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

                                 TERRA CEIA

                       AQUATIC PRESERVE

                           MANAGEMENT PLAN

                                          APRIL 1987

                                                      A
                                                       L Z",
                                                          0:N r

                                            I N F 0 R NNI A Tf () N C. I- N T EB

             QH           DEPARTMENT OF NATURAL RESOURCES
             90.75
             L46
             F6
             1987

                                      TERRA CEIA AQUATIC PRESERVE

                                            MANAGEMENT PLAN

                                            April 21, 1987

                                       Dr. Elton J. Gissendanner

                                           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 thispanagement plan was primarily supported by a grant
             from the U.S. Office of Ocean and Coastal Resource Management, National
             Oceanic and Atmospheric Admi.n.i.-tration, and the Fllorlda Department of
             Environmental Regulation, the Office of Coastal Management, through the
             Coastal Zone Management Act of 1972 as amended.

                                             EXECUTIVE SUMMARY

             The Terra Ceia Aquatic Preserve is located in Manatee County, and comprises an

             area of submerged lands located along the east side of Tampa Bay totalling

             approximately 21,736 acres. This area is one of the most pristine regions in

             Tampa Bay.

             Terra Ceia was designated an aquatic preserve on June 24, 10,84 for the primary

             purpose of preserving the biological resources of the Terra Ceia area marshes

             and associated waters. This area consists predominately of fringing mangroves

             and mangrove islands with some oyster bars, clam beds, and seagrasses. The

             preserve is important in protecting critical habitat to an extensive array of

             fish, birds and other wildlife. 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 objective of the aquatic preserve management 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 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. Meeting these objectives will require a fully implemented

             management program with the continuation of the on-site Environmental

             Specialist for the aquatic preserve who has an office in the town of Ellenton.

                                                                                                        Ili
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                        Property Of
                NOAA Coastal Se7rVieW QMtSr
                          Library

                                             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

                  WHEREAS, the Trustees have recognized the Terra Ceia Aquatic Preserve as

             a biological/scientific preserve in formal action on June 24, 1984; and

                                                     iii

                  WHEREAS, the Trustees recognize the importance and benefits of protecting

             the natural resources and preserving the natural ecosystem and aesthetics in

             the Terra Ceia Aquatic Preserve area; and

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

             Improvement Trust Fund hereby adopts the Terra Ceia Aquatic Preserve

             Management Plan; and

                  BE IT FURTHER RESOLVED that the Terra Ceia 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 proqrams related to the management of

             state-owned submerged lands within the Terra Ceia Aquatic Preserve; and

     46

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

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

             purposes of aquatic preserve planning and management.

                  IN TESTIMONY WHEREOF The Board of Trustees of the Internal Improvement

                                                    iv

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

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

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

             first day of April, A.D., 1987.

                                                        Governo

                          (Seal)

                                                        Secretary of State

     lb      Co   ssioner of Education                  Attorney General

             Commissioner 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

              DNR/Attorney
                                                        v

                                                    TABLE OF CONTENTS

               Chapter                                                                             Page

                  I. !NTRODUCTION     ..................................................             I

                 II.   MANAGEMENT AUTHORITY    .........................      *................    11

                IIIo   MAJOR PROGRAM POLICY DIRECTIVES.      ....o .....  oo .......... oo  ....  o. 23

                  IV.  RESOURCE DESCRIPTION    ..........................................          29

                   A.  Resource Setting

                       1. The Tampa Bay Area...     ......                          ...........    29

                       2.  Historic Notes   ...... o ..........                     ......  --o    31

                       3.  Archaeological Sites,     ..... oo .....o ........ ----       .......   34

                       4.  Present Population Characteristics...         .......o ... oo-  ....  0. 35

                       5.  Coastal Area Land Use and Tnfrastructre          .........              37

                   B.  Natural Systems and their Components

                       1. Geologic Features and Land Forms....         .....  --oo   .......       40

                       2.  Plant Associations..... ... o     ... oo.oo ...........  o...........   42

                           a. Mangrove Forest.........       ...o  .......... o...............     43

                           b. Seagrasses     ............  oo ... oo  ... -oo ....... oo  ......... 45

                           c. Benthic and Drift Alcae       ...........   oo ....... oo ..... oo.. 47

                           d. Salt Marsh.....     .... o ..... ooo-   ......  o................    48

                       3o  Animal Life... oo   ...-    ..............  oo  .... oo- ..... oo  ..... 49

                           a. Live Bottom      ... o-  ... -..-    ........ o ......o..........    49

                           b.   Oyster Beds,   .....                           .............   o.  50

                           c.   Fisheries..    ......                          .... o.... oo ....  51

                           d.   Amphibians and Reptiles...      .................   o...... o ...  52

                           e.   Bird Populations    .... o.................................        57

                           f.   Mammals .... o ......        ..... o ........       ...........    53

                                                             vi

                                         TARLE OF CONTENTS (Continued)

               Chapter                                                                  Page

                V. RESOURCE MIANAGEMENT   ...........................................     55

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

                    B. On-site Management Objectives     .............................    55

                    C. Resource Mapping and Resource Protection Areas       ............  77

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

               VI.  MANAGEMENT IMPLEMENTATION NETWORK   ........... 0 .................   87

                    A. Federal   ...................................................      87

                    B.   State  .....................................................     90

                    C.   Regional  ..................................................     96

                    D.   Local Governments and Special Districts    ...................   98

                    E.   Other Organizations  .......................................    101

              PREFACE TO CHAPTERS VII-IX   ...........................................   103

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

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

                     6. Nonconsumptive Uses    .......................................   106

               VITT. PRIVATE NONCOMMERCIAL USE    .....................................  109

                 IX. COftIERCIAL USES  ...............................................   115

                     A. Traditional Commercial Uses     ...............................  115

                     B. Nontraditional Commercial Uses     ............................  118

                  X. SCIENTIFIC RESEARCH   ...........................................   119

                 XT. ENVIRONMENTAL EDUCATION   .......................................   121

                                                        vii

                                           TABLE OF CONTENTS (Continued)

               Chapter                                                                         Page

               XTI.   IDENTIFIED PROGRAM NEEDS      ......................................     123

                      A.   Acquisition of Additional Property       ........................   124

                      B.   Boundary Problems and Systems Insufficiences         .............. 124

                      C.   Legislative Needs    .........................................      125

                      D.   Administrative Rule Changes      ...............................    125

                      E.   Data (Information) Needs     ..................................     126

                      F.   Resource Protection and Enforcement Capabilities         ........... 126

                      G.   Funding and Staffing Needs      ................................    127

              REFERENCES   CITED ...................   o ....... *..... *...* ............   00.129

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

                                                           viii

                                       TFRPA CEIA AQUATIC PRESERVE

                                               CHAPTER I

                                               INTRODUCTION

             This plan addresses the management of the Terra Ceia Aquatic Preserve, located

             entirely in Manatee County, Florida. This Aquatic Preserve is one of 40

             officially designated aquatic preserves in the statewide system (Figure 1).

             It comprises an area of submerged lands located along the east side of Tampa

             Bay totalling approximately (11,736 acres.

             The Terra Ceia Aquatic Preserve (Figure ?) boundary @egins just south of the

             mouth of Little Redfish Creek and ends at Emerson Point on Snead Island.

             Preserve boundaries extend northwesterly from these points out to the

             Intracoastal Waterway or Manatee County line which then cross and form the

             outer most corner of the preserve. Palmetto is the only incorporated city

             bordering the preserve.

             Of all four aquatic preserves located in the Tampa Bay region (including the
             Pinellas County, Cockroach Bay, and Boca Ceiga Bay Aquatic Preserves) the

             Terra Ceia Aquatic Preserve is the most pristine. This environmentally

             sensitive and unique preserve, harbors seagrass beds which stabilize bottom

             sediments, and provide food and shelter to a wide variety of species of adult,

             4uvenile' MnC4       fish and inver-tebratce. M3-rcvcs which reprecent the
                    I -- - - 1 -11 -.,- 1-16 @ @           , @ -J       I

             predominant vegetation, fringe much of the shoreline. Saltmarsh grasses,

             oyster bars, clam beds, drift alqae, live bottoms and tidal flats are also

             intricate parts of this very dynamic and productive system.

                                  Tm

                                                                                                                                     Ric
                                        AQUATIC
                                       PRESERVES

                                                                                                                                 ZZ

                 AOUATIC 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
                    'IMPROVEMENT TRUST FUND ARE
                     MANAGERS OF THESE AREAS.

                    me  640RE INFORMATION REGARDING
                       AOUATIC PRESERVES CONTACT:

                DEPARTMENT OF NATURAL RESOURCES

                 DIVISION OF RECREATION AND PARKS

                    BUREAU OF LAND A14D AOUATIC
                      RESOURCE MANAGEMENT
                        31100 COMMONWEALTH ILLVD
                       TALLAKAWEE.FLORIDA 32303

                                                                                   Figure 1.

                                                                                            3

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                             PINSACOLA
                                                                                  ACKGONjILLI                                                     LEGEND

                                                                                                                                                     MAtIONAL MOM REFUGE
                                                                                                                                                     AQUATIC PRESERVE                                                      TERRA
                                                                  TANIVA                                                                             CORPORATE LUMTS
                                                                                                                                                     PRIMARY ROAD
                                                                                           LAKII                                                     SECONDARY ROAD
                                                                                             agc"ooag                                                                                                                              MAN
                                                                                                                                                     RAILROAD                                                                        i

                                                                                                                                                     CANAL ON DRAINAGE DITCH
                                                                                            [AN                                     ... ......  ..... IM HIGHWAY                                                                  8TA
                  PREPARED BY.                                                                                               S.                                                                                                 SECTIO
                  DIVISION OF RECREATION AND PARK$                                                                                         ...... I  @TAT11 HI*HWAY
                  BUREAU OF PARK LAND$ AND DEVELOPMENT                        'doce
                                                                                  v May                                              .......         COUNTY NIGHWAY
                                                                                                                                     -- - - a-       PITIFICOAGTAL WATERWAY
                                                                                                                                     Fi gure         2

             drift algae, live bottoms and tidal flats are also intricate parts of this

             very dynamic and productive system.

             The Terra Ceia Aquatic Preserve is designated and will be managed as both an

             Aquatic Preserve by the Florida Department of Natural Resources and an

             Outstanding Florida Water by the Florida Department of Environmental

             Regulation. The boundary lines of Figure 2 represent the gross boundaries of

             the Aquatic Preserve. The actual preserve includes those state-owned

             sovereignty submerged lands located waterward of the mean high water line

             (mhw) within this boundary area. The aquatic preserve will be managed to

             emphasize the maintenance and enhancement of essentially natural conditions.

             As more site specific information becomes available, essentially natural

             conditions shall be further identified and resources in disturbed areas

             restored to a natural condition, where possible.

             Currently, management of Terra Ceia Aquatic Preserve is being provided by

             a full-time manager as of July 1986. The onsite manager provides resource

             protection needs and has an office in the town of Ellenton. The adminis-

             trative support for this management program is 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 is provided through the

             Florida Park Service, Division of Marine Resources and the BLARM staff.

             Initially, development of the resource inventories of the preserve has

             depended heavily on LANDSAT satellite imagery, DOT aerial photography, on-site

                                                    7

                inspection, the Future of Tampa Bay, and the proceedings from the Tampa Bay

                Scientific Information Symposium (BASIC) (Treat et al. 1985) held in 1982. P's

                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 appro priate.

