Lake Istokpoga Watershed Management Plan

Lake Istokpoga Watershed Management Plan – A Long-Term Strategic Plan to Protect Lake Istokpoga and its Watershed

Prepared by the Lake Istokpoga Management Committee

For the Highlands County Board of County Commissioners

2019

Page 1 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Table of Contents Acronyms / Glossary ______3 Executive Summary ______4 Preamble to the Watershed Management Plan for Lake Istokpoga: ______4 MISSION STATEMENT for the LAKE ISTOKPOGA MANAGEMENT PLAN: ______5 Chapter 1 - Introduction ______6 The Management Plan ______6 Structure of the Plan ______6 Lake Description and Regional Hydrology ______8 Brief Lake History ______9 1. 1936-1962 – Pre Flood Control ______9 2. 1963-1989 ______11 3. 1989 - present ______13 Regional Trends from present through year 2020 ______15 1. Population growth ______15 2. Water use ______16 3. Exotic plants and animal ______16 4. Budgets ______16 5. Climate Change ______16 6. Lake Regulation Schedule ______17 Chapter 2 – Summary of Objectives ______Error! Bookmark not defined. Chapter 3 – Habitat Management Objective (#1) ______Error! Bookmark not defined. Chapter 4 – Water Resources Management Objective (#2) ______Error! Bookmark not defined. Chapter 5 - Watershed Management Objective (#3)______Error! Bookmark not defined. Chapter 6 – Local Economy Objective (#4) ______Error! Bookmark not defined. Chapter 7 – Social Education Objective (#5) ______Error! Bookmark not defined. Chapter 8 – Implementation of the Plan ______Error! Bookmark not defined. REFERENCES ______28 ATTACHMENT A: MINUTES FROM NOVEMBER 17, 1998 LIMC MEETING ______29 ATTACHMENT B: MAJOR AREAS OF CONCERN ______36 ATTACHMENT C: TEXT OF LETTER FROM FWC’S LAKE ISTOKOPOGA STANDING TEAM ______38 ATTACHMENT D – LONG TERM PLANT MANAGEMENT OBJECTIVES ______40

Page 2 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Acronyms / Glossary

The variety of organisms, habitats and ecosystem functions (eg. plants, Biodiversity plant eating animals, animal eating animals, scavengers and decomposers) that create a sustainable ecosystem in a given area BMP Best Management Practice CFRPC Central Florida Regional Planning Council FDACS Florida Department of Agriculture and Consumer Services FDEP Florida Department of Environmental Protection FOI Friends of Istokpoga FWC Florida Fish and Wildlife Conservation Commission Industrial Development Authority – Economic Development IDA – EDC Commission KRR Kissimmee River Restoration LDRs Land Development Regulations LIMC Lake Istokpoga Management Committee MS4 Multiple Separate Storm Sewer System NPDES National Pollutant Discharge Elimination System SFWMD South Florida Water Management District SMART Specific, Measurable, Attainable, Related to the key issue, and Time Goals specific Goals SWFWMD Southwest Florida Water Management District TDC Tourist Development Council USACE U.S. Army Corps of Engineers

Page 3 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Executive Summary

Preamble to the Watershed Management Plan for Lake Istokpoga:

The purpose of this plan is to communicate and educate the community on the objectives and goals of the Lake Istokpoga Management Committee (LIMC) regarding management of Lake Istokpoga and its watershed. The plan does not replace existing plans or usurp legislatively mandated activities from legitimate agencies. However, as has been the function of the Lake Istokpoga Management Committee in the past, this plan will provide citizens of Highlands County with a greater opportunity to influence management activities in the Istokpoga watershed. The LIMC is the only organization consisting of interested citizen groups, both private and non-governmental, that has been authorized by the Highlands County Board of County Commissioners to develop, present and seek approval of a management master plan for Lake Istokpoga. This plan is being recommended to the Highlands County Board of County Commissioners for approval and adoption.

The purpose of this plan is to help develop mechanisms to manage a renewable and sustainable Istokpoga ecosystem, restoring the long-term ecological health of the lake. The plan will achieve this by examining the recent history of the lake, identifying current and future trends in the ecology of the lake and building consensus within the LIMC as to key aspects of the lake. The plan must also acknowledge the importance of lake front residents and lake-dependent businesses; without the support of the first and without supporting the second, the plan will lose its most important constituents. The plan will act as a clearinghouse to identify agency responsibilities, as well as existing and future management plans from other agencies. The LIMC has approved a mission statement, objectives to address this mission statement, goals to meet these objectives, and identified measurable actions to achieve these goals for long-term, sustainable management of Lake Istokpoga.

Page 4 of 43 May 2018 Lake Istokpoga Watershed Management Plan

MISSION STATEMENT for the LAKE ISTOKPOGA MANAGEMENT PLAN: To influence and support the efforts of state and regional plans to manage a renewable and sustainable Istokpoga ecosystem and restore long-term ecological health of the lake while preserving the lake’s economic value. Objectives: 1. Habitat management: Influence, support and assist in the coordination of agency and private enterprise habitat management activities emphasizing long-term habitat management for Lake Istokpoga 2. Water resources management: Assist in the protection of current water resource uses and future water resource needs and provide goals that either can be implemented locally, or can influence water resource policies relative to Lake Istokpoga. 3. Watershed Management: Support and improve current watershed management activities while strengthening efforts to protect the water entering the lake from pollutant loading and habitat impairment. Agencies involved in regulating watershed management activities for Lake Istokpoga include the Florida Fish and Wildlife Conservation Commission, the South Florida Water Management District, the Southwest Florida Water Management District, the Florida Department of Agriculture and Consumer Services, the Florida Department of Environmental Protection, the U.S. Army Corps of Engineers, the U.S. Fish and Wildlife Service and Highlands County. 4. Local Economy: Support a local economy that fits with the other objectives particularly in terms of sustainable lake-dependent businesses. 5. Social Education: Create awareness of existing rules, guidelines and policies regarding use of the lake and associated facilities. Through the adoption of this plan by the Highlands County Board of County Commissioners, the Lake Istokpoga Management Committee is striving to protect Istokpoga and its watershed. This plan calls for working with partners to ensure that these objectives are coordinated with both local and regional planning efforts that will affect the watershed. This plan will be implemented by way of ongoing educational campaigns, effecting modifications to the Highlands County Comprehensive plan and other regulatory agency plans, as provided by law, and obtaining support and leverage from non- regulatory groups and entities to accomplish the goals of these objectives.

Page 5 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Chapter 1 - Introduction

The Management Plan

The purpose of this plan is to communicate and educate the community on the objectives and goals of the Lake Istokpoga Management Committee regarding management of Lake Istokpoga and its watershed. The plan does not replace existing plans or usurp legislatively mandated activities from legitimate agencies. However, as has been the function of the Lake Istokpoga Management Committee done in the past, this plan will provide citizens of Highlands County, with a greater opportunity to influence management activities. The LIMC is the only organization consisting of interested citizen groups, both private and non-governmental, that has been authorized by the Highlands County Board of County Commissioners to develop, present and seek approval of a management master plan for Lake Istokpoga. This plan is being developed for recommendation to the Highlands County Board of County Commissioners.

The purpose of this plan is to develop mechanisms that will support state and regional plans to manage a renewable and sustainable Istokpoga ecosystem that restores long-term ecological health of the lake. The plan will achieve this by identifying state and regional agency responsibilities, agency plans being developed for Istokpoga, major areas of concern for management of Istokpoga, baseline existing and on-going plans, and identify measurable strategies to achieve these goals. During the development of this recommended plan, the working group has had to avoid being pulled into detailed discussions as to specific details of science or public policy, referred to in short-hand below as being dragged into the weeds. This plan cannot propose to make policy or dictate agency actions. It is intended as a guide for future efforts to support management of Lake Istokpoga and will be reviewed on an annual basis.

