Title: The Ninth Annual Conference on Water Management in Florida Abstracts
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Permanent Link: http://ufdc.ufl.edu/WL00002974/00001
 Material Information
Title: The Ninth Annual Conference on Water Management in Florida Abstracts
Physical Description: Book
Language: English
Publisher: NWFWMD
Spatial Coverage: North America -- United States of America -- Florida
Abstract: NWFWMD Collection - The Ninth Annual Conference on Water Management in Florida
General Note: Box 13, Folder 11 ( The Ninth Annual Conference on Water Management in Florida - 1985 ), Item 1
Funding: Digitized by the Legal Technology Institute in the Levin College of Law at the University of Florida.
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Bibliographic ID: WL00002974
Volume ID: VID00001
Source Institution: Levin College of Law, University of Florida
Holding Location: Levin College of Law, University of Florida
Rights Management: All rights reserved by the source institution and holding location.

Full Text

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Edited by

George Fisher
Public Information Officer
Northwest Florida
Water Management District

Illustrated by

Robert Mills
Public Information Specialist
Northwest Florida
Water Management District

For Additional Copies Write:

Public Information Office
Northwest Florida
Water Management District
Route 1, Box 3100
Havana, FL 32333


Keynote Luncheon Address by Representative Jon Mills ................... .4

Banquet Address by Representative Herb Morgan........................7

Concurrent Information Sessions
Land Management: District Policies and Priorities .......................9
Data Networking: Future Directions ........ .................10
Funding Issues in Water Management...............................11
Organizing Yow Agency to Face the Issues: Theories .....................12
Water Management in Georgia................................ ..... 13
A View of Water Manager's Role in Growth Management ................. 14

Panel Discussions
Water Issues in Florida .............................................16
The Changing Role of the Water Management Districts ................... 18
The Need for Integrated Programs in Florida's Resource
Management and Educational Systems .............................20

Agenda ........................................................22

The costs for printing and distributing this public document were included in
the registration fee charged for the Ninth Annual Conference on Water
Management in Florida.

'ffa.,aseme/ \Asiic I
g.. Route 1, Box 3100. Havana. Florid 32333 News
imMcCbrwvy (904)487
Ie DbHrector

Editor's Note and Credits:

Each year, the hosting of the Annual Conference on Water Management in Florida gets easier because of the
large amount of advice and assistance provided so willingly by all of Florida's Water Management Districts.
From all reports, the Conference also gets better each year because of that participation.

The Northwest Florida Water Management District wishes to express its deepest appreciation to all those
whose considerable efforts and contributions went into making this another successful Conference. Most
notable among the many who helped are Governing Board Chairman Idwal Owen and Ed Albanesi at the St.
Johns River Water Management District; Dorothea Zysko and Governing Board member Mary Kumpe at the
Southwest Florida Water Management District; Carolyn Mobley and Kirk Webster at the Suwannee River Water
Management District; Sandra Close, Sheila Middaugh and Jan Horvath at the South Florida Water Manage-
ment District; John Wehle at the Department of Environmental Regulation; and Fred McCormack, Staff Direc-
tor of the House Natural Resource Committee. Each took a sincere interest in the success of the Conference and
made special efforts to improve the program.
A large note of appreciation is due the long list of very able participants who shared freely of their experience,
knowledge and time. This kind of conference is possible only because of their willingness to participate.

George Fisher

Chrasn Detin

Vie. Churamon _Tsealhe 8eT./ew. Chuusuea

Port 8t Joe

Peeoole AImn C0ay

OemedS Bletaastown Quiney



..._ .____ C_ __ ___



Keynote Luncheon Address

Hosted by the Northwest Florida

Water Masetalt District

Representative Jon Mills

As chairman of the House Natural
Resources Committee, I have learned
much about District operations. I have
been impressd with both the programs
and personnel in your operations. My
special congratulations go to newly ap-
pointed executive directors Woody
Wodraska and Henry Dean; both have
enviable records and will do outstand-
ing jobs.
The work of the Natural Resources
Committee has resulted in new areas of
responsibility for you. As a part of the
Water Quality Assurance Act, we
directed you to help establish a ground-
water data inventory, to begin inven-
torying artesian wells,and to take over
driller licensing. Under the Wetlands
Protection Act, we delegated to you
authority over dredge and fill projects
on agricultural lands. You have acted
with considerable energy in meeting the
deadline and you have approached the
rule-making procedure responsibly.
The Natural Resources Committee
will be chaired by Rep. James Ward
from Fort Walton Beach. He under-
stands well how to balance growth with
the preservation of resources and he is
acutely familiar with the water supply
problems in the Panhandle and other
parts of Florida. I am confident my old
committee is in good hands.
The most important issue today is
the need to intelligently guide the enor-
mous growth that we predict for
Florida during the remaining years of
this century. Figures released by the
Governor's Office show that Florida is
the nation's sixth largest state. By
1987, Florida is projected to become
the fifth largest state and, only four
years from now, to become the
nation's fourth largest state. Less con-
servative figures from the U.S. Census
Bureau predict that Florida will have
17.4 million people by the year 2000.

Florida is going to grow and our
state is not ready for that growth. Hun-
dreds of thousands of new Ploridians
each year are coming to our state
bringing their school children, vehicles,
household goods, cash, investments
and dreams for a new life. They are not
bringing the roads, sewers, electric
generating capabilities, parks,
hospitals, schools, sewage treatment
plants, or drinking water necessary to
sustain their numbers.
Florida's major asset, its high quali-
ty of life, is rapidly becoming Florida's
major problem. To preserve this asset,
hard decisions need to be made quick-
ly. We need to begin now putting into
place the laws, regulatory provisions
and the infrastructure that will respon-
sibly guide growth to protect our quali-
ty of life and assure our economic
The House of Representatives'
Select Committee on Growth Manage-
ment spent two years refining many
complicated issues. Regrettably,
legislation that reflected many of these
was not passed. I plan to introduce, for
consideration by the 1985 Legislature,
a comprehensive package of growth
guidance legislative proposals being
prepared by my staff.
The role water managers can be ex-
pected to play is great. Dramatically in-
creased demands will be placed on our
water resources. Our existing supplies
are not always where people are
located, or where people expect to
locate. We have not had to face yet the
problems caused by large interbasin
transfers of water. If our increasing
population forces us to become
seriously involved with interbasin
transfers from, for example, the
Suwannee River to Tampa Bay, there
will be many questions.
Imagine, for example, the dif-