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

                Chapter II cites the authorities upon which this management program and plan

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

                policy areas that are 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

                organizations, 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.

                rt'ap-4--e_ VTT
                @1. _ I AL. is an in"Iernall -managemient improvemient SEC'6210fi ident-IFyi-ng protlems

                and needs in the progressive improvement of this aquatic preserve management

                plan.

                                                        8

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

             of Recreation and Parks, Bureau of Land and Aquatic resource Management

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

             grant (CM-130) through the U.S. Department of Commerce's National Oceanic and

             Atmospheric Admin'istration, Office of Ocean and Coastal Resource Management,

             and the Florida Department of Environmental Regulation (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 Board 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 indirectly via staff or agents of the

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

             other legal mechanisms. All subsequent references to the Board 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 Resource Management (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 preserve. 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 Matural Resources (DNR), Division

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

                 inclusion in the comments and recommendations accompanying agenda items for

                 Trustees consideration. This mechanism allows the Trustees, sitting as owners

                 of the land, in trust for the public, to 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, Law's

                 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

                 161 a 46- samie year, 1.110413 act-ilon wa3 foll 11 owed by tll-le 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

                                                         12

             preserves. Twenty-six separate waterbodies were addressed in the original

             recommendation. Also in 1968, The Florida Constitution was revised, declaring

             in Article II, Section 7, the State's policy of conserving and protecting the

             natural resources and scenic beauty of the state. That ccnstitutional

             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. Later, the Terra Ceia

             Aquatic Preserve was established June 24, 1984 and was amended June 25, 1985.

             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 Jackson and

             Biscayne Bay Aquatic Preserves, respectively.

             Tn 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.

             The Charlotte Harbor Aquatic Preserve Management Plan, approved by the

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

                                                    13

                 preserve. The following aquatic preserves have approved plans: Estero Bay-

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

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

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

                 January 21, 1986; Nassau River, St. Johns River Marshes and Fort Clinch Park

                 March 22, 1986 and Alligator Harbor - September 23, 1986.

                 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, 14ekiva 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,

                 1981 by the Trustees, contains specific policies. The Plan also establishes

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

                 Florida Landscapes", unique natural features, submerged grassbeds,

                 archaeological and historical resources, and endangered species. All of these

                 issues provide management guidance to the aquatic preserve program.

                 ADMINISTRATIVE RULES

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

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

                                                       14

             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 cf Sections

             91-53.03 and 253.12, F.S. The stated intent of this administrative rule is:

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

                        Board of Trustees of the Internal improvement Trust Fund for the

                        administration, management and disposition of sovereignty lands;

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

                        citizens of Florida;

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

                        may continue to enjoy traditional uses including, but not limited

                        to, navigation, fishing, and swimming;

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

                        especially those important to public drinking water supply,

                        shellfish harvesting, public recreation, and fish and wildlife

                        propagation and management;

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

                        lands which generate revenues or exclude traditional public uses

                        prc@.idue Just compensatllon fv-r such privilleges; and,

                   (6) To aid in the implementation of the State Lands Management Plan."

                                                     15

                Chapter 18-20, F.A.C. specifically addresses aquatic preserves and derives its

                authority from Sections 258.355, 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 258.39,

                          258.391, 258.399. 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 sclentific 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 mnagement program;

                          (b) To protect and enhance the waters of the preserves so that the

                                                       16

                        public may continue to enjoy the traditional recreational uses of

                        those waters such as swimming, boating, and fishing;

                        (c) To coordinate with federal, state, and local management

                        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 forms and

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

                        coral, submerged grasses, mangroves, salt water marshes, fresh water

                        marshes, mud flats, estuaritie, aquatic and mar'ine reptiles, game and

                        nongame fish species, estuarine, aquatic and marine invertebrates,

                        estuarine, aquatic and marine mammals, birds, shellfish and

                        mollusks;

                                                     17

                          (9) 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.11

                OTHER MANAGEMENT AUTHORITIES

                Other Department of Matural 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 parmitting nmrace

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

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

                                                       18

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

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

             As the designated "306" Coastal Zone Management Agency, the DER also provides

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

             Terra Ceia area, as well as being the state agency responsible for implement-

             ing "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 Waters", 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 MOIJ 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),. Tampa Bay Regional Planning Commission (TBRPC). and

             the Department of State, Division of Historical Resources (DHR). The

             Executive Office of the Governor also provides a mechanism for public input

             into federal projects via the State clearinghouse process.

                                                 19

                The DCA and TBRPC are statutorily responsible for administering the

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

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

                and monitoring procedure for those development proJects potentially affecting

                more that one county. To understand the maze of authorities involved in

                authorizing, permitting or reviewing development plans in Tampa Bay, the

                agency prepared an Existing Authorities Matrix (Appendix E). This matrix

                identifies the types of activities for which each agency is responsible.

                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 DAHRM, which holds title to

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

                sovereignty submerged lands, including aquatic preserves.

                The Manatee County Public Health Unit, under their public mandate, administers

                four programs directly affecting the aquatic preserve management program.
                These programs are (1) septic tank regulation, usually administered by county
                health departments (2) arthropod (mosquito) control programs, usually
                implemented through local mosquito control districts (3) dredge and fill and

                (4) pollution control SeCtinn   Thato nrnn%-Amc nArh hold the nn+an+4=1 fnw-

                creating significant impacts upon the aquatic preserves. Establishment of

                close working relationships between the aquatic preserve staff and the

                                                       20

             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.

             The appendices contain a list of the appropriate statutes and administrative

             rules.

                                                    21

                                               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 thrust of this

             management effort. Adoption of these policies will provide specific staff

             direction for implementing the day-to-day aquatic preserve management program.

             Major program policy directives are:

             (A) Manage all submerged lands within 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.

             (C) Develop a resource inventory and map natural habitat types within the

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

             threatened and/or endangered species.

                                                    23

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

                 habitat within the aquatic preserve.

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

                 impact saltmarshes and other valuable intertidal, submerged, and emergent

                 habitats unless a prior determination has been made by the Board of overriding

                 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. Of greatest.

                 interest are the barrier islands that are located along the coastline and the

                 low lying areas of Terra Ceia Island adjacent to Bishop Harbor and Frog Creek.

                 (I) Prohibit the dr4114nri ^-F ^41 and gas w^1 1 C+to m4n4nn ^-F m4@^-ai-, and
                                    . I . '..Z' -I -  zj- "-. -, .."        -,            11

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

                 preserve.

                                                        24

              M Prohibit non-water dependent uses of submerged lands within the aquatic

              preserve except in those cases where the Board has determined that the project

              is overwhelmingly in the public interest and no reasonable alternatives exist.

              This prohibition shall include floating residential units, as defined in

              Section 125.0106(2), F.S.

              M 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.

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

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

              there are no reasonable alternatives and failure to conduct such practices

              would result in a threat to public health.

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

              aquatic application.

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

              preserve boundaries.

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

              integrity of hard bottom rnmmunities Within thp anwifir pracarva

                                                    25

                (P) Insure that artificial reef construction does not adversely impact

                environmentally fragile areas within the aquatic preserve and that the

                construction will maintain the essentially natural condition while enhancing

                the quality and utility of the preserve.

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

                wildlife habitat areas.

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

                continued maintenance of its natural values and functions.

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

                recognizes and utilizes local government programs and authorities.

                @T) 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. Tn particular encourage the Department of

                Environmental Regulation and the Environmental Regulatory Commission to extend

                OFW designation to wetlands above the MHW line in areas within or adjacent to

                the Aquatic Preserve.

                (U) Apply the management criteria contained in the adopted Tierra Ceia Aquatic

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

                Preserve.

                                                      26

             (V) 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.

             (W) Prohibit Marinas and associated construction activities in Resource

             Protection Areas 1 and 2.

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

             collecting activities and report them to the Marine Fisheries Commission.

             (Y) Insure that the aquatic preserve management plans are consistent with all

             other state and local planning processes and completed plans that may impact

             aquatic preserves.

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

             aquatic preserve are dependent upon pollution prevention and abatement and

             careful comprehensive planning.

                                                    27

                                               Chapter IV

                                          RESOURCE DESCRIPTION

             A. Resource Setting

             1. The Tampa Bay Area

             The Terra Ceia Aquatic Preserve comprises an area of approximately 25,786

             acres and is located in the lower southeastern portion of the Tampa Bay

             estuarine system. Due to the fresh and saltwater influence as well as the

             subtropical climate, this estuary supports a wide variety of plant and animal

             communities. The preserve is composed of open water, several inlet bays, and

             tidally influenced creeks and rivers. Most of the area along Terra Ceia

             Aquatic Preserve contains extensive mosquito ditching and in Miguel, Bishop

             Harbor and Terra Ceia Bay there are several areas of residential canals. The

             rest of the preserve remains relatively unspoiled, but with an abundance of

             adjacent upland property available, this area is likely to be further

             developed.

             Tampa Say is the largest estuary in Florida. It is a complex network of

             creeks, rivers, and bays that drain some 2,200 square miles of Florida's west

             c@?ntral peninsular coast.  Lining the shsore are r1orluda's Wilrd and zt o u r t-

             largest cities, Tampa and St. Petersburg, their suburbs, and the seventh

             busiest port in the nation. Stresses caused by channel dredging (for

                                                    29

                commercial and private navigational purposes), large scale urban alterations

                to the natural shoreline, and discharges of thermal, biological, and chemical

                pollutants have had a negative impact on the bay. The primary impact has beE!n

                the loss of marine habitat and the reduction in the overall productivity of

                Tampa Bay. The major problems facing this area include: development on the

                mangrove islands and shoreline, sewage and industrial effluents entering the

                system, and agricultural and urban runoff.

                Concern about Tampa Bay's ecosystem resulted in a number of landmark studies,

                including the Tampa_Fay Area Scientific InformationSymposium held in 198?
                (Treat et al. 10,85), and the Future of Tampa Bay (Tampa Bay Regional Planning

                Council 1985) which constitutes a comprehensive overview of 42 management

                issues relating to the Bay area. These two studies, augmented by local land
                use information, the Florida Statistical Abstract (Shoemyen 1985), and other

                studies more particularly oriented to the lower Tampa Say area, are the basis

                for most of the material found in this chapter.

                Despite its overall urban context, the shoreline of Tampa Bay includes

                some relatively undeveloped areas, the most extensive of which lies between

                the mouth of the Little Manatee River near Ruskin and the south shore of Terra

                Ceia Bay adjoining the city of Palmetto. The offshore waters of this stretch

                include the Terra Ceia Aquatic Preserve and the Cockroach Say Aquatic

                Preserve, the former of which is the subject of this management plan.

                Bay management at this time is conducted by the federal, state and local

                governments, often in a totally independent manner. These overlapping and

                                                        30

             sometimes conflicting interests and jurisdictions have contributed to a number

             of growth and land management problems that affect all of Tampa Bay. These

             concerns stated in the Tampa Bay Area Scientific Symposium Information (Treat

             et al. 1985), were the basis for the formation of a Tampa Bay Management Study

             Committee. These groups, and the resulting Agency on Bay Management, have

             recommended that Tampa Bay can and should be managed in a comprehensive manner

             as a single ecological system. The boundaries were recognized as the uplands

             and freshwaters contained within the combined watersheds of all rivers and

             tributaries which flow into Tampa Bay. Because of this overall acceptance of

             the importance of Tampa Bay and its watershed to the health of all areas

             within its influence, this management plan, with its goals and objectives, can

             make a significant contribution to Bay management. Also, the management plan

             for Terra Ceia Aquatic Preserve incorporates many of the issues and concerns

             of the various governinq bodies in an attempt to provide consistent and

             equitable management policies for all the aquatic preserves in the Tampa Bay

             area; these include: Pinellas County, Boca Ceiga Bay, Cockroach Bay, and

             Terra Ceia Aquatic Preserve.

