Chapter 5 - Recommendations For Conserving

The St. Marks and Wakulla Rivers Greenway

In recognizing the corridors of St. Marks and Wakulla rivers as a greenway, the communities place a special value in maintaining the natural functions and aesthetic qualities of these unique areas. The citizens of Jefferson, Leon and Wakulla should act now if the greenway is to be conserved. Governments and citizens should work to form partnerships to conserve the greenway to take advantage of its conservation, recreation and economic benefits.

Development will continue to occur in the watershed affecting its water resources. Potential impacts include creating more impervious surfaces due to paving and building, dredge and fill activities, wetland draining, floodplain alterations, residential, industrial, and agriculture and silviculture activities. If development occurs without growth management and land use planning, these activities could result in increased habitat fragmentation, stormwater run-off, localized flooding and an overall decrease in surface water quality. Development and alteration of river floodplains can reduce the area for flood waters to dissipate. Development can reduce the floodplain area and increases stormwater run-off and as a result, flooding tends to become more frequent and severe. The increased flood height and magnitudes resulting from improper floodplain development may lead to increases in erosion and sediment deposition into the rivers (Wolfe et al. 1988). A greenway conservation effort focused on the St. Marks and Wakulla river can potentially minimize these negative impacts from development while furthering many conservation, recreation and community quality of life goals. Greenway planning is not intended to prevent future development, but rather to ensure that it occurs in a manner which minimizes impact to the resources.

The following recommendations provide suggestions for how to conserve and promote greenways in the St. Marks and Wakulla rivers watershed. These recommendations have been organized by the agency, group or individuals who may elect to take the lead in their implementation. These recommendations can be implemented thorough growth management, land conservation and management practices, partnerships, and through the actions of individuals and groups. The St. Marks and Wakulla Rivers Greenway Steering Committee is available to help decision makers by providing recommendations and public input concerning these recommendations and to refine how these recommendations can be implemented.

Local governments within the St. Marks and Wakulla rivers watershed, with the exception of the City of Tallahassee and Leon County, have few if any financial resources to actively manage the greenway. These rural counties and the town of St. Marks will need financial assistance through grants and other sources to carry out remedial changes to their comprehensive plans and to implement greenway programs.

Lands owned by the state and federal governments should be integrated into community greenway conservation plans. These lands substantially benefit the local communities and could enhance both economic development and recreational opportunities if properly integrated into joint cooperative programs. The local governments should explore the recreational opportunities provided on these public lands and develop partnerships with their managers to attract tourists and their dollars to the watershed.Now that the local governments have adopted comprehensive plans, it is important for each community to review opportunities for linking the state and federal lands within its boundaries. The recommendations suggested below can be very helpful in assisting the local governments with that endeavor. These public lands should be viewed as assets that can enhance the community efforts in economic and recreational opportunities. These lands should be considered a positive part of the process and integrated into the community's greenway conservation effort. One option pursuing an effective greenway conservation program in the St. Marks and Wakulla rivers watershed would be to the local comprehensive planning process.

Because greenways encompass many disciplines and objectives, the most effective way of establishing and protecting them is to create a planning process or entity that will include many facets. Greenways could be included in practically all elements of the comprehensive plan. The most efficient and effective method for the local governments to incorporate greenways is to amend their local comprehensive plans in a manner that builds upon the existing plans and refers to those the goals, objectives and policies that best address these issues but that would necessitate a wholesale revision of the existing plan.

A local plan amendment is recommended because it can focus on the multiplicity of benefits of a greenway and can emphasize the importance of the greenway to the community as a whole. This plan amendment could also help emphasize the economic development and recreational benefits the community that can be realized if the community works with the other local governments, as well as state and federal conservation efforts. A plan amendment to the comprehensive plan could also give visibility and cohesiveness to the greenway while maintaining the necessary flexibility for each local government.

Because there are a number of locations within the plans that are applicable to the greenway, a plan amendment could be located in any number of elements. However, one option would be to use the Intergovernmental Coordination Element (ICE) for the reasons suggested below.

First, the Environmental Lands Management Study Committee III (ELMS III) legislation in 1993 required that the ICE be substantially revised for all local governments. This means that the four governments in the basin will have to go through a thorough amendment review and adoption process prior to August 1, 1997. Including the greenway concept in the ICE at the time of its revision would have the least disruptive impact on the local planning process. In addition, the Evaluation and Appraisal Report (EAR) for each local government is due approximately the same time. To develop this report, local governments must review their plan for compliance, effectiveness and updating. This review process allows each local government to seek out the provisions that should be referred to or developed for incorporating greenways into the community.