ficulties in examining the competing in-
terests of the two regions within the
structure of the"reasonable beneficial
use" standard. Does the Tampa area
really need the additional water and
has it utilized local water resources to
the"greatest degree possible" before
considering a transfer? Would
desalinization be a viable alternative,
or would restrictions on use?
On the other side, how would the
Suwannee District determine how
much water they will need in 30 years
or 50 years? What would be the en-
vironmental impact of the transfer on
the fish and wildlife, vegetation,
hydrologic balance and the river's
natural scenic beauty? Could a given
amount of water be more economically
used in the Suwannee District to ir-
rigate farmland, float boats or support
fish life than it could be to promote
growth in St. Petersburg and Tampa?
We are not yet sure how to put a price
or value on these considerations.
The growth package I am assembling
has not been completed, but the em-
phasis will be on a number of issues
developed during the 1984 Session. The
issues and the goals are these:

Ensure that growth will not result
in an unfair tax burden on citizens.
Ensure citizen participation in
growth decisions. Strengthen the
Local Government Comprehenisve
Planning Act to improve the quality,
implementation and enforceability of
local land use plans. Apply stricter
construction standards to develop-
ments on coastal barriers. Establish
a coastal infrastructure policy pro-
viding that, among other things, tax-
payers will not subsidize unreasonable
growth in undeveloped coastal barrier
areas. Require the Department of
Community Affairs to begin approving
the coastal elements of city and county
comprehensive plans. Prevent inap-
propriate development and establish
incentives for appropriate develop-
ment. Create procedures whereby
local governments will be required to
identify more specifically areas where
they will be responsible for providing
services in the future. Make
Florida's development of regional im-
pact process more responsive to the
state's anticipated growth, less

:: ____i___ __II~

cumbersome and more equitable to all can work together in creating a strong
parties. And, eliminate Ihe and intelligent policy for our future.
hodgepodge of overlapping jt~Naic-
tional boundaries of msb-sate dimiets
of state agencies to make govCrnment
more understandable and accessible.

The legitimate question arises as to
whether we can expect realistically to
pass such growth management legisla-
tion. Times are changing, and I am en-
couraged by a new general awareness
of the need to preserve our exceDnt
quality of life and, perhaps more im-
portantly, to ensure our economic
vitality. Growth legislation is am an-
nounced priority in the House of
Representatives and incoming Senate
President Harry Johnston has an-
nounced that growth management is at
the top of his agenda. Governor
Graham has also identified growth
legislation as a top priority Item on his
agenda. We need the participation of
all the citizens of the state and we are
beginning to get it. In a recent survey
by Florida State University, Floridians
listed rapid growth as the most impor-
tant issue. In Floreida 7emd, the Chief
Executive Officer of the General
Development Corporation wrote that
his firm is "very much in favor of some
form of growth management". A
Board of Regents' publication stated
that "The future economic vitality of
Florida is so inexorably tied to the
future environmental quality that the
two must be considered together." An
opinion poll by the St. Petersburg
Times showed an overwhelming ma-
jority of respondents supporting
growth legislation. A group called the
Association of Community Developers
has also appointed a special committee
to study growth management issues.
All this tells us that awareness of the
problem is growing in both public and
private sectors. It also tells me that
there is recognition that something
must be done.
The challenge is an enormous one
but the consequences of not addressing
it are grim and irreversible. We know
the dimensions of the problem and
some of the solutions, and we must act
to prevent the death of our state as we
know it. I am convinced that you, the
Legislature, and the citizens of Florida


-----19~-11-~ ,~-r-- --

Banquet Address

Hosted by the Suwannee River
Water Management District

Representative Herb Morgan

Compared to many states, Florida is
blessed with abundant water, but not
necessarily exactly where or at the time
we need it. And it's not without its
problems. Obviously, with the large
anticipated growth the need for the
water resource that we have will get a
much greater test than it does today.
The essence of our problem is alloca-
tion and pollution.
What we can expect in Florida in the
next 15 to 20 years is what I call"settle-
ment changes," where people decide to
live in this state and competition may
well exist between those coastal areas
that are highly desirable and increas-
ingly expensive, and those inland areas
that may have a greater water resource
and the capacity to accept more peo-
ple. But those inland areas may have
problems, from an environmental pro-
tection standpoint or in regard to pro-
tection of pristine resources, that are
not faced by other areas. What does an
area do as it runs out of water supplies
sufficient to meet the needs of the
population and its growth, and it
moves out to get water from another
area? Should water-rich areas be forc-
ed to subsidize the water needs of the
water-poor areas? The concept of
water wars and the transportation of
water is something that we have not
had to face much in Florida, but we
will face a great deal more of that in
the future. Are we going to be able to
plan to use the resource over the next
15 years or so to avoid these potential
One serious problem is the con-
tinuous threat of contamination of
water supplies. Contamination by
hazardous and toxic waste or sub-
stances of any kind is something that
you will be involved in even more. The
whole agricultural process-the use of

chemicals, the need for water-fits into
that mold, and the need to balance the
very strong agricultural portion of our
economy with the need to protect
against that pollution is something that
we must work on together. There are
other things that contaminate, and
many of those come from sources
other than agriculture. Disposal of
those wastes is something that most of
us have not thought about much. The
protection of the water resource is vital
to our continued use of the resource.
The continual monitoring of
ground-water supplies for possible
contaminates and the cleanup of sup-
plies already contaminated is yet
another of the problems that you will
face in the future. I have the greatest
confidence in this state and our people,
and its ability to deal with these prob-
lems. If we will face them, we can be
assured of safe and plentiful supplies
of drinking water.
I see a continuing problem relating
to funding because it seems to be in-
herent in government. The government
should never have so much money that
it thinks it has plenty, because it usual-
ly wastes money. The statutory and
constitutional limitations on the
districts' ad valorem taxing powers and
utilization of state resources and some
of the programs that we have passed on
to you as Water Management Districts
are big issues. There needs to be a very
thorough discussion of the funding for
water management districts. Specifical-
ly, I feel that in northwest Florida we
need to repeal the constitutional
millage cap of a twentieth of a mill and
raise that to the same constitutional
limit as the other districts. The reason
is that it is vital to the proper function-
ing of a regional water management
system. I also think that we must