             In the remainder of this chapter a profile of the coastal area is

             provided with historical notes, population characteristics, and a land and

             water use overview, and those sections are followed by more particular

             discussions of the various marine and emergent habitats and other resources to

             be found in the Terra Ceia Aquatic Preserve.

             2. Historic Rotes

             When Panfilo de Narvaez and the first Spanish explorers arrived on the shore

             of Tampa Bay in 1528, they found the area already settled by the Tocobago

                                                    31

                Indians whose sustenance was provided by the abundant fish and shellfish

                resources which were so readily harvested from the Bay. Before these

                Spaniards moved on, they angered the Indians so that three subsequent attempts

                during the 1500's at missionary activity or colorization resulted in armed

                resistance by the Indians. European explorers left a grim legacy in the form

                of smallpox and other diseases to which the indians had no resistance, and by

                the early 1600's the area was almost devoid of human inhabitants. The only

                lasting remains of the Tocobago Indians are the shell mounds and other

                archaeological sites found throughout the Tampa Bay area, as well as the local

                place names such as "Tampa", originally given to a native village in the

                vicinity.

                Various explorations and visitations occurred throughout the 17th and 18th

                centuries. S'panish fishermen, working out of Cuba, maintained limited

                settlements in the Tampa Bay area for use as a base for their Gulf coast

                operations. These fishermen planted the first citrus groves in the area.

                Permanent settlements, however, awaited the coming of an American named Robert

                Hackley in 1823. Hackley's initial settlement was preempted by the Army which

                built Fort Brooke on the site. The garrison which was established, stimulated

                further settlement both in the immediate Tampa Bay area and along the lower

                Gulf Coast in general. In 1834 Hillsborough County was created by the Florida

                Legislature, and the 1840 census revealed a total of 452 inhabitants.

                T@-M@ Paw Was =^%-4- ant. to the early s-ttlers primarily as a source of food
                . --j." - j    ... t'-' .I - -1- - ly I @ I

                and secondarily as a harbor. This situation began to change shortly after

                settlement. The Bay was the scene for numerous skirmishes between Union

                                                       32

             4orces and Confederate blockade runners who were running local agricultural

             gccds, hides, and lumber during the Civil War. During the 1880's, a much more

             significant natural resource, phosphate, was discovered in the interior of

             Florida, west of Tampa, and its extraction and shipment has been a major

             economic focus in the area ever since.

             Tn particular, the bulk tonnage of phosphate ore was an incentive for

             construction of both railroad lines and port facilities. It was recognized

             that the natural shallow basin of Tampa Bay would present a continual

             obstacle. Therefore, the 1871 survey done by the Army Corps of Engineers

             recommended that a channel be dredged in upper Hillsborough Bay. That initial

             dredging has initiated excavations throughout the Tampa Bay area ever since.

             Competition between the initial harbor facilities at the mouth of the

             Hillsborough River and subsequent development of Port Tampa on the eastern

             shore of Old Tampa Bay was later augmented by the creation of shipping

             channels to serve the Big Bend and Bartow electric plants. In 1969, a 40 foot

             channel to Port Manatee was built. This channel now separates the Terra Ceia

             and Cockroach Bay Aquatic Preserves.

             The complex system of shipping channels in Tampa Bay has always presented

             environmental problems. The great effort involved in creating and maintaining

             what is now a 43-foot channel has resulted in major disruptions to the bottom

             contours of the Bay. Spoil disposal, which in the past was responsible for

             Kll%- inn ext-ensive -ac-reames ^f re%@-s- beds and cysterbars, remains one of

             the most intractable problems of overall bay management.

                                                   33

                Development within the three counties adjoining Tampa Bay has had different

                economic roots. Hillsborough County in the Tampa area has emerged as a

                leading business and industrial center, while Pinellas County, the most

                densely settled county in Florida, has long been famous as a retirement

                community. Manatee County's growth has been more recent and more mixed  in

                type. The north coast of Manatee County and the southwestern coastline  of

                Hillsborough County are still largely agricultural. Although they differ in

                magnitude, both urban and rural areas impact the environmental integrity of

                Tampa Bay. Stormwater runoff, wastewater treatment effluent, and

                concentrations of fertilizers and pesticides all contribute to the pollution

                of Bay waters.

                The challenge of resource management in Tampa Bay entails the maintenance of
                the historic assets (industrial shipping, commercial and recreational fishing,

                and aesthetic and recreational use) as well as the upgrading and maintenance

                of the Bay's present environmental condition. Since both the Terra Ceia and

                Cockroach Bay Aquatic Preserves are located in some of the least disturbed

                areas of Tampa Bay, it is extremely important that they be carefully

                maintained.

                3. Archaeological Sites

                The earliest known inhabitants of Florida were from the Paleo-Indian Period

                which existed prior to 8,000 B.C. As large Pleistocene animals became

                                          Z. fit ^ Ae,,@A-n4- on G-_11 game. F res 1,04 a It. er
                extinct, the Indians b-cam., -or-; " pCilu'; 6 If .. U@J

                shellfish became an important part of the Indian diet and semi-permanent

                villages developed. The discarded shellfish resulted in large middens, and

                                                       34

             Warren (1966) has shown that portions of the middens left in now sunken river

             channels in Tampa Bay were left by Archaic period peoples.

             Preceramic Archaeic period points were found at the southeast head of Bishop
             Harbor (1979). Also, the Madiera Rickel Mound State Archaeological Site is

             located on Terra Ceia Island within the Preserve. In all, 81 sites have been

             identified in the area and are listed with the Division of Historical

             Resources. There are many sites that have not yet been registered and

             probably many more sites are undiscovered due to the undisturbed nature of the

             preserve. Many archaeological sites have already been disturbed or destroyed

             in the Tampa Bay region due to rapid growth, and therefore, preservation of

             any remaining sites is critical.

             4. Present Population Characteristics

             The growth management concerns of Florida are readily reflected in the

             tri-county area encompassing Tampa Bay. The 1.67 million people who dwell in

             Pinellas, Hillsborough, and t-lanatee Counties represent approximately one-sixth

             of the state's population and have an overall growth rate that closely

             parallels that of the state's 4.35% annual growth (as averaged from, 1970 to
             1984). In Manatee County, the least populous of the three counties, the

             growth rate has been even greater, averaging over 5.0% per year. Projections

             suggest that although the growth rate will trail that of the state, the

             difference will not be very great. By the turn of the century the Tampa Bay

             region is expected to be home to 2.1 m46111141on people, or roughly one-seventhl of

             the projected 14.67 million in Florida.

                                                    35

                The provision of housing for these additional 431,000 people will be a major

                developmental issue throughout the region, for the above mentioned POPLIlation

                increase will translate into approximately 172,000 dwelling units.

                Substantial areas exist in all three counties where development could occur

                that would not directly affect Tampa Bay, but virtually all of it would have

                an indirect impact. The Tampa Bay watershed includes about 90% of the land

                area of the three surrounding counties. Even those residents living well awaly

                from the waterfront have an indirect impact in a number of ways: their sewage

                is treated and pumped into the bay or its tributaries, they drive across the

                Bay area bridges, they launch boats in the Bay on weekends, and they use

                electricity from power plants situated near the water. Viewed from this

                perspective it is clear that the overall impacts on the Bay will continue to

                increase even if all growth is directed away from the waterfront.

                The actual economic importance of Tampa Bey is a composite of several separate

                functions. Some economic values are in partial or total conflict with each

                other, as for example, the value of a pristine seagrass bed as a fishery

                resource verses its value as part of a navigational channel, or the use of

                waterfront site as a public access point for boat launching versus its

                development as a residential waterfront community.

                The waterborne commerce utilizing Tampa Bay is substantial. The Port of Tampa

                in 1984 handled 47.9 million short tons of export and import goods, while Port

                Maratee in 1983-84 handled anot@er 5.5 million short tons. Not only dc-es the

                direct and indirect value of this commerce total several hundred million

                dollars annually, but the Tampa Bay Regional Planning Council in their study,

                                                       36

              Documenting the Economic Importance of Tampa Bay, calculates that the savings
              in transportation costs alone total $281. million.

              Bay waters also are used extensively for receiving wastewater effluent from

              several sewage treatment plants and for providing cooling water for the

              production of electrical energy. These uses of the Bay result in the savings

              of hundreds of millions of dollars above alternative strategies. Commercial

              fishing, despite its reduction in relative value from earlier years, is still

              worth some $20 million annually, while recreational fishing represents several

              times that figure. Other recreation pursuits in the waterfront areas, such as

              waterfront residential development, and the sale of boats and marine

              accessories, contribute significantly to the overall economics benefits

              provided by the bay. Finally, the Bay serves an important economic function

              by providing habitat, nursery areas, and food for the various biological

              communities found in the Bay.

              5. Coastal Area Land Use and Infrastructure

              An aerial view of the Manatee County shoreline from Port Manatee to the

              Manatee River provides some visual evidence that this section of the county

              continues to be in transition. The older developed communities, including

              Terra Ceia, Rubonia, and central Palmetto are readily distinguished from the

              more recent developments, such as those in west Palmetto and Palmetto Point,

              all of which have notably higher densities and have dredged finger canals with

              an armoreul shore extenuding -Into Terra Ce-ja "Day., ElisewhEre, most notalbly on

              Terra Ceia Island, other residential development of lower density is

              occurring.

                                                    37

                The land use pattern from the Manatee River to Rubonia is indicative of an

                overall urban area with large patches of undeveloped and agricultural land

                interspersed. In particular, the land between Palmetto and Palmetto Point   is;

                extensively planted in citrus groves, running close to the shore for much of

                that stretch. Although the Terra Ceia Bay shore on either side of the Snead

                Island Cutoff is characterized by an armored shore, much of the shore north of

                the sewage treatment facility is relatively undisturbed, including about a

                mile and a half of mangroves south of Palmetto Point. The mixed land uses

                found east of US-19 and to the north of Rubonia have experienced limited

                development in part due to incomplete sewage and water availability. This

                situation, however, is likely to change in the near future.

                The land north of Terra Ceia Bay and south of Port Manatee includes some of

                the most pristine remaining shoreline along Tampa Bay, and in the waters to

                the north of Rattlesnake Key and Terra Ceia Island are some of the last

                remaining open shellfishing waters in Tampa Bay. This area features an array

                of mangrove lined embayments and sinkholes, although numerous mosquito control

                channels cut through the area. The existing development on Terra Ceia Island

                is mostly low density residential. The area is served only by septic tanks

                and individual wells of sulfurous water.

                A proposed major development which would include most of the Terra Ceia area,

                including land north to Bishop Harbor, could change the nature of this area

                drastirai lit Tha 1Jevel()nmmn+ TorrA raiA Teloc  ic lnratae4 nn 1 945 acres

                between US-19 and 1-7.5. Although 8,801 units plus some associated commercial

                and medical facilities were initially proposed, a scaled down plan for 4,997

                                                       38

             dwelling units, 19.44 acres of commercial development, a 300 unit resort

             center, and a golf course is now proposed. The nature of the area requires

             careful project planning, for the entire land area surrounding the Terra Ceia

             Aquatic Preserve is flood prone. Additionally, the Manatee County Comprehen-

             sive Plan calls for low density residential development in the area, subject

             to several specific provisions of the coastal zone protection element.

