Cockroach Bay aquatic preserve management plan

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COCKROACH BAY

AQUATIC PRESERVE

MANAGEMENT PLAN

APRIL 1987

QH
91.75
. F6 D.EPARTMENT OF NATURAL RESOURCES
C63
1987
c.2

COCKROACH BAY AQUATIC PRESERVE

MANAGEMENT PLAN

April 21, 1987

U.S. DEPARTMENT OF COMMERCE NOAA
COASTAL SERVICES CENTER
2234 SOUTH HOBSON AVENUE
CHARLESTON, SC 29405-2413

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

Property of CSC Library

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

EXECUTIVE SUMMARY

The Cockroach Bay Aquatic Preserve is located in Hillsborough County, and

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

Bay totalling approximately 3,600 acres. This area is the most pristine

region in Tampa Bay.

Cockroach Bay was designated an aquatic preserve on July 1, 1976, when it

was leased from the Tampa Port Authority for the primary purpose of

preserving the biological resources of the Cockraoch Bay 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 los-ses 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 establishment of a permanent on-site manager for

the aquatic preserve. Currently, the preserve is being managed temporarily

by an interim manager (OPS) and is based off-site at the Department of

Natural Resources' Marine Research Laboratory in St. Petersburg.

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 Cockroach Bay Aquatic Preserve

as a biological/scientific preserve in formal action on May 18, 1976; and

iii

WHEREAS, the Trustees recognize the importance and benefits of protecting
i
the natural resources and preserving the natural ecosystem and aesthetics in

the Cockroach Bay Aquatic Preserve area; and

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

Improvement Trusi Fund hereby adopts the Cockroach Bay Aquatic Preserve

Management Plan; and

BE IT FURTHER RESOLVED that the Cockroach Bay Aquatic Preserve Management

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

state and local agencies having jurisdiction relative to maintaining the

natural resources and environmental quality of this aquatic preserve, and

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

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

state-owned submerged lands within the Cockroach Bay Aquatic Preserve; and

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

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

purposes of aquatic preserve planning and management.

IN TESTIMONY WHEREOF The Board of Trustees of the Internal Improvement

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

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

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

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

Governor

(Seal) qe

Secretary of State

Conassioner of Education Attorney General

Commissi oxr 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

ha-pter Page

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

IT. t.-I.ANAGEMENT AUTHORITY .......................................... 11

III. MAJOR PROGRAM POLTCY DIRECTIVES ............................... 23

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

A. Resource Setting

1. The Tampa Bay Area ............................ ........... ?9

2. Historic Motes ............................................ 31

3. Archaeological Sites ...................................... 34

4. Present Population Characteristics ........................ 3E

5. Coastal Area Land Ilse and Infrastructre ................... 37

B. Nat ural Systems and their Components

1. Geologic Features and Land Forms .......................... 39

2. Plant Associations ........................ * ............... 41

a. Mangrove Forest ....................................... 41

b. Seagrasses ............................................ 43

c. Benthic and Drift Algae ............................... d5

d. Salt Marsh .......................... ................. 46

3. Animal Life ........... o..* ................................ 47

a. Live Bottom... ................... o........ o ........... 48

b. Oyster Beds ........................................... 48

c. Fisheries ............................................. 49

d. Amphibians and Reptiles ........................... o ... 50

e. Bird Populations ...................................... 51

f. Manmals ............................................... 52

TABLE OF CONTENTS (Continued)

Chapter Page

V. RESOURCE MANAGEMENT ........................................... 53

A. Introduction .............................................. 53

B. On-site Management Objectives ............................. 53

C. Resource Mapping and Resource Protection Areas ............ 75

D. Administrative Management ObJectives ...................... 78

VT. MANAGEMENT IMPLEMENTATION NETWORK ............................. 85

A. Federal ................................................... 85

B. State ..................................................... 88

C. Regional .................................................. 95

D. Local Governments and Special Districts ................... 96

E. Other Entities ............................................ 101
PREFACE TO CHAPTERS VIT - IX ........................................ 103

VIT. PUBLIC USES .................................................. 105

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

9. Nonconsumptive Uses ...................................... 106

V111. PRTVATE NONCOMMERCIAL USE .................................... 109

IX. COMMERCIAL USES .............................................. 113

A. Traditional Commercial Uses .............................. 113

B. Nontraditional Commercial Uses ........................... 115

X. SCIENTIFIC RESEARCH .......................................... 1.17

XI. ENVIRONMENTAL EDUCATION .................... ................ o 119

vii

TABLE OF CONTENTS (Continued)

Chapter Page

XII. IDENTIFIED PROGRAM, NEEDS ..................................... 121

A. Acquisition of Additional Property ....................... 122

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

C. Legislativc- Needs ........................................ 123

D. Administrative Rule Changes .............................. 123

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

F. Resource Protection and Enforcement-Capabilities ......... 124

0. Funding and Staffing Needs ............................... 125

REFERENCES CITED .................................................... i27

CONTENTS OF APPENDICES .............................................. 129

Vill

COCKROACH BAY AC211ATIC PRESERVE MANAGEMEMT PLAN

CHAPTER I

INTRODUCTION

This plan addresses the management of the Cockroach Bay Aquatic Preserve,

located in Hillsborough 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 3,600 acres.

A submerged land lease agreement was entered into on July 1, 1976, between

the Tampa Port Authority, a body politic and corporate under and by the

virtue of the Laws of the State of Florida, and the Board of Trustees of the

Internal Improvement Trust Fund. This agreement provided that the Tampa

Port Authority as owner in fee simple of all or certain parcels of land in

Cockroach Bay, pursuant to Legislative act, would for the sum of one dollar

($1.00) per year, lease said lands to the Trustees of the Internal

Improvement Trust Fund of the State of Florida. This fee was later waived

by the Port Authority. The term of the lease is for 40 years, from July 1,

1976 through June 30, 2016 (See Appendix n).

The Cockroach Bay Aquatic Preserve boundary (Figure 2) begins within the

mouth of the Little Manatee River. It then continues in a southwesterly

direction along the mean high-water line until it reaches its southern 141mit

.......... .

AQUATIC
PRESERVES

3 D

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

FDA MORE WFORMATION REG&RDING
AOLIATIC PRIESERVES CDOCTACN.

DEPARTMENT OF NATURAL RESOURCES

DIVISION OF RECREATION AND PARKS

BUREAUOF LAND AND AQUATIC
RESOURCE MANAGEMENT
3000 C0wm0w-vEALTt4 BLVD
V
-42303

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Cc'
E in a c NANATZE CQ -T"3-3
00, MAP OF
LEGEND COCKROACH SAY AOUATIC PRESERVE
(AOUATIC PRESERVE NO. 33)
--COUNTY BOUNDAW LINE
ROUGH COLINTY.FLORiDA
PAVED ROAD 0 - CKATED BY
M&MUNIMED HIMIWAY STATE OF FLORIDA BOARD OF TRU S
C) OF THE INTERNAL IMPROVEMENT TRUST FUND
ADUATIC PRESEW (OCTOBER 21 .1969 1 . RESOLUTION ADOPTED MARCH 30. 1972);AND
STATE OF FLORIDA LEGISLATURE BY THE
FLORIDA AOUATIC PRESERVE ACT 1975
PREP"ED By CA (AS AMENDED BY SECTION 258.39
11PUREW OF IEWROWWNTAL
LAND NA"GEMENT FLORIDA STATUTES IN t976)
WAY "5

Figure 2

all- the Hillsborough/tlanatee County Line. The preserve is contained within

Hillsborough Courty. At its northern border it is bounded by the northern

edge of the Little Manatee River and to the south by the Manatee/Hillsborough

County line, and Port Manatee. Included in the Preserve are Little

Cockroach Bay, Cockroach Bay, South Stop to the Manatee/Hillsborough County

line. The Preserve boundary extends westerly 500 feet from the mean high

water line of Tampa Bay. This boundary also runs 500 feet westerly of the

mean high water line of the off shore islands (Beacon Key, Snake Key, Camp

Key,. Big Pass Key, Little Cockroach Island and Sand Key).

Of all fcur aquatic preserves located in the Tampa Bay region (including the

Pinellas County, Terra Ceia, and Boca Ceiga Bay Aquatic Preserves) the

Cockroach Bay Aquatic Preserve is the least developed and is in the most

pristine condition. 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, juvenile, and larval

vertebrates and invertebrates. Mangroves which represent the predominant

emergent vegetation, fringe the shoreline of most of the area. Saltmarsh

grasses, oyster bars, clam beds, drift algae, live bottoms and tidal flats

are also intricate parts of this very dynamic and productive system.

The Cockroach Bay 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 -16-he Flort 40 U-4 a rulepart-ment- c f IL ro r, mie r, t a I

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

the Aquatic Preserve. The actual preserve includes those submerged lands

(-Formerly sovereignty land of the state) located water-ward 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.