review the resource management func-
tions that are a"state" responsibility
that we now have begun to give to
water management districts. These
functions probably should be funded
from a more general source. Minimal
levels of assistance given to Northwest
Florida Water Management District
and Suwannee River Water Manage-
ment District are important to the state
because management of resources is
only as strong as the weakest links in
those five links of the chain, and
because the long-term future of the
state relies upon effective management
by all the districts. We need to do an
analysis of the Water Management
Districts, and we need to review it in
regard to the changes we have made in
the last few years. We've assigned ad-
ditional responsibilities to the districts,
many of which are statewide and are
truly related to the overall protection
of the health, welfare and safety of its
In closing, I think there needs to be a
greater understanding of the need of
water conservation even though we feel
that we have a substantial resource.
The reason is that resource is going to
be used at a much more dramatic pace
than we're accustomed. The treatment
and reuse of water are key elements
that you're going to have to become in-
volved in more.
The last problem you face is the
most difficult. As board members of
Water Management Districts, you
serve as a group who do not run for
election but who have taxing authority.
People don't like you levying property
taxes if you don't have elected
members. But you must have people
who are able and willing to make very
tough decisions and not do that in
regard to the next election. But you
must also demonstrate the maximum
accountability for the funds that you
raise and spend within a district. You
have one of the toughest and most im-
portant jobs in Florida and the system
we have is a good one. It's best for
Florida to manage our water resources
on a regional basis so it can be utilized
and protected to the maximum. It's a
challenging job. It's one that someone
has to do, and as the statement goes,
"it's a dirty, nasty job, but somebody
has to do it." You have done it well.



TUI~ ; :;-1---- -- -------:--- ----=-

Moderated by James M. Harvey,
Deputy Director
Southwest Florida Water Management

Land Management:

District Policies

and Priorities

John Hankinson, Senior Analyst
Executive Office of the Governor

James MacFarland, Dirrector
Division of State Lands

Janice Bush, Attorney
Bush & Bush

Jim Marley, Director
Division of Resource Planning
and Management
Department of Community Affairs

Jim McFarland described the land
acquisition procedures of the Depart-
ment of Natural Resources, indicating
that a Land Selection Committee com-
posed of state agency heads is utilized.
He also stated it is important to coor-
dinate with the local Water Manage-
ment District. Because so many pro-
posals are received, it is important to
evaluate the natural resources before
designing the acquisition project and
determining the boundaries. This
avoids piecemeal acquisitions and
allows for the integration of proposals.
The appropriate state agency is then re-
quested to manage the acquisition and
develop a land management plan. It
also may be desirable, Mr. MacFarland
said, to consider multi-agency manage-
ment. Final land management plans
are approved by the Governor and
In response to a question, Mr. Mac-
Farland stated that eminent domain
for specific, legislatively-approved
parcels is used where management pro-
blems exist, such as for "out parcels."
Eminent domain can be a tax advan-
tage for land owners but also can be an

expensive procedure for the state.
John Hankinson said there is a
serious question regarding the defini-
tion of "public," and that a non-profit
status does not determine appropriate
use of and access to state lands. Uses
should be consistent with the purpose
of the acquisition. The initial iden-
tification of the need for acquisitions,
according to Mr. Hankinson, is a much
better approach than reacting to pro-
posals for purchase. He also said that
creative acquisition alternatives, such
as transfer of development rights and
easements, are -important and can
stretch acquisition funds.
Regarding the State Comprehensive
Plan under development, Mr. Hankin-
son indicated policies are being design-
ed so as to not cause conflicts between
agencies and land uses. He further
stated that land and water are most
definitely related and that Water
Management Districts are the crucial
link in the integration of the two.
Janice Bush said that a major ques-
tion to be considered is, "What obliga-
tion is there to the private sector in
land acquisition and management?"
Several points regarding public land
management were made by Ms. Bush.
An agency must know what it owns,
and why, to properly manage its public
lands. If the purpose of the acquisition
has changed, then "surplusing" the
property as well as enchancing uses by
the private sector should be con-
sidered. The agency must balance
private uses with public benefit and
compatible private uses need to be
defined. As examples of private uses of
public lands, Ms.Bush briefly discuss-
ed utility uses as public benefits,
private sector recreational manage-
ment, and publicly-owned wetlands for
wastewater management.
Jim Murley pointed out that the
responsibility for land management is
greater than the capability of any one
agency. Referencing the Water
Resources Act, the Environmental
Land and Water Management Act, and
the State and Regional Planning Act,
Mr. Murley reviewed various resource
management provisions, including the
Development of Regional Impact
(DRI) and the Area of Critical State
Concern programs. Involvement of the
Water Management Districts in the

DRI program is especially important,
Mr. Murley said. He also noted that
the DRI program will likely be review-
ed by the Legislature in the next ses-
sion. Mr. Murley emphasized that
communication among the water
management districts, Department of
Community Affairs and local govern-
ments is necessary and said the Depart-
ment of Community Affairs is con-
sidering designating a staff member as
a Water Management District liaison.