Structure of the Plan

This draft Lake Istokpoga Management Plan is structured to support the mission statement of the management plan, provide defined objectives for future lake management activities based on local needs and anticipated trends for the future, and define SMART goals as vehicles to meet the larger objectives.

Page 6 of 43 May 2018 Lake Istokpoga Watershed Management Plan

The plan will first set the Istokpoga watershed stage, past and present. Second, it will present future trends for Highlands County in terms of environmental regulations, land use change, resource competition (for example water reservations for agriculture, recreation, the environment, flood control, human consumption), human and animal population dynamics, and other topics. Finally, the plan will then use projections from these trends, arrived at through discussions of the LIMC, to define objectives for providing support for the management of a sustainable Istokpoga ecosystem. Strategies, tactics, and actions will be addressed as actions for the LIMC.

The Management Plan follows hierarchy of: Mission Statement, Objectives, Goals, Strategies, Tactics and Actions. 1. Mission Statement, leading to overall a. Objectives, each of which is addressed by one or more goals. i. Goals. Goals may apply to more than one Objective. Goals need to be SMART: 1. Specific and clearly stated 2. Measurable and based on data 3. Attainable and realistic 4. Related to the key issue or objective (remember – one goal can be used for more than one Objective) 5. Time specific ii. Goals are reached using strategies – the hierarchy from this point down is more detailed than this plan will address but is presented for information. 1. Strategies, Strategies are more specific descriptions of what is necessary to meet the Goals and Objectives. Strategies depend upon tactics. a. Tactics. Tactics are assignable program requirements for lake management, accomplished by one or more actions. i. Actions: Actions are specific and timely operations which address a lake need, supporting the applicable tactic. This plan will refine the objectives and the goals to support them. Development and implementation of the supporting levels (strategies, tactics and actions) will remain at the discretion of the responsible state and local agencies identified in this plan.

Page 7 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Lake Description and Regional Hydrology

The Istokpoga watershed is 604 square miles (388,000 acres) extending from Lake Annie in the southernmost portion of the Lake Wales Ridge, to Crooked Lake, immediately south of Lake Wales itself; the watershed is in both Polk and Highlands Counties. The lake surface at median pool is approximately 27,600 acres, making Istokpoga the 5th largest in Florida. The average lake depth is 3.5’, with a maximum depth of 8’ to 10 feet. The lake serves as the number one source of permitted surface water supply in the Kissimmee Valley, with outflows ranging from 150,000 to 200,000 acre-feet per year. A record of lake water levels has been kept since 1936 (Figure 1). Seasonal rainfall and evaporation patterns, historic creek flows and other climatological aspects of the annual average water budget for the Lake Istokpoga Watershed.

Figure 1. Istokpoga Monthly Average Level, August 1936 to July 2015.

Page 8 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Brief Lake History

Lake Istokpoga has functioned differently during its modern phases, 1936 to 1962, 1963 to 1989, and 1990 to present. These are roughly defined by changes to the lake fluctuation regime and are roughly equal in length. Though the present period is the shortest, there has been far more active lake management during it than during the previous years combined

1. 1936-1962 – Pre Flood Control

Water level recording by the US Geological Society (USGS) began in 1936 and records date from then. During this period, Lake Istokpoga water levels fluctuated from 36.5’ to 41.5’ annually, with extreme high and low levels noted during some years (Figure 2). The USGS installed a staff gage on Arbuckle Creek in 1939 and daily data are available from that time. Figure 2. Istokpoga Monthly Average Level, August 1936 to December 1962.

Page 9 of 43 May 2018 Lake Istokpoga Watershed Management Plan

During the 1940’s, the G-85 water control structure was constructed on Istokpoga Canal by landowners. Anecdotal evidence suggests that cattle and humans could walk to the two interior islands in times of low water before 1963.

Pre-development, the lake elevation was maintained by rainfall, stream flow down Josephine and Arbuckle Creeks, seepage (as inputs) and evaporation, stream flow (through Istokpoga Creek – Canal), and surface sheet flow across the area currently known as the Indian Prairie (located south and east of Istokpoga). On average the lake fluctuated naturally by three feet from the dry season (May) to the rainy season (October).

During the periodic flood cycle, organic matter was washed from the lake into extensive marsh downstream between Istokpoga and Okeechobee. This kept the land between Istokpoga and Okeechobee flooded for months, in a fashion similar to the Everglades, though the productivity in Istokpoga may have been much greater, given the muck accumulation downstream. During the periodic drought cycle, the lake was drawn back shallow enough to access the islands by foot at times – estimates are that during dry periods, 2,500 acres of lake bottom were exposed and dried. Muck fires were reported along the shore, removing more organic matter from the lake margin. The flood-drought system worked to remove excess organic matter from the lake margin itself and move built-up tussock to the area between Istokpoga and Okeechobee. This is illustrated in aerial photography of the mouth of Arbuckle Creek fortunately taken 18 months apart, in 1943 and 1944 (Figure 3).

Summarizing the pre-development era, water levels fluctuated naturally, periodically flooding the land around the lake as high as 43 feet NGVD 29 (Figure 2). Consumptive use of water was at most a minor fraction of the water budget. Tussock islands probably developed, but were washed out of the lake during floods or stranded on shore during drought. The land around and upstream of the lake was primarily open, with some small farms. In 1948, The Istokpoga Canal (formerly Istokpoga Creek) was completed. By 1962, the C41-A canal was completed for flood control and water supply. Figure 3. Aerial photograph from 1943 – 1944 from the mouth of Arbuckle Creek showing water level range. Image from Highlands Soil and Water Conservation District

Page 10 of 43 May 2018 What is Killing the “Waters of Death”? An update on Water Quality and Lake Management for Lake Istokpoga Presented as the next to last talk at the 12th Annual Southeastern Lakes Management Conference, June 5, 2003 Orlando, Florida Clell Ford and Jennifer Brunty Highlands Soil and Water Conservation District Istokpoga - Waters of Death: Given its name by the native Americans - Allegedly because of the number of tribe members lost when sudden storms capsized their boats. Are we now exacting our revenge on the lake? Is it to die a slow and agonizing death right before our eyes? Can I be a little less melodramatic? Outline History of the Lake Pre-development era (before 1962) Flood Control era (1962 - present) Water Supply era (1980 - present) Lake resident activism era (1988 - present) Underlying water quality past (15 years ago) and present Nutrients Flow and levels Possible - proposed solutions Istokpoga: Watershed is 604 square miles (~388,000 acres) Lake surface at median pool is ~27,600 acres Lake is the 5th largest in Florida Straddles two Counties Drainage basin is 1/2 SFWMD, 1/2 SWFWMD (oops!) Lake depth average ~ 3.5’ Maximum depth ~ 8’ Number one source of permitted surface water supply in the Kissimmee Valley - 150,000 - 200,000 acre-feet per year

Istokpoga - Suspects in its death : Water level regulation for flood control and water supply (and the natural environment?) Explosive growth of tussock islands since mid-1980s Changes in upstream land use Hydrilla - first reported in 1979, lake-wide treatment by 1988 Agriculture - the villain elsewhere in Florida can’t be innocent here Old age? Istokpoga Water levels 1936 - 2003 Pre Development Era Lake fluctuated naturally - by 3 feet from the dry season (May) to the rainy season (October) Flood - cycle Washed organic matter from the lake into extensive marsh downstream - Kept land between Istokpoga and Okeechobee flooded for months (sound familiar?) Drought - cycle drew the lake back shallow enough to access the islands by foot Muck fires along shore were reported System worked to remove build-up of tussock Flooded area between Istokpoga and Okeechobee Arbuckle Creek Mouth 1943-1944 Arbuckle Creek Mouth 1943-1944 Summary of pre-development era (before 1962): Water levels fluctuated naturally Water supply consumption was a small fraction of the water budget Tussock islands probably developed, but were washed out of the lake during floods or stranded on shore during drought Land primarily open land, with some small farms Sounds idyllic, doesn’t it?