Due to the current limitation of pemanent onsite staff resources, the initial

management program described in this plan will be limited in the scope of

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

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

growth. Currently, management of Cockroach Bay Aquatic Preserve is being

provided by an interim manager hired on OPS status to provide minimal resource

protection needs. The administrative support for this management program will

be provided by the Department of Natural Resources, Division of Recreation

and Park's, Rureau of Land and Aquatic Resource Management (BLARM) in

Tallahassee, known as the "central office". Field personnel support and

assistance will be provided through the Florida Park Service, Division of

Marine Resources and the BLARM staff.

Initially, development of the resource inventory of the preserve has

depended heavily on LANDSAT satellite imagery, DOT aerial photography,

on-site inspection, the Future of Tampa Bay, and the proceedings from the
Tampa Pay Scientific Nformation @ymno,,iqm (BASIC) (Treat et al. 1985) hel6

in 19821.. As the program proceeds and on-site managers become more -familiar

v,.!ith the area, additional resource information will become available and

rrodifications to the program and the plan will be made where appropriate.

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

Chapter 11 cites the authorities upon which this management program and plan
are built. Chapter III (111ajor 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 acencies 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.

Chapter X11 is an internal management improvement section identifying

problems and needs in the progressive improvement of this aquatic preserve

management plan.

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

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

( EL" L A RN1 st-la-Ff F u -,, "A I ng for the plan wzs provided 'by a coastal management

grant (CM-1.30) through the U.S. Department of Commerce's National Oceanic

and Atmospheric Adninistration, Office of Ocean and Coastal Pesource

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

Office of Coastal Management.
9

Chapter 11

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

prcprietary 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 Sureau 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 preserves. The review and

subsequent staff comments are primarily designed to evaluate the environmental

consequences of any proposed use of state-owned submerged land. The review is

conducted within the confines of the criteria.,contained-lin the "maintenance"

provisions for aquatic preserves in Section 258.42, F.S. Formal review

cor.nments are provided to the Department of Natural Resources (DNR), Division

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

inclusion in the comments and recommendations accompanying agenda items for

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

owners or lease holders of the land, in trust for the public, to evaluate

public interest and pro.ject merits within the context of environmental impact

upon the preserves.

BACKGROUND

In many respects, the authorities supporting aquatic preserve planning and

management are the cumulative results of the public's awareness of the

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

of aquatic preserves is a direct outgrowth of public concern with dredge and

fill activities rampant in the late 1950's.

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

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

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

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

Trustees to exercise proprietary control over state-owned lands. In 10,67,

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

impacts of development led to the establishment of a moratorium by the

novprnor and Cahinpf on the sale nf subrerged lands to private interests. In

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

Advisorv Committee on submeraed land management. Tn late 1968, that committee

issued a report recommending the establishment of a series of aquatic

preserves. Twenty-six separal-e waterbodies were address,ed in the original

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

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

natural resources and scenic beauty of the state. That constitutional

provision also established the authority for the legislature to enact

measures for abatement of air and water pollution.

Tt was not until October 21, 19691 that the Governor and Cabinet acted upon the

recommendations of the Tinteragency Advisory Committee and adopted, by

resolution, 1F of the waterbodies as aquatic preserves.

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

had created the Boca Ciega Bay Aquatic Preserve. Subsequent legislative

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

Fiscayne Bay Aquatic Preserves, respectively.

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

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

standardized set of maintenance criteria. Additional acts were passed

subsequent to the 1975 action, such as the addition of the Cockroach Bay

Aquatic Preserve in 1976 and the Gasparilla Sound-Charlotte Harbor Aquatic

Preserve to the system in 1978.

The Charlotte Parbor Aquatic Preserve Management Plan, approved by the

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

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

September 6, 19P3, North Fork-St. Lucie - I-lay 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, NIalabar to Vero Beach, Lexahatchee River Lake

Worth Creek, tlekiva 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 Vative

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 !F-21 and. 1.8-20, Florida Administrative Code (F.A.C.), 8,re two

administrative rules eirectly applicable to "he DNR's/Trustees's actions

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

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

sovereignty submerged lands, and is predicated upon the provisions of Sections

253.03 and 253.12, F.S. The stated intent of this administrative rule is:

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

Board of Trustees of the Internal improvement Trust Fund for the

aaministration, 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;

(A) 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

nrovide Just ccTpensation for such privileges; ond,

(6) To aid ir the implementation of the State Lands Nlanagement Plan,"

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

4-1
authorit. Y from,Sections 258.35,,258.36, '58.37 and 258.38, F.S. The intent of

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

"(11) 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 2,58.39,

258.391., 25.8.392 and 258.393, F.S.; Chapter 85-345 Laws of Florida;

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

being preserved in an essentially natural or existing condition so

that their aesthetic, biological and scientific values may endure

for the enjoyment of future generations.

(3) The preserves shall be administered and managed in accordance with

the following goals:

(a) Preserve, protect, and enhance these exceptional areas of

sovereignty submerged lands by reasonable regulation of human

activity within the preserves through the development and

implementation of a comprehensive management prcgram;

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

public may continue to enjoy the traditional recreational uses of

those v.,aters such as swimming, boating, and fishing;

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

creatinq 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. estuarine. aquatic and !n.@rine reptiles, game and

nongame fish species, estuarine, aquatic and marine invertebrates,

estuarine, aquatic and marine mammals, birds, shellfish and

mollusks;

(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."

OTHER MANAGEMENT AUTHORITT Ec

Other Department of Natural Resources management authorities applicable to

aquatic preserves include: fisheries and marine mammal management and

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

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

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

Chapter 403, F.S., is an important adJunct to Chapters 253 and 258, F.S. This

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

biological resources. The Department of Environmental Regulation (DEP),

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 aDDroval of the Droposed use from the Triistpps hefore

commencing the activity. An interagency agreement between DNR and DER

provides an avenue for staff comments on potential environmental impacts of

projects in aquatic preserves through the DER permitting process.

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

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

(ON). 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

Cockroach Bay area, as well as being the state agency responsible for

implementing "federal consistency" provisions of the federal Coastal Zone

Management Act.

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

t1anagement 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 MOU clearly

establishes a process whereby the proprietary concerns of the Trustees, stated

in Chapter 253, F.S. can be integrated into the DER/COE Joint permit

processing system.

Tampa Port Authority having leased-the submerged bottoms of Cockroach Bay to

the Tnterral Improvement Trust Fund established a process whereby the

proprietary concerns of the Trustees, stated in Chapter 2535, F.S. can be

integrated into the TPA permit processing system.

Other opportunities for environmental review and input into activities

potentially affecting aquatic preserves are afforded by the Department of

Community Affairs (DCA), the Environmental Protection Commission (EPC) of

Hillsborough County, 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.

The DCA and TBRPC are statutorily responsible for administering the

1 T
"Development of Regiona 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. Tc 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 DHR, which holds title to

those cultural resources located on state-ownpd lands. ThiR also applipd to

sovereignty submerged lands, including aquatic preserves.

The Pillisborough County Department of kealth and Rehabil'itative Services,

under their public mandate, administers two programs directly affecting the
aquatic preserve management program. These programs are (1) septic tank

regulation, usually administered by county health departments and (2) arthropod

(mosquito) control programs, usually implemented through local mosquito

control districts. Septic tanks and arthropod controlling each holds the

potential for creating significant impacts upon the aquatic preserves.

Establishment of close working relationships between the aquatic preserve

staff and the Department of Health and Rehabilitative Services will be a

necessary element of the aquatic preserves management program.

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

protecting aquatic preserve and their ecologically sensitive resources.

The appendices contain a list of the appropriate statutes and administrative

rules.

Chapter III

MAJOR PROGRAM POLICY DIRECTIVES

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

highlights those major policy areas that ccmprise the basic thrust of this

management effort. Adopticn 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.

(R) Proh4b4t the disturbance of archaeological and historical sites within the

aquatic preserve, unless prior authorization has been obtained from the

Trustees and DHR, and such disturbance is part of an approved research design

or authorized project.

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

threatened and/or endangered species.

(U) 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 submerged habitat, 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 at the mouth of the Little Manatee

River and these along the coast of Cockroach Bay.

(1) Prohihit the drilling of oil and. gas wells, the mining of minerals, and

d-edging for the primary purpose of cbtaining, i ir%l ;%n Jf4 11 w i + 114 n+6a zni i n + -1 f-

preserve.

(0) Prchibit non-water dependent uses of submerged lands within the aquatic

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

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

This prohibition shall include floating residential units, as defined in

Section 125.0106(2), F.S.

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

within the aquatic preserve. 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.

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

preserve boundaries.

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

4ntegritY of' hard bottom communitipq within the aquatic preserve.

(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 ratural 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 Cistrict (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 expand

OFVJ' 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 Cockroach Bay

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

thp aoijatic preserve.