Moderated by Hea. Fred Bond,
Governing Board Member
Northwest Florida Water Management

Data Networking:

Future Directions

Dpn McEwen, Chief Executive Officer
QUAD Data Corporation

Don McEwen
No fundamentally new communica-
tions technology media is on the
horizon. Microwave, satellites, and
fiber optics have emerged as the most
viable media for the near future. Major
research and development organiza-
tions have pretty much exhausted the
last cycle of breakthrough oppor-
tunities and are now applying and
perfecting the technology already in ex-
Most new advances seen in the next
decade will be in upgrading the existing
telephone system with existing tech-
nology and in software features. As
technologies continue to converge,
software advances will bring a higher
quality and more flexible telephone
system. The telephone system itself will
become the conduit for expanded
voice, digital, and possibly video ser-
vices. New features will include virtual
circuits, protocol conversion, and
selectable line characteristics. Both
voice messages and digital documents
will be stored and forwarded via elec-
tronic mail systems.
During the next three years, AT&T
will be making a concerted effort to
convert existing analogue technology
to digital. While the local telephone
companies may take much longer, the
crush to accommodate the explosion of
digital computers and communications
technology is reaching a feverish pitch.
Rates for data lines are expected to
double within the next three to five
years. However, they will likely drop
during the following five to ten years as
the less expensive and easier to main-
tain digital technology becomes more

Since the Water Management Dis-
tricts are divided by hydrological boun-
daries, some question the need to share
data across district boundaries. While
there is some merit to the question with
regard to the geographically interior
data, others are very interested in com-
mon data near the boundaries and in
common interest data such as Well
Driller Registration and Contractor
Licensing. More importantly,
however, is the growing need for rapid
and convenient voice and text com-
munication between districts and other
associated agents and agencies. A com-
mon voice or electronic (digital) mail
system would serve district executives,
attorneys, lobbyists, DER and staff
peer groups who work to jointly draft
rules, policies, legislation and who
share technical papers, techniques, and
computer software tools. Draft
documents could be distributed and
edited with every key person's input
without waiting for slow mail turn-
Communication capabilities to ac-
complish these things are not necessari-
ly expensive or complicated. In fact,
some districts have the capabilities now
and others are within easy reach. What
is missing is the commitment from each
organization to cooperate, to make the
minor capital investment, to invest in
compatible hardware and software, to
develop simple procedures, and to ex-
ercise the system so that it becomes a
routine habit. One district is already
willing and able to become the elec-
tronic mail depository. The cost of par-
ticipation is minor to negligible and the
same technology that makes this possi-
ble opens other gateways in computing
resources and communication net-
The: first level of communication
equipment is a minor expense. This
level includes asynchronous modems
and voice mail subiciptions. The next
level is a more significant investment
and focuses upon a loal area network
(LAN). LAN's provide a flexible con-
duit to interconnect all resources e the
network. Both of these levels can easily
bridge to other compatible deoies
anywhere in the state or nation via the
existing telephone system or a variety
of alternative common carirs These
long and short distance interconnec-

tions will become increasingly easy and
transparent in the near future.
Whatever the developmental stage of
an organization relative to the in-
dustry, the trend is monotonically
toward networkiAg. It isfor each and
every organization a matter of when to
network, not whether to network.

A -

I _

Moderated by Hon. Ralph Simmons,
St. Johns River Water Management

Funding Issues in

Water Management

Hon. Michael Zagorac, Jr.
Southwest Florida Water
Management District

Hon. John Finlayson
Suwannee River Water
Management District

Hon. Marion Tidwell
Northwest Florida Water
Management District

Mr. Jack Goodridge,
Internal Aditor
South Florida Water
Management District

Honorable Ralph Simmons
The Water Management Districts
have been delegated many added
responsibilities. We are doing all we
can, and if we continue to go to the
taxpayers time and again, we aregoing
to have problems. From the St. Johns'
standpoint, we are going to the
Legislature and asking for funding for
those things that have been mandated
to us by them.
The St. Johns Board has passed a
resolution urging the Legislature to ex-
tend the Save Our Rivers program and
look at the amount of funding provid-
ed. We may be creating a problem
when we talk aboutiacreased funding
and the availability of land. Much of
the land we're acquiring probably
couldn't be developed given our rules
and the permitting requirements that
are on the books teday.

Haorable Jobs Fldayson
I think water is a resource of general
benefit and its regulation should be

funded from state general revenues.
Sometimes it's difficult to get your
budget through the DER to the
Legislature. It is better for us to ex-
plain our problems directly to the
Legislature. Chapter 373, paragraph
503 of the Florida Statutes reads: "It is
the finding of the Legislature that the
general regulatory and administrative
functions of the districts herein
authorized are of general benefit to the
people of the state and should be
substantially financed by general ap-
There is no need for us to have a
statutory millage cap in addition to a
constitutional millage cap.

Mr. Jack Goodridge
The Legislature is inclined to
delegate responsibility and traditional-
ly the money has not come with it. Not
accepting delegation might be the posi-
tion the Boards will have to take in
order to get the Legislature to address
the basic problem. From our District's
standpoint, I really don't see a com-
munication problem. If there is a prob-
lem, I think it is more so between the
Governor's office and the Legislature.
We recently updated our five-year
plan and we have identified far more
lands for acquisition than monies we
haveavailable under Save Our Rivers.
We need to extend the program if we
are to accomplish our objectives.. We
may be buying environmentally sen-
sitive lands which do not have develop-
ment potential. This program may
have created a value for the land that is
not real.

Honorable Marion Tidwell
I have always contended that the
funding of water management is ine-
quitable when based on the b dvalorem
property concept. ft doesn't place the
burden of sustaining the Water Man-
agement Distilctd where utilization oc-
curs. see no alternative but to fund,
especially district like Northwest,
from general revenue.
I can't conceive of Save Our Rivers
funds being used for iteriting pur-
p9ses. I think tiat the Northwest
district should get more thin ten per-
ce6t of those funds -because we have
mote than ten percent of the land and

considerably more than ten percent of
the water.

Honorable Michael Zagorac
I don't see a legislative interest in us-
ing general revenue to fund projects.
I don't know that there is a com-
munication problem as much as there
is a difference of opinion. We certainly
don't have everyone in the districts or
all the legislators on the same train of
thought relative to what the districts
are doing and how they should be
funded. As long as you have a broad
tax base, that ought to. take care of
funding the districts.
As the districts become more visible,
the public is going to start asking ques-
tions about taxation. I think that any
water management district that starts
considering impact fees is just asking
for trouble.