             The reconstruction of the Sunshine Skyway Bridge between Terra Ceia and St.

             Petersbura will include some alterations to the land alignment on the Terra

             Ceia causeway by 1989. Although the initial construction of this bridge has

             had an impact on the circulation in the area, the proposed alterations are not

             likely to be as significant. Local monitoring of the plans as to possible

             impacts upon the aquatic preserve is recommended. Also, a few miles inland

             from the bay runs the 1-75 corridor with exits to the Sunshine Skyway (1-275)

             and Palmetto. This maJor traffic corridor will in the near future be a prime

             stimulus to major land development projects in both Hillsborough and north

             Manatee counties (concurrent with the expansion of the highway facilities is

             the expansion of Sun City Retirement Community.

             The north end of the aquatic preserve is not as developed as the section in

             Terra Ceia Bay, but the land in the vicinity of Bishop Harbor represents

             problems of its own. The AMAX Piney Point phosphate processing plant has in

             the past periodically released toxic levels of ammonia waste into drainage

             ditches whi& lead into Bishop Harbor. Agricultur.-I opcraticn in the-Isaame

             area have also contributed heavy nutrient loads into the Cabbage Slough--Frog

             Creek drainage system. Addressing these issues will be a function of the

                                                     39

                stormwater management section of the forthcomina revisions to the Manatee

                County Comprehensive Plan. Along the north edge of the Terra Ceia Aquatic

                Preserve is another problem area initially caused by filling in connection

                with the creation of Port Manatee. DER has hired an employee to research the

                feasibility of a restoration project at the site.

                In summary, the Terra Ceia Aquatic Preserve is located in one of the most

                pristine remaining sections of Tampa Bay and includes open shellfish

                harvesting waters, mangrove shorelines and relatively clear tidal tributaries.

                Adjacent land uses are highly missed and range from heavy industry to open

                lands, from armored shoreline to mangroves, and from agriculture to

                residential. While most of the area is relatively limited in its current

                development, at least partly due to limitations on existing support services

                infrastructure, there are major proposals for development in the greater Terra

                Ceia area, and it seems likely that the future of the area will be continued

                growth and development. All of this must be weighed against the existing

                water quality, resource base, and traditional uses of the aquatic preserve.

                B. Natural Systems and their Components

                1. Geologic Features and Land Forms

                Like most estuaries, Tampa Bay is a product of the fluctuations in sea level

                caused by Pleistocene and earlier glaciation. During times of lowered sea

                level, the river valley of Tampa Bay was cut into underlVing 14mestown.'es by thle

                paleo-Hillsborough, Manatee, and Alafia rivers. As sea level rose during
                glacial retreat, the area was flooded and became Tampa Bay (Doyle 1965).

                                                       40

             Underlying Tampa Bay are limestones and dolomites of Oligocene age and older.

             The early Miocene St. Marks formation, which consists of dolomitic limestones

             interbedded with terrigenous clastics, directly underlies the unconsolidated

             surface sediments in the northern portion of the Bay. The Hawthorn formation

             is absent in the northern portions of Tampa Bay but is present at the surface

             throughout the entire southern two-thirds of the bay, including the Terra Ceia

             Aquatic Preserve. The Hawthorn Formation also outcrops along portions of

             eastern Tampa Bay. in the deeper portions of Tampa Bay, the Pleistocene river

             valley has down cut as much as 90 feet into the underlying limestones. This

             archaic bed has filled in with unconsolidated estuarine and fluvial sediments

             (Doyle 1985).

             Surface sediments are composed of fine to very fine quartz sand with varying

             amounts of organic muds and coarse carbonates, mostly in the form of mollusk

             shells. A band of phosphate-bearing sand occurs just west of the Interbay

             Peninsula and runs south to the eastern shore of the Bay, then southwest to

             the entrance off Bradenton. This band runs parallel to the shore of the

             Terra Ceia Aquatic Preserve (Doyle 1985).

             The sand side sediments in Tampa Bay were probably derived for the major

             rivers during the last rise in sea level. At the present time, essentially no

             sand size material is being added to the system from the rivers but input from

             the Gulf of Mexico may occur in the Terra Ceia area. Streams carry only small

             11-c-ads, ^-F fine sedinients. but it m-ay be th-at
                                                                 "I   ..W @4 of finc

             materials are added through surface runoff (Doyle 1985).

                                                    41

                Surface sediments within the Bay are constantly being reworked by benthic

                organisms by tidal currents and wind qenerated waves, as well as by dredging.

                When the sand veneer is dredged from the surface, mud deposits irregularly

                located beneath may be mobilized. Dredging may be a process which selectively

                removes sand size materials and results in increased proportions of silt and

                clay sized muds. When spoil is impounded in the physical process of dredging,

                coarser material is selectively removed but the fine fraction tends to leak

                back into the system (Doyle 1985).

                Depending on the amount of runoff at any one time, Tampa Bay can be classified

                as a moderately stratified to vertically homogenous estuary. It has been

                postulated that these types of estuaries serve as fine sediment sinks, that

                little fine sediment escapes them and that bottom water movement tends to

                bring sediment into the system from offshore (Doyle 1985).

                Estuaries serve as "filters" for suspended sediment received from the land.

                Salinity distributions, circulation patterns and other factors control the

                distribution and transportation of suspended sediment and the depositior of

                fine particles within the estuary. In turn, the distribution of silt and fine

                suspended matter affects the distribution of many constituents such as

                nutrients, radionuclides, and some metals. The rate and occurrence of

                sediment deposition is also greatly influenced by the biological component of

                the estuary (Doyle 1985).

                2. Plant Associations

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

                                                       42

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

             The major plant associations recognized in the Preserve include mangrove

             forests, marine grassbeds, salt marshes, and drift and benthic marine algae.

             Each community is presented separately although the communities are often

             intermixed and are energetically interdependent. Subsections address animal

             life, particularly endangered species, associated with plant communities of

             the aquatic preserve.

             a. Mangrove Forest. Three species of mangrove trees dominate the mangrove

             community. These trees extend from the shoreline inward to the extent of

             tidal influence. Tampa Bay is generally recognized as the northern limit for

             extensive mangrove forests on the west coast of Florida. Although mangroves

             may extend further northward in the state, the annual occurrence of freezes

             gives the mangroves a stunted growth pattern and limits their distribution.
             In Tampa Bay, 17,514 acres of mangrcves have been reported (McNulty 1972) and

             Terra Ceia Aquatic Preserve is recognized as a mangrove dominated community

             (Estevez and Mosura 1985).

             The three species of mangroves occurring are the red mangrove (Rhizophora

             mangle), found nearest to the bay; the black mangrove (Avicennia germinans)

             generally inland of, but sometimes mixed with the reds; and the white mangrove

             (Laguncularia racemosa) generally upland, of but also mixed with blacks. The

             zonation of the mangrove association is a result of tidal inundation and

             saline conditions of the soil. In Tampa Bay, due to freeze damage

             tide levels, these zonation patterns have become indistinct and overlapping of

             mangrove species occurs (Estevez and Mosura 1985).

                                                    43

                The dominant mangrove forest type in Terra Ceia Aquatic Preserve is the

                "fringe" forest type (Lugo and Snedaker 1974). This forest type is

                characterized by: growth on mainland shorelines of gradual slope; exposure to

                tides but not daily overwashed; having sluggish internal water flow on high

                tides, and minor to no scouring; and exporting particulate as well as labile

                organic matter. Also present in the preserve is the "overwash" forest in

                which the island is completely inundated by daily tides.

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

                of the red mangrove along with the pneumatophores of the black mangrove trap

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

                planktonic, and fish communities. The leaf fall from the mangrove community

                also adds another detrital food source to the system. Mangrove communities

                filter land runoff and the above ground submerged root system acts as a sub-

                strate for algal attachment. Because of the high nutritive content in

                mangrove communities, they act as a habitat for small fish, invertebrates,

                and birds. They also act as a food base for much of the shellfish and fish

                communities. Mangroves provide a buffer against erosion and storm damage to

                inland area.

                Within the Terra Ceia Aquatic Preserve, the primary-influence on mangrove

                communities is through human changing of drainage patterns in upland areas,

                indirect destruction through increased wave action associated with increased

                boating ac+ivity, and direct destruction through excess nw-itn4nn nnt4 +@-ee

                uprooting for building or water access. Since mangroves serve to stabilize

                shore bottom sediffient, disturbances to mangrove forests increases turbidity in

                                                      44

             ad1facent waters which in turn affects seagrass and other benthic communities.

             b. Seaarasses. Four species of seagrass are found in the Terra Ceia Aquatic

             Preserve. These marine flowering plants occur on both sandy and organic

             sediments in depths down to two feet below mean spring low tides. In Tampa

             Bay 14,203 acres of seagrasses have been reported. An 81% loss of seagrasses

             has occurred in Tampa Bay from human impact. Most of the seagrass beds are

             now limited to inshore areas due to human increased turbidity and decreased

             water quality in the Bay (Lewis et al., 1985).

             The four species found in Terra Ceia Preserve include turtle grass (Thalassia

             testudinum), manatee grass (Syringodium filiflorme , shoal grass (Halodule

             wrightii), and widgeon grass (Ruppia maritima). The seagrass communities in

             Terra Ceia Aquatic Preserve are mainly classified as fringe perennial, and

             occur mostly along shallow shore areas outward into the Bay until increased

             depth or turbidity limit light penetration and therefore, growth. The

             zonation of seagrasses in general starts with widgeon grass occurring closest

             to the shore then shoal grass, followed by turtle grass and manatee grass.

             Seagrasses may be found intermixed or in monospecific stands.

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

             estuarine environment. They are eaten directly by urchins, conchs, fishes, as

             well as by the endangered West Indian manatee (Trichechus manatus) (Zeiman

             1982). Also, dn-col-Oposit"lo-11 of -jea-rasses serve as the pri-mary flood source fot-

             detrital feeders, which in turn are consumed by fish and other marine life

             higher up the food chain. Seagrasses serve as an attachment site for many

                                                     45

                 forms of epiphytic algae that may be consumed by small fish and juvenile

                 shrimp.   (Zeiman and Wetzel, 1980; Dawes, 1981).

                 Seagrass  blades provide a baffling effect that slows the water current

                 trapping  nutrients and sediments. The roots and rhizomes of the seagrasses

                 bind the  sediment thus promoting the building of an organic substrate which

                 encourages a diverse meiofauna (Zieman and Wetzel 1950). The forest-like

                 density of the grassblades provides shelter for many small fish and

                 invertebrates. Due to this sheltering effect and the high nutrient level,

                 seagrass beds provide nursery areas for many fishes. When the loss of

                 seagrass beds occurs, the effect causes a reduction in water quality, a

                 reduction in the survival of many larval and juvenile fishes and

                 invertebrates, and a reduction in the availability of food throughout the food

                 chain which ultimately affects humans.