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

In 1mplementing the@acuatjc 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) Hentify 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.

Chapter IV

RESOURCE DESCRIPTION

A. Resource Setting

1. The Tampa Bay Area

The Cockroach Bay Aquatic Preserve comprises an area of approxinately

3,600 acres and is located in the lower southeastern portion of the Tampa Ray

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. Some of the area along Cockroach Bay

contains extensive mosquito ditching and in the Little Manatee River there is

one area of residential canals. The rest of the prese"rve remains relatively

unspoiled.

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

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

c,entral peninsular coast. Lining the shore are Florida's third and fourth

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

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

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 been

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 Bay Area Scientific information Symposium held in 1982

(Treat et al. 1985), 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 par-ticularly oriented to the lower Tampa Bay area, are the basis

for most of the material fouiid 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 Ray Aquatic

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

Say mmaanagnmmant 3+1-.4-his t-me is conducted by the federal , stat-E? a-llul local

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

sometimes conflIcting interests and jurisdictions have contributed to a number

of growth and land management problems that a@fect all of Tampa Bay. These

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

et al. 1965), 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 Cockroach Bay Aquatic Preserve incorporates many.of the issues and

concerns of the various governing 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 secti-ons are followed by more particular

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

be found in the Cockroach Bay Aquatic Preserve.

Historic Notes

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

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

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 expl ,orers left a grim legacy in the form

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

the early 1.600'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. Spanish fishermen working out of Cuba maintained limited

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

bu4lt 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.

Tampa Rav waq ir-r-portant to t@e early settlers primarily 35 8 se1jrce of food

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

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

-Forces and Confederate blockade runners who were running local agricultural

a.ccds, hides, and lumber during the Civil War. During the 1880's, a much rriore

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.

in 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 fianatee 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 deep channel has resulted in major disruptions to the

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

for burlying, extensive -ar-re-anes of seagrass beds and oyster bars, remains one'

of thE MOSt intractable problems of overall bay management.

Development' within the three counties adjoining Tarnpa Ray 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 Say waters.

The challenge of resource management in Tampa Bay entails the maintenance of

the historic assets (industrial shipping, commercial and recreational fishing,

and aesthetic ard 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.

I
Archaeological Sites

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

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

extinct, the Indians became more dependent on small game. Freshil-liatc,

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

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

V[2rren (1966" has shown that portions of the middens left in now sunken river
I

channels in Tampa Bay were left by Archaic period peoples.

Early Archaic period projectile points were found in spoil material on Shell

Island in Little Cockroach Bay (Warren 1965). Several 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 Manatee 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

crowth 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 million people, or roughly one-seventh O-F

the pro,-iected 14.67 million in Florida.

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

developmental issue throughout the region, for the above mentioned population

increase will trarslate into approximately 172,000 dwelling units.

Substantial areas exist in all three counties where development could OCCLIr

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 away

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 Say will continue to

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

The actual economic importance of Tampa Bay 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

Manatee in 1983-84 handled another 5.5 million short tons. Not only does the

-1 J
U
--ec" a-U I U I L I L I L
1, n'rect value of th-s comifierce total several hundred million

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

r1ocumenting the Economic Tmportance of Tampa Bay, calculates that the savings

ir transportation costs alone total M1 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 milliors 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

Southwest Pillsborough County is the least developed.area of the county.

The land area adjacent to Cockroach Bay Aquatic Preserve represents a mix of

uses with numerous concerns and implications of management.

The immediate shoreline from the mouth of the Little Manatee River to Just

north of the Hillsborough--Manatee County line is an almost unbroken frince of

mangroves, except forrn6squito control ditches. This stretch.''and i-,,,-S*

,co.n.ti.nuation south beyond Port Manatee into the Terra Ceia Aquatic Preserve,

is the most extensive stretch of mangroves remaining in Tampa Say. Most of

this area has been designated as a preservation area in Hillsborough County's

ComprEhensive Plan. The one exception is the area inmediately North of the

county line which is designated as industrial (known as the McInnis Site) has

been identified by the Tampa Electric Company as a suitable site for

development of a power plant at an indefinite time in the future.

From a point near the northern tip of Cockroach Bay running almost to the

county line and roughly parallel to US-41 is a levee shoreward of which there

is no development. Between the levee and US-41 and in most of the land area

north of Cockroach Bay and west of US-41 the predominant land use is

agriculture. Fish hatcheries and scattered residences also exist in this

area. This complex of agricultural land has presented water quality

difficulties in the aquatic preserve because of the runoff of high nutrient

loads from fertilizers and texic compounds in pesticides. This has been

aggravated by the mosquito ditching in the area. This nutrient loading has

contributed to the recent closures of the waters in the vicinity of Cockroach

Bay to shellfish harvesting.

Along the northern bank of the Little Manatee River is the community of

Ruskin. Ruskin has been identified in the Hillsborough County Comprehensive

Plan as an urban development area where housing densities run as high as 7.5

units per acre. Most of the land surrounding Ruskin is designated urban

transitional, and there is clear evidence that the area is experiencing

inprpAcael dP%in1nnman+A1 n"acctiv-a While comom n-F +11e land running north to

Apollo Beach remains in agricultural use, most of it is in the process of

being converted to low density residences with extensive dredging, filling and

h,a,rdening of the shoreli-ne. Along the southern bank of the Little Manatee

River just off US-11- is the residential community of Gulf City, an

unincorporated are served by septic tanks.

B. Natural Systems and their Components

1. Cleologic 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 Ray was cut into underlying limestones by the

paleo-Hillsborough, Manatee, and Alafia rivers. As sea level rose during

glacial retreat, the area was flooded and became Tampa Bay (Doyle 1985).

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 Cockroach

Say Aquatic Preserve. The Hawthorn Formation also outcrops along portions of

eastern Tampa Bay. Tn the deeper portions of Tampa Bay, the Pleis tocene river

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

archaic bed has filled in with unconsolidated estuarine and fluvial sediments

(n,,ie -10,9a)
1 0. .

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

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

shells. A bard 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

Cockroach Bay 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

loads of f4ne sediments but it may be that considerable amounts of fine

materials are added through surface runoff (Doyle 1985).

Surface sediments within the Bay are constantly being reworked by benthic

organisms by tidal currents and wind generated 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 vertirally homnapnnus Pstuary- T'I. hAs heen

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

,ittle fine sediment escapes thern. and that bottom water movement tends to
bring sediment into the system from offshore (Doyle 1985).

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

SC-11 4
Inity distributions, circulation patterns and cther factors control the

distribution and transportation of suspended sediment and the deposition of

fine particles within the estuary. Tn 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 1905).

L. I -ns,
4: Plant Assccia".,

The plant communities of the Cockroach Bay Aquatic Preserve are a ma@or factor

in the continuee 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

alaae. Each community i-s 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 -,V-y extend further northwarud M -'KI*ll-.e st, a 44 -.a ,It" 11"Ie annual occurrence of

freezes gives the mangroves a stunted growth pattern and limits their

distribution. 'in Tampa Bay, 17,514 acres of mangroves have been reported

(McNulty 1_97?) and Cockroach Bay is recognized as a mangrove dominated

community (Estevez and Vosura 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
(Laquncular4a racemosa-) generally upland, of but also mixed with blacks. The

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

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

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

m.angrove species occurs (Estevez and Mosura 1-065).

The dominant mangrove forest type in Cockroach Bay is the "overwash" forest in

which the island is completely inundated by daily tides. Also present in the
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.

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

sedirr.,ents and nutrients.thus oroviding a rich. food source for benthic,

planktonic, and fish com..muni ties. The leaf fall from the mangrove community

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

'ilter lano, 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, invey'@tebrates,

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 Cockroach Bay 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 activity, and direct destruction through excess pruning and tree

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

shore bottom sediment, disturbances to mangrove forests increases turbidity in

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

b. Seagrasses. Five species of seagrass are found in the Cockroach Bay

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

organic sediments in depths down to two feet below mean spring low tides. Tn

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).

ene'4_@ -Col-
fiv'c >V . UI'd in Cockroach Bay preserve include turtle grass

(Thald-5-sia testudinum), manatee grass (Syringodium filiforme), sboal grass
(Halodule wrightii), star grass (Halophili englerannii) and widgeon grass

f
kRuppia.marftima). The seagrass communities in Cockroach Say 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 di rectly by urchins, conchs, fishes, as

well as by the endangered West Indian manatee (Trichechus manatu.s) (Zeiman
1982). Also, decomposition of seagrasses serve as the primary food source for

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

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 sed-iments. 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 rursery areas for mary fichinc, L.1hon tho 1()SE ef

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.
44

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

act.ivities. Tn 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 throuah 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

seacrasses causing a loss in productivity. Propeller cuts also cause damage

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

recolonization of the damaged areas is quite slow or nonexistant.

