Title: The Eleventh Annual Conference on Water Management in Florida - Abstracts
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Permanent Link: http://ufdc.ufl.edu/WL00002978/00001
 Material Information
Title: The Eleventh Annual Conference on Water Management in Florida - Abstracts
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Language: English
Publisher: NWFWMD
Spatial Coverage: North America -- United States of America -- Florida
Abstract: NWFWMD Collection - The Eleventh Annual Conference on Water Management in Florida
General Note: Box 13, Folder 15 ( The Eleventh Annual Conference on Water Management in Florida - 1987 ), 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: WL00002978
Volume ID: VID00001
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Full Text




Public Information Bulletin 87-1

j _L




Editor's Note and Credits ..................................... 2

Edited by:

Paula Tully
Public Information Specialist
Northwest Florida
Water Management District

Layout and Cover Design by:

Diane C. Beville

For additional copies, write:

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

Main Addresses
Governor's Coffee Address by
Commissioner of Agriculture Doyle Conner .................. 4
Keynote Luncheon Address by
Good Property Company President James W. Apthorp ........ 6
Banquet Address by
Vice President of Land Acquisitions
for The Nature Conservancy, David Morine .................. 8

Panel Discussions
Florida's Dynamic Future: The Role
of the Water Management District? ....................... 12
A Strategy for State and Regional
Water Management Planning .......................... .15
Political Reactions to the 1986 Drought in the
Southeastern United States ............................ 18
Local Government Assistance from a Local
Government Perspective .............................. .. 20

Information Sessions
The News Reporter: A District's Best Friend ................ 26
The Medium is Radio; The Message is
W ater M management ..................................... 27
Hacking at the Paper Mountain: Automating
Permitting Procedures ................................... 29
Pioneering Water Conservation in Southwest Florida ........ 31
WaterWays Education Program: A Nonstructural
Approach to Water Management ...... ................... 34
Tracking: Programs for Computerizing Permit Status
and Issues Analysis ..................................... 36

From S.O.R. to L.A.M.P: The Alphabet of
River Protection ........................................ 38

A genda ...... ................................. ...... .... 40

The costs for printing and distributing this public document were included
in the registration fee charged for the 11th Annual Conference on Water
Management in Florida.

__ ~



Route 1, Box 3100, Havana, Florida 32333

J. William McCartney (90) 487-1770
Executive Director

Editor's Note and Credits:

Water managers, environmentalists, policymakers, agency workers, city and county leaders, and private citizens in-
terested in water resource issues converged on the Florida State Center for Professional Development for the 11th An-
nual Conference on Water Management in Florida on October 23 and 24, 1986. This annual event, hosted by the
Northwest District, provides an opportunity for water resource experts to share ideas, evaluate programs and en-
courage one another in the water management mission. This year's conference, the largest ever, accommodated more
than 300 participants.
The Northwest District wishes to thank all those who attended, and especially those whose considerable efforts
went into making this Conference so informative and successful. Most notable among the many who helped were Hon.
James Harold Thompson; Cathy Anclade at the South Florida Water Management District; Carolyn Mobley and Lin-
da Smith at the Suwannee River Water Management District; Ed Albanesi and Bonnie Martinich at the St. Johns
River Water Management District; Susan Kessel at the Southwest Florida Water Management District; Bill McCart-
ney, Chris Howell and George Fisher from our own Northwest Florida Water Management District; John Wehle and
John Morgan at the Department of Environmental Regulation; and Susan Lampman and Cheryl Grossman at the
CPD. Their assistance and support year after year makes the Annual Conference on Water Management an infor-
mative, enjoyable endeavor.
Paula Tully

Chairman Destin

Vice Chairman Tallahassee

Sec./Treas. Chumuckla

Port St. Joe


Panama City





Governor's Coffee Address by
Commissioner of Agriculture Doyle Connor

Keynote Luncheon Address by
Good Property Company President James W. Apthorp

Banquet Address by
Vice President of Land Acquisitions
for The Nature Conservancy, David Morine

- ~IC~L- --
'3 -

Governor's Coffee
Address by Doyle Conner
Commissioner of Agriculture

As head of the state's major con-
sumer agency and as a member of the
Cabinet, I try not to take a parochial
view of problems affecting farmers.
On the other hand, they do have
special problems which I am probably
more aware of than most public of-
ficials in the state, and more and more

they are becoming a rather small
minority at the polls. We are talking
about an absolutely basic and essen-
tial industry on which we rely for the
very food we eat every day, not to
mention clothing, housing and other
essentials. It's not as if some outfit
from up north were coming down here

to establish a new industry called
"agriculture," which was going to
have a major new impact on our
resources. Agriculture has been here
for a while-a lot longer than Florida
has been a state. I find it hard to
equate a new housing development
with the operation of a citrus grove or


dairy farm or tomato field. I like to
point out that when we talk about
agriculture using water, we are talk-
ing about the consumer of agri-
cultural products using that water.
You are using water just as surely
when you eat a salad or bread or meat
as when you drink from the glass
beside your plate. Water is an ab-
solute essential for most of the things
we grow in Florida-for irrigation,
and in many cases for freeze protec-
tion. I would also like to point out
that water is not free, even when it
comes out of a farmer's own well. It
costs a great deal of money to run ir-
rigation pumps, and growers are do-
ing a lot already to find ways to cut
down on this cost, such as low-volume
spray and drip irrigation, use of com-
puters, nighttime irrigation, reten-
tion ponds, more careful timing and
so forth. All this is not to say that
agriculture can't or shouldn't do even
more to protect and preserve water
resources. We all must work together
on this. But let's not turn it into a
finger-pointing exercise. Our agency
is Florida's lead agency in the regula-
tion and enforcement of pesticide and
agrichemical use, and it is a critical
function to the future of our state and
to our water supply. By effective en-
forcement, by critical controls, and by
accurate assessments, we can prevent
contamination from occurring. Our
scientists are requiring Florida-
specific environmental data on the
pesticides which we register for use in
Florida. We are gathering data on
specific soil types, well locations,
hydrogeology and other physical fac-
tors from other state and federal
agencies. By combining all this, we
can make legitimate predictions
about the behavior of chemicals
before a problem occurs, and not ex-
pensive cleanup after the fact. I am
convinced that not only can we pro-
tect Florida's unique environment, we
can protect agriculture's need to use
certain chemicals to produce our food
and fiber.
Everyone must cooperate to pro-
tect our water resources-not just
agriculture. We need to critically ad-
dress developing minimum well con-

struction standards and controls on
stormwater runoff, for starters.
People in agriculture may have given
the wrong impression about their feel-
ings about water conservation
because they tend to react rather
vigorously when they see a threat to
one of the essentials of their opera-
tion. They do this because they are
not sure that the people making the
decisions are aware of their special
problems, or even care. This goes
back to the fact that they are a small
minority in this nation today, in spite
of the economic impact of agri-
business as a whole. And when they
see several hundred new residents
pouring into the state each and every
day, they get a little uneasy.

These water management boards
that you serve on can make decisions
affecting the very existence of an
agricultural enterprise. I should add
that in most cases the water manage-
ment boards have been more under-
standing than some other agencies.
As some agriculture spokesmen have
pointed out, what we need are state or
even federal standards, but with the
application of those standards at the
local and regional levels where the
people affected can have input, and
where the decision-makers know the
particular circumstances. The alarm
bell really rings in the minds of
farmers when somebody starts talk-
ing about arbitrary limits and con-
trols, which may or may not have
much relationship to the situation.
It's easy to sit down and say, "Well,
let's set the limit at this figure, just
to be sure," but in actual practice,
this could be devastating to a par-
ticular operation, and may turn out
not to have been necessary in the first
place. So let's be careful about mak-
ing up rigid rules, at least before we
have all the facts. I would put the G-1
Groundwater Rule in this category.
Certainly we don't want to con-
taminate our underground supplies.
Farmers drink water too, often from
under their own land.

I think I have established some
credibility in making tough decisions
even when they are not popular, such

as the ban on Aldicarb and EDB
before even the EPA agreed to the
dangers. I have no qualms about say-
ing that agricultural interests do
have an obligation to join in the effort
to protect our water from waste and
contamination, and I will personally
cooperate in any reasonable project or
program to further that cause. In
making the difficult decisions I men-
tioned, I have always made it a policy
to sit down with the people most
directly affected to see exactly what
can be done, and just as importantly,
what does not need to be done. That's
how we should deal with these water
problems. Let's just be sure we have
all interests properly represented and
that we give proper consideration to
them all. I don't think this is a situa-
tion where the people who happen to
have the most votes should necessari-
ly make the final decisions. That
could be bad for the majority in the
long run, as well as very harmful and
unfair to the minority. You will find
us in agriculture to be very cooper-
ative partners.

___I_ _

Keynote Luncheon

Address by James W. Apthorp
President, Good Property Company

I have spent the last 18 months as
part of the State Comprehensive Plan
Committee. I'm delighted that
growth management discussion has
come to this point so we can deter-
mine what kind of state we are going
to have in the future. The discussion
about growth management really
started in the late 1960s in Florida.
You may remember the Conservation
'70s organization that was an exam-
ple of the momentum of many of
these issues. The land management
and water management acts were
adopted in the early '70s. We actually
believed during that period that we
could manage growth, that we could
redirect those 90 percent of the people

who are going to live within a few
miles of the coast to some interior
part of the state, and that we could
actually make the state grow the way
we wanted. We can have some in-
fluence, maybe, but we've come to
realize that 90 percent of those people
who come to the state are going to
live within a few miles of the coast.
Our job now is not so much to try to
change that pattern but to figure out
how to deal with it.

The middle 1970s saw our en-
vironmental reorganization. We saw a
constitutional amendment involving
water management districts adopted.
When the people of Florida have been

asked to act on that amendment or on
the adoption of environmentally en-
dangered land acquisition programs,
park programs, Save Our Coast Pro-
grams, etc., they have always sup-
ported good initiatives. You should
not be afraid to say what programs
you think our state needs. The public,
if they understand the issues, will
agree that it costs money and it re-
quires regulation to provide the kind
of environment that we all want.

We have seen Save Our Rivers,
Save Our Coasts, Save Our
Everglades and other initiatives, and
in the early 1980s we began a serious
discussion of the costs of all our pro-

grams. How much does it cost to
meet our transportation needs and to
provide a good education system, and
where do we find the money? That's
what our committee is about. The
state plan sets up certain objectives
that the Legislature would like our
state to meet. None of us would
seriously disagree with the objectives
contained in that plan. The costs that
we heard at the time of the adoption
of the state plan ranged from $10 to
$30 billion dollars. The number that
we will produce in the next 60 days or
so will be more like $60 to $75 billion
dollars in infrastructure needs. That
is an evaluation of the cost of meeting
all objectives in the state comprehen-
sive plan.