                 The most destruction done on seagrass beds is caused by dredge and fill

                 activities. In Florida 60,000 acres of basic estuarine habitat have been

                 filled (Durako et al. 1985). Even if the fill is not deposited directly on

                 top of seagrass beds, they are often affected through increased water

                 turbidity. The unconsolidated particles of the fill are continually

                 resuspended into the water column so recolonization of seagrasses is

                 inhibited. Although providing nutrients, sewage outfall often causes a

                 phytoplankton bloom or a dramatic epiphytic algae growth which shade the

                 spaara-,ses causing a InqzS in productivity, Propeller cuts also cause damage

                 to seagrass beds. Since few of the grasses     in Tampa Pay set seed, the

                 recolonization of the damaged areas   is quite slow or nonexistant.

                                                          46

             c. Benthic and Drift Algae. In Tampa Bay 217 species of algae have been

             identified (Dawes, 1985). Most of these species of algae could occur in the

             Terra Ceia Aquatic Preserve since all habitat types are present, from deep to

             shallow water and from sandy to hard substrate. These species vary from

             benthic macroalgae to microscopic algae. The highest diversity and abundance.
             is found in lower Tampa Bay (Dawes, 1985), which includes the Terra Ceia

             Aquatic Preserve.

             The benthic algae present may either be attached to the sand or to hard

             surfaces depending upon the species. Some rhizomatous algae such as Calurpa

             sp. help bind the sand in much the same way as do seagrass beds. Algae may

             become detached from the substrate by wave action or because of the grazing

             activity of organisms. In these ways much of the drift algae of the preserve

             is generated. Algae need to settle on a substrate to begin growth, but once

             growth has been initiated, attachment is often unnecessary for further growth.

             Because of this ability, large quantities of algae can be found along the

             shoreline during periods of high growth. These algae provide a shelter ard

             food source for small invertebrates and fish.

             Dredge and fill activities affect algae in much the same way as they affect

             seagrass beds. The algae community is damaged by direct deposition of fill or

             by low light penetration when the turbidity increases through such activities.

             Since the algae are able to quickly assimilate nutrients, poorly treated

             se,.-!age cutf a!! may causen ex+.c-,,s4, @.C U'll gae grow-W,lCh "'11 1 ch III Inuders fishing

             activities and causes odor problems for shore residents when the algae wash

             ashore and decompose.

                                                    47

                d. Salt Marsh. Salt marshes can be defined as grass dominated communities

                that grow intertidally along pro-'L-.ected shorelines and backwaters that are

                periodically flooded by salt or brackish water. The predominant salt marshes

                in Tampa Bay are needle rush (Juncus roemerianus marshes. The salt marshes

                serve as a transition zone between mangroves and freshwater marshes (McMulty
                1972). Tn Tampa Bay 1,728 acres of salt marsh have been reported (McMulty

                1972).

                The zonation of the salt marsh normally starts with smooth cordgrass (Spartiia

                alterniflora) occurring at the shoreline or behind a fringe of red mangrove

                (Estevez and Mosura IL985). Landward of the smooth cordgrass, needle rush is

                usually present. Landward of this band the salt flats are present with
                vegetation such as seashore saltgrass (Distichlis spicata), glasswort
                (Salicornia perennias), and saltwort (Batis mariLlma). The salt flats are
                areas of highly saline soil which experience occasional flooding.

                The salt marsh community is also important in detrital production for export

                into the estuarine food web. Along the shore where there is tidal inundation,

                epiphytic algae grow attached to the base of the salt marsh grasses. Salt

                marshes filter land runoff, thereby maintaining the water quality of the area.

                Dredge and fill activities can destroy or reduce salt marsh communities. Air

                boat traffic can also severely damage the salt marsh plants. Some success has

                been achieved in replanting salt marshes in Tampa S-ay, but tka -^1.1

                take years to grow and may never reach the productivity of a natural marsh.

                                                       48

             3. Animal Life

             The combination of subtropical climate, diverse vegetation and habitat

             provides ideal conditions for the survival of an abundant and wide variety of

             wildlife species in the aquatic preserve. The mangroves, seagrass beds and

             salt marshes also provide a refuge for animal species visiting this area

             during migrations, for daily feeding purposes and during times of

             environmental stress (i.e., drought and storms). These visitors form an

             extensive species list including live bottoms, oyster beds, marine fishes,

             colonial water birds, migratory waterfowl, marine mammals, reptiles,

             amphibians, various shellfish and other marine invertebrates and several

             endangered species. Many water and shorebirds use the mangrove islands as

             nesting sites. However, mosquito impoundments, dredge and fill projects,

             causeways, road and bridge construction have modified much of the original

             habitat. These man-made modifications have caused a variety of changes to the

             animal life of the estuary.

             a. Live Bottom. Live bottom communities are present in the Terra Ceia

             Aquatic Preserve. These communities represent "areas containing biological

             assemblagqs of such sessile invertebrates as sea fans, sea whips, hydroids,

             anemones, ascidians, sponges, bryozoans, and hard corals living upon and

             attached to naturally occurring hard and rocky formations" (Harris 1981).

             Although the Terra Ceia communities do not contain reef forming corals the

             live bottom species that are present are an important habitat and food source

             for a ran,,e of vertebr--tes and invertebrates (Derrenbacker and I.CNr,,,-, 1.9.O.S,-%,--,-

             The rarity of these types of communities in the Tampa Bay area makes the

             preservation of live bottom communities especially important.

                                                    49

                 Man can destroy live bottom communities by depositing fill material directly

                 on the site or depositing the fill nearby thereby clogging the filter feeders

                 in the the community. Destruction may also occur when nets are hauled across

                 the site, by excessive collecting by divers or by a reduction in water

                 quality.

                 b. Oyster Beds. The primary oyster indigenous in Tampa Bay is the American

                 oyster (Crassostrea virginica). Oysters tend to form aggregations of varing

                 sizes on a variety of substrates. Oysters are commonly found attached to dead

                 oyster shells or mangrove roots. Oyster beds and bars are usually limited to

                 the filid-intertidal zone where minimum inundation and heat determine the upper

                 limit and predation determines the lower limit of the oyster bed. Oysters

                 serve as attachment sites for other invertebrates and algae and also provide a

                 feeding area for crabs, raccoons, and wading birds (Bahr 1982).

                 Since oysters filter feed directly on suspended particulate matter in tile

                 water column, they tend to concentrate pollutants present in the water.

                 Because of this.characteristic shellfish harvesting is only permitted in areas

                 that pass stringent water quality tests. Terra Ceia is one of the few areas,

                 left in Tampa Bay still open to shellfish harvesting. Scallops and    clams are

                 also present in the preserve.

                 Dredge and fill activities can damage oyster beds through direct removal,

                 denCS4+4nn nv- +k%-^Ugh Cjonn4"n cf the filtering mechanisms of the oyster.

                                                         so

              c. Fisheries. Two hundred and three species of fish are found in the Tampa
              Say area (Comp 1985). The commercial fishing industry in Tampa Bay area

              accounts for 12.8% of the total landings in Florida. Manatee County landings

              alone account for 44.8% of the total Tampa Bay landings.

              A majority of marine species important to man are inextricably linked to the
              estuarine environment (Lindall 1981). 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

              estuarines during all or part of their life cycle (Comp 1985). In Florida, at

              least 72% of the 89 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 invertebrate and fish species

              by providing food, shelter, and refuge from predators.

              Species of special concern in Florida that are found in the preserve include

              the snook (Centropomus sp.) and red drum (Sciaenops ocellata). The snook has

              been classified as a gamefish, which prohibits the commercial harvesting of

              the species, but allows for limited sports fishing with set size and bag

              'limits and season of the year. The recent rise in popularity of Cajun food

              and particularly of blackened redfish (red drum) has increased the pressure on

              this species and has markedly reduced its population. The Fisheries Service as

              an agency of the Commerce Department's National Oceanic and Atmospheric

              Administration has imnlernen+pd an emercenCy rpqU1A+4nn -rnv- +lip mAnAqeMen+ n-r
                                                      J   J . -   - - - --   -_ --.-       @ 11 1

              the directed net fisheries in Federal waters. This action      is seen as a first

              step in the regulation of commercial use of this species.

                                                       51

                Other species of economic importance include: black drum (Pogonias cromis),
                flounder (Paralichthys albigutta), black muller (kl_uqil trichodon), spotted Sea
                trout (Cynoscion nebulosus), and sheepshead (Archosargus probatocephalus).

                d. Amphibians and Reptiles. Information on amphibians and reptiles is

                scarce. Species known to occur in the coastal areas of Tampa include nine

                species of frogs and 27 species of reptiles including the American alligator
                (Alligator mississippiensis), two tortoises, four terrapins, five lizards and
                18 snakes (Long 1975). Most amphibians and reptiles cannot tolerate the

                saline environments within and immediately adjacent to the aquatic preserve

                and their numbers are reduced because of this. The loggerhead sea turtle
                (Caretta caretta--a threatened species), green sea turtle (Chelonia mydas--ain
                endangered species) and leatherback sea turtle (Demochelys coriacea--an
                endangered species) are known to nest along the coastal beaches and may

                occasionally nest within the preserve. Sitings and nestings of these species

                should be carefully monitored and documented.

                The American alligator is designated as a species of special concern by the

                State of Florida, and the indigo snake, (Drymarchon Corais), is on the State's

                threatened species list. The abundance of both of these species should be

                monitored within the preserve.

                0. Bird Populations. Climate, vegetation and habitat combined with the

                                                                                   ig a C A/
                geographic location of Florida and Tampa Pay Adfarent to a- major in. r t r

                path contribute to the wide variety of bird species found either as permanent,

                winter or summer residents or as transients to the area. Eighty-nine species

                                                       52

             are found in the vicinity of Terra Cela Aquatic Preserve (Long, 1975). Of

             those species found in the area two are classified by the Federal Fish and
             Wildlife Service 1 and/or the Florida Game and Fresh Water Fish Commission2 as
             endangered species (Southern Bald Eagle  1,2 , and Wood Stork1), and five as

             species of special concern (Brown Pelican2, Roseate Spoonbill2, Little Blue

             Heron2, Snowy Egret2 and Tri-colored Heron2).

             Mangrove areas and scattered openings within the mangrove forests provide

             excellent foraging and resting habitat for herons, ibis, Wood Storks and

             waterfowl (Long 1975). The mangrove fringe and mangrove islands are used as

             nesting habitats by both the larger wading birds (herons, ibis, egrets, etc.)

             and also by vireos, warblers and Mangrove Cuckoos. There are two active

             colonies in the Terra Ceia Aquatic Preserve. Terra Ceia Bird Key is managed

             by National Audubon Society as the Washburn Sanctuary. This seven and one

             half acres mangrove island is the second largest mixed colony in the Tampa Bay

             area and is the breeding site for 15 species of herons, ibis, pelicans and

             egrets. There are also yellow-crowned night herons nesting within Frog Creek

             in the upper portion of Terra Ceia Bay. Research is needed to quantify the

             number of species and individuals and habitat use of the preserve by these

             populations.

             f. Mammals. Twenty species of marine mammals are reported in the greater

             Tampa Bay area (Reynolds and Patton 1985). Most of these species are rarely

             seen in the Bay area, only the bottlenese do7phin (Tursiops truncatus) and the

             West Indian manatee (Trichechus manatus) are considered year round residents.

                                                     53

                In 1872 Maynard described the manatee as being "remarkably abundant" in Tampa,

                Bay. The peak population in Tampa Bay now is estimated as being between 70

                and 80 individuals.

