) To manage, protect, and enhance sovereignty lands so that the

public may continue to enjoy traditional uses including, but not

limited to, navigation, fishing, and swimming;

(4) To manage and provide maximum protection for all sovereignty

lands, especially those important to public drinking water

supply, shellfish harvesting, public recreation, and fish and

wildlife propagation and management;

(5) To insure that all public and private activities on sovereignty

lands which generate revenues or exclude traditional public uses

provide just compensation for such privileges; and,

(6) To @id in the implementation of the State Lands

Management Plan."

Chapter 16Q-20, F.A..C. addresses the aquatic preserves and derives its

authority from Sections 258.35, 258.36, 258.37, and 258.38, F.S. The intent

of this rule is contained in Section 16Q-20.01, F.A.C.., which states:

(1) All sovereignty lands within a preserve shall be

managed primarily for the maintenance of essentially

natural conditions, the propagation of fish and

wildlife, and public recreation, including hunting

and fishing where deemed appropriate by the

board and the managing agency.

(2) The aquatic preserves which are described in Section

258.39, 258.391, 258.392, F.S., and in 16Q-20.02,

F.A.C., were established for the purpose of being

preserved in an essentially natural or existing

condition so that their aes thetic, biological and

scientific values may endure for the enjoyment of

future generations.

(3) The preserves shall be administered and managed in

accordance with the following goals:

(a) preserve, protect, and enhance these exceptional

areas of sovereignty submerged lands by

reasonable regulation of human activity within

the preserves through the development and

implementation of a comprehensive management

program;

(b) To protect and enhance the waters of the

preserves so that the public may continue to
enjoy @he traditional recreational uses of
these waters such as swimming, boating, and

fishing;

management programs, which are compatible with

the intent of the Legislature in creating the

the preserves;

(d) To use applicable federal, state, and local

management programs, which are compatible with

the intent and provisions of the act and these

rules, to assist in managing the preserves;

(e) To encourage the protection, enhancement or

restoration of the biological, aesthetic,

or scientific values of the preserves, including

but not limited to the modification of existing

manmade conditions toward their natural condition,

and discourage activities which would degrade the

aesthetic, biological, or scientific values, or

the quality, or utility of a preserve, when

reviewing applications, or when developing and

implementing management plans for the preserve;

(f) To preserve, promote, and utilize indigenous life

forms and habitats, including but not limited to:

sponges, soft coral, hard corals, submerged grasses,

mangroves, salt water marshes, fresh water marshes,

mud flats, estuarine, aquatic and marine manimals,

birds, shellfish and mollusks:

(g) To acquire additional title interests in lands

wherever such acquisitions would serve to protect

or enhance the biological, aesthetic, or scientific

values of the preserves.

(h) To maintain those beneficial hydrologic and biologic

functions, the benefits of which accrue to the public at

large."

The Charlotte Harbor Aquatic Preserve Management Plan, approved by the

Trustees on May 18, 1983 was the first management plan for an aquatic

preserve.The Estero Bay Aquatic Preserve Management Plan was approved on

September 6, 1983.

The State Lands Management Plan, adopted on March 17, 1981, by the Governor

and Cabinet, sitting as the Board of Trustees of the Internal Improvement

Trust Fund, contains specific policies, the Plan also establishes policies

concerning spoil islands, submerged land leases, "Outstanding Native Florida

Landscapes", unique natural features, submerged grassbeds, archaeological and

historical resources, and endangered species. All of these issues provide

management guidance to the aquatic preserve program.
I

Other Department of Natural Resources management authorities applicable to

aquatic preserves include fisheries and marine mammal management and protec-

tion, and beach and shore preservation programs outlined in Chapters 370 and

161, F.S. Land acquisition programs conducted under the Environmentally

Endangered Lands authorities of Chapter 259, F.S. or the Conservation and

Recreation Lands Program authorized by 253, F.S. will enhance the protection

of the natural resources within the aquatic preserves.

Chapter 403, Florida Statutes, is an important adjunct to Chapter's 253 and

258, F.S. This governs, in part, the State's regulatory programs affecting

water quality. The Department of Environmental Regulation, through a

permitting and certification process, administers this program. Section

253.77, F.S. requires that all state regulatory agencies, such as the

Department of Environmental Regulation, have evidence of approval of the

requested use from the Trustees, prior to issuing permits for projects

utilizing state-owned land. This statutory directive provides an avenue for

staff comments on potential environmental impacts of projects in aquatic

preserves through the Department of Environmental Regulation permitting

process. Additionally, the Department of Environmental Regulation has

designated, by administrative rule, a series of waterbodies with stringent use

criteria called "Outstanding Florida Waters" (OFW). The inclusion of all

aquatic preserve waters within this classification greatly enhances the

protective provisions of Chapter 258, F.S. As the designated "306" Coastal

Zone Management Agency, the Department of Environmental Regulation also

provides a source of fund ing for data collection and planning in areas such as

the Loxahatchee River basin, as well as being the state agency responsible for

implementing the "federal consistency" provisions of the federal Coastal Zone

Management Act.

The Department of Environmental Regulation's administrative rules of primary

significance to the aquatic preserve management program include Chapters 17-3

and 17-4, Florida Administrative Code. Both rules are based upon the

authorities contained in Chapter 403, F.S. Chapter 17-3, F.A.C. addresses

water quality standards and establishe*s the catagory of "Outstanding Florida

Waters", while Chapter 17-4 F.A.C. addresses permit requirements.

In December, 1982 a Memorandum of Understanding (MOU) between the Department

of Environmental Regulation, the Department of Natural Resources, and the U.S.

Army Corps of Engineers was executed. This MOU clearly establishes a process

whereby the proprietary concerns of the Trustees, stated in Chapter 253, F.S.

can be integrated into the Department of Environmental Regulation/Corps of

Engineers joint permit processing system.

Other opportunities for environmental review and input into activities

potentially affecting aquatic preserves are afforded by the Department of

Community Affairs, and the Department of State, Division of Archives, History,

and Records Management. The Executive Office of the Governor also provides a

mechanism for public input into federal projects via the State clearinghouse

process.

The Department of Community Affairs is statutorily responsible for adminis-

tering the "Development of Regional Impact" (DRI). The DRI program,

authorized by Section 380.06, F.S. was established by the Legislature to

provide a review and monitoring procedure for those development projects

potentially affecting more than one county.

