2007 River Dance Implementation Report

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The River Dance study, chaired by Ted Pappas, was released to the community in thesummer of2005. The study focused on the preservation and long-term health ofJacksonville's most visible and valuable natural asset. Recognizing that Jacksonville'sdestiny has been and will continue to be inextricably linked to the St. Johns River, thestudy group set out to establish recommendations that will help the community and itsleaders chart a positive future for the river, including focus on its health, how the regionbenefits from its use, and to what extent it should be further developed.Among the major fmdings of the study were the following: The economic and population growth of Duval County will increase dramaticallyin the next 30 years, escalating the demand for river use and access.

Within the Jacksonville community there are a wide variety of organizationsfocused on the well-being of the river, but the community does not have a sharedvision of how it can best benefit from better use of its waterways.

Laws and regulations exist to protect, regulate and manage Jacksonville'swaterways, but there is need for better enforcement. Spaces for the public to access the St. Johns River for recreational purposes arelacking. The greatest opportunities for increased public access lie in downtown

Jacksonville and the river's tributaries. While development and use of the St. Johns River is desirable in many ways, itcan also prompt competition among users, limit public access and degrade the

environment. Other communities around the world are successfully revitalizing andrefurbishing their waterfronts through sustainable economic and development

practices. Jacksonville can, too.The River Dance Advocacy Task Force, chaired by Jim Overton, began meeting in thefall of2005 to develop and execute a strategy for implementation of the nine'recommendations produced by the study committee. The 31-member Task Force metnumerous times over a two-year period, and individual meetings were held with a widerange of stakeholders, including nearly all of those identified in the recommendations andmany who were not.This final implementation report presents an overall positive picture of success, with fourof the nine recommendations being implemented, three partially implemented, and onlytwo not implemented at all. While the Advocacy Task Force does not claim directresponsibility for the implementation of some of the recommendations, it is clear that the

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heightened community-wide focus on S1.Johns River issues, at least in part a result of theRiver Dance project, influenced favorable outcomes on several recommendations.Although community-wide attention to S1.Johns River issues is greater than ever before,it is all too evident that our greatest natural resource is still very sick, and we have merelyscratched the surface in developing the necessary momentum to turn this situationaround. It will require a coordinated effort involving all segments of the community toreinvigorate the S1.Johns, and clearly some changes in behavioral patterns, both byindustry and private citizens, will be necessary and may be painful in the short term. Tothe River Dance Task Force, however, failure to take these critical steps is not an option.

tI' -I-?ciPeG:-".'~ 'Aili;;;; r . !% i W . ~ . i ' i . % - . : ; : ~ - , 4 ' . " " o - ~ t " ' I 4 - ~ i liReco f f imen( la t ion~1f~The Mayor of Jacksonville and the Jacksonville City Councilshould fully fund and implement the Downtown Master Plan, "Celebrating the River",which describes Jacksonville as the "celebration of a great, international river andextensive public green space, where city parks and attractive water features are essentialcomponents of busy, sustainable urban neighborhoods." When fully executed this masterplan will revitalize McCoy's and Hogan's Creeks, provide critical links to downtown's"Emerald Necklace", and expand the amount and type of public access and recreationalopportunities available along the river system.

Results: On July 27, 2006, Mayor Peyton announced a comprehensivecommitment to the st. Johns River, involving the City of Jacksonville, S1.JohnsRiver Water Management District, JEA, the city's Water and Sewer ExpansionAuthority, and the Florida Department of Environmental Protection. Theprogram, called The River Accord: A Partnership for the St. Johns, is dedicated toimproving the health of the st. Johns River's lower basin (2,750 square milesfrom Putnam County to the Atlantic Ocean). The members of the River Accordcommitted to invest $700 million during the next 10 years.The River Accord is clearly the most significant "first step" taken in addressingthe preservation and future health of the St. Johns River, but its funding structureis fragile since a large portion of the money must be appropriated each year. Statefunding increased from $10 million last year to $13 million for the current year,due in no small part to the influence and stewardship of Senator Jim King, anardent supporter of S1.Johns River cleanup efforts. But with significantly tighterbudgets projected going forward, both at the state and local levels, it is uncertainat best how River Accord funding will be impacted.Clearly, however, the River Accord partnership was a historic step forward inaddressing the issues contemplated inRecommendation 1.