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

Cockroach Bay 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 alaae. The highest diversity and abundance

is found in lower Tampa Bay (Dawes, 1985), which includes the Cockroach Bay

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

becoFiie detached from7the substrate by wave action or becau-'e u@ Line yrazing

activity of organisms. in these ways rpuch o-P the drift algae ef the preserve
is generated. Algae need to settle on a substrate to begin growth, but once

growth has been initiated, attachment is often unnecessa,ry 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 and

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

sewage outfall may cause extensive algae growth which hinders fishing

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

ashore and decompose.

d. S-alt Varsh. Salt marshes can be defined as grass dominated

communities that grow intertidally along protected shorelines and backwaters

that are periodically flooded by salt or brackish water. The predominant salt
marshes in Tampa Bay are needle rush (U'uncus roemerianus) marshes. The salt

marshes serve as a transition zone between manqroves and freshwater marshes

(McMulty 1972). In Tampa Bay 1,728 acres of salt marsh have been reported

(McNulty 1972).

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

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

(Estevez and Mosura 1985). Landward- of the smmooth corudgrass, need-le rushl -Is

usuallN/ present. Landward of this band the salt flats are present with

veqetation such as seashore saltgrass (Distichlis spicata), glasswort

(Salicornia perennias), and saltwort (Patis mari-tima . 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 Bay, but the new marshes

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

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 speciles. - '11'ariy water and slhorebilrudzs ub-E t1le miangrove

resting 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.
.47

a. t.4ve Bottom. 1.4ve bottor. communities are present in the Cockroach

Bay Aquatic Preserve. These communities represent "areas containing

biolocical assenblages oil 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 Cockroach Bay communities do not contain reef forming corals the

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

for a range of vertebrates and invertebrates (Derrenbacker and Lewis 19W,.

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

preservation of live bottom communities especially important.

Ilan 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 Pay 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 mid-intertidal zone where minimum inundation and heat determine

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

r1vc+av-c,cPr%tr- AS attachment Sites for cither 4nvertebrates and algae and also

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

Since oysters filter feed directly on suspended par"Aculate matter in the

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

Fecause of this characteristic shellfish harvesting is only permitted in areas

that pass stringent water quality tests. Cockroach Bay is one of the few

areas left in Hillsborough County still open to shellfish hat-vesting, although

it is temporarily closed. Scallops and clams are also present in the

preserve.

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

deposition or through clogging of the filtering mechanisms of the oyster.

c. Fisheries. Two hundred and three species of fish are found in the

Tampa Bay area (Comp 1985). The commercial fishing industry in Tampa Pay area

acccunts for 12.8% of the total landings in Florida. Hillsborough County

landings alone account for 10.5% of the total Tampa Pay 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 97.50;'

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 72q/3 of the 89 comimercially-landed species of finfish and shellfish and
7@4% of the 84 recreational species are estuarine dependent (Durako et al.

servc as rursery grounds for inverteb-rate and fish specles

by providing food, shelter, and refuge from predators.

Species of special concern in Florida that are founO in the preserve include,

the srock (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 Departnent's National Oceanic and Atmospheric
Administration has implemented an emergency regulation for the management of

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

step in the regulation of commercial use of this species.

Other species of economic importance include: black drum (Pogonias cromis),
flounder (Paralichthys albigutta), black muller (Mucil trichodon), spotted sea

trout (Cynoscion nebulosus), and sheepshead (Archosargus probatocephalus).

d. Airphibians 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). Vost amphibians and reptiles cannot tolerate the

saline environments within and immediately adjacent to the aquatic preserve

a
' their numbers are reduced because of this. The loggerhead sea turtle
na

(Caretta carett-3---, threatened species' green sEa turt-Ile (Chelonia r-i-tydas-an
%A J FC: L, I C -D ) I

endangered species) and leatherback sea turtle Democbelys coriacea--an

endangered species) are known to nest along the coastal beaches and may

occasionally rest within the preserve. Sitings and nestings o-IF these species

should be carefully monitored and documented.
50

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

State of Florida, and the indigo snake, (Drymardron corais) is on the State's

threatened species list. 7"he abundance of both of these species should be

monitored within the preserve.

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

geographic location of Florida and Tampa Bay adjacent to a major migratory

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

are found in the vicinity of Cockroach Bay Aquatic Preserve (Long, 1975). Of

those species fcund 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 Stork 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. Cockroach Say nesting

populations include Osprey, which nest along the Little Manatee River and

within the preserve and can often be seen foraging along Cockroach Bay. There

are also two small Yellot,.-crcwne-@ V4nh* Pni-nn rnr+ e-i+pc nn crn -*Pr1nrv.4c

keys 4,ust below the Little Manatee Piver, numbering approximately 42 nests for

the two keys. The eastern shore of Hillsborough Say has been identified as a

major winter shorebird area, this area might extend into the preserve.

Research is needed to quantify the number of species and individUals and

habitat use of the preserve by these population.

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 bottlenose dolphin (Tursiops truncatus)

and the West Indian manatee (Trichechus manatus) are considered year round

residents. in 1872, Maynard described the manatee as being "remarkably

abundant" in Tampa Bay. The peak population in Tampa Bay now is estimated as

beino between 70 and RO individuals.

Manatees are known to use Cockroach Bay as a migratory path from Upper Tampa

Bay to the Gulf of Mexico. There are currently no protected areas, under

Chapter 16N-22 of the Florida Manatee Sanctuary Act, within this preserve. 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 quarantee 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

til-lese specles are uncormiion. Species common to the coastal scrub dfld
area include the nine-banded armadillo (Pasypus novemcinctus.), the cotton rat
(Sigmodon hispidus), the raccoon (Procyon lotor), common oppossum (Didelphis
virginiana) and marsh rabbit (Sylvilagus.palustris).

Chapter V

RESOURCE MANAGEMENT

A. Tntroduction

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 DNR'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 Y@eview 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. Orsite Management Objectives

The onsite management objectives are reflected in the activities that the

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

Interact.ion, emergency responses, etc.), to protect and erhance the resources

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

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

Chapter 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 Chapter VII through XI. The field personnel will

generally be involved in all management activities concerning the Cockroach

Bay 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. the stabilize geologic features such as beaches in the face of

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

which often act in concert to both erode and deposit;

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

material that fuels the estuarine food web which support the area's

fisheries, endangered species, migratory waterfowl, colonial

waterbird nesting colonies, raptors, marine mammals, and marine and

estuarine invertebrates;

c. they provide protected fisheries habitat for spawning and juvenile

development, many of which are of economic importance to the

commercial fisheries of the state and the nation;

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

e. they physically buffer estuarine and 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.

f.l.anagement Policy
a. Field Familiarization and-Docume'ntation. 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 rances, life histories, ecological requirements, productivity, importance

L L_.
to water quality',, Contribution -1160 lard;',Grim st'aL.@I lization, willul I le Haullat.

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

plant C'ommunities within the aquatic preserve.

c. Preparation of Guidelines for Management of Endangered Species.

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

observations and literature reviews, will develop maps (using 7.5 minute
quadrangles) 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 restorina "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 sensina 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;

-related seaward extension of mangrove communities;
accretion

4. erosion-related landward retraction of mangrove communities;

S. depos4tiona.1 burying of marine grassbeds ccm-Munit-i-cs;

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

after exotic plant removal projects;

pathogen damage to and recovery of plant communities;

e. Nentification 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 high water line to a dock or pier. The destructive

clearing of mangroves in the preserve shall be strictly

prohibited.

ii. Marine grassbed communities shall not be removed or shaded to

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

community. They shall not be subjected to unacceptable

turbidity, decreased light penetration, propeller or net damage.

Field personnel shall be notified of applications for uses of submerged

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

Resource Management (BLARM) 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 Hillsborough County Planning Council, and the

Tampa Bay Regional Planning Council, field personnel will familiarize

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

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

potential impacts.of oil spills or natural castastrophe on the natural

a. 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. In 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

cc-enf- ^4 the proposed devc1opmcnt, ard assessed as to its feasiblilty.

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.

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

needs.concerninq 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 cormunities 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 six research institutes 'in the area

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

Hillsborough Community College, New College in Sarasota and Vote 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. ANTMAL LIFE

The richness of the animal life in the rnrkrnAch Ray area w;@s ar! irinnr+nnt

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

within the aquatic preserve are valuable resources on which recrea-L-.ional and

.60

commercial fisheries depend. Large areas of undisturbed wetlands are

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

extensive list of endangered species, migratory waterfowl, colonial

waterbirds, invertebrates and vertebrates.

