The Future of the Ocklawaha River American Assembly Summary Statement

Prepared for: Florida Defenders of the Environment

Project Manager: Terry A. Clark, AICP, PMP StaffConnections, LLC

Final Report November 5, 2018

Acknowledgements

The following people graciously volunteered to support this project through the generous contribution of their time, talent and skills.

• Fay Baird, Facilitator • Christine Denny, Facilitator • David Barth, Facilitator • Susan Marynowski, Technical Editor • Kennedi Fichtel, University of Florida Student Intern, Author of Briefing Papers • Andrea Lopez, University of Florida Student Intern, Scribe • Susan Clark, Scribe

Steve Robitaille, President of Florida Defenders of the Environment and Jim Gross, Executive Director of Florida Defenders of the Environment, provided consistent and valued guidance and direction throughout the project.

Tracy Marinello, Office Manager of Florida Defenders of the Environment, assisted in the administration and support of this project.

Table of Contents

I. Introduction ...... 1 II. The American Assembly Process ...... 1 III. Common Themes from Group Discussion ...... 5 IV. Summary Statement ...... 6 V. Next Steps ...... 6 References ...... 7 APPENDIX I: List of American Assembly Participants ...... 8 APPENDIX II: Group Comments ...... 9 APPENDIX III: Questions Needing Answers ...... 15 APPENDIX IV: Briefing Papers ...... 16 APPENDIX V: Listening Shared Values ...... 22

The Future of the Ocklawaha River American Assembly Summary Statement

I. Introduction Florida Defenders of the Environment (FDE) has undertaken a public engagement project to re-open lines of communication among diverse stakeholders to identify possible future scenarios regarding the Ocklawaha River and Kirkpatrick Dam. The strategy is designed to provide safe venues for respectful dialogue, the sharing of personal experiences and technical input that will be summarized in written form for public distribution. The primary audience for this paper are elected and appointed officials and decision makers. However, local business owners, recreational users, and members of the general public should find the results of the American Assembly interesting and helpful.

The issues of whether or not to remove Kirkpatrick Dam and/or partially or fully restore the Ocklawaha River are emotion-filled on all sides. Several generations of north-central Floridians have only known what it is like to live with the Rodman Reservoir, while some “old timers” remember what it was like to boat and fish a free flowing Ocklawaha River, and some new river proponents realize the economic opportunity that the River might offer. Many stakeholders are passionately committed to their points of view, which has previously resulted in frayed tempers, blocked paths of communication, and maintenance of the status quo.

In order to develop an atmosphere conducive to open communication, the following principles have guided the public engagement process: • Create and maintain a civil and respectful environment for exchange of information • Include all interested parties and perspectives • Provide opportunities for opinions, stories and technical input

The FDE project revolves around four stakeholder engagement components: 1) Revisiting the Past – Public Forums and Listening Sessions; 2) Assessing the Present – American Assembly; 3) Envisioning the Future – Design Charrette; and 4) Summary Report and Action Items. This summary statement presents the outcomes of the American Assembly held during Step 2 of the public engagement project. II. The American Assembly Process

An American Assembly was held to present and receive information on the current status of the Ocklawaha River and to identify and describe possible alternatives and actions to consider for the future. The American Assembly is a structured approach for developing a consensus on a vision or action plan for the future. Participants are chosen to represent key stakeholder interest groups. The American Assembly approach provides a body of knowledge, a setting, and a technique for bringing thoughtful people together to discuss issues and voice their concerns in a manner that allows each person to participate in a meaningful way.

The general format for an American Assembly starts with a presentation to all participants of generally accepted background information on the issue, followed by small group discussions on specific topics. There is an effort to avoid voting and instead to develop a consensus position. After deliberations, a

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general or plenary session is held at the end to identify key themes and shared beliefs discussed during the small groups. The facilitators then prepare a summary of the statements created and discussed.

In this case, approximately 26 participants attended an evening public information session on Thursday, June 28, 2018, covering the following information on the Ocklawaha River and Kirkpatrick Dam:

! Summary of Recent Listening Sessions – Terry A. Clark summarized the five Listening Sessions and discussed the Shared Values identified from the sessions (Appendix V) ! University of Florida Economic Study Results - Dr. Alan Hodges, Ph.D., Extension Scientist, University of Florida, Institute of Food and Agricultural Sciences, Food and Resource Economics Department provided an overview of the economic study entitled, Recreational Use and Economic Contributions of the Ocklawaha River and Rodman Reservoir: 2016-2017 Visitor Survey. ! Fish and Wildlife Description - Eric Nagid, Resource Assessment Subsection Leader, Florida Fish and Wildlife Conservation Commission and Mickey Thomason, Resident Park Manager, Florida Department of Environmental Protection gave an overview the past and current condition of the fish and wildlife of the River and Reservoir. ! Next Steps – Jim Gross provided the next steps in the public engagement process including the American Assembly scheduled for the next day June 29, 2018.

Invited participants then met on Friday, June 29, 2018 for the American Assembly process. Fifteen people participated in the Assembly (Appendix I). Participants in the Assembly were invited based on their knowledge and experience with the River. Participants were invited from all sides of the issue – those who support keeping the dam and those who support breaching the dam. Both events were held at the St. Johns River State College facilities in Palatka, Florida.

Participants at the Assembly provided input on three topics. There was a set of questions to consider and discuss for each topic. The group was guided by a facilitator and a scribe. Instead of breaking out into small groups all participants stayed together in one room to discuss the topics. The facilitators were Christine Denny, David Barth, and Fay Baird, each facilitator taking one of three topic areas:

! Environmental Restoration ! Economic Opportunity ! Implementation – Making it Happen

In the boxes below are detailed descriptions of each of the topic areas and the questions that were presented to the participants for consideration. Briefing papers on each topic are provided in Appendix IV.