-' i

Moderated by John Wodraska,
Executive Director
South Florida Water Management

Organizing Your

Agency to Face the

Issues: Theories

Dr. Pat Bidol, Associate
The University of Michigan

Dr. Pat Bidol
During the summer of 1983, the
South Florida Water Managetmnt Dis-
trict restructured its operations so that
it could positively respond to en-
vironmental conflicts by using alter-
native conflict management ap-
proaches (acm). The major reasons for
this reorganization were:
A. The agency did not want to be
constantly reacting to the public and
private sectors but wanted to be able to
engage them in mutually beneficial
problem-solving approaches so that the
water resources which the District
managed would be utilized to meet the
needs of the public and private sectors
and to enhance the natural environ-
B. That the engaging of public and
private sectors with the District would
occur with the involvement of the line
managers so that "every manager is
able to positively manage disputes" and
is able to represent his department's
C. The agency did not want to just
engage after a dispute regarding water
management had emerged but wanted
to be able to appropriately incorporate
the concerns of the public and private
sectors in their planning processes.
Since the District desired to increase
its acm competencies by integrating
acm into its line operations (those
which perform the technical water
management functions), its goal was to
institutionalize environmental conflict

management competencies into the
agency's ongoing decision-making and
operational procedures. The reorgani-
zation objectives to achieve institu-
tionization of acm are:
' A. Develop a 'mission statement,
operational goals, and action plans
which reflect the District's desire to
"problem-solve" with key stake-
holders and to engage in acm ap-
proaches to meet the conflicts and
challenges of water supply, flood con-
trol, environmental enhancement, and
water quality protection (this objective
was fulfilled in 1983-84).
B. Develop an organizational design
for the District as a whole and for each
department so that the departments
can work together on complex water
management issues so that they and the
District can positively engage with
public and private sectors (the design is
still evolving).
C. Develop structures to support the
implementation of the above objectives
(still evolving but current ones are
listed below).
South Florida initiated the reorgani-
zation by forming the following struc-
A. Department of Resource Coor-
dination to engage in acm with the
public and private sectors in collabora-
tion with the line managers.
B. Department of Resource Policy
to support the efforts of cross-
departmental acm problem-solving
teams (created for key agency issues
such as "how to enhance the natural
environment of the Bverglades and
provide the needed water resources to
the citizens of south Florida").
C. Executive Council composed of
all key ine directors and directorsof
resource coordination and of resource
policy; the council meets to refine or
create operational policies to fulfill
current operational and acm needs of
the District and to identify which cross-
departmental teams need to be formed.
The above structures have increased
the District's capacity to positively res-
pond to environments by doing the
A. Creating appropriate internal
and external teams (composed of
District staff and members of the
public and private sectors) to engage in
mutually-beneficial problem-solving.

B. Developing a process to identify
key public concerns regarding water
management in south Florida.'
C. Prioritizing the key public con-
cerns for consideration by executive
council and the District's Governing
D. Assisting the District in incor-
porating acm and key concerns into the
current strategic operational plan.
E. Assisting District departments in
responding to public and private sector
To enable the District's upper and
middle managers to understand, ac-
cept, and incorporate acm into their
day to day operations, the following
"supports" have been provided:
A. Training in alternative dispute
resolution theories, inechaisms and
skills for resource coordination,
resource policy, executive council, and
departments (this is an evolving pro-
cess and is not completed).
B. Providing a consultant skilled in
alternative conflict management and in
organizational management to the
managers (she is in the District office
on a monthly basis).
C. Providing for an active role of
district director in the reorganization
and the internalizing of acm by the
D. Giving adequate time to restruc-
ture the mission, District and depart-
ment plans, and District and depart-
ment culture so that the usefulness of
acm to the departments is evident
(ongoing process).
E. Gaining recognition by director
and managers that acm problem-
solving by internal and external teams
is costly in amount of time and person-
nel resources so that teams are only
formed whan they wil produce obser-
vable benefits for the District and the
involved stakeholders.
F. Striving toward recognition by
director and managers that when the
District's managers are skilled at acm
they can often identify and positively
respond to conflicts before they evolve
into "lose-lose" situations.
G. Recognizing that acm cannot be
used with every environmental conflict
and that regulatory or litigation ap-
proaches should be used when needed.

I `------- -

C--- ---- ----------

Moderated by Donald O. Morgan,
Executive Director
Suwannee River Water Management

Water Management

in Georgia

In comparing the Georgia water
quality reports of 1972 and 1983, many
improvements around problem areas,
especially rivers, can be seen. Most of
the problems in 1972 were around
areas of large populations. During that
ten-year period, in the 17,000 miles of
waterways in Georgia, water quality
was maintained in 16,500 miles, 500
miles were improved, and none were

Chris White, Branch Chief
Georgia Water Resources

Chris White
The Environmental Protection Divi-
sion, which is included in the Georgia
Department of Natural Resources,
houses water quality, water quantity,
air quality and land protection.
Because Georgia does not have the
growth problem that Florida has, the
state is able to run its programs on a
limited budget and with tight con-
straints. The Water Resources Branch,
which focuses on water quality, gets
assistance from the Corps of
Engineers, United States Geological
Survey, Soil Conservation Service and
other states, has a 15-person staff aid-
ed by seven to eight consultants. All
permits can be obtained from one
department run by one ground-water
person and a civil engineer. The rest of
the staff is working on basin reports.
Approximately 80 percent of
Georgia's population is located in
Atlanta where there is little ground
water available due to a hard rock
aquifer. Atlanta will have available 327
million gallons per day using a three-
level plan that calls for purchase of
water from Lake Lanier and 50 million
gallons per day from a seven-county
The 7Q-10 (seven lowest days' flow
expected once a year) is the cutoff for
water use and is used as the basis of
discharge and water treatment plants.
Irrigation is exempt from Georgia
laws. The ground-water/surface water
interchange is a major concern in
southwest Georgia because of irriga-
tion withdrawals. The clay layer there
prevents surface water from recharging
the aquifer.