Management objectives for the fauna within the aquatic preserve will be

I
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.

of End'angere"! 51 -J
c. Preparation of Guidelines for Mlanage-ment k- PCC Ica. I Ic#U

personnel will become familiar with the guidelines of the Florida,Game and

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

Natural Resources' Division of Marine Resources, National Marine Fisheries

Service, 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-63f), 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 main.tain a manatee

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

larqe seasonal aqareaations. A manatee reporting and data collection

system will be established and will make use of other governmental

personnel and private individuals where possible.

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

boat/barge coll4-cions 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 desion and

operation that are least dangerous and disruptive to manatees.

Approved uses within manatee areas should require manatee caution

signs and any other requirements that will-guarantee manatee health

and safety.

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

faci.lities 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:

ii. stom,.s and hurricanes;

iii. charces in habitat due to chanqes in plant types;

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

v. qeologic or hydrologic changes including erosion, estuarine current

-her physical changes.
flow changes, and any ot

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 and

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

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

also he 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.

g. Nentification of Re.search '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 (Tdentified Program Meeds).

3. GEOLOGIC FEATURES

The management of geologic features will require that the field personnel

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

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

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

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

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

overall objective of the 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 malicrity

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

9-58.42(2), and 258.44 F.S. and in accordance with the management objectives of

the preserve. Bulkheads placed upland of the aquatic preserve shall be

constructed following the natural contour of the shore. Drainage patterns

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

with mangroves or other suitable native plantings are always preferable to

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

economic and environmental advantages of vegetated shorelines.

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

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

restrict natural flushing and create unnatural circulation patterns.

Proposals for bridge and causeway construction within the preserve will be

reviewed in light of these potential impacts.

Maintenance dredging of existing channels will be carefully studied tc remove

conditions that require perennial maintenance and chronic environmental

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 revi'ew of project proposals

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

Department of Environmental Regulation, the Department of Transportation,

Southwest Florida I-J'ater 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

pro-Jects and act as advocates on behalf of the aquatic preserve and its

resources.

4. ARCHAEOLOGICAL AND HISTORICAL SITES

Archaeological and historical sites have several characteristics which must be

recognized in a resource management program.

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

ii. Each site is unique because individually it represents the tangible

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

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

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

other times and nlacpS. They also pr9serve traces of past biotic

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

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

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

because their siqnificance is derived not only from the individual

artifacts within them, but especially from the spatial arrangement of

those artifacts in both horizontal and vertical planes.

Administering Agency

The management of the archaeological and historical sites is authorized and

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

Departnent of State. The management authority for this area of management is

presented in Chapter II (Management Authority@.

Management Policy

The management polity 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 PHR 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

%,rdinate their plans with DHR at a
planning co=114 @ 61! 1 F,

sufficiently early stage to preclude inadvertent damage or

destruction to these resources.

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.

Archaeoln-mical c4+ac wi+Viin +lie anitn+it- r%-pvp@wp ckneild be left

undisturbed for the present, with particular attention devoted to

preventing site looting by "treasure hunters".

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

I
Co.c.peration 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 PHR 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 orinvestigate 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

the most critical aspect of aquatic preserve management. Research to

understand how human activity can alter or detrimentally affect the dynamic

characteristics of the Preserve's various habitats can be approached

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

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

may
be all that is necessary to initiate irreparable ecological dam-agc and

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

Management Policy

The successful management of tbe,water resources of the Aquatic Preserve

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

Florida Water Management District) charged with regulating water quality and

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

maintenance of water quality and the natural seasonal fluctuations of fresh

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

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

foundations and private consultants working in the Tampa Bay area. For

example, the Environmental Protection Commission of Hillsborough County has

monitored the water quality at station #136 in Cockroach Say monthly since

1978. 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

.4 4
programs ff other agencies, institutions, and corporations invcIve- M,

studying, monitoring, regulation and managing water resources within the

aquatic preserve and the drainage basins which provide Fresh water to this

preserve. Those agencies known to be working or having potential activities

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

identi-l'ied.

1. Florida Department of Environmental Regulation

2. Hillsborough County Health Department

3. Environmental Protection Commission

4. Southwest Florida Water Management District

5. Marine Fisheries Commission

6. U.S. Geological Survey

7. U.S. Fish and Wildlife Service

8. Tampa Bay Regional Planning Commission

9. Agency on Bay Management

10. Florida Game and Fresh Water Fish Council

11. Florida Department of Natural Resources Marine Research Laboratory

12. University of Tampa

13. University of South Florida

14. Hillsborough Community Colleqe

15. U.S. Environmental Protection Agency

16. Eckerd College

17. Mote Marine Lab

18. Tampa Electric Company

19. Tampa Port Authority

20. Department of t!atural Resources-Shellfish Sanitation Section

?I. Sea. Grant Extension*Servirp.

b. Monitoring of Water Resources by Cooperative Data Collection and Review.

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

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

monitor water resources within the preserve by reviewing the data

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

preserve and 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 thp ronrHination thrminh rhan+av- VT (M;;naqsmmont Trnnlamantntinn Natjqork)

7y onsite inspection the field personnel will be able to monitor environmental

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

local agencies will facilitate this regulation.

6. CUMULATTVE IMPACT ANALYSIS

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

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

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

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

environmental disturbance or degradation of the natural system.

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

cumulative impact.analysis requires a thorough knowledge of the natural system

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

preserve management program will initiate development of a cumulative impact

analysis program. The evaluation of cumulative impacts shall include the

following criteria from Chapter 18-20 F.A.C.:

"(1) The number and extent of similar human actions within the preserve

which have previously affected or are likely to affect the

preserve, whether considered by the Department under its current

authority or which existed prior to or since the enactment of the

Act; and,

(2) The similar activities within the preserve which are currently

under consideration by the department; and

(3) Direct and indirect effects upon the preserve,and adjacent

preserve, if applicable, which may reasonably be expected to result

Irom the activity; and

(4) The extent to which the activity is consistent with management

plans for the preserve, when developed; and

(5) The extent to which the activity is permissible within the preserve

in accordance with comprehensive plans adopted by affected local

governments, pursuant to Section 163.3161, F.S., and other

applicable plans adopted by local, state and federal agencies.
(6), The extent to which loss of beneficial hydrologic and biologic

functions would adversely impact the quality or utility of the

preserve; and

(7) The extent to which mitigation measures may compensate for adverse

impacts."

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

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

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

successful cumulative impact analysis program. As cumulative impacts are

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

part of the project analysis and decision-making process.

7. MANAGEMEMT OF ENCROACHMENTS

The management of encroachments in the preserve will concern the unauthorized

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

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

activities associated with an approved use (e.g., extension of a dock,

construction of boat houses, extension of an approved channel).

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

suspected illegal encroachment, will involve a reporting procedure and the

monitoring of the remedial action. After a field identification of a

susp,ected 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., CNR, DER). Field personrel 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 PROTECTTON AREAS

ThE preliminary description and location of resources within the area

(approximately 3,600 acres of submerged land), will require the use of remote

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

Research Laboratory's Assessment of Fishery Pabitat 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

and aeri-al photography-

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

-For-the development of a Resource,Protection Area management system in the

aquatic preserves. This mapping system identifies and classifies varicus

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

m*st rigorCUs 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 '91 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 I status or declining to RPA 3 status. RPA 2 areas

will lt@kjullc q'C'k'EII-U-"I '111121d review as to dhe specific area's sensitivity to

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

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

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

undergoin 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 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 research and

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

changes will 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 regional government entities. Support will also be

requested from the colleges, universities, foundations and other interested

groups and individuals.

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

these maps-will he available at the central office. It is recognized that

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

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

D. 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.

c. To serve as the primary stafl' ir the development of admiristrative

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

intert 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,

for.the purposes of evaluation the;en.vironmental consequences of proposed uses

of state-owned 'lands within aquatic preserves.

in conducting the environmental evaluations, the central office staff will

rely heavily Upon the riost current, readily available data such as Department

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

reports, and other data resources. If a proposed activity is 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.

T
;he 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.

Y1,14 I C +L" C+a+e I -A @fl
I. I. I, t Pr3gram,.,uthorized by Chapters 253 and 252,
I k@ I IQ-@J%. k' L.Ljlnus oragerment,

F.S. and Chapters 18-211 and 18-20, F.A.C., is expected to be the primary

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

the only vehicle. Section 253.77, F.S., as amended, and the December, 1989,

Memorandur of Understanding between the COE, DER, and MIR provide direct access

to DER 's permitting process for DNR. The Development of Regional Impact

(DRI) and other reaional or state level review processes represent other

implementation mechanisms. The basic review approach and the evaluation

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

the case involving the State Lands Management program.

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

identification of proposed activities that are either generally or

specifically prohibited. Tmmediately upon review of such project 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 subiject to denial due to their

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

3ection 258.42, F.S., specifically provides that:

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

shall be approved or consummated by the trustees except when such

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

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 public road and bridge construction projects

it. I f1v t' L;
h a v e -, c '-. no a -, bn a b 1 e , 1 t e rn at'ive 31@!" S S w., 0 e0 coi-.4-rary

the public interest.

