St. Martins Marsh aquatic preserve management plan

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

ST MARTINS MARSH

AQUATIC PRESERVE

MANAGEMENT PLAN

SEPTEMBER 9, 1987

COASTAL ZONE

INFORMATION CENTER

QH
90.75
.F6
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DEPARTMENT OF NATURAL RESOURCES
1987

ST. MARTINS MARSH AQUATIC PRESERVE

MANAGEMENT PLAN

September 9, 1987

Tom Gardner

Executive Director

Department of Natural Resources

This Plan was prepared by
The Bureau of Land and Aquatic Resource Management
Division of Recreation and Parks

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 Management Act of 1972 as amended.

EXECUTIVE SUMMARY

The St. Martins Marsh Aquatic Preserve comprises an area of approximately
23,123 acres of sovereignty submerged lands located along the west central
coast in Citrus County. This preserve represents one of the most pristine
regions in the state, and is unique in that it represents a transitional
zone between temperate and tropical.

St. Martins Marsh was designated an aquatic preserve on October 21, 1969 for
the primary purpose of preserving the biological resources of the Marsh and
associated waters. This area consists predominately of salt marsh
vegetation and includes mangroves, oyster bars, scallop beds, and
seagrasses. The preserve is important in protecting vital habitat to an
extensive array of fish, birds, and other wildlife including the endangered
West Tndian manatee. Maintaining the continued health of the preserve will
involve minimizing water pollution and losses of wetlands resulting from
urban, residential and industrial development in the region.

The major management objective of the aquatic preserve program is to ensure
the maintenance of essentially natural conditions. Management will also be
directed to ensure public recreational opportunities while assuring the
continued propagation of fish, birds, manatees, and other wildlife
resources. This task will be guided by the identification and mapping of
natural resources and habitats necessary to meet these objectives. An
additional management objective is to review and comment on applications for
the use of state-owned submerged lands. Accomplishing these objectives will
require a fully implemented management program under the guidance of an
on-site Environmental Specialist for the aquatic preserve, based out of a
field office outside the city of Crystal River.

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 18-20.13, 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

iii

WHEREAS, the Trustees have recognized the St. Martins Marsh Aquatic

Preserve as a biological/scientific 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 St. Martins Marsh Aquatic Preserve area; and

N014 THEREFORE BE IT RESOLVED that the Board of Trustees of the Internal

Improvement Trust Fund hereby adopts the St. Martins Marsh Aquatic Preserve

Management Plan; and

BE IT FURTHER RESOLVED that the St. Martins Aquatic Preserve Management

Plan shall serve as a fundamental policy guideline for the Trustees and other

state and local agencies having jurisdiction relative to maintaining the

natural resources and environmental quality of this aquatic preserve, and

shall provide the overall policy direction for the development and implementa-

tion of all administrative rules and programs related to the management of

state-owned submerged lands within the St. Martins Marsh Aquatic Preserve; and

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

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

purposes of aquatic preserve planning and management.

IN TESTIMONY WHEREOF The Board of Trustees of the Internal Improvement

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

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

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

day of September, A.D., 10,87.

Governor

(Seal)

State

%
Commisster of Education Attorney General

Commi ioner of Agriculture Comptroller

As and Constituting the State of

Florida Board of Trustees of the Treasurer

Internal improvement Trust Fund

Approved as to form and legality
,@te

DNR Attorney

TABLE OF CONTENTS

Chapter Page

I. INTRODUCTION .................................................. 1

11. MANAGEMENT AUTHORITY .......................................... 9

III. MAJOR PROGRAM POLICY DIRECTIVES ......... * ..................... 21

IV. RESOURCE DESCRIPTION .......................................... 27

A. Resource Setting

1. Citrus County ................................. ........... 27

2. Historic Notes ............................................ 28

3. Archaeological Sites ...................................... 29

4. Present Population Characteristics ........................ 31

5. Coastal Area Land Use .................................... 31

B. Natural Systems and their Components

1. Geologic Features and Land Forms .......................... 33

2. Community Associations .................................... 34

a. Salt Marsh ............................................ 34

b. Oyster Reefs .......................................... 36

c. Tidal Flats ........................................... 37

d. Marine Grassbeds ...................................... 37

e. Mangrove Forests ...................................... 39

f. Hammock Islands ....................................... 40

3. Animal Life ............................................... 41

V. RESOURCE MANAGEMENT ........................................... 47

A. Introduction .......................................... ; .... 47

B. On-site Management Objectives ............................. 47

C. Resource Mapping and Resource Protection Areas ............ 69

D. Administrative Management Objectives ...................... 72

TABLE OF CONTENTS (Continued)

Chapter Page

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

A. Federal., .............................. e .................. 70,

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

C. Regional ................................................. e 89

D. Local Governments and Special Districts ............ e ...... 90

E. Other Organizations ...................... 0...... * ......... 93

PREFACE TO CHAPTERS VII - IX ....................................... 95

VII. PUBLIC USES .................................................. 97

A. Consumptive Uses ......................................... 97

B. Nonconsumptive Uses ...................................... 98

VTII. PRIVATE NON-COMMERCIAL USE ............ ; ...................... 99

IX. COMMERCIAL USES ............................................... 105

A. Traditional Commercial Uses .............................. 105

B. Nontraditional Commercial Uses ........................... 108

X. SCIENTIFIC RESEARCH .......................................... 109

XI. ENVIRONMENTAL EDUCATION ...................................... 111

XII. IDENTIFIED PROGRAM NEEDS ..................................... 113

A. Acquisition of Additional Property ....................... 114

B. Boundary Problems and Systems Insufficiences ............. 115

C. Legislative Needs ........................................ 115

D. Administrative Rule Changes .............................. 115

vii

TABLE OF CONTENTS (Continued@

Paae

E. Data (Information) Needs ................................. 115

F. Resource Protection and Enforcement Capabilities ......... 116

G. Funding and Staffing Needs ................................ 117

LITERATURE CITED .................................................... 119

CONTENTS OF APPENDICES .............................................. i2_1

viii

ST. MARTINS AQUATIC PRESERVE MANAGEMENT PLAN

CHAPTER 1

INTRODUCTIO@l

This plan addresses the management of the St. Martins Marsh Aquatic

Preserve, located in Citrus County, Florida. This Aquatic Preserve is one

of 40 officially designated aquatic preserves in the statewide system

(Figure 1). It is comprised of approximately 23,123 acres of sovereignty

submerged lands located below the mean high water line. State-owned

uplands, including various@ small islands occurring above the mean high water

line are above the jurisdictional line of the preserve, but are encompassed

within its general boundary. St. Martins Marsh lies between the city of

Crystal River and the town of Homosassa Springs and, it surrounds the town

of Ozello.

The St. Martins Marsh Aquatic Preserve boundary (Figure 2) abutts the

northern boundary of the Chassahowitzka National Wildlife Refuge to the

south and the southerly mean high water line of the Salt River to the north.

The western boundary line lies offshore of a chain of islands which includes

Sandy Hook, Mullet Key, Bird Keys, Shark Point, Mangrove Point, L "ong Point,

Green Point, Rock Island, Roach Key, Sand Key, Crawl Key, and Homo@assa

Point. Parts of three rivers lie within the preserve boundaries. These are

the Salt River, the St. Martins River and the Homosassa River. In addition,

numerous tidal creeks and shallow bays are included within the preserve, and

the Crystal River State Reserve is adjacent to the eastern boundary.

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AQUATIC PRESERVES ARE ESTABLISHED
BY THE FLORIDA LEGISLATURE AND
INCLUDE ONLY STATE OWNED
SOVEREIGNTY SUBMERGED LANDS.
THE GOVERNOR AND CABINET SITTING
AS TRUSTEES OF THE INTERNAL
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IMPROVEMENT TRUST FUND ARE
MANAGERS OF THESE AREAS.

FOR MORE INFORMATION REGARDING ?
AQUATIC PRESERVES CONTACT:

DEPARTMENT OF NATURAL RESOURCES

DIVISION OF RECREATION AND PARKS

BUREAU OF LAND AND AQUATIC ..
RESOURCE MANAGEMENT

3900 COMMONWEALTH BLVD

TALLAHASSEE,FLORIDA 32303
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Figure I

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MAP OF
TAMP. ST. MARTINS MARSH AQUATIC PRESERVE
27 (AQUATIC PRESERVE G-8
0 ....... CITRUS COUNTY, FLORIDA
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CREATED BY
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STATE OF FLORIDA BOARD OF
TRUSTEES OF THE INTERNAL IMPROVEMENT TRUST FUND
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OCTOBER 21, 1969
REY PIEST 0316" RESOLUTION ADOPTED OCTOBER 21,1969

Figure 2
5

This is one of the few essentially pristine preserves in the system. The

preserve is not experiencing heavy development pressure at this time, but

areas to the east of the preserve are being developed densely.

The administrative support for this managemebt program will be provided by

the Department of Natural Resources, Division of Recreation and Park's,

Bureau of Land and Aquatic Resource Management (BLARM) in Tallahassee, known

as the "central office". Field personnel support and assistance will be

provided through the Florida Park Service, Division of Marine Resources and

the BLARM staff.

Initially, development of the resource inventory of the preserve has

depended heavily on LAMDSAT satellite imagery, DOT aerial photography, and

on-site inspection. As the program proceeds and on-site managers become

more familiar with the area, additional resource information will become

available and modifications to the program and the plan will be made where

appropriate.

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

Chapter !I cites the authorities upon which this management program and plan

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

policy areas that are applicable to this management area. Chapter IV presents

a brief resource description.

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

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

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

state, and federal agencies and programs, as well as its relevance to

nongovernmental organizat-ions, interest groups, and individuals.

Chapter 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

o-F Recreation and Parks, Bureau of Land and Aquatic Resource Management

(BLARM) staff. Funding for the plan was provided by a coastal management

grant (CM-158) 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's (DER)

Office of Coastal Manaaement.

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 Statues (F.S.). These authorities clearly establish the

proprietary management overview role of the Governor and Cabinet, sitting as

the Poard of Trustees of the internal Improvement Trust Fund and are referred

to as both the "Trustees" and the "Board". Furthermore, all management

responsibilities assigned to the Trustees by this plan may be fulfilled

directly by the Governor and Cabinet or indirectl via staff or agents of the
y

Trustees, pursuant to delegations of authority, management agreements, or

other legal mechanisms. All subsequent references to the Board of Trustees

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

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

Aquatic Resou rce Managenent (BLARM) acting as "agents" for the Trustees, is

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

sovereignty submerged lands within aquatic preserves. The review and

subsequent staff comments are primarily 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 Section '258.42, F.S. Formal review

comments are provided to the Department of Natural Resource's (DNR), Division

of State Lands by the Bureau of Land and Aquatic Resource Management for

inclusion it-, the comments and recommendations accompanying agenda items for

Trustees' consideration. This mechanism allows the Trustees, sittina as

owners of the land, in trust for the public, tb evaluate public interest and

project merits within the context of environmental impact upon the preserves.

BACKGROUND

In many respects, the authorities supporting aquatic preserve planning and

management are the cumulative results 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 1950'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

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 land 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 11, 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 abatement of air and water pollution.

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

recommendations of the interagency Advisory Committee and adopted, by

resolution, 18 of the waterbodies as aquatic preserves.

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

had created the Boca Ciega Bay Aquatic Preserve. Subsequent legislative

action in 1972, 1973, and 1974, created the Pinellas County, Lake Oackson and

Biscayne Bay Aquatic Preserves, 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 1975 action, such as the addition of the Cockroach Bay
Aquatic Preserve in 1976 and the Gasparilla Sound-Charlotte Harbor Aquatic

Preserve to the system in 1978.
1

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 SIC. Lucie - May 22e, 1984; Loxahatchee River-

Lake Worth Creek - Oune 1?, 1984; Indian River Lagoon - January 241, 1985;

Banana River - September 17, 1985; Indian River-Malabar to Vero Beach -

January 21, 1986; Nassau River, St. Johns Rive'r Marshes and Fort Clinch State

Park - March 22, 1986; Alligator Harbor - September 23, 1986; Terra Ceia -

April 21, 1987; Cockroach Bay - April ?1, 1987; and St. Joseph Bay - June 2,

1987.

In June 1985, the Legislature passed Senate Bill 762 which expanded the

boundaries of the Banana River, Malabar to Vero Beach, Loxahatchee River Lake

Worth Creek, Wekiva River and Rookery Bay Aquatic Preserves; and created Guana

River Marsh and Big Bend Seagrasses Aquatic Preserves. In June of 1986 the

Legislature passed Senate Bill 607 which added the Rainbow Springs and Lemon

Bay Aquatic Preserve to the state-side system.