Moderated by John Wodraska,
Executive Director
South Florida Water Management

A View of Water

Managers' Role in

Growth Management

Dr. Warren Viessman, Chairman
Department of Environmental
University of Florida

Dr. Warren Viessman
Since the early 1970's, Florida has
been concerned with the development
of effective policies for growth
management. Because water is such a
critical element in this process, there
has been considerable focus on the
Water Management Districts and the
role they should play. The districts'
growth management strategies are tak-
ing form. An example is the South
Florida District's Core Statement
which specifies that, "Inherent in the
mission is the responsibility to assist
the public and government officials in
growth management by identifying
water resource impacts of land-use
decisions and by advising on options
for reducing adverse impacts and pro-
tecting water resources."
In the broad sense, growth manage-
ment is inextricably tied to manage-
ment of the ecosystem in question.
This system has many components.
Among them are people, land, water,
air, plants, and animals. Disturbing
any part of a system has implications
for other components. Managers must
thus be equipped to deal with a broad
range of issues. The manipulation of
extensive ecosystems poses many prob-
lems in multidisciplinary understand-
ing and coordination. Organizing to
deal with the diverse and interrelated
elements of growth management re-
quires a blending of technology and
human cooperation that is not easily
set in motion and is not likely to be

achieved by mandate.
Basically, the issues the Water
Management Districts must deal with
in establishing their internal growth
management policies include: technical
expertise, conflict resolution
mechanisms, interagency and in-
tergovernmental coordination and
cooperation, data retrieval and systems
monitoring, short and long-range plan-
ning, systems operation and manage-
ment, permitting processes, public
relations, infrastructure maintenance
and replacement, and interrelation-
ships among ecosystem variables. This
agenda is long and complex even when
it is confined to water. What is needed
is a determination of how information
about water resources can most effec-
tively be applied to the development of
successful growth management
strategies. The water management
districts are ideally suited to address
this problem because good decisions
are based on good information. And
related to water, the Water Manage-
ment Districts are the elite. They have
the capability of providing information
needed to support planning and man-
agement processes statewide. This
should be a principal role of the
The ways in which information can
be transferred into growth manage-
ment processes are numerous. They in-
clude: assembling and disseminating
basic data, reviewing DRI's, screening
applications for permits, reviewing
comprehensive plans, participation in
planning processes, analyzing prob-
lems and suggesting options for solving
them, participating in advisory panels
and various educational processes, and
research. Many of these mechanisms
are reactive, however, and while they
are effective, they are not nearly as for-
midable as up-front approaches that
deliver information in the formative
stages of planning, management, and
regulatory endeavors. While it can be
argued that the districts should not
usurp local or regional planning roles,
mutual efforts that allow the districts
to provide the best information
available to those actively engaged in
these processes should be sought and
nurtured. Many avenues for this are
open if all parties have a cooperative

Growth management in Florida is
considered to be of the highest priority
by the Governor, the Legislature, and
most citizens. It requires the develop-
ment of competent policies at all levels
of government. Furthermore, it re-
quires that these policies be consistent
and be incorporated effectively in plan-
ning, development, regulatory, and
management strategies. A basic re-
quirement for success is the provision
of information upon which good deci-
sions can be based. The ways in which
this information can be generated and
transmitted are many, but the flow
must be properly targeted and the in-
formation appropriately packaged, if it
is to be used effectively or at all. The
Water Management Districts have
recognized this role, but the job is in-
complete. The need for developing new
lines of communication, exploring im-
aginative, unconventional options for
solving problems, and for devising bet-
ter ways to inform decision makers is



- Y

% -,M,qt -

Water Issues in Florida

Hosted by the St. Johns River

Water Management District

Hon. Idwal Owen, Chairman, St. Johns River Water Management District

Hon. Ed Dunn
The Florida Senate

Mr. Carl Loop
Florida Farm Bureau

Mr. Tom Lawton
South Brevard Water Authority

Mr. Robert M. Rhodes
Environmental Land Management Study Committee II

Senator Dunn
The primary role the Legislature will
have in the narrow issue of water pro-
gramming will be to refine and perfect
what we put in place with major
legislation last year. The major
challenge will be the implementation of
the Water Quality Assurance Act and
the Wetlands Protection Act.
Growth management is an umbrella
issue that affects virtually every func-
tion or service in state government.
And growth management has such
significant implications for our state
that we must act now.
From a historical perspective,
growth management is a most signifi-
cant challenge that political leaders,
whether they be appointed at the
District level or elected at some other
level, will have to face.
As part of the comprehensive plan-
ning process, we are going to have to
address some very tough issues and the
convergence, for example, of an urban
policy and an agricultural policy as
they relate to utilization of common
Water quality, water quantity, and

the preservation and allocation of
water resources, both within and be-
tween Water Management Districts,
will all be on the legislative table. These
items will be discussed and integrated
into economic and other policies which
will be part of a state comprehensive
plan, of regional policy plans and of
local comprehensive plans.
The challenge now with regard to the
Wetlands Act is to get it implemented.
I might suggest the need for the
Legislature to refine, enhance and
clarify the major policy statements in-
tended through passage of the Wet-
lands Protection Act.
I can't envision that Florida will slip
from its present commitment to farm
production. The issue is how, in the
context of the next 15 years, do we in-
tegrate economic pressures of growth
with the goal of maintaining a produc-
tive agricultural base. I see this as an
equal to the objective of having a safe,
clean place to live.
Whether we are becoming more pro-
active or not is something I don't
know. I hope we are. It would certainly
go a long way in helping us all live a

more peaceful life if we can get our
problems solved before they become

Tom Lawton
The manner in which Water Man-
agement Districts are funded needs to
be addressed. I think we're in serious
trouble. We are just now implementing
rules without money to enforce them,
much less to pick up some new pro-
In the long term, the most serious
problem facing us is water pollution.
We've got enormous quantities of
water in Florida and most of it is no
good. The biggest danger is from salt-
water intrusion, runoff from commer-
cial operations, agriculture, homes and
everything else. I really don't see how
we can control it and that, to me, is the
number one problem in the long term.
In regard to all the regulatory agen-
cies we have, I think the smart
developers play one agency against the
other. If there were more coordination
between the agencies, maybe they
could all be on the same wavelength
before any final decisions are made. If
this coordination existed, it would be
to the people's benefit to have several
regulatory agencies.
I think there is a balance developing
between the Water Management Dis-
tricts and agriculture. In the beginning,
it was normal for agriculturalists, who
are basically very independent and like
to be left alone, to test the Water
Management Districts. We have passed
through that period and both sides
realize that they have a common in-
terest in preserving and properly utiliz-
ing resources. I think agriculture and
the Water Management Districts are
being forced into a relationship that
eventually will be productive.
Agriculture has an enormous way to
go in cleaning up the water they use.
They also need to use the water more
efficiently and get together with the
Department of Environmental Regula-
tion to begin implementing procedures
for reuse.