Summary of pre-development era (before 1962): Water levels fluctuated naturally Water supply consumption was a small fraction of the water budget Tussock islands probably developed, but were washed out of the lake during floods or stranded on the dry shore during drought Land primarily open land, with some small farms Sounds idyllic, doesn’t it?

Central and South Florida Flood Control Project: Istokpoga regulation Flood control / water supply era 1962 - 1989 Lake level held near full Oct - Apr, dropped 2’ by June, then allowed refill by October Flood - cycle eliminated Annual low water cycle imposed, shortened to 3 months, exposing ~ 1500 acres of littoral zone Water supply now available for permitting Human population begins to expand - allowed to build below 40’ NGVD Intensive agriculture begins in watershed Hydrilla “closes” lake in 1988, necessitating first whole-lake treatment S-68 water control structure Post Water-level control conditions 1990 - 2003 Lake regulation schedule changed at request of residents - levels high during the dry season, dropped by 1.1’ by June to allow greater access year-round to the lake Annual low-water littoral zone exposure now ~ 600 acres Consumptive use permitting of lake water continues to expand Human population continues to expand Intensive agriculture expands and contracts in watershed

Lake Resident activism era! Hydrilla closure and treatment got the lake noticed Tussock island expansion begins to be noticed Water quality declines? Fishing declines? 1988 - Water quality monitoring by SFWMD begins (7 stations - frequent sampling in 1980’s and early 1990’s, Quarterly now) 1996 - Water Quality monitoring by Florida LAKEWATCH begins (6 stations per month > 200 samples) Fish Management Area established by cooperative agreement between BoCC and Fish and Wildlife Lake Istokpoga Watershed Management Plan

ArbuckleIstokpoga Creek Total Phosphorus Mouth 1943-1944 Istokpoga Total Nitrogen Istokpoga Chlorophyll-a Istokpoga Secchi Transparency February Istokpoga FTSI over Time - dry season Istokpoga - Is it dying? Phosphorus loads increased from 8 to 23 mtons P from 1993 to 2000 but . . . Walker and Havens (2002) October conclude that trends in P over time - rainy season reflect “climatologic variations” Dairys and other agricultural operations continue to contribute excessively to nutrient loading in the watershed- 2. 1963-1989 Ritter et al. (2002) documented The S-68 water controlnumerous structure cases was completedof this in their by the US. Army Corps of Engineers. During the 1960s, water levelwatershed fluctuations assessment ranged from 37’ to 39.5’ annually (Figure 4). Under the new flood control management,Monitoring made datapossible show by that the Pinstallation of the S-68 structure in 1963, the concentrations still increase lake’s maximum elevation was set at 39.5’ NGVD and the lake was managed to prevent flooding downstream in Arbuckle creek of adjacent and downstream areas. Under this schedule, the lake was held near full pool However - watershed loading elevation beginning withtrends the do October not appear dry season, to have and held there through April. It was dropped two feet on average fromchanged April much through in the June, past then 15 allowedyears refill by to full pool by October (Figure 5). With theArbuckle structural Creekalterations at US to 98the Total drainage system, this management scheme was very efficient at keepingPhosphorus the water (SFWMD) at the mandated schedule (Figure 4). This schedule eliminated the flood Arbuckle- drought cycleCreek and at USshortened 98 Total the annual low water cycle to three months, Nitrogen (SFWMD) which exposed approximately 1,500 acres of littoral zone, 1,000 acres less than before flood Istokpoga - If it is dying, what is control. killing it?

Hydrilla? - first reported in 1979, lake-wide treatment by 1988 Subsequent whole- lake treatments Page 11 of 43 in 1991, 1997, 1999, 2001, 2003 May 2018 (see a pattern) Hydrilla “cycling” is responsible in most years (but not 2003) for dramatic swings in Secchi transparency Water stabilization - dampening of energy when H is on - is thought by many residents to contribute to tussock growth Bottom line on Hydrilla - it is a constant for Lake Istokpoga

Istokpoga - If it is dying, what is killing it? Tussock! Islands increased dramatically Tussock islands in Istokpoga grew from 1200 acres in the early 1990s to 2500 acres by 1999 Focus of habitat degradation concerns - anoxic waters don’t make good spawning habitat Continued growth would threaten the existence of the lake! - fortunately, wind dynamics and articulated dump trucks have prevented much expansion since 2000 Lake at drawdown for tussock removal - 2001 Expected Conditions: FFWCC and County worked together Planned for 2003-2004 Primarily for habitat restoration Work whole lake including around Islands Most spoil to be removed from lake Lake at drawdown for tussock removal - 2001- Actual conditions Drawdown facilitated by WMD and water users downstream Needed supply for deficits in winter - spring 2001 Only time and funding to work shoreline - 2/3rds of original project Most of material placed in littoral zone spoil piles No work around natural islands No treatment for P release from re- flooded soils after project (ah ha!) North shore littoral vs North pelagic zone monitoring - TSS North Shore Total Phosphorus - pelagic vs littoral zone data Tussock If it, or the reflooded sediments, were an important source of phosphorus loading to the lake, the littoral zone, nearby data should show that Is the same true for the rest of the lake? Don’t know. Arbuckle Creek still appears to provide the lion’s share of the phosphorus load to the lake Lake Istokpoga inflow and outflow P load average (1988-1999, J Brunty’s work) Istokpoga Median FTSI, TP and Chl-a 88-90 vs 00-02 Istokpoga - If it is dying, what is killing it? Total phosphorus Higher median concentrations in the north (73 ug/L) compared to the south (61 ug/L) Median FTSI Higher in the south (70) compared to the north (69) - same as historically Chlorphyll-a Dramatic (3 to 4 fold) increase both north and south from 88-00 to 00- 02 Why? Have we reached a threshold for aquatic plant uptake and P is no longer being sequestered? WHAT IS DIFFERENT ABOUT THIS LAKE SINCE 1990?

Lake Istokpoga Monthly Median levels Istokpoga Mean total discharge (acre-ft) per month from S-68 (1984 - 1997) Istokpoga 1 in 10 drought - demand vs potential available (SFWMD 2001) Istokpoga exposed acres vs full pool (SFWMD 1990) Istokpoga - If it is dying, what is killing it? WHAT IS DIFFERENT ABOUT THIS LAKE SINCE 1990? THE REGULATION SCHEDULE Lake lost ~1000 acres of seasonally dried littoral zone when the schedule was changed Did the change consider the environmental consequences of reducing the fluctuation regime? Can we recover this? Can we go back to 1988: FTSI was 55 Secchi transparency was ~ 1 m all the time TP was 30 to 50 ug/L Chlorophyll-a was 10-16 lake-wide Yes, but . . . . Istokpoga - If the regulation schedule is killing it, can it be stopped? Yes - Lake front residents will have to be on-board, but we will not be able to make everyone happy Yes - ALL of SFWMD will have to be on-board Yes - USACE, as part of the KRR, is scheduled to expand the capacity of the canal structures to move water - increasing the flexibility of the system Istokpoga - If the regulation schedule is killing it, can it be stopped? Yes - CERP Going to build Reservoir Assisted Stormwater Treatment Areas - If they build a big one (as is in the plan for north of Okeechobee)

west of the Kissimmee River, south of Istokpoga - it could provide the reserve needed for Istokpoga to fluctuate even more naturally MFL for Istokpoga is to be set in the next couple of years - It may be now or never. Lake Istokpoga Watershed Management Plan

Figure 4. Istokpoga Monthly Average Level, January 1963 to December 1989.