Recommendation 1- Implemented ,,/

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lRi~i j l f i i i i~if tUm~lThe City of Jacksonville Parks and Recreation Department shouldincrease public access to the downtown riverfront by creating more citizen-friendlynatural environments through:

Redesigning Metropolitan Park, Kids Campus, and FriendshipPark as active, open, green, civic park spaces; and

Increasing the number and quality of publicly owned water accessparks by building and refurbishing boat ramps with multiplecomponents (boating, fishing, picnicking).

Results:a. A boat ramp was added in Duval County in 2006, bringing the total number to22. A 23rd is inthe planning stage.b. While nothing substantive has yet occurred, there has been discussion from theMayor's Office and others regarding redesigning Metropolitan and FriendshipParks. The JEDC's Task Force investigating Pedestrian, Open Space and theRiver has been specifically looking at creating more dock space on both sides ofthe river and finding ways that Metropolitan Park can better "celebrate the river"by improving amenities for boaters.c. The River Accord proposes the following improvements to river access:

Opening the Pelotes Island Nature Preserve on Clapboard Creek to thepublic on weekends; Spending $1.3 million to improve Huguenot Memorial Park; Improving Cedar Point Preserve on the Northside, including thecreation of a new boat ramp, visitor center, trails, and an overlook at

Machaba Balu, a 9000-acre preserve; Partnering with private businesses and non-profits to keep marinas openand available to the public; Improving the city-owned Palms Fish Camp on Heckscher Drive; Expanding the Pumpkin Hill Florida Forever project, which, ifapproved, will allow the State of Florida to acquire critical pieces of

land for water quality and improved access to the river's tributaries; Funding improvements to Reddie Point Preserve in Arlington, includingthe addition of a fishing pier and dock; Opening a river taxi service from Ft. Caroline National Memorial to

Sister's Creek Marina to Kingsley Plantation; Opening a second river taxi from Ft. Caroline to Palms Fish Camp toPelotes Island; Making improvements in Julington-Durbin Creeks Preserve inMandarin; Creating an urban greenway to connect the Shipyards development withhistoric Springfield along Hogan's Creek. A second greenway is

envisioned to run along McCoy's Creek, connecting North Riversideand Brooklyn to the St. Johns River;

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Working with members of the Duval Delegation to amend state law togive 8t. Johns River land acquisition projects priority in state grantprograms.

Recommendation 2 --Implemented ,/

R ~ c m i if m ~ i r a ll tiW 1 f t3 ~he City Council should create an "all county" riverfront zoningoverlay to provide guidelines for waterfront development which incorporates both criteriafor public access and riverfront design. The zoning overlay should be administered bythe City's Planning Department with the Jacksonville Waterways Commission acting asits and the City Council's sub-regulatory and advisory board, much as the PlanningCommission currently operates for other zonings.This zoning overlay should:

Extend at least 500 'from the river's edge and be made apart ofthe City's Comprehensive Land Use Plan; Increase the amount of permanently set-aside general public

access spaces; Identify the transportation needs (pedestrian and vehicular) for

those public access areas; Determine setbacks for distance from the river greater than

currently required; Provide provisions to protect, preserve and encourage port and

other water dependent activities; and Outline design elements that respect the natural environment in

harmony with their riverfront surroundings (via landscapearchitecture and amenities).Results: Despite efforts by the Task Force to work through the city's politicalstructure, Recommendation 3 has not been successfully implemented. Followingthe fmal meeting of the Task Force in August, Chairman Jim Overton sent a letter(attached) to Planning &Development Director Brad Thobum, reminding him ofthe importance of the zoning overlay and asking that it be considered in futurezoning planning.