Second, the watershed encompasses three counties and one municipality. Most, if not all, of the proposed greenway identified in this report either crosses governmental boundaries or would be substantially affected by the actions of other governments. No effective greenways management and protection plan can be established if the governments involved do not coordinate. Placing the plan amendment within the ICE would give the greatest support for intergovernmental cooperation. Placing the greenway plan amendment in a substantive element may unnecessarily color the process for particular greenways and potentially restrict their broad application and use in the future.

Finally, the Governor-appointed Florida Greenways Commission is proposing that greenways be incorporated into local government planning processes through amendments to the local comprehensive plans. The greenway plan amendment proposed is consistent with the Commission's recommendation to weave the plan's goals, objectives, and policies so a greenway conservation thread is created throughout the plan.

The plan amendment would need to include the appropriate goals, objectives and policies that are best suited for the establishment, protection and management of greenways within and between each local government. It is not the intent of this report to set out specific goals, objectives and policies for local governments to adopt. However, the authors are willing to assist local governments' individual needs in developing goals, objectives, and policies at the appropriate time. The following are some general ideas:

Goals

Each government should adopt broad goals that express the multi-faceted benefits of the greenway to the community. These can either be separate goals or a single overall goal. The goal should be broad enough to cover a variety of future needs and functions of the greenway, but narrow enough to have some meaning. One example could be:

* Develop a plan to conserve the St. Marks and Wakulla Rivers Greenway in to provide recreational opportunities, conserve natural resources and improves the quality of life within the community.

Objectives

The objectives should include the intended dates to implement the greenways plan or plan elements and the various types and general locations of various greenways. There should be an objective for each proposed greenway, for example:

* By 1998, the community will establish and conserve the St. Marks and Wakulla Rivers Greenway to provide recreational opportunities and protect the river's water quality as Outstanding Florida Waters.

Policies

Policies should include the methods that will be used to accomplish the objectives as well as how the plan will be financed. They should also include the processes for interaction with other governments and references other applicable comprehensive plan goals, objectives and polices. Policies under each objective could be similar but should reflect the timing, financing and purpose of each individual greenway project. For example:

* By 1997 the community will seek funds and conduct a study of the economic, recreation and environmental benefits of the St. Marks and Wakulla Rivers Greenway.

* By 1997 the community will appoint a St. Marks and Wakulla Rivers Greenway Advisory Committee composed of forestry interests, riverside property owners and residents, boaters, anglers, scientists and others who have expressed an interest in greenway development. This group will meet and make recommendations to the local governments for the adoption of appropriate greenway management and protection measures.

* By 1997 the community and the committee will establish procedures for developing their recommendations and management plans in coordination with adjacent local governments and the Northwest Florida Water Management District.

* By 1998 the community will conserve greenways by incorporating appropriate management and protective measures into its local planning processes, and the community will coordinate with adjacent local governments to incorporate complementary measures into their planning processes.

The following recommendations include suggestions for further developing and promoting greenway protection and management programs that individual local governments may have already begun implementing. These recommendations are offered to all local governments in order to create complementary greenway conservation strategies along all greenway segments.

* Consider working with state agencies to develop incentives to promote retention of silvicultural land uses and adherence to Best Management Practices in the greenways corridor.

* Consider establishing watershed-wide planning partnerships to develop a general consensus on land use goals and to improve intergovernmental coordination between the counties and the incorporated areas to conserve the greenway.

* Consider developing plan for the greenways to be adopted by each local government. Use the St. Marks and Wakulla Rivers Greenway Steering Committee to assist with planning efforts, education and public input for the planning process.

* Consider linking the greenway to parks, forests, other local greenways, trails and habitat areas to other similar areas outside of the watershed.

* Consider coordinating with the Florida Greenways Commission in order to tie into its efforts to create a statewide network of greenways. Celebrate Florida's 150th birthday to designating the St. Marks and Wakulla Rivers Greenway as one of Florida's 150 greenways

* Consider keeping the greenway as intact as possible to facilitate wildlife movement and maintain viable populations of designated species.

* Consider limitations on clearing native vegetation in the greenway.

* Consider using this study's database and map series to initiate and maintain a local greenway database.

* Consider sponsoring workshops with local builders and developers to promote appropriate site planning, design and landscaping for residential, commercial and industrial development in the greenway.

* Consider protecting greenways by fee-simple and less-than-fee-simple land acquisition methods. This may include participating in multi-government land acquisition project, creating incentives to develop and protect the greenway through tax incentives and conservation easements.

* Consider using mitigation in regulatory programs for use in conserving the greenway.

