Nassau River, St. Johns River marshes and Fort Clinch State Park aquatic preserves management plan

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

NASSAU RIVER
ST.' JOHNS RIVER MARSHES

AND

FORT CLINCH STATE PARK

AQUATIC PRESERVES

MANAGEMENT PLAN

A P RIL 1 9 8 6

C0STALZONE INFORMATION CENTER

QH
90.75
.F6
N37 DEPARTMENT OF NATURAL RESOURCES
1986

NASSAU RIVER

STm JOHNS RIVER MARSHES

AND

FORT CLINCH STATE PARK

AQUATIC PRESERVES

A-- MANAGEMENT PLAN
COO

A P R I L 1 9 8. 6

cr-

DEPARTMENT OF NATURAL RESOURCES

N A S S A U R I V E R
S T. J 0 H N S R I V E R M A R S HES

AND
F 0 R T C L I N C H S T A T E P A R K
A Q U A T I C P R'E S E R V E S

A P R I L 2 2 1 9 8 6

Dr. Elton J. Gissendanner

Executive Director

Department of Natural Resources

This plan was prepared by
The Bureau of Historic and Environmental Land Management
Division of Recreation and Parks

US Department of Commerce
NOAA Coastal Servicec, Center LibrarY
2234 South Hobson Avenue
Charlest014 SC 29405-2413

Preparation of this management plan was primarily 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 Manage-
ment Act of 1972 as amended.

EXECUTIVE SUMMARY

The Nassau River-St. Johns River Marshes Aquatic Preserve and the Fort Clinch
State Park Aquatic Preserve are located in the northeastern region of the
state along the Atlantic intracoastal waters of the St. Marys, the St. Johns
and Nassau Rivers. These two aquatic preserves comprise both estuarine and
marine waters of exceptional biological and aesthetic value to the state.

The Nassau River-St. JQhns River Marshes Aquatic Preserve, located in eastern
Nassau and Duval Counties, was desi,gnated an aquatic preserve on November 24,
1969 for the primary purpose of preserving the biological (estuarine)
resources of the Nassau Sound area marshes and associated waters. This area
consists of a vast salt marsh estuary with numerous interconnecting tidal
creeks, rivers and channels and minor uplands (tree islands). The preserve
is important in protecting critical habitat to an extensive array of fish and
wildlife. Maintaining the continued health. of this preserve will involve
minimizing water pollution and losses of wetlands resulting from urban,
residential and industrial devel'opment in the region.

The Fort Clinch State Park Aquatic Preserve located in northeastern Nassau
County along Amelia Island, was designated on March 4, 1970 for the primary
purpose of establishing a protective aesthetic buffer for the state park and
historic Fort Clinch. This preserve surrounds the state park and is com-
prised largely of open waters associated with St. Mary's Inlet, the Amelia
River and a three mile extension into the Atlantic Ocean off Amelia Island.
The western boundary borders an extensive salt marsh system along Tiger
Island: the northern boundary extends to the intracoastal waterway channel
between the states of Florida and Georgia. Major threats to this preserve
include proposed port developments along Amelia Island, water pollution
associated with regional industrial and urban developments, and ship traffic
along the Intracoastal Waterway.

The major objectives of the aquatic preserve management program are to ensure
the maintenance of an essentially natural condition. Management will also be
directed to ensure public recreational opportunities while assuring the
continued propagation of fish and wildlife resources. This task will be
guided by the identification and mapping of natural resources and habitat
necessary to meet these objectives. An additional management objective is
the review and comment on applications for the use of state-owned submerged
lands. Meeting these objectives will require a fully implemented management
program with on-site field personnel for the 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 preserves 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; and

WHEREAS; Section 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 preserves; and

WHEREAS, the Trustees have recognized the Fort Clinch State Park Aquatic

Preserve as an aesthetic preserve and the Nassau River-St. Johns River Marshes

Aquatic Preserve as a biological preserve in formal action on October 21,

1969; and

WHEREAS, the Trustees recognize the importance and benefits of protecting

the natural resources and preserving the natural ecosystem and aesthetics in

the Nassau River St. Johns River Marshes and Fort. Clinch State Park Aquatic

Preserves area; and

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

Improvement Trust Fund hereby adopts the Nassau River-St. Johns River Marshes

and Fort Clinch State Park Aquatic Preserves Management Plan; and

BE IT FURTHER RESOLVED that the Trustees designation of October 21, 1969

for these two aquatic preserves is hereby reaffirmed; and

BE IT FURTHER RESOLVED that the Nassau River St. Johns River Marshes and

Fort Clinch State Park Aquatic Preserves Management Plan shall serve as a

fundamental policy guideline for the Trustees and other state and local

agencies having Jurisdiction relative to maintaining the natural resources and

environmental quality of these aquatic preserves, 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 Nassau River-St. Johns River Marshes and Fort

Clinch State Park Aquatic Preserves; and

BE IT FURTHER RESOLVED THAT the Department oil 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

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 oil Tallahassee, The Capitol, on this the twenty-

second day of April, A.D., 1986.

Gover

(Seal-)

Secretary of State

Vrney General
Commissioner of Education

Commisil'oner of Agriculture Comptroller

As and Constituting the State of

Florida Board of Trustees of the Treasurer

Internal Improvement Trust Fund

TABLE OF CONTENTS

Chapter Page

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

IT. MANAGEMENT AUTHORITY ..................
I ........................

III. MAJOR PROGRAM POLICY DIRECTIVES ......................
.... : .... 23
IIV. RESOURCE DESCRIPTION .......................................... . )7

A. Geologic Features and Landforms ........................... ?8

R. Community Associations .................................... 29

C. Archaeological and Historical Sites ....................... 43

P. '/@ater Resources ........................................... 47

C. Cultural .................................................. 52

V. RESOURCE MANAGcL-MFNT ........................................... 55

A. Introduction ............................................... 55

8. Or-site Management Objectives .............................. 55

C. Rescurce Mapping and Resource Protection Areas ............ 78

D. Administrative Management Objectives ...................... 80

VI. MANAGEMENT IMPLEIVENTATION NETWORK ............................. 89

A. Federal ................................................... F9

B. State ..................................................... 92

U. Regional .................................................. 98

D. Local Governments and Special Districts ................... 100

E. Other Entities ............................................ 104

Table of Contents (Continued)

'CHAPTER Page

VII. PUBLIC USES ................................................... 105

A. Consumptive Uses ........................................... 105

B. Non-Consumptive Uses ....................................... 106

VTII. PRIVATE NON-COMMERCIAL USES ................................... 107

1X. COMMERCIAL USES ............................................... 111

A. Traditional Commercial Uses ............................... ill.

B. Non-Traditional Commercial Uses ............................ 114

X. SCIENTIFIC RESEARCH ............................................ 117

XT. ENVIRONMENTAL EDUCATION ....................................... 119

XII. IDENTIFIED PROGRAM NEEDS ...................................... j?l

A. Acquisition.cf Additional Property ........................ 122

B. Boundary Problems and Systems Insufficiences .............. 123

C. Legislative Needs ......................................... 123

D. Administrative Rule Changes ............................... 124

E. Data (Information) Needs .................................. 124

F. Resource Protection and Enforcement Capabilities .......... 125

G. Funding-and Staffing Needs ................................. 111_5

BIBLIOGRAPHY ......................................................... 127

CONTENTS OF APPENDICES ............................................... 131

vii

Chapter T

INTRODUCTION

This plan addresses the management of the aquatic preserves (Nassau River-St.

Johns River Marsh and Fort Clinch State Park) (Figures 1 and 2). The preserve

is bordered by two incorporated cities, Fernandina Beach and Jacksonville.

The Fort Clinch State Park Aquatic Preserve, located on the northern end of

Amelia Island in Nassau County, surrounds Fort Clinch State Park and includes

portions of the St. Mary's River on the north, the Amelia River on the west

and the Atlantic Ocean on the east (Figure 1). This preserve encompasses

approximately 9,000 acres of surface water area. The much longer Nassau.

River-St. Johns River Marsh Aquatic Preserve extends south from AIA and east

from State Road 17 in Nassau County, to the St. Johns River in Duval County.

Portions of the Nassau, Amelia and Fort George Rivers are also located within

these boundaries (Figure 2). This preserve encompasses an area of approxi-

mately 57,000 acres.

On October 21, 1969, the Governor and Cabinet, sitting as the Trustees of the

Internal Improvement Trust Fund, adopted Report #2 of the Interagency Advisory
Committee on Submerged Lands Management, which recommended that Fort Clinch

State Park Aquatic Preserve be designated as an "aesthetic" preserve and that

the Nassau River-St. Johns River Marshes Aquatic Preserve be designated as a

Figure 1

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NASSAU AND DUVAL COUNTIES, FLORIDA
CREATED BY

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Figure 2

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MAP OF
TAMPA FORT CLINCH STATE PARK AQUATIC PRESERVE
C-1 AQUATIC PRESERVE NO. I)
NASSAU COUNTY, FLORIDA
CREATED BY

WAMI STATE OF FLORIDA BOARD OF
TRUSTEES OF TME INTERNAL IMPROVEMENT TRUST FUND
OCTOBER 21. 1969
oil' RESOLUTION ADOPTED OCTOBER 21, 1969
UPDATED APRIL11,1985 CAK

S4
"biological" preserve. This plan proposes reaffirmation of these de gna-

tions.

Within this preserve boundary is located some 1,602 acres of uplands (predomi-

nately tree islands and high marsh) that were purchased by the state in 1.0.78

under the Environmentally Endangered Lands Program and subsequently designated

as the Nassau Valley Marshes State Reserve. Due to the close proximity and

ecological relationship of these uplands with the preserve,.authorization was

granted in 1986 by the Board of Trustees of the Internal Improvement Trust

Fund to incorporate these lands into the aquatic preserve management program

(see Appendix E).

The extensive salt marshes of the aquatic preserve are punctuated by numerous

tidal creeks and channels and are bordered on the east by barrier islands.

The barrier islands are old beach-dune complexes with a north-south orienta-

tion. These islands include Black Hammock, Fort George, Long and Little

Talbot Islands in Duval County and Amelia Island in Nassau County. Some of

the islands have dune ridges that exceed 30 to 40 feet in elevation.

The source of freshwater input is primarily surface water drainage from the

St. Marys, Nassau and St. Johns Rivers which empty into the Atlantic Ocean.

Significant drainage also flows into the Intracoastal Waterway or into streams

4-
and sloughs connecting with it. Tidal influence in waterways oF.en extends

far upstream, particularly during droughts when the cumulative net flow is

reversed. The St. Marys and St. Johns Rivers also drain areas outside of

Duval and Nassau Counties. When this is considered, the drainage from about

12,000 square miles, equivalent to about 20 percent of the area of Florida,

flows along the boundary of Nassau County in the St. Marys River and through

Duval County in the St.-Johns River (USGS, 1972).

The climate in this region is between the humid continental and subtropical

climates of the southeast (COE, 1980). The rainy season occurs from June

through October and the average annual rainfall is 51.52 inches (USGS, 1972).

The mean annual temperature is 69.5 'F.

These environmentally sensitive preserves are dominated by salt-marshes which

occur in nearly unbroken pure stands. Saltmarshes produce very high levels of

primary plant production and frequent tidal flushing ensures the continuous

transport of nutrients in and out of the estuary. The numerous tidal creeks

are important nursery grounds for commercially valuable fish species. Oyster

bars, tidal flats and beaches are also intricate parts of this dynamic system

The entire region is an important area for wintering waterfowl and other

migratory birds.

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

gram in these aquatic preserves 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

Department of Natural Resources Division of Recreatio'n and Parks' Bureau of

Historic and Environmental Land Management (BHELM) in Tallahassee, known as

the "central office". Field personnel support will be through the Florida

Park Service, Division of Marine Resources and the BHELM staff, when

available.

Initially, development of the resource inventory will be heavily dependent on

LANDSAT satellite imagery, DOT aerial photography, and existing scientific and

other literature. As-the program proceeds and onsite managers are present,

the experience and additional resource information will likely result in modi-

fications to the program and plan, which are both designed to accommodate such

changes or at least identify areas needing improvement.

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

Chapter II cites the authorities upon which 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 references the appendices which contain more detailed informa-

tion on the resources.

Chapter If 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 t-his 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 (,.DNR), Division

of Recreation and Parks, Bureau of Historic and Environmental Land Management

staff. Funding for the plan was provided by a coastal management grant

(CM-78) through the U.S. Department of Commerce's National Oceanic and

Atmospheric Administration, Office of Ocean and Coastal Resource Management,

and the Florida Department of Environmental Regulation (DER), Office of

Coastal Management.

Chapter II

MANAGEMENT AUTHORITY

The primary management authorities available to the staff for implementing

management directives affecting aquatic preserves are found in Chapters 258
and 253, Florida Statutes (F.S.). These authorities clearly establish 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 be presumed to potentially include staff and designated agents, in

addition to the Governor and Cabinet. The staff of the Bureau of Historic and

Environmental Land Management (BHELM) (acting as "agents" for the Trustees) is

able to review all requests for uses of, or directly affectinq, state-owned

sovereign- ty submerged lands within aquatic preserves. The review and

subsequent staff comments are primarily designed to evaluate 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, F.S.

Formal review comments are provided to the Department of Natural Resources

(DNR), Division of State Lands by the Bureau of Historic and Environmental

Land Manaqement for inclusion in the comments and recommendations accompanying

agenda items for Trustees consideration. This mechanism allows the Trustees,

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

within the context of environmental impact upon the preserve.

BACKGROUND

In many respects, the authorities supporting aquatic preserve planning and

management are the cumulative result of the public's 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.

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 4

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

Trustees 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 establishment of a moratorium by the

Governor and Cabinet on the sale of submerged lands to private interests. In

that same year, this action was followed by the creation of an Interagency

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 ?1, 1969 that the Governor and Cabinet acted upon the

recommendations of the Interagency Advisory Committee and adopted, by

resolution, 18 of the waterbodies as aquatic preserves. Other preserves were

similarly adopted at vari.ous 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 Cdunty, Lake Jackson and Biscayne

Bay Aauatic Preserv.-s, respectively.

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

in Chapter 258, F.S.), thereby bringing all existing preserves under a

standardized set of maintenance criteria. Additional acts were passed

subsequent to the 19/15 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 197P.

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 following aquatic preserves have approved plans: Estero Bay,

September 6, 1983; North Fork--St. Lucie - May 22, 1984; Loxahatchee River--

Lake Worth Creek - June 12, 1984; and Indian River Lagoon - January 22, 1985.

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

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.

ADMINISTRATIVE RULES

Chapters 160-21 and 16Q-20, Florida Administrative Code (F.A.C.), are two

administrative rules directly applicable to the DNR's/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

253.03 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 Tmprovement Trust Fund for

the administration, management and disposition of sovereignty

lands;

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

the citizens of Florida;

(31 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 aid in the implementation of the State Lands

Management Plan."