Environmental Restoration Restoration of the Ocklawaha River can take many forms. The Environmental Impact Statement (USFWS 2001) identified four alternatives: 1. Full Retention of the Rodman Reservoir Retaining the reservoir at its current size and depth, with options for active management to enhance fish and/or wildlife. Removal and/or alteration of structures and topography would be limited. The reservoir would be maintained at an elevation of 18 feet NGVD.

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2. Partial Retention of the Rodman Reservoir Reducing the water level of the reservoir to 14 feet NGVD so that a part of the river can be restored and a part of the reservoir can be retained. Active management for fish and/or wildlife as described for the no action alternative would continue and would involve restoration of river hydrology and floodplain function in that part of the river to be restored. Structural modification and alterations in topography would be limited. 3. Partial Restoration of the Ocklawaha River This plan will restore river hydrology and floodplain function to historic conditions through breaching the dam, with limited removal and/or alteration of structures and topographical manipulation, and allowing for restoration by natural processes. 4. Complete or Full Restoration of the Ocklawaha River Restoring river hydrology and floodplain function to preconstruction conditions, removing all structures, and returning the topography in the impact area to preconstruction conditions. Questions to consider: ! What is your preferred alternative and why? ! Is there another alternative that is preferable? ! Are there other restoration actions or components that should be considered?

Economic Opportunity Restoration of the river must be linked to economic development of Palatka and areas surrounding the Ocklawaha. The Rodman Reservoir and Ocklawaha River currently attracts fishing tournaments and recreational uses that contribute to the local economy. The 2017 study on the economic importance of the Ocklawaha River prepared by the University of Florida concluded the following: ! Both fishing and non-fishing opportunities are important attractions for visitors to the area. ! The value that the visitors derive from their trips to Ocklawaha River and Rodman Reservoir is high (as reflected in the high willingness to pay for the recreational trips, long distances the visitors traveled to visit the site, or high frequency of trips to the area). ! The analysis of visitors’ expenditures shows that the activities on the natural stretches of the Ocklawaha River result in greater contributions to the regional economy, compared to the recreation on the Rodman Reservoir sites. ! To minimize potential impacts of breaching / removing Kirkpatrick Dam on fishing activities in the region and related visitation, Ocklawaha restoration plans might focus on: › Preserving shore fishing opportunities along the Spillway Canal since they are a major attraction for bank fishing in the area. › Enhancing fishing experiences on/along the restored river (such as managing the system to increase the number of fish caught per hour and to enhance non-bass fishing opportunities). › Enhancing fishing opportunities available at other sites in the region, such as St. Johns River and Lake George (to ensure that fishing activities continue to serve as a main attraction to the region as a whole). ! Given that only relatively few Silver Springs State Park visitors were aware of the Ocklawaha River drawdown and management regimes, educational programs can be implemented to raise awareness among the Park visitors about the links between the Silver Springs’ conditions and Ocklawaha River and Silver River management.

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Questions to consider: ! What types of economic development activities are best suited to the Ocklawaha River region: › With restoration? › Without restoration? ! Generally, where should the economic development activities be located? ! Who should be involved with and lead the economic opportunity activities?

Implementation – Making It Happen If the Rodman Dam is retained it must be maintained and funded. Maintenance of the structure, aquatic vegetation management, and access issues must be planned, carried out, and paid for. If restoration of the river occurs there will also be maintenance, operations, and access issues to deal with and be funded. Continuation of existing economic activities and development of new activities must take place regardless of what happens to the Rodman Dam. Coordination with and participation by local and state elected officials and identification of funding sources will be critical with or without restoration. Please consider what should take place with and without restoration when answering the following questions. Questions to consider: ! What specific actions should local and state elected officials take? › With restoration. › Without restoration. ! Who should fund maintenance, aquatic vegetation and access improvements? › With restoration. › Without restoration. ! What private and nonprofit organizations should be involved? › With restoration. › Without restoration.

This final Summary Statement was written by integrating notes from the topic discussions into a single document during a mid-day break. It contains the consensus reflected in the group discussions and was reviewed by the entire Assembly in an afternoon plenary session. This Summary Statement is an integrated report, rather than a summary of the separate statements from each small group discussion. The focus here was on developing a detailed statement of overall objectives and associated implementation strategies, without violating the spirit of a single group. Notes from the topic discussions are provided in Appendix II. Appendix III lists flipchart notes taken during the American Assembly that require further research and action.

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III. Common Themes from Group Discussion The facilitators and scribes met during the lunch break to review notes from the morning topic discussions and identify any common themes. Common themes were identified by the facilitators and scribes and then reviewed by all participants after lunch. Below are the common themes agreed upon by the participants and summaries of participant group discussions.

Common Theme: Avoid the false dichotomy of either keep the dam or get rid of the dam. Group Comments: The facilitators and scribes identified what they thought was a false dichotomy heard during the discussions: that there are only two options, keep the dam or remove it. The facilitators and scribes proposed the dichotomy as false because there may be different variations between having a complete dam versus have the dam removed, a partial breach for example. However, the group of participants felt that the dichotomy was not false but instead the dichotomy was real and appropriate. They felt that with any breach of the dam there would not be a reservoir, therefore the dichotomy is not false. People who use the reservoir would view elimination of the reservoir, regardless of how it occurred, versus keeping the reservoir as a real dichotomy; there are no gradations of the option.