We met with representatives of
every local government in Florida and
asked them to use the same criteria to
judge their future needs. The needs
are primarily state rather than local.
If the state, for example, would deal
with the primary transportation
system and fund it, then local govern-
ments would not need as much money
for transportation programs. In
Orlando, there has been an attempt to
deal with transportation on a local
basis. A three-county authority was
proposed and was to be supported by
ad valorem taxes, sales taxes and
some fees. It was defeated by a vote
of four to one. Part of the reason was
because it was not perceived as a local

Our committee divided into five
regional panels and talked about
what the infrastructure priorities are
in each region of the state. All five
regional groups reported that
transportation was the number one
infrastructure need. Water was not
the highest priority. Water, sewage
treatment, water quality and water
supply concerns are on the list, but
they are not at the top. The water
management district system has been
in place for a number of years and is
working well. It can fund itself and
meet needs, but the public doesn't
perceive the great need in water
management that they do in some

other areas. Other priorities include
health and human services, disposal
of solid waste, and crime, but
transportation is number one in every
region of the state. This backlog of
need will be with us over the next 10
or 15 years, and it's growing, and we
are not dealing with it. Where do we
get the money to pay for this enor-
mous need? We found that Florida is
an extremely low-taxed state. We
rank 47th among the 50 states in im-
pact of state and local taxes on our
citizens. In 1975, state and local
government, including water manage-
ment districts, took about 5 percent
of personal income in Florida. During
the last 10 years, the portion of per-
sonal income in Florida that supports
state and local government has ac-

ed, and most of it will be devoted to
operating needs of state government.
The second thing we will recommend,
in the way of short-term solutions, is
that the Legislature consider impos-
ing a significant additional gas tax.
Because transportation came up as
the number one need, special atten-
tion needs to be given to that prob-
lem. Our recommendation will be an
additional eight to 12 cents per gallon
tax on gasoline. A tax of 10 cents per
gallon of gasoline would produce
about $500 million a year. This could
be bonded to about $5 billion to build
new transportation facilities. The
needs, as determined by the Depart-
ment of Transportation and local
governments, are about $20 billion.

tually decreased. The reason is that These are concerns for all of us in-
the sales tax is only applied to a small volved in making public policies in
portion of economic activity. Even if this state. We will have to attack
all the loopholes were closed, it would several of these problems under new
still only apply to a small number of legislative leadership and a new
transactions in our total economy. governor. I hope they will be dealt
Our economy grows, but our tax base with, and I hope that you will join us
does not. in debating those questions. All the
easy decisions had been made, and we
We need to consider some longer have to face some very fundamental
range studies of our tax'systemfiWe. questions about the future of our
need to look at other-ta4 bases One state.
option is the gross .eceipts tax we
have had in Florida for many ears.
It's a part of your utility bill, and the
utility company currently pays .5 per-
cent to the state as a gross receipt
tax. It has been used to build every
building in our university and com-
munity college system, and many of
our K through 12 buildings. It has
been a good, solid source of revenue
for many years. It is bondable and it's
somewhat painless because it doesn't
appear on the utility bills and people
pay it without realizing that they're
paying a tax. If it were applied more
broadly, it could replace our sales tax.
We have to think in terms of major
changes in our tax system if we are
going to deal with the kind of needs
we are finding.

There are two things that the
Legislature can do this session. First,
close all the sales tax exemptions. We
feel strongly that the revenue is need-

__ _

Address by David Morine
Vice President of Land Acquisitions
for The Nature Conservancy

Although I have been with The
Natural Conservancy for 15 years
now, I guess I haven't addressed a
group for the past 10 years or so, and
the reason for that is two-fold. During
my first five years with The Conser-
vancy, I was young and eager to talk
to any group, anywhere, about how
we were going to save the world. But
it soon became obvious to me, as I ad-
dressed local crowds, that I didn't
really know that much. Here I was,
talking about biotic diversity and
what we needed to be doing on a
global level, when my audiences were
more concerned about things like
whether they could use their dogs for
hunting. So, in a sense, I wasn't get-
ting anywhere. But I did learn an im-
portant lesson, and that is that while
conservation is usually thought out
on a global scale, the implementation
is local.
The second reason that I refrained
from public speaking, and the more
important reason really, is that when
you come before a group of people to
talk about conservation, you should
have something positive to say. Any
of us who have seen our world and
what's been happening to it over the
past 15 years know that while we're
winning a few battles here and there,
we're really losing the war. It's tough
to get in front of an audience and talk
about conservation and the many
things that all of us in this room hold
so dear, and be very positive about it.
A month ago, I attended our annual
meeting in St. Louis, and I had the
pleasure of listening to a talk by Dr.
Peter Raven of the Missouri
Botanical Garden. Dr. Raven spoke
on the topic of "Global Features: The
Third World," and in the course of his
speech, he examined world population
during a 70-year span, from 1950 to
2020-one human lifetime. In 1950,
the world had a very manageable

population: 2.5 billion people. But Dr.
Raven predicts that by the year 2020,
it's going to be in excess of 8 billion
people. Unfortunately, most of this
population growth is gong to take
place in Third World countries,
primarily in the tropics. If that hap-
pens, and there's no reason to believe
it won't, the tropical rain forests will
be completely destroyed. Today, in
1986, we're at approximately 4.7
billion people. We've already
destroyed almost 44 percent of that
great natural system of rain forests
on which we all depend. What do
these figures mean to us in this room,
what do they mean to the people of
Florida, to the people of the United
States? I don't know. What I do know
though, is that this destruction of
natural resources is not going to be
good for you, and it's not going to be
good for our children.
I read an article a number of years
ago about a theory on your own
Kissimmee River. The article sug-
gested that heavy afternoon rainfalls
that were once so common to the
Kissimmee Valley area weren't occur-
ring anymore because the wetlands
along the river had been destroyed. I
don't know if that is true either. But
if it is true, if there is a correlation,
could there also be a correlation be-
twen these widespread droughts suf-
fared in Africa and the clearing and
decimation of the Amazon rain
forests? Could the "holes" that scien-
tists are discovering over the polar
caps be connected in some way to the
alteration of the photosynthesis pro
cess through the loss of rain forests?
Could the fact that Jacques Cousteau
admits to having witnessed a 50 per-
cent decrease in marine life during his
lifetime be related to Dr. Skip Liv-
ingston's theory that the loss of pro-
ductivity in Apalachicola Bay is due
to nutrient loading coming down the

All of these hard and frightening
questions make it very difficult for
me to go out and talk to groups about
our future and about the environ-
ment. O@r father, it was difficult until
I received this wonderful publication
commemorating the fifth anniversary
of the Save Our Rivers Program. I
looked at this booklet and for the first
time I saw hope. I saw here a critical
mass of ideas, people and money that,
for the first time in the 15 years that
I've been working with The Conser-
vancy, have a chance of getting the
job done This Save Our Rivers
booklet is, to me, one of the more im-
portant documents in American con-

As I leafed through this document,
it occurred to me that these five water
management districts are kind of like
a basketball team. There are two big,
bulky forwards down in the South
(with lots of money, I might
add)-Southwest and South Florida
Water Management districts. They
are the team rebounders, trying to
come back from the first waves of
growth. In the middle of the state, we
find St. Johns, the long, lanky guy.
He's in the transition stage of the
game. And up north, you have those
two quick little guards: McCartney
and Morgan. You don't pay them
muh, I know, but what they are try-
ing to do is to protect that Florida
that we used to know and love-the
Florida of the 1900s, when population
was manageable and resources didn't
need so much m mnt.
Of course, running this whole team
you have the best general manager in
the world: the state of Florida. Dur-
ing the past 10 years, the state of
Florida haa put out more money for
conservation than all the other states
and the federal government co bin-
ed. Right now, there's nothing in the
world that can come close to equalling

- 111 --

the programs that are being im-
plemented in this state. As far as con-
servation-there is nobody who has
attacked the problem more ag-
gressively than the state of Florida.

Now, where does The Nature Con-
servancy fit into all of this? I would
like to say that we consider ourselves
to be the sixth man-a guy who
comes off the bench and gets an op-
tion or a bargain sale or some money
for you. But the truth of the matter is
that we're probably more of a
cheerleader. What we're going to do
and what we've been doing, is taking
the idea of Save Our Rivers all over
the country. We want to bring this
program and the concept of the
transfer tax to every state in the
country. The transfer tax is a painless
tax, and we mean to sell it and pro-
grams such as this one throughout
the United States. Already, our
cheerleading is paying off. Last year,
South Carolina passed a transfer tax.
Tennessee passed one, not on the
magnitude of Florida's, but it's a
start. Suffolk County, Nantucket
Island and Block Island, Rhode
Island all put in a transfer tax model-
ed on Florida's legislation.

It is for this reason that I m :
honored to be here tonight, to be with
you people. You are the first hope ..
that we've had in conservation in
many years. For that reason, I t;
beseech you to not let this mission
and your goals get side-tracked by
partisan politics and bureaucratic
buildups. I know yours is a tough
task. Every day that you walk into
that office there are a million things
that can slow you down, knock you many of you as I d
off track, deter you from your course. know it's going to I
You cannot let it happen. You must Thank you, good luck,
watch and follow the big picture. ing ahead.

o personally, I
be a good bet.
and keep mov-

We at The Nature Conservancy ap-
plaud you. We will help you in any
way we can; we will cheer you on
because you are the hope and salva-
tion for any of us who believe in con-
servation and the proper, balanced
use of our resources. I'm going to put
my money on you. And knowing so

-.1.- ,

-D. --~-------------

V ~

Florida's Dynamic Future: The Role
of the Water Management District?

A Strategy for State and Regional
Water Management Planning
Political Reactions to the 1986
Drought in the Southeastern
United States
Local Government Assistance from a
Local Government Perspective.

f AL

Florida's Dynamic Future:
The Role of the Water Management District?


Hon. James Harold Thompson, Speaker
of the Florida House of Representatives


Mr. James W. Apthorp (L t
President, Good Property Company Ric
State Comprehensive Plan Committee

Mr. David Gluckman
Environmental Efficiency Study Commission

Hon. Sandra Glenn
Seminole County Commission
Committee for the Study of Substate Boundaries

o R): aes Apthorp, David Gluckman, James Harold Thompson, Sandra (
hard Pbttigrew and Larry Anchors.