Chapter 16Q-210, F.A.C. addresses the aquatic preserves and derives its

authority from Sections ?58.35, 258.36, 258.37, and 258.38, F.S. The intent

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

"W) 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

258.310, 258.391, 258.392, and 258.393, F.S., Chapter

85345, Laws of Florida, and in Section 16Q-20.02,

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

preserved in an essentially natural or existing con-

dition so that their aesthetic, 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;

fb) To protect and enhance the waters of the

preserves so that the public may continue to

enjoy the traditional recreational uses of

those waters such as swimming, boating, and

fishing;

116

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 scientiflc 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 reptiles,

game and nongame fish species, estuarine, aquatic

and marine invertebrates, estuarine, aquatic and marine

mammals, 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."

OTHER MANAGEMENT AUTHORITIES

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., respectively. 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.
I

Chapter 403, F.S., is an important ad1junct to Chapter's 253 and 258, F.S.

This governs, in part, the State's regulatory programs affecting water

quality and biological resources. The Department of Environmental Regulation

(DER), through a permitting and certification process, administers this

program. Section 253.77, F.S., as amended by the Warren S. Henderson Wetlands

Protection Act of 1984, requires that any person requesting use of state-owned

land shall have approval of the proposed use from the Trustees before

commencing the activity. An interagency agreement between DNR and DER pro-

vides an avenue for staff comments on potential environmental impacts of

projects in aquatic preserves through the DER permitting process. Addition-

ally, the DER has designated, by administrative rule, a series of waterbodies

with stringent use criteria called "Outstanding Florida Waters" (OFW). The

inclusion of al*l 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 DER also provides a source of

funding for data collection and planning in areas such as the Northeast

Florida area, as well as being the state agency responsible for implementing

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

Act.

The DER's administrative rules of primary significance to the aquatic preserve

management program include Chapters 17-3, 17-4 and 17-12, F.A.C. These rules

are based upon the authorities contained in Chapter 403, F.S. Chapter 1/1-3,

F.A.C. addresses water quality standards and establishes the category of

"Outstanding Florida Waters", while Chapters 17-4 and 17-12, F.A.C. address

permit requirements.

In December, 19F2 a Memorandum of Understanding (MOU) between the DER, NIT,

and the U.S. Army Corps of Engineers (COE) 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 DER/COE 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 (DCA), and the Department of State, Division of Archives,

History, and Records Management (DAHRM). The Executive Office of the Governor

also provides a mechanism for public input into federal projects via the State

clearinghouse process.

The DCA is statutorily responsible for administering 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 these 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 leqislatively assigned to the DAHRM, 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, administers two programs directly affecting the aquatic preserve

management program. These programs are (1) septic tank regulation, usually

2,0

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 comipendium of the appropriate statutes and adminis-

t.rative 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) Manage all submerged lands within these aquatic preserves to ensure the

maintenance of essentially natural conditions to ensure the propagation of

fish and wildlife, public recreation opportunities, and aesthetics.

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

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

Trustees and DAH.RV, and such disturbance is part of an approved research

design or authorized project.

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 adverse-

ly impact upon saltmarshes and other valuable submerged habi-tat, unless a

prior determination has been made by the Board of overriding public impor-

tarce with no reasonable alternatives, and adequate mitigation measures are

included.

(F) Prohibit the trimming and/or removal of saltmarsh vegkation and other

natural shoreline vegetation within the aquatic preserve, except when

necessitated by the pursuit of legally authorized projects and local

protection ordinances.

(;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.

(1) 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.

(J) 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

there are no reasonable alternatives and failure to conduct such practices

would result in a threat to public health.

Limill- pesticide and biocide use within the aquatic preserve to those that
are approved by the Environmental Protection Agency (EPA) for wetland and

aquatic application.

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

preserve boundaries.

(C), 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 Q,Uality 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 mechani-sm

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 hi.gh water quality of the estuary and ensure

the natural seasonal flow fluctuations of freshwater into the estuary.

(T) Apply the management criteria contained in the adopted Tri-River System

Plan to all subsequent legislative additions of land to the aquatic preserve.

(U) 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 ordi-nances.

(V) Prohibit marinas in Class I or 2 Resource Protection Areas.

(W) Identify and document any problems caused by fishing activities and

report them to the Marine Fisheries Commission.

Chapter IV

RESOURCE DESCRIPTION

These aquatic preserves are a unique Florida representative of the "Sea

Islands" usually associated with southern Georgia.. Characterized by a chain

of sandy barrier islands, occasional inlets, and a combination.of sounds,

rivers and extensive coastal marshland, this area is an important natural

resource for Nassau and Duval Counties. The busy commercial and naval ports

of Jacksonville, Mayport and Fernandina Beach in Florida, and St. Marys and

King's Bay in Georgia, are accessed by maintained channels in the St. Johns

and St. Marys Rivers. Two other inlets, on the Nassau and Fort George Rivers,

bisect the aquatic preserve. The network of tidal creeks, channels and

waterways receive daily tidal inundation. Nutrient exchange between the ocean

and river-transported detritus makes the salt marshes a significant primary

producer and nursery ground for commercial and recreational fish species in

IL-.he area. The sandy beaches of Fort Clinch State Park and Little Talbot

Island attract thousands of vacationers yearly. The marshes and the coastal

hammocks on the uplands are a part of the Atlantic flyway providing wintering

and stepover areas for many migratory bird species.

The major problems in the continued health of this area include development on

barrier islands, and pollution from large industrial complexes, from boat and

barge traffic associated with the commercial ports (potential oil spills for

examiple), and from sewage treatment plants surrounding the aquatic preserve.

Detailed information on the resources (e.g., species lists, water quality

information, archaeological and historical site information, life histories,

geological background, supporting maps, and cultural resource information) is

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

chapter is intended to be generally descriptive of the major management

functions and resources of the area surrounding the aquatic preserve.

A. Geological Features and-Landforms

The barrier islands, marshes, channels and tributaries of the TRS Aquatic

Preserve are considered to be the southern extension of the St. Marys Meander

Plain. From the St. Johns River to the Santee River in South Carolina, the

coast is known as the "Sea Islands". This name is derived from the barrier

chain which is separated from the mainland by meandering tidal creeks

resulting from fluvial and tidal sedimentation in derelict laccons or

coastal-parallel marshes between beach ridges (White, 1970).

The topography of the area is composed of ancient marine terraces which were

formed in the Pleistocene when the sea was relatively stationary at varying

levels higher than present sea level (Anderson, 10,72). Each time the sea

level dropped, a part of the sea floor was left exposed as a level plain or

terrace. The terraces tend to be parallel to the present Atlantic shoreline

and become progressively higher from east to west (Kojima and Humt, 1980).

Over time, the level plains of the terraces were modified or destroyed by

strearr, erosion. Sand dunes on the barrier islands were formed by sand

deposited and shaped by a combination of wind, waves, and tidal currents. As

the wind-blown sand was trapped by vegetation, dune ridges formed. The dunes

eventually became stabilized by salt-tolerant vegetation.

The islands absorb much of the energy from tides and waves and allow sediments

from the mainland rivers to be deposited in the sheltered areas behind the

islands. Deposition is an ongoing process, but the resultant increases in

marsh elevation are just about offset by rising sea levels (Johnson et al.,

1974).

B. Communitv Associations.

The plant communities of the TRS Aquatic Preserve are a major factor in the

continued health and productivity oil the natural systems in the preserves.

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

with these plant communities. The major community associations recognized in

the pres-erve are salt marsh, oyster bars, tidal flats and tidal beaches. Each

community is presented separately although in reality these communities are

sometimes mixed or overlap. Final subsections address the animal life and

endangered species within the aquatic preserves.

1
Salt Marsh. The salt marsh habitat predominates in these aquatic

preserves. Typical of north Florida and south Georgia, these shallow,

sheltered salt marsh areas behind barrier islands are crisscrossed with

numerous sediment-laden tidal creeks and channels. The inflowing rivers

contribute dissolved organic nutrients (e.g., phosphates and nitrates) and

detrital material to the marshes. The incomi-rg tides bring in other nutrients

01 marine origin. Tides and currents circulate the material within the

marshes creating year-round high primary productivity (the building of plant

tissues upon which all consumer organisms are ultimately dependent). Outgoing

tides carry broken down plant material from the marshes, thereby enriching the

nearshore environment. The salt marsh ecosystem has been the focus of

intensive study in many areas (Kurz and Wagner, 1951; Teal, 1959, 1962; Odum,

1961; De la Cruz, 1973).

Zonation of plant species within the salt marsh is dependent on elevation,

depth of tidal flooding and salinity. In the TRS Aquatic Preserve, the

dominant species are smooth cordgrass (Spartina alterniflora), in the

recularly flooded or low marsh (zone between mean low water and mean high

water',, and black needlebrush ('uncus roemerianus), in the high marshes

(between mean high water and mean high water spring tide). Other commonly

occurring species include salt meadow hay (Spartina patens), saltgrass
(Distichlis spicata), big cordgrass (Spartina cynosuroides) and glasswort

(Salicornia virginica). Groundsel trees (Baccharis halimifolia) are the most

abundan-It-, transition zone species (DeMort, 1984).

Another highly productive zone associated with the salt marshes is the tidal

MUd flat which lies between the mean low water and mean low water spring tide.

It supports a rich algal flora, dominated in this area by sea lettuce (Ulva

lactuca') and benthic diatoms such as Gyrosigma, Surirella, and Navicula.

Lying on the surface layers of the sediments, algal growth is rapid and

continues throughout the year. The amount of energy transformed by algal

photosynthesis is a significant contribution to the total primary production

cf the salt marsh ecosystem (Pomeroy, 1959). This zone is discussed in more

detail in a later section.

The animal life of the salt marsh is rich and diverse (Table I). It includes
primary ccnsumers that feed on vascular plant detritus and fresh algae, such
as amphipods, fishes, shrimp, crabs, clams, oysters, snails and worms.

Animals like the rice rat and cotton mouse nest within the marsh, but others,

such as the raccoon, marsh rabbit and opossum come down to the marshes to feed

during low tides. Avian species, like clapper rails, willets, red-winged

blackbirds, seaside sparrows, and marsh wrens nest in the salt marshes.

Herons, egrets, ibis, wood storks and other wading birds feed on mud flats and

at the edge s of the marshes.
L, umerous species of commercially and

recreationally important fishes either spawn in the marsh or live there for a

large part o-F their life cycles.

Oyster Bars. Oyster bars are common in the low-energy, sedimentary

environment characteristic of the continuous strands of salt marsh occurring

behind the barrier islands of the aquatic preserve. Typically, oysters

colonize subtidal and intertidal portions of the estuarine system. The oyster

reefs are stable islands of substrate in an otherwise muddy environment and

they can affect local turbidity levels through the processes of filtration and

biodeposition. As the oyster reef grows and traps sediment, it eventually

becomes colonized by Spartina (Bahr, 1983).

The extensive surface area of an oyster reef provides essential habitat for

many animals, especially sessile suspension-feeding epifauna like barnacles

and polychaetes. The crevices also provide a refuge Ifor motile invertebrates

such as mud crabs and amphipods. One of the functions of the reef irhabitants

in a salt marsh ec osystem-is to mineralize organic carbon and release nitrogen

and phosphorous in forms usable by the primary producers (phytoplankton and

benthic algae).

Tabl e I

ANIMAL LIFE COMMONLY ASSOCIATED WITH SALT MARSH GRASS COMMUNITIES

WITHIN THE TRS AREA

Mammals Birds

marsh rabbit great blue heron
rice rat great egret
raccoon snowy egret
bobcat little blue heron
river otter tricolored heron
cattle egret
green-backed heron
black-crowned night heron
Fishes white ibis
wood stork
lady fish green-winged teal
Atlantic menhaden ring-necked duck
sea catfish hooded merganser
spot osprey
murrimichog northern harrier
silverside clapper rail
striped mullet black-bellied plover
spade-'Fish wilson's plover
pinfish semipalmated plover
spotted sea trout American oystercatcher
red drum willet
weakfish spotted sandpiper
croaker spot ruddy turnstone
northern kingfish western sandpiper
Jack crevalle least sandpiper
lookdown dunlin
Florida pompa-no short-billed dowitcher
pigfish grunt marsh wren
threadfin herrinc seaside sparrow
southern fluke
summer flounder
bluefish Reptiles
butterfish
m,ciarra diamondback terrapin
sheephead minnow spotted turtle
striped killie

ANIMAL LIFE COMMONLY ASSOCIATED WITH SALT MARSH
GRASS COMMUNITIES WITHIN THE TRS AREA (Continued)

Invertebrates

little grey barnacle
marsh periwinkle
clam worm
fan viorm
salt marsh sna-11
hard-shelled clam or quahcg
blue crab
fiddler crab
penaeid shrimp

City of Jacksonville. Appendices for Water_Quality Assessment in the Jaxport
Area with Analysis and Plan for the Estuarih@_*M`a_r`s_h_System. 1984.
---------------
34

Predators on the community include the blue crab, mud crab, sheepshead Minnow,

raccoon, and numerous wading birds such as the American oystercatcher and

boat-tailed grackle. Table 11 lists commonly occurring species.

Oysters are especially susceptible to chemical pollution and high levels of

turbidity. Dredging activities can drastically increase the natural sediment

loads and deplete dissolved oxygen levels. In the aquatic preserve system,

high coliform levels have closed all shellfish harvesting areas in Nassau

County. In Duval County, open shellfish harvesting areas include parts of

Sawpit Creek and the Fort George River, and all of Simpson Creek.

3. Tidal Flats. Tidal flats in the TRS Aquatic Preserve consist of

intertidal (between high and low tide marks) mud and sand flats associated

with the sounds, river mouths, channels, and creeks. The ongoing processes of

accretion and erosion associated with the barrier island beaches and the

unmaintained inlets of the Nassau and Fort George Rivers, continually reshape

the boundaries of the tidal flats in these areas. Tidal flats found along the

more protected tidal creeks and channels in the salt marshes are more stable

features.

In areas of high physical energy, such as inlets, sediments tend to be

composed of coarse sand and shell debris, which is generally inhospitable to

nearly all species of benthic macrofauna (Peterson and Peterson, 1979). In

the more protected, shallow flats behind the inlets and in the mud flats

associated with the salt marsh community, sediments are stable enough to

support a substantial benthos.

3,6

Table II

ANIMALS COMMIONLY ASSOCIATED WITH THE

OYSTER REEF COMMUNITY

Invertebrates

blue crab
mud crab
mussel
ivory barnacle
amphipod
lepton
shore shrimp

Birds

American oystercatcher
beat-tailed grackle
fish crow
ruddy turnstone
dunlin

Mammals

raccocn

City of Jacksonville Appendices for Water Quality Assessment in the ,axport
Area with Analysis [email protected] Plan for the Estuarini@[email protected].
---------- - ------------
Bahr, L.M. and W.P. Lanier. The Ecolo @ of Intertidal Oyster Reefs of the
South Atlantic Coast: A Community Profi e. -Service,
Office of-Inclogical S-e-r-v-i-c-e-s,--',@,'-a-s@-i-n-g-t-o-n-, D.C. FWS/OBS - 81/15. 105pp.
1983.

