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Economic Importance and Public Preferences for Water Resource Management of the Ocklawaha River

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Economic Importance and Public Preferences for Water Resource Management of the Ocklawaha River Economic Importance and Public Preferences for Water Resource Management of the Ocklawaha River Tatiana Borisova ([email protected] ), Xiang Bi ([email protected]), Alan Hodges ([email protected]) Food and Resource Economics Department, and Stephen Holland ([email protected] ) Department of Tourism, Recreation, and Sport Management, University of Florida November 11, 2017 Photo of the Ocklawaha River near Eureka West Landing; March 2017 (credit: Tatiana Borisova) Ocklawaha River: Economic Importance and Public Preferences for Water Resource Management Tatiana Borisova ([email protected] ), Xiang Bi ([email protected]), Alan Hodges ([email protected]) Food and Resource Economics Department, Stephen Holland ([email protected] ) Department of Tourism, Recreation, and Sport Management, University of Florida Acknowledgements: Funding for this project was provided by the following organizations: Silver Springs Alliance, Florida Defenders of the Environment, Putnam County Environmental Council, Suwannee-St. Johns Sierra Club, Marion County Soil and Water Conservation District, St. Johns Riverkeeper, Sierra Club Foundation, and Felburn Foundation. We appreciate vehicle counter data for several locations in the study area shared by the Office of Greenways and Trails (Florida Department of Environmental Protection) and Marion County Parks and Recreation. The Florida Survey Research Center at the University of Florida designed the visitor interview questionnaire, and conducted the survey interviews with visitors. Finally, we are grateful to all the visitors who took time to respond to our interview questions. 2 Contents Introduction ............................................................................................................................................................4 Study Objectives .....................................................................................................................................................6 Methods ..................................................................................................................................................................6 Results ....................................................................................................................................................................9 Trip Characteristics .......................................................................................................................................... 10 Types of Recreational Activities ...................................................................................................................... 12 Choice of Recreational Activities ..................................................................................................................... 15 Effects of the 2016 Rodman Reservoir Drawdown .......................................................................................... 20 Opinions about the Future of Rodman Reservoir and Kirkpatrick Dam .......................................................... 22 Willingness to Pay for Recreational Experiences ............................................................................................. 26 Economic Impacts of Visitor Recreational Spending ....................................................................................... 28 Conclusions .......................................................................................................................................................... 36 References ............................................................................................................................................................ 37 Appendix A. Travel Cost Method ........................................................................................................................ 39 Appendix B. George Kirkpatrick Dam and Spillway Canal ................................................................................. 41 3 Introduction The controversy surrounding water resource management and economic development in the Ocklawaha River Basin begins far in the past, but it continues to influence current decisions. In the 1800s, the idea emerged of constructing a cross-Florida canal to allow ship passage from the Atlantic Ocean to the Gulf of Mexico, thus boosting economic development in the state. In the 1930s, Figure 1. Proposed Cross Florida Barge Canal* the US Army Corps of Engineers identified the optimal path for the cross-Florida passage between Jacksonville and Yankeetown, involving significant changes to the St. Johns, Ocklawaha, and Withlacoochee Rivers to be connected by an approximately 100-mile long channel across the state (Figure 1). The construction began in 1935 and after a temporary suspension restarted in 1964. In response to fierce opposition by a coalition of various interests led by environmental groups, the construction was stopped in 1971. Among the primary concerns were the potential impacts of the project on Florida’s natural resources. The project was de-authorized in 1991, and later the 110-mile corridor of the land originally set aside for the canal construction became the Cross Florida Greenway State Recreation and Conservation Area, often referred to as Cross Florida Greenway. In 1998, the Greenway was officially named after Marjorie Harris Carr, who led the effort to stop the cross-Florida canal construction (FDEP 2001; Noll and Tegeder 2015). The Cross Florida Greenway provides ample recreation opportunities, with a recent estimated annual economic impact of $74.3 million (Governor Scott 2016). Source: Construction Map of the Cross Florida Barge Canal. 1971. State Archives of Florida, Florida Memory. Despite the cessation of the construction, prior to 1971, part https://www.floridamemory.com/items/show/30284 (accessed 1 October 2017). of the work for the canal construction was completed, including the Buckman Canal and Lock (connecting Ocklawaha and St. Johns Rivers), Eureka Dam, and Rodman Dam, later renamed the George Kirkpatrick Dam. While the Eureka Dam was never closed, the Kirkpatrick Dam, an earth-filled structure measuring 22 feet high and 6.8 thousand feet long1 with a concrete spillway and four gates, impounded the Ocklawaha River (Shuman 1995). Over 20 springs and approximately 7000 acres of seasonally flooded forest wetlands were permanently flooded (Lewis, personal communications). The impoundment resulted in fragmentation of wildlife corridors, altering wildlife utilization of the area. Kirkpatrick Dam also prevented or complicated the upstream passage of fish and aquatic animals, such as channel catfish, striped bass, and manatees, some of which are classified as threatened or endangered species. Fish diversity became limited in the upstream portions, particularly at Silver Springs (Lewis 2015). Changes in Silver Springs’ ecosystems, caused by the reduction of the number and diversity of fish, along with the impacts of urban development in the basin, has led to changes in the clarity and color of the Springs water, impacting snorkeling, swimming, and glass bottom boat ride experiences of visitors. 1 Some sources stated that the length of the dam is 7200 feet. 4 Kirkpatrick Dam also impacted the movement of sediment and discharge volumes and flow to downstream portions of the Ocklawaha River and St. Johns River (Shuman 1995; Lewis 2015). At the same time, in the years since construction of the Kirkpatrick Dam, the Rodman Reservoir has developed its own altered ecosystems, providing habitat for multiple species of fish, birds, and other wildlife. Fishing and motorized and non-motorized boating opportunities are available at Rodman Reservoir, which has become a preferred location for bass fishing tournaments and other reservoir-based recreation. The reservoir system is managed, with periodic drawdowns controlling aquatic vegetation and enhancing wildlife habitat. The controversy over the Kirkpatrick Dam and Ocklawaha River management has lasted for several decades. The visitors engaged in fishing there support the current management regime, with the Kirkpatrick Dam in place, and periodic drawdowns of the Rodman Reservoir conducted. Such visitors cite superior fishing opportunities at the Rodman Reservoir. In contrast, many visitors engaged in spring-based and river-based recreation argue for river restoration via breeching or removing the Kirkpatrick Dam to protect and restore river, springs, and floodplain ecosystems and to provide for related recreational experiences. In 1993, the Florida Legislature provided funding to examine four management alternatives: (1) full restoration to remove all structures and restore the river hydrology and floodplain; (2) partial restoration with limited removal of structures and restoration of the river hydrology and floodplain function; (3) partial retention, reducing the size of the impoundment and restoring a portion of the river; and (4) full retention of the reservoir and active management of fish and wildlife (Shuman 1995; USDA-FS 2001). Potential consequences of each management alternative were examined. For the two retention alternatives, extensive aquatic plant management, limited water fluctuation and nutrient exchange, and continued habitat fragmentation and tree loss were predicted. For full retention, aquatic plant management costs varied from $14,000 to $270,000 per year. In addition, the total cost of operating the Buckman Lock and Kirkpatrick Dam were approximately $270,000 to $333,000, in FY1995-97. Recreation associated with the Rodman
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