The State Lands Management Plan, adopted on March 17, 1981 and amended July 7,

1.981 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 18-21 and 18-20, Florida Administrative Code (F.A.C.), are two

administrative rules directly applicable to the DNR's/Trustees's actions

regarding allowable uses of submerged lands, in general, and aquatic preserves

specifically. Chapter 18-21. F.A.C. controls activities conducted on all

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 Improvement Trust Fund for the

administration, management and disposition of sovereignty lands;

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

citizens of Florida;

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

may continue tc 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 18-20, F.A.C. specifically addresses aquatic preserves and derives its

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

this rule is contained in Section 18-20.01, F.A.C., which states:

"(1) All sovereignty lands within a preserve shall be managed primarily

for the maintenance of essentially natural conditions, the

propagation of fish and wildlife, and public recreation, including

hunting and fishing where deemed appropriate by the board and the

managing agency.

(2) The aquatic preserves which are described in Section 4158.39,

258.391, 258.392 and 258.393, F.S.; Chapter 85-345 Laws of Florida;

and in Section 18-20.02, F.A.C., were established for the purpose of

being preserved in an essentially natural or existing condition 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;

(b) 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;

programs, which are compatible with the intent of the Legislature in

creating the preserves;

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

which are compatible with the intent and provisions of the act and

these rules, to assist in managing the preserves;

(e) To encourage the protection, enhancement or restoration of the

biological, aesthetic, or scientific values of the preserves,

including but not limited to the modification of existing manmade

conditions toward their natural condition, and discourage activities

which would degrade the aesthetic, biological, or scientific values,

or the quality, or utility of a preserve, when reviewing

applications, or when developing and implementing management plans for

the preserve;

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

habitats, including but not limited to: sponges, soft coral, hard

coral, 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

protection; beach and shore preservation programs outlined in Chapters 370 and

161, F.S., respectively and land acquisition programs conducted under the

Conservation and Recreation Lands Program authorized by 253, F.S.

Chapter 403, F.S., is an important adjunct to Chapters 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

provides an avenue for staff comments on potential environmental impacts of

projects in aquatic preserves through the DER permitting process.

Additionally, the DER has designated, by administrative rule, a series of

water bodies with strigent use criteria called "Outstanding Florida Waters"

(OFW). The inclusion of all aquatic preserve waters within this

classification greatly enhances the protective provisions of Chapter 258, F.S.

As the designated "306" Coastal Zone Managemen't Agency, the DER also provides

a source of funding for data collection and planning in areas such as the

St. Martins Marsh, as well as being the state agency responsible for

implementing "federal consistency" provisions of the federal Coastal Zone

Management Act.

The DER's administrative rules of primary significance to the Aquatic Preserve

Management Program are 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 17-3,

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

"Outstanding Florida t4aters", while Chapters 17-4 and 17-12, F.A.C. address

permit requirements and dredge and fill activities, respectively.

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

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), the Withlacoochee Regional Planning Council, and the

Department of State, Division of Historical Resources (DHRI. The Executive

Office of the Governor also provides a mechanism for public input into federal

projects via the State clearinghouse process.

The OCA and WRPC are statutorily responsible fbr administering the

"Development of Regional Tmpact" (DRI). The DRI program, authorized by

Section 380.06, F.S. was established by the Legislature to provide a review

and monitoring procedure for those development projects potentially affecting

more that one county. Aquatic preserve personnel must not only coordinate

with but be conversant of these agencies policies in order to facilitate

comprehensive and consistent review input.

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

management of Florida's archaeological and historical resources. This

responsibility is legislatively assigned to the DHR. which holds title to

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

sovereignty submerged lands, including aquatic preserves.

The Citrus County 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 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 preserve and their ecologically sensitive resources.

Chapter III

MAJOR PROGRAM POLICY DIRECTIVES

This plan contains a number of management policy issues. This section

highlights those major policy areas that comprise the basic impetus 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 the aquatic preserve to ensure the

maintenance of essentially natural conditions to ensure the propagation of

fish and wildlife, and public recreation opportunities.

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

aquatic preserve, unless prior authorization has been obtained from the

Trustees and DHR, 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, and species of special concern.

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

habitats and species of special concern habitats within the aquatic preserve.

(E) Prohibit development activities within the aquatic preserve that adversely

impact saltmarshes and other valuable submerged habitat, unless a prior

determination has been made by the Board of ovi!rriding public importance and

that no reasonable alternatives exist.

(F) Prohibit the trimming and/or removal of saltmarsh vegetation 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 and actively encourage research and educational opportunities for

scientists and other interested researchers within the framework of a planned

research program in the aquatic preserve.

(H) Acquire, where feasible, privately owned submerged lands and adjacent

lands and islands 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 41.-he 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. Any hazardous waste dumps now located within the

aquatic preserve should be closed and eliminated.

M Prohibit mosquito control practices within the aquatic preserve that

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

4
Chere are no reasonable alternatives and failure to conduct such practices

would result in a threat to public health.

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

aquatic application.

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

preserve boundaries.

(0) Prohibit any activity, commercial or recreational, that might impact the

integrity of hard bottom communities within the aquatic preserve.

(P) Manage spoil islands within the aquatic preserve as bird rookeries and

wildlife habitat areas.

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

continued maintenance of its natural values and functions.

(R) Develop a well coordinated aquatic preserve management mechanism that

recognizes and utilizes local government programs and, authorities.

(S) Require, through the efforts of DER and the South West Florida Water

Management District (SWFWMD), the maintenance and upgrading of the 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 St. Martins Marsh

Aquatic Preserve Plan to all subsequent legislative additions of land to the

the aquatic preserve.

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

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

protection of natural and cultural resources and the enforcement of applicable

resource laws and ordinances.

(V) Prohibit Marinas and associated construction activities in Resource

Protection Areas I and 2.

(14) Identify and document any problems caused by fishing, shellfishing, and

collecting activities and report them to the Marine Fisheries Commission.

M Insure consistency with the intent of the aquatic preserve designation in

the resolution of inconsistencies between the adopted aquatic preserve

management plan and any state or local planning processes or plans that may

affect the aquatic preserve.

(Y) Recognize that successful shellfish culture and harvesting efforts in the

aquatic preserve are dependent upon pollution prevention and abatement and

careful comprehensive planning.

Chapter IV

RESOURCE DESCRIPTION

A. Resource Setting

1. Citrus County

The St Martins Marsh Aquatic Preserve comprises an area of approximately

23,123 acres and is located in the west-central section of Citrus County. The

preserve is composed of open water, several inlet bays, tidal rivers and

creeks, salt marsh, and adjoins upland hammock islands. There are several

small springs in the management area, and a portion of the Homosassa River, a

spring fed system, lies within the preserve in the southern section. Nutrient

exchange between the marshes and the Gulf of Mexico makes the salt marshes a

significant area of primary production and a nursery ground for commercial and

recreational fish species. The marshes and coastal hammocks are a southern

terminus for migratory waterfowl, of the Atlantic and Mississippi flyways,

providing wintering and stopover areas for these and other migratory bird

species.

The centralized populations of Citrus County are found in the towns of

Inverness, with an estimated population of 5,787, and Crystal River, with an

estimated population of 3,307 (Vincent Cautero, Citrus County Planning

Division, pers. comm.). The balance of the population is widely distributed

in rural areas and in the unincorporated communities of Floral City, Hernando,

Citrus Springs, Beverly Hills, Citrus Hills, Homosassa, Homosassa Springs, and

Ozello. Citrus County is one of the fastest growing counties in Florida.

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

private islands within the preserve, pollution from boat and barge traffic

associated with the Crystal River Nuclear Power Plant (potential fuel oil

spills, for example), and from sewage treatment plants and septic systems

outside the preserve.

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.

Historic Notes

Citrus County yields evidence of aboriginal Indian inhabitants along its lakes

and rivers going back thousands of years. The Crystal River area was a

population center for the coastal Timucuan Indians. The Timucuans were

apparently wiped out after contact with Spanish explorers. Recently

discovered evidence suggest that the Spanish explorer Hernando de Soto

traveled through the area in 1539.

Although pioneers first came to this area in the 1820s, it was the Armed

Occupation Act of Florida in 1842 which made land affordable and brought about

settlements. In 1839, Davis Levy Yulee built his home on the Homosassa River

and established his sugar cane plantation consisting of some 5,100 acres along

the banks of the river. During the Civil War, his home on Tigertail Island

was destroyed and the sugarmill near Homosassa Springs was damaged beyond

repair. (Dunn, 1976).

Citrus County is not a heavily industrialized area. However, it has enjoyed a

few industrial booms that have played a major role in its development. The

greatest of these booms, centered on phosphate mining, and covered a

thirty-year period which started in the last years of the nineteenth century

and ran through the first few decades of the twentieth century. This boom

helped to develop the outlying regions of the county. Floral City was the

focal point of the phosphate mining industry and boasted a population larger

than that of newly settled Miami.

Until the freeze of 1894/95, which forced most of the area's groves south,

Citrus County was one of the State's major citrus producers. Commercial

fishing, ranching, turpentine production, and lumbering were also highly

lucrative businesses at the turn of the century. Mills producing first

pencils, and then crates operated out of Crystal River.

3. Archaeological Sites

Most of the archaeological sites in the Crystal River area, including those

of St. Martins Marsh Aquatic Preserve, are represented by shell middens along

the shorelines of the bays and rivers and among numerous coastal islands.

These coastal shell midden sites are marked today by the presence of live

oaks, hickory, red cedar, and cabbage palms owing to the rich soills of these

sites. In addition to the easily recognizab le shell middens, the swamp and

marsh much areas ad"lacent to many of these sites probably contain such

normally perishable items as dugout canoes, totems, bowls, and netting.

(Florida Department of Natural Resources, 1983).

.The nearby Crystal River State Archaeological Site contains the most famous

site remains in Citrus County. However, those remains are but a sample.of the

rich archaeological heritage in the area. This heritage includes sites dating

from the Paleo-Indian period (ca. 12,000 - 8,000 B.C.) to historic

European-American settlement in the late 1800s to present.

11hile over 23,000 sites have been recorded in Florida, most of the state has

not been subjected to a systematic professional survey to locate and record

archaeological and historic sites and properties. Most of the St. Martins

Marsh Aquatic Preserve falls into this category. In all, only 10 sites have

been identified and recorded with the DHR within the preserve boundaries.

There are other sites that have not been registered and probably many more

sites that have not yet been discovered due to the undisturbed nature of the

preserve. A review of the site distribution data in the Florida Master Site

File has indicated that there is a very high probability that such properties

are present, particularly in the hammocks bordering the Salt River.

Many archaeological sites have been disturbed or destroyed, and therefore,

preservation of any remaining sites is critical.

4. Present Population Characteristics

The growth management concerns of the State of Florida are readily reflected

in the Citrus County area. Citrus County is one of the nine counties in the

state that have more than doubled their populations from 1970 to 1980. (Marth

and Marth, 1985). These counties are: Citrus, Hernando, Charlotte, Clay,

Collier, Flagler, Martin, Pasco, and Seminole. Citrus County has a land area

of 667 square miles and its current population is estimated at 88,793 persons

(Vincent Cautero, Citrus County Planning Division, pers. comm.). This is a

density of 133 persons per square mile, compared to a statewide average of

166.3. The county is experiencing unprecedented growth with its population

increasing at such A rate that from 1970 to present, the population has

increased 340%. It is projected that by the year 2000, the population of

Citrus County will not exceed 165,500 requiring 93,500 housing units. (Citrus

County, 1987).

5. Coastal Area Land Use and Infrastructure

1-lest-central Citrus County is a moderately developed area containing the city

of Crystal River, one of the two relatively large centralized population

centers in the county with a current population estimated at 3,307. Other

smaller population centers surrounding St. Martins Marsh Aquatic Preserve

include Ozello, Homosassa, and Homosassa Springs.

The updated Citrus County Comprehensive Plan designates the area surrounding

St. Martins Marsh Aquatic Preserve as Lake and Coastal Zone. Uses defined as

consistent with this designation include residential conventional zoning up to

a maximum of one unit per five acres, plus designated industrial and extracted

uses. However, uses permitted in areas where traditional zoning is in place

(by virtue of recorded or unrecorded subdivisions or vested development) or by

Planned Development may be allowed.

Developed areas that directly impact the preserve include Crystal River,

Homosassa Springs, and Ozello. Ozello is the only population center lying

within the preserve boundaries. Development pressures have been moderate to

date and much of the remaining undeveloped land in the area has been proposed

for acquisition by the Conservation and Recreational Lands program and

Environmentally Endangered Lands. The same is true for the area just north of

the Homosassa River. This area is experiencing heavier development pressures

than most other sites it the area. Tn addition to single-family homes on

traditional lots, the area is also experiencing single-family high density

development, where lot sizes are much smaller than 1/5 acre, resulting in

minimum separation of structures. Condominium complexes, as well as

commercial marinas, are also being developed along the north bank of this

river.