                Manatees are known to use Terra Ceia Bay frequently from March to December.

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

                Manatee Sanctuary Act, within this preserve, although Terra Ceia Bay is now

                under consideration for being designated as a Manatee Sanctuary. As suggested

                by the Manatee Protection Plan, multi-family and single family docks will be

                limited to one boat slip for every 100 ft. of natural shoreline. Multi-slip

                docks will also be required to be clumped to minimize the disturbance to the

                shoreline. New marinas in high manatee use areas will be prohibited.

                Activities within the preserve should be managed to guarantee the health and

                safety of manatees and all other endangered species.

                All other mammals within the preserve are fairly common with the exception of

                the river otter (Lutra canadensis) and the bob cat (Lynx rufus). Both of

                these species are uncommon. Species common to the coastal scrub and mangrove

                area include the nine-banded armadillo (Dasypus novemcinclCus), the cotton rat

                (Sigmodon hispidus), the raccoon (Procyon lotor , common oppossum (Didelphis

                virginiana) and marsh rabbit (Sylvilagus palustrisj.

                                                       54

                                                Chapter V

                                           RESOURCE MANAGEMENT

             A. Introduction

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

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

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

             directed toward the maintenance of the existing or essentially 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 reflectea in the activities that the

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

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

                                                    55

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

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

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

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

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

                generally be involved in all management activities concerning the Terra Ceia

                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

                         finvolnnMonf, Mory of                                     +kc

                         commercial fisheries of the state and the nation;

                                                       56

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

                  e.  they physically buffer estuarine and riverine waters from

                      contaminated and channelized runoff from uplands within the estuarine

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

                      winds.

             The management objectives for plant communities will be to maintain and

             enhance these functions. Because these plant communities are critically

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

             protection and restoration of those 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 ,-Mter                         I -44crm s+abilizttion, wildlife habitat

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

             plant communities within the aquatic preserve.

                                                    57

                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) showing the locations of threatened and endangered plant species

                within the aquatic preserve. A set of management guidelines for each species,

                outlining the habitat requirements and the methods to sustain and/or restore

                these habitats will be developed. Field personnel, in the course of

                documenting the occurrence of threatened and endangered animals, will develop

                maps showing the locations and types of plant communities used by these

                animals for nesting, roosting, feeding, resting, spawning, etc. Guidelines

                for maintaining or restoring "critical habitat" required by each species will

                then be developed using all appropriate scientific resources available.

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

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

                the study and monitoring of plant communities (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.   de-ositional turying of marine grassbeds communWac-

                     6.   invasions of exotic plant species and revegetation by native species

                          after exotic plant removal projects;

                                                       58

                  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 according to whether the site is publicly or privately

             owned, and the cost and effort required.

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

             communities from the various uses 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 hiqh water line to a dock or pier. The destruction

                          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.

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

                                                 59

                    lands within the aquatic preserve by the Bureau of Land and Aquatic

                    Resource Management @RLARM) central office. No applications will be

                    approved within any Resource Protection Areas 1 and 2 (see section C of

                    this chapter) without a through 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 (i.e.,

                    Florida Sea Grant, Agency on Bay Management, and 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, Australian pine, and melaleuca.

                5. In cooperation with the Manatee County Planning Commission and staff, and

                    the Tampa Bay Regional Planning Council, field personnel will familiarize

                    themselves with 'The Future of Tampa Bay' The Future of the Region'

                    BASIS' and the federal 'Coastal Zone Management Act' so as to assess the!

                    ontpntial imparts, nf nil Spillq nr natural castastrophe on the natural

                    resources of Terra Ceia Aquatic Preserve.

                                                     60

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

             professionals in the wetlands restoration/vegetation field to determine the

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

             restore damaged grassbeds. They will develop guidelines for restoring

             marine grassbeds in the aquatic preserve.

             Field personnel will identify easily accessible mangrove communities within

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

             a nursery stock source for transplanting to restoration sites. Guidelines for

             restoring mangrove communities within the aquatic preserve will be developed

             after consultations with professionals in the wetlands restoration/revegetation

             field concerning proven procedures for transplanting and nurturing mangroves.

             Because restoration/mitigation projects have had variable results,

             developments that require restoration or mitigation will be discouraged. If

             after careful consideration a development is found to be overwhelmingly in the

             public good or no alternative plan devised, restoration/mitigation will be

             considered. Tn the event that restoration/mitigation is required as the

             result of a permit application with DER, DNR, or any other process, field

             personnel will be responsible for monitoring and documenting all restoration

             activity. This might include advising the individuals involved in the actual

             restoration work on the best techniques under the available restoration

             guidelines. All restoration/mitigation plans will be reviewed prior to the

             commencement of the proposCU-1 -develOp-ment, , a n U-4 assessed, as@to 41411-s feasilulizilty.

             Field personnel will monitor the success of all restoration projects and

             document their success/failure, so as to provide more precise guidelines for

             future projects or more strigent requirements if attempts are unsuccessful.

                                                     61

                 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. Immediate 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 seven research facilities in the area

                 (University of South Florida, University of Tampa, Eckerd College,

                 Hillsborough Community College, Manatee Community College, New College in

                 Sarasota, and Mote Marine Lab). 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 Te.--,--- ro4n 5"n          '-por+-t -factor
                                                                          'J "I'll'

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

                 the aquatic preserve are valuable resources on which recreational and

                 commercial fisheries depend. Large areas of undisturbed wetlands are

                                                            62

             excellent habitat for many types of wildlife. These wildlife include an

             extensive list of endangered species, 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

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

             and occurrence in the aquatic preserve.

             b. Literature Familiarization. The field personnel will 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 Endangered Species. Field

             r,erscnnel -o.,41 I k-Ccclmlle f -am. I 111 41 4,A -0 -#-V- 11-1 t 11he gul deal 4 nes of t@.e Fl ori da Game and
             r

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

                                                     63

                 Natural Resources' Division of Marine Resources, National Marine Fisheries

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

                 non-governmental organizations involved in the management of endangered

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

                 familiarization, documentation, and mapping to develop management guidelines

                 for each 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

                 (see Chap. IV-B3f), 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

                         !a-cc ...... a!                   -natee repor*ino ard data collection

                         system will be  established and will make use of other governmental

                         personnel and private individuals where possible.

                                                           64

                   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 dockina

                       facilities should be 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. 4reezes;

                   ii. storms and hurricanes;

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

                                                          65

                    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 affecting 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 arid

                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 should be involved in planning the

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

                a. Hentification 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 riiariagerrent of geologic fe-atures  requirc that thic ficeld personnell

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

                natural, which affect these features within the aquatic preserve. This

                                                       66

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

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

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

             overall objective of the management of these features is to allow the

             naturally dynamic system to operate without 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 tu

             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.

             Maintenance dredging of existing channels will be carefully studied to remove

             conditions that require perennial maintenance and chronic environmental

                                                      67

                disturbances. 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 as the U.S. Amy Corps of Engineers,

                Department of Environmental Regulation, the Department of Transportation,

                Southwest Florida Water Management District or the Tampa Port Authority, 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 AMD 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

                        rnmmiini+iac climate, and other elements of the environment that are

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

                                                       68

                 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 Archives, History and Records Management

             (DHR) in the Florida Department of State. The management authority for this

             area of management 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 267.061(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 plarts witl-I L-Ani-K dt d-

                      sufficiently early stage to preclude inadvertent damage or

                      destruction to these resources.

                                                     69

                          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 may

                          instances DHR will have knowledge of the known and expected site

                          distribution in an area. Special field surveys for unknown areas

                          many 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.

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

                          Archaeolonira! sifes within the Anuatir nrecerve should be left

                          undisturbed for the present, with particular attention devoted to

                          preventing site looting by "treasure hunters".

                                                   70

                  @7.  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.

              5. 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

              one of 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

                         A. I-
              may be all that. is, riecc-ssary to initilate irreparabie ecoloyicai damage and

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

                                                     71

                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

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

                foundations and private consultants working in the Tampa Bay 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, regulation and managing water resources within the aquatic

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

                T6^SQ -Ig@=4er       -1-o be working or having potential activities affect'-
                 "- - -    I @                                                     11  61119

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

                                                       72

                                Florida Department of Environmental Regulation

                          2.    Manatee County Health Department

                          3.    Manatee County Department of Land and Natural Resources

                          4.    Manatee County Planning and Development Department

                          5.    Southwest Florida Water Management District

                          6.    Marine Fisheries Commission

                          7.    U.S. Geological Survey

                          S.    U.S. Fish and Wildlife Service

                          9.    Tampa Bay Regional Planning Council

                         10.    Agency on Bay Management

                         11.    Florida Game and Fresh Water Fish Commission

                         12.    Florida Department of Natural Resources Marine Research Laboratory

                         113.   University of Tampa

                         14.    University of South Florida

                         15.    Manatee Community College

                         16.    Hillsborough Community College

                         17.    U.S. Environmental Protection Agency

                         18.    Eckerd College

                         19.    Mote Marine Lab

                         20.    Tampa Electric Company

                         21.    Tampa Port Authority

                         22.    Department of Natural Resources-Shellfish Sanitation Section

                         23.    Sea Grant Extension Service and Sea Grant College Program

                   b.    Monitoring of Uater Resources by Cooperative Data Collection anj
                                                                                                                          U I\C V I q=VII.

                   Field personnel will: 1. promote coordination among involved agencies in

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

                                                                                73

                monitor water resources within the preserve by reviewing the data

                collected and complied by those agencies as it applies to the aquatic

                preserve and its 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 (5a) 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- insprection the field pre-r-sonnel lWill K-a- -able +.^- cnvir.^n-mental

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

                local agencies will facilitate this regulation.

                                                       74

             6. CUMULATIVE IMPACT ANALYSIS

             Cumulative impacts are the sum total of major and minor charges 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

                                                    .75

                     (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. MAMAGEMEMT 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

                                                        76

             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., DMR, 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 21,736 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's Assessment of Fishery Habitat Loss Study in the Tampa

             Bay area. Marine Research Laboratory personnel have developed resource and

             habitat identification mapping through the use of LANDSAT (satellite) imagery

             anu aerliall P1110411-0graphly.

                                                    77

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

                 for the development of a Resource Protecticn Area management systen 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 species, 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 1 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 species

                 habitat; 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 RAP 3 status. RPA 2 areas

                 -ill
                                         @I .4
                                              C ve -a a s tlo t-he specil-Ir 41c area's sensitivity,to

                 each proposed use. Tn some respects, these areas may be more sensitive to

                 disturbances than RPA 1 areas. The resources of RPA 2 include: marine

                                                          78

             grassbeds; mangroves in scrub condition or colonizing new lands; beaches

             undergoing restoration; saltwater marsh colonizing new lands; and other

             resources of RPA 1 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 1 or 2 areas

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

             significant vegetation or wildlife attributes. Nearshore and bottom areas

             significantly modified by man are designated RPA 3.

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

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

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

             changes will also require modification of this classification system.

             Periodic checking by LANDSAT satellite imagery will become useful for remote

             sensing monitoring as its use is more fully developed.

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

             staff. More detailed 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

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

             well as local and re,,,4n-,,al government entitics. Suppert will also be

             requested from the colleges, universities, foundations and other interested

             groups and individuals.