Hon. Richard Pettigrew
Speaker's Advisory Committee on the Future

Hon. Larry Anchors
Okaloosa County Commission
Governor's Growth Management Advisory Committee

.5,V X.io 5


The state Comprehensive Plan
Committee is trying to work out how
to pay for the growth and to reach the
goals that the Legislature has
established. There are a number of
goals identified by the Legislature
that present serious funding dilem-
mas. If the Plan means anything and
if we are going to reach its objectives,
we are going to have to look at major
changes in the tax structure and the
funding sources that are available to

Your districts are some of the bet-
ter funded agencies around. You have
a structure in Chapter 373 that could

be a model for some of our other pro-
grams. If transportation had the kind
of funding these districts have had,
we probably would not have a crisis
now. We endorse the structure and
the funding for your programs, with
one exception. The Northwest Dis-
trict ought to have a millage in the
Constitution equal to the other
districts. We will make a specific
recommendation that the program in
northwest Florida be put on an
equitable basis with the rest of the

The charge the Legislature gave us
was to find revenue sources and to
assign costs to achieving the goals in
the State Comprehensive Plan. In
some instances, we may say the goals
need to be looked at again. As an ex-

ample, to meet the goal for storm-
water management and treatment,
the DER told us it would cost $24
billion. That happens to be as much
as the total infrastructure deficit por-
trayed during the 1985 session of the
Legislature. That single goal requires
tremendous retrofitting and the ac-
quisition of expensive urban land to
provide retention and treatment
facilities. It's hard to justify a goal in
the State Plan that costs $24 billion
because I don't think we are ever go-
ing to have that kind of money. So, in
some instances, we may recommend
an adjustment of the objective. There
are going to be unmet needs because
we are not willing to recommend the
kind of tax levels that would be re-
quired to meet all of the objectives of
the Plan.


The Environmental Efficiency
Study Commission has the potential
to be the most far-reaching you are
going to hear from today. It may
revolutionize the way environmental
and water resource permitting takes
place in Florida, or it may do very lit-
tle. If we do not get a legislative ex-
tension of this Commission beyond
March 1987, chances are very little
will happen. If we do get an exten-
sion, there is a potential to have ma-
jor impacts on water resource plann-
ing and regulation. In my opinion,
there is no real need for major
overhaul. The systems are working,
and you create mass confusion when
you reorganize any type of agency. At
a time when Florida is growing rapid-
ly, we cannot afford a two-year hiatus
that would arise from serious
reorganization It has been more than

It's easy to say we need a super en-
vironmental agency, but it's another
thing to put the pieces together. The
support for a super agency is prob-
ably going to dissolve.
One of the things we are going to do
is come to some middle ground be-
tween two opposing philosophies. En-
vironmental groups feel that slow per-
mitting is good permitting. On the
other side, businesses and developers
say all they want is a quick answer.
This problem results from inefficien-
cies in enforcement and permitting,
and, to some extent, with the way
laws are drafted. The environmental
field is a new concept. We find that
the system seems to operate better if
there is a specific standard to meet.
The agency can then come up with a
"yes" or "no" substantially faster.
The real problem arises when there is
an application of legislative principles
that does not have history behind it;
every person in a regulatory scheme

David (luckman, Environmental Efficiency Study Commission member.

10 years since the last reorganization applies it based on theii
and there are programs which would ings. Good, strong, fai
probably be better placed in other will lead to much bette
agencies. The water management
districts, when originally formed,
were to take over much of the state's SANDRA GLENN
role in permitting. We have seen a
march in that direction, and I don't The Sub-State Disti
see any reason why that is going to Committee has been n
slow down in the future, period of months. W(

r personal feel-
r enforcement
r permitting.

rict Boundary
meeting over a
e started out

looking at just geographic boundaries
and then got into the duplication of
services by agencies. Water manage-
ment districts have been talked about
a lot in our committee. We are looking
at the effects on the public, local
governments and state government
of having several water management
districts in one county. We also look-
ed at duplication of your water issues,
particularly with DER, HRS and
your water management districts.
If you listen to the staff of the
water management districts or HRS,
all the boundaries are fine and
nothing needs to be changed. But
private enterprise and local govern-
ments are telling us there are prob-
lems. We are hearing that in your sub-
district offices, you need somebody
who can make a decision and not just
someone who picks up the permit and
sends it off to your main office. The
time involved is frustrating to us in
local government and in private
enterprise. The responsibility for
monitoring and permitting water
uses in wellfields is currently divided
between DER and the water manage-
ment district. HRS is involved in the
bacteriological analysis. It would be
more efficient and provide a more
uniform policy if we had a single agen-
cy responsible for water resources. In
my opinion, the water management
district is the best equipped to
assume the combination of these
As to funding, we in Seminole
County truly believe in the "user
pays" concept, whether it is a private
or a public utility. Users need to pay,
and I think you will find a lot of sup-
port for that. We are looking for new
methods or new modes of financing.
The Sub-State District Boundary
Committee is definitely looking at the
cost factor if we move some district


The Speaker's Advisory Committee
on the Future has been trying to look
five and 15 years ahead to see what
we ought to be concerned with to deal


with the problems emerging. We are
not yet into specific organizational
solutions. We are, however, concern-
ed about a couple of major things that
affect your responsibilities. We
recognize there must be adequate and
consistent funding for environmental
agencies so that your staffs and the
staffs of other environmental agen-
cies are not trained for a few years
before they move on to the private
sector to make big bucks. That syn-
drome seriously affects the delivery
of environmental services in this
state. We have to have a new ap-
proach to personnel salary schedules,
and they have to be based on the local
competition in the area. It was a prob-
lem in 1972, it remains a problem
now, and it must be addressed. In
hazardous waste law, I am constantly
frustrated by having decisions
postponed because of the open-door
policy at DER. A major educational
program must be initiated in this
state so that the cost of government
needed to deal with the massive
growth can be addressed. We know
we'll have to go to new and in-
novative concepts and financing.

Programmatically, we must include
in growth management adequate pro-
tection for the actual cones of in-
fluence of wellfields. We must also re-
quire local governments to incor-
porate future wellfield planning to an-
ticipate growth needs and to acquire
the land and/or development rights
for future wellfields. Otherwise, we
are going to see the contamination of
our aquifers to the point that water
becomes an extremely costly com-


The Governor's Growth Manage-
ment Advisory Committee's charge
was to look at the policies, goals and
functional plans of the Growth
Management Act, but not the fund-
ing mechanisms. With people on the
Committee like Helen Hood, Kathy
Shea Abrams, Bernie Yocum and

several others, we have had very good
representation for important water
resources. One funding issue we did
address was the Northwest Florida
Water Management District getting
only one-twentieth of the millage that
the rest of the state gets. Once again

on that Commission, I was put in the
position of being between the dog and
the fire hydrant and recommending
that the Northwest Florida Water
Management District be given a
dependable and equitable funding
mechanism. The position they take in
the land of Senator Dempsey Barron
is that in the other four districts, peo-
ple should not be subject to both local
government and water management
districts trying to devour the proper-
ty tax. I think we'll take the position
in the final report that the Northwest
Florida Water Management District
faces the same severe challenges as
everywhere else in the state.

So far, we have defined "infrastruc-
ture" as those more or less man-made
structures. We feel there needs to be
an equal emphasis on the "natural in-
frastructures," which are the dunes,
water resources, and other environ-
mental resources. We feel there is an
additional hidden cost for these

natural resources that could be
destroyed and become even more ex-
pensive, and we all need to work
together more closely. For example,
with the help of the water manage-
ment district, we finally got a million
dollars to start cleaning up our Destin

Harbor. Then we found out the ap-
propriation was sabotaged by DER.
That kind of turf battle is totally

Larry Anchor, Growth Management Advisory Committee member.


A Strategy for State and Regional

Water Management Planning


Dr. Warren Viessman, Jr.,
Chairman of the Department of Environmental
Engineering at the University of Florida


Ms. Donna Christie
College of Law
Florida State University (L to R): Warren Viessman, Jr., Donna Christie, John Wodraska.

Mr. Jim May
Institute of Science and Public Affairs
Florida State University

Mr. John Wodraska
Executive Director
South Florida Water Management District


Florida is in the midst of what I've
heard described as a state of "plan-
demonium" and the water manage-
ment districts were given the option
of determining their own degree of
participation in this planning process.
Interpreted in its worst light, you
could say that the Legislature didn't
perceive a particularly large role for
the water management districts in
the state planning process. I'd rather
look at it in its best light because of
the importance of the water manage-
ment districts in planning for the
future of Florida. The State and
Regional Planning Act of 1984 wasn't
very helpful to the water manage-
ment districts. The districts were not
even mentioned in that statute, but
fortunately the governor's rules did
make provisions for the water
management districts to comment
and review on regional policy plans.
It's very important that the water
management districts have this input
at the regional level.

The elements that are to be includ-
ed in the regional policy plans sound
terse and simple. The plans have to
include conservation and protection
of potable water sources, protection
of the functions of groundwater
recharge areas and natural drainage
features, and determination of cur-
rent and projected water needs and
sources for the next ten years. These
are some very complicated concepts,
and many local jurisdictions are not
going to be able to deal with them on
their own. It's going to be very impor-
tant for the water management dis-
tricts to provide not only technical
but also planning assistance to local
governments in the development of
these elements of their local plans.
There are several mechanisms in the
legal institutional framework, as it
stands now, that will allow the water
management districts to participate
in planning at the district level and to
allow input into other plans at the
state, regional and local level. I think
it's very important to realize, too,
that planning doesn't necessarily
have to have just external benefits.

The water management districts are
taking on more and more respon-
sibilities. It's causing resources to be
spread in many different directions
and, from an internal standpoint,
there's a great benefit to planning at
the water management district level.