Common Theme: Identify and come up with a compelling vision as the basis for outreach and communication. Group Comments: The participants rallied around this theme. They felt that having a compelling vision for the River is critical for addressing the dam. The vision should then lead into developing a comprehensive master plan for the Ocklawaha River that includes improved recreational access (e.g., boat and bank fishing, canoe/kayak access, hiking, camping, historic interpretation, wildlife observation), economic opportunities, compensation to private property owners, etc., while emphasizing that restoration need not mean taking something away from people. One related topic was discussed related to focusing on “natural resource management” instead of “restoration”. While the group agreed with this idea, one participant indicated after the meeting that he did not think replacing the word “restoration” was appropriate.

Common Theme: Related to identifying a compelling vision, the participants felt that the new vision should address the shared values identified in the Listening Sessions and extend beyond the present discussion and region. Group Comments: The group felt that any vision should place the future of the Ocklawaha River into a broader geographic region than just the Putnam and Marion county region. The future of the Ocklawaha River directly relates to and impacts the future of the St. Johns River and related tributaries and watersheds. Strictly considering the Ocklawaha River does not accurately represent its influence and impacts.

Common Theme: The compelling vision for the River should also include a realistic vision of what a free- flowing river might look like hydrologically, including consideration of flows from Silver Springs.

Common Theme: Instead of focusing on the four alternatives identified in the 2001 Environmental Impact Statement, the vision should identify a broader group of preferred conditions, or goals, for how success is defined such as: a free-flowing river, a world-class bass and other fish habitat, multiple recreational activities along the corridor (boat and bank fishing, canoe/kayak access, hiking, camping, historic interpretation, wildlife observation), and a healthy broader St. Johns River basin.

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Common Theme: Clarify the problems that we are trying to solve and the costs and benefits of various approaches. Group Comments: In discussing this theme the participants felt that there should be an adjustment to the language of the problem toward investment in the resources and the people in the Ocklawaha River corridor.

Common Theme: Pursue economic development that is appropriately scaled to the magnitude of the opportunity, which is moderate in the larger scheme of things, with the added idea that interconnections can improve the magnitude of economic opportunity. Group Comments: Participants felt it was important to not oversell the potential economic opportunities related to the future of the Ocklawaha River. That had been done in the past and it created a lot of distrust. Instead, the opportunities should be accurately characterized and linked to benefits that would be linked outside the direct region of impact. For example, increasing economic opportunities in the Ocklawaha River basin would increase regional and statewide travel and tourist related expenditures as people are drawn from outside the direct area. IV. Summary Statement Participants of the American Assembly public engagement process provided clear direction on the next steps for identifying and achieving a preferred future of the Ocklawaha River. The focus should be through the lens of the shared values identified in the Listening Sessions. In addition, a compelling vision should be developed that can be used to garner interest and support for actively pursuing economic opportunities in the immediate area as well as regionally and statewide. Finally, the process participants felt that it is important for the people impacted by River and those that use the River and related facilities be actively involved. V. Next Steps A design charrette using input from the American Assembly is the anticipated next step. The charrette is a public process to allow stakeholders and interested parties to provide direct input on the local-scale design of facilities and structural changes to the Ocklawaha River and Kirkpatrick Dam. Drawing tables with base maps are provided so that participants can draw their ideas on the maps. Design professionals or students would be present to answer questions and assist participants. The charrette is open to the public in an accessible location for 1-5 days. Once public input is complete, the design professionals and students would prepare a series of drawings/designs incorporating public input. The final products are presented during an open public meeting. Assistance from the University of Florida, Santa Fe College, and the St. Johns River State College in staffing and supporting the charrette will be considered.

When the charrette design is completed and presented to the public, a final summary report will identify key concepts from the three stakeholder engagement components and include follow-up action items. The report will be distributed and presented to local elected officials, key stakeholders, government agencies, and members of the public.

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References UF/IFAS: Economic Importance and Public Preferences for Water Resource Management of the Ocklawaha River. 2017. Borisova T, Bi X, Hodges A, Holland S. Gainesville (FL): University of Florida.

USFWS: Final Environmental Impact Statement for the Occupancy and Use of National Forest Lands and the Ocklawaha River Restoration Project, Marion and Putnam Counties, Florida. December 2001. Tallahassee (FL): National Forests in Florida.

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APPENDIX I: List of American Assembly Participants The following list of participants attended the June 29, 2018 American Assembly:

• Eric Nagid, Florida Fish and Wildlife Conservation Commission • Chris Spontak, Silver Springs Alliance • John Dunn, Silver Springs Alliance • Sandy Kokernoot • Paul Still • Rob Blount • Tim Keyser • Erika Ritter, Fishing Guide • Mickey Thomason, Florida Department of Environmental Protection • Gail Hankinson • Karen Chadwick, River Guide • Richard Hamann • Shannon Blankenship, St. Johns Riverkeeper • Mike Adams • Whitey Markle

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APPENDIX II: Group Comments Below are the rough notes taken during the June 29, 2018 American Assembly group discussions on the three topics of Environmental Restoration, Economic Opportunity and Implementation – Making it Happen.

Environmental Restoration

What is your preferred alternative and why?

! Overall, group says mix of alternatives Partial Restoration (3) and Full Restoration (4) ! Partial restoration (3) because most doable ! Partial restoration (3) because it affords more economic development/recreation ! Full restoration (4) because it fully restores natural floodplain (not addressed in partial restoration) ! Partial restoration (3) provides environmental benefits while still appeasing recreation, also to regrade areas completely as in full restoration (4) would be very expensive ! Everyone in the room supports alternatives 3 (n=8) or 4 (n=4).

Is there another alternative that is preferable?

