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Rethinking the Indian River Lagoon National Estuary Program:
Challenges and Opportunities for Enhanced Ecosystem Restoration and Management
Duane E. De Freese, Ph.D. Executive Director
IRL Council IRLNEP
ddefreese@irlcouncil.org www.irlcouncil.org
Acknowledgements - Kathy Hill (AdCom Director) - Belheim “Frank” Sakuma (COO)
What We Know…
Very Complex System 3 Waterbodies Mosquito River Banana River Indian River
156 mi long High Biological Diversity Narrow/Shallow Poorly Flushed - 5 inlets to ocean Mostly Wind-Driven System
6 Counties/45 Cities 1.6 Million Residents Multiple Agency Oversight Economic Value ∼ $7.6 B (ECF &TC RPCs, 2016)
What We Know: Multiple Stressors
Habitat Destruction Habitat Fragmentation
Habitat Alteration Altered Watersheds
Stormwater Discharges Wastewater Discharges
Discharges to Groundwater Nutrient Loads Pollutant Loads Litter & Debris
Invasive Exotic Species Over Exploitation
Atmospheric Deposition Global Climate Change
Ocean Acidification Sea-level Rise
What We Know…
Map data from Penn Design Central Florida (2005) for myregion.org
Florida Will Continue to Grow
Analysis by the Late, Peter W. Harlem (2009) for the Space Coast Climate Change Initiative Southeast Environmental Research Center Florida International University
Global Climate Change and SLR will Complicate
Everything…
Current topography of Brevard County .
Image made from a DEM dataset from USGS (adequate at this scale).
For detail analysis LiDAR is a must.
Analysis by Peter W. Harlem
Photo: Tim Kozusko. Haulover Canal, Indian River Lagoon. August 2012
We Know: Excessive Nutrients Fuel Algal Blooms
• 2011 Algal Superbloom • 2011 Secondary Bloom • 2012 Brown Tide • 2013 Brown Tide • 2013 Unusual Mortalities • 2015-2016 Green Bloom • 2016 Brown Tide • 2016 Extensive Fish Kill • 60% Loss Of Seagrass Beds
Blooms May Cause Fish Kills Low Dissolved Oxygen and/or Toxicity
2016/03/20 Fish Kill
Photo by Captain Alex Gorichky, Local Lines Charters
What We Know… In Southern Lagoon
Combination of Impacts
Chronic
Stressors ●
Acute Events ●
Connected Complex
Watersheds
Lake Okeechobee Seasonal Water Discharges
Billions of gallons discharged 1998, 2013 Lost Summer
2016 Lost Year
Bottom Line: Everglades Restoration is Connected to IRL Restoration
IRL-NEP Reorganization • IRL NEP Designated 1990 & Established in 1991.
o Host for 25 years - SJRWMD • 2011-2013 Events Drove Focus on IRL Water
Quality. • IRL County Collaborative (2013). • IRL Council created as a new Florida Special
District through Interlocal Agreement (Feb. 2015). • IRL Council Amended Interlocal Agreement (Sept.
2015) o Added Indian River Lagoon Coalition (formed May 2015 by
City of Sebastian, City of Fellsmere & City of Vero Beach). • IRL Council designated as new host of the IRL NEP
Program (January 8, 2016).
Leading Change - Network Governance
• Work across agencies, jurisdictions, and land ownerships.
• Exchange ideas, build relationships, identify common interests, explore options.
• Work together. • Solve problems of mutual
interest. • Recognize that we cannot
solve a particular problem or issue by working alone.
Modified from: Connecting people and places: the emerging role of network governance in large landscape conservation (Scarlett & McKinney. 2016. Front Ecol Environ 14(3): 116–125.
The scale & complexities of natural resource management require that individuals and organizations:
Government – Industry– Independent Sectors
IRL NEP Role Model for Network Governance
• EPA's National Estuary Program is a non-regulatory program established by Congress that works to improve the waters, habitats and living resources of 28 estuaries across the country.
• Each NEP consists of diverse local
stakeholders who develop and implement a long-term plan (called a CCMP) based on local priorities to guide their efforts.