The city of Crystal River and the unincorporated area called Homosassa Springs

also directly impact the preserve in the form of wastewater effluent. Florida

Department of Natural Resources has identified the Crystal River and Dixie

Shores wastewater treatment plants as the worst sources of bacteria! pollution

along the west coast of Citrus County, and shellfishing areas are regularly

closed due to high fecal coliform levels (Packard, 1983). It should also be

noted that septic systems with poor drainage probably contribute to the

problem. 14hile these systems do not dump effluent directly into the preserve,

the Crystal River plant dumps into the Crystal which feeds into the northern

portion of the preserve; the Dixie Shore plant dumps into Dixie 8ay and the

Salt River which are immediately east of the preserve. Tn addition to these

two plants there are at least thirteen package plarts and numerous other

septic systems in the immediate area.

B. Natural Systems and their Components

1. Geologic Features and Land Forms

St. Martins 1-11arsh Aquatic Preserve is situated upon the Pamlico Terrace of the

Terraced Coastal Lowlands. Within this geological context, the area falls

within the "coastal marsh belt" and "limestone shelf and hammock"

physiographic zones (Vernon, 1951).

The land within the Terraced Coastal Lowlands is described as rocky,

consisting of fractured limestone, with rock pinnacles and surface outcrops of

limestone commonly observed. Sandy mud marshes occupy the lower sections of

the area and are bounded on the interior by limestone outcrops.

The limestone shelf often extends into the coastal marsh areas in the form of

peninsulas and islands, and supports hammock and flatwood habitat types, with

their attendent ponds and swamps. The extensively fractured shelf is directly

connected to the artesian aquifer in this area, resulting in the proliferation

of springs that discharge clear ground water.

Soils of the St. Martins Parsh Aquatic Preserve are primarily those of the

Salt Water Marsh association. These soils are described as near sea level,

very poorly drained soils subject to prolonged or frequent flooding (Florida

Department of Administration, 1975). The soils can be further described as

being of the Homosassa-Weekiwachee-Lacoochee atsociation consisting of near

sea level, very poorly drained organic and mineral soils and poorly drained,

thin, sandy soils over limestone subject to frequent tidal flooding (United

States Department of Agriculture, 1977). Soils of the island hammocks are

predominately Aripeka fine sand. Both these soils types are listed as having

severe limitations for building site developments, sanitary facilities, and

use as construction material.

2. Community Associations

The plant communities of the St. Martins Marsh Aquatic Preserve are a major

factor in the continued health and productivity of the natural systems within

the Preserve. This Preserve is unique in that it represents a transitional

zone between temperate and tropical. As such it contains a mixture of species

characteristic of both zones. This section will also reference some of the

animal species associated with these plant communities. The major community

associations recognized in the preserve are salt marsh, oyster reef, tidal

flats, marine grassbeds, mangrove forest, and hammock islands. Each community

is presented separately although the communities are often intermixed and

energetically interdependent.

A. Salt Marsh. The salt marsh community is one of the major components of

this aquatic preserve. These shallow, sheltered marsh areas 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 incoming tides bring in other nutrients

of marine origin. Tides and currents circulate the material within the system

creating year-round high primary productivity in the order of 2500 g/m2/yr

(Smith, 1980). Outgoing tides carry broken down plant material from the

marshes, thereby enriching nearshore environments.

Zonation of plant species within the salt marsh is dependent on tidal flooding

and salinity. In the St. Martins Marsh Aquatic Preserve, the dominant species

are black needle rush (Juncus roemerianus) in the high marsh (between mean

high water and mean high water spring tide), Salt qrass (Distichlis spicata)

in many areas, and smooth cordgrass (Spartina alterniflora) which occurs in

open lower marsh fringes (between mean low water and mean high water).

Other plant species associated with the salt marsh include Christmasberry
(Lycium carolinianum' salt meadow hay (Spartina patens), sea oxeye (Borrichia.
frutescens), marsh elder jjyi frutescens.), Virginia dropseed (Sporobolus
virginicus), dwarf buttonwood (Conocarpus erecta), sea lavender (Limonium
carolinianum), and glasswort (Salicornia virginica).

The animal life of the salt marsh is rich and diverse. It includes primary

consumers that feed on vascular plant detritus and live 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, like the

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

during low tides. Avian species such as clapper rails, willets, red-winced

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

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

flats and at the edges of the marshes. Mumerous fish species of commercial

and recreational importance either spawn in the marsh, or live there for a

large part of the their life cycles.

B. Oyster Reefs. Oyster bars are common in the low-energy, sediment rich

environment characteristic of the strands of salt marsh occurring within the

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 can affect local turbidity levels through the

process of filtration and deposition. As the reef grows and traps sediment,

it may eventually become colonized by Spartina.

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

many animals, especially sessile suspension-feeding epifauna such as

barnacles, sponges and polychaetes. The crevices also provide a refuge for

motile invertebrates like mud crabs and amphipods. One of the functions of

the reef inhabitants in a salt marsh ecosystem is to mineralize organic carbon

and release nitrogen and phosphorous in forms usable by the primary producers.

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

minnow, raccoon, and numerous wading birds such as the white ibis and

boat-tailed grackle.

Oysters are especially susceptible to chemical pollution and high levels of
turbidity. Dredging activities can greatly increase turbidity levels,
increasing natural sediment loads, and depleting dissolved oxygen. High
coliform levels have temporarily closed shellfish harvesting areas in St.

Martins Harsh in recent years.

C. Tidal Flats. Tidal flats in the preserve consist of intertidal mud flats

associated with the tidal creeks and channels of the salt marsh. Tidal flats

in these areas are relatively stable and sediments can support a substantial

benthic community.

Bacteria present in the sediments efficiently convert dead organic material

to inorganic nutrients which are then available to support primary production.

Algae are abundant on and in the sediments of intertidal flats where they are

important primary producers. The intertidal zone is a harsh environment where

inhabitants are subjected to varying degrees of temperature, salinity ard

dessication. Most organisms have adapted to this by burrowing (protozoans,

polychaetes, amphipods, bivalves), or by feeding on the flats only during

times of inundation (crabs, gastropods, shrimp, fish). Birds are the most

conspicuous predators in this habitat. Some of the more common species

include waders, such as herons and egrets, probers, such as plovers,

sandpipers, and dowitchers, and aerial-searching birds, such as terns and

gulls.

n. Marine Grassbeds/Alqal beds. The tidal creeks, bayous, and shallow Gulf

waters between the marsh and the islands are well vegetated by seagrasses such

as turtle grass (Thalassia testudinum) and shoalgrass (Halodule wrightii and

Ruppia maritima). Seagrasses may be found in monospecific or intermixed

strands. Other marine plants associated with these areas include seagrass

species of Halophila and algal species of Caulerpa and Sargassum . The waters

of the inner marsh exhibit exceptional clarity, rivalling that of the Florida

Keys, and in these areas the bottom is carpeted with lush stands of grasses

and algaes.

Seagrass communities play an integral role in the cycling of nutrients in an

estuarine environment. As primary producers, they are eaten by urchins,

conchs, fishes, birds, qreen turtles, and the endangered West Indian manatee

(Trichechus manatus). The detrital remains of seagrasses and fecal deposits

serve as the primary food source for bottom filter feeders. These

invertebrates in turn are consumed by fish and other marine organisms higher

up the food chain. Seagrasses also provide attachment sites for many forms of

epiphytic algae that may be consumed by small fish and juvenile shrimp (Zeiman

and Wetzel, 1980).

Seagrass blades provide a baffling effect that slows water currents, trapping

nutrients and sediments. The roots and rhizomes bind the sediment, thus

promoting the building of an organic substrate which encourages a diverse

meiofauna. The dense strands of seagrasses provide shelter for many ffsh

species. With the loss of seagrass beds, a reduction in the availability of

food throughout the community results.

Much of the loss of seagrasses can be attributed to dredge and fill

activities. In Florida, 25,000 acres of submerged land have been filled. The

majority of the fill occurred in the creation of land for residential and

industrial development (Zieman, IQ-82). Even if the fill is not deposited

directly on the grassbeds, they are often adversely affected through increased

turbidity. The unconsolidated particles of sediment are continually

resuspended in the water column so recolonization by seagrasses in inhibited.

Propeller cuts also cause extensive damage to the grassbeds. The shallow

waters of the St. Martins t1arsh Aquatic Preserve appear to be experiencing

this type of damage. Commercial and recreational boating in areas with

insufficient bottom clearance results in prop cut channels In many areas.

Commercial fishermen often run the same routes in search of fish, and this

repeated traffic over damaged areas inhibits recolonization.

E. Mangrove Furest. The marshy wetlands of the preserve are first fringed

with and gradually become dominated by mangroves as one proceeds from east to
viest. Black mangroves (Avicennia 2erminans) tend to dominate most of the

mangrove communities because of their resistance to freezes. Red mangroves

(Rhizophora mangle) form a small understory or fringing thicket. Further

offshore, red mangroves become larger and more dominant. The zonation of the

mangrove species, black mangroves shoreward of red mangroves, is a result of

tidal inundation and saline conditions of the soil. Citrus County is outside

the area normally considered as the limit for extensive mangrove forests on

the west coast of Florida. The annual occurrence of freezes gives the

mangroves of the St. Martins Marsh Aquatic Preserve a stunted growth pattern

and limits their distribution. The recent freezes of 1984/85 killed virtually

all of the red and black mangroves in this area. Recent field surveys
indicated that the red mangroves are regenerating from propagules (seeds).

The dominant mangrove forest type in the preserve is the "fringe" forest.

-his type of mangrove forest is characterized by growth on mainland shorelines

of gradual slope, exposure to tides but not daily overwashed, sluggish

internal water flow on high tides with minor to no scouring, and export of

particulates as well as labile organic mat-ter fLugo and Snedaker, 1974).

The mangrove community is a highly productive system. The prop roots and drop

roots of the red mangrove and the pneumatophores of the black mangrove trap

sediments and nutrients thus providing a rich food source for benthic,

planktonic, and nektonic communities. Leaf fall from mangroves also adds

another detrital food source to the system. Mangrove communities filter land

runoff, stabilize substrate, and provide attachment sites for many algal

species. The high level of nutrient availability, coupled with the surface

area of the mangroves both above and below water, provides nursery and rookery

habitat for small fish, invertebrates, and birds.

F. Ha mmock Islands. The St. Martins Marsh Aquatic Preserve surrounds

state-owned uplands within the preserve boundaries. These uplands consists

mainly of hammock islands, both large and small. Since many of these

state uplands and islands occur above the mean high water line, they are

technically excluded from the preserve boundary. However, due to their

location in relationship to the preserve's general boundary (submerged lands

located below the mean high waterline), any activities on these

uplands/islands will be monitored by the preserve management program for

impacts on the preserve. Most state-owned uplands within the preserve occur

in the northern portion in Township 18 South and Range 16 East. Additional

purchases have been proposed that if approved, will give the State control

over much of the upland areas within and surrounding the preserve. This will

immeasurably enhance the management capabilities of the State and aid in

protecting the water quality and viability of the preserve.

Many of the smaller islands are dominated by red cedar (Ouniperus silicicola)

and cabbage palm (Sabal palmetto). These islands are found scattered

throughout the Juncus marsh. Rising sea level and/or storm tides have

apparently taken their toll on some of the islands as is evident by some

islands consisting of almost all dead trees. The larger islands support a

more varied flora including Coontie (Zamia pumila), live oaks (Quercus

virginiana@
cactus (Opuntia sp.), Spanish bayonet (Yucca aloifolia), Yaupon

holly (Ilex vomitoria), Florida privet (Forestiera segreqata), and poison ivy

(Toxicodendron radicans).

3. Animal Life

The diverse habitat and its proximity to state reserve lands and the

Chassahowitzka National Wildlife Refuge makes St. Martins Marsh Aquatic

Preserve an exceptional area for a wide variety of wildlife species. The salt

marsh, seagrass beds and mangroves also provide a refuge for animal species

utilizing the area during migrations and during times of environmental stress

(i.e., drought and storm).

On the nearby Chassahowitzka National Wildlife Refuge, (ail area of 30,EOO

acres of coastal saltwater bays, estuaries, and brackish marshes similar to

St. Martins Marsh in size and habitat), 255 species of birds, over 40 species

of reptiles and amphibians, and more than 25 species of mammals have been

recorded (United State Department of Interior, 1983). In environmental

studies performed for the Crystal River Nuclear Power Plant, 64 species of

marine fishes were recorded, and 78 species of benthic invertebrates were

found in the'marine environments surrounding the sites (Florida Power Company,

1971). This area is approximately five miles north of the preserve. Wildlife

species that are designated as endangered or threatened by either USFWS or

FGFWFC, and that are likely to occur in St. Martins Marsh, are listed in table

1. For management of designated animal species in the aquatic preserve, the

Florida Game and Fresh Water Fish Commission (list published in 39-27.03-.05.,

Florida Administrative Code) is the primary reference source.