! Phased approach to partial restoration (3) by reducing pool to spillway level (6 feet NGVD) ! Block off barge canal to establish fish pond separated from river ! In partial restoration (3), making sure to not have stagnant pockets, fill to levels that were originally there ! Tear out spillway and restore braided River channels ! Include removing Eureka Dam as part of partial restoration – increases economic/recreational/social opportunities. ! In both Eureka and Rodman dams, add multiple breaches with walkover or drive-over facilities and massive culverts to increase both public access and river connectivity

Are there other restoration actions or components that should be considered?

! Removing spillways and pools ! Provide boat ramp on St. Johns River side of Rodman dam to avoid concern about getting locked in/out in restoration

Additional notes:

! In case of partial restoration (3), spillway will remain (saves money) ! Partial retention (2) raises questions concerning hydrology ! Question the claim that Rodman is a “reservoir” – doesn’t function as one, was not designed as one, believe it’s a mistake to call it one ! Question the idea that a large number of anglers want to keep the dam – actually many people want restoration of the natural river fishery ! Anglers believe fish below the spillway are coming out of reservoir, when they are actually coming up from the St. Johns River ! Correct misinformation perpetuated by people who want to keep Rodman how it is now ! Very few people go out when the water is up; during drawdown is when people are fishing (as evidenced by the economic study, which shows better fishing during drawdown).

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! Property rights – look at how we set up programs to compensate private landowners impacted by lower water levels; some may be encroaching on land that is not rightfully theirs; docks could be seen as assets given to the state, perhaps make available to public; to reduce opposition, compensation may be needed.

Facilitator Takeaways:

! Most of the group in favor of #3 or #4 ! Surprise that the UF/IFAS 2017 Economic Report has not been much publicized ! Missing from the public discussion: Nobody has yet proposed a comprehensive restoration plan that includes improved recreation (e.g., fishing access, canoe/kayak access, hiking trails), compensation to private property owners, etc. ! Concept that restoration need not mean taking something away from people, whether its property values or recreational access or bass fishing – need a solution that improves all those things.

Economic Opportunity

What types of economic opportunities are best suited to the Ocklawaha River region?

! UF/IFAS 2017 Economic Study results: › Visitors coming from more than 50 miles away › 681 people total surveyed showing value of kayaking and canoeing rentals › Economic study did not include Silver Springs attraction – thoughts about the attraction being revived with restoration leading to economic benefit › Question for future surveys: Canoe/kayak rental demand/use/revenue as a separate line item › Average visitor from Florida spend $187/day compared with Rodman user spending $55/day (average from UF study) – is there an opportunity for tourism spending expansion here? ! Ocklawaha area doesn’t have a federally designated heritage corridor funded by Congress as do other regions; opportunity to create a heritage corridor to assist with marketing › Bartram National Heritage Trail designation already exists in Putnam County, which could tie in to promoting heritage tourism; Bartram Festival and St. Johns River are economic drivers for Putnam County that could extend into Marion County ! More facilities along the Ocklawaha River could increase visitation (cf: camping, lodging, paddling, and hiking facilities along the Suwannee River) › More lodging opportunities could increase visitor stays and spending › More concessions along the river could bring more economic activity, which is more attractive to the Chamber of Commerce (e.g., ecotour boats from Kenwood to Marion Blue Springs) ! People who are in Palatka are generally visiting the St. John’s River, not the Ocklawaha River ! The economic impact generally focuses on Palatka/Putnam County and we are leaving Ocala/Marion County out of these statements – the improvements could benefit both areas › Community of Silver Springs and all of Marion County should be included in plans › Should include “Palatka and Ocala” when making these statements because were too worried about Palatka and Putnam County solely

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Economic opportunities best suited to the Ocklawaha River: Without Restoration

! Kayaking and canoeing from Eureka downstream is rare when the water is high; the economic study agreed with this in that during drawdown is when kayaking/canoeing increases. At its current level, the river north (downstream) of Eureka is unappealing to kayaking/canoeing (vegetation, decreased flow) ! Private hotel accommodations/shops could be beneficial ! Consistently pointing out that the big fish caught in tournaments and other times are actually being caught in the St. John’s River and brought back

Economic opportunities best suited to the Ocklawaha River: With Partial Restoration

! Bass could be naturally reproducing in the river and big schools of catfish could come up to spawn the way they historically did ! Increased bank fishing opportunities ! Increased birding opportunities ! Increased hiking opportunities with additional dry land ! Increased canoeing/kayaking opportunities ! Increased wildlife viewing opportunities ! Increased presence of manatees at Silver Springs with better ability to migrate upriver ! Expanded hunting opportunities in the additional areas of dry land ! Increased recreation and swimming at the exposed springs ! The Palatka-to-Silver Springs connection could be restored via waterways and trails ! Boat-intensive bass fishing could be redirected by creating facilities along the remnant barge canal and St. Johns River

Where can recreational activity be improved?

! Buckman Lock: A boat ramp facility below the dam/lock could be provided to provide access to the St. Johns River ! Between Kenwood and Palatka: There is no place for a boat owner to launch between Kenwood and Palatka ! Eureka: Recreation here could be increased – there are plenty of facilities and trails, the west side of Eureka needs improvement in parking ! Orange Springs, Interlachen, Ft. McCoy/Eureka, Welaka (across the St. Johns from the outlet of the Ocklawaha River) ! KOA Campground: A privately owned recreational access area ! Florida DEP is working on an interpretive trail on the Greenway (from one end to the other) that can be a driving trail and with outdoor activities, as well as interpretive stories: › This could help bring people into areas not otherwise explored and could bring economic development › With drawdown of restoration, historic sites will be exposed out there ! Palatka-to-Silver-Springs Connection: multi-modal recreational opportunities in a single visitor trip (bicycling, paddling, hiking) ! Marion Blue Springs: interconnected recreational opportunities ! There is no aggressive maintenance of current facilities, so the paddlers’ and boaters’ use of the river is limited due to aquatic vegetation

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Who should be involved with and lead the opportunity activities?