The importance of the local role in
water planning and management in
Florida is critical; it's long overdue,
it's growing in importance and it's ab-
solutely imperative to the future of
water management in this state.
Local governments are the ones on
the front line in dealing with the
massive growth in Florida. Sooner or
later, we have to face the fact that
this rapid population growth is in-
creasingly straining our water
resources and our ability to
assimilate this growth for human pur-
poses as well as for natural resource
purposes. I think you'll find that local
governments are the cornerstone in
our three-tier planning process in

Florida. We've not only preached to
our local governments in the last 10
years that they should go forth and
undertake comprehensive planning
and other good and wonderful things;
we've tightened the screws con-
siderably in 1985 and 1986. The
Legislature said to local govern-
ments, "Here's some money, it'll help
you do a better job. This time around,
when you prepare your city and coun-
ty plans, you'll have to meet certain
state standards." It's imperative that
every water management district and
others involved in water resource
issues become very closely involved
with this very substantial local plan-
ning revision process going on around
the state. There's another reason why
this local role in water resource
management is so important. Simply
put, it's the diminishing role of the
federal government in the whole
water resource management field in
terms of water planning, water
resource development, and certainly
in the case of infrastructure financ-
The 1980s have also seen growing
acceptance, by local governments, of
regional resource management. We're
beginning to link some of these local
land use controls with the water
management powers of districts and
DER. This linkage will get even
closer as we see further unfolding of
this local comprehensive planning
revision process. In a very strategic
sense, the role of local governments in
water management planning is strong
and it's going to grow stronger in the
years ahead, and it's time for all five
districts to reach out and touch some-
one among your local constituency to
continue building this partnership
with your local governments.


We need to know what our goal is
and what our mission is at the water
management district, and I contend
that it's not simply a matter of money
or of manpower. Our success in
managing is knowing what our objec-

tives are in management. What is our
mission, and what are our goals? I'm
very pleased to see other water
management districts going through
the same process of trying to gauge,
"What is our objective?" There are
three steps to this process that I
think are important:
Clarifying the purpose is the first
step. We have a mission statement at
the district and we've done two
things here: A) to explain the purpose
of the district, and B) to describe the
values, the shared vision, of the agen-

The next step is anticipating the in-
evitable, or really, understanding how
to cope with the uncertain and unex-
pected. Surprise is the rule rather
than the exception, and we need to
prepare ourselves for that. We also
need to take a look at the external
trends and decide what internal
capabilities we will need to adjust to
meet these changes.

The third step is setting priorities.
We've gone from clarifying where
we're going to accepting the in-
evitable. It's the most important
management tool for us and it's also
the most difficult when you have the
broad mandates with competing ob-
jectives that we find in the field of

water management. Setting priorities
is important because they serve as a
challenge for management. They pro-
vide a means to rivet the attention,
resources and energy of the organiza-
tion on integrative and innovative
problem solving.

In summary, the drafters of the
Model Water Code in Chapter 373
were wise enough to understand and
appreciate the regional hydraulic and
geographic differences that exist in
Florida. As a result, the water
management districts were able to ad-

dress these regionally-specific prob-
lems while carrying out their state-
mandated programs. The strategic
planning framework that is evolving
among the districts is helping us ad-
dress an important question. The key
point that I see between management
and leadership, the strategic question
that I would ask governing board
members and senior management of
all the districts is, "Are we doing the
right things?" That's the question
that you need to ask if you're going to

John Wodraska, SFWMD Executive Director.


Optimal water management in this
state can't be achieved through
fragmented, piecemeal efforts. A
dynamic, comprehensive, implemen-
table, factually-based and timely
planning system which is supported
by a continuing assessment process is
needed. The system we have is very
impressive on a national or even an in-
ternational scale. That's important
for us to understand because it says
to us that we ought not to be con-
sidering major tampering or major
changes in this system. However, an
institutional arrpagement that can
facilitate a more positive dialogue
between those engaged in planning
and management and those charged
with establishing policies for this
state, namely the governor and the
Legislature, is needed. The present
mechanism that we have doesn't ade-
quately link the planning and
decision-making processes. One of the
pluses that Florida has is that we
have recognized that there are
regional differences and we've
established some institutions to deal
with these.

One of the tragedies of water and
other management at federal and
other levels has been our imposing
uniform systems for management
over areas or regions which are not
uniform and have differing needs. The
water management districts are the
appropriate agencies to deal with
regional, operational water manage-
ment plans. These should be plans
developed in concert and with input
from the regional planning councils
and the local governments. These
operational plans would serve as the
basic compliance guidance documents
for local government comprehensive
planning and for managing the
waters of a particular region. They
would be designed with four objec-
tives: 1) to provide guidance and
assistance to local governments; 2) to
serve as input to the state's policy
planning process; 3) to ensure the
wise development and management
of the region's water resources; and 4)

to serve as a basis of water resource
allocation in the state of Florida.

_ __ ~I_ ~I~__~~_ I_~ ___ I __ ~___~_~~~

Political Reactions to the 1986 Drought
in the Southeastern United States


Dr. James P. Heaney,
Director of the Florida ,
Water Resource Research Center


Dr. Ronald N. North, Director
Institute of Natural Resources
University of Georgia

Dr. Marvin Bond, Director (L to R): U
Water Resource Institute and Profe
Mississippi State University

Dr. Paul Zielinski, Director
South Carolina Water Resources Research Institute
Clemson University

r. Ronald N. North, Dr. Marvin Bond, Dr. James P. Heaney, Dr. Paul Zielinski
ssor James C. Warman.

Professor James C. Warman, Director
Water Resources Research Institute
Auburn University


Rainfall throughout Georgia is run-
ning 15-20" below normal. The im-
pact on the state economy is as
follows: navigation has been reduced;
agriculture losses are estimated to be
$533 million; recreation was affected
by the closing of boat ramps due to
low surface water; and saltwater in-
trusion has taken place. Farmers and
irrigation are expected to be brought
under the statewide permitting pro-
cess and we may create regional
water authorities. There is also
pressure to zone watersheds to pro-
tect the quality of the water.

The political reaction in Georgia to
the drought could be summarized as
being generally positive. The drought
has just secured, in the public's mind,
the need for drought management as
well as overall water resource
management. Twenty-eight com-

munities adopted a total outdoor
water use plan. One hundred and
three surface water communities were
asked by the DNR to adoptwater use
restrictions. Ninety-seven did so.
Some 350 groundwater communities
were asked to prepare and pass or-
dinances for water use restrictions by
September 5. Roughly 200 had done
so by October 1. The ability of the
Georgia Department of Natural
Resources to issue a consent order is a
very powerful tool in terms of react-
ing to a drought or a water emergency
of any kind. The price of water is
escalating rapidly, which effectively
conserves water for a long time.


Drought in Mississippi has not
been as severe as in other
southeastern states, or at least the
impact has not been as severe. If the

state does have a dry fall and spring,
it will be catastrophic to the state
next year. As of October 15,
estimates are that there will be a
shortfall of $258 million for cotton
and soybeans. The shortfall for other
crops might be about $42 million.
Shortfall in state revenue because of
losses to the drought from agriculture
will be about $750 million to $1
billion. In the 1985 session of the
Legislature, there were two major
resource bills passed in Mississippi.
The probability of the Legislature
becoming involved in drought
management is very low since the
state was on the periphery of the
drought-stricken area. It will be at
least another year before the state
begins to seriously look at contingen-
cy plans for droughts.

There's been a very real recognition
on the part of the Legislature that
something has to be done for the

farmers. The only thing that will be
coming out of our Legislature this
year concerning water is some form of,
a bail-out program for the agriculture
communities. In the early 1950s,
there was a similar drought in the
south, and the agriculture community
in Mississippi banded together to
convince the governor that something
needed to be done. There was a com-
mittee appointed, made up mostly of
the agriculture community. Legisla-
tion was introduced that gave per-
mits for surface water. Ground water
was not even discussed at that time.
The agriculture community was
largely exempt from the legislation.
By 1983, agriculture had become
much more water-intensive. At that
time, the governor appointed a Water
Management Council. In 1985, two
major bills passed with many of the
same qualities found in your Chapter
373. Many of the elements of the
Chapter 373 that are currently miss-
ing in Mississippi's water legislation
I think will show up in our rules and
regulations in another year or two.


Impacts in South Carolina started
in December 1985 when the winter
rains didn't arrive. Groundwater
levels became depressed and wells
started to go dry. In South Carolina,
the Drought Management Act that
was voted into place in June 1985 was
the aftermath of the 1981 drought. So
a mechanism was in place. Crops fail-
ed, pastures went dry, and farmers
had to sell off their cattle. Economic
losses, as far as farm income is con-
cerned, have been projected to be
$117-161 million. There were also
losses in recreation. Voluntary con-
servation was in effect in all of the
drought management areas.

Political reaction to drought in
South Carolina was provided in
several different elements. There was
tremendous concern on the part of
politicians to provide relief to all ail-
ing farmers. This resulted in loans to
farmers through the Agriculture

\L) Paul Zielinski and James Warman. /

Stabilization and Conservation Ser-
vice. The state has had the opportuni-
ty to observe enforcement of its
Drought Response Act, which was
found to be a little unwieldly to ad-
minister. The result, however, was
worth the effort. The one thing that
needs to be changed politically in the
state law is the composition of the
drought board, which consists of
large water system managers and/or
large water users, such as industries.

Chapter 373 is truly a state water
plan. South Carolina does not now
have a state water plan. It does have
a state water assessment and is work-
ing toward a comprehensive water
plan. The South Carolina Water
Resources Commission has been in
existence since 1968. The water agen-
cies in South Carolina have no
revenue-producing authority. They
get their funds from the sale of water.
They have a limited bonding authori-
ty if they're associated with a govern-
mental unit. Any large bonding would
require state legislative approval.

Many cities in Alabama ordered a
25 percent reduction in water usage
on the part of all customers. Two
cities had to declare water emergen-
cies, which made it unlawful to use
water for any unnecessary outdoor

consumption-hosing off sidewalks,
washing cars, running fountains,
refilling swimming pools or irrigating
lawns. This, however, doesn't come to
grips with the tougher question of
when to tell industry to stop using
water because the reservoir is so low
that it will affect human health and
well-being and maintenance of fire
protection. The average normal
precipitation from January 1-Oc-
tober 20 is about 44". The stations
are now ranging from 10" to 24" in
deficit. The gravest concern is that
there will be no rainfall in the winter
months when there would usually be
abundant rainfall, and, going into the
spring-the beginning of the growing
season-without any obvious drought
relief. The state is presently seeing
both major groundwater and surface
water problems. Alabama is one of
the two remaining southeastern
states with no water law-no water
rights legislation, no water manage-
ment legislation, just a lot of case

Local codes are being hastily
developed and put in place in this
crisis situation. Farmers wanted
groundwater legislation designed to
protect their interests. Even with the
power and influence that the Farm
Bureau Federation has, there is no
guarantee of that legislation. We ex-
pect to profit from Chapter 373.

Local Government Assistance from
a Local Government Perspective


Mr. Jim Harvey,
Acting Director
Office of Resource Assistance, SFWMD


Hon. John Flanigan, Vice Chairman
SFWMD Governing Board

(L to R): Sam Shannon, James R. Brindell, Ken Adams, Ken Spillias, John Flanigan and
Jim Harvey.