317

Bacteria present in the sediments efficiently convert dead organic matter to

inorganic nutrients which are then available to support primary (plant) and

secondary (animal) production. Algae are very abundant in and on the

sediments of intertidal flats where they are important primary producers. The

intertidal zone is a harsh environment that can subject marine organisms to

dessication from the sun and wind. Most organisms have adapted to this by

burrowing (protozoans, polychaetes, amphipods, bivalves) or by feeding on the

flats only during periods of tidal inundation (crabs, gastropods, shrimp,

fish). Birds are the most conspicuous predators in this habitat. These are

represented by waders, such as herons and egrets; probers like plovers,

sandpipers and dowitchers; and aerial-searching birds such as terns and gulls.

Table III lists animals commonly associated with this habitat.

4. Tidal Beaches. The white sand beaches on the Atlantic side of the

barrier islands in the aquatic preserve are important recreational and

ecological resources. Along with coastal dunes, the beaches help to protect

the islands from sea winds, salt spray, and storm tides and allow the

establishment of forest vegetation (Johnson et al., 1974). In the process of

absorbinq these natural forces, the beaches are constantly being reshaped.

Generally, the longshore movement of sands in this area causes beach erosion

on the north and accretion on the south. These dynamic processes and the

added stresses of dessication and shifting sands, allow only the hardiest

plants to survive. These conditions create a gradient or zonation of

vegetation from mean high tide toward the interior of the island.

The beaches (above the point of wave action) are typically vegetated with
grasses and vines such as sea cats (Uniola paniculata), railroad vine (Ipomoea

Table III

ANIMALS COMMONLY ASSOCIATED WITH TIDAL FLATS

Invertebrates Fishes

Amphipods striped anchovy
polychaete worms bay anchovy
horseshoe crabs Atlantic menhaden
blue crabs Atlantic spadefish
fiddler crabs spotted seatrout
bivalve molluscs spot
gastropod molluscs silversides
Atlantic croaker
white mullet
Birds threadfin herring
pigfish
American oystercatcher summer flounder
semipalimated plover southern flounder
black-bellied plover bighead searobin
ruddy turnstone red drum
willet lookdown
least sandpiper northern puffer
western sandpiper Atlantic needlefish
sarderliq inshore lizardfish
common tern
least tern
royal tern
black skimmer
herring gull
ring-billed gull
laughing gull
fish crow
great blue heron
little blue heron
great egret
snowy egret

City of Jacksonville A2pendices for 1@ater Quality Assessment in the Jaxport
Area with_Analysis a@d Plan for the Estu-ari're @Iarsh System. 1984.

Petersor, C.H., and N.M. Peterson. The ecology of intertidal - flats of North
Carolina: A ccmmuni_@y I vi Of
p!R-@i@ e .U.S. Fish and @!ildlife Ser ice of
Biological Services. FWS/OBS-79/39. 73pp. 1979.

pescaprae), beach morning glory (Ipomoea stolonifera), sea purslane (Sesuvium
portulacastrum), and camphorweed (Heterotheca subaxillaris-). Most species

exist at, or just above the sand, from dune crest inland, protected by sea

oats. This pioneer zone stabilizes the loose sand and allows additional wind

blown sand to become trapped, thereby enhancing dune formation.

This seemingly hostile environment provides important habitat for a variety of

animal life. Organic matter from the ocean, especially macroscopic algae, is

acted upon by bacteria in the beach sands. The bacteria are, in turn, eaten

by nematodes, flatworms, protozoa and amphipods. In the high energy,

unvegetated zone of the beaches, permanent residents are primarily burrowing

marine life such as ghost shrimp, polychaetes, and sea cucumbers. Many other

more motile species, including fish, occupy the beach area when it is covered

with water. At low tide, shorebirds actively feed on the many burrowing

organisms. The upper beach is an important nesting area for the threatened

least tern and the Atlantic loggerhead turtle. Table IV lists the animals

commonly associated with this habitat.

5. Deep Water Areas. These areas within the TRS Aquatic Preserve include

natural inlets and river mouths, channels, rivers, creeks, and sounds. These

waterways ensure that adequate tidal flushing and tidal exchange occur

throughout the study area. The deeper waters also allow many commercially and

recreationally important fish and shellfish access to protected nursery and

feeding grounds. The endangered manatee uses these deeper waters during

micration and for feeding and loafing purposes.

6. Animal Life. The richness of the animal life of the TRS Aquatic Preserve

Table IV

ANIMALS COMMONLY ASSOCIATED WITH TIDAL BEACHES

Birds INVERTEBRATES

American oystercatcher ghost shrimp
semipalmated plover mole crabs
Wilson's plover polychaete worms
black-bellied plover razor clams
ruddy turnstone acorn worms
willet sea cucumbers
least sandpiper gastropods
western sandpiper sand dollars
semipalmated sandpiper brittle stars
sanderling horseshoe crabs
common tern copepods
least tern nematodes
royal tern flatworms
black skimmer amphipods
herring gull
rirg-billed gull
laughing gull Fishes
fish crow
silversides
killifish
Reptiles flounder
lizard fish
Atlantic loggerhead turtle

Johnson, A.S., H.0. Hillestad, S.F. Shanholtzer and G.F. shanholtzer. An
Ecological Survev of the Coastal Region of Georgia. National Park Service.
Scientific Monograph Series No. 3. 233pp. 1974.

area is important to its designation as an aquatic preserve. The area is

valuable for recreational fishing and serves as a nursery area for fish

commercially caught in the Atlantic Ocean. Other species not-directly

important to commercial fishing, but n ecessary to its ultimate food chain,

also depend on this estuary. The islands, tidal flats and salt marshes

provide a refuge for species visiting this area during migrations, for daily,

feeding purposes and during times of environmental stress (i.e., drought,

storms, development activities). These wildlife include an extensive list of

endangered species, migratory waterfowl, colonial waterbirds, invertebrates-

and vertebrates. Salt water fish species and other animal species lists and

information can be found in Appendix C.

The encroachment oil human activities such as the intracoastal waterway,

maintained inlets, spoil islands and other dredge and fill areas, bridges.'

causeways and roads, have changed the animal life of the aquatic preserve.

7. Endangered Species. The combination of climate, diverse vegetation and

habitats, and waterbodies in the aquatic preserve system has resulted in the

survival of endangered birds, reptiles, and fish. The highly publicized

manatee is one of the most notable endangered mammals found in the area.

Manatees make seasonal migrations along the eastern coastal waterways, inclu-

ding the lower St. Johns River and the Intracoastal Waterway (ICW) in the TRS

Aquatic Preserve. In the vicinity of Fernandina Beach, manatees congregrate

in the spring around the warm water outfalls from ITT Rayonier and the

American Container Corporation. Another significant aggregation occurs at the

intersection of the ICW and the St. Johns River in Duval County. The high

density of industrial and commercial boat traffic between the Port of

Jacksonville and the mouth of the St. Johns River has contributed to high

manatee boat/barge rr.-ortality rates in northeast Florida (Kinnaird, 1983).

There are currently no protected areas, under Chapter 16N-22 of the Florida

Manatee Sanctuary Act, in this aquatic preserve. Activities in the preserve

should be managed to guarantee the health and safety of manatees (see Chapter
V-'2d) and all,other endangered animals. Table V provides a list of other
endangered animals known to occur within this 'lagoon,

C. Archaeological and Historical-Resources.

The coastal area of northeast Florida has over 100 identified sites of

historical and archaeological significance. These sites attest to the appeal

that an area with productive marshes and offshore waters, and nurnerous inlets

and natural, ports has to its inhabitants.

The earliest occupation of the area dates back to approximately 3-500 B.C. It

has been postulated that rises in sea level expanded coastal lagoons and

initiated a trend toward the utilization of saltwater shellfish. The period

of greatest occupation probably started around 500 B.C., as the tendency

toward exploitation of saltwater rather than freshwater shellfish continued

(Rudollph and Gresham, 1980).

The early inhabitants were the Timucuan Indians who occupied southeastern

Ceorgia and northeastern Florida. Of these eastern Timucuan tribes, the best

known viere the Saturiwa, occupying the lower course of the St. ."ohns River and

the coastal area from the mouth of the St. Marys to below St. Augustine

(Deagan, 1978). Subsistence was based on horticulture, shellfish collecting,

Table V

SPECIES OF THE NASSAU RIVER-ST. JOHNS RIVER MARSH

AND FT. CLINCH STATE PARK AQUATIC PRESERVE

WHICH ARE CLASSIFIED AS ENDANGERED, THREATENED, OR OF SPECIAL CONCERN

ENDANGERED

Reptiles

Atlantic Ridley turtle (LepidochelVs kempii)

Birds

Wood stork (Mycteria americana)
Arctic peregrine falcon (Falco peregrinus tundrius)

Mammals

1@,IC_S+ Tndiar, manatee (Trichechus manatus latirostris)
pig
ht whale (Ba7aena ilacTa @is

THREATENED

Reptiles
Atlantic loggerhead turtle (Caretta caretta caretta)

Birds

Eastern brown pelican (Pelecanus occidentalis
carolinensis)
Least tern (St7e_rnaanti_!_!_arum)
Bald eagle TH-aliaeetus leucocephalus)

SPECIES OF THE NASSAU RIVER-ST. JOHNS RIVER MARSH AND

FT. CLINCH STATE PARK AQUATIC PRESERVE

WHICH ARE CLASSIFIED AS ENDANGERED, THREATENED, OR OF SPECIAL CONCERN
(continued)

SPECIES OF SPECIAL CONCERN

Birds

American oystercatcher (Haematopus p lliatus)
Little blue heron (7F orlda caerulea)
Reddish egret (Dichromanass@_-rufescens)
Snowy egret (Egretta thula)
Tricolored or Louisiana heron (Egretta tricolor)

Fish

Atlantic sturgeon (Acipenser oxyrhynchus)

Reptiles

American alligator (Alligator mississippiensis)

- Florida Game and Fresh Water Fish Commission. Rare and Endangered Biota
of Florida. P.C.H. Pritchard, Series Ed., Vol.-7--6-. University Presses
of Florida, Gainesville, 1978.

- Florida Game and Fresh Water Fish Commission. Endangered and Potentially
Endangereq_Fauna and Flora in Florida. October, 1984.

- Florida Natural Areas Inventory. Tallahassee, Florida. 1984.

and hunting and gathering. Food remains from midden deposits in the area

indicate that mullet, sheepshead, black drum, and catfish were the most

utilized fish. Shellfish included oysters, clams, mussels, and whelks (ESE,

19-84).

The St. Johns River was originally discovered and settled by the French in

1562 and Fort Caroline was established at St. Johns Bluff in 1564. Within a

year, the Spanish had captured the fort and established their supremacy in

Florida. They erected many missions in the area in attempts to Christianize

the Timucuans. This intensive European contact exposed the Timucuans to

disease and by 1650, their population was severely decimated. In the latter

1600's, the missions were frequently raided by the British and the Guale

Indians aligned with them. British rule in Florida lasted from 1763 to 1783

and ushered in the Second Spanish Period (178-1-1821). The Spanish land grant

system resulted in more intensive development in the area and ports in

@acksoriville and Fernandina became important commercial centers.

During the Civil War, Confederate fortifications were constructed at St.

John's Bluff, Yellow Bluff, and north Amelia Island (Fort Clinch). Fort

Clinch was captured by Federal forces and remained under their command for the

duration of the war.

D. Water Resources.

Water is the one resource that most directly affects the habitability and

healthiness of the aquatic preserves for the plants and animals naturally

a@,apted to living there. The St. Johns River, the St. Marys River, the Nassau

River, the Intracoastal Waterway, and numerous tributary channels and tidal

creeks form the drainage network for Nassau and Duval Counties. These

waterways drain 35 percent, 24 percent, 23 percent, and 18 percent of the two

counties, respectively (USGS, 1972). When drainage areas beyond the county

borders are included, the St. Johns and St. Marys Rivers drain a combined area

of over 121,000 square miles. The potential for pollution transport into the

aquatic preserves is therefore very high.

-h to south, river inlets within the aquatic preserve include
Moving from nort

the St. Marys, Nassau, Fort George and St. Johns. The St. Marys inlet lies at

the entrance to Cumberland Sound at the mouth of the river between Cumberland

Island, Georgia, and Amelia Island, Florida. It is an important passageway

C 4
for commer lal, recreational and naval vessels, providing access to St.-Marys

Harbor, Georgia, Fernandina Harbor (via the Amelia River, Florida), and the

U.S. Navy Submarine Support Base at Kings Pay, Georgia. The inlet was

stabilized by twin stone Jetties which were under construction from 1881 to

1927 and a navigable depth of 41 feet is maintained by the Corps of Engineers.

The north and south jetties extend out 3.6 and 2.1 miles, respectively. The

jetties changed sediment transport patterns and the shoreline both accreted

and eroded. More recently (1-045 to 1974), the northern shoreline of Amelia

island receded landward, while the southern shoreline showed almost unbroken

stability over that same period (COE, 1985).

Two unimproved inlets lie between the St. Marys and the St.-Johns Rivers; the

Massau River Inlet, between the southern tip of Amelia Island and the northern

tip of Little Talbot Island, and the Fort George inlet, between the southern

end of Little Talbot Island and Wards Bank (an extensive sand bank separating

4
Che Fort George and St. Johns Rivers). The inlets have been subject to

significant shoaling problems and are navigable only by small craft (Kojima

and Hunt, 1980).

The St. Johns River entrance is a major navigation channel between the ocean

and port facilities situated along both banks of the lower 24 miles of the

river. The maintained depth of 40 feet permits a variety of deep draft

vessels, particularly associated with petroleum products, phosphate shipments

and naval activities at Vayport, to use the river extensively. In 1977, there

were over 6500 commercial vessel movements on the channel (COE, 1980). Two

jetties, 2-1.7 and 2.1 miles long, north to south respectively, were created to

stabilize the inlet. The jetties have caused the erosion of the southern end

014 Little Talbot Island and a northward migration of the Fort George Inlet

1,Koj-*ima and Hunt, 1980).

Water in the channels and waterways within the preserve is nearly always

brackish to saline. The extent to which the tidal influence is felt upstream

varies with rainfall, tides, winds and evapotranspiration. Within the aquatic

preserve area, maximum flow reversal occurs at distances that are upstream of

the preserve boundaries (USGS, 197
k ?). The danger inherent in this phenomenon

is that the reverse flew may carry pollutants upstream to a point where viater

is being withdrawn for uses for which pollution cannot be tolerated.