                                                    79

                The RPA mapping may use the USGS 7.5 quadrangle map format for vegetation and

                these maps will be avai-lable 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. ADMINISTRATIVE MANAGEMENT OBJECTIVES

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

                aquatic preserve management planning and implementation process. The central

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

                activities with the field personnel. This coordination linkage is important

                to many program aspects, including project review 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.

                                                       80

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

                       rule additions, deletions, and revisions.

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

                       services.

                  e.   To establish and maintain a conflict resolution process.

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

                       environmental integrity of the aquatic preserve.

              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

              intent that the central office staff review all proposed activities requiring

              the use of state-owned lands within the preserve. Sections 258.42 through

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

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

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

              the lawful and traditional uses of the preserve, and not infringing upon the

              traditional riparian rights of the upland property owner.

              The primary mechanism through which proposed uses are reviewed is accomplished

              by participation in the state lands management process as established by

              Chapter 253, F.S., and modified by Chapter 258, F.S. The central office was

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

                                I            -he environmental consequences of proposej uses
              for the purposes of evaluation 41.

              of state-owned lands within aquatic preserves.

                                                    81

                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. Tf a proposed activity is legally

                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 entirely by

                the central-office staff, utilizing the generalized environmental data.

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

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

                the preliminary application review, determines that the requested use of

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

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

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

                possible cumulative impacts.

                Field personnel will be encouraged to establish direct communication links

                with the various regulatory and management agencies for purposes of obtaining

                advance 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 flanagement Program authorized by Chapters 253 and 258,

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

                                                         82

             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 ONR provide direct access

             to DER 's permitting process for DNR. 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. Immediately upon review of such project application,
             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 permissible,

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

                  "(1) Mo 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.

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

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

                         preserve except when p 1-1 -K 14 c v- n zi A = n A k v- 4 A no c n n s t ru c tn. et + s
                                      r,             . --- -_ - ._ZJ_ @@"

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

                         the public interest.

                                                     83

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

                            approved by the trustees except the following activities may be

                            authorized pursuant to a permit:

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

                                public navigation projects.

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

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

                                attendant navigation channels.

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

                               opinion of the trustees, be necessary to enhance the quality or

                               utility of the preserve or the public health generally.

                          4.   Such other maintenance dredging as may be required for existing

                               navigation channels.

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

                          6.   Such reasonable improvements as may be necessary for public

                               utility installation or expansion.

                          7.   Installation and maintenance of oil and gas transportation

                               facilities, provided such facilities are properly marked with

                               marine aids to navigation as prescribed by federal law.

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

                          for the sole or primary purpose of providing fill for any area

                          landward of a bulkhead line.

                     (c)  There shall be no drilling of gas or oil wells. However, this will

                          not probib-it the st-a-te f%-AM lancinn +;%a nil zni nne "4nh+c =nA

                          permitting drilling from outside the preserve to explore for oil

                          and gas if approved by the board.

                                                        84

                    W There shall be ro 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

                         3.  Structures for shore protection, approved navigational aids, or
                             public utility cros'sings authorized under subsection (3)(a).
                    M    No wastes or effluents shall be discharged into the preserve which

                         substantially inhibit the accomplishment of the purposes of this

                         act.

                    (g)  No nonpermitted wastes of effluents shall be directly discharged

                         into the preserve which substantially inhibit the accomplishment

                         of the purposes of this act."

              Generally, applicants desirous of appealing staff recommendations will have to

              follow those appellate procedures outlined in the appropriate authorizing

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

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

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

              a. 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;

                                                        85

                b. Request an Administrative Hearing under the procedures outlined in Chapter

                    120, F.S.; or

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

                    Trust Fund to the District Court of Appeals.

                3. Liaison Between Field Personnel and Other Interested Parties
                One of the most important aspects of the field personnel's job is to establish

                a mutually beneficial communication link with pertinent interest groups. The

                central office staff will assist in initially identifying and contacting

                governmental bodies, special interest groups and interested individuals

                requiring aquatic preserve program coordination.

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

                arranging for specialized management expertise not generally available

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

                conduct a detailed cultural resource assessment for certain areas of the

                preserve.

                                                      86

                                                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 both field personnel and central office

              staff as they relate to these other organizations will be presented.

              A. Federal

              Many federal agencies have property interests, land and wildlife management

              programs, research activities, construction activities, and regulation

              programs existing or potentially existing within the aquatic preserves. The

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

              various activities wherever possible. The field personnel will assist those

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

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

              effect on the objectives of the aquatic preserve mannement. This review

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

              purposes of enforcing the provisions of the Federal Coastal Zone Management

              Act of 1972, as amended.

                                                     87

                    United States Fish and Wildlife 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.

                2. 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.

                The COE activities in the Tampa Bay area 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 personnel will

                '
                W    %;;          ` `e varicus programms, policies and procedures as they
                ,cc    f3mi, I I a r -.-V, Ite f 4-41 16      1 1

                apply to the aquatic preserve.

                                                       88

             Field personnel and central office staff will also review activities proposed

             by the COE for conformance to the objectives of the aquatic preserve

             management plan. This involvement should begin in the earl stages of project
                                                                        y              V

             planning in order to facilitate the best protection of the aquatic preserve

             possible.

             3. 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 reEults 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 fieltud act-ilvit-iles and w1here there a-(@e conciuo

             goals.

                                                    89

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

                boating safety, including search and rescue when necessary. The Coast Guard

                is also charged with the permitting of structures which affect navigation and

                boating safety. These structures include bridges, causeways, aerial utilities

                and other structures which may be in conflict with navigational uses. The

                field personnel, in conjunction with the central office staff, will also

                review projects which the Coast Guard may be evaluating for permits.

                6. National Marine Fisheries Service. The National Marine Fisheries Service

                (NMFS) under the U.S. Department of Commerce is active in the Tampa Bay 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 DMR programs

                that are within or affect the Terra Ceia Aquatic Preserve. This section will

                describe the interactions and relationships of these various agency programs

                and how they relate to aquatic preserve management.

                1. Department of Environmental Regulation. The Department of Environmental

                                                                          -Er quali-Ity and, in
                in, c -J u 1, a t icn IDEIRI) is responsible for regulating air and wat
                some cases, water quantity (through the water management district) within the

                                                         90

             Tampa Bay area. The DER is also the local contact for the initiation of

             dredge and fill applications in conJunction with the COE and DNR. With

             respect to water quality and dredge and fill regulation, the DER is possibly

             one of the most important agencies to the management of the aquatic preserve.

             The water quality of the preserve is the most important factor to the 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 the 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 time 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 actions for

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

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

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

             research needs, and other program support.

                                                    91

                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 DRT 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 would endanger resources of regional or statewide

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

                Planning 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 RPMP Committee's

                m n r% rv a 1 , th e _a r -a --3 el e0f 1.0cal gove-M.M.'ent that- arc, not in conformanc3 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

                                                       92

             development process will require the state's oversight until that local

             government modifies its land development practices to conform to the ACSC

             requirements.

             3. Department of Natural Resources. The aquatic preserve management program

             is associated with several other Department of Natural Resource (DNR) programs

             in the Tampa Bay area.

             DNR's Marine Research Laboratory in St. Petersburg, under the Division of

             Marine Resources, has several programs and projects within this area which

             will benefit the aquatic preserve program. The Marine Lab is presently

             involved in numerous studies on fishery habitat losses in the Tampa Bay area.

             The Resource Protection Area mapping, which will be used in the management of

             the aquatic preserves, was created as a product of that fishery habitat loss

             study. The data from this project, when it is completed, will be incorporated

             into this management plan. The Marine Lab staff are also involved in manatee

             protection programs and the lab is the headquarters of the State Manatee

             Coordinator. Field personnel will become familiar with these studies and

             programs, and will consult the Marine Lab for their data needs whenever

             possible.

             The Division of Marine Resources also handles the permitting for the

             collection of certain marine species and use of certain chemicals. The field

                                                                                  we,,- 0 C r
             ind central office staff will become famili-ar with this permittfing, p.---

             and request notification of these permits within the aquatic preserve.

                                                     93

                The Marine Patrol, under DHR's Division of Law Enforcement, also operates in

                Tampa Bay. The field persorrel 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 submerged 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 Park Service, is also involved in the management of

                State Parks and Recreation Areas nearby. The aquatic preserve will work

                closely with these programs as they        1"o aqu;t4sc prEserve minanagement

                objectives.

                                                       94

              4. Marine Fisheries Commission (MFC). The MFC was established as a

              rulemaking authority pursuant to Section 370.027. F.S. The seven members are

              appointed by the 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) gear specifications, b) prohibited gear, c) bag limits, d) size limits, e),

              species that may not be sold, f) protected species, g) closed areas, h)

              quality control codes i) season, and j) special considerations related to

              eggbearing females and oyster and clam relaying. Field personnel and central

              office staff will become familiar with the rules of the MFC.

              The MFC is also instructed to make annual recommendations to the Governor and

              Cabinet regarding marine fisheries research priorities. The field and central

              office staff will use these recommendations to direct research efforts within

              the aquatic preserve.

              5. Florida Game and Fresh Water Fish Commission (GFWFC). The GFWFC's

              Environmental Services office in Vero Beach sends biologists into the preserve

              to review projects which may have potential impacts on local fish and wildlife

              habitat as necessary. The central office will use the GFWFC's assistance in

              their review process, when possible, and in developing fish and wildlife

              management for the aquatic preserve.

                  91 M. I r                                                        4
              The UIVIIC 'is also the state coordinatof olp the Endanyered Specie  M Florida.

              The field personnel and central office staff will work with CFWFC personnel in

              developing program needs in this area.

                                                       95

                6. Department of Transportation (DOT). The DOT has an office in Tampa and

                the field personnel 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, History and

                Records Management (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 regulation and

                mosquito control. Although*mosquito control serves a useful public function,
                the effects of pesticides (adulticides and larvacides) in the waters of the

                                                                                      -F
                preserve are a primary concern. Additionally, the central office staff will

                become involved in future meetings and management programs developed by the

                Governor's Working Group on mosquito control. Subsequent policy

                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 network as it applies to

                                                       96

             the Terra Ceia Aquatic Preserve will include the Southwest Florida Water

             Management District, the Tampa Bay Regional Planning Council and the Tampa

             Port Authority. These organizations have broader activities than the local

             government, but are on a smaller scale than the state level.

             1. Southwest Florida Water Management District (SWFWMD). SWFWMD includes

             Hillsborough, Manatee, Pinellas and 13 other counties. 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.

                 Tampa Bay Regional Planning Council (TBRPC). The TBRPC serves as a

             regional planning body for the local governments of Hillsborough, Pinellas,

             Manatee, and Pasco Counties, while the Manatee County Planning Commission

             serves Manatee County. The Agency on Bay Management acts as an advisory board

             for the TBRPC. Among its duties, the TBRPC:

                  a. aids local governments with planning expertise;

                  b. is the regional representative for the DPvPIopmPnt of Peninnal

                      impact (DRI) review process;

                                                    97

                     c. serves as the regional clearinghouse for state and federal projects

                         and programs; and

                     d. conveys information from the local governments to the state and

                         federal levels.

                In addition, the MCPC contributes to a. and d. above.

                Field personnel will become familiar with the various projects, programs, and

                data sources that the TBRPC, ABM, and MCPC, have within their administration

                that may affect or prove useful to the aquatic preserve program.