! Florida State Parks, Office of Greenways and Trails ! Visit Florida ! Florida Fish and Wildlife Conservation Commission: Layouts of paddling and hiking trails, Florida Birding Trail (Rodman should be on here, but isn’t) ! US Forest Service ! Defense Department, Strategic Lands Initiative: DOD is buying buffers around their lands; there presently is a study group in Florida for this (DOD owns a bombing range below the dam and between the river and spillway canal) ! Benefits of restoring 19,000 acres of forest as possible Wildlife Management Area ! From a broader ecotourism perspective, it is important to include Rails to Trails (Palatka) ! St. Johns River Water Management District (possibility to coordinate on flows from the upper Ocklawaha into the river at Moss Bluff)

Facilitator Takeaways

! Need to increase clarity about the four possible restoration scenarios and their costs and benefits. ! Creative thinking about a compromise scenario, but needs further development. ! Economics are very place-based and there is a very good opportunity with local knowledge at the charrette to talk about specific places and visitor infrastructure improvements.

Implementation

! Lobby for operational change › Substantial management changes not consistent with ten-year management plan will likely end up in court, which is very costly ! Identify a preferred water level between 3.8 and 18 feet NGVD – is there an intermediate level that would be a good first step? › Requires approval from senior DEP officials and Tallahassee ! Work in stages to minimize lawsuit risks › Let people visualize with models showing what restoration would look like ! Establish a collaborative group, public and private working together › Need a catalyzing group to pass a restoration project so funds can be provided › Get people together to support more than one cause at once (e.g., the draft mockup of Silver- Ocklawaha Blueway plan) ! Communicate with public in any conceivable way (presentations, case studies, meetings, etc.) › Overwhelming majority of people not informed – conduct public education on benefits of restoration › Need information in a useful one page document, something quick and convenient › Take key points from studies to simplify mass of information into something more understandable › Create tools like a one-page piece of compelling information (e.g., fact sheets, posters) › Must publicize using social media/internet/radio stations (have someone interviewed) › Online access, physical worksheets › Publicize UF/IFAS 2017 economic study (available online to the public) › Give talks at meetings

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› Have someone interviewed on radio stations to raise awareness about economic study (HOPE radio, WPLK AM) › Use common-language words that motivate (see Water Words that Work, Virginia lobbying firm) ! Fear of change inclines people to react › In this case, fear is a reason to keep the “no action” alternative › How do we replace fear to keep status quo with fear to drive action? ! Strategies to effect change: › Need public demand to lead change › Identify key decision makers › Identify leadership champion(s) to initiate changes, people in whom the public has confidence › State of Florida and U.S. Congress have stated a desire to restore the river, however money has not been provided to pursue restoration in any way; need updated cost estimates for restoration (estimates range from $4-25 million, but these numbers are outdated) › Give physical copies of information to representatives/legislatures (e.g., maps, documentation, proof of facts) ! Persuasive information to share: › Publicize compelling stories › Show the benefits of economic development and public infusion of money (recreation, lodging, so on) › Concessions create job opportunities that can keep young people in the area › Fish reduction due to dam’s existence (per Bob Knight) › Reservoir as alternative freshwater supply is a specious argument, needs to be presented to higher levels to explain why › St John’s River Management released report saying that Ocklawaha restoration will NOT harm St. John’s River › Poll 2 years ago, highest in 2001 ! How to deal with opposition: › Need to set aside the back-and-forth arguments with facts, supporting information from agencies, incorporating elements that dispel common myths to emphasize compelling vision › Be prepared to counter negative social media, which may pose a challenge ! Creating a vision of the future: › Establish a compelling vision to convince people of the value of return on investment (need perceived value through graphics, studies, so on); this is where collaboration may be most crucial to build consensus › Use of economic study to help create the vision of restoration › Have UF graduate students make dioramas = something visual and physical to subsequently inspire change, consider digital models › Emphasize idea that this is a statewide issue, not necessarily just an environmental movement (sell to the public) › Address the history of “Kirkpatrick” dam

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Facilitator Takeaways

! Need to clarify WHO the decision makers are that can make restoration happen and HOW to best make restoration happen. ! Need to identify the barriers that need to be overcome in pursuing restoration. ! Need to have champion(s) at multiple levels, from existing support groups and from higher leaders who can “part the waters” for the project.

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APPENDIX III: Questions Needing Answers The following questions and comments were made during the June 29, 2018 American Assembly that require further research or action.

• Bring in other examples of dam removal projects and costs/benefits that occurred (cf: Kissimmee River restoration process) • Participants were asked which of the four alternatives from the 2001 EIS they preferred. Below are the results: o 0 votes – Alternative 1: Full Retention of the Rodman Reservoir, No Action o 0 votes – Alternative 2: Partial Retention of the Rodman Reservoir o 8 votes – Alternative 3: Partial Restoration of the Ocklawaha River o 4 votes – Alternative 4: Complete or Full Restoration of the Ocklawaha River • Identify the role/function of the Eureka Dam • Prepare a graphic showing partial restoration with access points – Dr. Xian Bi from UF has done some work in this area • Get copies of conceptual plans prepared for Eureka Dam from Mickey Thomason • Research data on canoe and kayak use and economic activity • Research proposal prepared for DEP for tournament at Kenwood and Palatka • Gather and research DEP inventory of historic areas (along the Ocklawaha River) • Investigate designation as Sentinel Landscapes from DoD related to buying buffer lands • Prepare a one-pager summarizing key points from UF Economic Study • Investigate Water Words that Work by Eric Echols • Collect and research SJRWMD report that documents a restored Ocklawaha River does not pollute St. Johns River, author Hendrickson

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APPENDIX IV: Briefing Papers Below are the briefing papers prepared in advance on the three topics of Environmental Restoration, Economic Opportunity and Implementation – Making it Happen.