Recommendation 3-Not Implemented X

IWfJ fMBimramf4~The City Council should review the makeup and funding of theWaterways Commission to ensure it has the means and authority to function as a sub-regulatory and advisory board able to make as-needed changes to the City's OrdinanceCode. The Commission should include seats for both the City's Planning Director andthe Executive Director of the Northeast Florida Regional Councilor their designees.

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Results: Significant progress was made in January, 2007, when Tasle Forcemembers Ron Gay and Jim Overton successfully influenced the WaterwaysCommission to form a subcommittee to explore the issue of conversion to someform of quasi-regulatory board. Waterways Commission members (at that time)Jim Bailey and Carter Bryan, along with city attorney Jason Teal, headed thesubcommittee which met twice before the issue lost momentum. While thesubcommittee has not reconvened recently, it could be reconfigured andrevitalized with a new Waterways Commission makeup. To that end, a letter wasrecently sent from the Tasle Force to new Commission Chair Bill Bishop(attached) requesting that the subcommittee be restructured in order to move thisinitiative forward. Any recommendation the Waterways Commission wouldultimately make would be subject to approval by the City Council.To date, Recommendation 4 has not been implemented, but the Tasle Forceremains cautiously optimistic that progress can still be made.

Recommendation 4- Not Implemented X

~1H'~cit ' f f i) l i151 The City of Jacksonville Environment Quality Division,Environmental Protection Board, St. Johns Water Management District, Army Corps ofEngineers, and the Florida Department of Environmental Protection should coordinateresources (funds, people and processes) for better enforcement of existing regulations toprotect the waterways from all types of pollutants and contaminants.

Results: While the River Accord proposes a steering committee to monitor riverprogress on an ongoing basis, it is clear that more progress is needed in gainingbetter enforcement of existing regulations to protect the waterways. The riversuffers from the collective results of domestic and industrial wastewaterdischarges, storm water runoff, and agricultural runoff from rural areas.In June, 2007, the St. Johns Riverkeeper released a report card on compliancewith state rules and regulations related to the St. Johns River. The report coveredthe 20 months ending on August 31, 2006. The findings indicated that permitswere violated 252 times during the period, including 46 sanitary sewer overflows.Nitrogen, which causes algal blooms like the major problem encountered in 2005,was particularly evident in these violations and is considered the most seriousproblem facing the river.The Florida Department of Environmental Protection says it enforces the lawdiligently, including assessing significant fines when appropriate. Said DEPSecretary Michael W. Sole, "undeniably, we are committed to enforcing thestate's firm and fair environmental regulations in order to protect public healthand Florida's natural resources in full view of the Sunshine Law." TheRiverkeeper report indicated, however, that some of the 63 wastewater treatment

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plants monitored in its study were "out of compliance" or "significantly out ofcompliance" for periods sometimes exceeding one year. JEA's Julington Creekfacility was the worst with 37 violations.On August 16, 2007, it was reported that the Riverkeeper and Public TrustEnvironmental Law Institute had sued JEA for discharging raw sewage into thecity's waterways. The lawsuits ask JEA to develop a plan to improve sewagecollection systems and wastewater treatment facilities. Both groups also suggestthe Florida DEP needs to improve its enforcement of the Clean Water Act.The S1.Johns River Water Management District, which also plays an enforcementrole, stresses that through collaborative restoration efforts, better use of science,and increased public involvement, a cleaner and healthier S1.Johns River isclearly achievable. The District also emphasizes the importance of coordinatedcompliance efforts among the various stakeholder agencies.

The Riverkeeper compliance report makes it clear, however, that additionaldiligence is critical to the proper enforcement of the law related improperdischarges into the S1.Johns River. By the same token, it is also increasinglyapparent that heightened public awareness of serious river issues has beenattained over the past couple of years, largely through the efforts of such groupsas the Riverkeeper, S1.Johns River Water Management District, and others.While unfortunate that such a step became necessary, the recent law suit broughtagainst JEA received banner front-page attention in the Florida Times-Union andother local media outlets. Regardless of the ultimate outcome of the litigation, theRiver Dance Task Force believes it will almost assuredly lead to strengthenedcompliance efforts at every level.