!.,.Faters within the aquatic preserve are subject to pollution from the

r.-.anufacturing sector (primarily paper and allied products' and from domestic

sewage.and stormwater runoff. The Fernandina Beach sewage treatment plant has

a design capacity of one million callons per day (MGD) and provides secondary

treatment. It is currently operating above design capacity but new

construction will increase capacity to 1.75 MGD. Effluent is discharged into

the Amelia River. The Amelia Island Waterworks, Inc. is a privately owned

utility initially established to service the Amelia Island Plantation. The

plant has a design capacity of .6 M..GD and average daily flows of .477 MGD.

The plant provides primary treatment and the effluent is disposed of through

spray irrigation on the Amelia island Plantation golf course. The

concentration of nutrients in the groundwater, which may move laterally

through the soil and discharge to marshes, -is not expected to be significant
enough to adversely impact these surface water systems (ESE, 1984). Capacity

will be expanded in 1985 to 1.5 MGD and will provide secondary treatment.

Pending approval, the effluent will be discharged into the Intracoastal

Waterway-or into Nassau Sound. Since Nassau Sound is classified as Class II

waters, tertiary treatment of wastewater will probably be required. A second

plant may be constructed on the south end of Amelia Island by 1986 or 1987.

1-F constructed, effluent from this plant will be discharged into the Nassau

River (Nassau County, 1984). In addition, there are 2 package treatment

plants on Amelia Island that discharge into the Amelia River.

in Duval County, there are no effluent discharges within Ithe boundaries of the

aquatic preserve, but seven sewage treatment plants or package plants are

located just south of the boundary on the St. Johns River. Moving from west

to east toward Mayport, the following plants discharge secondarily treated

effluent into the St. Jchns River: Beacon Hills and Harbor with a design

capacity of 0.836 MGD and an average daily flow of 0.220 MGO; Buccaneer

Services with 0.650 MGD design capacity and an approximate daily flow of 0.35

5,0

MGD; four package plants including the U.S. Coast Guard, a marina, and two

restuarants; and the U.S. Naval facility at Mayport which has an industrial

section with a 0.288 MGD design capacity and an unknown average daily flow

and a domestic discharge section with a 1.8 MGD design capacity and a 1.2 MGD

average daily flow (Deuerling, pers. comm.)

Industrial activity in the area, though outside of aquatic preserve bound-

aries, can affect water quality within the preserve depending on currents and

tidal flow. Discharges from industries in Duval and Nassau Counties are

currently in compliance with Florida Department of Environmental Regulation

standards (Newell, pers. comm.). These industries include two pulp mills in

Fernandina Beach (discharging into the Intracoastal Waterway) and several

power plants and chemical manufacturing plants located upstream on the St.

L)ohns River. Compliance by the pulp mills and power plants is particularly

Important since manatees are attracted to the artificial warm water discharges

at these plants.

Waters within the aquatic preserves are designated as Class II (shellfish
propagation or harvesting) and Class III (recreation - propagation and
inanagement of fish and wildlife) by the DER. In Nassau County, Class II areas

include portions of Alligator Creek, Nassau River and Creek, and South Amelia

River. Due to chronically high levels of fecal coliform bacteria, all

formerly approved shellfish harvesting areas have been reclassified as

Prohibited (Poole and Barnett, 19C4). In Duval County, Class II waters

include parts of the Ft. George River, the intracoastal Waterway and

tributaries, Nassau River and Creek, and Pumpkinhill Creek. Harvested

shellfish species include the eastern oyster and the northern hard clam or

quahog. Continual monitoring of bacterial and chemical pollution will be used

to temporarily or, in some cases, permanently reclassify these areas.

E. Cultural.

The U.S. Census population for Nassau and Duval Counties for 1970 and 1980,

with percent increase, was 20,62-6 to 32,894 - 59.5%, and 528,865 to 571,003

6.0/r, respectively (Terhune, 1984). In Nassau County, most of the population

is in unincorporated areas of the County, but the largest portion of the

growth is concentrated on Arnelia Island. In the incorporated City of

Fernandina Beach, population has increased 19%, from 9,140 in 1970 to 10,841.
in 1OPO (Nassau County, 1984). The population in-the consolidated City/County
of Jacksonville increased 2.5%, from 540,920 in 1980 to 554,378 in 1983. Most

of Duval County's population is concentrated in areas west of the aquatic

preserve and in the beaches area south and east of -I,-he preserve. Uplands in

Duval Ccurty within the aquatic preserve include Big and Little Talbot

Islands, which are currently protected by the State, and privately owned Black

Hammock and Fort George Islands.

Fort George Island has experienced tremendous growth pressures in the last few
years. The Fort George Island Development of Regional Impact (DRI) proposes a

1400 unit development on the Island. The resultant increase in population is

expected to be 2,295 people including residents, tourists and other

vacationers. Two marinas on the north and east side are proposed and traffic

on the M-ayport Ferry is expected to increase. The loss of about 7.7 acres of

saltmarsh and associated wetlands is anticipated (Fairfield, 1982). The

development of the marinas may require that PNR create Prohibited Shellfish

Areas in their irimediate vicinity (Poole, 1985).

The Amelia Island South DRI proposes a residential/resort community of 1,575

dwelling units and a resort hotel on 441.0 acres, which includes 29.3 acres of

wetlands (ESE, 1984).

The newly constructed King's Say Naval Base in Camden County, Georgia-, across

Cumberland Sound from Massau County, is expected to add approximately 2,750

people to Nassau County by the year 2,000 (Nassau Ccunty, 1984). These growth

pressures affect water resources and wildlife and increase the potential for

environmental degradation.

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, F.S.). The aquatic preserves are.directed toward

the maintenance of the existing or essential 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

DNR's field personnel assigned to the aquatic preserve. The adminis- trative

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. These personnel will be inter-

acting with various government and non-government entities, interest groups,

and individuals.

B. Onsite Management Objectives

The onsite management objectives are reflected in the activities that the

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

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

W4 thin 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 tri river

system.

1. Plant Communities

The communities of aquati@ 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 water birds;

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 communi.ties now damaged or destroyed by

human activities should be developed.

Vanagement Pol-icy

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 preserves.

c. Preparation of Guidelines for Management of Endangered Speci es. 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

managerrent guidelines for each species, outlining the habitat requirements and

the methods to sustain and/or restore these habitats wi-11 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,

spa,wning, etc. Literature information and personal observations V14,11 then be
used to develop guidelines.for maintaining (@r restoring if necessary) the

"critical habitat" required by each species.

d. IMonitorinq of Plant Communities for Natural Chances. Field personnel will

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

the study and monitoring of plant communities (historically and at the present

t4 me) and will use this remote sensing in conjunction with field observations
1 1.

to monitor and document natural changes such as:

freeze damage to, and recovery of, salt marsh communities:

wind and wave damage to salt marsh and beach communities from storms

and hurricanes;

accretion-related seaward extension of salt marsh and beach

communities;

A
It. -related landward retraction of salt marsh and beach
erosion

communities;

5. depositional burying of salt marsh and beach communities;

6. invasions of exotic plant species and revegetation by native

species after exotic plant removal projects;

7. pathogen damage to and recovery of plant communities.

e. Identification of Areas and Communities in Meed 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 of sovereignty submerged lands

when the plant communities in the proposed use area appear to

be Jeopardized.

i. Removal of salt marsh vegetation shall only be permitted for

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

destructive clearing of salt marshes in sovereignty lands shall

be strictly prohibited.

ii. Salt marsh communities shall not be removed or shaded to

such an extent as to cause the death of a significant area of

the community. They shall not be subjected to unacceptable

turbidity, decreased light penetration, or propeller damage.

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

submerged lands within the aquatic preserve by the Bureau of

Historic and Environmental Land Management central office. No

applications will be approved within Class 1 and 2 Resource

Protection areas (see section B(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 fhe

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 that recreational, private

and commercial uses can inflict on salt marsh and beach communities.

4. Field personnel will develop an exotic plant control and

removal plan after monitoring the rate and extent of invasion

by exotic-species,

5. In cooperation with the Northeast Florida 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 aquatic

preserves.

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

professionals in the wetlands restoration/revegetation field to determine the

advisability of using healthy areas of salt marsh vegetation as a stock source

to restore damaged areas. They will develop guidelines for restoring salt

marshes in the aquatic preserve.

Field personnel will identify easily accessible salt marsh communities within

the aquatic preserve where a high density of salt marsh seedlings such as

smooth cord9rass or black needle rush 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 salt marsh species, and will

d'evelop guidelines for restoring these 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.

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. Water quality

research issues, as they affect plant communities, should also be closely

followed. This familiarization should lead to a better understanding of both

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 aquatic preserves' area is important to

its designation as a protected area. The fish, shrimp, and crabs within the

preserve, both in the salt marshes and offshore, are valuable resources on

which recreational and commercial fisheries depend. Large areas of

undisturbed salt marshes are excellent habitat for many types of wildlife,

including an extensive list of endangered species, migratory waterfowl,

colonial waterbirds, invertebrates and vertebrates.

The manaqement objective for animal life within the aquatic preserve will be

the protection through preservation of habitats and living conditions in the

most natural condition possible.

Management Poli.@y

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 for sound management.

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

Within the Aq4.@_@J.@_Preserve. The field personnel will become familiar with

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

and 1-4'ildlife Service, Department of Natural Resources' Division of Marine

Resources, National Marine Fisheries Service, Marine Fisheries Commission and

any other applicable agencies and non-government organizations involved in the

management of endangered species. These guidelines will be used in

con%i,unction 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. Vanatee Management. When applications for use of submerged lands within

the preserve or adjacent upland activities will affect a manatee sanctuary or

manatees known to use an area (see Chapter IV-B7), field personnel will,

encourage notification of the State Manatee Coordinator. Field personnel will

work with the coordinator in the practice and procedures of the following

activities.

Monitor the preserve for manatee activities and maintain a manatee

sighting map for the preserve. This mapping will take special note

of large seasonal aggregations. A manatee reporting and data

collection system will be established ard will make use of other

government personnel and private individuals where possible.

ii. Identify and map shallow water and narrow areas where manatee

boat/barge collisions are more likely.

Identify areas for additional manatee sanctuaries and special

channel marking and slow speed zones.

iv. Applications for use of submerged lands will be reviewed for design

and operation that are least dangerous and disruptive to manatees.

Approved uses within manatee use areas should require manatee

caution signs and any other requirements that will guaran'tee manatee

health and safety.

V. The creation of new marinas and multiple slip residential docking

facilities should be prohibited in manatee sanctuaries having

designated idle, slow speed or no entry zones and severely 'limited

in identified manatee use areas.

vi. The creation of canals and basins within or contiguous to manatee

sanctuaries having designated-idle, slow or no entry zones shall be

prohibited.

vii. Schedule and monitor activities within manatee use areas during

seasons of lowest use.

viii. Assist in public awareness education efforts.

e. Monitoring Changes in Animal Populations. 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;

iv. changes in habitat due to water quality changes; and

v. geologic or hydrologic changes including erosion,

estuarine current fl'ow chanqes, and any other physical

changes.

f. Protection of Animal Life-From-Huma,n Uses of the Acuatic 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

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

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 that might

affect the well-being of animal life and should be involved in planning the

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

g. Identification of Research Needs. The field personnel 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 Needs).

_h. Coordination with Other Researchers. Field Personnel will become familiar

with research projects conducted within the aquatic preserve by state and

federal agency biologists and non-government researchers. This familiariza-

tion should lead to a better understanding of both agencies' personnel and a

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

also be addressed in Chapter X (Scientific Research).

3. GEOLOGIC FEATURES

The management of geologic features will require that the field personnel

become 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 inlets, islands, shoals,

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

management of these features is to allow the naturally dynamic system to

operate without man's 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, bridges and channels 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 salt

marsh plants 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.

Existing bridges and causeways within the aquatic preserves' river system have

resulted in losses of salt marsh habitat. Future proposed bridge locations

will be reviewed in light of these potential impacts. Causeways restrict

natural flushihg and create unnatural circulation patterns.

Maintenance dredging of existing channels should also be carefully studied to

remove conditions that require perennial maintenance and environmental,

disturbances. New channels also have the potential to adversely impact the

aquatic preserves, with varying influences in each preserve, depending on

channel location.

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, the

Department of Environmental Regulation, the Department of Transportation or

the Water Management Districts, 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. 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.

ii. Each site is unique because individually it represents the

tancible 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 sittes are related to

conditions and event-s in other times and places. They also

preserve traces of past biotic communities, climate, and other

elements of the environment 'Chat may be of interest to other

scientific disciplines.

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

because It-,heir 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.

Administering Agency.

The management of the archaeological and historical sites is authorized and

administered by the Division of Archives, History and Records Management

(CAHRM) in the Florida Cepartment of State. The management authority for this

area of management is presented in Chapter II (Management Authority).

@'.anaqement. Pol i@;y.

The management policy presented here is one of conservation, as recommended by

the DAHRV and subJect to that agency's chandes. -Their policy is as follows:

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(1)(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 vulnerability 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 inay

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.

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 managemnent 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, DAHRVI reserves the right to require salvage

rneasures 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

DAHRIvIl. 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.

W
T
A ER RESOURCES

Responsible management of water resources for the protection of human health

and recreational enjoyment of aquatic preserve waters, as well as for the

protection and enhancement of the preserves' plant and animal communities is,

without a doubt, the most critical aspect of aquatic preserve management.

Research to understand how human activity can alter or detri'mentally affect

the dynamic characteristics oil the preserves' various habitats can be

approached confidently after monitoring data has been used to model the

effects of naturally occurring variations on the same-habitat. Only a single

toxic substance ma be necessary to initiate irreparable ecological damage and
. y

change in the water resources of the aquatic preserve estuarine ecosystem.

f,@.anagement Policy

The successful management of the water resources of the aquatic preserve

depends heavily on other government agencies (i.e., DER and the Water

Management District) charged with regulating water quality and quantity. The

objective of the water resources management shall be to maintain the naturall'y

high water quality and to ensure the natural seasonal fluctuations of fresh

water into the estuary. Sources of water resources data from non-government

agencies, are dependent on or rr-.ay be found among colleges, universities,

scientific foundations and private consultants working in the TRS area. These

various entities have interests at many different levels and areas within the

riverine and estuarine system. The aquatic preserve management program will

trianage the water resources through coordination with these various entities.

The field personnel will not conduct water sampling, but through the review of

these data from other entities and from their own field observations, they

will be able to identify water resource problems in the aquatic preserve.

Von4
a. Familiarization with the jurisdiction, Personnel, and Itoring Programs

of Government @,@e@pc:l.@s_and-Other--Entities. Field personnel will become

thoroughly familiar with the jurisdiction, personnel and monitoring programs

of other agencies, institutions and corporations involved in studying,

monitoring, regulating and managing water resources within the aquatic

preserve and the drainage basins which provide fresh water to this preserve.

Th
I ose agencies kncwn to be working or having potential activities affecting

the preserve are listed below; others may be added as they are identified.