Figure 5. Central and South Florida Flood Control Project Istokpoga Regulation Schedule.

Page 12 of 43 May 2018 Lake Istokpoga Watershed Management Plan

This management strategy now made a ready supply of water available for permitting. The human population begins to expand, and building was allowed to the 40’ NGVD elevation. As is true throughout Florida in this time frame, intensive agriculture begins to expand in watershed. Somewhat independent of management of the lake for flood control and water supply, hydrilla (Hydrilla verticillata) was introduced to the lake and first found in 1979. The first large scale treatment for hydrilla occurred in 1988.

3. 1989 - present

The water level regulation schedule was revised by the US Army Corps of Engineers in response to citizen complaints about access during low water levels. The lake was now managed to fluctuate between 38’ to 39.5’ (Figure 6). In 1990, the Florida Game and Freshwater Fish Commission (GFC), forerunner to the FWC, estimated that 1,400 acres of tussocks were located on the lake.

Figure 6. Istokpoga Monthly Average Level, January 1990 to July 2015.

Page 13 of 43 May 2018 Lake Istokpoga Watershed Management Plan

The second large scale hydrilla treatment took place in 1992, followed in 1993 by the release of triploid grass carp, at a rate of approximately three per acre, to control hydrilla. In 1996, the lake was reported to be inaccessible to all but airboats due to topped out hydrilla in almost all of the lake. Nine years later, hydrilla “closed” the lake by growing to cover such an extensive area that access to the lake was limited to air boats. The third large-scale hydrilla treatment was conducted in 1997, and the GFC, in cooperation with Highlands County, established Lake Istokpoga as a Fish Management Area. Several management actions were set in motion in 1998, beginning with the estimate of 2,000 acres of tussocks by the FWC. The Lake Istokpoga Management Committee was formed. A fourth large-scale Hydrilla treatment was done in 1999. Though identified years earlier, problems with leaks around the aging G-85 water control structure were highlighted in 2000. Also in that year, FWC placed slot limits on largemouth bass.

A lake drawdown and clean up was conducted in 2001. Water was released from the lake in February, bringing the level to 36.5’ NGVD by late February. The lake was maintained at or below that level until July 1 when the lake was allowed to refill; 1,300 acres of tussocks were removed. The lake level returned to 39.5’ by the end of September. Additionally, the fourth large-scale hydrilla treatment was performed. In 2003, the fifth recorded large-scale hydrilla treatment was conducted. The sixth large-scale hydrilla treatment was conducted in 2004 with diminishing results due to the development of resistance to fluridone herbicide (Sonar®). The lake was impacted by Hurricanes Charley, Francis and Jeanne. Recovery from those storms was slowed by the very wet conditions in 2005, which was capped by Hurricane Wilma in October 2005. The FWC took over the Bureau of Invasive Plant Management from FDEP, and the first discussion of managing rather than eradicating hydrilla on Istokpoga was held and the use of adaptive plant management (APM) was adopted for the lake.

The seventh large-scale hydrilla treatment (6,000 acres) was conducted in 2008. In 2009 – 2010, the exotic island apple snail was observed near the mouth of the Istokpoga Canal. The long planned replacement of the G-85 water control structure on the Istokpoga Canal was completed with the installation of the S-67 structure complex in 2011; this year also saw the eighth large-

Page 14 of 43 May 2018 Lake Istokpoga Watershed Management Plan scale treatment of hydrilla. The ninth large-scale hydrilla treatment was performed in 2012, and the last one, limited to the northern lobe of the lake, in 2015.

Regional Trends from present through year 2020

1. Population growth As is the case for much of Florida, the essential question concerning Highlands County population figures is not whether they will increase, but rather by what magnitude. The population in 2006 was estimated at 100,207. The population in 2020 was projected to be 116,300 or a 16% change, though the current actual population growth lags these projections. These projections are clouded by the distinct possibility of sea level rise and resultant flooding in coastal counties surround the region, a disaster that could prompt mass immigration from both the Gulf and Atlantic coasts to the relatively high elevation of Heartland counties like Highlands. Not only will lake shorelines feel the impacts, but development will also occur on priority recharge areas impacting the aquifer which ultimately affects lakes. a. Increased number of shoreline residences b. Growing pressure for non-traditional recreation (personal watercraft, water-skiing, etc.) c. Population ill-informed on sub-tropic climate impact i. Shoreline degradation ii. Removal of habitat d. Increased fishing pressure for both bass and panfish e. Increased pollution from all of these sources. Increases in lake nutrient levels and in loading from upstream with changes in land use and increasing population are well documented in Lake Istokpoga. f. New resident education: the need to educate residents new to the area as to the ecology of lakes in Florida generally and Lake Istokpoga specifically. An area of emphasis should be how practices and expectations vary between temperate and subtropical lakes.

Page 15 of 43 May 2018 Lake Istokpoga Watershed Management Plan

2. Water use

Increased recognition of pressure on water use for agriculture, recreation, environment, flood control, human consumption. Groundwater is the main source of water supply in Highlands County. In 1965, 37 million gallons/day were used while in 2005, 107 million gallons/day were used. Most water use (89%) in Highlands County comes from agriculture and most water comes from the Upper Floridan aquifer. There is a sufficient water supply in Highlands County for current and future needs.

3. Exotic plants and animals Since the first explorations to Florida there have been over 1,800 plant and animal species introduced into the state. The problem exotic species are considered "invasive". Invasive species are introduced species that can thrive in areas beyond their natural range of dispersal. These plants and animals are characteristically adaptable, aggressive, and have a high reproductive capacity. Their vigor combined with a lack of natural enemies often leads to outbreak populations. Specific qualities that can make a species invasive exotic include, a) possible damage to local environment such as over grazing of native plants that removes them from the ecosystem, b) development of resistance to normal control methods, with hydrilla resistance to fluridonebeing a prime example, and c) possible displacement of native species by occupying habitat and excluding natives.

4. Budgets

Expect that competition for funding dollars from local, state and federal sources will increase and that funding for all aspects of watershed activities will decrease, relative to the demand. These activities are more than herbicide treatment of invasive exotics and aquatic plant harvesting; watershed education, installation of structural modifications to reduce nutrient input, revegetation, and implementation of best management practices to reduce nutrient input throughout the watershed by all residents. One component to overcome some of these funding challenges is to grow the cadre of volunteers for all aspects of watershed management.

5. Climate Change

Climate change may be a divisive topic for environmental discussions. For purposes of this

Page 16 of 43 May 2018 Lake Istokpoga Watershed Management Plan

discussion, this refers to changes in climate that are theorized to be caused by human contributions to global greenhouse gases, generally perceived as an overall increase in surface temperatures, changes in rainfall distributions and changes to the frequency and intensity of severe weather events. Recent research on the potential impacts of global climate change to peninsular Florida indicates that there will be little if any local climatic impacts to our lakes. Of greater importance is an understanding of the multi-year patterns that influence long-term rainfall and the hydrology of lakes and local changes to land use within the lake watershed (see for example James et al., 2010).

6. Lake Regulation Schedule

Looking back at the last 80 years of history on the lake, the impact of S-68 and the resulting lake regulation schedule is fundamental to the changes that have taken place in the ecology of the lake. These changes are well documented, though a brief list includes water quality decrease due to lack of elevation changes, hydrology changes, build-up of muck, and access to residential canals.