• The NEPs use a collaborative and
consensus-building approach by involving community members in the decision-making process.
IRL Council/IRL NEP Funding • Annual contributions pursuant to 2015 IRL
Council Interlocal Agreement – U.S. EPA ($600,000) – SJRWMD ($500,000) – SFWMD ($500,000) – FL DEP ($250,000) – Volusia County ($50,000) – Brevard County ($50,000) – Indian River County Lagoon Coalition ($50,000)
(Cities of Vero Beach, Fellsmere & Sebastian) – St. Lucie County ($50,000) – Martin County ($50,000)
• IRL License Plate Revenues
• To attain and maintain water and sediment of sufficient quality to support a healthy estuarine ecosystem.
• To attain and maintain a functioning, healthy ecosystem which supports endangered and threatened species, fisheries, commerce and recreation.
• To achieve heightened public awareness and coordinated interagency management of the Indian River Lagoon ecosystem; and
• To identify and develop long-term funding sources for prioritized projects and programs to preserve, protect, restore and enhance the Indian River Lagoon.
Goals of the IRL NEP
Management Board
& Finance
Subcommittee
STEM Advisory
Committee
IRL Council
Citizen Advisory
Committee
IRL Council/NEP staff support all levels of the
Management Conference
Florida Sunshine Laws
Apply
IRL NEP Management Conference Structure “A Collaborative Approach to Network Governance"
Citizen Ambassadors
Contributing Scientists
and Engineers
IRLI2
(Innovators & Investors)
Committee interactions with the general community are for fact finding
and knowledge gathering only.
U.S. EPA FDEP SJRWMD SFWMD Volusia Brevard IR Coalition St. Lucie Martin
• Bob Ulevich (Chair Management Board)), Polymath Consulting Services, Inc.
• Jeff Beal, Florida Fish & Wildlife Conservation Commission • Vanessa Bessey, FL Dep’t. Agriculture & Consumer Services • Blais, Quentin L. Hampton Associates • Bill Tredik, St. Johns River Water Management District • Tom Carey, Volusia County • Dr. Anthony Catanese, Florida Institute of Technology • Mark Crosley, Florida Inland Navigation District • Jim David, Citizen • Megan Davis, FAU/Harbor Branch • Stephany Eley, Space Coast League of Cities • Monte Falls, City of Vero Beach • Joseph Falzone, Financial Subcommittee • Chris Ferraro, FL Department of Environmental Protection • Layne Hamilton, USFWS, Merritt Island NWR • Clay Henderson, Stetson University • Linda Hudson, Treasure Coast League of Cities • Dianne Hughes, Martin County • Mitch Hutchcraft, SFWMD, King Ranch
• George Jones, Ocean, Research and Conservation Association • Bill Kerr, BKI, Inc. Consulting Ecologists • Kathy LaMartina, South Florida Water Management District • Vince Lamb, Citizen • Barbara Lenczewski, FL Department of Economic Opportunity • Mike Littell, US Sailing Center, Financial Subcommittee • Mike McCabe, Melbourne-Tillman Water Control District • Robert Musser, Canaveral Port Authority • Judy Orcutt, Citizen • Lynne Phillips, NASA/Kennedy Space Center • Marty Smithson (Vice Chair), Sebastian Inlet Tax District • Thomas Stratton, Financial Subcommittee • Laurilee Thompson, Brevard County Tourist Development Council • Charles Vogt III, Florida Department of Health • Joel Zwemer, Citizen, Financial Subcommittee • Captain Frank Catino (Chair) IRLNEP Citizens' Advisory Committee • Chuck Jacoby, SJRWMD, Chair, STEM Advisory Committee