Chapter 267, F.S. establishes the state policy regarding preservation and

management of Florida's archaeological and historical resources. This

responsibility is legislatively assigned to the Department of State,

Division of Archives', History and Records Management, which holds title

to those cultural resources located on state-owned lands. This also applies

to sovereignty submerged lands, including aquatic preserves.

The Department of Health and Rehabilitative Services, under their public

mandate, administer two programs directly affecting the aquatic preserve
management program. These programs are (1) septic tank regulation, usually

administered by county health departments and (2) arthropod (mosquito) control

programs, usually implemented through local mosquito control districts. Each

of these programs holds the potential for creating significant impacts upon

the aquatic preserves. Establishment of close working relationships between

the aquatic preserve staff and the Department of Health and Rehabilitative

Services will be a necessary element of the aquatic preserves management

program.

Each of the above referenced programs may provide an effective means of

protecting aquatic preserves and their ecologically sensitive resources.

Appendix A contains a compendium of the appropriate statutes and

administrative rules.

Chapter III

MAJOR PROGRAM POLICY DIRECTIVES

This plan contains a number of management policy issues that are discussed

either generally or definitively. This section highlights those major policy

areas that comprise the basic thrust of this management effort. Adoption of

these policies will provide specific staff direction for implementing the

day-to-day aquatic preserve management program. Major program policy

directives are:

(A) Prohibit the disturbance of archaeological and historical sites within

the aquatic preserve, unless prior authorization has been obtained from the

Board of Trustees and Division of Archives, History, and Records Management,

and such disturbance is part of an approved research design or authorized

project.

(B) Manage all submerged lands within the aquatic preserve to ensure the

maintenance of essentially natural conditions in the wilderness section and

restoration of those conditions in the urban section and to ensure the

propagation of fish and wildlife, and public recreation opportunities.

aquatic preserve, with an emphasis on those habitat types utilized by

threatened and/or endangered species.

(D) Protect and, where possible, enhance threatened and endangered species

habitat within the aquatic preserve. .

(E) Prohibit development activities within the aquatic preserve that

adversely impact upon grass beds and other valuable submerged habitat, unless

a prior determination has been made by the Board of overriding public

importance with no reasonable alternatives, and adequate mitigation measures

are included.

(F) Prohibit the trimming and/or removal of mangroves and other natural

shoreline vegetation (freshwater swamp) within the aquatic preserve, except

when necessitated by the pursuit of legally authorized projects and the Palm

Beach Mangrove Protection Ordinance.

(G) Provide research and educational opportunities for scientists and other

interested researchers within the framework of a planned research program in

the aquatic preserve.

(H) Acquire, where feasible, privately owned submerged lands located within
the boundaries of the aquatic preserve pursuant to the authorities contained

in Section 253.02(4) F.S.

(I) Prohibit the drilling of oil and gas wells, the mining of minerals, and

dredging for the primary purpose of obtaining upland fill within the aquatic

preserve.

W 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.

This prohibition shall include floating residential units, as defined in

Section 125.0106(2), F.S.

W Prohibit storage of toxic, radioactive, or other hazardous materials

within the aquatic preserve.

(L) Prohibit mosquito control practices within the aquatic preserve that

require habitat modification or manipulation (i.e. diking, ditching) unless

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 E.P.A. for wetland and aquatic application.

(N) Prohibit the construction of new deep water ports within the aquatic

preserve boundaries.

(0) 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 of the preserve.

(P) Manage state-owned spoil islands within the aquatic preserve as bird

rookeries and wildlife habitat areas.

(Q) Encourage public utilization of the aquatic preserve, consistent with the

continued maintenance of its natural values and functions.

(R) Develop a well coordinated aquatic preserve management mechanism

that recognizes and utilizes local government programs and authorities.

(S) Require through the efforts of DER and the water management districts the

maintenance of the naturally high water quality of the estuary and ensure the

natural seasonal flow fluctuations of freshwater into the estuary.

(T) Formally recognize and designate the Loxahatchee-Lake Worth Creek Aquatic

Preserve as an urban/wilderness preserve as delineated in Figure 1, in
accordance with the provisions of Section 16Q-20.13(d), F.A.C.

(U) Apply the management criteria contained in the adopted Loxahatchee

River-Lake Worth Creek Aquatic Preserve Management Plan to all-subsequent

legislative additions of land to the aquatic preserve.

(V) Encourage the assistance of federal, state, and local government agencies

in implementing the aquatic preserve management plans, especially in the areas

of protection of natural and cultural resources and the enforcement of

applicable resource laws and ordinances.

Chapter IV

RESOURCE DESCRIPTION

The Loxahatchee River-Lake Worth Creek area is a small dynamic estuary

important in this region for its value to fishing, boating and prime

residential development. It is located in a rapidly growing urban area. The

estuary is also affected by agricultural drainage from canal C-18. The

majority of the estuary's shore line has been developed in single family

residences. The upper portion of the area in the Northwest Fork is the only

portion of the system that has not been developed. This portion is bordered

by the Jonathan Dickinson State Park and is the last remaining area of the

preserve to still qualify as wilderness. The Northwest Fork above this area

is presently under review for possible designation as a National Wild and

Scenic River.

The estuary is an important home and nursery for an extensive array of fish

and wildlife. The major problems in the continued health of this area are the

massive amounts of freshwater released by the extensive man-made drainage

system in the Loxahatchee River basin and the water quality problems associ-

ated with agriculture drainage and the urban development surrounding the

estuary.

Detailed information on the resources, such as species lists, water quality

information, archaeological and historical site information, life histories,

geological background, supporting maps, and cultural resource information are

located in Appendices C and D. The resource information presented in this

chapter is intended to be a general description of the major management

functions and of the area surrounding the riverine and estuarine complex.

A. Geological Features and Landforms.

The Loxahatchee River estuary began to form about 15,000 to 6,000 years ago

when a rise in sea level drowned the previous river valley. As the sea level

rose the Loxahatchee estuary transformed from a freshwater marsh to (present)

a tidally influenced and flooded estuary. The estuary has continually changed

in shape from that time due to sedimentation and erosion processes.

Jupiter inlet has also opened and closed in response to natural causes.

During periods when the inlet closed the estuary reverted to a freshwater

marsh condition. With the arrival of more and more settlers in the early

1900's the stagnate marsh condition became unacceptable. Since the 1920's the

Jupiter Inlet District has maintained an open inlet.