One of the most visible and highly publicized endangered species which occurs

in the preserve is the manatee. The Crystal and Homosassa rivers are the

center of a winter warm water refuge for this slow moving aquatic mammal. The

Crystal River and Homosassa populations are comprised of approximately 150

individuals, of which 900, return annually to the springs. This is one of the

few sub-populations that has been growing in recent years. The Preserve is

particularly important to the manatees as feeding territory, and they are

sighted most often in the northern part of St. Martins Marsh near the mouth of

the Salt River.

This is one of the only areas in Florida where the manatee is of economic

importance to a local'community. The thriving dive business of Crystal River

can largely be attributed to the presence of manatees, as well as to the clear

spring-fed waters of King's Bay.

TABLE I. Designated wildlife species likely to occur in St. Martins Marsh
Aquatic Preserve

COMMON NAME SCIENTIFIC NAME LISTING FGF14FC USFWS CITES

BIRDS

Arctic peregrine Falco peregrinus tundrius E T I
.C
lalcon

Cape Sable seaside Ammodramus mari.timus mirabilis E E
sparrow

Scott's seaside Ammodramus maritimus penisulae SSC
sparrow

Limpkin Aramus guarauna SSC

Marian's marsh wren Cistothorus palustris marianae SSC

Little blue heron Eqretta caerulea SSC

Snowy egret Egretta thula SSC

Louisiana heron Egretta tricolor SSC

Pigeon hawk Falco columbarius

Southeastern kestrel Falco sparverius paulus T UR2 II

Bald eagle Haliaeetus leucocephalus T E I

Wood stork Mycteria americana E E

Brown pelican Pelecanus occidentalis, SSC

Least tern Sterna antillarum T

MAMMALS

Florida panther Felis concolor coryi E E I

Florida black bear Ursus americanus floridanus T* UR2

West Indian manatee Trichechus manatus latirostris E E I

River otter Lutra canadensis II

Bobcat Lynx rufus II

Florida mink Mustala vison lutensis UR2

Homosassa shrew Sorex longirostris eionis SSC UR2

REPTILES

Atlanitc ridley turtle Lepidochelys kempi E E I

Atlantic green turtle Chelonia mydas mydas E E I

Leatherback turtle Dermochelys coriacea E I

American alligator Alligator mississip ierfsis SSC VS/A) II

Eastern indigo snake Drymarchon corais couperi T T

FISH

Common snook Centropomus undecimalis SSC

*Not appl,icable in Baker and Columbia counties and Apalachicola National
Forest

KEYS TO LISTINGS

FGFWFC = Florida Game and Freshwater Fish Commission

USFWS = United State Fish and Wildlife Service

CITES = Convention on International Trade in Endangered Species of Wild
Fauna and Floras

E = Endangered

T = Threatened

T(S/A) = Threatened Due to Similarity of Appearance

I Appendix I Species

II Appendix II Species

UR2 = Under review for listing, but substantial evidence of biological
vulnerability and/or threat is lacking.

SSC = Species of Special Concern

Adapted from Official Lists of Endancered and Potentially Endangered Fauna and
Flora in Florida (Florida Game and F;eshwatP Fi sh Commission July 1, r97T-
and Rare and Endangered Biota of Florida (University Presses of Florida,
1978).

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

Manatee Sanctuary Act, within the St. Martins Marsh Aquatic Preserve. I'llanatee

management policies are addressed in Chapter V.

A majority of marine species important to man are linked to the estuarine

environment. It has been estimated that up to 97.5% by weight of the

commercial fishery resources in the Gulf of Mexico and over 90*,'. of the sport

or recreational species in the United States depend upon estuaries during all

or part of their life cycle (Comp, 1985). In Florida, at least 72% of the 90

commercially landed species of finfish and shellfish, and 74% of the 84

recreational species are estuarine dependent (Durako, et al., 1985).

Estuaries serve as nursery grounds for invertebrates and fish species by

providing food, shelter, and refuge from predation.

In addition to the common snook (Centropomus undecimalis), a species of
special concern, the redfish or red drum (Sciaenops ocellata) also occurs

within the preserve. Current regulations for the taking of these species will

be made available to the general public through the preserve staff. Updated

regulations will be obtained through the local Marine Patrol office and all

staff will become familiar with the most recent versions.

Sitings of all designated species will be recorded and monitored, with every

effort made to substantiate sightings of endangered, threatened, and species

of special concern.

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 o-I' future

generations (Section 258.35, F.S.). The management of this preserve will be

directed toward the maintenance of the existina or essentiallv natural

conditions and the restoration of degraded areas. This part of the management

plan addresses the policies and procedures which the onsite and administrative

personnel will pursue. The onsite management will involve DMR's field

personnel assigned to the aquatic preserve. The administrative management

will involve Division of Recreation and Park's personnel (both in the field

and in Tallahassee) and the 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 interacting with various

government and non-governmental 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

within the Aquatic Preserve. Other activities, such as the interaction with

other government and nongovernmental entities, are covered in more detail in

Chapter V! (Management Implementation 11etwork). 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 St. Martins

Marsh area.

1. Plant Communities

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

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

a. they stabilize geologic features such as beaches 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 support 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, many of which are of economic importance to the

commercial fisheries of the state and the nation;

d. they provide roosting and nesting habitat for water birds; and,

e. they physically buffer estuarine and rilverine waters from

contaminated and channelized runoff from uplands within the estuarine

watershed and, in some cases, buffer the uplands from storm waves and

winds.

The management objectives for plant communities will be to maintain and

enhance these functions. Because these plant communities are critically

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

protection and restoration of those communities now damaged or destroyed by

human activities should be developed.

Management Policy

a. Field Familiarization and Documentation. Field personnel will become

familiar with the plant species and communities present in the aquatic

preserve, and locations of,their occurrences. Field maps will be updated on a

bi-yearly basis.

b. Literature Familiarization. Field personnel will continue to assemble a

working library of existing pertinent literature concerning the species and

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

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

to water quality, contribution to landform stabilization, wildlife habitat

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

plant communities within the aquatic preserve.

c. Preparation of Guidelines for Management of Endangered Species.

Field personnel, with the help of the scientific community, personal field

observations and literature reviews, will develop maps (using 7.5 minute

quadrangles or other appropriate scales) showing the locations of threatened

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

guidelines for each species, outlininq the habitat requirements and the

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

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

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

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

spawning, etc. Guidelines for maintaining or restoring habitat essential to

each species will then be developed using all appropriate scientific resources

available.

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

become familiar with the use of aerial photography and LANDSAT imagery, for
the study and monitoring of plant communities (historical and present) and

will use this remote sensing in conjunction with field observations to monitor

and document natural changes such as:

1. freeze damage to, and recovery of, mangrove communities;

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

hurricanes;

3. accretion-related seaward extension of mangrove communities-,

4. erosion-related landward retraction of mangrove communities;

5. depositional burying of marine grassbeds 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 Need of Restoration.

Field personnel will, in conjunction with their resource mapping,

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 site accordinq 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 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 submerged lands when the plant

communities in the proposed use area appear to be Jeopardized.

i. Pruning of mangroves shall only be permitted for minimum access

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

clearing of mangroves in the preserve shall be strictly

prohibited.

ii. Marine grassbed 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, propeller or net damage.

Field personnel shall be notified of applications for uses of

submerged lands within the aquatic preserve by the Bureau of

Land and Aquatic Resource Managerient (BLAP!!) central office. No

applications will be approved within any Resource Protection

Areas 1 and 2 (see section C of this chapter) without a thorough

review by the field personnel. The field personnel will inspect

the site, assess the potential impact to the plant communities,

and then convey their recommendations to the central office as

required.

3. Field personnel will initiate various educational programs

and supplement existing educational programs designed to

increase public awareness of the damage that recreational,

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

on marine grassbed communities. Educational programs can also

be undertaken with other federal, state or local groups

Florida Sea Grant, Citrus County Marine Science Center, school

boards, etc.).

4. Field personnel will develop an exotic plant control and removal

plan after monitoring the rate and extent of invasion by exotic

species, such as Brazilian pepper and Australian pine.

5. In cooperation with the Citrus County Planning Division, and the

Withlacoochee Regional Planning Council, field personnel will

familiarize themselves with the Citrus County Comprehensive

Plan, the Withlacoochee Comprehensive Regional Policy Plan, and

the federal 'Coastal Zone Management Act' so as to assess the

potential impacts of oil spills or natural castastrophe on the

natural resources of St. Mart-ins Marsh.

g. Restoration of Plant Communities. Guidelines will be developed for

restoring damaged marine grassbeds in the Aquatic Preserves where it is

determined that artificial restoration is the appropriate method.

Consultation with professionals in the wetlands restoration/vegetation field

will be conducted to determine the location of stock sources of marine grasses

outside the Aquatic Preserve boundaries and the advisability of transplanting

marine grasses into the preserve to restore damaged grassbeds. The use of

marine grassbeds within the Aquatic Preserve as a stock source for

transplanting and restoring is prohibited due to the risk of a net loss to the

overall community. Research Projects designed to foster habitat

rehabilitation and improvements shall be considered on a case-by-case basis.

Research projects may be approved after a finding by the Board that the

project will result in a net positive benefit to the preserve.

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

needs concerning plant communities within the aquatic preserve. Special

emphasis will be given to research which will provide data that increases the

capability of field personnel to manage plant communities. Tmmediate research

needs include how plant communities respond to environmental stress.

Included in this study should be a determination of how threshold tolerances

of plant community health and diversity are related 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. Personnel will

coordinate, assist and encourage research projects by the faculty, graduate,

or undergraduate students at the research facilities in the area (University

of South Florida, University of Tampa, Eckerd College, Hillsborough Community

College, New College in Sarasota, Mote Marine Lab, University of Florida and

Central Florida Community College). 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 finding and uses. The research

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

2. ANIMAL LIFE

The richness of the animal life in the St. Martins Marsh area was an important

factor in its designation as an aquatic preserve. The fish, shrimp, and crabs

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

resources.on which recreational and commercial fisheries depend. Large areas

of undisturbed wetlands are excellent habitat for many types of wildlife.

These wildlife include an extensive list of endangered, threatened, or

species of special concern habitats, migratory waterfowl, colonial waterbirds,

invertebrates and vertebrates.

Management objectives for the fauna within the aquatic preserve will be

focused on the protection through preservation or restoration of habitats

within the preserve.

Management Policy

a. Field Familiarization and Documentation. Field personnel will become

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

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

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

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

and occurrence in the aquatic preserve.

b. Literature Familiarization. The field personnel will continue to assemble

a working library of existing pertinent literature concerning the animal

species and communities present in the aquatic preserve. Staff will become

familiar with the ranges, life histories, ecological requirements, position in

the community, habitat and other factors necessary for sound management.

c. Preparation of Guidelines for Management of Designated Species. Field

personnel will become familid@ with the guidelines of the Florida Game and

Fresh Water Fish Commission, U.S. Fish and Wildlife Service, Department of

Natural Resources' Division of Marine Resources, National Marine Fisheries

Service, Marine Fisheries Commission, and any other applicable agencies and

non-governm,ental organizations involved in the management of endangered or

threatened species, species of special concern and their habitats. These

guidelines will be used in conjunction with the field familiarization,

documentation, and mapping to develop management guidelines for each species,

outlining their habitat requirements. 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, and spawning, etc.

Literature information and personal observations will then be used to develop

guidelines for maintaining (or restoring if necessary) the "critical habitat"

required by each species.

d. Manatee Management. When application for the use of submerged lands

within the aquatic preserve or adjacent upland activities will affect a

manatee sanctuary, critical manatee habitat, or manatees known to use an area,

field personnel will notify the State Manatee Coordinator. These applications

or activities will require the coordinator's authorization and approval before

they can be recommended by BLARM. Field personnel will also work with the

coordinator in the practice and procedures of the following activities:

i. 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 and will make use of other governmental

personnel and private individuals where possible.

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

boat/barge collisions are more likely.

iii. identify any other areas for additional manatee sanctuaries, special

channel marking, and slow speed zones.

iv. Application for use of submerged lands will be reviewed for design and

operation that are least dangerous and disruptive to manatees.

Approved uses within manatee areas should require manatee caution

signs and any other requirements that will guarantee manatee health

and safety.

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

facilities is prohibited in manatee sanctuaries and severely

limited in identified manatee use areas.