When the Kissimmee River Restoration (KRR) project is complete in approximately 2020, the Lake Istokpoga Regulation Schedule will be reviewed by the US Army Corps of Engineers (USACE), SFWMD, FWC and local stakeholders. Revision to the current schedule to protect the basic functions of flood control and water supply are being facilitated by the structural changes to the Istokpoga water control structures that have been part of the KRR including the new S-67 and S-68H structures. A revised regulation schedule, a version of which was developed in 2005 through the cooperative efforts of Audubon of Florida, FWC, Highlands County, SFWMD and the USACE (Figure 7), would allow the lake to fluctuate in a more ecologically desirable range, while protecting the interests of stakeholders on the lake. The 2005 proposed schedule manages the lake for three conditions over a 9 year cycle. First, two out of nine years will be considered “wet” years, when the lake remains higher than the current schedule for longer than the current schedule; this will flood nearshore areas and reset the edge of the littoral zone. Second, five out of nine years will be considered “normal” years, when the current schedule will be followed. Third, two out of nine years will be “dry” years, when the lake is drawn down to low levels to allow for the shoreline to dry out and vegetation to move deeper into the lake. Following any schedule will require adhering to prevailing hydrologic conditions. Additionally, before implementation, lake access to residents and other lake users during the “dry” cycle must be developed and maintained.

Page 17 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Figure 7. Proposed revision to Lake Istokpoga

Chapter 2 – Summary of Objectives

This chapter includes a list of objectives for lake management, followed by explanation and discussion of each objective. Goals are found in the chapter for each objective. Istokpoga Watershed Management Plan Mission Statement: To influence and support the efforts of state and regional plans to manage a renewable and sustainable Istokpoga ecosystem and restore long-term ecological health of the lake while preserving the lake’s economic value.

Many major areas of concern have been identified by the original LIMC and by the management master plan working group. These are found in the minutes of the first LIMC meeting in November of 1998, found in Attachment A, and the management master plan working group in March of 2007, found in Attachment B. These major areas of concern have been distilled down to five objectives, including Habitat Management, Water Resources, Watershed Management, Local Economy and Social Education. Goals have been developed to address each objective. Several goals are common to all objectives. Common goals include developing a public

Page 18 of 43 May 2018 Lake Istokpoga Watershed Management Plan communication strategy to inform, educate and gain support from all stakeholders, improving education, assessing weather (drought and flood) impacts on each objective, developing informational resources for the public relative to each objective and support for enforcement of existing regulations pertinent to each objective. More may be identified as this process moves forward. Chapter 8 outlines steps for the implementation of this plan. The By-laws of the Lake Istokpoga Management Committee specify that this plan be reviewed annually by the Committee and adjustments made as conditions warrant. The objectives of the plan are as follows. Objective #1 Habitat Management: Influence, support and assist in the coordination of agency and private enterprise habitat management activities emphasizing long-term habitat management for Lake Istokpoga. Objective #2 Water Resources: Assist in the protection of current water resource uses and future water resource needs and provide goals that either can be implemented locally, or can influence water resource policies relative to Lake Istokpoga. Objective #3 Watershed Management: Support and improve current watershed management activities while strengthening efforts to protect the water entering the lake from pollutant loading and habitat impairment. Agencies involved in regulating watershed management activities for Lake Istokpoga include the Florida Fish and Wildlife Conservation Commission, the South Florida Water Management District, the Southwest Florida Water Management District, the Florida Department of Agriculture and Consumer Services, the Florida Department of Environmental Protection, the U.S. Army Corps of Engineers, the U.S. Fish and Wildlife Service and Highlands County. Objective #4 Local Economy: Support a local economy that fits with the other objectives particularly in terms of sustainable lake-dependent businesses. Objective #5 Social Education: Create awareness of existing rules, guidelines and policies regarding use of the lake and associated facilities. Each of these objectives share a set of common goals. These include communication, weather impacts and predictions, education and enforcement of existing regulations.

Page 19 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Chapter 3 – Habitat Management Objective (#1)

Influence, support and assist in the coordination of agency and private enterprise habitat management activities emphasizing long-term habitat management for Lake Istokpoga. For this objective, the plan must stress working with existing agency activities to coordinate and develop long term habitat management goals for Istokpoga. In particular, this plan references the management scheme of the FWC Istokpoga Working Group. This Working Group is in the process of developing a conceptual management plan for the lake.

Briefly, the FWC’s document states that in order to manage such a variety of habitat types, managers use a combination of techniques including mechanical treatments, herbicide applications, water level manipulations, and vegetation transplants, as well as other accepted methods. Additionally, in-lake spoil islands constructed from previous mechanical treatment projects may be considered for removal; that activity is dependent on the feasibility of removing a given island, which depends on availability of suitable upland disposal sites, suitable access to the island, funding for removal, and permitting.

The FWC’s conceptual approach to habitat management on Istokpoga is designed to be a guide for managers and can be adjusted should conditions on the lake change. The diversity of Lake Istokpoga’s shoreline requires a variety of management techniques and an adaptable approach. Members of the FWC’s Istokpoga Standing Team and public stakeholders contribute to the development of any final management plans, and the FWC continually seeks comments from other agencies and the public regarding proposed habitat enhancement activities. The full text of the FWC’s letter to the LIMC regarding the long-term strategic plan to protect Lake Istokpoga is found in Attachment C of this document. The goals for this objective include: 1. Maintain habitats reflective of the natural character of the lake while sustaining the sport and native fish and wildlife communities. 2. Maintain habitat critical to threatened and endangered species on the lake. 3. Manage habitat to protect the lake against invasive and nuisance species.

Page 20 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Provide educational opportunities about habitat management practices, practicalities and principles – recognize that habitat cannot be static, it must be cyclic and any management plan must accommodate this. Actions to support these goals include: 1. Keep apprised of what all agency and NGO’s are doing that might affect Lake Istokpoga and its watershed. County, FWC, USFWS, DEP, USACE, SWFWMD, SFWMD; attempt to have a representative come to LIMC meetings periodically or when they know something may/will affect Lake Istokpoga. 2. Monitor status of state owned surplus land around Istokpoga. Should land become available this may aid in the overall protection of the watershed. Priorities for Lake Istokpoga aquatic plant management while maintaining optimal health, native plant diversity and natural functions are the following, as permitted by law: 1. Protect S-68 structure and flood control 2. Maintain public recreational access and key navigation corridors, subject to lake level regulation schedules 3. Control invasive and exotic plants in the lake a) Maintain suitable snail kite foraging and nesting habitat b) Encourage continued native plant expansion by controlling invasive exotics and nuisance plants. c) Maintain open areas on north end of the lake suitable for drift fishing and other recreation. d) Manage hydrilla in key sport fishing and duck hunting areas. 4. Within the constraints of the other priorities, maintain suitable habitat for non-sport native species. 5. Maintain navigational access within the lake 6. Watch for the appearance of new invasive or non-native plant species with the goal of eliminating them before they become well-established. 7. Provide effective management of organic sediments

Page 21 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Chapter 4 – Water Resources Management Objective (#2)

Assist in the protection of current water resource uses and future water resource needs and provide goals that either can be implemented locally, or can influence water resource policies relative to Lake Istokpoga. SMART goals for water resources management include: 1. Support actions that promote identification of alternate sources of water to meet water resources demands for all users. 2. Support development of a lake level regulation schedule that: a) mimics natural water level fluctuations b) reduces habitat management costs c) enhances the fluctuation range based on historic variability d) acknowledges and considers the flood control function. 3. Facilitate boating access to the lake at low lake levels for the lake and its residential canals. 4. Educate the community about the impacts of variable weather conditions affecting the lake. Actions to support these goals: 1. Remain current on the Northern Everglades and Estuary Initiative. 2. Continue to pursue permits and funding to dredge areas providing access from residential canals to the lake. 3. Provide the BCC with a prioritized list of specific recommendations for their consideration in managing and improving Lake Istokpoga.