Mr. Carl Loop
Rather than trying to identify a
single overriding water issue, we
should be developing rationales for

allocating the water resource. We
should look at agricultural needs, ur-
ban needs and wildlife concerns and
start finding cooperative solutions.
It would be better if we had fewer
regulatory agencies. If their number
were reduced, their responsibilities
would be more clearly defined. When
we have so many agencies with over-
lapping responsibilities, we have un-
necessary duplication and the possibli-
ty of things falling through the cracks.
As our agricultural people try to learn
what they are supposed to do, it's very
confusing when they have to deal with
so many agencies. Agriculture is well
regulated ... by USDA, the Florida
Department of Agriculture, EPA,
OSHA, FDA, DER, DNR and others.
The relationship between agriculture
and the water regulators is improving.
The fact that we are here today discuss-
ing these things shows that clearly.
There is a great deal of misunder-
standing concerning agriculture. More
than half of our lands are in agriculture
and we need these areas to absorb rain
water, which is our greatest source of
clean water, and to recharge the
Agriculture is doing a lot to try to
solve some of the problems. When I
look at the "no tillage" concept, drip
irrigation, holding ponds, and efforts
by citrus growers to utilize treated ef-
fluent for irrigation, I see agriculture
We can look back and see some ex-
amples of cooperative efforts. In 1947
in the Glades area on the east coast, we
had a situation where farm land and
cities flooded and we had intrusion of
saltwater. There was a cooperative ef-
fort where we went in and drained
some of the muck and it was used for
agriculture. We set up a conservation
area that was used to hold this water
and recharge the aquifer. The Ever-
glades was drying up and we were able
also to regulate the flow of water into
the Everglades.
It is going to take a lot of these kinds
of efforts to protect the resources and
ensure availability to all segments that
are going to use water. Cooperation
between the Water Management Dis-
tricts and agriculture is improving as
we all begin to realize the importance
of this issue.

Mr. Robert Rhodes
Growth management is going to
bring out some unique pressures and
questions regarding management of
water resources in the Legislature. We
are going to see an effort to develop
comprehensive growth management
policies now. Early next year these
policies will go before the Governor
and Cabinet and to the Legislature in
April. That first step, to establish
policies regarding water supplies, is
about ready to happen.
If we were fashioning the best of all
possible public administration worlds
to regulate, all of us rational people
would have to say, "Let's create one
agency and let's fund it right. Let's rely
on it alone and not go ping-ponging
back and forth."
The whole issue of agricultural land
conversion has been one the
Legislature has approached with sen-
sitivity. Even if the 1985 Legislature
doesn't do anything in regard to a state
policy for agricultural land preserva-
tion, local governments in Florida have
plenty of authority to approach
agricultural land preservation in a
comprehensive and meaningful way.
In terms of the integration issue, no
one has ever successfully developed an
integrated land and water growth
management policy. I am not sure we
are going to be able to do that. At least
we have in place a mechanism that if
seven statewide elected officials, mean-
ing the governor and the cabinet
wanted to do it; and if the House and
the Senate want to do it; and if Jon
Mills is right that there is a public in-
terest out there to do it, they have every


The Changing Role of the

Water Management Districts

Hosted by the Southwest Florida
Water Management District

Hon. Mary Kumpe, Governing Board Member, Southwest Florida Water Management District

Martha Barnett
Holland and Knight

Glenn Robertson
Deputy Director
Office of Planning and Budgeting

Bernard Yokel
Florida Audubon Society

Alex Jernigan, P.E.
Post, Buckley, Schuh and Jernigan

Glenn Robertson pointed out that it
is important for Water Management
Districts to look into the future while
water policies and decisions are being
made. He indicated Florida is currently
the sixth most populous state in the na-
tion and by 1988 is expected to be the
fourth and that the consequences of
growth is a major concern in the minds
of the public. It is important to
remember that policies, laws and
regulations affect people and most
people are attracted to Florida because
of the quality of life here. Those deal-
ing with water decisions, according to
Mr. Robertson, "are right in the mid-
dle of the quality of life issue,"
because of the impact of water deci-
sions on public health. The quality of
water, hazardous wastes, and waste
water are other public health concerns
that need to be addressed. A key factor
in making policy decisions is com-
municating with the public and
developing ways to communicate bet-
ter is a major issue.
Larry Sellers said an important role

for Water Management Districts as
Florida prepares for its expected
growth is to provide guidance to the
state on identification of existing and
future critical water issues and to pro-
vide technical information about
water. Both are essential to the plan-
ning process. Another role is to imple-
ment and refine state and regional
water management policies. In his
view, water management districts will
have an integral part in managing
growth. Water policies and decisions
should be made by Water Management
Districts thinking prospectively. There
is a need to have reasonable standards
when implementing policies, and the
standards should reflect considerations
about the future. Also, overlapping
and conflicting regulatory policies of
governmental entities should be
eliminated. Mr. Sellers' advice to
Water Management Districts in look-
ing to the future is threefold: to seek
the best technical information, to en-
courage meaningful participation by
interested and knowledgeable persons,
and to keep the reasonable and
beneficial use of the water resources as
the basis for policies and decisions.
During discussion, Mr. Sellers said
most responsible developers and in-
dustrialists realize the importance of
the quality of life and will welcome
clear policies and standards.
Alex Jernigan emphasized three ac-
tivities in which Water Management
Districts should be involved. Primary
in his remarks was the State Water Use
Plan mandated in 1972 and never com-
pleted. Mr. Jernigan felt it is im-
perative that the Water Use Plan be
completed and used as a key element in