The Loxahatchee River cuts through the Atlantic Coastal Ridge that separates

the Eastern Flatwoods to the west from the Atlantic Ocean to the east. The

Eastern Flatwoods in their natural condition generally consisted of pine and

palmetto flatwoods. The C-18 canal system also drains portions of the glades

region to the southwest and the Loxahatchee Slough west of West Palm Beach.

This extended drainage basin now flows into the Loxahatchee River. The
Atlantic Coastal Ridge parallels the Atlantic Ocean's coast and forms a low

ridge of relatively permeable sandy soil (Lichtler, 1960).

The Loxahatchee River system has been a winding convoluted river and dynamic

estuary. The drainage improvements and stabilization from the draining,

channelizing, bulkheading, dredging, and filling have generally harnessed this

system.

B. Community Associations.

The plant communities of the Loxahatchee River basin are a major factor in the

continued health and productivity of the natural systems of the preserve.

This section will also reference some of the major animal species associated

with these plant communities. Five major community associations are

recognized in the preserve: mangrove, freshwater swamp, marine grassbeds,

oyster bars, and tidal flats. Each community is presented separately although-
in reality these communities are sometimes mixed or overiap.' Final

subsections address the animal life and endangered species within the aquatic

preserves.

1. Mangroves. The four species of mangrove trees in the Loxahatchee

River-Lake Worth Creek area represent the dominant vegetational association.

The mangroves range from twelve to fifty feet in height and generally inhabit

the low energy shorelines of the estuary system.

The four species of mangroves occurring here are the red mangrove (Rhizophora

mangle) both in and near the water at low tide level; black mangrove

(Avicennia germinans) generally inland of, but are sometimes mixed with reds;

white mangrove (Laguncularia racemosa) generally upland of but also mixed

with blacks; and buttonwood (Conocarpus erectus) upland of and mixed with

whites. These mangrove association species generally indicate areas of
frequent (red mangrove) to infrequent (white mangrove) saline inundation.

There are many variations of the mangrove community within the area. The

major variation is the fringe mangrove which occurs along the shorelines of

the embayments, river, and creeks and other waterways. All four species can

appear in this variation, both in zones and mixed as described above. There

are also areas of overwash mangrove areas, where the mangroves are standing in

water with little or no associated uplands. This variation is generally

dominated by red mangroves (Odum et al., 1982). Mangroves have been migrating

upstream on the Northwest Fork as the salt wedge has moved up that stream.

The mangrove species have various root structures, (i.e., prop roots and

pneumatophores-the aerating root spikes of the blacks) and extensive

underground root mats which capture and stabilize sediments in the estuarine

waters and function as an erosion control buffer in other areas. These root

networks recycle nutrients and minerals from the anerobic soil substrate by

returning them to the estuary as detritus from the mangrove leaves. This is
the primary basis of the estuary's food chain and productivity (Heald and

Odum, 1970). The mangrove canopy and root tangle also provide valuable
habitat for many marine and estuarine organisms (Savage, 1972). The entire

community also functions to buffer the uplands from storm tides and winds, and

as a storage area for those waters.

The mangrove community types and various locations indicate that they can

adapt to many situations, but they are susceptible to both natural and man-

induced disturbances. The natural disturbances can come from freezing

temperatures, hurricanes, new pass formations or a rise in sea level.

Hurricane damage, although not experienced in the recent past, is a potential

threat to these communities.

Man's more subtle influence on the mangrove communities is not as fully

understood as the natural forces that cause the direct removal or killing of

the trees. The effects of changing the upland drainage pattern, both by

bulkhead placement and drainage canals, need much more study. The placement

of extensive bulkheading along waterways has preempted mangrove growth in many

areas.

Protection of the extensive mangrove communities in the preserve will be a

major task of this plan's management activities. The majority of the mangrove-

communities in the preserves are already in public ownership by their location

on sovereign lands (i.e., state park). The policies and practices of this

management are addressed in Chapter V, Section B.

Other vegetation associated with the mangrove communities include: salt grass

(Distichlis spicata); black needlerush (Juncus roemerianus); spike rush

(Eleocharis cellulosa); cordgrasses (Spartina spp); glass wort (Salicornia

spp.); sea purslane (Sesuvium portulacastrum); salt wort (Batis maritima); and

sea ox-eye (Borrichia frutescens).

The tree canopies and root tangles provide habitat for various animals. These

community types are utilized by a wide variety of invertebrates, fishes,

amphibians, reptiles, mammals and birds.

2. Freshwater Swamp Forest. These areas are restricted to the upper

portions of the Northwest and North Forks of the Loxahatchee River. This

community is dominated by cypress, water oak, maple, ash and pond apple. The

movement of the salt wedge up the Northwest Fork has caused this community to

be stressed and in some cases replaced by mangroves. These areas also had

cypress cut during the 1940's (Alexander, et. al., 1975). This community is

an important transitional area between the freshwater and estuary environ-

ments. These are also important to the wilderness designation of the upper

Northwest Fork. This community offers valuable species habitat and diversity

to the preserve. Table 1 lists the vegetation commonly found in this

community.

3. Marine Grassbeds. Marine grasses are submerged flowering plants which

stabilize sediments, entrap silt, recycle nutrients, provide shelter, habitat

and substrate for animals and other plant forms, provide important nursery

grounds, and are important direct food sources (Odum, 1974; Wood et al.,
1969). The grassbeds are very productive, possibly the most productive

habitat within the estuary. These beds serve as a food source for the

endangered manatee (Trichechus manatus), important nursery areas for juvenile

forms of shellfish, and as substrate for many algal species fed by

invertebrates which are in turn eaten by the fishes. Many commercially

important fishes spend at least part of their life in these grassbeds (Zieman,

1982).