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

sanctuaries shall be prohibited.

vii. Assist local governments in the incorporation of manatee issues into

their marina siting elements.

viii. Schedule and monitor activities within manatee use areas during

seasons of lowest use.

ix. 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

flow changes, and any other physical changes.

f. Protection of Animal Life from Human Uses-of the Aquatic Preserve. The
protection of animal species shall be considered when reviewing applications

in or affectinq the preserve. The reviewer shall also consider the potential

effects of the proposed use on plant communities that function as habitat for

the animal life. Disturbances that alter or hinder the natural activities and

functions of the animal species living within the preserve (e.g., air

pollution, excessive noise or bright lights affecting a bird rookery), shall

also be analyzed and concerns addressed in the permitting process. Field

personnel will 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 personnel shoulid be involved in planning the

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

a. Identification of Research Needs. 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).

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. This

knowledge should strengthen the review process for applications on state-owned

land as they might affect these features. These geologic features will

include inlets, islands, shoals, shorelines, embayments, and channels. The

overall objective of the managerrent 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, revetments, groins, dredge

and fill, bridges and channels as they might affect state-owned lands.

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. Bulkheads placed upland of the aquatic preserve shall be

constructed following the natural contour of the shore. Drainage patterns

will be maintained or shall only be minimally altered. The use of rip-rap

with mangroves or other suitable native plantings are always preferable to

bulkheads. Management will make every effort to educate the public about the

economic and environmental advantages of vegetated shorelines.

Existing bridges and causeways throughout the state have resulted in losses of

grassbeds, mangroves and the degradation of the water quality. Causeways

restrict natural flushing and create unnatural circulation patterns.

Proposals for bridge and causeway construction within the preserve will be

reviewed in light of these potential impacts.

The only existing dredged channel located in the St. Martins Marsh Aquatic

Preserve is the "Homosassa River Channel" and is located on the southeastern

portion of the preserve in Sections 35-36 of Townships 19S Range 16E. The

length within the preserve is approximately two miles and meanders

southwestward. The U.S. Fish and Wildlife Service has indiciated that this

channel is critical habitat of the endangered manatee. Tt is unlikely that

future maintenance dredging will be performed (Mr. R.W. Clutter, U.S. Army

Corps of Engineers Cyrstal River, pers. comm.). Channel dredging has

adversely impacted other waterways, with varying influences, depending on

channel location and current. Proposed channel dredging will be reviewed in

light of these past experiences.

Field personnel shall also be involved in the review of project proposals

submitted to other agencies, such at the U.S. Army Corps of Engineers,

Department of Environmental Regulation, the Department of Transportation or

the Southwest Florida Water Management District, and shall formally review and

comment on any permit application that impacts the aquatic preserve. These

projects shall be reviewed jointly with those agencies' personnel whenever

possible. Field personnel will review these projects and act as advocates 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 tangible

remains of events which occurred at a specific time and place.

iii. While these sites uniquely reflect localized events, these events and

the origin of particular sites are related to conditions and events in

other times and places. They also preserve traces of past biotic

communities, climate, and other elements of the environment that are

of interest to both the scientific community and the general public.

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

because their significance is derived not only from the individual

artifacts within them, but especially from the spatial arrangement of

those artifacts in both horizontal and vertical planes.

Administering Agency

The management of the archaeological and historical sites is authorized and

administered by the Division of Historical Resources, (DHR) in the Florida

Department of State. The management authority for these resources is

presented in Chapter II (Management Authority).

Management Policy

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

the DHR and subject to the agency's changes. Their policy is as follows:

1. The field personnel and all other agencies planning activities

within the aquatic preserve shall coordinate closely with DHR in

order to prevent any unauthorized disturbance of archaeological and

historical sites that may exist on the affected tract. DHR is

vested with the title to archaeological and historical resources

abandoned on state lands and is responsible for administration and

protection of such resources (subsection 2167.061(l)(b), F.S.). it

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

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

planning activities should coordinate their plans with DHR at a

sufficiently early stage to preclude inadvertent damage or

destruction 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 DHR will have knowledge of the known and expected site

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

be required by DHR to identify potential endangerment of a proposed

activity to these archaeological and historical sites. This will be

especially necessary in the case of activities contemplating ground

disturbance over large areas.

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

damage these sites shall alter their management or development plans

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

damage such sites prior to professionally acceptable and authorized

mitigation.

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

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

determined that valuable historical or archaeological sites will be

damaged or destroyed, DHR reserves the right to require salvage

measures to mitigate the destructive impact of such activities on such
sites (subsection 267.061 (1) (b), F.S.). Such salvage measures

shall be accomplished before DHR would grant permission for site

destruction.

J. 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 DHR.

Cooperation with other agencies in this activity is also encouraged

by DHR. The DHR 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 DHR so that appropriate action

may be initiated. The Florida Marine Patrol and other enforcement

personnel of DNR shall provide enforcement assistance to DHR 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 DHR and their procedures for identifying

suspected sites.

S. WATER RESOURCES

Responsible management of water resources for the protection of human health

and recreational enjoyment of the Aquatic Preserve water, as well as for the

protection and enhancement of the Preserve's plant and animal communities is

the most critical aspect of aquatic preserve management. Research to

understand how human activity can alter or detrimentally affect the dynamic

characteristics of the Preserve's various habitats can be approached

confidently after monitoring data has been used to model the effects of

naturally occurring variations on the same habitat. A single toxic substance

may be all that is necessary to initiate irreparable ecological damage and

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

Management Policy

The successful management of the water resources of the Aquatic Preserve

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

Florida Water Management District) charged with regulating water quality and

quantity. Water resource management shall have as its major objective the

maintenance of water quality and the natural seasonal fluctuations of fresh

water into the estuary. Water resource data is available from governmental

and non-governmental agencies, among them colleges, universities, scientific

foundations and private consultants working in*the area. These various

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

and estuarine system. The aquatic preserve management program will manage the

water resources through coordination with these various entities. The field

personnel will not conduct water sampling, but through the review of data from

other entities and from field observations, they will identify water resource

problems in the aquatic preserve. Efforts will be made to ensure consistency

in project design and sampling techniques so that data from various studies

can be used for integrated analysis.

a. Familiarization with the Jurisdiction, Personnel and Monitoring

Programs of Government Agencies 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. Those agencies known to be working or having potential activities

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

identified.

1. Florida Department of Environmental Regulation

2. Citrus County Public Health Unit

3. Aquatic Services Division (part of Citrus County's Department of

Technical Services)

4. Southwest Florida Water Management District

5. Marine Fisheries Commission

6. U.S. Geological Survey

7. U.S. Fish and Wildlife Service

8. Withlacoochee Regional Planning Counc'11

9. Division of Forestry

10. Fl orida Game and Fresh Water Fish Commission

11. Florida Department of Natural Resources Marine Research Laboratory

12. University of Florida

13. University of South Florida

14. Central Florida Community College

15. U.S. Environmental Protection Agency

16. Eckerd College

17. Mote Marine Lab

18. Florida Power Company

19. Department of Natural Resource-State Reserve Section

20. Department of Natural Resources-Shellfish Sanitation Section

21. Sea Grant Extension Service

22. Citrus County Department of Development Services

b. Monitoring of Water Resources by Cooperative Data Collection 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 complied by those agencies as it applies to the aquatic preserve and i-%,-.s

resources.

c. Review of Lease Application for Aquatic Preserve Uses and Watershed

Activities that would affect the Preserve Water Resources. Field personnel

will review sovereign land lease applications, development of regional impact

reviews, and DER/COE permit applications in cooperation with other agencies as

-necessary, and as outlined in Chapter V (B5a) for their potential impact on

the water resources of the aquatic preserve.

d. Familiarization with and Monitoring 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 resource data. Field personnel will encourage and

coordinate with other agencies involved with water resource 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

preserve and their effect on the environment.

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

and the coordination through Chapter VI (Management Implementation Network).

By onsite inspection the field personnel will be able to monitor environmental

impacts as and before they occur. Interaction with other federal, state and

local agencies will facilitate this regulation.

6. CUMULATIVE IMPACT ANALYSIS

Cumulative impacts are the sum total of major and minor changes or effects

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

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

changes or uses accumulate their combined impact may result in a substantive

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 the 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 18-20 F.A.C.:

"(1) 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 reasonably 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 agencies.

(6) The extent to which 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

identified for specific areas and/or resources, they will become an integral

part of the project analysis and decision-making process.

7. MANAGEMENT OF ENCROACHMENTS

The management of encroachments in the preserve will concern the unauthorized

placement of structures, unauthorized dredging or filling, or other illegal

uses in the aquatic preserve. These encroachments might also include illegal

activities associated with an approved 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. After a field identification of a

suspected encroachment, field personnel will notify the central office to

verify the title of the property and research the possibility that the use was

an approved activity. The potential for unauthorized activities in such an

extensive area is tremendous. A progressive system of mapping and recording

will be initiated to assist the field personnel in their monitoring of the

preserve. Aerial surveys will be done to facilitate reconnaissance of illegal

activities and mapping.

The management action for verified illegal encroachment will be developed by

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

assist, as necessary, with field evaluation or other support activities.

Final actions will be monitored by 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 PROTECTION AREAS

The preliminary description and location of resources within the area

(approximately 23,000 acres of submerged land), will require the use of remote

sensing techniques. This work will be done in conjunction with DNR's Marine

Research Laboratory. 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 identifies and classifies various resources within the aquatic

preserves that require protection by the management program. Acreage totals

for each land use and vegetation classification in the preserve are provided.

The onsite managers will supplement the vegetative portion of the mapping with

wildlife and fisheries information (endangered, threatened, and species of

special concern, bird rookeries, etc.), archaeological and historical site

information and other resource factors deemed crucial to the continued health

and viability of the aquatic preserve.

These maps will then provide the information needed to develop and update a

Resource Protection Area (RPA) mapping program. The RPA mapping system is

based on three levels of resource classification. The RPA I level contains

resources of the highest quality. Uses proposed for these areas receive the

most rigorous review. The RPA 1 level includes one or more of the following:

marine grassbed; live bottom; mangrove swamp; saltwater marsh; oyster bars;

archaeological and historical sites (upland and submerged); endangered,

threatened, and species of special concern habitats; colonial waterbird

nesting sites; and other appropriate factors.

The RPA 2) areas are defined as those areas containing the resources of RPA 1,

but in a transitional condition compared to RPA 1. These resources may either

be building toward RPA 1 status or declining to RPA 3 status. RPA 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 more sensitive to

disturbances than RPA I areas. The resources of RPA 1-1 will include:

designated species habitats; marine grassbeds; mangroves in scrub condition or

colonizing new lands; beaches undergoing restoration; saltwater marsh

colonizing new lands; and other resources of RPA I type that fit in the RPA 2

condition.

RPA 3 areas are characterized by the general absence of the attributes of the

above two classes. RPA 3 areas may have small localized RPA I or 2 areas

within them. RPA 3 generally have deep water areas or areas with no

significant vegetation or wildlife attributes. Mearshore and bottom areas

significantly modified by man are designated RPA 3.

These RPA maps will require periodic revisions as the onsilte 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

sensinq monitoring as its use is more fully developed.

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

staff. t1ore detailed field review will still be required to supplement this

information on a case by case basis, as necessary.

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

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

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

requested from the colleges, universities, foundations and other interested

groups and individuals.

The RPA mapping may use the LISGS 7.5 quadrangle map format for veqetation and

these maps will be available at the central office. 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. ADMIMTSTRATIVE MANAGEMENT OBJECTIVES

This section o-F 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 coo*rdination linkage is important

to many program aspects, including proliect review evaluation, local contact

initiation, administrative rule development, contractual services and conflict

resolution, and 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 of 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.

-o their affect on the
f. To review all existing and past activities as ILI

environmental integrity of the aquatic preserve.

2. Project Review and Evaluation

A major element in the administration of an aquatic preserve management system
is the establishment of a thorough project review process. It is the program

4ntent that the central office staflF review all proposed activities requiring

the use of state-owned lands within the preserve. Sections 2'58.42- through

258.44, F.S., establish the legal context within which all proposed uses oil

the aquatic preserve must be evaluated. Essentially, these sections require

that proliects be basically water dependent or water-enhanced, not contrary to

'Che 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 2_53, F.S., and modified by Chapter 258, F.S. The central office was

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

for the purposes of evaluation the environrinental consequences of proposed uses

of 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 Transportation (DOT) aerial photography, LANDSAT imagery, DER biological

reports, and other data resources. if a proposed activity is leSally

consistent with the maintenance criteria outlined in Section 258.42 F.S. and

Chapter 18-20, 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 officb 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 notifications of projects potentially affecting the preserve. All

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

central office unless other arrangements have been previously cleared with the

central office.