1 Florida Cepartment of Environmental Regulation

2. City of Jacksonville, Department of Health, Welfare and

Bio-environmental Services

3. County Health Department

.4. -St. Johns River Water Management District

5. U. S. Geological Survey

6. U. S. Fish and Wildlife Service

7. Northeast Florida Regional Planning Council

S. City of Jacksonville Planning Department

9. Florida Came and Fresh Water Fish Commission

10. Florida Department of Natural Resources Marine Research Laboratory

11. University of North Florida

1?. Jacksonville University

13. Florida Institute of Technology

14. Florida Medical Entomology Laboratory

15. U. S. Environmental Protection Agency

16. Jacksonville Electric Authority

1
"7
/. Florida Inland Navigation District.

1F. Varine Fisheries Commission

19. Florida Oceanographic Society

20. National Marine Fisheries Service

21. Fairfield Communities, Inc.

b. Monitoring of Water Reso@rc@s_@L Cooperative Data Col-lection and Review.
Field personnel will: 1. promote coordination among involved agencies in

planning monitoring programs and in evaluating monitoring data; and 2. monitor

water resources within the preserve by reviewing the data collected and

compiled by those agencies as it applies to the aquatic preserve and its

resources.

c. Review of Permit and Lease
_pp@ i cation_ for- Aquatic--Preserve Uses and

-he Prese@ve Water Resources. Field
Uatershed Activities that would affect t

personnel will review sovereign land lease applications, development of

regicnal impact reviews, and DER/COE permit applications in cooperation with
other agencies as necessary, and as outlined in Chapter V (C) for their

potential impact on the water resources of the aquatic preserve.

d. Familiarization with and-Y-onitoring of-Activities-and-.Users which

Regularly Contribute Pollutants to Preserve Waters. Field personnel will

become familiar with the activities and users which regularly or potentially

contribute pollutants to the waters of the aquatic preserve. This monitoring

will be accomplished directly by field observations and indirectly by review

of other entities' water resources data. Field personnel will encourage and

coordinate with other agencies involved with water resources monitoring to

consider more detailed field monitoring in areas of the preserve where the

incidence of polluting activities is found to be high. These monitoring

activities will also include the monitoring of freshwater releases into the

preserves and their effect on the environment.

These activities will also be applicable to Chapter X (Scientific Research),

and the coordination through Chapter V! (Management Implementation Metwork).

The field personnel's onsite presence will be complemented by their reliance

on other agencies and entities for data and regulation. The field personnel

will have the ability to visually monitor water resource crises and phenomena

as they occur and when they affect other resources.

6. CUMULATIVE IMPACT ANALYSIS

Cumulative Impacts are the sum total of maJor and minor changes or effects

upon a natural system. Taken singularly these effects may not constitute a

notable change in the condition of the natural system, but as these single

chanaes or uses accumulate, their combined impact may result in a substan-

tive environmental disturbance or degradation of the natural system.

The review of proposed uses in the aquatic preserve from the perspective of

cumulative impact analysis requires a thorough knowledge of the natural system

and the various interactions and dynamics within that system. This aquatic

preserve management program will initiate development of a cumulative impact

analysis program. The evaluation of cumulative impacts shall include the

following criteria from Chapter 1.6Q-^e_-O F.A.C.:

"(I) The number and extent of' similar human actions within

the preserve which have previously affected or are

likely to affect the preserve, whether considered by
the Department under its current authority or which

existed prior to or since the enactment of the Act; and,
(2) The similar activities within the preserve which are

currently under consideration by the department; and
(3) Direct and indirect effects upon the preserve and

adJacent preserve, if applicable, which may reason-

ably be expected to result from the activity; and
(4) The extent to which the activity is consistent

with management plans for the preserve, when

developed; and

(5), The extent to which the activity is permissible

within the preserve in accordance with comprehensive

plans adopted by affected local governments, pursuant

to-Section 163.3161, F.S., and other applicable plans

adopted by 'local, state and federal governmental agencies.
(6) The extent to which the loss of beneficial hydrologic

and biologic functions would adversely impact the quality

or utility of the preserve; and
(7) The extent to which mitigation measures may compensate

for adverse impacts."

The availability of onsite reserve staff who are familiar with the distinctive

characteristics of this system, coupled with their ability to access LANDSAT

imagery and mapping, and other data sources, is the key to development of a

successful cumulative impact analysis program. As cumulative impacts are

i 4-
identified for specific areas and/or resources, they will become'an niegral

part of the project analysis and decision-making process.

7. MANAGEMENT OF ENCROACHMENTS

The management of encroachments in the preserve will concern the urauthorized

placement of structures or other illegal uses in the aquatic preserve. These

encroachments might also include illegal activities associated with an approv-

ed use (e.g., extension of a dock, construction of boat houses, extension of

an approved channel).

The management policy for the field personnel, after identification of a

suspected illegal encroachment, will involve a reporting procedure and the

monitoring of the remedial action. A-Fter a field identification of suspected

encroachments, field personnel will notify the central office to verify the

title of the property and research the possibility of the use being an approv-

ed activity. Due to the extensive areas involved in the aquatic preserve,

this will be a progressive activity depending on the field personnel's

eventual familiarization with the preserve and the approved uses. The potent-

ial for unauthorized activities in such an extensive area may possibly require

some type of mapping and recording system to assist the field personnel in

their monitoring.

The management action for verified illegal encroachment will be developed by

the agencies specifically involved (i.e., DNR, DER). The field personnel will

assist, as necessary, with field evaluations or other support activities. The

final action will be monitored by the field personnel, at the direction of the

Trustees to the central office. The procedures followed in these applications

will be decided on a.case by case basis.

C. RESOURCE MAPPING AND RESOURCE P?OTECTION AREAS

The efficient description and location of resources within such a large area

requires the use of remote sensing techniques. This work will be done in

conjunction with DNR's Marine Research Laboratory's Assessment of Fishery

Habitat Loss Study in the area's river systems. Marine Research Laboratory

personnel have developed resource and habitat identification mapping through

the use of LANDSAT (satellite) imagery and aerial photography.

The vegetation and land use mapping done in this study will become the basis

for the development of a Resource Protection Area management system in the

aquatic preserves. This mapping-system will identify and classify various

resources within the aquatic preserves that require protection by the

management program. This mapping system will also give acreage totals for

each land use and vegetation classification in the preserves. The vegetation

portion of the mapping will be augmented over time by wildlife and fisheries

information (endangered species, bird rookeries, etc.), archaeological and

historical site information and other resource factors deemed crucial to the

continued health and viability of the aquatic preserves.

The onsite managers will supplement this mapping with the above information to

develop and update a Resource Protection Area (RPA) mapping program. The RPA

mapping system is based on three levels of resource classification. The Class

1 level will contain resources of the highest quality. Uses proposed for

these areas will receive the most rigorous review. The Class 1 level will

include one or more of the following: saltwater marsh, beaches, oyster bars,
archaeological and historical sites (upland and submerged), endangered species

habitat, colonial waterbird nesting sites, and other appropriate factors.

The Class 2 areas will be defined as those areas containing the resources of

Class 1, but in a transitional condition compared to Class 1. These resources

will either be building toward Class 1 status or declining to Class 3 status.

Class 2 areas will require careful field review as to the specific area's

sensitivity to each proposed use. In some respects, these areas may be as

sensitive or more sensitive to disturbances as Class I areas. The resources

of Class 9 will include: beaches undergoing restoration, saltwater marsh

colo nizing new lands, and other resources of Class 1 type that fit in the

Class 2 condition.

Class 3 areas will be characterized by the general absence of the attributes

of the above two classes. Class 3 areas may have small localized Class I or 2

areas within them. Class 3 will generally have deep water areas or areas with

no significant vegetation or wildlife attributes. Nearshore and bottom areas

significantly modified by man will be designated Class 3.

These RPA maps will require periodic revisions as the onsite managers learn

more about the resource's reactions to man's uses. Scientific research and

other data additions may also require modification of this system. Natural

changes will also require modification of this classification system.

Periodic checking by LANDSAT satellite imagery will become useful for remote

sensing monitoring as its use is more fully developed.

The RPA maps will become a planning tool for both onsite and central office

staff. More detailed fiel-d review will still be required to supplement this

information on a case by case basis, a.s necessary.

The initial development, as well as periodic review, will require the support

and assistance of the many other resource regulating and managing agencies, as

well as local and regional government entities. Support will also be request-

ed from th e colleges, universities, foundations and other interest groups and

individuals.

The RPA mapping will use the USGS 7.5 minute quadrangle map format for

vegetation and these maps, after validation by field truthing, will be placed

in Appendix D of the aquatic preserve management plafl. It is recognized that

mapping at this scale may not adequately define small areas which do not

qualify for the RPA class level assigned to a general area.

D. ADMINISTRATIVE MANAGEMENT OBJECTIVES

This section of the chapter addresses the role of the central office, in the

aquatic preserve management planning and implementation process. The central

office's role is generally interpreted within the context of coordinating

activities with the field personnel. This coordination linkage is important

to many program aspects, including project review and evaluation, local

contact initiation, administrative rule development, contractual services and

conflict resolution, not to mention the routine support (payroll, operating

expenses, etc.) usually extended by the central office to the onsite managers.

All program activities identified within this context are designed to protect

and enhance the environmental, educational, scientific, and aesthetic

qualities oil the natural systems of the aquatic preserve.

1. Objectives

Specifically, the following administrative objectives are an essential part of

the aquatic preserve management program.

a. To ensure a comprehensive, coordinated review and evaluation of

proposed activities potentially affecting the environmental integrity

of the aquatic preserve.

b. To serve as the link between aquatic preserve field personnel and

state agencies and programs which originate in Tallahassee.

c. To serve as the primary staff in the development of administrative

rule additions, deletions, and revisions.

d. To serve as the administrative staff for contractual agreements and

services.

e. To establish and maintain a conflict resolution process.

f. To review all existing and past activities as to their affect on the

environmental integrity of the aquatic preserve.

FroJect Review and Evaluation

A malior element in the administration of an aquatic preserve management system

is the establishment of a thorough project review process. It is the program

intent that the central office staff review all proposed activities requiring

the use of state-owned lands within the preserve.

Sections '258.42 through 258.44, F.S., establish the legal context within which

all proposed uses of the aquatic preserve must be evaluated.

Essentially, these sections require that projects be basically water dependent

or water-enhanced, not contrary to the lawful and traditional uses of the

preserve, and not infringing upon the traditional riparian rights of the

upland property owner.

The primary mechanism through which proposed uses are reviewed is accomplished

by participation in the state lands management process as established by

Chapter, 253, F.S., and modified by Chapter 2158, F.S. The central office was

administratively designated, on October 4, 1982, as an agent of the Trustees,

for the purposes of evaluating the environmental consequences of proposed uses

oil state-owned lands within aquatic preserves.

In conducting the environmental evaluations, the central office staff will

rely heavily upon the most current, readily available data such as Department

of Transportatio n (COT) aerial photography, LANDSAT imagery, DER biological
reports, and other data resources (see Appendices C and D). If a proposed

activity is legally consistent with the maintenance criteria outlined in -

Section 258.A2 F.S. and Chapter 16Q-20, F.A.C., and is generally of negligible

environmental concern, then the project review will likely be conducted in its

entirety by the central office staff, utilizing the generalized environmental

data.

The field personnel will be requested to conduct a more detailed environmental

assessment of the project if the central office staff, during the course of

the preliminary application review, determines that the requested use of

state-owned lands may have a significant effect upon the environmental

integrity of the preserve. Copies of all applications received will be

provided to the field personnel for project monitoring and assessment of the

possible cumulative impacts.

Field personnel will be encouraged to establish direct communication links

with the various regulatory and management agencies for purposes of obtaining

advance notification of projects potentially affecting the preserve. All

environmental review and assessments, however, will be channeled through the

central office unless other arrangements have been previously cleared with the

central office.

While the State Lands Vanagement Program authorized by Chapters 253 and 258,

F.S. and Chapters 16Q-20 and 16Q-21, F.A.C. is expected to be the primary

management implementation vehicle for the aquatic preserve, it is by rc means

the only vehicle. Section 253.77, F.S., as amended, and the December, 1982

Vemorandum of Underst-anding between the COE, DER and ONR provide direct access

to DER's permill"Aing process for UP. The Development of Regional Impact (ORT.)

and other regional or state level review processes represent other implemen-

tation mechanisms. The basic review approach and the evaluation relationship

between the field personnel and the central office staff will be the same as

the case involvina the State Lands Management program.

One aspect of the aquatic preserve review and evaluation program is the

identification of proposed activities that are either generally or specifi-

cally prohibited. Immediately upon review of such project applicatictis, the.
ce-ntral office staff will notify the Division of State Lands (or other program

managers) that the proposed activity is legally unapprovable for the stated

reasons. For those proposals which are subject to denial due to their adverse

environmental impacts, even though the activity may be permissible, Section

2-58.42, F.S., specifically provides that:

"(1) No further sale, lease, or tran.sfer of sovereignty subr-rerged

I
lands shall be approved or consummated by the trustees except

when such sale, lease, or transfer is in the public interest.

(2") The trustees shall not approve the waterward relocation or setting

of bulkhead lines waterward of 411-he line of mean high water within

the preserve except when public road and bridge construction

projects have no reasonable alternative and it is shcwn to be

not contrary to the public interest.

(3)) (a), No further dredging or -Filling of submerged lands shall

be approved by the trustees except the following activities

may be authorized pursuant to a permit:

1. Such minimum dredging and spoiling as may be authorized

for public navigation projects.

2. Such minimum dredging and spoilinq as may be authorized

for creation and maintenance of marinas, piers, and docks

and their attendant navigation channels.

3. Such other alteration of physical conditions as may, in

the opinion of the trustees, be necessary to enhance the

quality or utility of the preserve or the public health

generally.

4. Such other maintenance dredging as may be required for

existing navigation channels.

5. Such restoration of land as authorized by S. 253.124(8)

F.S. (This statutory authorization was repealed pursuant

to the provisions contained in the Warren S. Henderson

Wetlands Protection Act of 1984, Chapter 84-79, Laws of

Florida.)

6. Such reasonable improvements as may be necessary for

public utility installation or expansion.

7. Installation and maintenance of oil and gas transportation

facilities, provided such facilities are properly marked

with marine aids to navigation as prescribed by federal

law.

(b) There shall, in no case, be any dredging seaward of a

bulkhead line for the sole or primary purpose of providing

fill for any area landward of a bulkhead line.

this will not prohibit the state from leasing the oil and

gas rights and permitting drilling from outside the

preserve to explore for oil and gas if approved by the

board.

(d) There shall be no excavation of minerals, except the

dredging oil dead oyster shells as approved by the

Department of Natural Resources.