The most common and dominant marine grass found in the Loxahatchee River-Lake

Worth Creek area is Cuban shoal grass (Halodule wrightii). The extensive

TABLE I

PLANT LIST FOR THE FRESHWATER SWAMP

Psilotum nudum whisk fern
Ophioglossum palmatum hand fern
Osmunda regalis royal fern
Vittaria lineata shoestring fern
Polypodium polypodioides resurrection fern
Phlebodium aureum golden polybody
Nephrolepsis exaltata Boston fern
Acrostichum danaeaefolium leather fern
Blechnum serrulatum swamp fern
Woodwardia virginica chain fern
Thelyteris palustris wood fern
Thelypteris interrupta wood fern
Panicum Joorii
Cladium jamaicensis sawgrass
Serenoa repens saw palmetto
Sabal palmetto sabal palm
Peltandra virginica arrow arum
Colocasia esculentum taro
Tillandsia usneoides Spanish moss
Tillandsia recurvata ball moss
Tillandsia fasciculata air pine
Tillandsia setacea needle leaf air pine
Tillandsia utriculata giant air pine
Smilax bona-nox greenbrier
Smilax laurifolia bamboo vine
Crinum americanum string lily
Encyclia tampensis butterfly orchid
Saururus cernuus lizard's tail
Salix caroliniana willow
Myrica cerifera wax myrtle
Carya aquatica water hickory
Quercus laurifolia laurel oak
Quercus nigra water oak
Ficus aurea strangler fig
Morus rubra mulberry
Magnolia virginiana swamp bay
Annona glabra pond apple
Dioscorea bulbifera yam vine
Eyrthrina herbacea coral bean
Bursera simaruba gumbo limgo
Schinus terebinthifoliusa Brazilian pepper
Toxicodendron radicans poison ivy
Ilex cassine dahoon holly
Acer rubrum maple
Vitis rotundifolia grape
Vitis shuttleworthii calusa grape

Table 1 (Continued)
FRESHWATER PLANT LIST (Continued)

Urena lobata caesar weed
7iFF I @ uajava guava
Ludwigia peruviana primrose willow
Cornus foemina stiff cornel dogwood
Myrsine guianensis myrsine
Fraxinus caroliniana water ash
Callicarpa americana beauty berry
Bacopa monnieri water hyssop
Cephalanthus occidentalis button bush
Psychotria undata wild coffee
Psychotri-a-@q-lzneri wild coffee

Source: Alexander et al., 1975

3-0

grassbeds of the central embayment are in shoal grass. It also grows along

the shorelines into the forks. Other marine grasses found in this area
include turtle grass (Thallassia testudinum), manatee grass (Syringodium

filiforme) and the Halophila sp (McPherson et. al., 1982). In areas of low

salinity, widgeon grass (Ruppia maritima) may be found. For a detailed map-

ping of marine grassbeds refer to Vegetation and Land Use Maps in Appendix D.

The more dense areas of grassbeds in the estuarine complex are usually in

shallow water with a fairly constant salinity. These shallow areas are prime

fish habitat and vulnerable to damage by boating activities. The marine

grassbeds are sensitive to turbidity and, as a result are vulnerable to

dredging activities.

Marine grassbeds are a primary vegetation community and will be used as a key

indicator in measuring the natural condition of the aquatic preserve.

Protection of marine grassbeds will be a major consideration in the field and

administrative review of use proposals (See Appendix D, DOT Mapping Codes

901-904).

Approximately 66 specie5 of algae which grow on marine grasses have been

reported along the west coast of Florida (Ballantine and Humm, 1975). The

invertebrate fauna associated with these grassbeds can be rich and diverse,

depending on the specific area. There is a need for more ddta on the animal

life associated with marine grassbeds.

4. Tidal Flats. These areas in the estuarine complex describe a wide
I
variety of habitat in the complex that may have sporadic vegetation from the

previous three communities or no vegetation (vasculas) at all. There is

extensive algal growth in these areas. The tidal flats are used primarily by

shore and wading birds as feeding and loafing areas (Barnett et al., 1980).

These areas are also valuable for invertebrates, including crabs, oysters, and

WOMS.

These areas, consisting of estuarine beaches, areas waterward of the

mangroves, spoil areas, shoal areas, and mud flats, are important to the

estuary in as much as they contribute to the algal production. The mollusk,

crustacean, and worm communities feed on both the algae and materials from the

other plant communities of the estuary. The bird life is dependent on these

areas for feeding and some of these flat areas surround colonial nesting sites

in the estuarine complex. The role of these various tidal flat areas is not

fully understood but it is known that they are important habitats.

5. Oyster Bars. The shallow nature of central embayment allows the oyster

community to be an important link in the estuary's food web as well as a

substrate. The oysters' place in the food web is by their conversion of

plankton, detritus and possibly dissolved organics into animal protein, which

is then available to higher levels through predation (Tabb et al., 1974). The

substrate formed by the oyster colonies is in areas where there are no other

hard substrates. These oyster bars create habitat space that is unique to the

estuary. The oysters and the associated animals are utilized by other animals

which feed on or around the oyster bars. There have been reports of as many

as 31 species of invertebrate organisms found on oyster bars in areas of the

Gulf Coast (Lehman 1974). Sports fish found around the perimeter of oyster

bars include gray snapper, snook, sea trout, redfish and sheepshead (Tabb et

al., 1974).

6. Deep Water Areas. These areas within the Loxahatchee River area include:

channels, rivers, creeks, and other deep water areas. These areas are

important to the estuary's tidal exchange. They are critical to tidal

flushing and are necessary for a healthy estuary. The deeper waters also

allow predator fish and birds access to the bay. The bottle-nosed dolphin and

manatee are important mammals potentially found in these areas.

7. Animal Life. The animal life in and associated with the Loxahatchee

River area is historically.as diverse as the vegetation of the area. However,

with the encroachment of human activities suitable habitat for many of those

species no longer exists. The upper Northwest Fork wilderness area is the

only major portion of the preserve that can approach the historic natural

condition. The remainder of the preserve area, with the human modifications,

offers only the aquatic environment for wildlife use.

The fisheries of the Loxahatchee River estuary are a major reason for its

designation as an aquatic preserve. The estuary serves both as a valuable

recreational fishing and as a nursery area for fish commercially caught in the

Atlantic Ocean. Other species not directly important to commercial fishing

but necessary to its ultimate food chain also depend on this estuary. The

estuary area within the more natural forks also provide a refuge for species

visiting this area during migrations, daily feeding and times of environmental

3,3

stress (i.e., drought, storms, development activities). These visiting

species include the manatee and many bird species.

Table 2 represents those animal species that are found within the preserve's

boundary during usual circumstances. Fresh and saltwater fish species and

other animal species lists and information can be found in Appendix C.