Hon. Ken Spillias,
Board of County Commissioners,
Palm Beach County

Hon. Ken Adams,
Board of County Commissioners,
Palm Beach County

Mr. Sam Shannon,
Assistant County Administrator,
Palm Beach County

Mr. James R. Brindell, Chairman
Wellfield Protection Subcommittee,
Palm Beach County


Increasingly, water managers are
discussing the interconnections, ties
and interfaces that must exist be-
tween the water management
districts and regional, state and par-
ticularly local governments. Our
panel discussion this morning
represents local government in Palm
Beach County. I will examine from
that perspective how a program of
local government assistance operates
in South Florida.


As we all know, growth manage-
ment agendas and other directives

from the Florida Legislature are
presented to us on a daily basis and
force us to make decisions which can
dramatically affect local govern-
ments. To cope with the issues of
such impact, the Governing Board of
the South Florida Water Manage-
ment District met with District
senior managers on a retreat in
November 1985 to focus on a stepped-
up campaign of local government
assistance. The main theme of that
retreat was the need to establish part-
nerships with local governments; pro-
vide technical assistance; serve as
facilitator and coordinator; and act as
a resource for local government in all
areas affecting water management.
Following that November meeting,
the Board directed funding to
establish such a program, and by

January 1986, Local Government
Assistance programs were underway
in Palm Beach, Martin, Broward, Lee
and Collier counties. In November
1986, we plan to establish the pro-
gram in St. Lucie, Orange, Osceola
and Dade counties. The emphasis of
these programs is on such areas as
wellfield protection, well plugging,
groundwater protection, wetland
preservation and mitigation, com-
prehensive planning coordination,
DRI and zoning reviews and various
studies on floodprone areas or areas
of potable water shortage.

Palm Beach County, the example
we are exploring today, has been an
area of unique challenge. The county
contains 37 municipalities in addition
to county government. There is a

p ~-

rl .

county charter, but it is very ak
from the standpoint of a coordi ated
central government. The cou ty is
among the fastest growing the
United States, and it is expe encing
an uneasy compromise betw n ma-
jor agricultural development in its
western reaches and tremend us ur-
ban growth along the coastal cor-
ridor. Unlike other counties to the
south, however, Palm Beach tack-
ling growth management prob ms at
a time when the county is only 0 per-
cent built-out instead of 85- per-
cent. Luckily too, we have be fited
greatly in the past few years fr m an
enlightened county govern ent
which has been extremely help 1 in
establishing our Local Gove ent
Assistance Program.


When the South Florida W ter
Management District changed fr a
flood control to a water reso rce
management district, it gain a
much greater interest in and res on-
sibility for lan-use. In terms of Ilm
Beach County, our watershed ear

was 1980, when we adopted our pre-
sent comprehensive plan-a plan that
recognizes the essential aspect of in-
tergovernmental coordination as part

of our p nning process. Of course, conf ence s emergi early
recognizing and accomplishing such un erstanding the Distric 's role in
coordination are two different things, te county pl inning and zoning pro-
In fact, it has only been in recent ss, especi y since the county was
years that the Board of County Cor- ompletely/lacking in hydrogeology
missioners began to fully realize how expertise. As time went on, the coun-
large a role the SFWMD has to play y receive d more information and ad-
in coordinating land use planning .*ce fro the District that has been
nstru ntal in our early planning
Perhaps the motivating factor tages.
behind this realization was the issue
of our western C-51 basin-a rapidly
growing but highly floodprone area of E ADAMS
the county. Concern over flooding and
poor drainage prompted the SFWMD In November 1984, I was newly-
to develop a project for flood protec- lec ed to the Palm Beach County
tion, but it sought assurances from oa d of County Commissioners and
the County Commission that such a oh Wodraska was just named as
program would not encourage addi- Ex utive Director of the SFWMD.
tional development in the area which We et one day to discuss what we
would only serve to intensify the could do to preserve the quantity and
problems. The problem for the Coun- qua ty of water in Palm Beach Coun-
ty Commission, however, was a legal ty. ne of the first things we decided
inability to forever bind future boards to o, in this county of so many
on land use decisions in the basin. gov rnments, was to establish a
cou ty-wide Water Resources Ad-
To resolve this impasse, t viso y Board that could fairly repre-
District sponsored an Americ n sent all the municipalities and private
Assembly in 198 to which all n- inte ests of the county. With signifi-
terest groups al cross section of cant input from the water manage-
the county were invited. Its pu ose men district, we have formed that
boar and have asked it to evaluate
four reas: land and water use plann-
ing; ellfield sitings and protection;
water quality; and long-range water
supply planning and wastewater

In p ioritizing needs, we felt that
wellfiel protection was our most
pressing requirement. To that end, we
establish ed a Wellfield Protection
Subcom ittee. We have also formed
a Water ource Subcommittee, a sub-
committe on Urban Service Areas
and a Sp ial District Task Force.

17-*_ 0. In the ture, we will be working on
.:- "' nlong-ran water supply with our
... .." cities in order to protect potential
wellfield ones from development. In
addition, we are examining demand
a dams and en Spillias. manage ent and how we can use
water ore efficiently through reuse
was to develop a consensus on how to and m del landscaping. Certainly, all
low the project to go forward while of th se issues point to the need for
satisfying the concerns over potential par erships between local govern-
run-away growth. The result of that nMts and regional districts. Palm

/ / 21


Beach County is and will continue to
be a party to those partnerships.


One of the most recent develop-
ments in Palm Beach County is the
organization of a County-Wide Plann-
ing Council whose role is to guide
future land use decisions and resolve
planning conflicts between different
local governments. The South Florida
Water Management District will be
represented on that Council. I point
this out because I believe it em-
phasizes the importance that Palm
Beach County places on the District's
input and participation. I am not
aware of any other local government
that has identified in its charter a re-
quirement that the water manage-
ment district be a partner in making
land use and growth management

But beyond this institutionaliza-
tion of coordination, there are
countless day-to-day activities that
reaffirm the commitment to coopera-
tion between our entities. There has
been strong interest and effort on the
part of both staffs to co-participate in
comprehensive planning. As the coun-
ty responds to state mandates to
revise our comprehensive plan, we
will be relying on the District's land
use data base as a starting point. In
short, the example of Palm Beach
County is one where integrated rela-
tions have not only been talked
about-they are practiced and are
successful. A dual commitment has
been required, but it has paid off in
terms of improving our ability to
serve our community.


As mandated by state legislation,
local governments are required to
delineate and protect planned
wellfields. The protection of wellfields
is an area which requires a great
degree of coordination with the water

management district because it is a
complicated subject that relies on
sophisticated modeling techniques.

The Wellfield Protection Subcom-
mittee of the Palm Beach County
Water Resources Advisory Board
was formed for the purpose of
developing an ordinance that would
effectively protect existing and future
wellfields. Our goal was to develop a
consensus on how to best protect our
water supply and that, of course, re-
quired that we consider the many dif-
fering perspectives and varying needs
of the community. Membership on
the subcommittee was designed to
represent a cross section of the coun-
ty. During the past year, we have held
over thirty public meetings county-
wide to develop the draft ordinance.
We have stressed a free and informal
exchange of information throughout
our agendas to maximize the oppor-
tunity for public input.

One of the basic elements that we
tackled in developing our ordinance
was how to accomplish a county-wide
application. Other elements included:
how to develop the ordinance so that
it would take into account existing as
well as proposed wellfield activities;
whether to include prohibition zones
as part of the ordinance, or rely on
regulatory permits; and, whether to
attack the problem through land use
zoning or regulation.of substances.

Exemptions and compensation are
equally important considerations in
developing a wellfield protection or-
dinance. Local governments must
design a format for dealing with
challenges to permits, denials and
revocations. And while compensation
may not be required from a legal
perspective, it is a key to compliance.
A final and major consideration for
local governments is program ad-
ministration. Wellfield protection is a
highly technical and very expensive
operation and a governmental entity
must be prepared to absorb the costs
of the program.


Local Government Assistance Pro-
grams must be flexible if they are to
be successful. Water management
districts must serve as a resource and
adjust and respond to the specific
needs of a locale. At the same time,
water management districts must act
as non-political players in the plan-
ning and decision-making game.
What is not obvious from this discus-
sion is the extensive degree of inter-
nal coordination and technical pro-
gram planning that goes on at the
water management district to make
such a degree of governmental in-
teraction and cooperation possible.

The Mission Statement of the
South Florida Water Management
District, which is the constitution of
this agency, ties together the
management of water and its related
resources with the Local Government
Assistance Program. The philosophy
of the program is also reflected in the
Mission which states: "Inherent in
this mission is the responsibility to
assist the public and government of-
ficials by protecting water resources
and by identifying and recommend-
ing options for incorporating water
resource considerations into land use
decisions." This shows how impor-
tant and how basic the Local Govern-
ment Assistance Program is to all
District activities.

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The News Reporter: A District's Best

The Medium is Radio; The Message is
Water Management

Hacking at the Paper Mountain:
Automating Permitting Procedures

Pioneering Water Conservation in
Southwest Florida

WaterWays Education Program: A
Nonstructural Approach to Water

Tracking: Programs for Computeriz-
ing Permit Status and Issues

From S.O.R. to L.A.M.P: The
Alphabet of River Protection

The News Reporter:
A District's Best Friend


Mr. Jim Hunter, Reporter
Citrus County Chronicle


I imagine some people see the jour-
nalist as a heartless predator who
feasts on democracy and, for some
demented reason, is allowed to roam,
rape and pillage in the government
realm. In defense of the journalist, I
will give you some hands-on, face-to-
face experience so you can appreciate
how reporters work, and how you can
use it to your advantage.

The news process begins with the
journalist. He's the guy out on the
street looking for NEWS. News is a
story which is interesting, has a cer-
tain quality and a sensational aspect.
He may be looking for a local story
with national appeal, or sometimes a
reporter tries to find a local angle on a
national happening. The journalist is
looking for issue-oriented stories.
He's looking for controversy. He's
looking for a story having two or
more sides. The journalist is looking
for official opinion, especially if it is
controversial. Journalists love to
bounce citizens or experts from op-
posing agencies off each other. The
journalist is looking for public mis-
management, incompetence, waste or
corruption. The journalist is also
looking for good, positive stories.