(e) There shall be no erection of structures within the

preserve, except:

1. Private docks for reasonable ingress or egress of

riparian owners;

2. Commercial docking facilities shown to be consistent

with the use or management criteria of the preserve;

and

3. Structures for shore protection, approved navigational

aids, or public utility crossings authorized under

subsection (3)(a).

M No wastes or effluents shall be discharged into the

preserve which substantially inhibit the accomplishment

of-the purposes of this act.
(g) No nonpermitted wastes or effluents shall be directly

discharged into the preserve which substantially

inhibit the accomplishment of the purposes of this act."

Generally, applicants desirous of appealing staff recommendations will have to

follow those appellate procedures outlined in the appropriate authorizing

statutes. In the case where applications requesting the use of state-owned

lands are denied, three appellate procedures are available to the applicant.

Depending upon the type of application submitted, an applicant may:

a. Ask the Governor and Cabinet to overturn an application decision

rendered by the Executive Director of Department of the Natural Resources

(or his designee) under a delegation of authority;

b. Request an Administrative Hearing under the procedures outlined in

Chapter 120, F.S.; or

c. Appeal the action of the Board of Trustees of the Internal Improvement

Trust Fund to the District Court of Appeals.

3. Liaison Between Field Personnel and Other Interested Parties

One of the most important aspects of the field personnel's job is to establish

a mutually beneficial communication link with pertinent interest groups. The

central office staff will assist in initially identifying and contacting

4
governmental bodies, special interest groups and interested ind,viduals

requiring aquatic preserve program coordination.

When requested by the onsite managers, the central office staff will assist

in arranging for specialized management expertise not generally available

locally. This may include, for example, such things as arranging for DAHRM

to conduct a detailed cultural resource assessment for certain areas of the

the preserve.

Chapter VI

MANAGEMENT IMPLEMENTATION NETWORK

This chapter of the management plan will address the various

relationships of aquatic preserve management to the different government

agencies and programs, non-government entities, interest groups, and

individuals within the aquatic preserve area. The activities of both field

personnel and central office staff as they relate to these other organizations

will be presented.

A. FEDERAL

Many federal agencies have property interests, land and wildlife management

programs, research activities, construction activities, and regulation

programs existing or potentially existing within the aquatic preserves. The

objective of the aquatic preserve management program will be to complement the

various activities wherever possible. The field personnel will assist those

federal acencies in areas where they have common goals. The field personnel

and central office staff will also review the federal activities as to their

effect on the obJectives of the aquatic preserve management. This review

shall be coordinated through the DER's Office of Coastal Management for the

purposes of enforcing the pro visions of the Federal Coastal Zone Management

Act of 1972, as amended.

1. United States Fish and Wildlife Service. The aquatic preserve program

will be involved in the review of proposed preserve uses in conjunction with

the Fish and Wildlife's Division of Ecological Services in Vero Beach. This

division reviews dredge and fill requests and other federal level permitting

under the Fish and Wildlife Coordination Act.

Another management program in which the field personnel could possibly

interact with the Fish and Wildlife Service is the protection.and recovery of

endangered species and bird.rookeries within the aquatic preserve. Field

personnel will become involved in using available recovery techniques for this

purpose, as necessary.

U.S. Army Corps of Encineers. The U.S. Corps of Engineers (COE) is

charged with providing technical guidance and planrirg assistance for the

Nation's water resources development. The COE also provides supervision and

direction to many engineering works such as harbors, waterways and many other

4.
Cypes of structures. Their major responsibility, as it applies to the aquatic

preserve, is the protection of navigable waters, pollution abatement and

maintaining water quality and the enhancement of. fish ard wildlife.

The COE activities in the TRS include their involvement with the DER in the

dredge and fill permitting process, technical oversight of channel, inlet and

canal maintenance, and evaluating requests for new channels, canals and other

such public works projects. The field personnel will become familiar with the

various programs, policies and procedures as they apply to the aquatic

preserve.

The field personnel and central office staff will also review activities

proposed by the COE for conformance to the objectives of the aquatic
preserves' management plan. This-involvement should begin in the early stages
of project planning in order to facilitate the best protection of the aquatic

preserve possible.

U.S. Geological Survey. The U.S. Geological Survey (USGS) under the

Department of the Interior has the responsibility to perform surveys,

investigations, and research pertaining to topography, geology, and the

mineral and water resources oil the United States. USGS also publishes and

disseminates data relative to those preceding activities. In the past, the

USGS has.conducted many studies on various resources in the region.

The field personnel and central office staff will become familiar with these

studies and the data results as they apply to their management activities.

4. U.S. Environmental Protection Agency, The U.S. Environmental Protection

Agency (EPA), in cooperation with state and local governments, is the federal

agency responsible for the control and abatement of environmental pollution.

The six areas of pollution within which the EPA is concerned are air, water,

solid waste, noise, radiation and toxic substances. The DER is the state

agency responsible for handling most of these programs on a state level in

lieu of a federal program. Within the aquatic preserve, the field personnel

will assist the EPA in planning field activities where there are common goals.

5. U.S. Coast Guard. The U.S. Coast Guard is the federal agency involved in

boating safety, including search and rescue when necessary. The Coast Guard

is also charged with the permitting of structures which affect navigation and

boating safety. These structures include bridges, causeways, aerial utilities

and other structures which may be in conflict with navigational uses. The

field personnel, in conjunction with the central office staff, will also

review projects which the Coast Guard may be evaluating for permits.

6. National Marine Fisheries Service. The National Marine Fisheries Service

(MMFS) under the U.S. Department of Commerce is.active in the TRS area in

recording commercial fish landings. The NMFS also has enforcement officers in

the area checking for illegal fishery activities. The field personnel will

work with these personnel whenever they have common goals within the aquatic

preserve.

B. STATE

Many state agencies have programs which affect the resources or regulate

activities within the aquatic preserve. There are also other DNR programs

that are within or affect the Nassau and Duval Counties Aquatic Preserves.

This section will describe the interactions and relationships of these various

agency programs and how they relate to aquatic preserve management.

1. Department of Environmental Regulation. The Department of Environmental

Regulation (DER) is the state agency in charge of state-wide regulation of

water quality. The DER is also the local contact in the aquatic preserves area

for the initiation oil dredge and fill applications in conjunction with the C'OE

andVIR. With respect to water its regulatory authority over quality and

dredge and fill, the DER is one of the most important agencies to the

management of-the aquatic preserve. The DER normally regulates other forms of

pollution, such as air, noise, wastewater and hazardous waste, which is

important to the future of the preserve. In Duval County certain regulatory

authority for permitting of point source pollution from industrial and

domestic effluents has been delegated by the DER to Duval County's Biological

and Environmental Services.

The field personnel will become familier with the water quality, dredge and

fill, and other regulatory programs that are important to the aquatic

preserve. The field personnel will develop a close working relationship with

local DER staff and Duval County Biological and Environmental Services and

become familiar with their programs that are in common with the obliectives of

the aquatic preserve management program. The field personnel should open the

most efficient line of communication with the local offices to receive the

permit applications as soon as possible to improve the response time within

the review process.

The DER, Office of Coastal Manaqement is charged with coordinating activities

related to coastal management in the state and reviewing federal actions for

consistency with the State Coastal Management Program, Section 380.20, F.S.

The central office staff will maintain a close relationship with the Office of

Coastal Management for assistance in the review of federal actions, data and

research needs, and other program support.

?. Department of Ccmmunity Affairs. The Department of Community Affairs

(DCA' is responsible for reviewing Developments of Regional Impact (DRI).

DRI's are major developments that have impacts on a scale which is greater

than county level and require a regional review from neighboring local

governments and state agencies. Both the central office staff and field

personnel of the aquatic preserve program will be involved in reviewing DRI's.

The field personnel should receTve notice of a DRI through the central office

staff and will proceed with the field review. The central office staff will

coordinate the field review findings and work with the other state agencies in

Tallahassee in the review of the DRI.

Department of Natural Resources. The aquatic preserve management program

is associated with several other Department of Natural Resource (DNR) programs

in the area.

DNR's Marine Research Laboratory in St. Petersburg, under the Division of

Marine Resources, has several. programs and projects within the TRS which will

benefit the aquatic preserve program. The Marine Lab is presently studying

fishery habitat losses in the TRS. The Resource Protection Area mapping,

which will be used in the management of these aquatic preserves, was created

as a product of that fishery habitat loss study. The data from this project,

when it is completed, will be incorporated into this management plan. The

Lab staff is also involved in manatee protection programs and is the

headquarters of the State Manatee Coordinator.

The field personnel will become familiar with these studies and programs, and

9.4

will consult the Marine Lab for their data needs whenever possible.

The Division of Marine Resources also handles the permitting for the

collection of certain marine species and use of certain chemicals. The field

and central office staff will become familiar with this permitting process and

request notification of these permits within the aquatic preserve.

The Marine Patrol, under DNR's Division of Law Enforcement, also operates in

the TRS-Aquatic Preserve. The field personnel will become familiar with their

programs and operation, and will call on the Marine Patrol for law enforcement

support as required.

The Division of State Lands within the DNR is charged with overseeing uses,

sales, leases or transfers of state-owned lands. The aquatic preserve staff

will interact with State Lands in all transactions concerning submerged lands

within the aquatic preserve. These would include the potential acquisition of

privately titled submerged lands or contiguous uplands important to the

integrity of the preserve. This relationship is more fully described in
Chapter V(C).

The Division of Resource Management, through the Bureau of Geology and Aquatic

Plant Research and Development, is responsible for various programs poten-

tially affecting the aquatic preserve. Staff will establish communication

links with this Division to ensure that adequate consideration is given to

potential impacts upon the preserve that may result from the conduct of their

various programs.

The Division of Recreation and Parks, in addition to administering the Aquatic

Preserve Management Program under the Bureau of Environmental Land Management,

manages 1 state recreation area (Amelia Island), 3 state parks (Big Talbot

Island, Little Talbot Island,,and Fort Clinch), 3 state historic sites

(Fernandina Plaza, Kingsley Plantation, and Yellow Bluff Fort), and 1 state

reserve (Nassau Valley). Within the boundaries of *each of these recreation,

historic and botanical areas, unique upland and aquatic habitats are pre-

served. This is important for the maintenance of the habitats themselves and

their preservation as examples of unique environments in Florida. The aquatic

preserve program will work closely with these programs as they relate to

aquatic preserve management objectives.

4. Marine Fisheries Commission-(MFC).

The MFC was established as a rulemaking authority pursuant to Section 370.027,

F.S. The seven members are appointed by the gov.ernor and are delegated full

rulemaking authority over marine life (subject to approval by the Trustees),

with the exception of endangered species. This authority covers the following
areas: a) gear specifications, b) prohibited gear, c) bag limits, d) size

limits, e) species that may not be sold, f) protected species, g) closed
areas, h) quality control codes, i) seasons, and il special considerations

related to eggbearing females and oyster and clam relaying. The field

personnel and central office staff will become familiar with and enforce the

rules of the MFC.

The MFC is also instructed to make annual recommendations to the Trustees

regarding Marine fisheries research priorities. The field and central office

staff will use these recommendations to direct research efforts within the

aquatic preserve.

5. Florida Game and Fresh Water Fish Commission. (GFWFC) The GFWFC's

Environmental Services office in Vero Beach sends biologists into the area to

review projects which may have potential impacts on local fish and wildlife

habitat as necessary. The central office will use the GFWFC's assistance in

their review process, when possible, and in developing fish and wildlife

-management for the aquatic preserve.

The GFV!FC has enforcement officers working in this area. The field personnel

will interact with these officers where there are common goals.

The GFWFC is also the state coordinator of the Endangered Species in Florida.

The field personnel and central office staff will work with GFI-IFC personnel in

developing program needs in this area.

6. Department of Transportation. (DOT) The DOT has an office in Jacksonville

and the field personnel and the central office will work with the resident

encineer on anticipated projects having possible impacts on the aquatic

preserve. The field personnel and administrative staff will review any major

highway or bridge projects that may be proposed in the future.

7. Department of State. The Division of Archives, History and Records

Management (DAHRM) in the Department of State will have a close working

relationship with the field personnel and central office staff in the

protection of archaeological and historical sites. The field personnel will

be directed by DAHRM, through the central office, in any activities or

management policy needs for these sites.

S. Health and Rehabilitative Services. (HRS) Both the central office'staff

and field personnel will establish communication and coordination linkages

with HRS and their locally conducted programs of septic tank regulation and

mosquito control. Although mosquito control serves a useful public function,

the effects of pesticides (adulticides and larvacides) in the waters of the

preserve are a primary concern. Additionally, the central office staff will

become involved in future meetings and management programs developed by the

Governor's Working Group on mosquito control. Subsequent policy recommenda-

tions coming out of this group will be evaluated for applicability to the

ongoing aquatic preserve management program.

C. REGIONAL

The regional level of the management implementation network as it applies to

the TRS Aquatic Preserves will include the St. Johns River Water Management

District, the Northeast Florida Regional Planning Council, and the Florida

inland Navigation District. These organizations have activities that are

broader than the local government, but are on a smaller scale than the state

level.

1. Water Management District. The St. John's River Water Management District

has jurisdiction over Nassau and Duval Counties, as well as other northeast

Florida counties. The water management district administers permitting pro-

grams for the local consumable use of water, storm water discharges, and

dredge and fill type activities.

This includes the withdrawal and use of water from rivers, streams, and wells.

The types of water uses they permit in the TRS area include irri gation and

public water supply. The field personnel will become familiar with the review

ane permitting procedures as they might apply to water supply in this basin.

The water management district is also involved in various studies on water

supply and management, and other related research that may be of use to

aquatic preserve manageinent.

?. Northeast Florida Re_Clonal-Planninq-Council. The Northeast Florida
Peoicral Planning Council (NEFRPC) serves as a regional planning body for the

local governments of Duval and Nassau Counties as well as other northeast

Floirda counties. Among its duties, the NEFRPC:

a. aids local governments with planning expertise;

b. is the regional representative for the Development of Regional

Impact (DRI), review process;

C. serves as a regional clearinghouse for state and federal projects

and programs; and

d. conveys information from the local governments to the state and

federal levels.

The field personnel will become familiar with the various projects, programs,

and data sources that the NEFRPC has within its administration that may effect

or prove useful to the aquatic preserve program.

The DRI review of projects which affect the aquatic preserves will be reviewed

by the central office staff, with the field personnel's field review, when

necessary. DRI's for large marinas, large subdivisions on the uplands above

the preserve, and commercial or industrial developments will require a field

review by the field personnel as to their effect on the aquatic preserve.

Florida Inland Navi ation District (FIND). The FIND is a multi-county

district sponsor of the Intracoastal Waterway from Nassau County south to Dade

county. FIND is also responsible for providing and maintaining spoil areas

(spoil islands) to the Corps of Engineers for the dredging and maintenance of

the Waterway. FIND presently holds title to channel and spoil easements

throughout the TRS. Field personnel and the central office will work closely

with the FIND on future dredging proposals.