IRL Council
Management Board
Jennifer DiMaio (Ex Officio)
Ed Fielding Sarah Heard (alt)
Chris Dzadovsky Frannie Hutchinson (alt)
Richard Gillmor Joel Tyson (alt)
Curt Smith Jim Barfield (alt)
Doug Daniels Deb Denys (alt)
Kevin Powers Kathy LaMartina (Alt)
Doug Bournique John Juliana (alt)
Drew Bartlett Tom Frick (alt)
UCF FAU/HBOI
UF
FFWCC
SJRWMD
SFWMD
SWCD
FIT
Stetson Bethune Cookman
ERAU
DSC
EFSC
IRSC
ORCA
MRC
FOS
TNC
HSWRI
Smithsonian
MDC
Independent Emeritus
Dr. Debra Woodall
Volusia County Staff
Indian River County Staff
Brevard County Staff
St. Lucie County Staff
Martin County Staff
Example: Economic Analysis
Example: Habitat
Restoration (NERT/ECERT)
Example: HAB/Nutrient
Task Force (IRL
Consortium)
Example: Climate
Change SLR Task Force
STEM Community Task Forces/Working Groups
(Fact-Finding) STEM AC
(Advisory to IRL NEP)
Science, Technology, Engineering & Monitoring Advisory Committee
IRL Council/IRL NEP Staff
Volusia County
(4)
Brevard County
(5)
Indian River County
(4)
St. Lucie County
(3)
Martin County
(4)
Citizens Advisory Committee
IRL NEP Community Alliance Volusia County Brevard County Indian River County St. Lucie County Martin County
IRL Council/IRL NEP Staff
• Katie Tripp • Jessie Wayles • Billy Rotne • Dennis
Dickerson
• Leesa Souto • Keith Winsten • Frank Catino • Mike Coneen • Sam Lopez
• Ken Grudens • Gary Ritter • Heather
Stapleton • Cynthia Vande
Voorde Hall • David Brigida • Dave Carlson • Billy Gibson • Becky Bruner • Zack Jud • Crystal Lucas • Jim Moir
2008 CCMP Action Plans
• Point Source Discharges • OSDS • Fresh & Stormwater Discharges • Marina and Boat Impacts • TMDL Action Plan • Biodiversity • Seagrass Protection, Restoration &
Management • Wetlands • Impounded Marshes (removed in 2008 CCMP
Update) • Land Acquisition and Protection • Rare, Threatened & Endangered Species • Fisheries • Biotoxins and Aquatic Animal Health • Climate Change • Invasive Fauna and Flora • Public Involvement and Engagement • IRL CCMP Implementation • Data and Information Management Strategy • Monitoring • IRL Scientific Research • Environmental Incident Assessment &
Response • Economic Analysis
0
5
10
15
20
25
Mea
n Ra
nkin
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Stan
dard
Dev
iatio
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Board of Directors Ranking of CCMP Action Plans
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5
10
15
20
25
Mea
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Stan
dard
Dev
iatio
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STEM Advisory Committee Ranking of CCMP Action Plans
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15
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25
FW/S
W D
isch
arge
s
Seag
rass
OSD
S
CCM
P…
TMDL
s
Rese
arch
Poin
t Sou
rces
Mon
itorin
g
Fish
erie
s
Publ
ic…
Land
…
Wet
land
s
Biot
oxin
s/An
imal
…
Data
/Inf
o M
gmt.
List
ed S
peci
es
Biod
iver
sity
Inva
sive
Spe
cies
Econ
omic
Ana
lysi
s
Env.