A reporter usually has more infor-
mation than he can use, and must
compress it. If a reporter does a job
well, there is a minimum of distortion.
In TV, the compression of the news
story is more drastic than with
newspapers. TV has 20 to 60 seconds
for the story (about five newswritten
paragraphs), compared to perhaps 20

Jim Hunter, reporter, Cit

paragraphs in a newspaper. Be aware
that when you are talking to TV peo-
ple you don't have very long. Get to
the essentials quickly.

In dealing with the press, give com-
plete and accurate information.
Assume that a reporter knows
nothing about the story. Repeat infor-
mation until it is clear. Make sure the
reporter understands. Furnish
background. Give references and a
place to contact references, give them
maps, refer them to experts. And
most important, evaluate the
reporter's grasp of the story and fur-
nish him with what is lacking. Expect
to be quoted. You may want to write
out some ideas for possible quotes.
Don't be defensive. It makes a
reporter wonder if you're trying to
hide something.

Get to know the reporters; if you
deal with reporters often, read their
stories and become familiar with their
style. If you are dealing with a
reporter who has burned you in the

trus County Chronicle.

past, you may not ant to talk to
him. While you could give him a sec-
ond chance, you are not required to
talk to reporters, according to the
Sunshine Law. However, you do have
to turn over documents and informa-
tion. Don't be caught off guard. Say,
"I'll get back to you," if you don't
have the answer to a question. But be
sure to get back in a timely manner.
It is important to know their
deadlines. If you go off the record, BE
CAREFUL. It is a matter of trust
between the reporter and the source.
Call and compliment good work. Say,
"We appreciate your help giving in-
formation to the public." If
something is incorrect, ask for
clarification. Avoid retractions, if
possible. Finally, use anniversaries,
awards, programs, consumer helps,
conditions, forecasts and graphs to
get positive stories to the press. It's a
PR gold mine.

I _

The Medium is Radio:
The Message is Water Management


Mr. Ed Albanesi, Director
SJRWMD Public Information


Mr. David S. Webb, A-V Graphics
Coordinator, SJRWMD


One assumption upon which there
is nearly universal agreement is that
the general public has little or no
knowledge relating to the workings of
the water management districts. The
challenge is for water managers to
come up with innovative, cost-
effective methods to spread the word.
One vehicle or medium which the St.
Johns District has begun utilizing is
radio. Radio is preferred over televi-
sion because it requires a relatively
low initial investment upon which
you receive a substantial return. It's
relatively easy to meet the industry's
professional standards and in many
instances you have a news-hungry
market. The objective is to supply a
network of radio stations with taped
programming for broadcast. The pro-
gramming should be informative,
timely and regularly supplied in a
uniform format.

Creating a radio network involves
written and verbal contact with in-
dustry representatives to gauge in-
terest and needs. You can have a
preset notion on what you wish to ac-
complish, but your plans will likely be
modified as you receive feedback
from news directors and other station
personnel. You must find a person

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avid Webb, A-V Graphics

with capabilities in audio equipment
and broadcast journalism to coor-
dinate production of the radio pro-
grams. The ability to utilize an ex-
isting employee for this purpose may
make it easier for you to sell the whole
idea to your governing board. With a
little luck, the value of your first
year's broadcast time will easily ex-
ceed the total of your first year's
costs. A valuable side benefit of
establishing a radio network is the
improved contact pipeline between
your district and the newsrooms at
the radio stations. When something
important and newsworthy breaks,
you're only a few phone calls away
from district-wide radio saturation. If
you become a credible news source,
the radio stations will willingly ac-
cept news feeds over the phone and
have them on the air during their next

Coordinator, SJRWMD.


preferable to a television network is
the modest amount you will need to
budget for capital expenditures. We
constructed a small soundproof
studio and bought all necessary elec-
tronic equipment for less than $5,000.
By contrast, a broadcast-quality
video camera might cost you upwards
of $30,000. A common broadcast for-
mat is quarter-inch, reel-to-reel audio
tape. We purchased two professional-
quality reel-to-reel recorders. For flex-
ibility and for expense consideration,
we selected an eight-track and a less
costly two-track. We tied the
recorders into a premium grade mix-
ing board utilizing a compatible patch

Other equipment purchased at the
outset includes a turntable, two
microphones, two monitors and a
bulk tape eraser. One major item
which we didn't purchase was a high-


speed tape duplicator. It would have
cost us more than the combined total
of all the other equipment. We would
have to double the size of our
18-station network and go from a
biweekly to a weekly program before
the expense would be justified. Our
present procedure is to run the
master tape on the eight-track and
make the real-time copies on the two-
track. We have planned to purchase
an additional two-track recorder dur-
ing the upcoming fiscal year. This will
allow us to cut our duplicating time in
half and give us a backup in case of
equipment breakdown. Since our
District regularly produces multi-
image sound slide shows, this equip-
ment has also given us the capability
to enhance the quality of our sound
tracks. t,


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From a morale perspective, the net-
work gives us a boost as it provides
district employees with the oppor-
tunity to crow about some of the work
they are doing. All the water manage-
ment districts would gain from the
implementation of their own radio

Hacking at the Paper Mountain:

Automating Permitting Procedures


Mr. Dave Fisk,
Assistant Executive Director, SRWME


Development of computer
resources at Suwannee River Water
Management District (SRWMD)
began in 1980 with the acquisition of
a "mini-computer"-a Prime 550
II--and four Phillips-Micom
dedicated word processors. The Prime
computer had the standard array of
programming languages and also
hosted two software products-the
INFO Relational Data Base Manage-
ment System (INFO-DBMS) and the
ARC-INFO Geographic Information
System (ARC-INFO GIS).

The separate work environments of
the Prime (including its software) and
the Phillips-Micom dedicated word
processing equipment met the
District's need until 1984, when the
growing advantage of low-cost,
microcomputer-based "professional
work stations" became increasingly
obvious. Today, SRWMD retains the
Prime computer, but the dedicated
Micom word processing equipment
and "dumb" terminals to the Prime
are rapidly being replaced by profes-
sional work stations that are tailored
to the work responsibilities of each
employee. SRWMD has chosen to use
Apple Macintosh and the more
typical MS-DOS (IBM compatible)
microcomputers for development of
professional work stations for our
growing staff-now at 48. To assist in
managing our "corporate" data,
SRWMD purchased the INFO-
DBMS which is a relational data base
manager that runs on the Prime com-

puter. INFO data bases have been
developed for all permitting pro-
grams. A relational data base
manager allows information to be
"compartmentalized" into groups
(called a data file) that are frequently
used together for storage, analysis or
reporting. By using the power of the
INFO-DBMS, SRWMD creates all
administrative notices, internal
tracking reports, Governing Board
reports and the actual permit that is
ultimately issued (including limiting
conditions) by running a series of IN-
FO programs. None of these reports
are done by hand or even on a word-
processor. Administrative noticing is
accomplished by choosing the
newspaper that has the highest cir-
culation in each county in the district.
The information required for the
notice is pulled from the WUP.DF.
The notice is prepared by the INFO
program and the mailing address is
pulled from the NEWS.DF. The pro-
gram automatically updates the
item's "status" to show that the per-
mit has been noticed. The manage-
ment of permitting data in a data

base management system can also in-
crease the speed and efficiency of the
technical permit review process by
allowing rapid review and comparison
to permits that have been issued in a
given area. As more use is made of the
microcomputer-based professional
work stations, capturing copies of the
data for other applications or for
other agencies is expected to become

The ARC-INFO GIS is a sophisti-
cated software system that allows the
storage, manipulation and plotting of
map data and the attributes
associated with the map data. The
system stores map information as
points, lines or polygons and assigns
identification labels to those features.
The identification label becomes an
item in an INFO data file, and when
combined with other items that
describe attributes of the map data,
the ARC-INFO GIS brings together
the features of a computerized map-
ping system and the data base
management features. The ARC-

David Fisk, Assistant Executive Director, SRWMD.

INFO GIS also has the ability to im-
port data files from other INFO data
bases and create geographic cover-
ages. While the district anticipates
continued use of the ARC-INFO GIS
for specific project work, there is a
growing indication that the most pro-
ductive use of the system in the
future would be the development of a
comprehensive regional geographic
data base in cooperation with the
other agencies such as local govern-
ments, the regional planning councils
and the state university system.

As microcomputer technology
becomes more sophisticated and less
expensive, a real opportunity exists
to place more and more of that
technology into the hands of the peo-
ple who are responsible for perform-
ing the work of an agency like
SRWMD. At SRWMD, the profes-
sional work station allows combining
word processing capability, com-
munication with the Prime and
specific programs tailored to the work
assignments of an employee-all at
the employee's work station. An area
that is increasing the productivity of
the professional work station even
more is the development of computer-
assisted drawing/design (CADD) soft-
ware for microcomputers and transla-
tion software between mainframe
geographic information systems and
the microcomputer-based CADD soft-

For clerical personnel, the profes-
sional work station means that
reports, memos, letters and the like
are received in digital form and do not
need to be deciphered from longhand
script. Everyone, even the applicant,
gains in that the routine is quickened
by the technology that allows us the
time to focus on real water resource
management problems.

Pioneering Water Conservation

in Southwest Florida


Ms. Wendy Nero,
Water Conservation Planner, SWFWMD

Mr. Richard Owen,
Planning Director, SWFWMD

Mr. Bill Smith, Senior
Hydrologist, SWFWMD

Ms. Susan Kessel,
Interagency Manager, SWFWMD (L to R): Susan Kessel, Richard Owen and Wendy Nero.


There are many water conservation
projects presently underway at the
Southwest Florida Water Manage-
ment District. I will talk about two:
the Water Conservation Grants Pro-
gram and the Demonstration Pro-

The Water Conservation Grants
Program was created to provide seed
money to interested individuals,
private organizations and govern-
mental entities for research and im-
plementation of water-saving pro-
jects. There has been $250 thousand
budgeted for the program in fiscal
year 1987; final project selection will
be in February 1987. The goals of the
program include the provision of
measurable results of water-saving
techniques, encouragement of innova-
tion and, of course, actually saving
water. An example is Project
Greenleaf at the St. Petersburg
Wastewater Reuse Facilities. The
project is a controlled experiment to
evaluate treated waste water quality
and public perception of using
reclaimed water.