* Consider working with the local school board and others to incorporate into local education programs the importance and relationships of conserving the greenway.

* Consider working with public land managers, historians and users in developing signs to aid interpretation of the greenway's historic and natural sites and to provide continuity along the greenway. Consider adopting an architectural theme for public use facilities in the greenways.

* Consider incentives to encourage development of businesses especially in Wakulla County, to serve greenway users including those providing overnight accommodations, food, recreational equipment, guide services and other hospitality businesses,

* Consider promoting the special natural and recreational features and historical areas of the watershed to attract ecotourists and benefit economic development.

* Consider participating in a proposed Apalachee Regional Ecotourism Development Council that markets the Apalachee Region as a destination for outdoor enthusiasts. Council members could include local chamber of commerce members, hospitality managers, camping/outfitting retailers, guide services and liveries, hunting and fishing organizations, and recreational user groups.

* Consider endorsing and co-sponsoring recreational and tourism publications such as maps and guidebooks.

* Consider investigating the need to establish a local government land acquisition program for conservation and recreation lands.

* Consider seeking state, federal and private funding to improve recreational facilities and acquire recreation and conservation lands within the greenway. Potential sources could include the Florida Recreational Development Assistance Program and the Land and Water Conservation Fund which are administered by the Florida Department of Environmental Protection, and the Florida Communities Trust which is administered by the Florida Department of Community Affairs.

* Consider studying the need for developing a local stormwater management plan for the urban areas such as the Town of St. Marks to help protect greenway water quality.

* Consider forming alliances and partnerships such as the Apalachee Land Conservancy, the Trust for Public Land, The Nature Conservancy, 1000 Friends of Florida, Florida Audubon, HuManatee, St. Marks Trail Association, the Florida Trail Association, to promote and manage ecotourism use with private interests neighborhood and home-owner associations, local businesses and landowners, and the Chambers of Commerce.

* Consider seeking planning assistance from organizations such 1000 Friends of Florida, the Trust for Public Land, and the Rivers, Trails and Conservation Assistance Program of the National Park Service for conserving these greenways.

There are many opportunities for Federal, state and regional agencies to assist local governments and citizens conserve the St. Marks and Wakulla Rivers Greenway. These agencies could assist with land acquisition and facility development, land management, planning and other technical assistance. Land acquisition and recreational facility development by these agencies could complement existing public and private resources to strengthen the foundation for the greenway. These agencies ongoing management programs could continue to provide many of the services and facilities necessary to support public recreational use. Planning and technical assistance from the Department of Community Affairs, the Department of Environmental Protection and the National Park Service could complement a local government's efforts in greenway conservation planning. Although, this report does not assess the conservation or recreational value of particular parcels of land that could be acquired or otherwise conserved, specific portions of the watershed can be targeted for conservation.

* It is recommended that the Department of Environmental Protection and the Northwest Florida Water Management District evaluate the upper portion of the St. Marks River north of Natural Bridge for protection through acquisition under the Conservation and Recreation Lands (CARL) and the Save Our Rivers (SOR) programs. It is further recommended that the Department of Environmental Protection proceed with the proposed CARL projects in the Natural Bridge Area. The programs which operate under the philosophy of acquiring lands from willing sellers, and can acquire fee or less-than-fee interests in lands. If the owner is not interested in any form of land acquisition, the agencies can instead enter into management agreements to conserve the lands environmental and recreational values.

* It is recommended that the east bank of the river from Natural Bridge to St. Marks National Wildlife Refuge be evaluated for conservation through the SOR or CARL programs or by the US Fish and Wildlife Service as an addition to the St. Marks National Wildlife Refuge. The eastern river bank is especially important as much of it is classified as critical habitat for fish and game by the Florida Game and Fresh Water Fish Commission. The eastern bank could form a natural green riparian link between the habitat of the upper watershed and that of the St. Marks National Wildlife Refuge surrounding the river's mouth.

* It is recommended that the silvicultural and other large undeveloped parcels that remain along the Wakulla River be evaluated for conservation through the CARL or SOR programs or as additions to the St. Marks National Wildlife Refuge. The lands provide important areas for habitats and could help protect the greenway linkage along the Wakulla River connecting the St. Marks National Wildlife Refuge with the Wakulla Springs State Park and the Apalachicola National Forest.

* The Northwest Florida Water Management District (NWFWMD) should initiate a Surface Water Improvement and Management Plan for the St. Marks and Wakulla rivers watershed.

* The Apalachee Regional Planning Council (ARPC) and NWFWMD should evaluate the need for establishing special river conservation strategies through special legislation or federal designation including a natural resource of regional significance.