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

approved by the trustees e^-cept the following activities may be

authorized pursuant to a permit:

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

public navigation projects.

Such minimum dredging and spoiling as ir-ay 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.

W There shall be no drilling of gas or oil wells. However, this will

nn+ nrnhihit tho c+pto frnm lp=cinq +he oil Ard nas rights and

permitting drilling from outside the preserve to explore for oil

and gas if approved by the board.

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

dead oyster shellis 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;

Commercial docking facilities shown to be consistent with the

use or management criteria of the preserve; and

Structures for shore protection, approved navigational aids, or

public utility crossings authorized under subsection (3)(a).

W Mo 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."

Generaliy, applicants desirous of appealing staff recommendation s will have to

follow those appellate procedures outlined in the appropriate authorizing

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

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

Pe-cnding 11M^n tle t-c- ^f 3pplicatior. submitted, an applicant may:
r I V- .1 J V W

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

rendered by the Executive Director or Department of the Natural Resources

for his designee) under a.delegation of authority;

b. Request an Administrative HEarinc 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 P-arties
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 rnanagement expertise not generally available

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

conduct a detailed cultural resource assessment for certain areas of the

preserve.

8.4

Chapter VI

Management Implementation Netwcrk

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 manaqement

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 management. This review

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

purposes of enforcing.tbe provisicns of the Federal Coastal Zone Management

Act of 197'", as amended.

United States Fish and Wildlife Service The aquatic preserve progran 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 En9J The U.S. Army Corps of Engineers (COE) is
_@eers

charged with providing technical guidance and planning assistance for the

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

direction to riany 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 navicable waters, pollution abatement and

maintainina 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

knt-nma farniliar with the vari-11c nv-^n-nme --lures a- they

apply to the aquatic preserve.

Fiela personnel and central office staff will also review activities proposed

by the COE for conformance to the cb4ectives of the aquatic preserve

management plan. This involvement should begin in the early stages of project

planning in order to facilitate the best protection of the aquatic preserve

possible.

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

Department of the Interior has the responsibility to perform surveys,

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

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

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

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

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

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

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

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

agency responsible for the control and abatement of environmental pollution.

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

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

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

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

will assist the EPA 'IrI -1-3- ing field ac-1-4-4-ties -A wtere there zre col-qli@ublr
I U U I I '-A Is %A I

goals.

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

.boating safetY,A,ncluding-search and rescue when recessary. 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 Mational 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 PNR programs

that are within or affect the Cockroach Bay 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

Remilation (DER),is responsible for regulating air ane .%later qu a t% % n,4
some cases, water quantity (thrcugh the water management district) withir the

TaL7pa Bay area. The DER is also the local contact for the initiation of

dredoe 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 ef-ricient 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 charced 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 Cffice of

rr,;%c+:zl MAnagemert for assistance +he revi&-i of federal actions, data and

research needs, and other prograr, support.

Community Affairs. The Department of Community Affairs
Department ol L

(DCA) is responsible for reviewing Developments of Regional Impact (DRI) and

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

developments that have impacts on a scale which is greater that county level

and require a regional review from, neighboring local governments and'siate

agencies. Both the central office staff and field personnel of the aquatic

preserve program will be involved in reviewing DRI's. Field personnel should

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

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

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

Cf Cpl.

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

unsuitable land development endanger resources of regional or statewide

significance. When an area is idertified as a possible ACSC, a Resourcz

Planning and Management Program (RPMP) is established. The RPM? 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

ahr.%@nwnl thnse areas of 1cral government that are not in ccnforman@:e could be

designated as ACSC or the entire area may be designated an ACSC by the

Legislature. Under the ACK designation, the local (jovernments are required

to notify DCA of any application for a development permit. The entire land

developm.ent process will require the state's oversight until that Iccal

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.

DNP's Marine Research Laboratory in St. Petersburg, under the Division df

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 rr.-anatee

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 flarine Lab for their data needs whenever

possible.

The Division of Marine Resources also handles the permitting for the

collection of certain marine SneCies and i.ca n-F -n*
--rta4n che--4 ^--,l Tte.-, @FICIA

and central office staff will become familiar with this permittinq process

and request notification of these permits within the aquatic preserve.

The Miarine Patrol, under OPIR's Division of Law Enforcement, also operates in

Tampa Bay. The field personnel will become familiar with their programs and

operation, and will call on the Marine Patrol for law enforcerpent 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

4nteqritN/ of the preserve.

The Division of Resource '11anagement, through the Bureau of Geology an d Aquatic

Plant Research and Development, is responsible for various programs

potent4ally 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 --I-+- an-tic preserve

objectives.

4. Marine Fisheries Commission (MFC).

The MFC was established as a rulemaking authority pursuant to Section 37C.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 and enforce

the rules o-F 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 the aquatic

preserve.

5. Florida Game and Fresh Water Fish Commission (GFWFC). The C-FWFC'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

- na-mernt for
ma ., , - he aq-tic pre,erve.

The GFWFC is also the state coordinator of the Endangered Species in Florida.

7he field personnel and central office staff will work with GFWFC personnel in

developing program needs in this area.

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 Archives, Historical Resources

(DHP) in the Department of State will have a close working relationship with

the field personnel and central office staff in the protection of

I -es. The field personnel will be directed by
archaeolocical and historical sit

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 PIPS and their locally conducted programs of septic tank regulation and

mosquito control. Although mosquito control serves a useful public function,

the effects of pesticides (adulticides and larvacides) in the waters of the

preserve are a primary concern. Additionally, the central office staff will

become involved in future meetings and management programs developed by the

r;n%/QrnnV@Ic 1,inv+ing ry-nim on mncq11I+n certrol .Eubsequent policy

recommendations coming out of this group will be evaluated for applicability

to the ongoing aquatic preserve nanagement program.

C PECIONAL

The-regional "level of the manaSement implementation network as it applies to

the Cockroach Bay 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

Fillsborough, 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

pe rmitting 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 Pillsborough County City County

Planning Commission serves Hillsborough County. The Agency on Bay Management

acts as an advisory board for the TBRPC. Among their dutie-st, the Pppr @nej

PCCCPC:

a. aid local governments with planning expertise:

b. are the regional representatives fcr the Development of Regional
impact (DRI) review process;

c. serve as regional clearinghouses for state and federal projects and

programs; and

d. convey information from the local governments to the state and

federal levels.

Field personnel will become familiar with the various projects, programs, and

data sources that the TBRPC, ABM, and HCCCPC, have within their administration

that may affect or prove useful to the aquatic preserve program.

The DRI review of projects which affect the aquatic preserves will be reviewed

by the central office staff, with the field personnel's field review, when

necessary. DRI's for large marinas, large subdivisions on the uplands above

the preserve, and commercial or industrial developments will require a field

review by the field personnel as to their effect on the aquatic preserve.

D. LOCAL GOVERNMENTS AND SPECTIAL 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 Cockroach Bay Aquatic Preserve is entirely contained within

Hillsborough County and does not have any incorporated cities adjacent to it.

The various special districts (drainage, inlet and mosquito control) and their

relationship to aquatic preserve management, are also presented.

Field personnel will be the local liaison for the aquatic preserve tc these

local government entities to assist them in modifying their policies and

practices to conform to the ob.,ectives of the aquatic preserve's management

plan, and to exchange information and expertise for mutual benefits.

1. Relationship to local management 2.1ans. 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. The field personnel

Tt is hoped that local governments will Join in the spirit of aquatic preserve
%J

management and be willing tn uonv-L, -Fnv- +he
chan-es.

Relation to local development codes. The local zoning and development
codes (e.q., buildirg codes) provide the major local regUllation that defines

what an owner can do on a particular parcel of property. The zoning

prescribes the allowable uses and the intensity of those uses. Certain uses

along an aquatic preserve can potentially have a profound effect on the

preserve.

This section will operate in conjunction with the preceding section on local

management plans. The field personnel will becorne 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 pract-ices in support of.Aguatic 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 ao-vernments. The field personnel will offer assistance or

information to local officials or will coordinate with other agencies to help

solve these pro-h-le-MrS, as they occur. Field personnel will also comment,

through the central office, on any local practice that is identified as

endangerine the well-being of the aquatic preserve.

4. Special Districts (Drainage, Tnlet and Mosquito Control. The special

district-s are taxing authorities established to correct drainage and mosquito

control problems. This is one drainage district that directly affects the

preserve. Hillsborough 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. Foy, 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 rescurces 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 OPGAMIZATIONS

'Ili-is section will apply to the numerous organizations that have an interest ir

the aquatic preserve but are non-governmental agencies. This will include,

but not be limited to, the environment al 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

activities in the preserve (i.e., University of South Florida. University of

Tampa, University of Florida, Hillsborough Community College) and any other

interest groups or individuals. The relaticrtship of these organiZatiGns to

aquatic preserve riianagement might include the coordination of activities, such

aS SC4
ientific 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.