Demonstration Projects are
another facet of the District's water

conservation program. Their purpose
is to increase public awareness of
water conservation technology and to
encourage the adoption of the
measure. Demonstration Projects are
planned for both agriculture and
public supply. As an example,
Xeriscape is a landscape design con-
cept which employs plant selection,
landscape maintenance practices and
low volume irrigation systems to in-
crease water use efficiency outdoors.
In 1987, the Demonstration Projects
will focus on this concept. One of the
Demonstration Projects is a
cooperative effort between Tampa
and the District. The Herman Massey
Park, located in a highly visible
downtown area, will have very attrac-
tive landscaping which shows that
Xeriscape can be lush and beautiful,
yet save water. Floyd Elementary
School in Hernando County is a sec-
ond example. The unique aspect of
this project is its educational compo-
nent. Water conservation and
management will be incorporated into
the science curriculum. The project
and site will be used for hands-on
teaching and be made available as a
learning tool for other schools.

In 1985, Southwest Florida Water
Management District experienced
one of the most severe droughts in its
history, and imposed the most severe
restrictions on water use ever in
Southwest Florida. The water shor-
tage was declared in early 1985 and
we held several public hearings
throughout our District. One of the
most common themes at these
workshops and public hearings was
that we did not have a year-round
water conservation program at the
District. The Governing Board ap-
pointed a water conservation task
force comprised of representatives
from agriculture, industry, public
supply, environmental groups, educa-
tion and others. The charge of the
task force was to make recommenda-
tions to the District as to what we
should be doing in water conserva-
tion. One of the hidden objectives was
an increase in local support. When we
eventually made recommendations,
we had their support, or at least they
understood the origin of our recom-
mendations. The task force
culminated in a report in late 1985
which was accepted by the Governing
Board. One key recommendation was
the designation of a District water

conservation program coordinator to
identify what specific activities need
to be undertaken, their cost, who is to
be involved, and what activities are
already being undertaken to achieve
water conservation.

The Governing Board also approv-
ed a significant first-year effort at a
water conservation program. The
total first-year program was $1.2
million dollars. I think that really
reflects the emphasis our Governing
Board is placing on water conserva-


Agriculture is a major industry
within our District. It accounts for
approximately 90 percent of our
water use permits, and it is our
largest user group. Because of
agriculture's size and complexity, the
program to determine its water use is
a major and necessary effort. The suc-
cess of the program depends on a
cooperative spirit between the
District and agricultural interests.
The Agricultural Water Conservation
Program is composed of four prin-
cipal activities, AIM, Mobile Labs,
Demo Sites, and Research. To gain
valuable information concerning
variations of water use by different
agricultural producers, a voluntary
data collection program called
Agricultural Irrigation Monitoring
(AIM) has been established. This is
an expansion of the earlier Ben-
chmark Farms Program, but will be
much more productive since it will in-
volve a larger number of volunteer
sites and a much higher level of
District funding. The data collected
will promote water conservation and,
in the long run, will benefit all water
users. All volunteers are asked to sup-
ply crop, irrigation type, acreage, and
estimated water use information. Ap-
proximately 450 selected volunteers
will be asked to allow us to install
water use and other equipment on
their systems to obtain a more detail-
ed picture of specific crop water

The Mobile Labs project involves a
vehicle loaded with scientific equip-
ment which has the capability to go
directly to the field and provide
technical analysis of irrigation
systems. Analysis will focus on
system design, operational techni-
ques and field constraints. The pro-
gram is designed to save the growers
money by saving water, increasing
crop quality and production. It does
this by improving the management of
existing systems.

An example of our demonstration
projects is the row cover experiments
being conducted to optimize the most
promising of the materials and
methodologies. Experiments with
several types of materials were con-
ducted at IFAS research stations to
determine their usefulness in pro-
viding freeze protection for strawber-
ries. In addition to the row covers, we
also have low volume, under-tree
grove irrigation and drip fertigation
of tomato demonstration projects.

In the research area, we are looking
at the use of microsprinklers for
freeze protection and other options.
We are also exploring the use of tail
water recovery ponds to reduce the
demand for water.


Our District has placed a major em-
phasis on water conservation. We
have designed and implemented the
necessary public awareness cam-
paigns to support each of the projects
Richard, Wendy, and Bill have
highlighted. We have placed our
video, "In Florida, Water Is Our
Future" and the Water Resources
Atlas of Florida in 220 public school
libraries. A conservative estimate of
the number of students who have
seen one or both of these is approx-
imately 25,000. We placed both the
video and the atlas in two dozen of
the largest private schools, as well as
community colleges, junior colleges,
universities, and 75 public libraries.

The "Save Water-It Makes Good
Cents" poster is an example of a ma-
jor interagency water conservation
education effort undertaken by the
District in cooperation with the
Westcoast Regional Water Supply
Authority, the Institute of Food and
Agricultural Sciences, the Greater
Tampa Chamber of Commerce and
Hillsborough County Utility Depart-
ment. All agencies participated in a
joint water conservation piloftroject

usan Kessel, Interagency
Manager, SWFWMD.

in a selected area of Northwest
Hillsborough County involving retro-
fit of household plumbing, calibration
of automatic lawn irrigation systems,
the use of tensiometers, and develop-
ment of a supporting public
awareness campaign. We have every
reason to believe we have a very suc-
cessful project. We have developed a
water conservation brochure jointly
with the Florida Nurserymen and
Growers Association and the In-
stitute of Food and Agricultural
Sciences to present proper irrigation
practices for newly planted ornamen-
tal plants and lawns. We are present-
ly working closely with the Manasota
Water Suppliers Association to im-
plement their water conservation pro-
jects. In the short time the associa-
tion' has been meeting, they have
sponsored, numerous public service
announcements that have appeared
on television and have made initial
contacts with representatives from
the county school boards to begin for-


mulating a curriculum in elementary
schools. We have initiated innovative
conservation awareness programs
with the business and development
community in the major metropolitan
areas. Community leadership is found
in the membership of Chambers of
Commerce and it is vital that these
key people understand the impor-
tance -of water conservation. In
August, 55 members representing 20
Chambers of Commerce in Pinellas
County nade.a trip to District head-
quarters for a day-long program. And
in early 1987, the 6,000-member
Greater Tampa Chamber of Com-
merce will present the first-ever ma-
jor water conference in their area.

In the coming year we will imple-
ment our Water Partners Program.
The mission will be to seek the
assistance of business and industry in
a joint communications effort to pro-
mote public awareness of the need to
conserve fresh water. This public in-
formation program will be developed
to utilize the marketing channels of
the member organizations to
disseminate the conservation
message. The message will use a com-
mon Water Partners theme which will
be developed for television and radio
public service announcements,
billboards, posters, and bumper
stickers. An initial group of 25 Water
Partners will be formed. It is an-
ticipated that both the number of par-
ticipants and the scope of the pro-
gram will be expanded in the second
stage to include application of water
conservation techniques and prac-


WaterWays Education Program
A Nonstructural Approach to Water Management


Mr. Bill McCartney
Executive Director, NWFWMD


Ms. Leslie Frye Allen,
Public Information Officer, NWFWMD

Ms. Madeline Strong,
Public Information Officer, NWFWMD .

Leslie Frye Allen and Madeline Strong.


Water management districts in
Florida spend more than $100 million
a year to manage water. They have
hydrologists, hydrogeologists,
hydroengineers and environmental
scientists doing some of the finest
work in the United States. But as the
highly technical professionals are do-
ing this great work, the general public
is falling further and further behind in
its understanding of the water
resource issues, the water manage-
ment structure and water manage-
ment programs.

For several years, the Northwest
Florida Water Management District
has made a commitment to education.
We teach courses in resource manage-
ment at Florida State University and
have reached out to the public in
many ways, but we felt we needed to
do more. About two and a half years
ago, we began to develop an organiz-
ed, consistent curriculum for the
public schools that would begin to let
the people of Northwest Florida
understand what exactly are the
water resource management issues,
needs and structure. After talking to
teachers, school administrators and

the general public, we put together
this middle school, water resource
education program that I feel will be
the most significant contribution of
the Northwest Florida Water
Management District in the field of
water resource management.


The title of this session refers to
this education program as a
"nonstructural approach to water
management." In this manner we
hope to draw attention away from the
stereotypical view of state agencies
as regulators and concentrate on the
District's more positive role, as

This program presents the facts
about our water resources and
natural systems to help give these
future decision-makers the ability to
properly manage and protect our
water resources while at the same
time helping the District achieve its
goal. It is designed to be taught as
part of the present middle school
Earth Science curriculum because it
complements what is already being
taught at this level.

The "WaterWays" education pro-
gram is a comprehensive curriculum
in water resources. The program cor-
relates with the state's Standards
and Skills and Curriculum Frame-
works as well as many individual
county school system requirements.
To ensure this, we hired several mid-
dle school science teachers to review
the materials and advise us accord-
ingly. We have taken special care not
to make this program an additional
burden on the teacher by making it
self-contained and self-explanatory.
It requires very little teacher prepara-

The program consists of five
lessons that are taught through the
use of workbooks and slide/tape
shows provided by the District. The
first lesson will teach the students
some basic facts about water, the
water cycle, and how surface water
and ground-water systems work. The
second lesson will concentrate on dif-
ferent water ecosystems and the im-
portant functions they provide. This
will cover the importance of fresh
water to wetlands, lakes, rivers and
estuaries and the benefits they pro-
vide to both us and nature. The third
lesson will emphasize man's uses and


methods of supply and wastewater
treatment. The students will know
where their water comes from, how
they can conserve it, how it is treated,
where it goes and how it is cleaned
after they use it. The fourth lesson
will inform the :students of some
issues and problems in water manage-
ment, including the many methods of
pollution, possible ways of prevention
and some alternatives for providing
water in the future. The fith lesson
wlS concentrate solely on the water
resource characteristics, issues aid
opportunities unique to each school
region. This should provide the
teacher with easily accessible learn-
ing opportunities or discussion topics
about things the students can relate
to because they have seen them.

Although the program is speci-
cally designed for Northwest Florida,
it could be easily adapted for state-
wide use. After this program is
established as part of the yearly
teaching curriculum, we hope it will
set a precedent for other water
management districts to follow. All
the materials required to teach this
program will be provided free by the
Northwest 'Florida Water: Manage-
ment District. Each school will
receive the five slide/tape presenta-
tions, student workbooks and
teacher's guides. Each slide/tape
show gives an overview of the
material covered in ach lesson. They
have been recorded with several
10-second pauses that give the
teacher the option to stop the
machine and review what has been
shown. We have provided correspon-
ding questions and answers alongside.
the script.

Students may keep their work-
books, which will contain text,
graphics, pictures, activities, .ex-
periments and a glossary. The
teacher's guides are similar to the stu-
dent's workbooks, but willinclude ad-
ditional information. The guides in-
clude the previously mentioned ques-
tions and answers for the slide/tape
shows and their scripts, lesson plans,
tests, answers and helpful hints.


one of the likely outcomes of this
group's efforts.