* The NWFWMD should evaluate lands within the greenway for acquisition through the SOR program.

* The Department of Environmental Protection, Game and Freshwater Fish Commission, the Division of Forestry, the Department of State, and the Department of Community Affairs should evaluate lands within the greenway for conservation through all applicable land acquisition and recreational facility development programs.

* The Department of Commerce, Department of Environmental Protection, Department of Community Affairs and the Apalachee Regional Planning Council should provide technical assistance to local governments for greenway planning, management, promotion, and economic development.

* The Apalachee Regional Planning Council should establish and provide technical assistance to a proposed St. Marks and Wakulla Rivers Greenway Advisory Committee whose role would be to voluntarily coordinate activities Members should include local, regional, state and Federal governments, landowners, user groups, and other interested parties.

* The Department of Environmental Protection should develop informational materials for river frontage owners concerning landowner rights, public access limitations, and liability.

* State and Federal land managers should provide and maintain recreation user information and signs at their recreation access sites.

* The Florida Department of Environmental Protection should develop a public, hand-launch boat access near the St. Marks rise if lands appropriate for such access are acquired.

* The USDA Forest Service should consider working with the Florida Trail Association and the Department of Environmental Protection to acquire land so the Florida Trail can be moved from the US Highway 98 right-of-way making it eligible for designation as part of the Florida National Scenic Trail.

The following recommendations include suggestions that individuals, landowners , private interest and users of the greenways may wish to voluntarily follow to conserve the St. Marks and Wakulla Rivers Greenway. Many individuals and landowners already show their stewardship for the greenways by voluntarily practicing many of these suggestions.

* Consider establishing a privately-owned and operated canoe livery which would provide access to the St. Marks River in the vicinity of the river rise. The livery could also provide canoe pick-up and shuttle service to and from the Town of St. Marks or the US 98 bridge.

* Since there is no regularly scheduled pick-up or shuttle available, consider initiating a regularly scheduled canoe pick-up and shuttle service for the Wakulla River operating from Wakulla Springs State Park and the Town of St. Marks.

* Homeowners along the greenway should consider the following: maintaining and using native vegetation; limiting the amount of vegetation removed near the river; accessing the river using boardwalks instead of paths; limiting the use of fertilizers and pesticides; and removing or not constructing bulkheads, seawalls and riprap for bank stabilization.

* Consider adopting sections of the rivers for cleanups or establishing river clean up days with the local school children, university students, neighborhood groups and social and service organizations.

* Consider starting a voluntary river watch program that would monitor water quality and provide laboratory testing facilities.

* Consider forming a voluntary river interpreter group to educate river users concerning river stewardship.

* Consider acting as a river steward through properly disposing of litter and waste, acting courteous to fellow river users, observing no-wake zones, and educating neighbors and users how to be stewards of the rivers.

The Florida Greenways Program of 1000 Friends of Florida and the Northwest Florida Water Management District organized the St. Marks Greenway Steering Committee for the purposes of sharing information, receiving input on the project and gaining an understanding of the concerns of the citizens, local officials and landowners in the watershed. The following comments and concerns were provided by the members of the Steering Committee. It is recommended that these concerns and issues be considered as plans are developed for conserving the St. Marks and Wakulla Rivers Greenways. These are not listed in any particular order of importance.

* Threats to the natural and cultural resources from existing and potential increases in recreational use. Prevent the greenway from being loved to death;

* Threats to manatees by collisions with boats;

* Establish signs and enforce no-wake zones ;

* Problems with litter from recreational uses, boaters and fishermen ;

* Sanitary and recreation access facilities should be maintained and improved to support increase tourism;

* Insufficient emergency management personnel and infrastructure to accommodate additional tourists;

* On site waste water treatment systems impacts on water quality;

* Potential restrictions on use of private property within the greenway;

* Oil and gas contamination of the river and its sediments;

* Management of the increased number of tourists;

* Lack of education about the proper use of the outdoors and boating etiquette;

* Lackof funds to upgrade and manage local park facilities;

* Potential impacts of boating on the rivers;

* Lack of good user or tourist information such as maps and guide books;

* Exotic vegetation both aquatic and terrestrial and impacts on the greenway;

* Protecting cultural and historic resources from vandalism;

* Improperly operating septic tanks along the rivers;

* Hunting deer and other game from boats along the greenway near homes, appropriate (compatible) uses of the rivers in general. Examine use of personal water craft, hunting and excessive boat speeds;

* Need regulatory signage and enforcement of laws. User education concerning regulations, responsibilities and use of the rivers, and

* Promote compatible uses, promote guide books and guide service.

 

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