While the State Lands Manacement Program authorized by Chapters 253 and '4158,

F.S. and Chapters 18-21 and 18-20, F.A.C., is expected to be the primary

management implementation vehicle for the aquatic preserve, it is by no means

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

Memorandum of Understanding between the COE, DER, and DNR provide direct

access to DER 's-permitting process for MR. The Development of Regional

impact (DRI) and other regional or state level review processes represent

other implementation mechanisms. The basic review approach and the evaluation

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

the case involving 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

specifically prohibited. Tmmediately upon review of such project applicaticn,

the central 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 perinissible,

Section 258.42, F.S., specifically prcvides that:

"(1) No further sale, lease, or transfer of sovereignty submerged lands

shall be approved or consummated by the trustees except when such

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

-erward relocation or setting
(2) The trustees shall not approve the wat

of bulkhead lines waterward of the line of mean high water within

preserve except when public road and bridge con struction projects

have no reasonable alternative and it 'is shown to be not contrary

the public interest.

(3) (a) No further dredging or filling of submerged lands shall be

approved by the trustees except the followinq activities may be

authorized pursuant to a permit:

1. Such minimum dredging and spoiling as may be authorized for

public navigation projects.

L Such minimum dredging and spoiling as may be authorized for

creation and maintenance of marina, piers, and docks and their

attendant navigation channel-s.

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

opinion of the trustees, be nece7ssary 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. IL53.124(8).

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 o-f providing fill for any area

landward of a bulkhead line.

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 of

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

Structures for shore protection, approved navigational aids, or

public utility crossings authorized under subsection (3)(a).
(f) No wastes or effluents shall be discharged into the preserve which

substantially inhibit the accomplishment of the purposes of this

act.

(g) No nonpermit-ted wastes of effluents shall be directly discharged

into the preserve which substantially inhibit the accomplishirent

of the purposes of this act."

Generally, applicants desirous of appealing staff recommendations will have to

X
lollow those appellate procedures outlined in the appropriate authorizing

statutes. Tn the case where applications requestinq the use of state-owred

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

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

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

rendered by the Executive Director or 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-Oth-er '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 initiallv identifying and contacting

governmental bodies, special interest groups a*nd interested individuals

requiring aquatic preserve program coordination.

h1hen 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 DHR to

conduct a detailed cultural resource assessment for certain areas of 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 program,

non-governmental entities, interest groups, and individuals within the aquatic

preserve area. The activities of hoth 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

prograris 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 agencies in areas where they havP common goals. The field personnel

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

effect on the objectives o-F the aquatic preserve management. This review

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

purposes of enforcing the provisions of the Federal Coastal Zone Management

Act of 1972, as amended.

1. United States Fish and lolildlife Service The aquatic preserve program will

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

charged with providing technical guidance and planning 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

types 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 and wildlife.

COE activities include their involvement with the DER in the dredge and fill

permitting process, technical oversight of channel, inlet and canal
maintenance, and evaluation requests for new channels, canals, and other such

public work projects. The field personnel will become familiar with the

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

preserve.

Field personnel and central office staff wil: also review activities proposed
by the COE for conformance to the objectives of the aquatic preserve
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 of 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 the state level in

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

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

coals.

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 conflictwith 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

(NVFS) under the U.S. Department of Commerce is active in the St. Martins

Marsh area in recording commercial fish landings. The NMFS also has

enforcement officers in the area checking for illegal fishery activities.

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 St. Martins Marsh Aquatic Preserve. This

section will describe the interactions and relationships of these various

aqency programs and how they relate to aquatic preserve management.

1. Department of Environmental Regulation. The Department of Environmental

Regulation (DER) is responsible for regulating air and water quality and, in

some cases, water quantity (through the water management district) within the

Citrus County area. The DER is also the local contact for the initiation of

dredge and fill applications in conjunction with the COE and DNP. Vit-h

respect to water quality and. dredge and 17ill regulation, the DER is possibly

one of the most important aqencies to the management o-r the aquatic preserve.

The water quality of the preserve is the most important factor i.-o t@e health

of the estuarine complex, and dredge and fill activities are one of the most

potentially destructive activities within the preserve. The DER also

regulates other forms of pollution, such as air, noise, wastewater and

hazardous waste, which may be important in the future to *'Lhe preserve.

Field personnel will become familiar with the water quality, dredge and fill,

and other regulatory programs that are important to the aquatic preserve. The

field personnel should develop a close working relationship with DER staff and

become familiar with DER field activities and programs that are in common with

the objectives of the aquatic preserve management program. Field personnel

should open the most efficient line of communication with the local offices to

receive the permit applications for DER as soon as possible to improve the

response tine within the review process.

The DER, Office of Coastal Management is charged with coordinating activities

related to coastal management in the state and reviewing federal actiens for

consistency with the State Coastal Mianagement Program, Section 280.20, F.S.

The central office staff will maintain a close relationship with the Office of

Coastal Mannement for assistance in the review of federal actions, data and

research needs, and other prograrn. support.

83,

2. Department of Community Affairs. The Department of Community Affairs
(DCA) is responsible for reviewing Developments of Regional Impact (DRI) and

for designating Areas of Critical State Concern (ACSC). DRI's are major

developments that have impacts on a scale which is greater that 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. Field personnel should

receive notice of a DRI through the central office staff and will proceed with

the field review. The central office staff will coordinate field review

findings and work with the other state agencies in Tallahassee in the review

of DRI.

The ACSC program is intended to protect the areas of the state where

unsuitable land development endanger resources of regional or statewide

significance. When an area is identified as a possible ACSC, a Resource

Planning and Management Program (RPMP) is established. The RPMP evaluates the

resources, and the local government's land development practices. After this

evaluation is complete, the RPMP committee makes recommendations to the local

governments on how their land development practices could be improved to

ensure an orderly and well-planned growth that would protect the critical

resources. The local governments, counties and cities, are now in the process

of making these land development modifications, based on the RPMP

recommendations. If these modification are not made to the PPMP Committee's

approval, those areas of local government that are not in conformance could be

designated as ACSC or the entire area may be designated an ACSC by the

Legislature. Under the ACSC designation, the local governments are required

to notify DCA of any application for a development permit. The entire land

development process will require the state's oversight until that local

government modifies its land development practices to conform to the ACSC

requirements. The St. Martins Marsh Aquatic Preserve and Citrus County are

not located within a state designated area of critical state concern.

3. Department of Hatural Resources. The aquatic preserve management program

is associated with several other Department of Natural Resource (DrIR) programs

in the Crystal River - Homosassa Springs area.

UR's Division of Marine Resources has statutory authority under section

370.02(2), F.S. to perform research directed toward the broad objective of

managing fisheries research. The Division's Marine Research Laboratory in St

Petersburg has several programs and proliects within this area which will

bene-Fit the aquatic preserve program. As a product of a fishery habitat loss

study, Resource Protection Area mapping is being done and will be used in the
management of the preserve. The data from this project, when completed, will

be incorporated into this management plan. The Marine Lab is also involved in

manatee protection programs and the lab is the headquarters of the State

Manatee Coordinator. These proJects include distribution and abundance

surveys, as well as mortality statistics and public education. Field

personnel will become familiar with these studies and programs, and will

consult the Marine Lab for their data needs whenever possible.

The Divisicn 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

an@ request notification of these permits within the aquatic preserve.

The Marine Patrol, under NIR's Division of Law Enforcement, also operates in

St. Martins Marsh. 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, or transfers of state-owned lands. The aquatic preserve staff will

interact with State Lands in all transactions concerning submerqed lands

within the aquatic preserve. These would include potential acquisition of

privately titled submerged lands or contiguous uplands important to the

integrity of the preserve.

The Division of Resource Management, through the Bureau of Geology and Aquatic

Plant Research and Development, is responsible for various programs

potentially 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 the work related to

aquatic preserves by BLARM and the Florida Park Service, is also involved in

the management of State Parks and Recreation Areas and the adjacent Crystal

River State Reserve. The aquatic preserve 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 7

F.S. The seven members are appointed by the Governor and are delegated full

rulemaking authority over marine life (subject to approval by the Governor and

Cabinet), with the exception of endangered species. This authority covers the

following areas: a@ cear 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) season, and j) special

considerations related to eacbearing females and oyster and clam relaying.

Field personnel and central office staff will become familiar vIth and enforce

the rules o-F the MFC.

The MFC is also instructed to make annual recommendations to the Governor and

4-
Cabinet regarding marine fisheries research priorities. The field and cenl,,a

office staff will use these and other recommendations to approve research

efforts within the aquatic preserve.

5. Florida Game and Fresh Water Fish Commission (GRIFC). The GFWFC's

crivironmental Services office in Tallahassee sends biologists into the

preserve to review projects which may have potential impacts on local fish and

wildlife habitat as necessary. The central office will use the GF14FC's

assistance in their review process, when possible, and in developing fis@ and

wildlife management for the aquatic preserve.

The GFWFC is also the state coordinator of the Endangered Species in Florida.

The field personnel and central office staff will work with GFWFC personnel in

developing program needs in this area.

6. Department of Transportation (DOT). The aquatic preserve field staff and

the central office will work with the resident*engineer 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 Historical Resources (DHR) 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 DHR, through the

central office, in any activities or management policy needs for these sites.

8. 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 reculation 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

Florida Coordinating Council on Mosquito Control. Subsequent policy

recommendations 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 process as it applies to

the St. Martins Marsh Aquatic Preserve includes the Southwest Florida Water

Management District, and the Withlacoochee Regional Planning Council. These

organizations have activities that are broader than that of the local

government, but are on a smaller scale than the state level.

1. Southv,,est Florida Water Management District (SWFVJMD). SWFWMD includes

Citrus County along with 15 other counties in their jurisdictional area. The

water management district administers permitting programs 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 preserve area

include irrigation and public water supply. Field personnel will become

familiar with the review and permitting procedures as they apply to water

supply in this area. 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 management.

1). PC). The WRPC serves as a
4. Withlaccochee Regional Planning Council (WP
regional planning body for the local governments of Levy, Citrus, Marion,

Sumter, and Hernando Counties. Among their duties, the WRPC:

a. aid local governments with planning expertise;
b. are the regional representatives for the Development of Regional

impact (DRI), review process;

c. serve as a regional clearinghouse for state and federal projects dnd

programs; ard

d. convey information from the local governments to the state and

federal levels.

Field personnel will become familiar with the various projects, programs, and

data sources that the WRPC has within its admibistration that may affect or

prove useful to the aquatic preserve program.

The DRT review of projects which affect the aquatic preserves will be

conducted by the central office staff, taking into consideration 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.

D. LOCAL GOVERNMENTS AND SPECIAL DISTRICTS.

This section will address-the,relationship of the aquatic preserve management

program to the various local government agencies, special districts, and their

associated programs. The St. Ma rtins Marsh Aquatic Preserve is entirely

contained within Citrus County and does not have any incorporated cities

immediately adjacent to it. The various special districts (drainage, inlet

and mosquito control) and their relationship to aquatic preserve management,

are also presented.

Field personnel will be the local liaison for the aquatic preserve to these

local government entities to assist them in modifying their 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 coont,y)

governments are required by the Local Government Comprehensive Planning Act of
1975 (LGCPA), (Section 163.3161, F.S.) Tas amended by Chapter 85-55, Laws of

Florida to the Local Government Comprehensive Planning and Land Development
Regulation Act! to have a comprehensive management plan with elements relating

to the different governmental functions (i.e. housing, physical facilities,

conservation, land use, and coastal zone protection). Local governments mwst

produce comprehensive plans pursuant to the minimum criteria set forth in

Chapter 9J-5 F.A.C. These plans, in effect, are long-range plans for the

orderly and balanced development of the city or county. The comprehensive

plans guide local zoning policies and practices toward a future as set out in

the plan. No development is permitted that does not conform to the local

government's comprehensive plan.

The aim of the aquatic preserve, with respect to these local government

comprehensive plans, is to have their plans be consistent with the aquatic

preserve management plans. Review of the comprehensive plan for Citrus County

has produced no obvious inconsistencies between the policies of the

comprehensive plan and the resource management policies of this aquatic

preserve plan. As this local government proceeds to revise their plan staff

will review existing and new policies that apply to resource protection in the

area surrounding St. Martins Marsh, and will advise local governments of their

consistency with Trustees adopted policies for the preserve. It is expected

that local oovernments will join in the spirit of aquatic preserve management

and will work for these changes.

2. Relation to local development codes. The local zoning and development

codes (e.g., building codes) provide the malJor local regulation that defines

what an owner can do on a particular parcel of 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 the

preserve.