Briefing Paper: Economic Opportunity UF Economic Study1 The University of Florida prepared an economic impact analysis to assess the economic risks and benefits of recreational use of the Ocklawaha River and the Rodman Reservoir. The study’s main objectives were to:

1. Examine the recreational use (number of visitors and their origin, types of activities, and the use during drawdowns and normal water-level management) of the Ocklawaha River, Silver River, and Silver Springs. 2. Assess the direct/indirect impacts of visitor spending on the local economy 3. Estimate visitors’ willingness to pay for recreational use of these locations2

Methodology The study was done utilizing an interview survey design. A sampling tactic was created so those surveyed are a representative sample of the population of visitors3. The five interview locations included Kirkpatrick Dam and Recreational Areas, Kenwood Landing, Eureka Dam (West), Ray Wayside Park, and Silver Springs State Park; each of these locations represents the three kinds of amenities available: the reservoir, the natural stretch of river, and springs. The interviews were conducted during March of 2016 and 2017 because this is peak season, and because March 2016 captured the drawdown of the reservoir that occurred from November 2015-March 2016. To assess the economic contributions (indirect and direct) the IMPLAN software was employed, as its purpose and previous use is to evaluate regional economic impacts of events, policies, programs, etc. Below is a brief description of the trip attributes that were used in the study.

1. Trip Characteristics

The trip characteristics were evaluated in terms of the length of stay and party size. 82% of respondents were at their respective location for a day trip, and only 18% stayed overnight. 90% of respondents indicated that their party was 3 adults or less.

1 Borisova, T., Bi, X., Hodges, A., Holland, S. (2017). Economic Importance and Public Preferences for Water Resource Management of the Ocklawaha River. Retrieved from University of Florida Institute of Food and Agricultural Sciences. 2 Kirkpatrick Dam and Recreation Areas, Kenwood Landing, Eureka West, Ray’s Wayside Park, Silver Springs State Park 3 Visitors are measured as a group of people arriving in one vehicle.

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2. Recreational Activities

Comparing the interviews from 2016 and 2017 (drawdown period and normal water-level management period, respectively) canoeing, kayaking, and paddle boarding were more popular during the drawdown period than the latter.

3. Fishing

Shore fishing was most prominent at the Kirkpatrick Dam and Rodman Reservoir sites with 49% of them at the Spillway Canal. Fishing from a boat was most prominent (56%) at Kenwood Landing. Economic Impact of Visitor Spending The information for this evaluation was gathered using the number of visitors annually, and the activities reported in the 2016 and 2017 interview surveys. The number of visitors annually from 2003 to 2017 was analyzed and the conclusion was that each year the number of visitors decreased by about 4334 on average. In 2017 the Rodman Reservoir saw about 100,000 visitors total, and the Ocklawaha River/St. John’s River sites saw about 255,000 visitors total. The spending of each visitor group was analyzed using average trip spending amount by category: food and beverage at retail stores, lodging, rental cars, gas, fees, transportation, entertainment, recreation gear, shopping, and other purchases. These variables were measured at the river recreational sites and the reservoir recreational sites. The estimated Total Annual Visitor Expenditures by Local/Origin and Recreation site showed a total of all expenditures being 6,028,697$ at the Rodman Reservoir, and $13,629,333 at the Ocklawaha River. The total impact of recreational activities at the Rodman Reservoir and Ocklawaha River were analyzed regarding value added as GDP and the results were $4,117, 781 for the Rodman Reservoir and $8,508,074 for the Ocklawaha River. Conclusions and Implications The analysis of all the visitor expenditures shows that greater contributions to the local economy come from the activities performed on the natural stretches of the Ocklawaha River, compared with those on the Rodman Reservoir. Since shore fishing is so popular on the Spillway Canal, if the River is restored then maintaining those shore-fishing opportunities should be prioritized. Results showed that awareness of the Reservoir drawdown period was lower in areas outside Kenwood Landing, so educational programs could prove useful in making residents of the area, and visitors, aware of the current conditions of the Ocklawaha River and Reservoir water management.

Briefing Paper: Environmental Resources Existing Conditions Currently, Rodman Reservoir suppresses water flow to 20 or more different natural springs. It has been estimated that spring flow suppression may be as much as 150 million gallons of water per day4. The large surface area of the reservoir leads to considerable greater net evapotranspiration losses of freshwater compared to the original condition of the river (approximately 10 million gallons per day). The dam is a significant impediment to the movement of many species including manatees. Manatees

4 Ted Williams, Audubon, July-August 2012 (https://www.audubon.org/magazine/july-august-2012/has-one-florida-dams-day- finally-come)

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in the area were occasionally injured or killed by the lock while trying to pass through although subsequent safeguards have substantially reduced the risks for manatees. The Florida striped bass has left the river due to lost spawning habitat in the Silver and Ocklawaha rivers. Aquatic vegetation management is a significant issue due to changes in water temperature, flow velocity, and excessive nutrient accumulation behind the dam. Aquatic vegetation issues can only be partially controlled using various aquatic management techniques including application of significant quantities of toxic herbicides. This has led to limitations in public access particularly to the impounded portions of the river. Addressing Concerns of Restoration With restoration of the River there is concern about the release of nutrients downstream into the St. Johns River. While such nutrient releases would be inevitable with river restoration, the impacts of such releases have recently been addressed by the St. Johns River Water Management District. The District found that such releases can be managed without adverse consequences to the St. Johns River5 Some sport fisherman have expressed concerns about decreased opportunities for fishing tournaments in the region, particularly for largemouth bass. However, given the abundance and statewide distribution of this species, this concern may not be an issue. Addressing Concerns of Reservoir Existence While the reservoir has provided additional habitat for some very common fish (including such aliens as tilapia and armored catfish), it has eliminated or harmed many more species than it has helped. For example, a few mullet make it through the lock, but they’ve basically been shut out of the system. They used to swarm up into Silver Springs, grazing on algae and surface scum, thereby removing some of the nutrients that now degrade water quality there and in the river.