8. Endangered Species. The combination of the subtropical climate, diverse

vegetation and habitats, and waterbodies in the Loxahatchee River-Lake Worth

Creek area has resulted in the survival of many endangered animals and

vegetation species. The Loxahatchee River has also been established as a

manatee sanctuary. The vegetation species found in Table 3 are from the

official State of Florida Plant List (Section 581.185, F.S.). The animal

species in Table 4 are from the official lists as designated by the Florida

Game and Fresh Water Fish Commission.

C. Archaeological and Historical Sites

The Loxahatchee River area has a long history of Indian activity. There were

two Indian middens located near the present Jupiter Inlet and another site

located within Jonathan Dickinson State Park. There is also an Indian mound

located on the upper reach of the Northwest Fork (U.S.Department of the

Interior, 1982).

The Loxahatchee River area was the site of a major battle during the second

Seminole War. General Thomas Jesup lead 1,200 men into battle against the

Seminoles along the Loxahatchee River near the present Indiantown Road. After

TABLE 2

ANIMAL SPECIES FOUND WITHIN THE LOXAHATCHEE RIVER-LAKE WORTH CREEK

AQUATIC PRESERVE

REPTILES

Alligator mississippiensis American alligator
Chelydra serpentina Snapping turtle
Kinosternon bauri Striped mud turtle
Chrysemys nelsoni Florida red-bellied turtle
Nerodia fasciata Florida water snake
Thamnoj@h_is -sauritus Peninsula ribbon snake
Storeria dekayi Florida brown snake
Opheodrys aestivus Rough green snake
Drymarchon corais. Eastern indigo snake
_ET-ap-h-e Rat snakes
Lompropeltis spp. King snakes
Micrurus fulvius Eastern coral snake
Agkistrodon piscivorus Florida cottonmouth

BIRDS

Anhinga anhinga Anhinga
Ardea Herodias Great blue heron
Casmerodius albus Great egret
Bulbuleus ibis Cattle egret
gretta tricolor Louisiana heron
Egretta coerulea Little blue heron
Butorides striatus Green heron
Eudocimus albus White ibis
Cathartes aura Turkey vulture
Coragyps atratus Black vulture
Butco jamaicensis Red-tailed hawk
Butco lineatus Red-shouldered hawk
Circus cyaneus Marsh hawk
Pandion etus Osprey
Falco sparverius American kestrel
'5_1linola chloropus Common gallinule
Fulica americana American coot
Coccyzus americanus Yellow-billed cuckoo
Strix varia Barred owl
Megaceryle alcyon Belted kingfisher
Dryocopus pileatus Pileated woodpecker
Iridoprocne bicolor Tr6e swallow
Cynocitta cristata Blue jay
Coryus brachyrhchynos Common crow

Table 2 (Continued)

BIRDS (continued)

Thryothorus ludovicianus Carolina wren
Mimus polyglottus Mockingbird
Dumetella carolinensis Catbird
Polioptila caerulea Blue-gray gnatcatcher
Virco griseus White-eyed vireo
Mniotilta varia Black-and-white warbler
Dendroica coronata Yellow-rumped warbler
Dendroica Palm warbler
Geothlypis trichas Common yellowthroat
Parulidae (many spp.) Warblers
Sturnella magna Eastern meadowlark
Agelaius pFo-eniceus Red-winged blackbird
Quiscalus major Boat-tailed grackle
Cardinalis cardinalis Cardinal

MAMMALS

Didelphis marsupialis Opossum
VespertiTi_6ni -dae Bats
Dasypus novemcinctus Armadillo
Sylvilagus palustris Marsh rabbit
Sylvilagus floridanus Cottontail rabbit
Sciurus carolinensis Gray squirrel
Procyon lotor Raccoon
Lutra canadensis River otter
Lynx rufus Bobcat
Sus scrofa Feral pig

TABLE 3-

THREATENED AND ENDANGERED PLANT SPECIES FOUND

IN THE LOXAHATCHEE RIVER-LAKE WORTH CREEK

AQUATIC PRESERVE

ENDANGERED

Ophioglossum palmitum Hand fern

THREATENED

Psilotum nudum Wisk fern
Vittaria lineata Shoestring fern
Phlebodium aureum Golden polypody
Nephrolepis exaltata Boston fern
Acrostichum danaeaefolium Leather fern
Thelypteris palu tris Shield fern
Thelypteris interrupta Shield fern
Salvinia rotundifolia Water fern
Tillandsia fasciculata Air pine
Tillandsia utriculata Giant air pine
T117-andsia setacea Needle leaved air pine
Enyclia tampensis Butterfly orchid
Annona glabra Pond apple

Preservation of Native Flora of Florida Act
(Section 581.185, Florida Statutes)

TABLE 4

THREATENED AND ENDANGERED ANIMAL SPECIES

IN THE LOXAHATCHEE RIVER-LAKE WORTH CREEK

AQUATIC PRESERVE

ENDANGERED

Falco peregrinus Peregrine falcon
Mycteria americana Wood stork
Trichechus manatus latirostris Carribbean manatee

THREATENED

Caracara cherwaX auduboni Audubon's caracara
rymarchon corals couperi Eastern indigo snake
Falco sparverius paulus Southeastern kestrel
Haliaectus leucocephalus Bald eagle

SPECIES OF SPECIAL CONCERN

Alligator mississippiensis American alligator
Aramus guarauna pictus Limpkin
Florida caerulea Little blue heron
Hydranassa tricolor Louisiana heron
Leucophoyx thula Snowy egret

Florida Game and Fresh Water Fish Commission
Section 39-27.02-.05, Florida Administrative Code

this rather unsuccessful engagement a bridge was built on the Northwest Fork

and a fort built near Pennock Point and named Fort Jupiter. Nothing remains

of these structures. The Seminoles were removed from the area and shipped to

a reservation in Oklahoma.

The Jupiter Inlet lighthouse was completed in 1860. Large scale settlements

did not appear until the early 1900's (U.S. Department of the Interior, 1982).

D. Water Resources.

Water is the one resource whose characteristics most directly affect this

estuary's habitability and healthi-ness for the plants and animals naturally

adapted to living there.. The drainage basin of the majority of the

Loxahatchee River basin has been modified by agricultural drainage and

residential development. The upland drainage basin of the Loxahatchee River

has all three stages of historical development within its boundary. The upper

Northwest Fork is the closest approximation to the historical natural

condition. The agricultural ,areas to the west and southwest were the first

stage of man's alterations. And the residential development surrounding the

main portion of the preserve the last stage of man's development. Each stage

has had its effect on the natural system. The C-18 system has replaced the

Southwest Fork with a major canal. The Northwest Fork has also been

profoundly affected by the C-18 system. The diversion of freshwater to that

canal system is a major cause of the movement of the saltwedge up the

Northwest Fork. The maintenance of the inlet and other dredge and fill

activities have also had their effect on the estuarine system.