Chapter 5 - Watershed Management Objective (#3)

Support and improve current watershed management activities while strengthening efforts to protect the water entering the lake from pollutant loading and habitat impairment. Agencies involved in regulating watershed management activities for Lake Istokpoga include the Florida Fish and Wildlife Conservation Commission, the South Florida Water Management District, the Southwest Florida Water Management District, the Florida Department of Agriculture and

Page 22 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Consumer Services, the Florida Department of Environmental Protection, the U.S. Army Corps of Engineers, and the U.S. Fish and Wildlife Service. This objective is the most ambitious, given that it strives to educate, inform and gain consensus from stakeholders throughout the watershed. Protecting the Istokpoga ecosystem will ultimately affect many currently accepted practices throughout the watershed. Land use changes within the watershed, agricultural and residential Best Management Practices (BMPs) to reduce nutrient loading, changes to nutrient distribution patterns, incoming regulations for non-point source pollution management and similar activities will be addressed. SMART goals for the watershed management objective include making recommendations that: 1. Appropriate agencies continue education and awareness to agricultural interests regarding BMPs and incentives for nutrient and water management BMP implementation 2. Support and conduct programs that raise the awareness of residential BMPs focused on homeowners, using BMPs and other educational programs such as the UF-IFAS Florida Yards and Neighborhoods program and other County resources, working through the Highlands County Homeowners Association and the Friends of Istokpoga. 3. Support programs to improve and protect the watershed against nuisance and invasive plants and animals and maintain habitat protective of the biodiversity within the watershed of the lake. 4. Review proposed changes to land use pertaining to watershed protection. Actions to support these goals include: 1. Support distributed water storage efforts on both urban and agricultural lands within the Lake Istokpoga watershed. 2. Review and comment on proposed changes to land use and Land Development Regulations (LDRs) pertaining to watershed protection. 3. Review and comment on proposed riparian setbacks. 4. Encourage the County’s efforts to monitor and control runoff from septic systems and waste water treatment plants. 5. Encourage County to modify LDRs to protect lakes through stronger septic system rules. 6. Support the Avon Park Air Force Range’s effort to acquire and maintain a buffer around the range.

Page 23 of 43 May 2018 Lake Istokpoga Watershed Management Plan

7. Support the Spring Lake Improvement District and the Sebring Airport Authority in their efforts to capture stormwater runoff and treat the water before it enters Arbuckle Creek and eventually Lake Istokpoga.

Chapter 6 – Local Economy Objective (#4)

Support a local economy that fits with the other objectives particularly in terms of sustainable lake-dependent businesses. Goals will focus on impacts to and protection / enhancement of the local economy based on the activities outline in this plan. The most effective long range goals for this plan will not be possible without protection of and support from the local economic sector. This includes businesses that are directly located on and dependent on lake access and health for their livelihood (fish camps, marinas), businesses that rely on lake resources for their livelihood (agricultural producers), activities that attract additional visitors to the lake for recreation, and businesses that provide support services to those located directly on or deriving their livelihood from access to and the health of the lake. SMART goals for this objective include making recommendations to: 1. Raise the awareness of impacts to and protection / enhancement of the local economy from implementation of this plan. Actions: a) Support local media efforts to disseminating information about the economic impact of the lake. b) Encourage homeowners and lake associations to invite presentations to their members on this subject. c) Research additional methods for involving community members and visitors in the value of Lake Istokpoga’s resources. d) Encourage the improvement of facilities for Lake Istokpoga to increase its usefulness 2. Facilitate boating access to the lake at low lake levels. Action: a) As opportunity exists in the realm of state and federal regulations, pursue future boating access opportunities.

Page 24 of 43 May 2018 Lake Istokpoga Watershed Management Plan

3. Manage habitat to protect the lake against invasive and nuisance plants and animals. Action: a) Continue participation with local, regional and state agencies for the control of invasive and nuisance plants and animals. 4. Consider all sectors of the local economy whose limiting resource is water. 5. Maintain habitat supportive of sustainable fish and wildlife populations and other associated industries. 6. Encourage any future lake-related business development to be compatible with this Plan’s mission statement and objectives. 7. Support the compatible economic efforts of local organizations such as the Highlands County Tourist Development Council, the Florida Heartland Rural Economic Development Initiative Florida’s Freshwater Frontier and the Highlands County Industrial Development Authority – Economic Development Commission. Actions: a) Disseminate information on the details of this plan to pertinent local organizations. b) Encourage the BCC to recommend that the LIMC be considered in review of plans that may impact the Istokpoga watershed.

Chapter 7 – Social Education Objective (#5)

Create awareness of existing rules, guidelines and policies regarding use of the lake and associated facilities. These include both regulated and non-regulated activities, addressing ongoing issues between lake users, residents, and other stakeholders. SMART Goals for this objective include making recommendations to: 1. Educate residents and lake users on important issues about regulated activities which include protection of threatened and endangered species, protection of habitat, fishing and hunting, lakefront maintenance, permit requirements and the Lake Istokpoga Water Regulation Schedule. 2. Educate both residents and visitors as to the applicability of the Highlands County noise ordinance related to lake activities and residents (ordinance 10-02-29). These efforts will target all users of the lake, focusing on those activities addressed in the noise ordinance.

Page 25 of 43 May 2018 Lake Istokpoga Watershed Management Plan

3. Educate visitors to Lake Istokpoga on educational materials which will be available at lake access points and on the FWC (MyFWC.com) and County (hcbcc.net) websites. Alligators make up one of the largest species of animals on Lake Istokpoga; in several annual assessments, the FWC has estimated that there were more than 10,000 alligators of all sizes on Lake Istokpoga, with more than 4,000 over four feet in length. 4. Implement improved communication among the various lake users focusing on the educational goals in this objective, and including information on management of the habitat, water resources and watershed of Lake Istokpoga, as well as the relationship between the lake and the local economy. 5. Support the volunteer programs such as those operated by FWC for lake management and education, and the University of Florida IFAS LAKEWATCH volunteer water quality monitoring program. 6. Educate both residents and visiting lake users regarding the lake regulation schedule, established by the USACE and managed by the SFWMD for Lake Istokpoga. This education should include the rationale for the lake regulation schedule and awareness of the changes in conditions that water level regulation brings to the lake. 7. Communication with stakeholders and with state legislators. Actions to achieve these goals include: 1. In conjunction with the Master Gardeners; develop a program to teach people that short- term actions around the lake (for example using fertilizer) may have long term implications. 2. Have FWC alligator biologist provide seminar on alligator management. 3. Support education as to the impacts of weather both small and large scale. 4. Development of a Lake Istokpoga specific internet site containing the educational and contact information developed under this goal.

Chapter 8 – Implementation of the Plan

Through the adoption of this plan by the Highlands County Board of County Commissioners, the Lake Istokpoga Management Committee is striving to protect Istokpoga and its watershed. This

Page 26 of 43 May 2018 Lake Istokpoga Watershed Management Plan plan calls for working with partners to ensure that these objectives are coordinated with both local and regional planning efforts that will affect the watershed. This plan will be implemented by way of ongoing educational campaigns, effecting modifications to the Highlands County Comprehensive plan and other regulatory agency plans, and obtaining support and leverage from non- regulatory groups and entities to accomplish the goals of these objectives.

The Lake Istokpoga Watershed Management Plan is an investment in the capacity of the natural landscape to provide multiple water resource benefits. In the long term, maintaining healthy natural landscapes should provide multiple benefits for people and the environment. These benefits include water quality, water supply, environmental, economic, flood protection, and recreation to maintain the rural nature of the lake’s watershed. The primary tools needed to begin implementing the plan include the objectives and goals of this plan.

The Lake Istokpoga Management Plan includes the following objectives: Habitat Management, Water Resources Management, Watershed Management, Local Economy and Social Education. This plan hopes to influence lake friendly development, assist in protection of watershed functions and increase water storage while maintaining flood protection. This plan is geared to foster and improve communication among the many agencies identified in this document that are directly involved in management of the Lake Istokpoga watershed. With the adoption of this plan by the BCC, the LIMC accepts the responsibility for implementing this plan by developing and maintaining action items to support it.