This section will operate in conjunction with the preceding section on local

Planagement plans. The field personnel will become familiar with the local

zoning, development codes and their potential effects on the nearby aquatic

preserve. Field personnel will assist local planning and zoning officials in

identifying areas where changes in zoning would better conform to the

objectives of the aquatic preserve management. Field personnel might also

offer to assist local planning and zoning officials in the review of proposed

subdivisions upland of the preserve.

3. Suggested policies and practicesin support of Aquatic Preserve
ManageNent. This section will address any other policy or practice not
covered in the two preceding sections. These policies and practices might

include local government mangrove ordinances; recreation problems where a park

is in or near an aquatic preserve, or any other problems as they 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. 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 drainage and Mosquito

control problems. This is one drainage district that directly affects the

preserve. Citrus County has only one mosquito control district.

T
Ws district may not have its own official comprehensive management plan, but

it does have a management policy and program statement that is similar to such

a plan. Field personnel will become familiar with these policies and -It.-he

activities of this district and will monitor its effect on the aquatic

preserve. For example, field personnel might recommend identifying areas that

should not receive mosquito spraying or other alternative management because

of the remoteness to inhabited areas and possible, but unnecessary damage to

the resources of the aquatic preserve; or drainage districts might be asked not

to use certain types of herbicides or to use them only at certain times of the

year.

F. OTHER ORGANIZATIONS

This section will apply to the numerous organizations that have ar 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 Native Plant Society), 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 South Florida, University of

Tampa, University of Florida, Central Florida Community College) and any other

interest groups or individuals. The relationship of these organizations to

aquatic preserve management might include the coordination of activities, such

as scientific research, environmental educall-ion, 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 the preserve. Field personnel will be active

in communicating the aquatic preserve management process ard activities to the

various groups and consulting with them for their help in their areas of

expertise.

Preface

(Chapters VII -IX),

Authorized Activities and Uses of Aquatic Preserves

The following chapters provide a description of public, private and commercial

activities/uses that are allowable pursuant to statutory direction and all

other applicable authorities in aquatic preserves. These activities/uses are

subject to the approval of the Board (Governor and Cabinet) or their designee.

Approval of these activities/uses is normally predicated upon a demonstration

that t@e proposed activity/use is environmentally so und and/or is, in the

opinion of the Board, necessary in conjunction with an overriding public need.

In all cases, approved activities/uses that adversely impact the resources of

an aquatic preserve shall only be approved when accompanied by adequate

compensation measures that contribute to an overall net public benefit.

Mitigation measures, other than those associated directly with programs for

habitat reestablishment or rehabilitation, are viewed by the Board as

.inadequate attempts to compensate for alteration of essentially natural

ecological conditions through the establishment of artificial resource

systems. Therefore, mitigation will only be encouraged in conJunction with on

and off-site projects that are designed to reestablish natural habitat values

and where the aquatic preserve will biologically and aesth-etically benefit

-From the proposed restoration actions.

If T
Chapter .1

Public Uses

This chapter addresses the public use of the 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 958.35, F.S)

allows for the lawful and traditional public uses of the aquatic preserve,

such as sport fishing, boating and swimming (as adapted from subsection

258.43(i), 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

considered public uses. This section will be further divided into consumptive

and non-consumptive uses as applicable to each resource.

A. Consumptive Uses

Consumptive uses involves the removal of resources from the preserve. These

t4
uses include fishing, hun ing, shellfishing, and other related activities.

They also include the unintentional removal of resources by propeller damage

to seagrass beds and air boat damage to salt marshes. The management of these

uses (see Chapter I.'. 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 Research Laboratory's LANDSAT

capabilities, aerial photography, boat surveys and current studies or data

sources for 'Identifying habitat losses or disturbances in the St. Martins

Marsh area. This management will also include the protection of the resources

from unlawful or excessive practices of these uses. Field personnel will, for

example, become familiar with and monitor the success of rules adopted by the

Marine Fisheries Commission. These will include regulations on fishing gear,

bag and size limits, closed areas, seasons, etc,

These consumptive uses will also be monitored for their effect on other

resources (e.g. bird rookeries, marine grassbeds, live bottom communities,

archaeological and historical sites). The field personnel will also be

sensitive to additional enforcement needs (i.e., the need for added

enforcement staff during nesting seasons).

B. Non-consumptive Uses

These uses are those which do not qenerally remove resources from the

preserve. Examples of these include swimming, diving, boating, bird-watching,

and other related activities. Although boating and diving are usually

considered non-consumptive uses, they can become consumptive when boat

operators carelessly place anchors in seagrass beds, navigate into waters that

are too shallow for their boats, or divers remove components of a live bottom

community. Also air boat traffic across sensitive salt marsh or other wetland
communities will be considered a consumptive use (i.e. destruction of plants,

disturbance of rookeries). 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 disruptions of the

preserve's resources (e.g. destroys marine grassbeds or salt marshes, disturbs

rookeries). Only in the event of these disruptions will the field personnel

become involved. Some of these uses may possibly be involved in environmental

educational programs (Chapter XI)

Chapter VIII

PRIVATE NON-COMMERCTAL USES

This section will apply to those private, non-commercial uses which are

derived from riparian land ownership. The management of the aquatic preserve

recognizes the traditional riparian rights ol" the 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

preern,ptive 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 will riot

impair public uses or destroy or damage areas of environmental significance.

The review cf these 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 Areas 1 and 2 and shall be designed to reduce the user's impact to

the preserve in general. Individual 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 18-20.04(5),F.A.C. of the revised Ceneral

Aquatic Preserve Rule:

1. no dock shall extend waterward of the mean or ordinary high water
line more that 500 feet or 20 percent of the width of the waterbody at that
particular location whichever is less;
2. certain docks may fall within areas of special or unique
importance. These areas may be of significant biological, scientific,
historic and/or aesthetic value and require special management
considerations. Modifications may be more restrictive than the normally
accepted criteria. Such modifications shall be determined on a case-by-case
analysis, and may include, but shall not be limited to changes in location,
configuration, length, width and height;
3. the number, lengths, drafts and types of vessels allowed to
utilize the proposed facility may also be stipulated;
4. where local governments have more stringent standards and criteria
for docking facilities, the more stringent standards for the protection and
enhancement of the aquatic preserve shall prevail;
5. any main access dock shall be limited to a maximum width of four
(4) feet;
6. the dock decking design and construction will insure maximum light
penetration, with full consideration of safety and practicality;
7. the dock will extend out from the shoreline no further than to a
maximum depth of minus four (- 4) feet (mean low water);
S. when the water depth is minus four (-4) feet (mean low water) at
an existing bulkhead the maximum dock length from the bulkhead shall be 25
feet, subject to modifications accommodating shoreline vegetation overhang;
9. wave break devices, when necessary, shall be designed to allow for
maximum water circulation and shall be built in such a manner as to be part
of the dock structure.
10. terminal platform size shall be no more that 160 square feet; and
11. dredging to obtain navigable water depths in conjunction with
private residential, single dock applications is strongly discouraged.

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.

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-RPA 1

areas (Chapter V (C)) will be scrutinized to the maximum extent in order to

find the best practical method of development and location if that use is

deemed acceptable in that particular area of the preserve. The mitigation of

100

lost or disturbed resources shall be required and shall meet the above

mentioned criteria. There shall be no dredging allowed in RPA 1 or 2 areas or

in nearby areas if it will adversely impact these areas.

The location of proposed multiple docking facilities, such as condominium

developments, shall be based on the marina siting criteria described in

subsection 18-20.04(5) F.A.C. of the revised General Aquatic Preserve Rule.

1. no dock shall extend waterward of the mean or ordinary high water
line more that 500 feet or 20 percent of the width of the waterbody at that
particular location whichever is less;
certain docks may fall within areas of special or unique
importance. These areas may be of significant biological, scientific,
historic and/or aesthetic value and require special management considerations.
Modifications may be more restrictive than the normally accepted criteria.
Such modifications shall) be determined on a case-by-case analysis, anG may
include, bUt shall not be limited to changes in location, configuration,
length., width and height;
3. the number, lengths, drafts and types of vessels allowed to
utilize the proposed facility may also he stipulated;
4. where local governments have more stringent standards and criteria
.C
ior docking facilities, the more stringent standards for the protection and
enhancement of the aquatic preserve shall prevail;
5. the area of sovereignty, submerged land preempted by the docking
facility shall not exceed the square footage amounting to ten times the
riparian waterfront footage of the affected waterbody of the applicant, or
the square footage attendant to providing a single dock in accordance with
the criteria for private residential single docks, whichever is greater. A
conservation easement or other such use restriction acceptable to the Board
must be placed on the riparian shoreline, used for the calculation of the
10:1- threshold, to conserve and protect shoreline resources and
subordinate/waive any further riparian rights of ingress and egress for
additional docking facilities;
6. docking facilities and access channels shall be prohibited to
Resource Protection Area 1 or 2, except as allowed pursuant to Section
258.42(3)(e)l., Florida Statutes, while dredging in Resource Protection Area
3 shall be strongly discouraged;
7. docking facilities shall only be approved in locations having
adequate existing water depths in the boat mooring, turning basin, access
channels, and other such areas which will accommodate the proposed boat use in
order to insure that a minimum of one foot clearance is provided between the
deepest draft of a vessel and the bottom at mean low viater;
8. main access docks and connecting or cross walks shall not exceed six
(6) feet in width;
9. terminal platforms shall not exceed eight (2) feet in width;

101

10. finger piers shall not exceed three (3) feet in width, and 25 feet
in length;
11. pilings may be utilized as required to provide adequate mooring
capabilities; and
12. docking facilities shall only be located in or near areas with good
circulation, flushing and adequate water depths;
13. docking facilities and access channels shall be prohibited in
Resource Protection Area 1 or 2, except as allowed pursuant to Sections
258.42(3)(e)l., Florida Statutes; while dredgiing in Resource Protection Area
3 shall be strongly discouraged;
14. the docking facilities shall not be located in Resource Protection
Area 1 or 2; however, main access docks may be allowed to pass through
Resource Protection Area I or 2, that are located along the shoreline, to
reach an acceptable Resource Protection Area 3, provided that such crossing
will aenerate minimal environmental impact;
1@. beginning July 1, 1986 new docking facilities may obtain a lease
only where the local governments have an adopted marina plan and/or policies
dealing with the siting of commercial/industrial and private, residential,
multi-slip docking facilities in their local government comprehensive plan;
[Senate Bill 607 enacted by the Florida Legislature in June 1986 amended-
section 258.42(3)(e) F.S., and provided that "no structure under this
provision or Chapter 253 shall be prohibited solely because the local
government fails to adopt a marina plan or other policies dealing with the
siting of such structure in their local comprehensive plan".]
16. the siting of the docking facilities shall also take into account the
access of the boat traffic to avoid marine grassbeds or other aquatic
resources in the surrounding areas;
17. the siting of new facilities within the preserve shall be secondary
to the expansions of existing facilities within the preserve when such
expansion is consistent with the other standards;
18. the location of new facilities and expansion of existing facilities
shall consider the use of upland dry storage as an alternative to multiple
wet-slip docking;
19. marina siting will be coordinated with local governments to insure
consistency with all local plans and ordinances;
20. marinas shall not be sited within state designated manatee
sanctuaries; and
2'.. in any areas with known manatee concentrations, manatee
warning/notice and/or speed limit signs shall be erected at the marina and/or
ingress and egress channels, according to Florida Marine Patrol
specifications.

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

102

built with minimal damage to wetlands, will be encouraged over permanent wet

storage facilities. Nor-residential docking facilities (commercial) are

addressed in Chapter IX.

The use of seaplanes within this preserve is seen as a non-tradiltional 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.

103

104

Chapter IX

Commercial Uses

This section addresses the traditional commercial uses which might occur

within the aouatic preserve. Among the traditional uses in the St. Martins

Marsh area are utility crossings, marinas, commercial fishing, shellfishing,

and sport fishing charters.

A. Traditional commercial uses

1. Utilities crossings. There are at present time only aerial utility

crossings in the aquatic preserve. Future proposals should be designed so

that the preserve is crossed by the least destructive method in the least

vulnerable areas according to the RPA maps. 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 advanced planning and for placement of these crossing in

areas that would cause the least disturbance to the environment. The utility

crossing plans, when completed, will become a part of this management plan.

Crossinas should be limited to open water areas where live bottom communities

are not present, to minimize disturbance to marine grassbeds, mangroves or

other critical habitat areas.

105

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 effects on the

preserve only in conjunction with the Division of Marine Resources, the

Florida Marine Patrol and the Marine Fisheries*Commission, and as a

cooperative effort with these agencies. 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

division's programs and studies, will monitor fishing activities within the

aquatic preserve. Monitoring will concentrate on boat access into certain

areas, prevention of marine grassbed destruction and other needs of the

aquatic preserve as they are associated with commercial fishing activities.