.100

Preface

(Chapters VIT -IX)

Authorized Activities and. Uses of Aquatic Preserves

The following chapters provide a description of public, private and corm-er-c-fal

activities/uses that are allowable pursuant to statutory direction and all

other applicable authorities in aquatic preserves. These activities/uses are
subliect to the approval of the Roard (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 oil the Board, necessary in conjunction with an overriding public need.

T
.n all cases, approved activities/uses that adversely impact the resources of

an aquatic preserve shall only be approved w-hen accompanied by adequate

compensation measures that contribute to an overall net public benefit.

Mitigation measurers, other than those associated directly with programs for

habitat reestablishment or rehabilitation, are viewed by the Board as

inadequate attempts to compensate for alteration of essentially natural

ecological conditions through the establi-shment of artificial resource

systems. Therefore, mitigatior 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.

101

102

Chapte r 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

uses (see Chapter V. Resource Management, Section B: Onsite Management

Objectives) will include the observation and monitoring of the effects of

these uses on the resources. The field personnel will periodically assess the

103

@mpacts 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 Cockrcach Bay

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 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. Mcn-consumptive Uses

Thpse uses are those which do not generally remove resources from the

preserve. Examples of these include swimming, diving, boating, bird-watching,

and other related activities. Although boating and diving are usually

considered non-consumptive uses, they can become consumptive when boat

operators carelessly place anchors in seagrass beds, navigate into waters that

are too shallow for their boats, or divers remove components of a live bottom

community. Also air boat traffic across sensitive salt marsh or other wetland
ccirmunities will be considered a consumptive use (i.p. destruction of plants,.

disturbance of rookeries). The rr..anagement practices involved with these uses

will be the same as those previously described under Section A., except. that

104

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)

105

106

VTTI
Chapter

PRIVATE MOM-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 B.-

Private non-commercial uses shall be designed to avoid critical Resource

Protection Areas 1. and ? and shall be designed to reduce the user's impact to

the preserve in general. Individual applications for these private

non-cdmmercial 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:

107

A. no dock shall extend waterward of the mean or ordinary high water
line more IChat 500 feet or 2-0 percent of the width ol' 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;
S. 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.

Bulkheads should be placed, when allowed, in such a way as to be the least

destructive and disruptive to the vpgetation and other resource factors in

each area.

Dredging within the aquatic preserve shall be held to a minimum. Dredging

prcposals shall be reviewed according to the procedures in Chapter V depending

on the proposed activities location within the RPA. Proposals within RPA 1

areas (Chapter V (C)) will be scrutinized to the maximum extent in order to

find the best practical method of development and location if that use is

deered acceptable in that particular area of the preserve. The mitigation of

108

lost or disturbed resources shall be required and shall meet the above

mentioned criteria. There shall be no dredging allowed in RPA 1 or 2 areas or

in nearby areas if it will adversely impact these areas.

The location of proposed multiple docking facilities, such as condominium

developments, shall be based on the marina siting criteria described in

subsection 18-20.04(5) F.A.C. of the revised General Aquatic Preserve Rule.

1. no dock shall extend waterward of the mean or ordinary high water
line more that 500 feet or 20 percent of the width of the waterbody at that
particular location whichever is less;
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.
Ndifications may be more restrictive than the normally accepted criteria.
Such modifications shall be determined on a case-by-ca@e 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. 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 Foard
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 I or 2, except as allowed pursuant to Section
258.42(3)(e)1., 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 dra-Ft 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;-

109

10. finger piers shall not exceed three (3) feet in width, and 25 feet
in length;
1.1. 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 I 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 dry storage as an alternative to multiple
wet-slip docking;
19. marina siting will be coordinated with local governments to insure
consistency with all local plans and ordinances;
20. marinas shall not be sited within state designated manatee
sanctuaries; and
21. in any areas with known manatee concentrations, manatee
warning/notice and/or speed limit signs shall be erected at the marina and/or
ingress and egress channels, according to Florida Marine Patrol
specifications.

Authorization of such facilities will be conditioned upon receipt of

documentation evidencing the subordination of the riparian rights of ingress

and egress for the remainder of the applicant's shoreline for the life oil 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 facil4ties. Mon-residential docking facilities (commercial) are

addressed in Chapter IX.

110

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.

112

Chapter IX

Commercial Uses

This section addresses the variety of traditional and non-traditicral (i.e.

new uses of this area) commercial uses which might occur within the aquatic

preserve. Among the traditional uses in the Cockroach Bay area are utility

crossings, marinas and yacht clubs, commercial fishing, shellfishing, and
other types of boats for hire (e.g. sportfishing, diving). Nontraditional

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 he

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.

The utility crossing plans, when completed, will become a part of this

113

management plan. Crossings should be limited to open water areas

-xobere live bottom communities,are not-present, to minimize disturbance to

warine grassbeds, mangroves or other critical habitat areas.

2. Commercial Fishing. The management of the aquatic preserve shall not

include the direct manaoement 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.

I-Fter probler.,is with commercial fishing activities are identified and

documented, the finding will be presented to the t-larine Fishing Commission.

!-tt is the authority of the Commission and the Florida Legislature to regulate

commercial fishing within the preserve.

3. Marinas. The locating of marinas and their related uses will be a major

concern of the Cockroach Bay Aquatic Preserve management. Marinas represent a

use with many potential irinart-, nn the preserve's resourres- Thp sitinp

policy of Section 18-2-0.04(5) F.A.C. of the revised General Aquatic Preserve

Rule shall he used for siting mariras in the aquatic preserve.

114

1. no dock shall extend waterward of the mean or ordinary high water
.ine more that @00 feet or 20 percent o-F 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 dockina facilities, the more stringent standards for the protection and
enhancement of the aquatic preserve shall prevail;
5. dockina facilities shall only be located in or near areas with good
circulation, flushing and adeqUate water depths;
6. dockina facilities and access channels sha'll 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
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 covernments 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 docking facilities shall also take into account the
access of the boat traffic to avoid marine grassbeds or other aquatic
resources in the surrounding areas;
10. the siting of new facilities within the preserve shall be secondary
to the expansions of existing facilities within the preserve when such
expansion is consistent with the other standards;
11. the location of new facilities and expansion of existing facilities
shall consider the use of upland dry storage as an alternative to 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
specifilcatiofis.

Deep Water Port Facilities. There are no major deep water port facilities

within the boundaries of the preserve but Port of Manatee is located

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immediately south of the preserve. Therefore maintenance dredging and

.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.

r
1. 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. Mon-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 Cockroach Bay area could potentially have proposals for

aquacultural development in the future. These may include floating structures

or other new techniques now being used in aquaculture. The location and type

of impacts to the resources will require careful examination. If there is not

sufficient data available for a valid evaluation, a small scale test of the

use might be possible in a selected area.

3. Other Uses. Any other use that qualifies as a commercial use of submerged

lands not mentioned above will require a review for its anticipated impact on

the aquatic preserve and the best 1ccation for the activity compatible to the

resource protection areas within the preserve.

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Chapter X

Scientific Research

The field personnel attached to the Cockroach Bay Aquatic Preserve should

serve as the area coordinators of the scientific research in the preserve.

Scientific research, and any other type of research or testing within the

aquatic preserve, should require the clearance of both the field personnel and

the central office staff before these activities can proceed. Certain

2ctivities 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 preser"ve (see Chapter V and XII). The field personnel will assist in

the selection of possible tests sites and other research needs within the

preserve.

117

-j

118

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 acuatic, preserves for environmental education. Through education, the

people of Hillsborough 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 durina 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 sl':de programs on the vallue of

119

management activities of the aquatic preserve for presentation to interested

groups of all aces. Educating the public about aquatic preserve management is

the key to the success and future of the preserve.

120

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 bv 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.

121

Staff will annually develop an implementation statUs report that voill contain

a summary of identified management needs and suggested measures to be taken in

meeting these needs.

A. Acquisition of Additioral Proper y

There are areas both within and upland of the aquatic preserve that are in

public ownership under the juri iction of various local, state and federal

agencies. Many of these lands contain important resources, such as bird

rookeries, archaeological or historical sites, endangered species habitat, and

freshwater source wetlands. Formal management agreements, memoranda of

understanding etc., that will ensure the compatible management of these areas

will be developed. Other areas within or adjacent to the preserve that are

within private ownership should be closely examined to determine the

advisability of bringing them into public ownership. The acquisition of these

,ands 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

arpas, fnr'nn-,,sib1e publir acquisition.