Inci
dent
…
Clim
ate
Chan
ge
Atm
osph
eric
…
Mea
n Ra
nkin
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Sta
ndar
d De
viat
ion
Management Board Ranking of CCMP Action Plans
0
5
10
15
20
25
Mea
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tand
ard
Devi
atio
n Citizens' Advisory Committee Ranking of CCMP Action Plans
Maximize Ecological Integrity
Minimize Water Quality Degradation
Maximize Habitat Quality/Quantity
Maximize Living Resources
Maximize: • Sediment quality • Natural hydrology and flow • Riparian buffers • Groundwater quality/quantity • Natural filtration
• Oysters • Floodplains
Minimize: • Toxics
• Pesticides • Household chemicals
• Nutrients • Atmospheric deposition
• Pathogens • E. Coli
• Eutrophication/Algal blooms • Hypoxia/Low dissolved oxygen • “Other” anthropogenic
contaminants • Petroleum
hydrocarbons • Thermal pollution • Trash/debris
• Sedimentation/Turbidity • Hydrologic modifications • Excessive water withdrawals
Maximize: • Natural habitats
• Wetlands • Submerged aquatic
vegetation • Upland/forests • Mangroves • Corals
• Water quality/quantity • Sediment quality
Minimize: • Environmental degradation
• Erosion • Scarring/laceration • Turbidity • Saltwater discharge
• Loss • Fragmentation • Dredging • Bulkheading/diking • Unsustainable land use
• Adverse effects from climate change/sea level rise
Maximize: • Habitat quality/quantity
• Nesting/nursery • “Desirable” species
• Fish • Shellfish • Birds • Vegetation
• Water quality/quantity • Endangered/threatened species
• Sea turtles • Manatees • Birds • Seals
• Sediment quality • Biodiversity
Minimize: • Resource degradation
• Diseases • Impingement • Invasive species
• Environmental degradation
Maximize Social Benefits
Maximize Beneficial Uses for the Public
Minimize Public Health Threats
Maximize: • Recreational potential
• Fishing/Shellfishing • Boating • Outdoor activities
• Open access • Heritage
• Fishing/harbor businesses
• Aesthetics • Native species
• Living resources • Fisheries • Biodiversity
Minimize: • Closures (beach, harvesting
areas)
Maximize: • Drinking water quality/quantity • Natural hazard protection
• Floods • Storms
• Access to safe housing
Minimize: • Adverse effects from seafood
contamination • Adverse effects from pathogenic
contamination • Adverse effects from surface
water/sediment contact • Adverse effects from climate
change/sea level rise
Indian River Lagoon NEP Objectives Hierarchy Framework
Fisher.William@epa.gov
William S. Fisher, Angelica Sullivan, Susan H. Yee US EPA Office Research & Development (2015)
Maximize Economic Opportunities
Maximize Shellfish/Finfish Harvesting
Maximize Other Economic Opportunities
Maximize: • Fisheries
• Resources • Habitat
• Water quality/quantity • Sediment quality
Minimize: • Shellfish bed closures
• Toxics • Pathogens
• Resource degradation • Overharvesting • Poaching • Other illegal activities
• Eutrophication/hypoxia
Maximize: • Tourism • Water quality/quantity • Industry • Agriculture • Shipping/Port
Minimize • Financial burdens/costs
• Erosion/sedimentation • Threats to livelihood • Storms/natural disasters
Maximize Stewardship
Maximize Stakeholder Engagement
Minimize Negative Effects from Human Activities
Foster Good Governance
Maximize: • Public education
• BMPs • Recycling/Disposal
• Volunteer opportunities • Schools/Students • Community
• Private-public partnerships • Sponsorship • Cooperation
• Open information availability • Incentives
Maximize: • Nonpoint source management
• Stormwater runoff • Pet waste
• Green marinas • Education • Disposal
• Best management practices • Agriculture/Industry • Dredging • Inspection/Maintenance
• Environmentally sound technologies
• Barrier aids • On-side sewage
treatment • Low-impact development
• Smart growth • Aesthetics
Maximize: • Effectiveness of CCMP • Effective point source
management • Wastewater treatment • Direct discharge
• Water quality management • TMDLs • No Discharge Zone
• Effective “green” land use management
• Zoning/permitting • Capable & effective “other”
programs • Enforcement • Regulation/Laws
• Funding • Knowledge base
• Monitoring/Research
Fisher.William@epa.gov
Objectives Hierarchy Framework
William S. Fisher, Angelica Sullivan, Susan H. Yee US EPA Office Research & Development (2015)
Indian River Lagoon NEP
Historic Moment for Local Leadership & Investment
Brevard County “Save Our Lagoon”
Half-Cent Sales Tax Referendum
$30 Million Annually
for 10 Years
“My dear, here we must run as fast as we can, just to stay in place. And if you wish to go anywhere you must run twice as fast as that.”
Lewis Carroll, Through the Looking Glass (1871)
The Red Queen’s Race
Sense of Urgency – But Do We Have Clear Restoration Goals and Strategies to Reach Goals?
Imagine…Florida
A Global Leader in Clean Water Technology “The First Clean Water State in the Nation”
Dick Nunis “Blue Sky Dream” Quote Retired chairman of Walt Disney Attractions
Disney “Legend”
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