                The DU review of projects which affect the aquatic preserves will be reviewed

                by the central office staff, with the field personnel's field review, when

                necessary. DRTIS 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 th e 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

                programs. The Terra Ceia Aquatic Preserve is entirely contained within

                Manatee County and does not have any incorporated cities adjacent to it,
                except Palmetto. The various special districts (drainage, inlet and mosquito

                control) and their relationship to aquatic preserve manaqement, 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

                                                        98

             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. The local governments are

             required by the Local Government Comprehensive Planning Act of 1975 (LGCPA),
             (Section 163.3161, F.S.) to have a comprehensive management plan with elements

             relating to the different governmental function (i.e. housing, physical

             facilities, conservation, land use, and coastal zone protection). 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. Field personnel will become familiar with the above

             plans and how they support or are in conflict with the objective of the

             aquatic preserve management. Field personnel will assist local planning

             officials in having their plans meet these objectives. It is hoped that local

             governments will join in the spirit of aquatic preserve management and be

             willing to work for these changes.

             2. Relation to local development codes- The local zoring and development

             codes (e.g., building codes) provide the major local regulation that defines

                                                     99

                what an owner can do on a particular parcel of property. I'he 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

                management 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 practices in support of Aquatic Preserve

                Management. 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

                            the 1-11-b.-Ing of the aqU3tiC preserve.

                                                       100

             4. Special Districts (Drainage, Inlet and Mosquito Control. The special

             districts are taxing authorities established to correct drainage and mosquito

             control problems. This is one drainage district that directly affects the

             preserve. Manatee County has only one mosquito control district.

             This 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 the

             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.

             E. OTHER ORGANIZATIONS

             This section will apply to the numerous organizations that have an interest in

             the aquatic preserve but are non-governmental agencies. This will include,

             but not be limited to, the environmental interest groups (i.e., Audubon

             Society, Sierra Club and Native Plant Society), the scientific organizations,
             the fishing and sports interest groups (i.e., Florida League or Anglers,
             Organized Fishermen of Florida), the universities that may have research

                        in the proserve (i.e., University of South Florida, "n-vers"-

             Tampa, University of Florida, Manatee Community College, Hillsborough

             Community College) and any other interest groups or individuals. The

                                                     101

                relationship of these organizations to aquatic preserve management might

                include the coordination of activities, such as scientific research,

                environmental education, management of rookeries or other natural areas, or

                numerous other possible activities. A worthwhile aquatic preserve management

                process will depend on the continued support and help of these interest groups

                in the preserve. Field personnel will be active in communicating the aquatic

                preserve management process and activities to the various groups and

                consulting with them for their help in their areas of-expertise.

                                                        102

                                                  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 the proposed activity/use is environmentally sound 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 onl be approved when accompanied by adequate
                                           y                               I

              compensation measures that contribute to an overall net public benefit.

              Mitigation measures, other that 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 aesthetically benefit

              from the proposed restoration actions.
                                                     103

                                               Chapter VII

                                               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 258.35, 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(l), F.S.). These and other traditional uses that do not involve a

             commercial intent or the use of a riparian right to place a structure in the

             preserve, and do not degrade or otherwise destroy the preserve will be

             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

             uses include fishing, hunting, 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

                                                                             a ^V
             otcpc (qpo rhapter V. Recourre Management, Sect4nn rt- Onsit-n M n g e t

             Objectives) will include the observation and monitoring of the effects of

             these uses on the resources. The field personnel will periodically assess the

                                                    105

                 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 Terra Ceia 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.   Mon-consumptive Uses

                 These uses are those which do not generally remove resources from the

                 preserve. Examples of these include swimming, diving, boating, bird-watching,

                 and cther 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 consid-e-ra-rd -a consumptive Lice (i.e. deeltructicn 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

                                                            106

             these uses are not generally controlled by law. The guiding principle in

             these cases will be whether or not the activity causes a 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).

                                                    107

                                              Chapter VIII

                                       PRIVATE MON-COMMERCIAL 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 of 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

              preemptive use of sovereign lands is a qualified one and can only be exercised

              with the prior consent of the Board after a finding that such uses will not

              impair public uses or destroy or damage areas of environmental significance.

              The review of 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 S.

              Private non-commercial uses shall be designed to avoid critical Resource

              Protection Areas IL and ? 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 he reviewed

              by the criteria described in Section 18-20.04(5),F.A.C.) of the revised

              General aquatic preserve rule:

                                                   109

                     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);
                     8. 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.

                @ulkheads 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 (0) 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

                                                      110

             lost or disturbed resources shall be required. 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 ?0 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 dockinq 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
             11-58.42(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 water;
                  8. main access docks and connecting or cross walks shall not exceed six
             (6) feet in width;
                  9. terminal platforms shall not exceed eight (8) feet in width;

                    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 I or 2, except as allowed pursuant to Sections
                258.42(3)(e)l., Florida Statutes; while dredging 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 generate minimal environmental impact;
                    15. 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;
                   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 dny 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
                   21. in any areas with known manatee concentrations, manatee
                warning/notice and/or speed limit Siqns 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

                built with minimal damage to wetlands, will be encouraged over permanent wet
                storage facilities. Von-residential docking facilities (commercial) are

                addressed in Chapter IX.

                                                     112

             The use of seaplanes within this preserve is seen as a non-traditional use.

             Applications for seaplane use within the preserve will be reviewed on a case

             by case basis. These uses will only be recommended where such use will not

             affect resource protection areas or natural values of the preserve, not effect

             endangered species habitat, can be utilized in a safe manner, and will not

             preempt traditional uses within the proposed use area.

                                                113

                                               Chapter IX

                                             Commercial Uses

             This section addresses the variety of traditional and non-traditional (i.e.

             new uses of this area) commercial uses which might occur within the aquatic

             preserve. Among the traditional uses in the Terra Ceia area are utility

             crossings, marinas and yacht clubs, commercial fishing, shellfishing, and

             other types of boats for hire (e.g. sportfishing, diving). Non- traditional

             uses in this area include oil and gas transportation facilities, phosphate

             transportation, and other commercial uses.

             A. Traditional commercial uses

             1. Utilities crossings. There are at present time both aerial and underwater

             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, for placement of these

             crossing in areas that would cause the least disturbance to the environment.

                                                   115

                The utility crossing plant, when completed, will become a part of this

                management plan. Crossings 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.

                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 problens 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 malior

                concern of the Terra Ceia Aquatic Preserve management. Marinas rppresent 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 sitina marinas in the aquatic preserve.

                                                     116

                  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. 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 I or 2, except as allowed pursuant to Sections
              ?58.42(3)(e)l., Florida Statutes; while dredging in Resource Protection Area
              3 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 I or 2, that are located along the shoreline, to
              reach an acceptable Resource Protection Area 3, provided that such crossing
              will generate minimal environmental impact;
                  8. 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;
                   9  the siting of the dockinq 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 multiple
              wet-slip docking;
                 12. 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
                 14. 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
              sn'Dri f i cations

              4. Deep Water Port Facilities. There are no major deep water port facilities

              within the boundaries of the preserve but Port of Manatee is located

              immediately north of the preserve. Therefore maintenance dredging and

                                                117

                potential pollution from accidental cargo leakage 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

                in the air quality, water quality, and plant and animal life of the aquatic

                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 Terra Ceia 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.

                -1
                .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.

                                                      118

                                                 Chapter X

                                            Scientific Research

              The -01feld personnel attached to the Terra Ceia 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

              acuatic 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 XII). The field personnel will assist in

              the selection of possible tests sites and other research needs within the

              preserve.

                                                     119

                                               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 Manatee 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

                                                    121

                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 o-F the preserve.

                                                      122

                                               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

             monitor the management plan implementation process and specifically identify

             observed program needs and problems. The areas to be included are but will

             not be limited to:

                   A. acquisition of additional property,

                   B.  boundary problems,

                   C.  legislative needs,

                   D.  administrative rule changes,

                   E.  data needs,

                   F.  resource protection capabilities, and

                   G.  funding and staffing needs.

                                                    123

                Staff will annually 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, arid

                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

                advisability 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 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 ppssible public acquisition.

                B. Boundarv Problems and Systems Trisufficiencies

                The boundaries of the aquatic preserve are often artificial delineations of

                the natural systems within and surrounding the preserve. A variety of

                                                      124

              scientific studies are presently being conducted both within and outside the

              preserve boundaries, and their results could conceivably suggest a change in

              these boundaries. These changes may include the extension of the present

              boundaries in some areas or the exclusion of other areas. The field

              personnel, in their normal management activities, will be sensitive to the

              possible need for boundary modifications. Potential boundaries changes and

              acquisition projects might include areas upstream of the present boundary in

              the streams flowing into the preserve, previously conveyed sovereign lands, or

              other areas not presently within the preserve. Currently a sewage effluent

              flows into the Aquatic Preserve. If the outfall were moved, this would open

              up this area to shellfish harvesting. Any boundary change will require

              legisltative approval. An additional boundary consideration would be to

              include the tidally influenced Little Redfish Creek that is located alonq the

              northern boundaries of the preserve and the mangrove islands within the

              preserve.

              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

              the aquatic preserve is based. These changes may include boundary

              realignments or the strengthening of certain management authorities.

              D. Administrative Rule Changes

              Admin ni str.nti ve rulleer. aarc st-ntem,ents :'AA"eer4n^ the organization, procedures

              and practices used in the implementation of aquatic preserve management plans

                                                    125

                and.policies. This process includes identifying problems within the manaqing

                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

                possibly be supplied by such ongoing 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 enforcement support from local government or state

                agenCipc.  Tha need for additin-na-I marpro-le-r-, -authcrity        -nh-cie,

                for this task will be identified.

                                                      126

              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 staff capabilities of both

              the Department of Natural Resources and other agencies with enforcement

              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 implemented with

              funds from a variety of sources and programs. The writing of this

              management plan was funded through a grant from the U.S. Office of Coastal

              Zone Management, National Oceanic and Atmospheric Administration, and through

              the "Coastal Zone Management Act of 1972", as amended.

              Funding for the management of Terra Ceia Aquatic Preserve was provided by the

              1986 Florida Legislature. This included one full-time Career Service staff

              position and an office located near the city of Palmetto at 3708 Patten

              Avenue, Ellenton, Florida 33532. Continued funding and staffing are

              critically important to the success of the aquatic preserve program. A

              proposed budget for the onsite staffing of the preserve, as well as for the

              4dent.ification of the equipment and expenses for continued operation -is shown

              below.

                                                    127

                              Proposed Continuation Budget (Fiscal Year 1987-88)
                                for the Terra Ceia Aquatic Preserve Management

                          Salary (Environmental Specialist 11) and        = 30,000
                             Associated Overhead

                          Operating Capital Outlay                        = 15,000

                          Operation Expenses                              = 25,000

                                TOTAL                                        $70,000

                                                      128

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              Burger, B.W.; Man in the coastal zone: Bishop Harbor/Terra Ceia Island
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                                                      130

                                          CONTENTS OF APPENDICES

             A.   Florida Aquatic Preserve Act of 197.5 (� 258.35-358.469 F.S.)

             S.   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.   Legal Description and Lease Agreement

             E.   Existing Authorities Matrix

                Copies of the above apperdilces may be obtaineud from:

                          Bureau of Land and Aquatic Resource Management
                          Department o-1 Natural Resources
                          Cedars Executive Center, Suite 232.-B
                          Mailbox 1, 2639 North Monroe Street
                          Tallahassee Florida 32303

                                                    131

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                                                                                                                                       HOAA COASTAL SERVICES CTR LIBRARY

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