0. Local Governments.

This section will address the relationship of the aquatic preserve management

program to the various local government agencies, special districts and their

programs. The local governments are the incorporated cities and counties that

1QO

surround the aquatic preserve. The aquatic preserves span Massau and Duval

Counties. The incorporated City of Fernandina Beach and the consolidated City

of Jacksonville border this area. Unicorporated communities include

Nassauville, Hedges, Amelia City, Franklintown, Mayport, and Cedar Point. The

special districts for mosquito control and their relationship to aquatic

preserve management, are also presented.

The field personnel will be the local liaison for the aquatic preserve to

these local government entities to assist them in modifying the.ir policies and

practices to conform to the objectives of the aquatic preserve's management

plan, and to exchange information and expertise for mutual benefits.

1. Relationship to local management plans. Local (municipal and county)

governments are required by the Local Government Comprehensive Planning Act of

1.0.75 (Section 163.3161, F.S.) ras amended by Chapter 85-55, Laws of Florida,

to the Local Government Comprehensive Planning and Land Development Regulation

Actl to update their local plans and (among other requirements adopt land

development regulations and improve coastal management protection. The

coastal management element of the LGCP along with the land use and

conservation elements establishes long range plans for orderly, and balanced

development, with particular attention to the identification and protection of

environmental resources in the planning area. Conformance with the criteria,

policies and practices of a local government comprehensive plan is required

for all development with the local governmental jurisdication.

The intent of the aquatic preserve management program and this plan is to

guide local govermments during their comprehensive planning toward developing

101

local plan criteria and standards to be consistent with the objectives of the

aquatic preserve program. Field personnel will become acquainted with local

planning efforts and local officials and lend assistance for this purpose. in

addition, the central office and field personnel will encourage and assist

local officials in preparation of marina elements in their local plans to

comply with aquatic preserve rules for commercial docking facilities as

specified in Chapter 16Q-20.04(5)(d)(4), F.A.C.

-1@ Relation to local development codes. The local zoning and development

codes (e.g., building codes) provide the major local regulation that defines

what an owner can do on a particular parcel oil property. The zoning

prescribes the allowable uses and the intensity of those uses. Certain uses

along an aquatic preserve can potentially have a profound effect on a

preserve.

This section will operate in conjunction with the preceding section on local

management plans. The field personnel will become familiar with the local

zoning, development codes and their potential effects on the nearby aquatic

preserve. The field personnel will assist local planning and zoning officials

in identifying areas where changes in zoning would better conform to the

objectives of 'Che aquatic preserve management. The field personnel might also

offer to assist local planning and zoning officials in the review of proposed

subdivisions upland of the preserve.

2. Suggested policies and practices-iT support of Aquatic Preserve

Management. This section will address any other policy or practice not

102

covered in the two preceding sections. These policies and practices might

include local government ordinances; recreation problems where a park is in or

near an aquatic preserve, or any other problem as it might relate to local

governments. The field personnel will offer assistance or information to

local officials or will coordinate with other agencies to help solve these

problems as they occur. The field personnel will work with county personnel

on enforcement of local ordinances. The field personnel will also comment,

through the central office, on any local practice that is identified as

endangering the well-being of the aquatic preserve.

4. Special Districts (Drainage, Inlet and Mosquito Control). The special

districts are taxing districts established to correct mosquito control

problems. The Amelia Island Mosquito Control District operates in Nassau

County. There are no special districts in Duval County and mosquito control

is handled by the Department of Health, Welfare and Bio-environmental

Services.

These districts may not have official comprehensive manager,.,ent plans, but they

do have management policies and program statements that are similar to

such a plan. The field personnel will become familiar with these policies and

the activities o-F these districts and will monitor their effect on the aquatic

preserve. For example, the field personnel might recommend identifying areas

that should not receive mosquito spraying or other alternative management

because of remoteness to inhabited areas and possible, tut unnecessar damage
y

to the resources of the aquatic preserve.

103

E. Other Entities

This section will apply to the numerous entities that have an interest in the

aquatic preserve but are non-governmental agencies. This will include, but

not be limited to, the environmental interest groups (i.e., Audubon Society,

Sierra Club and The Mature Conservancy), the scientific organizations, the

fishing and sports interest groups (i.e., Florida League of Anglers, Organized

Fishermen of Florida), the universities that may have research activities in

the preserve (i.e., University of North Florida, Jacksonville University), and

any other interest groups or individuals. The relationship of these entities

to aquatic preserve management might include the coordination of activities,

such as scientific research, environmental education, management of rookeries

or other natural areas, or numerous other possible activities. A worthwhile

aquatic preserve management process will depend on the continued support and

help of these interest groups in all of the aquatic preserves. The field

personnel will be active in communicating the aquatic preserve management

process and activities to the various groups and consulting with them for

their help in their areas of expertise.

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Chapter VII

PUBLIC USES

This chapter addresses the public use of the aquatic preserve. The public in

this case shall refer to the general public or those persons without riparian

rights. The "Florida Aquatic Preserve Act of 1975" (Section 258.35, F.S.)

allows 'or the lawful and traditional public uses of the aquatic preserve,

such as sport fishing, boating and swimming (as adapted from Section

258.43(l), F.S.). These and other traditional uses that do not involve a

commercial intent or the use of a riparian right to place a structure in the

preserve, and do not degrade or otherwise destroy the preserve will be con-

sidered public uses. This section will be further divided into consumptive

and non-consumptive uses as applicable to each resource.

A. Consumptive Uses.

Consumptive uses involve the removal oil resources from the preserve.

These uses include fishing, huntina, shellfishing, and other related

activities. They also include the unintentionall removal of resources

such as boat damage to salt marshes. The management of these uses

(see Chapter V. Resource Management, Section B: Onsite Management

Objectives) will include the observation and monitoring of the effects

of these uses on the resources. The field personnel will periodically

assess the impacts through the use of the Marine Pesearch Laboratory's

LANDSAT capabilities for habitat losses or disturbance in the TRS

105

area plus any other studies or data sources that might become available.

This management will also include the protection of the resources from

unlawful or excess practices of these uses. The legality of these uses

will be controlled by existing applicable state laws and local

ordinances. Field personnel will, for example, become familiar with and

will enforce rules adopted by the Varine Fisheries Commission. These

will include regulations on fishing gear, bag and size limits, closed

areas, seasons, etc.

Consumptive uses will also be monitored for their effect on other

resources (e.g., bird rookeries, salt marshes, oyster bars, archaeolog-

ical and historical sites). The field personnel will also be sensitive

to additional enforcement needs (i.e., the need for additional enforce-

ment staff during nesting seasons).

R. Mon-consumptive Uses.

These uses are those which do not generally remove resources from the

preserve. Examples of these uses include swimming, diving, boating,

bird-watching, and other related activities. The management practices

involved with these uses will be the same as those previously described

under Section A., except that these uses are not generally controlled by

law. The guiding principle in these cases will be whether or not the

activity causes a disruption of the preserves' resources (e.g., destroys

salt marshes, disturbs rookeries). Only in the event of these disrup-

tions will the field personnel become involved. Some of these uses may

possibly be involved in environmental educational (Chapter XI) programs.

106

Chapter VIII

PRIVATE NON-COMMERCIAL USES

This section will apply to those private, non-commercial, uses which are

associated with riparian land ownership. The management of the aquatic

preserve recognizes the traditional riparian rights of upland property owners.

The right of ingress, egress, boating, swimming, fishing, and other incidental

uses of sovereignty lands, historically allowed for the placement of certain

structures, such as docks, within the preserve. This right to make any

preemptive use of sovereign lands is a qualified one and can only be exercised

with the prior consent of the Board after a finding that such uses willnot

impair public uses, or destroy or damage areas of environmental significance.

The review oF proposed activities will require the interaction of the Resource

Protection Area mapping with administrative and possible field review and

later monitoring by field personnel as projected by Chapter V., Section B.

Private non-commercial uses shall be designed to avoid critical Resource

Protection Area (Class 1 and 2) and shall be designed to reduce the use's

impact to the preserve in general. Tndividual applications for these

private non-commercial uses shall be reviewed by the applicable Resource

Protection Area Map and criteria. In addition, private dock proposals will

be reviewed by the criteria described in Section 16Q-20.04(5), F.A.C., of the

revised General Aquatic Preserve Rule.

107

Bulkheads should be placed, when allowed, in such a way as to be the least

destructive and disruptive to the vegetation and other resource factors in

each area. Approved uses which do disrupt or destroy resources on state-owned

lands will require mitigation. This mitigation will include restoration by

the applicant or other remedy which will compensate for the loss of the

affected resource to the aquatic preserve.

Dredging within the aquatic preserve shall be held to a minimum. Dredging

proposals shall be reviewed according to the procedures in Chapter V depending

on the proposed activities location within the RPA. Proposals within Class I

areas (Chapter V (B)r6l) will be scrutinized to the maximum extent in order to

find the best practicable method of development and location if that use is

acceptable in that particular area of the preserve. The mitigation of lost or

disturbed resources shall be required. There shall be no dredging allowed in

Class I or 2 areas or in nearby areas if it will adversely impact these areas.

The location of proposed multiple docking facilities, such as for condominium

developments, shall be based on the marina siting criteria described in

Section 16Q-20.04(5), F.A.C. of the revised General Aquatic Preserve Rule.

Authorization of such facilities will be conditioned upon receipt of

documentation evidencing the subordination of the riparian rights of ingress

and egress for the remainder of the applicant's shoreline for the life of the

proposed docking facility. Boat ramps and travel lift platforms or other

similar launching facilities, with associated temporary mooring facilities,

will be encouraged over permanent wet storage facilities. Non-residential
docking facilities (commercial) are addressed in Chapter IX.

108

The use of seaplanes within this preserve is seen as a non-traditional use.

Applications for seaplane use within the preserve will be reviewed on a case

by case basis. These uses will only be recommended where such use will not

affect resource protection areas or natural values of the preserve, not effect

endangered species habitat, can be utilized in a safe manner, and will not

preempt traditional uses within the proposed use area.

109

OTT

Chapter IX

COMMERCIAL'USES

This section addresses the variety of traditional and non-traditional (i.e.,
new uses to this area) commercial uses which might occur within, or adjacent

to, the aquatic preserve. Among the traditional uses in this area are utility

crossings, power plants, marinas and yacht clubs, ferry services, commercial

fishing, boat and barge traffic associated with commerce and industry, deep
water port facility, and boats (i.e., sportfishing, diving) for hire. Non-

traditional uses in this area which have also occurred in other areas of this

or other states include oil and gas transportation facilities, and other such

commercial uses.

A. TRADITIONAL COMMERCIAL USES.

1. Utility Crossings. There are at present time both aerial and

underwater utility crossings in the aquatic preserve. Future proposals should

be designed so the preserve is crossed by the least destructive method in the

least vulnerable areas according to the RPA maps (see Chapter vr.B,).

Increased or additional use of any existing utility crossings is preferable,

if their condition at the time of the proposal is acceptable. The field

personnel should eventually develop a utility crossing plan for all areas with

anticipated utility crossing needs to allow for clear and advance planning,

for placement of these crossings in the best environmental location possible.

The utility crossing plans, when completed, will become a part of this plan.

ill

Crossings should be limited to open water areas to minimize disturbance to

salt marshes, oyster bars, or other critical habitat areas.

2. Commercial Fishing. The management of the aquatic preserve shall

not include the direct management of commercial fishing activities. Field

personnel will monitor these activities and assess their affects on the

preserve only in conjunction with the Division of Marine Resources and as part

of a cooperative effort with that division. The field personnel will also

notify the requisite authority in the event of illegal activities (Chapter

370, F. S. or by special act). The field personnel, along with other agencies

and divisions' programs and studies, will monitor fishing activities within

the aquatic preserve with respect to the need to manage access of boats in

certain areas, prevention of salt marsh destruction and other needs of the

aquatic preserve as they are associated with commercial fishing activities.

After problems associated with commercial fishing activities are identifTed

and documented, the findings will be presented to the Marine Fisheries

Commission. It is the authority of the Commission and the Florida Legislature

to regulate commercial fishing within the aquatic preserve.

3. Marinas. The locating of marinas and their related uses will be a

maJor concern of aquatic preserve management. Marinas represent a use with

many potential impacts on the preserve's resources. The siting policy of

Section 16Q-20.04(5), F.A.C. of the revised General Aquatic Preserve Rule

shall be used for siting marinas in the aquatic preserve.

4.
4. Deep Water Port Facilities. There are no major ports within Uhe

aquatic preserve boundaries, but several are located immediately upstream or

adjacent to the aquatic preserve. Access to these ports is through portions

of the aquatic preserve waters which are therefore affected by maintenance

dredging, boat traffic and associated impacts, and potential pollution from

accidental cargo leakage. These ports include St. Marys, Kings Bay and

Fernandina, associated with the St. Marys River, and Mayport and Jacksonville

on the St. Johns River. New activities and maintenance work will be reviewed

as to their effect on the preserves. New port facilities within the preserve

boundaries shall be prohibited.

5. Other Water Dependent Marine Commercial Activities. Presently there

exists one licensed terminal facility located west of Ft. Clinch at the

confluence of the intercoastal waterway and Egan Creek. This water dependent,

marire commercial facility has been in operation since 1911 as a menhaden

processing plant with associated commercial structures including three large

deep water docks and warehouse facilities. These docks are immediately

adjacent to the federally maintained channel. Expansions, modifications or

chance to water dependent existing commercial activity should not be discour-

aged provided the expansion, modification or change is not inconsistent with

the plan, as determined on a case by case analysis.

6. Ferry_Services. Toll Ferry services run regularly across the St.

Johns River between the town of Mayport and State Highway 105 on Fanning

Island. Ferry services require careful planning o-F the route and operating

schedule to avoid disturbing wildlife or other resources within the preserve.

113

7. Other Docking. Any other type of commercial docking, not mentioned

in the preceding sections, will follow the marina siting policy as stated in

Section 16Q-20.04(5), F.A.C. of the revised General Aquatic Preserve Rule.

8. Power Plants. In Duval County, power plants on the St. Johns River

are located upstream of the aquatic preserve and probably do not significantly

impact it. There are no power plants in Nassau County.

Power plant; have the po.tential for causing major changes in the air quality,

water quality, and plant and animal life of the aquatic preserve. For these

reasons, additional power plants are incompatible with the purposes of this

aquatic preserve. The location of.proposed power plants upstream of a

preserve should also be evaluated as to the effects on the downstream

preserve.

R. NON-TRADITIONAL COMIMIERCIAL USES

1. Other Uses. Any other use t-hat qualifies as a commercial use of

state-owned submerged lands not mentioned above will require a review for its

anticipated impact on the aquatic preserve and the best location for the

activity compatible to the Resource Protection Areas within the preserve.