Page 27 of 43 May 2018 Lake Istokpoga Watershed Management Plan

REFERENCES

Page 28 of 43 May 2018 Lake Istokpoga Watershed Management Plan

ATTACHMENT A: MINUTES FROM NOVEMBER 17, 1998 LIMC MEETING

Page 29 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Page 30 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Page 31 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Page 32 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Page 33 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Page 34 of 43 May 2018 Lake Istokpoga Watershed Management Plan

Page 35 of 43 May 2018 Lake Istokpoga Watershed Management Plan

ATTACHMENT B: MAJOR AREAS OF CONCERN MAJOR AREAS OF CONCERN (Identified by LIMC work group during 2007) 1. HABITAT MANAGEMENT – Areas of Concern: 1.1. Water Fowl 1.2. Fisheries Management (slot limit, bag limit) 1.3. Invertebrate Health (channel snail, apple snail) 1.4. Tree Island Management 1.5. Invasive Plant Management 1.6. Aquatic Plant Management 1.7. Habitat Preservation (reserves for “guilds”) 1.8. ALL: Weather, Education, Enforcement of existing regulations 2. WATER RESOURCE ISSUES 2.1. Water Quality 2.2. Water Use (Water Supply) 2.3. ALL: Weather, Education, Enforcement of existing regulations 3. COMMUNICATION 3.1. Weather 3.2. ALL: Weather, Education, Enforcement of existing regulations 4. WATERSHED MANAGEMENT 4.1. Land use changes upstream of Istokpoga 4.2. Tributary Management 4.3. Water levels 4.4. ALL: Weather, Education, Enforcement of existing regulations 5. ECONOMIC IMPACTS (FSU economic impact report) 5.1. Canal Maintenance (Residential Canals) 5.2. Commercial use (fish camps, ecotours, fishing guides, commercial fishery) 5.3. Recreational use 5.4. ALL: Weather, Education, Enforcement of existing regulations 6. GOVERNMENT PROGRAMS / AGENCIES (Highlands County (Natural Resources, Parks and Recreation), FFWCC, SFWMD, FDEP, USACE, USGS, USEPA, FDACS, SWFWMD, USFWS)

Page 36 of 43 May 2018 Lake Istokpoga Watershed Management Plan

6.1. Interagency Cooperation 6.2. Ag Best Management Practices 6.3. Homeowner BMPs 6.4. TMDLs 6.5. Lake Okeechobee Protection Plan 6.6. ALL: Weather, Education, Enforcement of existing regulations 7. NON GOVERNMENTAL ORGANIZATIONS: Lake Istokpoga Management Committee???, Friends of Istokpoga, Highlands County Lakes Association, Audubon, TNC, WWF (FRESP), 8. BASELINE CONDITIONS for evaluating the lake – under each area of concern 9. GOALS for the management plan 10. How do we measure success – the Metrics of the evaluation. Must define under each area of concern 11. What is the Destination? A renewable – sustainable ecosystem. Restore Long-Term Ecological Health to the Istokpoga Ecosystem PLANNING ACTIVITIES:  Northern Everglades and Estuaries Plan  Comprehensive Everglades Restoration Program – TMDLs  Kissimmee Chain of Lakes Plan – BMPs  What effort should be expended to change agency activities vs. to manage the plans in place  Istokpoga Standing Team of FFWCC  Collaboration, Coordination, Team work on all these projects DETAILS UNDER THE HABITAT MANAGEMENT AREA OF CONCERN:  Guilds (see the numbered list that roughly defines the guilds) o Define habitat types where one guild takes precedence over another guild – But this plan must “stay out of the weeds”! Leave the specific management of specific guilds up to the biological experts on each guild o Adaptive management – the habitat is not static! Hydrilla moves around and plants cycle through various areas. o Habitat types: Cypress swamp, littoral zone, lotic zone,

Page 37 of 43 May 2018 Lake Istokpoga Watershed Management Plan

ATTACHMENT C: TEXT OF LETTER FROM FWC’S LAKE ISTOKOPOGA STANDING TEAM Text of a letter sent to the Lake Istokpoga Management Committee in June, 2010

Members of the Lake Istokpoga Management Committee: This letter is in response to our discussion regarding Objective #1, “Habitat Management”, in the draft of A Long Term Strategic Plan to Protect Lake Istokpoga and its Watershed. To recap the discussion, the Lake Istokpoga Management Committee (LIMC) requested from the Florida Fish and Wildlife Conservation Commission (hereafter FWC) a copy of the Lake Istokpoga Standing Team’s conceptual management plan. The Istokpoga Standing Team has not yet finalized a formal conceptual management plan. However, the following information should give the LIMC the information they need for inclusion in their strategic plan. In December 2004, the Lake Istokpoga Management Standing Team was formed. This FWC internal team was formed to provide a multi-species approach to FWC’s aquatic habitat management of Lake Istokpoga. Since 1997, the Aquatic Habitat Conservation and Restoration Section (formerly a component of the Division of Freshwater Fisheries) has conducted an aquatic habitat enhancement (AHE) program on Lake Istokpoga. Management strategies have included 1) herbicide management of invasive aquatic plants (i.e. species that quickly shift diverse floral systems toward monocultures or are difficult to reduce in abundance once established, or impact navigation or recreational activities (tussock precursors); e.g., cattail, pickerelweed, burhead sedge, and water primrose), 2) mechanical treatment of tussocks, and 3) reestablishing native vegetation through transplant projects. In the spring of 2001 a large-scale habitat enhancement project was conducted, which involved drying down the lake and mechanically removing dense tussock vegetation and associated organic sediments from over 1,300 acres (21 miles) of shoreline. In order to sustain the ecological benefits derived from these activities, the aquatic plant management activities described above are being incorporated into a lake management strategy. Several factors are considered during the formulation of this management plan, which include but are not limited to: 1. Impact of AHE activities on fish and wildlife populations; 2. Review of herbicides currently available for management of aquatic vegetation (submerged, floating and emergent) and their impact on non-target vegetation communities; 3. Identification of potential future upland disposal sites, potential reuse of in-lake consolidation islands constructed during past tussock management activities, and management of these islands to maximize benefits for fish and wildlife; 4. Development through inter-agency coordination of the Lake Istokpoga Regulation Schedule Modification Plan, which will affect responses of vegetation communities and the ability to manage those communities.

In addition to the FWC Lake Istokpoga aquatic habitat management biologist, the FWC Standing Team is comprised of biologists with differing subject matter expertise (freshwater fish, non-game wildlife [wading birds and snail kites], and game wildlife [alligators and waterfowl]). The Standing Team was tasked with development of an aquatic habitat management plan that would identify protocols capable of maintaining vegetation communities that would sustain, enhance, and protect fish and aquatic wildlife populations at current or higher levels. The Standing Team was directed to consider protocols that were consistent with FWC’s mission