the current development of a State
Comprehensive Plan. He cited the need
for substantial staff on the part of the
Water Management Districts as
responsibilities increase. With their
technical expertise, water management
districts appear to be the appropriate
agencies to identify the raw water
source for an area and to establish fair
and equitable distribution procedures
for municipal and private entities. Mr.
Jernigan said the districts should keep
in mind the major function of drainage
and flood control, and realize this is a
potential problem although some flood
protection measures have been taken.
Mr. Jernigan also indicated the
districts are becoming increasingly
stronger and important and are being
relied upon by other entities more than
ever before. He warned against the
drive to make the Governing Boards
elective and. that the districts would
lose their effectiveness if the Boards
were not appointed.
During discussion, Mr. Jernigan said
he felt the Chambers of Commerce and
agencies responsible for attracting in-
dustry would be very receptive to ideas
regarding the kind of industry which,
for legitimate resource reasons, would
not be welcome in Florida.
Dr. Bernard Yokel said a water
management program's merits or
faults are reflected in its management
of extremes. If society can go through
its normal processes during a drought,
and if excess water during a flood can
be handled without inconveniencing
too many people, then a program can
be considered successful. Dr. Yokel
referred to substantial costs involved in
effective water management. He said

the cost factor, as well as the factors
favoring the appointed boards, should
be conveyed to the citizens through a
highly organized public relations pro-
gram. This program should relay the
message that it is in the citizens'
economic self interest to support good
water management.
During discussion, Dr. Yokel said
the message to be delivered to the
public is that policies are needed to
protect the resources as well as the
economic base of the community. In
Dr. Yokel's view,- when the citizens are
made aware that there is an economic
factor involved, the idea of good water
management is a lot easier to sell.

-P ,.=.. I-PI

The Need for Integrated Programs

in Florida's Resource Management

and Educational Systems

Hosted by the Northwest Florida
Water Management District

Joyce Estes, Environmental Program Director, The Florida Federation of Women's Clubs

Ms. Pat Gleason
Assistant Deputy Attorney General
Office of the Attorney General

Dr. Elizabeth F. Abbott
Executive Secretary
Florida Foundation for Future Scientists

Hon. Robert L. Parks
Environmental Regulation Commission

Dr. Edward A. Fernald
Institute of Science and Public Affairs

Dr. Douglas W. Crawford
Division of Public Schools

Colonel Robert M. Brantly
Executive Director
Game and Fresh Water Fish Commission

Dr. Doug Crawford indicated the
public education system is acutely
aware of the importance of the proper
priorities being placed on the selection
of educational material taught to our
children, on the qualifications of the
individuals teaching the material, and
on the funding to develop the pro-
grams. A basic philosophical issue is
one that has generated much debate,
and that is, "Should the State
Legislature mandate a course of study
regarding resource management?"
While pointing out the disadvantages
of such an approach, he discussed the

activities of the education system in
relation to the local school systems and
the private sector and how they are im-
plemented to expose the students and
public to resource management prob-
lems and solutions. Dr. Betty Abbott
and Dr. Ed Fernald also pointed out
the various efforts toward resource
management education in their respec-
tive fields.
Dr. Abbott further explained the
scope and charge of the Florida Foun-
dation of Future Scientists, noting the
accomplishments and progress in im-
proving awareness of the importance

of resource management made with
students over the state. Mrs.Joyce
Estes encouraged the resource manage-
ment agencies to approach the Florida
Federation of Women's Clubs and get
them more involved in information
and educational activities.
Col. Bob Brantly noted that while
the development of a program of this
type is necessary, he feels that another
approach should be investigated. He
recommended integrating the public
sector with the educational sector which
might prove to be more beneficial in
the long term. He also pointed out the

importance of educating educators and
preparing them for a curriculum to be
taught in the public schools on an elec-
tive basis. Col.Brantly further sug-
gested internship education, getting
outside agencies more involved in
classroom activities, and combining
the efforts of the education system and
the private sector in developing a pro-
gram that would enhance the current
status of resource management educa-
Dr. Fernald indicated that university
students are offered an assortment of
educational materials that expose them
to the problems and encourage the
development of solutions to our cur-
rent natural resource management
situations. However, he indicated the
general education student was not as
aware of these problems as he should
be and that more program emphasis
should be placed on the environmental
aspects in our education system.
Mr. Robert Parks said that a central
problem is additional funding to in-
clude graduate-level internships with
resource management agencies. The
idea of the resource management agen-
cies making available individuals to
teach at the college level is an area that
should be developed further and one
that would provide a great return by
exposing the potential problems of the
resource management issues to faculty
and students. This approach would
provide an "inside", practical look at
resource management.
Ms.Pat Gleason noted there are
numerous individuals capable of
educating the public as to the
"academics" of resource management,
but practical resource management has
not been developed to its fullest. The
desirability of bringing the individuals
actually involved in the mechanics of
resource management into more con-
tact with those who study it would be a
very important achievement in this

L __ _I



Thursday, October 25 Concurrent Information Sessions

Land Management: District Policies and Priorities

Data Networking: Future Directions

Funding Issues in Water Management

Organizating Your Agency to Face the Issues: Theories

Keynote Luncheon. Address by Representative Jon Mills. Hosted by the
Northwest Florida Water Management District.
Water Issues in Florida. A special program arranged by the St. Johns River
Water Management District.

Concurrent Information Sessions

Organizing Your Agency to Face the Issues: Practical Applications at the

How to Get the Most Out of Your Lobbyist

Water Management in Georgia

A View of Water Managers' Role in Growth Management

Friday, October 26

Banquet. Address by Representative Herb Morgan. Hosted by the Suwannee
River Water Management District.

The Changing Role of the Water Management Districts. Panel discussion
arranged by the Southwest Florida Water Management District.
The Need for Integrated Programs in Florida's Resource Management and
Educational Systems. Panel discussion arranged by the Northwest Florida
Water Management District.

_ ~~____ _________~__~_


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