.'--4 1

The basic characteristics of the Loxahatchee River's water resources vary in

response to daily, seasonal, and long term forces which are involved in the

areas climate. Added to this are the artificial conditions of large releases

of freshwater from the drainage canals and the water quality problems

associated with agricultural and urban development. Some of the water quality

problems identified to date include saltwater intrusion, high fecal coliform

levels, and high levels of pesticides, nutrients and some trace metals (Area

Planning Board of Palm Beach County, 1979 and McPherson, 1983).

The combination of the extensive water quality monitoring and studies of the

U. S. Geological Survey and the Department of Environmental Regulation, and

water management studies by the South Florida Water Management District have

the potential for the development of a comprehensive water management plan for'-

the L-oxahatchee River System. The Treasure Coast Regional Planning Council

has also developed wetlands protection policies that will be helpful in

protecting the remaining floodplain of the Loxahatchee River System. More and

more data is being gathered on this system filling data gaps, developing

knowledge of how the system works, and how best to protect this system.

E. Cultural.

This section addresses the human influence and development of this area, as it

affects the aquatic preserve. The 1980 U.S. Census population for Martin

County was 64,014 and Palm Beach County was 576,812. The 1982 populations for

those counties respectively were 71,635 and 637,940. This represents a 11.9
and 10.6 percent increase for these respective counties (Terhune, 1983). The

change in population for Jupiter is 34.5 percent from 9,868 in 1980 to 13,274

in 1982 and for Tequesta 3.9 percent change from 3,658 to 3,828 for the same

period, Terhune (1983). This graphically indicates that the population

increases with associated increased residential development in the immediate

area are quite significant. The pressures on the Loxahatchee River system

from this growth increases the potential for environmental degradation.

The section of the preserve surrounding Tequesta has practically stabilized,

with the majority of the shoreline in this area developed. The shoreline in

the preserve within Jupiter has also been developed for the most part, though

some of the areas along Lake Worth Creek have not been fully developed. The

only section of the preserve that has not been affected by residential

development is the upper reach of the preserve on the Northwest Fork. The

Loxahatchee River-Lake Worth Creek Aquatic Preserve has undergone a great deal

of development pressure. There are only a few areas remaining for new

development. The river is presently indicating a tendency to increased water

quality degradation. The future projected growth in the river's basin and

along the remaining undeveloped shoreline will further stress the river's

viability in the future,.

Chapter V

RESOURCE MANAGEMENT

A. Introduction

The main objective of the resource management plan in the aquatic preserve is

to protect the resources of the aquatic preserves for the benefit of future

generations (Section 258.35, FiS.). The Loxahatchee River-Lake Worth Creek

Aquatic Preserve is designated as a wilderness and urban preserve and the

management will be directed toward the maintenance and enhancement of the

natural conditions. This part of the management plan addresses the policies

and procedures which both onsite and administrative personnel will pursue.

The onsite management will involve Department of Natural Resources' field

personnel assigned to the aquatic preserve. The administrative management

will involve Division of Recreation and Parks personnel (both in@the field and

in Tallahassee) and Division of State Lands personnel, cooperating in the

review of applications for use of state owned lands and related activities

surrounding the preserve. The primary field personnel will be from the

Florida Park Service. Secondary field support will come from the Division of

Marine Resources and the Bureau of Environmental Land Management personnel

when available. These personnel will be interacting with various government

and non-government entities, interest groups, and individuals.

B. Onsite Management Objectives

The onsite management objectives are reflected by the activities that the

field personnel become involved in (i.e., observation, research, public

interaction, emergency responses, etc.) to protect and enhance the resources

within the aquatic preserve. Other activities, such as the interaction with

other government and non-government entities, are covered in more detail in

Chapter VI (Management Implementation Network). The field personnel's duties,

are with respect to management of the various uses of the aquatic preserve,

addressed in more detail in Chapters VII through XI. The field personnel will

generally be involved in all management activities concerning the Loxahatchee

River System.

1. Plant Communities

4
The communities of aquatic and wetland plants within the Preserve perform five-

major functions vital to the health and productivity of the estuarine system:

a. they tend to stabilize geologic features in the face of dynamic

forces (i.e., currents, tides, winds, and waves), which often

act in concert to both erode and deposit;

b. they create, from recycled nutrients and solar energy, the

organic material that fuels the estuarine food web which

supports the area's fisheries, endangered species, migratory

waterfowl, colonial waterbird nesting colonies, raptors, marine

mammals, and marine and estuarine invertebrates;

c. they provide protected fisheries habitat for spawning and

juvenile development;

d. they provide roosting and nesting habitat for waterbirds;

and,

e. they physically buffer estuarine and riverine waters from

contaminated and channelized runoff from uplands within the

estuarine watershed and in some cases buffer the uplands from

storm waves and winds.

The management objectives for plant communities will be to maintain and

enhance these functions. Because these plant communities are critically

important to the well-being of the Preserve, a program to work toward the

protection and restoration of those communities now damaged or destroyed by

human activities should be developed.

Managem nt Policy

a. Field Familiarization and Documentation. Field personnel will become

familiar with the plant species and communities present in the aquatic

preserve, and locations of their occurrences.

b. Literature Familiarization. Field personnel will assemble a working

library of existing pertinent literature concerning the species and

communities present in the aquatic preserve. Staff will become familiar with

the ranges, life histories, ecological requirements, productivity, importance

to water quality, contribution to landform stabilization, wildlife habitat

provision, fisheries habitat provision, and fisheries food production of the

plant communities within the aquatic preserve.