Page 38 of 43 May 2018 Lake Istokpoga Watershed Management Plan

(management for the long-term well-being of all fish and wildlife species and the benefit of people). This conceptual approach was originally designed to only consider management options and outcomes for the 4,585 acres of the lake’s littoral marsh. Particular importance was placed on the 21 miles of littoral shoreline that was enhanced during the 2001 drawdown project. In order to create this conceptual approach, each member of the team was directed to review the habitat requirements for the species group for which they had expertise, including a characterization (density, block size, interspersion [amount of mixing of two or more habitat cover types], etc.) of vegetation species (emergent and submersed) they considered important. The outcome of this evaluation was the adoption of a “hemi-marsh” (50:50 ratio of emergent plants and open-water) management strategy that provides varying levels of marsh succession throughout the lake’s littoral zone. Conceptually, the littoral zone as a whole would be managed for, on average, 50% emergent plants and 50% open-water or submerged plants, but the distribution of each may vary greatly around the lake. For example, emergent vegetation may completely (100%) cover large areas of littoral marsh around the island marsh complexes, while other areas may have predominantly open water or submersed plants (<10% emergent coverage), and some may contain a fairly even mix of emergent and submersed plants. The hemi-marsh stage of emergent plant succession has been researched extensively and is highly productive for both fish and wildlife. The hemi-marsh state provides cover from predators while providing abundant food through the structural and compositional variety of plants. This composition also provides ideal nesting cover for waterbirds, as well as substrates and litter for invertebrate populations that drive productivity. The hemi-marsh state provides a greater diversity of habitat for fish and wildlife than either open water or dense vegetation could provide alone, and many of our nation’s marshes are managed as such. To manage Lake Istokpoga’s littoral areas as hemi-marsh, FWC evaluate the lake’s entire littoral zone for vegetation species, density, and interspersion. Specific decisions about vegetation compositions in different areas around the lake are evaluated based on fish and wildlife needs, as well as any potential impacts to threatened and endangered species. For example, some wildlife may benefit from dense patches of emergent vegetation surrounded by open water, some may prefer sparse emergent vegetation randomly scattered among submersed vegetation, and still others may prefer highly interspersed clumps of both sparse and dense emergent vegetation intersected with corridors of open water. To provide such a variety of habitat types, managers use a combination of techniques mentioned earlier, including mechanical treatments (aquatic harvesters or vegetation “cutters” under inundated conditions; earth-moving equipment under dewatered conditions), herbicide applications (helicopter or airboat), water level manipulations (e.g., draw downs), and vegetation transplants. Additionally, in-lake spoil islands constructed from previous mechanical treatment projects may be considered for removal, but are dependent upon availability of nearby upland disposal sites, location (distance/proximity) of island to access points and disposal sites, feasibility (cost effectiveness, public interest), funding availability, and permitting. This conceptual approach to habitat management on Istokpoga is designed to be a guide for FWC managers and can be adjusted should conditions on the lake change. The diversity of Lake Istokpoga’s shorelines requires a variety of management techniques and an adaptable approach. Members of the Standing Team and public stakeholders contribute to the development of any final management plans, and FWC continually seeks comments from other agencies and the public regarding proposed enhancement activities.

Page 39 of 43 May 2018 Lake Istokpoga Watershed Management Plan

ATTACHMENT D – LONG TERM PLANT MANAGEMENT OBJECTIVES

LIMC LONG TERM PLANT MANAGEMENT OBJECTIVES FROM 2014

Water level stabilization for flood control and the accidental introduction of several aggressive and exotic species, have created new management requirements for Lake Istokpoga. The ability of the lake to self-regulate is broken and regular maintenance is necessary to preserve the lake’s benefits to Florida. The goals of the management activities are long-term and are to:

 maintain native diversity  maintain optimal health, what do these actually mean  approximate natural lake functions. PRIORITIES

Priorities for Lake Istokpoga aquatic plant management while maintaining optimal health, native plant diversity and natural functions are:

8. Protect S-68 structure and flood control 9. Maintain public recreational access and key navigation corridors, subject to lake level regulation schedules 10. Aggressively control and eliminate invasive and exotic plants in areas near homes, fish camps, public boat ramps, structure, navigation corridors and in areas with well-established native submersed vegetation (mainly pondweed and eelgrass), 11. Maintain suitable snail kite habitat consistent with the number of nesting pairs 12. Encourage continued native plant expansion by identifying areas of key, well established and / or expanding native submersed aquatic vegetation and controlling or maintenance- managing invasive exotics, 13. Maintain historical minimum hydrilla presence at the north end of the lake using aggressive management 14. In key sport fishing and duck hunting areas (as identified by stakeholders and working group) control hydrilla only as needed to contain excess expansion, to provide effective long term control considering funding priorities and availability expense, logistics, resistance management and potential setbacks to non-target native plants. 15. Within the constraints of the other priorities, maintain suitable habitat for non-sport native species. such as wading birds, otters, alligators and migratory birds 16. Prevent the creation and deployment of large sections of floating tussock which could create obstacles to other objectives or become boating hazards

Page 40 of 43 May 2018 Lake Istokpoga Watershed Management Plan

17. Watch for the appearance of new invasive or non-native plant species with the goal of eliminating them before they become well-established. 18. Provide effective methods of managing of delaying, reducing or controlling eliminating the buildup of decaying organic sediments MANAGEMENT OVERVIEW

Because flood control and shoreline development have removed the ability of the lake to self- regulate, a combination of natural events and management activities are necessary to maintain the lake’s functions. Management is conducted in three broad areas:

(1) Successional setback – The simulation of natural cycling, which “reset” the environment on a yearly or seasonal basis;

(2) Integrated / Maintenance management – Adaptively manage plants At the lowest feasible levels, remove exotic and aggressive native plants to encourage more diverse native plant habitat, while minimizing herbicide use and excess sediment deposition;

(3) Monitoring and spot management maintenance.

 Successional setback: either natural or management induced, to simulate the natural cycling that would take place if there were no water level or flood control constraints on the lake. o Natural reset events may be mimicked by maintenance activities. Among the activities: . Return large, continuous areas of stagnant woody tussock to functioning littoral marsh . Establish management-induced cycling that optimizes growth and expansion of beneficial native vegetation in the marsh under current limite4d water regulations . Provide regular maintenance to minimize control over time while maximizing habitat and natural functions of the marsh . Ensure appropriate habitat for snail kites, ducks, fish, wading birds, migratory birds, alligators and other wildlife. o Control of sediments may require special considerations: . Burning dead exposed vegetation . Continued efforts to get an improved lake level regulation approved . Intermittent lake drawdowns to remove large areas of sediment deposition.  Maintenance (change to match above)

Page 41 of 43 May 2018 Lake Istokpoga Watershed Management Plan

o Invasive Plants – Primrose, oxycaryum (burhead sedge), water lettuce, hyacinth – Control or remove. Promoting diverse and abundant native plant habitat over time reduces levels of necessary regular maintenance o Nuisance and aggressive natives – pickerelweed, spatterdock, cattail, American Lotus, maintain as needed, seasonally. Some level of maintenance will always be needed due to the impact of water-level regulations. Timing and levels of control should support marsh succession management as needed annually

 Monitoring and spot management maintenance o Animals – fish birds alligators, tbd o Exotics – Water lettuce and hyacinth – . Year-round maintenance to maintain lowest feasible levels, rotating through several different herbicides in specific areas or seasons for best long-term impact o Dynamic changes – . Oxycarum (Burhead sedge) –  Open dense monoculture areas and conduct regular maintenance to prevent regrowth;  maintain lowest feasible levels. . Primrose – (Becomes established and expands in areas of dense vegetation and tussock).  Maintenance should decline as marsh diversity and health increases.  Some level of maintenance will always be needed (similar to hyacinth and water lettuce)  Maintain at lowest feasible levels . Natives – (Pickerelweed / Cattail / Spatterdock/American Lotus) Regular maintenance of these species reduces competition on other natives, promotes greater diversity of native plants and long-term reduces herbicide use and costs.  Pickerelweed – manage either as isolated offshore beds or as sparse to moderate linear coverage near shore  Cattail – manage mainly as offshore islands  Spatterdock – limit expansion, maintain in specific areas o Maintain trails for water movement, increased edge and boat access

Page 42 of 43 May 2018 Lake Istokpoga Watershed Management Plan

o Promote expansion of other pads (e.g., fragrant water lily, banana lily), grasses and emergents in place of spatterdock.  American Lotus – limit expansion of American Lotus in areas where it interferes with access and navigation, or shades out more desirable/beneficial aquatic vegetation.

Page 43 of 43 May 2018