After problems with commercial fishing activities are identified and

documented, the finding will be presented to the Marine Fishing Commission.

It is the authority of the Commission and the Florida Legislature to regulate

commercial fishing within the preserve.

3. Marinas. The locating of marinas and their related uses will be a major

concern of the St. Martins Marsh Aquatic Preserve management. Marinas

represent a use with many potential impacts on the preserve's resources. The

siting policy of Section 18-20.04(5) F.A.C. of the revised General Aquatic

Preserve Rule shall be used for siting marinas in the aquatic preserve.

1. no dock shall extend waterward of the-mean or ordinary high water
line more that 500 feet or 20 percent of the width of the waterbody at that
particular location whichever is less;
2. certain docks may fall within areas of special or unique
importance. These areas may be of significant biological, scientific,
historic and/or aesthetic value and require special management
considerations. Modifications may be more restrictive than the normallY

106

accepted criteria. Such modifications shall be determined on a case-by-case
analysis, and may include, but shall not be limited to changes in location,
configuration, length, width and height;
3. the number, lengths, drafts and types of vessels allowed to
utilize the proposed facility may also be stipulated;
4. where local governments have more stringent standards and criteria
for docking facilities, the more stringent standards for the protection and
enhancement of the aquatic preserve shall prevail;
5. docking facilities shall only be located in or near areas with good
circulation, flushing and adequate water depths;
6. docking facilities and access channels shall be prohibited in
Resource Protection Area 1 or P, except as allowed purSLlant to Sections
158.42(3),(e)I., Florida Statutes; while dredging in Resource Protection Area
shall be strongly discouraged;
7. the docking facilities shall not be located in Resource Protection
Area 1 or 2; however, main access docks may be allowed to pass through
Resource Protection Area 1 or 2, that are located along the shoreline, to
reach an acceptable Resource Protection Area 3, provided that such crossing
will aenerate minimal environmental impact;
A. beginning July 1, 1986 new docking facilities may obtain a lease only
where the local governments have an adopted marina plan and/or policies
dealing with the siting of commercial/industrial and private, residential,
multi-slip docking facilities in their local government comprehensive plan;
rSenate Bill 607 enacted by the Florida Legislature in June 1986 ament'.'ed
section 258.420)(e) F.S., and provided that "no structure under this
provision or Chapter 253 shall be prohibited solely because the local
government `@ails to adopt a marina plan or other policies dealing with the
siting of such structure in their local comprehensive plan".1.
9. the siting of the docking facilities shall also take 'Into account the
access of the boat traffic to avoid marine grassbeds or other aquatic
resources in the surrounding areas;
10. the siting of new facilities within the preserve shall be secondary
to the expansions of existing facilities within the preserve when such
expansion is consistent with the other standards;
11. the location of new facilities and expansion of existing facilities
shall consider the use of upland dry storage as an alternative to r.-,ultiple
wet-slip docking;
11. marina siting will be coordinated with local governments to insure
consistency with all local plans and ordinances;
13. marinas shall not be sited within state designated manatee
sanctuaries; and
IA. in any areas with known manatee concentrations, manatee
warning/notice and/or speed limit signs shall be erected at the marina and/or
ingress and earess channels, according to Florida Marine Patrol
specifications.

4. Deep Water Port Facilities. There are no major deep water port facilities

within the boundaries oil the preserve but Florida Power Companies Crystal

River Facility is located immediately north of the preserve. Therefore

maintenance dredging and potential pollution from accidental cargo leakage

107

would adversely affect the preserve. New activities and maintenance work will

be reviewed as to their affect on the preserve. New port facilities within

the preserve shall be prohibited.

5. Other Docking. Any other type of commercial docking, not mentioned in the

preceding sections, will follow the marina siting policy as stated in Section
18-20.04(5), F.A.C. of the revised General Aquatic Preserve Rule.

B. Non-traditional Commercial Uses

1. Power Plants. Power plants have the potential for causing major changes

- and animal life of the aquatic
in the air quality, water quality, and plant

preserve. For these reasons, power plants are incompatible with the purposes

of this aquatic preserve. The location of proposed power plants should be

evaluated as to the effects on the preserve.

2. Aquaculture. The St. Martins Marsh area could potentially have proposals

for aquacultural development in the future. These 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.

3. Other Uses. Any other use that qualifies as a commercial use of 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.

108

Chapter X

Scientific Research

The field personnel attached to the St. Martins Marsh Aquatic Preserve should

serve as the area coordinators of the scientific research in the preserve.

Scientific research, and any other type of research 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 selection, time of year, and life history, 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 the
aquatic preserve (see Chapter V and XIT). The field personnel will assist in

the selection of possible tests sites and other research needs within the

preserve.

109

110

Chapter XI

Environmental Education

The aquatic preserve should be used to enhance environmental education

programs at every opportunity. The goal of maintaining the aquatic preserve

for the benefit of future generations can begin to be realized through the use

of aquatic preserves for environmental education. Through education, the

people of Citrus County 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 preserve.

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 of environmental educational boat or canoe tours through the

preserve. Other educational activities might also include prepared
presentations for specific interest or user groups such as sport (boating,

diving, fishing, etc.), civic and conservational groups 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 would also prepare slide programs on the value of

ill

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.

112

Chapter XII

Identified Program Needs

This chapter of the management plan will address the various 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 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 effective management

program. Both field personnel and central office staff will continually

m
*tor the management plan implementation process and specifically identif
on ly

observed program needs and problems. The areas to be included are but will

not be limited to:

A. acquisition of additional property,

8. boundary problems,

C. legislative needs,

D. administrative rule changes,

E. data needs,

F. resource protection capabilities, and

G. funding and staffing needs.

113

Staff will anrually develop an implementation status report that will contain

a summary of identified management needs and suggested measures to be taken in

meeting these needs.

A. Acquisition of Additional Property

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. 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

within private ownership should be closely examined to determine the

advis-ability of bringing them into public ownership. The acquisition of these

lands might act as a buffer to critical resources, prevent development of

sensitive areas, allow restoration of areas adversely affected by previous

development, or allow removal of disrupting uses within the preserve. The

field personnel, during normal management activities, should be aware of

significant upland areas and submerged land areas 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.

114

G. Boundary Problems and Systems Insufficiencies

The boundaries of the aquatic preserve are often artificial delineations of

the natural systems within and surrounding the preserve. The field personnel,

in their normal management activities, will be sensitive to the possible need

for boundary modifications. Potential boundary changes and acquisition

projects right include areas upstream of the present boundary of the

streams flowing into the preserve, previously conveyed sovereign lands, or

other areas not presently within the preserve. Boundary change requires

Legislative approval.

C. Legislative Needs

Management needs could conceivably involve changes in the Legislature

pertaining to the aquatic preserve or changes in the other statutes upon which

4
Che aquatic preserve is based. These changes may include boundary

realignments or the strengthening of certain management authorities.

D. Administrative Rule Changes

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 managing

agency as well as other agencies, that will 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 obtain them. Data needs in the near future could

115

possibly be supplied by such cngoing proJects as the U.S. Geological Survey's

and the Southwest Water 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 the data needs as they

interact with the various levels of government and with other entities. These

data needs might include additional mapping, ownership information, water

quality data or any other data. The 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 or are currently conducting, research projects in the

area.

F. Resource Protection and Enforcement Capabilities

The protection of the preserve's resources depends on the Florida Marine

Patrol in addition to field personnel. These protection needs might also

include additional en-F,orcement support from local government or state

agencies. The need for additional manpower, authority, equipment or vehicles

for this task will be identified.

Since many of the inlets of this preserve are extremely shallow, bottom damage

due to boat groundings or propeller damage are common. To eliminate this

problem boat markers should be placed in the channels of these inlets.

The field personnel will become familiar with the sta-" capabilities of both

the Department of Natural Resources and other agencies with enforcement

116

responsibilities in the preserve. Annually, staff should fully assess the

effectiveness of the protection and enforcement capabilities of these combined

agencies.

G. Funding and Staffing Needs

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 Co;stal

Zone Management, National Oceanic and Atmospheric Administration, and through

the "Coastal Zone Management Act of 1972", as amended.

1-unding fcr staff to manage the St. Martins Marsh Aquatic Preserve was

provided by 1,-he 1986 Florida Legislature. This included one full-time Career

Service staff position and an office located at 10718 West Fort Island Trail

located in Crystal River, Florida 32629. Continued funding and staffing are

critically important to the success of the aquatic preserve program. An

operational budget for the onsite staff of the Preserve, as well as for needed

equipment and expenses for continued operation is shown below.

117

An Operational Budget (Fiscal Year 1988-89) for the
St. Martins Marsh Aquatic Preserve Management

Salary (Environmental Specialist II) and = 30,000
Associated Overhead

Operating Capital Ntlay (TOTAL) = 15,000

Operation Expenses = 25,000

TOTAL S70,000

118

T
LITERATURE ITED

Citrus County, Department of Development Services.
1986. Citrus County Comprehensive Plan. inverness, Florida.

Citrus County, Department of Development Services.
1987. Annual Population Report, Citrus County, Florida; 33 pp.

Comp, G.S. ,
1985. A survey of the distribution and migration of fishes in Tampa Bay.
Treat, S.F.; Simon, J.L.; Lewis, R.R.III; Whitman, R.L.Jr., eds.
Tampa Bay Area Scientific Information Symposium: Proceedings of
ConFerence; 1982- May 3-6; Tampa. USA: Bellwether Press; 3�33-424.

Dunn H.,
1976. Back Home.
Citrus County Bicentennial Steering Committee,
Anverness, Florida. 506 pp.

nurako, MI.J.
1985. Browder, J.A.; Kruczynski, W.L.; Subrahmanvam, C.P.; Turner, R.E.
Salt marsh habitat and fishery resources of Florida. In: Seaman,
W.(.Ir., ed. Florida Aquatic Habitat and Fishery Resources; pp.
189-280.

Florida Department of Administration.
1975. Florida General Soils Atlas. Tallahassee, Florida.
Id
Florida Pepartment of Natural Resources.
1983. Cenceptual Management Plan for Crystal River/Kings Bay.

Florida rame and Freshwater Fish Commission.
1985. Official lists of endangered and potentially endangered fauna and
flora in Florida. Office of Environmental Services.
Tallahassee, Florida.

Florida Power Company.
1971. Crystal River Unit 3; Applicant's environmental report, Operating
license stage. Volume I, Section III; Site and Area Description.
68 pp.

Lugo, A.E.;
1974. Snedaker, S.C. The ecology of mangroves. Annu. Rev. Ecol. Sys.
5:39-64.

Marth, D., Marths, M.J., eds.
1985. The Florida Almanac. Pelican Publishing Co. Gretna, Louisiana.

Packard, J.M.
1983. Proposed research/manacement plan for Crystal River manatees.
Volume I. Summary. Technical Report No. 7. Florida Cooperative
Fish and Wildlife Research Unit, University of Florida,
Gainesville, Florida. 31 pp.

119

Smith, R.L.
3.980. Ecology and Field Biology. Harper and Row, Publishers, Inc.,
Mew York, New York. 83@ pp.

United States Department of Agriculture.
1977. Soil survey of Hernando County, Florida.
United States Department of Agriculture, Soil Conservation
Service.

United States Department of Interior.
1983. Birds of the Chassahowitzka National Wildlife Refuge.
United States Department of Interior, Fish and Wildlife Services.

Vernon, R.O.
1951. Geology of Citrus and Levy Counties, Florida. Florida Ceological
Survey Bulletim No. 33, Tallahassee, Florida.

Zeiman, J.C.
1982. The ecology of the seagrasses of south Florida: a community
profile. U.S. Fish and Wilflife Services, Office of 8ioloqical
Services. Washington, D.C. FWS/ORS-82/25. pp. 1-158.

7eiman, J.C.; Wetzel, R.G.
1980. Productivity in seagrasses: methods and rates. In: Phillips,
R.C. McRoy, C.P., eds. Handbook of Seagrass BioTo-gy. New York:
Garland STPM Press; 87-116.

120

COTENTS OF APPENDICES

A. Florida Aqcuatic Preserve Act of 1975 ($ 258.35-358.46, F.S.)

B. Administrative Rules for Florida's Aquatic Preserve ( 18-20, F.A.C.)

C. Administrative Rules for Florida Sovereignty Submerged Lands Management
( 18-21. F.A.C.)

D. Leqal Description of St. Martins Marsh Aquatic Preserve (Resolution of the
Board ot Trustees of the Internal Improvement Fund, #7C-20 dated November
20, 1970).

Copies of the above appendices may be obtained from:

Bureau of Land and Aquatic Resource Management
Department of Natural Resources
Cedars Executive Center, Suite 232-R
Mailbox 21, 3639 North Monroe Street
Tallahassee, Florida 32303

121

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