Recommendation 5 --Partially Implemented e

1 R ~ c ~ D r f ii i~ t t l ir f i ' d i il ( ) ;9he S1.Johns Riverkeeper should seek more funding and supportfrom the public to expand its efforts to protect the river's health and enhance itsprograms, as follows:

Connect people to the river through public outreach programs; Engage the community in ensuring that the St. Johns River is both

ecologically healthy and a catalyst for community revitalization; Bring together diverse coalitions to work on river issues; Mobilize volunteers; Work to secure funding for the St. Johns River's continued clean-up and protection; Support education programs; Educate the public about river issues; and Develop and distribute annually a state-of-the-river 's-healthreport card.

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Results: The St. Johns Riverkeeper applauded the River Accord program forsuccessfully addressing a number of the issues highlighted in Recommendation 6,including the significant development of creation of a state-of-the river reportcard. The annual State of the River Report will be overseen by a group of m andUNF faculty members, including Task Force member Quinton White.In addition to its significant financial commitment to the River Accord, the st.Johns River Water Management District launched a $1 million region-wide publicawareness campaign in the spring of2007. Titled The St. Johns: It's Your River,the initiative represents the largest single st. Johns River-related public relationseffort ever undertaken, and it is designed to educate the general public about theserious need to address preservation and cleanup issues related to the river(example promotional piece attached).The Water Management District also retains water resource education personnelon staff that work year-round to bring awareness of river issues to school childrenand civic and homeowners' groups. These programs playa significant role inimproving understanding and awareness of river issues among children and adultsalike.Another recently-announced program is the Riverkeeper's Partnership for aClean River, in which local businesses are asked to pledge a percentage of a unitof sales to help support Riverkeeper efforts to preserve the St.Johns River.

Recommendation 6- Implemented v"

R~1ijotiflHlfdrti~The Northeast Florida Regional Council should be activelyinvolved in securing more public access to the river and determining its economic impacton local communities by:

Coordinating local public access needs with adjacent countiesthrough a seat on the Waterways Commission; Conducting an economic analysis of the St. Johns River to

determine the monetary value of riverfront recreation as well as aclean and healthy river;

Expanding its regional coalitions and initiatives to encourage thefurther development of ecotourism and completion of the Eco-Heritage Corridor promoting environmental protection,historical/cultural preservation, and economic development.

Results: The Northeast Florida Regional Council is actively engaged inexpanding its coalitions in order to be an active facilitator for regional dialogue ona wide array of issues, including those identified in Recommendation 7. TheCouncil's stated mission is "to provide visionary leadership and coordination

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between counties and governmental agencies to preserve and enhance the qualityof Northeast Florida's natural, man-made, economic, and social environment." InSeptember, 2006, the Council hosted the second Northeast Florida RegionalLeadership Academy, which included 31 leaders from all seven counties inNortheast Florida. Included on the agenda of the two-day meeting was one fullday on environmental issues, with particular focus given to river water quality andaccess.While the Task Force concurred that the Northeast Florida Regional Council hasdone an effective job of expanding its regional initiatives for environmentalprotection, it also recognized that progress has not been realized on the Councilfunding a comprehensive economic analysis of the river, or on gaining theCouncil a seat on the Waterways Commission. Jim Overton's letter (attached) tothe Waterways Commission referenced in Recommendation 4 includes a requestthat consideration be given to providing the Council with a seat.