C. Preparation of Guidelines for-Management of Endangered Species. Field

personnel, based on their field observations and literature reviews, will

develop maps (using 7.5 minute quadrangles) showing the locations of

threatened and endangered plant species within the aquatic preserve. A set of

management guidelines for each species, outlining the habitat requirements and

the methods to sustain and/or restore these habitats will be developed. Field

personnel, in the course of documenting the occurrence of threatened and

endangered animals, will develop maps showing the locations and types of plant

communities used by these animals for nesting, roosting, feeding, resting,

spawning, etc. Literature information and personal observations will then be

used to develop guide-lines to maintaining (or restoring if necessary) the

"critical habitat" required by each species.

d. Monitoring of Plant Communities for Natural Changes. Field personnel will

become familiar with the use of aerial photography and LANDSAT imagery, for

the study and monitoring of plant communities and will use this remote sensing

in conjunction with field observations to monitor and document natural changes

such as:

1. freeze damage to and recovery of mangrove communities:

2. wind and wave damage to mangrove communities from storms and

hurricanes;

3. accretion-related seaward extension of mangrove communities;

4. erosion-related landward retraction of mangrove communities;

5. depositional burying of sea grass communities;

6. invasions of exotic plant species and revegetation by native

species after exotic removal projects;

7. pathogen damage to and recovery of plant communities; and

8. stress and death of the cypress trees in the Northwest Fork.

e. Identification of Areas and Communities in Need of Restoration. Field

personnel will, as time permits, systematically survey the aquatic preserve to

determine the location, nature, and extent of environmental damages from human

activities and assess the possibility of restoring each of the sites according

to whether the site is publicly or privately owned, and the cost and effort

required.

f. Protection of Plant Communities., Field personnel shall protect the plant

communities from the various uses of sovereign lands within the aquatic

preserve according to the following guidelines.

1. Field personnel in their biological reports shall not recommend

for approval any proposed use for sovereignty submerged lands

when the plant communities in the proposed use area appear to

be jeopardized.

i. Pruning of mangroves shall only be permitted for access

from the mean high water line to a dock or pier. The

destructive clearing of mangroves in sovereignty lands

shall be strictly prohibited.

ii. Sea grass communities shall not be removed or shaded to

such an extent as to cause the death of a significant

area of the community or subjected to unacceptable

turbidity, decreased light penetration, propeller or net

damage.

2. Field personnel shall be notified of applications for uses of

submerged lands within the aquatic preserve by the Bureau

of Environmental Land Management central office. No applica-

tions will be approved within Class 1 and 2 Resource Protection

areas (see section 8(6) of this chapter) without a thorough

review by the field personnel. The field personnel will

inspect the site, assess the potential impacts to the plant

communities, and then convey their recommendations to the

central office as required.

3. Field personnel will initiate various educational programs

and supplement existing educational programs designed to

increase public awareness of the damage recreational, private

and commercial uses (i.e., propeller damage) can inflict on

seagrass communities.

4. Field personnel will develop an exotic plant control and

remova 1 plan after monitoring the rate and extent of invasion

by exotic species, such as Brazilian pepper, Australian pine, and

melaleuca.

5. In cooperation with the Treasure Coast Regional Planning

Council, field personnel will familiarize themselves with the

results of a study under the Coastal Energy Impact Program, in

assessing the potential impacts of an oil tanker spill or

drilling rig accident on the natural resources of the Loxahat-

chee River system.

g. Restoration of Plant Communities. Field personnel will consult with

professionals in the wetlands restoration/revegetation field to determine the

advisability of using healthy beds of marine grasses as a stock source to

restore damaged grassbeds. They will develop guidelines for restoring marine

grassbeds in the aquatic preserve.

Field personnel will identify easily accessible mangrove communities within

the aquatic preserve where a high density of mangrove seedlings could serve as

a nursery stock source for transplanting to restoration sites. Field personnel

will consult with professionals in the wetlands restoration/revegetation field

concerning proven procedures for transplanting and nurturing mangroves, and

will develop guidelines in restoring mangrove communities in the aquatic

preserve.

In the event that plant restoration is-required as the result of a permit

application with DER, or as a result of any other process, the field personnel

will be responsible for monitoring the restoration activity. This might

include advising the individuals involved in the actual restoration work on

the best techniques under the available restoration guidelines. The field

personnel will monitor the success of the restoration project after the work

is completed.
Zi

h. Identification of Research Needs. Field personnel will identify research

needs concerning plant communities within the aquatic preserve with special

emphasis given to data needs that would increase the capability of field

personnel to manage plant communities under environmental stress, and to

determine threshold tolerances for plant community health and diversity in

relation to degraded environmental conditions.

i. Coordination with Other Researchers. Field personnel will become familiar

with research projects being conducted within the aquatic preserve by state

and federal agency biologists and-non-government researchers. This familiari-
zation should lead to a better understanding of both other agencies' personnel

and a better awareness of the data findings and uses. The research liaison

will also be addressed in Chapter X (Scientific Research).

2. ANIMAL LIFE

The richness of the animal life of the Loxahatchee River,-Lake Worth Creek area

is important to the des,ignation of the aquatic preserve. The fish, shrimp,

and crabs within the aquatic preserve, both in the estuary and offshore, are

valuable resources on which recreational and commercial fisheries depend.

Large areas of undisturbed wetlands are excellent habitat for many types of

wildlife. These wildlife include an extensive list of endangered species,

migratory waterfowl, colonial waterbird nesting invertebrates and vertebrates.

Management objective for animal life within the aquatic preserve will be the

protection through preservation of their habitats and living conditions in the

most natural condition possible.

MANAGEMENT POLICY

a. Field Familiarization and Documentation. Field personnel will become

familiar with the major animal species in each habitat in the aquatic

preserve. This identification process will include the location, number,

season of sighting, weather conditions and any other factors which may be

necessary to build a working knowledge of the species, and their interaction

and occurrence in the aquatic preserve.

b. Literature Familiarization. The field personnel will assemble a working

library of existing literature concerning the major animal species and

communities within the aquatic preserve. The field personnel will become

familiar with life histories, ecological requirements, position in the

community, habitat and other factors necessary to their management.

c. Preparation of Guidelines for the Management of the Endangered Species

Within the Aquatic Preserve. The field personnel will become familiar with

the guidelines of the Florida Game and Fresh Water Fish Commission, U. S. Fish

and Wildlife Service, Department of Natural Resources' Division of Marine

Resources, National Marine Fisheries Service and any other applicable agencies

and non-government organizations involved in the management of endangered

species. These guidelines will be used in conjunction with the field

familiarization, documentation, and mapping to develop management guidelines

for each endangered species within the aquatic preserve. Special guidelines

shall be developed and implemented for the management of areas within the

aquatic preserve that are identified as critical habitat for endangered

species.

d. Monitoring of Animal Species for Changes Due to Natural Causes.