The dam also blocks the migration of American eels, American shad, channel catfish, white catfish, Atlantic sturgeon, and endangered short nose sturgeon. And it has extirpated most Florida-strain striped bass from the state by denying them access to their primary spawning habitat—the Ocklawaha and Silver rivers. Now the only stripers in the entire St. Johns system are non-reproducing, northern-strain hatchery fish. Listening Session Inputs At the October 24, 2017 Listening Session held at the Palatka Beef O’ Brady’s Robin Lewis reminisced on the last 67 years of fishing on the Ocklawaha River. He remembered his father catching large Florida striped bass all the time. The restoration of the Ocklawaha River would bring this reality back to fruition. Donnie, a member of the St. John’s River Listening Session on October 30, 2017 in Palatka, told stories about when he would visit Marion Blue Springs when it was completely clear; he used to travel the length of the Ocklawaha River before it was sectioned off for the Cross Florida Barge Canal. In the same St. John’s River Listening Session, Mary tells about the letters from family members who remember what it was like to take a boat passage from the Ocklawaha River all the way to Jacksonville, Florida. The perception of bass fishing is that it is abundant in the reservoir, and those who express their affinity for maintaining the dam have good intentions. An unnamed participant of the Orange Springs Civic Center Listening Session on November 9, 2017 in Orange Springs, provided input regarding the pleasing nature

5 Hendrickson, J. (2016). Effects on Lower St. John’s River Nutrient Supply and TMDL Target Compliance From the Restoration of a Free Flowing Ocklawaha River. SJ2016-1. St. John’s River Water Management District, Palatka, FL

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of seeing both pros and cons of restoration and how important it is to address the nature of both possible outcomes.

Briefing Paper: Implementation – Making it Happen Possible Future Actions In 2001 the US Forest Service published an Environmental Impact Statement (EIS) prepared to assess potential impacts associated with removing the Rodman Dam. The EIS evaluated four alternatives and they are briefly summarized below. 1. Full Retention of the Rodman Reservoir (No Action alternative)

Retaining the reservoir at its current size and depth, with options for active management to enhance fish and wildlife. Removal and/or alteration of structures and topography would be limited. The water level in the reservoir would generally be maintained at an elevation of 18 feet NGVD. 2. Partial Retention of the Rodman Reservoir

Reducing the water level of the reservoir to 14 feet NGVD so that a part of the river can be restored and a part of the reservoir can be retained. Active management for fish and wildlife as described for the no action alternative would continue and would involve restoration of river hydrology and floodplain function in that part of the river to be restored. Structural modification and alterations in topography would be limited. 3. Partial Restoration of the Ocklawaha River (Preferred Alternative)

This plan will restore river hydrology and floodplain function to historic conditions through breaching the dam, with limited removal and/or alteration of structures and topographical manipulation, and allowing for restoration by natural processes. 4. Complete or Full Restoration of the Ocklawaha River

Restoring river hydrology and floodplain function to preconstruction conditions, removing all structures, and returning the topography in the impact area to preconstruction conditions. Considerations If the current size and depth of the Rodman Reservoir remain unchanged, or if the Reservoir is partially retained (options 1 or 2) there will be certain actions that need to be taken in order to maintain and fund the existing water control structure and the dam. The dam must be maintained and improved to continue safe operations; the aquatic vegetation must be managed in terms of the overgrowth and blocking of some ramps for access by boats, kayaks, and canoes; access issues have to be accounted for and the solutions have to be planned, carried out, and paid for.

If there is partial restoration of the Ocklawaha River (option 3) there will be maintenance and operations as well. There will need to be active restoration of river hydrology and floodplain function, which takes time, money, and foresight. If there is full restoration (option 4) it will take planning and operations to fully remove the dam and to return the topography to pre-construction conditions.

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Questions There are inevitable questions that need to be answered in order to proceed in any direction. There are four main questions that come to mind when considering any outcome:

• What specific actions should local and state elected officials take? • In the event of restoration, who should fund the operations? o In the event of no action, who should fund the aquatic vegetation management, maintenance, and access improvements? • What private and nonprofit organizations should be involved and what roles should they play? • Who will implement the recommendations, either restoration or no action Funding The current situation is not sustainable. There is insufficient funding allocated to safely maintain the current structure and there are no funds currently allocated for an alternative scenario.

Regardless of the future action chosen, funding will be required. If the dam and reservoir are preserved, funding will be required to operate and maintain the dam and existing infrastructure. If another alternative scenario is chosen funding will be required to implement that alternative including future operations and maintenance.