122

B. Boundary Problems and Systems Insuffici@encies

The boundaries of the aquatic preserve are often artificial delireations of

the natural systems within and surrounding the preserve. The field personnel,

in their normal management activities, will be sensitive to the possible need

for boundary modifications. Potential boundary changes and acquisition

projects might include areas upstream of the present boundary of the

streams flowing into the preserve, previously conveyed sovereign lands, or

other areas not presently within the preserve. Boundary ch ange requires

Legislative approval. An additional boundary consideration would be to

include all of. the Outstanding Florida Water designated area of the Little

Manatee River. The eastern boundary could include all waters and mangrove

islands within this Outstanding Florida Water classification from the SR 674

to Cockroach Bay. Some of these islands have been recommended by the Florida

Matural Areas Tnventory for inclusion in the Conservation and Recreational

4
Land (CARL) acquisition list. The northern boundary could be extenQed to the

southern edge of Apollo Beach; this annexed area would include Wolf Creek,

Hillsborough County's Simmons Park and Bahia Reach.

C. Lecislative 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.

Administrative rules are statements addressing the organization, procedures

123

and practices used in the implementation of aquatic preserve management plans

and policies. This.process incIudps identifying problems within the managing

agency as well as other agencies, that will affect the management of the

preserve.

E. Data (Information) Needs

The field personnel and central office staff will note data needs and promote

research or other means to obtain them. Data needs in the near future could

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, Vlater

quality data or any other data. The maior 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

;nrimin =rlelifinnal anfnrrompn+ eIIr%nnV,+ Fvnm Ino-31

agencies. The need flor additional manpower, authority, equipment. or vehicles

for this task will be identified.

124

Since many of the inlets of this preserve are extremely shallow, bottom damage

eue 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 minimally implemented

with funds from a variety of sources and programs. The writing of this

management plan was funded through a grant from the U.S. Office of Coastal

Zone Management, National Oceanic and Atmospheric Administration, and through

the "Coastal Zone Management Act of 1.972", as amended.

In order for the management program proposed in this Plan to function and

succeed, the program must have its own funding and staffing. The workload

required by this program is too much for an interim staff from other programs

to handle in addition to their own obligations. Funding and staffing needs

are critically important to the success of the aquatic preserve program.

The outline below represents a proposed budget for.the onsite staffing of the

preserve, as well as for the identification of Lhe equipment dnd expenses for

the first year of operation.

125

Proposed First Year Budget (Fiscal Year 1987-88) for the
Cockroach Bay Aquatic Preserve t-lanagement
Salary (Environmental Speci2list TI) and = 30,000
Associated Overhead
OPS = 10,000

Operating Capi a! Outlay (TOTAL) = 30,600

Utility Vehicle = 15,000

Coat/Motor/Trailer = 5,000

Misscellaneous = 3,000

Operation Expenses 10,000

TOTAL $80,000

126

REFERENCES CITED

Bahr, L.M.; Lanier, W.P. The ecology of intertidal oyster reefs of the South
Atlantic Coast: A community profile. U.S. Fish and Wildlife Service.
Office of Biological Services, Washington, D.C. FWS/OBS-81/15. 1-105;
1981.

Burger, B.W.; Man in the coastal zone: Bishop Harbor/Terra Ceia Island
Manatee County, Florida. Baccalaureate thesis on file, New College
library, Sarasota; 1979.

Comp, G.S. A survey of the distribution and migration of fishes in Tampa Bay.
Treat, S.F.; Simon, J.L.; Lewis, R.R.111; Whitman, R.L.Jr., eds. Tampa
Bay Area Scientific Information Symposium: Proceedings of Conference;
1982 May 3-6; Tampa. USA: Bellwether Press; 1985:393-425.

Dawes, C.J. Macroalgae of the Tampa Bay estuarine system. Treat, S.F.; Simon,
J.L.; Lewis, R.R.TII; Whitman, P.L. Jr., eds. Tampa Bay Area Scientific
Information Symposium: Proceedings of Conference; 1982 May 3-6; Tampa.
USA: Bellwether Press; 1985:184-209.

Dawes, C.J. Marine Botany. New York: John Wiley and Sons; 1981.

Derrenbacker, J.A.Jr.; Lewis, R.R.III. Live bottom communities Tampa Bay.
Threat, S.F.; Simon, J.L.; Lewis, R.R.III; Whitman, R.L.Jr., eds. Tampa
Bay Area Scientific Information Symposium: Proceedings of Conference
1982 May 3-6; Tampa. LISA: Bellwether Press: 1985;385-39l.

Doyle, L.J. A short summary of the geology of Tampa Bay. Treat, S.F.; Simon,
J.L.; Lewis, R.R.III; Whitman, R.L. Jr., eds. Tampa Pay Area Scientific
Information Symposium: Proceedings of Conference; 1982; May 3-6; Tampa.
USA: Bellwether Press; 1985:27-32.

Durako, V.J.; Browder, J.A.; Kruczynski, W.L.; Subrahmanyam, C.B.; Turner,
R.F. Salt marsh habitat and fishery resources of Florida. In: Seaman,
W.Jr., ed. Florida Aquatic Habitat and Fishery Resources; 1985:189-280.

Fstevez, E.D.; Mosura, E.L. Emergent vegetation. Treat, S.F.; Simon, J.L.;
Lewis, R.R.III; Whitman, R.L.Jr., eds. Tampa Bay Area Scientific
Informations Symposium: Proceedings of conference; 1982 May 3-6; Tampa.
USA: Bellwether Press; 1985:248-278.

Harris, D. South Atlantic live bottom reefs. Coastal Society Bull.
4(4):11-12; 1981.

Lewis, R.R.; Durako, M.J; Moffler, M.D.; Phillips, R.C. Seagrass meadows of
Tampa Bay--A review. Treat, S.F.; Simon, J.L.; Lewis, R.R. III; Whitman
R.L.Jr., eds. Tampa Bay Area Scientific Information Symposium:
Proceedings of Conference; 1982 May 3-6; Tampa. USA: Bellwether Press:
1985:210-246.

127

Lindall, Jr.; William N.; Saloman, C.H. Alteration and destruction of
estuaries affecting fishery resources of the Gulf of Mexico. Mlar. Fish.
Rev. 39(9):1-7; 10,81.

Long, R.W. Beacon Key: a biological assessrrient. Final report prepared for
lampa Electric Company. Unpub. 94p; 1075.

Lugo, A.E.; Snedaker, S.C. The ecology of mangroves. Annu. Rev. Ecol. Sys.
5:310-64; 1974.

McNulty,-W.N.; Lindall, Jr.; Sykes, O.E. Cooperative Gulf of Mexico estuarine
inventory and study, Florida: Phase 1, Area Description. NOAA Tech.
Rep. NfIFS Cir-368:1-126; 1972.

Reynolds, J.E.; Geoffry, W.P. Marine mammals, reptiles, and amphibians of
Tampa Bay and adjacent coastal waters of the Gulf of 14exico. Treat,
S.F.; Simon, J.L.; Lewis, R.R. III; Whitman, R.L.Jr.; eds. Tampa Bay
Area Scientific Information Symposium: Proceedings of Conference; 1982
May 3-6; Tampa. USA: Bellwether Press; 1985 448-459.

Shoemyen, A.H.; (ed.) Florida Statistical Abstract. 19th edition.
Gainesville: Univ Presses of Florida. 1985.

Tampa.Bay Regional Planning Council. The future of Tampa Say. 1985.
Available from: TBRPC, 9455 Koger Blvd., Suite 219, St. Petersburg, FL
33702.

Treat, S.F.; Simon, J.L.; Lewis, R.R.III; Nrhitman, R.L.Jr., eds. Tampa Bay
Area Scientific Information Symposium: Proceedings of Conference; 1982
May 3-6; Tampa. USA: Bellwether Press; 1985.
Warren, L.O. A Dalton Complex from Florida. Flor. Anthrop. 18(1):29-32; 1965.

11arren, L.O. A possible Paleo-Indian site in Pinellas Ccunty. Flor. Anthrop.
19(l):39-41; 1.966.

Zeiman, J.C. The ecology of the seagrasses of south Florida: A community
profile. Nlational Coastal Ecosystems Team. Office of Biological
Services. Washington, D.C. FWS/OBS-82/25. 1-123; 1982.

Zeiman, J.C.; Wetzel, R.G. Productivity in seagrasses: methods and rates.
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128

CONTENTS OF APPENDICES

A. Florida Aquatic Preserve Act of 1975 (� 258.35-358.46, F.S.)

B. Administrative Rules for Florida's Aquatic Preserve (� 18-20, F.A.C.)

C. Administrative Rules for Florida Sovereignty Submerged Lands Management
(� 18-21. F.A.C.)

D. Legal Description and Lease Agreement

E. Existing Authorities Matrix

* Copies of the above appendices may be obtained from:

Bureau of Land and Aquatic Resource Management

Department of Natural Resources
Cedars Fxecutive Center, Suite 231-B
Mailbox 21, 2639, North Monroe Street
Tallahassee Florida 32303

129

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