Field personnel will study and monitor changes in animal species that are

caused by natural phenomena, such as:

i. freezes;

ii. storms and hurricanes;

iii. changes in habitat due to changes in plant types; and

iv. geologic or hydrologic changes including erosion,

estuarine current flow changes, and any other physical

changes.

e. Protection of Animal Life From Human Uses of the Aquatic Preserve..

Field personnel, during the process of resource impact analysis in the review

of use applications in or affecting the preserve, shall consider the

protection of animal species. The review shall also consider the potential

effects of the proposed use on the plant communities as they function as

habitat for the animal life and uses that may cause a disturbance in the

natural activities and functions of the animal life (e.g., air pollution,

excessive noise or bright lights affecting a bird rookery). The field

personnel should be notified of any proposed activities (e.g., seismic

testing, mammal capture by permit) within the aquatic preserve as they might

relate to the well being of animal life and be involved in planning the

activity so as to cause the least amount of stress on animal life.

f. Identification of Research Needs. The field personne 1 in the course of

their duties shall identify research needs required to improve the management

of animal life in the aquatic preserve. This identification process is more

fully described in Chapter XII (Identified Program Need). Data/Information

Needs.

3. GEOLOGIC FEATURES

The management of geologic features will require the field personnel being

aware of the natural geologic features and the changes, both human and

natural, which affect these features within the aquatic preserve to better

enable a review of applications for state-owned land uses'that might affect

these features. These geologic features will include islands, shoals,

shorelines, embayments, and channels. The overall objective of the management

of these features is to allow the naturally dynamic system to operate without

mants influence or interference. Active management in this area shall include

the review of proposed uses that might affect the geologic features within the

aquatic preserve. The majority of these reviews will probably concern

bulkheads as they might affect state-owned lands. The objective in the

placement of bulkheads on lands upland of the aquatic preserve shall be that

the natural contour and drainage be altered to the least amount practicable.

The use of rip rap with mangrove or other suitable native plantings would be

preferable to bulkheads within the preserve. Bulkheads are not allowed within
the preserve, except as stated in Sections 258.42(2), and 258.44 F.S. and in

accordance with the management objectives of the preserve.

The field personnel shall also be involved in the review of project proposals

submitted to other agencies, such as the U.S. Army Corps of Engineers or water

management district, and.shall formally review and comment on any permit

application that impacts the aquatic preserve. These projects shall be

reviewed jointly with those agencies' personnel whenever possible. Channel

maintenance, jetty placement, drainage canal structures and the opening of

passes are examples of such projects. The field personnel will review these

projects on behalf of the aquatic preserve and its resources.

4. ARCHAEOLOGICAL AND HISTORICAL SITES

Archaeological and historical sites have several characteristics which must be

recognized in a resource management program.

i. They are a finite and non-renewable resource.
4

ii. Each site is unique because individually it represents the

tangible remains of events which occurred at a specific time and

place.

iii. While these sites uniquely reflect localized events, these

events and the origin of particular sites are related to

conditions and events in other times and places. They also

preserve traces of past biotic communities, climate, and other

elements of the environment that may be of interest to other

scientific disciplines.

iv. These sites, particularly archaeological sites, are very fragile

because their significance is derived not only from the

individual artifacts within them, but especially from the

spatial arrangement of those artifacts in both horizontal and

vertical planes.

a. Administering Agency. The management of the archaeological and historical

sites is authorized and administered by the Division of Archives-, History and
Records Management (DHARM) in the Florida Department of State. The management
authority for this area of management is presented in Chapter II (Management

Authority).

B. Management Policy. The management policy presented here is one of

conservation, recommended by the Division of Archives, History and Records

Management, and subject to that agency's changes. Their policy is as follows:

1. The field personnel and all other agencies planning activities

within the aquatic preserve shall coordinate closely with DAHRM in

order to prevent any unauthorized disturbance of archaeological

and historical sites that may exist on the affected tract. DAHRM

is vested with the title to archaeological and historical resources

abandoned on state lands and is responsible for administration and

protection of such resources (Section 267.061(l)(b), F.S.). It is

illegal to destroy or otherwise alter sites on state lands without a

permit from DAHRM (Section 267.13, F.S.). Therefore, agencies

planning activities should coordinate their plans with DAHRM at a

sufficiently early stage to preclude inadvertent damage or destruc-

tion to these resources.

2. The nature of these sites' fragility and vulnerabi-lity to looting and

other destructive forces requires that the location of these sites

not be widely known if the location is known at all. In many

instances DAHRM will have knowledge of the known and expected site

distribution in an area. Special field surveys for unknown areas may--

be required by DAHRM to identify potential endangerment of a proposed

activity to these archaeological and historical sites. This will be

especially necessary in the case of activities contemplating ground

disturbance over large areas.

3. In the case of,known sites, activities that are expected to alter or

damage these sites shall alter their management or development plans

as necessary, or make special provisions so as not to disturb or

damage such sites prior to professionally acceptable and authorized

mitigation.

4. If in the course of a management activity, or as a result of

development or the permitting of dredge/fill activities, it is

determined that valuable historic or archaeological sites will be

damaged or destroyed, DAHRM reserves the right to require salvage

measures to mitigate the destructive impact of such activities on

such sites (Section 267.061(l)(b), F.S.). Such salvage measures

shall be accomplished before DAHRM would grant permission for site

destruction.

5. Excavation of archaeological sites in the near future is discouraged.

Archaeological sites within the aquatic preserve should be left

undisturbed for the present, with particular attention devoted to

preventing site looting by "treasure hunters".

6. Field personnel will note suspected sites for future surveys by

DAHRM. Cooperation with other agencies in this activity is also

encouraged by DAHRM. The DAHRM will help inform the field personnel

about the characteristics and appearance of these sites.

7. Any discovery of instances of looting or unauthorized destruction of

these sites will be reported to the DAHRM so that appropriate action

may be initiated. The Florida Marine Patrol and other enforcement

personnel of DNR shall provide enforcement assistance to DAHRM and

make arrests or investigate cases of looting or other unauthorized

destruction of archaeological sites. The field personnel will follow

the above management policy and become familiar with the personnel

involved with this task in DAHRM and their procedures for identifying

suspected sites.