Recommendation 7 - Partially Implemented ej-~ ;,t.{ r ;-j~ ~ tir t~ ~J "4 1_~ 't:\,u::::~ '0~ '-ci ii~ - '~ '- :+ ''':H ~ ; txr:-- ',H ~ 4 ~ Rec( ,mmei10at ioI l ' i8 : : To improve opportunities to appreciate the history, ecology,economics and recreational opportunities of the St. Johns River and its tributaries, theCity of Jacksonville in partnership with the Jacksonville Port Authority should develop abroad-based, attractive, educational center on the river to teach children and adults aboutthe river system. The center could include (but not be limited to):

Exhibits explaining the river's history, natural habitat, role of theport, role of the military, recreational opportunities andopportunities for future creative uses; A marina and space to dock historic ships (such as a submarine orcommercial vessel);

Space for riverfront festivals, and markets attractively landscapedwith shaded areas and facilities for seniors and people withdisabilities.

Results: During its deliberations, the Task Force uncovered two models for ariverfront center/museum as contemplated in Recommendation 8. Task Forcemember Ted Pappas put forth a proposal prepared by his architectural fum to theJacksonville Economic Development Commission which combines aneducational center with a naval exhibit, observation tower, celebration plaza, andshops, galleries and boutiques. The facility (rendering attached) was proposed onthe site of the current Duval County Court House adjacent to the Hyatt Hotel.The second possibility was provided by Lake Ray, Jr., one of the owners of thehistoric Ford Motor Company Assembly Plant on the St. Johns River just north ofthe Matthews Bridge. In a letter (attached) provided through Task Force memberJerry Spinks, Mr. Ray suggested the Assembly Plant as a potential site for the

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river center as part of a mixed-use plan for the facility. A recent study of the siteprepared for the City of Jacksonville concluded: "The location of this site alongthe st. Johns River provides a tremendous opportunity for new waterway accessin downtown Jacksonville. Associated uses such as a ship store, aquarium,recreation area and maritime museum would be appropriate additions to thisconcept."The Task Force recognizes that with significant budgetary cutbacks imminent bylocal government, it is unlikely that any project of the magnitude of either of theabove models can become a reality in the foreseeable future without privatefunding, As a result, both are long-term projects for which funding solutions arenot presently identified, but they represent tangible possibilities for futureconsideration. Both have been entered into the public discourse for futureriverfront development planning.

Recommendation 8- Partially Implemented e

R ~ l f ( f f i if i r rf i iI l ti W l m : 9 Jacksonville University, the National Park Service, and the City ofJacksonville should continue to develop and seek funding for the establishment of ariverfront research institute to study the ecology, flora, fauna, hydraulics, avian life, andmicrobiology of the river.

Results: Task Force member Dr. Quinton White has spearheaded thedevelopment of a Marine Science Research Institute at Jacksonville Universitywhich successfully addresses Recommendation 9. He recently reported thatfunding has nearly been completed for the 30,000 square-foot, two-story buildingon Jl.I's Arlington campus that will provide a central location for independentresearch necessary to assist in preserving and maintaining the St. Johns River andother Jacksonville waterways. Construction is expected to begin in 2008 with anopening of the facility in 2009.In addition to researchers and rustudents, Jacksonville high school students willalso be able to use the Institute through a marine science program partnered by ruand Duval County Public Schools. When completed, the facility will also houseoffices of the St. Johns Riverkeeper.The Marine Science Research Institute represents a major step forward inproviding a dedicated center for conducting independent research involvingmarine ecosystems inNortheast Florida, with particular emphasis on the health ofthe St. Johns River.Recommendation 9 - Implemented

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I I I IJCCIitizens building .;la bette r community~~ . . .- - . . . . . .Thefollowing individuals participated ill some or all of tile two-yearadvocacy efforts of the River Dance Task Force. Their interest anddedication are sincerely appreciated:

Jim Overton, ChairGuy AndersonNeil ArmingeonDave BaileyMike BarileMelody BishopDavid BoyerLinda BurnetteSusan CavenJeane ChappellLucy CorteseJan DuggarRon GayBarry HeathJill JohnsonDoris Marlin

Betsy MillerTeresa MonsonKay OliverJimmy OrthTed PappasLisa Rowe RinamanLynette SelfAndy SikesEric SmithJerry SpinksPaul SteinbrecherTed StummJohn TenBroeckQuinton WhiteKen Wilson

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Documents

2007 River Dance Implementation Report