?. The Nassau River-St. Johns River Marsh and Fort Clinch area could

potentially have proposals for aquacultural development in the future. These

114

uses may include floating structures or other new techniques now being used in

aquaculture. The location and type of impacts to the resources will require

careful examination. If there is not sufficient data available for a valid

evaluation, a small scale test of the use might be possible in a selected

area.

115

116

Chapter X

SCIENTIFIC RESEARCIT

The field personnel attached to the Nassau River, St. Johns River Marshes and

Fort Clinch State Park Aquatic Preserve should serve as the area coordinators

of scientific research in the preserves. Scientific research, and any other

type of resea-rch or testing within the aquatic preserve, should require the

clearance of both the field personnel and the central office staff before

these activities can proceed. Certain activities could be detrimental to the

resources of the preserve and should be carefully reviewed before allowing

them to occur. Factors including location, species procedures, and time of

year, should be carefully reviewed for the possible disturbance or effect of

the research on the other resources of the aquatic preserve. The field

personnel will be aware of the possibility of working with other government

agencies, colleges, universities, research foundations and government programs

to fill the data needs of t-he aquatic preserve (see Chapter V and XII). The

field personnel will assist in the selection of possible test sites and other

research needs within the preserve.

I '17

8TT

I I

Chapter XI

ENVIRONMENTAL EDUCATION

The aquatic preserve should be used to enhance environmental educational

programs at every opportunity. The coal of maintaining the aquatic preserve

for the benefit of future generations can begin to be realized through the use

cf aquatic preserves for environmental education. Through education., the

youth of Nassau and Duval Counties can acquire a knowledge of the natural

systems and an appreciation for the aquatic preserve program. Such

appreciation helps to ensure the future protection and support of the aquatic

preserves.

The field personnel will, through their normal activities in the aquatic

preserve, select good examples of.habitats and resources within these aquatic

environments for use during educational group tours. This might include the

development c'I environmental educational boat or canoe tours through the

preserves. Other educational activities might also include prepared

presentations for specific interest or user groups such as sport (boating,

divinc, fishing, etc.), civic and conservation arcups and the development of a

brochure outlining the major,points of management within the preserve. These

brochures could then be circulated to the various user groups.

The field personnel should also prepare programs on the value of management

activities of the aquatic preserve for presentation to interested groups of

all ages. Educating the public about aquatic preserve management is the key

to the success and future of the preserve.
119

120

Chapter XII

IDENTIFIED PROGRAM NEEDS

This chapter of the management plan will address the various internal program

needs that are expected to be identified during management activities.

Meeting these needs will correct or generally relieve some stress on the

preserve or the personnel involved in the management of the aquatic preserve.

These needs may, in some cases, require legislative or administrative rule

changes or acquisition of critical areas by the state. The need to identify

problem areas and adjust the management plan in a manner that will positively

address these problems and management needs is an essential element of any

good management program. Both field personnel and central office staff will

continually monitor the management plan implementation process and specifi-

cally identify observed program needs and problems. The areas to be

considered include, but are not limited to:

A. acquisition of additional property,

B. boundary problems,

C. legislative needs,

D. administrative rule changes,

E. data needs,

F. resource protection capabilities, and

G. funding and staffing needs.

121

Staff will annually develop an implementation sta-tus report that will contain

a summary of identified management needs and suggested measures to be taken in

meeting these needs.

A. Acquisition of Additional Proper@y

There are areas both within and upland of the aquatic preserve that are in

public ownership under the jurisdiction of various local, state and federal

agencies. Many of these 'lands contain important resources, such as bird

rookeries, archaeological or historical sites, endangered species habitat, and

freshwater source wetlands. The protection of these areas is necessary to the

wilderness preserve designation areas. Formal management agreements,

memoranda of understanding, etc., that will ensure the compatible management

of these areas will be developed. Other areas within or adjacent to the

preserve that are in private ownership shculd be closely examined to determine

the advisability of bringing them into public ownership. The acqui.sition of

these lands might act as a buffer to critical resources, prevent development

of sensitive areas, allow the restoration of areas adversely affected by

previous development or allow removal of disrupting uses within a preserve.

The field personnel, during normal management activities, should be aware of

significant upland areas and sovereign land conveyances which, if developed,

would compromise the integrity of the aquatic preserve. The field personnel

will keep a running record of these areas and will prioritize these areas for

possible public acquisition.

122

F. Boundary Problems ap@_Sy.@tem@ Insufficiencies

The boundaries of the aquatic preserve are often artificial delineations of

the natural systems within and surrounding the preserves. A variety of

scientific studies are presently being conducted both within and outside of

the preserve boundaries, and their results could conceivably suggest a change

in these boundaries. These changes may include the extension of the present

boundaries in some areas or the exclusion of other areas. The field

persornel, in their normal management activities, will be sensitive to the

possible need for boundary modifications. Potential boundary changes and

acquisition projects might include areas upstream of the present boundary in

the streams flowing into the preserves, previously conveyed sovereign lands,

or other areas not presently within the preserve. Any boundary change will

require legislative approval.

Some initial considerations for boundary modification include the addition of

marshes lying south of the St. Marys River, east of S.R. 107, west of the

Intracoastal Waterway and contiguous with the existing aquatic preserve

boundary near AlA.

Another consideration would extend current aquatic preserve boundaries to

include all of Nassau Sound and that portion of the Amelia River lying between

the Intracoastal V!aterway and south of Amelia Island.

C. Leoislative Needs

Management needs could conceivably involve changes in the legislation

pertaining 41,c aquatic preserve or changes in the other statutes upon which
123

aquatic preserve management is based. These changes may include boundary

realignments or the strengthening of certain management authorities.

D. Administrative Rule ChaU@s

Administrative rules are statements addressing the organization, procedures

and practices used in the implementation of aquatic preserve management plans

and policies. This process includes identifying problems within the

Department of Natural Resources, as well as other agencies, that affect the

management of the preserve.

E. Data (Information) Needs

The field personnel and central office staff will note data needs and promote

research or other means to fulfill them. Data needs in the near future could

possibly be supplied by such ongoing projects as the U.S. Geological Survey's

and St. John's River 'Wat er Management District's studies, Department of

Environmental Regulation water quality monitoring or by the research of other

agencies. The field personnel will be aware of data needs as they interact

with the various levels of government and with other entities. 'these data

needs micht include additional mapping, ownership information, water quality

data or any other data. 'he major suppliers of data will probably be other

public agencies that are conducting programs in and around the preserve.

Other potential sources of data are the colleges and universities that have,

in the past, conducted research projects in the area.

124

F.- Resource Protection and Enforcement-Lapapfities

The protection of the preserve's resources depends on the Florida Marine

Patrol, in addition to field personnel. These protection needs might also

require additicnal enforcement support from local government or other state

agencies. The need for additional manpower, authorit@/, equipment or vehicles

for this task will be identified.

The field personnel will become familiar with the staff capabilities of both

-the Department of Natural Resources and the other agencies with enforcement

responsibilities in the preserve. Annually, staff should fully assess the

effectiveness oil the protective and enforcement capabilities of these combined

agencies.

C-. Funding and StaffincNeeds

The present aquatic preserve management program has been minimally implemented

with funds from a variety of sources and programs. The writing of this

management plan was funded through a grant from the U. S. Office of Coastal

Management, National Oceanic and Atmospheric Administration, and through

the "Coastal Z-one Management Act of 19722", as amended.

in order for the management program proposed in this plan to function and

succeed, the program must have its own funding and staffing. The workload

required by this program is too much for an interim staff from other agencies

125

to handle in addition to their other obligations. Funding and staffing needs

are critically important to the success of the aquatic preserve program.

The management of the Nassau River-St. Johns River Marshes and Fort Clinch

Aquatic Preserves. would be-integrated into the management program and needs of

other BHELM management programs in the area. A proposed budget given these

needs has been estimated at $90,000 for staff, equipment, office and expenses

for the first year. The proposed staff would include one biologist and a

ranger.

ANN.-

126

85-SL383

REQUEST: Authorization to administratively include the Nassau Villey Marshes State
Reserve as part of the Nassau Ri ver-St . J ohns Ri ver Marshes Aquat ic Pres erve for pur-
poses of Section 253-034 management plan development and implementation.

NASSAU 00UNTY: Multiple Agency Management Lease No. 745-9006

APPLICANT: Division of Recreation and Parks

LOCATION: Section 1, Township 1 North, Range 27 East; Section 19, Township 2 North,
Range 27 East; Sections 5 and 6,*Township I North, Range 28 East; Sections 17, 36,
46, 47, 48 and 49, Township 2 North, Range 28 East; Sections 63 and 64, Township 3
North, Range 28 East; Sections 14 and 24, Township 1 South, Range 28 East; and,
Sections 18 and 19, Township 1 South, Range 29 East, all in Nassau County

CONSIDERATION: N/A

STAFF REMARKS: The subject property was acquired by the State, in 1978, through a
purchase under the Environmentally Endangered Lands (EEL) program and a subsequent
donation fron Houdaille Industries, Inc. This property is predominately salt marsh
with scattered tree islands, and I i es adj acent to the Nassau Ri ver-St . I ohns River
Marshes Aquatic Preserve.

In June, 1984, this property was assigned to the Division of Recreation and Parks and
to the Game and Fresh Water Fish Commission for joint management under the provisions
of Multiple Agency Management Lea,e No. 745-9006. This management lease designated
the Division of Recreation and Parks as the primary management agency, with the Game
and Fresh Water Fish Commission providing management recommendation and assistance.
It also stipulated that management of the subject property would "...emphasize the
original management concept as approved by the Board at the time of acquisition and
which established the primary purpose for which this tract was acqui red .

The original management concept that accompanied the Nassau River Valley Marshes EEL
acquisition emphasized the natural interrelationship of this property with the adja-
cent estuarine and riverine environments. Specifically, this property was acquired
to: (1) maintain estuarine productivity; (2) preserve wildlife values; (3) preserve
wilderness and aesthetic values; (4) protect areas approved for commercial
shellfishing; (5) maintain storm tide protection function; and, (6) preserve historic
and archaeological resources.

Due to the natural character of this property and its symbiotic relationship with the
aquatic preserve, staf f i s of the opi ni on that this property shoul d be incorporated
into the aquatic preserve for purposes of management plan development and implemen-
tation. The management plan for the Nassau River-St. Johns River Marshes Aquatic
Preserve is currently nearing completion and will be presented to the Trustees for
a
doption during early 1986. Approval of this item will allow staff to expand the
aquatic preserve management plan to include this property, and subsequently, adoption
of the Plan by the Trustees wil.1 satisfy the planning requirement of Section 253.034,
Florida Statutes. The Game and Fresh Water Fish Commission concurs in this request.

(See Attachment 2, Pages 1-2)

RECOMMEND APPROVAL
127

N
V
State of Florida

Department of Natural Resources Interoffice Memorandum

NOTICE OF BOARD ACTION

TO: Bureau of State Lands Management

Bureau Land Acquisition

Bureau of Appraisal

Bureau of.Survey and Mapping

FROM: Judy Howard, Agenda Coordinator
Division of State Lands

ITEM
0

CABINET MEETING DATE:
ACTION: 6,@Vo aliaK* r,011@
U

Members:

Preser,t Absent
GOVERNOR
SECRETARY OF STATE
ATTORNEY GENERAL
TREASURER
COMPTROLLER
COMMISSIONER
@ @ OF AGRICULTURE
COMMISSIONER OF EDUCATION

THE ABOVE ACTION WAS TAKEN ON SUBJECT DIVISION OF STATE LANDS'
AGENDA ITEM AT TODAY'S MEETING. WILL YOU PLEASE SEE THAT THE
INFORMATIN IS PROVIDED TO APPROPRIATE STAFF FOR FURTHER
PROCESSING/HANDLING OF THE MATTER AND THAT THE FORMAL ACTION AS
NOTED IS MADE A PART OF THE BUREAU'S MASTER FILE.

PLEASE CONTACT ME IMMEDIATELY IF YOU HAVE ANY QUESTIONS RELATING
TO THE.ITEM'S ACTION AS NOTED (488-.9120). THANK YOU FOR YOUR
COOPERATION AND HELP.

DNR 60-007 128
3/84

FLORIDA GAME AND FRESH WATER FISH COMMISSION

THOMAS L. HIRES, SR. WILLIAM G. BOSTICK, JR. C. TOM RAINEY, D.V.M. J.H. BAROCO MRS. GILBERT W. HUMPHREY
Chairman, Lake Wales Vice-Chairman, Winter Haven Miami Pensacola Miccosukee

FARRIS BRYANT BUILDING
ROBERT M. BRANTLY, Executive Director 620 South Meridian Street
F.G. BANKS, Assistant Executive Director Tallahassee, Florida 32301
(904) 488-1960

R E C E I V E
BUREAU OF ENVIRONM
LAND MANAGEME
JUL 25 1985
July 18, 1985 AM
7,8,9,10,,11,12,1,2,3,

Mr. Jim Stevenson, Chief
Bureau of Environmental Land Management
Department of Natural Resources
Marjorie Stoneman Douglas Building
3900 Commonwealth Boulevard
Tallahassee, FL 32303

Dear Jim:

I am writing to confirm the fact that I have discussed the matter of the
Nassau Marshes tract with Dr. Egbert. The Commission has no objection to the
status of the Nassau Marshes tract being changed from Environmental Land to
an Aquatic Preserve, as long as hunters, fishermen and other members of the
public can continue to use the area.

Sincerely,

Frank H. Chief
Bureau of Wildlife Land management

W201/sr
WLD 8-7-2
cc: Dr. Allan Egbert
Mr. Frank Montalbano

129

NASSAU VALLEY - FT. CLINCH

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.130

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131

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133

414,

134

CONTENTS OF APPENDICES

Appendix A. Management Authorities

All laws, rules, memoranda of understanding, and other

directives mentioned or related to in the Plan.

Appendix B. Rell"erences

Pertinent References; basis for formulation of Plan USGS

Bibliography

Appendix C. Resource Data

Resource Invent ories for each preserve

COT Vegetation and Land Use Acreages by quad and preserve

Species Lists

Streams and Lakes data

Colonial Waterbird Areas

Water Quality: STORET

Archaeological Profiles

Cultural Information (Population, etc.)

Appendix 0: Maps

Map Packet: by quad size for each quad in the preserve areas

USGS 7.5 Minute quadrangle topographic maps

135

Contents of Appendices (continued)

Appendix D: Maps (Con't)

Mark Hurd.Aerial Photography (73-79)

Flood-prone (USGS)

State-Owned Lands Maps

National Wetland Inventory Maps

Gulf Coast Ecological Inventory (1:1.50,000 scale)

Shellfish Atlas

CZM Maps--Duval and Nassau Counties - Navigation Charts

DOT County Maps--Duval and Nassau Counties

Appendix E: Authorization to include the Nassau Valley Marshes State Reserve

as part of the Nassau River-St. Johns River Marshes Aquatic

Preserve. Copy of this authorization is included in the

management plan. (See pages 127, 128 and 129.

136

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