Funding must originate from somewhere, which suggests coordination with organizations, privately or publicly funded, to take action. Some of the possibilities could include Fish and Wildlife Fund, Florida Department of Environmental Protection, Florida Greenways and Trails, etc. It has been established that in a no-action scenario, partial retention, partial breach, or complete restoration that use of funding will be necessary. Listening Session Input There were five listening sessions that took place to discuss the public perception and the public opinion of the fate of the Kirkpatrick Dam: October 24, 2017 at Beef O’ Brady’s in Palatka; October 30, 2017 at St. John’s River College in Putnam County; November 1, 2017 at Santa Fe College in Gainesville; November 6, 2017 at Marion County Public Library Headquarters in Ocala; November 9, 2017 at the Orange Springs Civic Center. In these five listening sessions the attendees were given time to express their personal opinions and experiences with the Ocklawaha River and the Rodman Reservoir. It was observed that there were a few common topics and overall themes that represented themselves in almost every session.

• First, property rights and the politics of private vs. public property was a large topic for concern no matter what the speaker’s opinion of the Reservoir was. The issue of preserving public property rights to maintain access to the Reservoir and the River was deemed very important by many. Some discussion took place regarding the private property promised to those who lost property during construction of the Cross Florida Barge Canal and how that promise went unfulfilled. • The second common theme was the history and legacy of the Ocklawaha River. It was established that the history of both the Reservoir and the River are important to different groups of people. One speaker shared a story referencing memories of fishing and hunting for the last 67 years along the River and how important that activity is to daily life. Another

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participant shared a story about how the River used to be called the “Main Street” since it was the commonality that interconnected so many waterways. • A third shared value was the future of access to the Reservoir and River. It is important that access to these places remain diverse. A concern was that if the dam were breached, bass tournaments would suffer, or even cease to exist. Another concern was for the maintenance of the Bartram Trail and Blueways Trail for hiking and biking along the River. These concerns are all valid, as discussions of the fate of the Kirkpatrick Dam have been convoluted over the years. Every concern deserves to be properly addressed and dealt with so there is a healthy and productive solution.

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APPENDIX V: Listening Shared Values Shared Values Heard During the Listening Sessions

Five Listening Sessions were held between October 24, 2017 and November 9, 2017 in Palatka (two meetings), Gainesville, Ocala and Orange Springs for residents to share their stories about what it was like growing up on the Ocklawaha River, describe how the river can be protected and restored while increasing jobs and expanding the economy, and explain concerns about keeping or removing the Rodman Dam. Approximately 45 people attended the meetings with several people attending more than one session. The purpose of the meetings was to hear from the attendees. Detailed notes were taken during the meetings.

Several themes or values were identified and shared by people in attendance at the meeting including those interested in breaching the dam and people interested in preserving the dam. These shared values provide a foundation for moving forward in identifying and designing strategies for improving the river and local economy.

Shared Value: Recognize and Preserve Property Rights The issue of public and private property rights was raised at nearly every meeting. The issue of recognizing and protecting public property rights was brought up to ensure public access to the reservoir and river. There was a concern that if too much of the property surrounding the river and reservoir was in private ownership the public’s access would be limited. This pertained to fishing tournaments as well as shoreline fishing and access for kayaking and canoeing. There was also a concern that private docks are being constructed on public lands. The docks encroach into the reservoir and can create a safety hazard and establish uncertainty in public access opportunities.

Private property rights issues were raised going back to when the Cross Florida Barge Canal was originally designed and segments of it built. Private lands were acquired for the canal and in that process some participants indicated that private rights were promised but not established. In one case a participant described that the Federal government had purchased private lands with the understanding that the seller would maintain access to the river, which did not occur due to lowering of the river water level and increased muck levels and silting.

Shared Value: Honor and Respect the Local History and Legacy Honoring and respecting the history and legacy of the river and reservoir was shared at every meeting. The river and reservoir are important historic and cultural resources to local residents, land owners and people who access them. This relates to local residents as well as visitors who travel from outside the region. People link their identities and legacy to the river and reservoir. This is true for formal activities like bass fishing tournaments as well as less formal activities like swimming, canoeing and picnicking.

We heard stories from a 7th generation “Palatkan” remembering his dad catching striped bass and seeing five foot long gar swimming in the river prior to the dam. One resident shared his 67 years of history fishing and hunting in and along the river.

It was stated that many African Americans attended a local meeting related to Paradise Park and shared stories about the importance of the river to their social identity and that we should reach out to the African American community.

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A participant shared how the river used to be called “Main Street” due to its use by riverboats and tourist boats connecting communities along its banks. It was the primary way to access businesses, camps and cities on and near the river. Tourists took overnight excursions on the Ocklawaha River from the St. Johns River to Silver Springs to view manatees at the springs.

Shared Value: Maintain and Improve Fishing and Local Wildlife Many participants shared a sense of loss of what the river used to be like prior to the dam. Fish diversity and numbers are down significantly from when they were growing up on the river. People remember seeing and catching striped bass, and a wider variety of fish than is present now. There were also manatee that used to freely migrate through the Ocklawaha River between the St. Johns River and Silver Springs.

There was also a concern that if the dam were breached, bass fishing in what is now the reservoir would disappear or be reduced.

Participants consistently commented that restoring the river would result in improved access which would mean increased local businesses that support fishing, kayaking, camping, canoeing and other related recreational uses.

Shared Value: Expand and Protect a Diversity of Access Numerous participants recognized how the local economy near the river and reservoir could benefit by increased access and use of the resources. It was stated that the access should be planned and integrated into the local economy in a way that the water resources were sustained and that residents could benefit economically.

The subject of access was raised consistently during the Listening Sessions. A concern was raised that if the dam were breached bass tournaments would no longer be viable. Several people stated they have observed that during periodic drawdowns of the reservoir public access along the reservoir and river actually increased due to the reduction of aquatic vegetation and easier shoreline fishing access.

Integrating the river with local and regional hiking and biking systems like the Bartram Trail and the Blueways and Trails was offered as a way to build on existing recreation facilities.

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