Field testing of the WaterWays In addition to introducing the
program will take place this spring in WaterWays program to the Florida
Leon County middle schools, Leon Council on. Comprehensive En-
County was selected because of the vironmental Education, we have
diversity of the student population made presentations to a number of
and because of its location near. other groups including Florida
district headquarters. Baped on user Department of Education officials.
response, the instructional materials We have been invited to make presen-
will be fine tuned in late spring and nations at the Florida Association of
early summer. At that time, we will Science Teachers Apnual Conference
begin to introduce the WaterWays and at the League of Environmental
program in eac) f the remaining fif- Educators Annual conference. Initial
teen counties & our water manage- response to our program has been ex-
ment districL t tremely positive. Words of support
from state agencies involved in
Because there is no one organiza- natural resource management,
-tiot or agency through which ap- classroom teachers, school officials;,
proi al pi be gained to implement environmental organizations, the pro-
the program district wide, approval fessional staff within our own water
jfor use must be sought county by management district as well as staff'
county. Once the program is approv- members of the other water manage-
ed for use, each school system must ment districts in Florida and the
determine the grade level at which the general public has been encouraging.

materials will be used. At this time,
there is no common course sequence
for middle school science classes. For
example, Earth Science is a sixth-
grade course in some schools while it
is taught at seventh or eighth grade
levels in other schools.

Currently, there is a renewed in-
terest in environmental education in
Florida. The 1986 Legislature
established the Florida Council on
Comprehensive Environmental
Education which is made up of
representatives from all levels of the
formal education systems, state agen-
cies concerned with natural resources,
statewide environmental organiza-
tions and the business community.
The Council is conducting a review of
existing environmental education
prograins and will submit a report to
the state Board of Education and to
the Legislature by Janaury 1, 1987.
Based on an analysis of current pro-
grams and needs, the Council will
develop a comprehensive plan for
enhancing environmental education
for all citizens of the state by March
1, 1987. The establishment of a cen-
tral clearinghouse for environmental
education programs and materials is

Our goal is to give middle school
students a broad, general understand-
ing of the need for and methods of
water management and to lay the
groundwork that will enable these
future decision-makers to properly
manage and protect our water
resources. Our excitement is increas-
ing as we progress toward that goal.


Tracking: Programs for Computerizing

Permit Status and Issues Analysis


Ms. Cathy Anclade,
Information Manger, SFWMD


Mr. Tom Miller,
Director of Major Programs, SFWMD

Mr. Ron Bishop,
Media Manger, SFWMD

Mr. Pete Rhoads,
Director of Resource Planning, SFWMD Ron Bishop explains IMPACTS/SCANNING, a system for tracking and analyzing
news stories.

During the past year, there has
been a tremendous increase in the use
of computers and in computer-
literacy among both technical and
non-technical staff at the South
Florida Water Management District.
The utilization of computers has
enabled us to handle previously
repetitious, time-consuming and
tedious tasks in very creative and effi-
cient ways. Today, we will
demonstrate two relatively new uses
of the computer. One is in the track-
ing of District permits-those per-
mits the District seeks for construc-
tion of major projects. The second
computer demonstration is in the
area of issues analysis-our IM-
PACTS/SCANNING program. Here,
we will show you how a systematic,
computer-aided examination of issues
improves our ability to draw in-
ferences about important news

When the District's Major Pro-
grams Division was created, its main
responsibility was to identify and
resolve difficulties in obtaining per-
mits from the state and Corps of

Engineers. Major Programs was able
to pinpoint four specific problem
areas which had been causing delays:
1) inability to determine quantitative-
ly where the problems and delays
were occurring; 2) lack of a unified in-
ternal approach to tracking District
permit applications; 3) lack of stan-
dardized information on the status of
District permits; and, 4) an inability
to determine how long permit acquisi-
tion will take.

Since the information lacking in
these problem areas is date-oriented,
it lends itself nicely to an ad-
ministrative tracking system. By
designing a computer program that
outlines the chronology of the permit-
ting process, we can "plug in"
specific dates and information and
run calculations to determine precise-
ly how long it has taken, both inter-
nally and externally, to acquire per-

The permit status tracking pro-
gram can be illustrated as a filing
cabinet with four files. The first file,

referred to as "windows," contains
the actual internal process of develop-
ing the permit application. Here we
can review the steps that have taken
place before the application leaves the
District. The next file is our Com-
pleteness Summary which outlines in-
formation about the external process-
ing of our application. The Com-
pleteness summary indicates when
we can expect a Completeness letter
from the regulatory agencies,
whether or not the application was
complete, and the date of com-
pleteness. The third file, Notice of
Agency Action, tells us when a
regulatory agency has issued or
denied a permit, and where notice has
been published. In this file, a time
analysis is provided where the com-
puter actually calculates how long it
has taken to receive a permit. The
final file is a house-keeping file that
stores data on any permit modifica-
tions and provides a space for com-
ments and explanation about the
specific permit.

All the details about a given permit
application are contained in one com-

--- -- -- --

pact and convenient location-the
computer disk. The permit tracking
system enables us to summarize
status at any given moment. Addi-
tionally, this format helps us to an-
ticipate problem areas, both internal
and external, where permitting delays
are occurring.

A different kind of tracking system,
track and analyze publicity, about
water-manggement related issues.
The first component is our trend
analysis program, IMPACTS, which
gives us a way to electronically
organize and store newseips in a fil-
ing system At the South Florid
Water Management District, we
organize publicity about water-
related issues on the basis of ourfour-,
pronged mission statement. Articles
are categorized relating to en-
vironmental enhancement, water
quality, water supply and flood pro-
tection. A fifth category, ad-
ministrative issues, stores articles
that deal with budgeting, personnel
and other related topics.

editorial, we rate favorable, un-
favorable or neutral toward the
District. By tracking this type of in-
formation, we can measure publicity
and calculate how many articles are
written on a given issue and when
those articles appeared. We can see
how much "news" is being circulated
concerning the District, and who and
which publications are reporting on
water management isees. Through
the use of this program, we have built
a separate data base of more than 700
organizations, agencies, corporations
and interest groups which also have
-input into water-relatd issues.

By organizing articles into
categories of issues, we can see at a
glance where-the interests and focus
of the prv lie. Trends become ap-
parent, ad we caniunderstand how
public opinion is being formulated on
a given issue. While the IMPACTS
Program is designed to collect and
categorize data, that data is in turn
utilized by our SCANNING Commit-
tee which analyzes and forecasts

job is to identify, prioritize and report
to the Executive Director on key
issues. SCANNING is accomplished
through the use of a computer evalua-
tion program. This program,
SCANFLEX, accumulates input on a
given issue and ranks issues on the
basis of three criteria: 1) Will the
issue impact District programs and
policies? 2) How urgent is the issue?
and 3) Can the District affect the
issue, or is it, in effect, our problem
and does it require our attention?

The result of the SCANFLEX pro-
cess is a ranking of issues and a stan-
dard deviation which indicates
whether or not there is disagreement
over issue priority. From this infor-
mation, the SCANNING Committee
analyzes trends and makes recom-
mendations to the Executive Director
on those issues which require District

Dr. Walm Vimau, Jr., rqut ditia hiaw tiom from Ram Bihbop after hi

Each article file contains the article SCANNING is an attempt to deter-
as well as information on the publica- mine the issues to which the District
tion in which it appeared, the date will have to respond. It is an attempt
and author, whether the District was to institutionalize the process of look-
specifically mentioned, a list of ing ahead.
District personnel quoted in the arti-
cle and other agencies o organiza- The SCANNING Committee is
tions listed. In the case of an made up of senior managers whose

From S.O.R. to L.A.M.P:
The Alphabet of River Protection


Mr. Kirk Webster,
Assistant Executive Director, SRWME


The Land Acquisition and Manage-
ment Plan (LAMP) reflects the com-
mitment of the Suwannee River
Water Management District to pro-
tect and preserve water resources
through a program of land acquisi-
tion. The plan proposes to achieve
this by acquiring 79,000 acres of land
along seven rivers-the Suwannee,
Withlacoochee, Santa Fe, Alapaha,
Steinhatchee, Aucilla and
Wacissa-and within groundwater
resource areas as they are identified
in the future. The plan will be im-
plemented over a 10-year period.

Fortunately, the water resources of
the SRWMD are, for the most part,
unspoiled. It is a rare opportunity,
and one that will not return again.
The source of funding for the plan is
the Water Management Lands Trust
Fund, commonly known as the Save
Our Rivers (SOR) fund. For ad-
ministrative purposes, the major
river systems have been divided into
13 areas. Within these areas, various
combinations of tracts and land cor-
ridors have been proposed for acquisi-

The land acquisition program is
closely linked with the long-time
SRWMD policy to use nonstructural
methods as the primary approach to
managing water resources. In
floodplains where floods are a com-
mon occurrence, the acquisition of
land will provide protection for
natural resources and the people who

live there. The nonstructural ap-
proach is intended to displace the
need to construct costly dikes and
canals for the purpose of rerouting

Ground water is the major source of
potable water in the SRWMD. The
protection of the quantity and quality
of potable water is of central impor-
tance to all levels of government
preparing to meet the ever-increasing
demand for water. The acquisition of
land can reduce threats to water
quantity and quality by protecting
the areas most suitable for natural
aquifer recharge and wellfield

General land acquisition policies for
SRWMD include:

Use of funds from the Water
Management Lands Trust Fund
to actively pursue the purchase
of lands for the conservation
and protection of water and
related land resources and fish
and wildlife.

* Acquire and manage lands in a
manner that will provide long-
term benefits to the citizens of
the District and the state of

* Acquire and manage lands for
the purpose of conserving and
protecting rivers and ground-
water resource areas, but not to
the exclusion of the acquisition
of land for other water manage-
ment purposes if specific needs
are identified.

* Subject to standards of use as
established by the District, the
Public shall be allowed access to
District lands.

* The acquisition of land will be
pursued on the basis of a volun-
tary sale by the property owner.

* Encourage and, as appropriate,
assist regional planning coun-
cils, local governments, and
other organizations to adopt
policies and plans designed to
advance sound regional

Kirk Webster, Assistant Executive Director, SRWMD. I

_ ~_____ __

F-- .. --e~_l. 1_; .

economic growth-related to the
wise recreational use of District-
owned lands.

Once acquired, a multiple use
management concept will be applied
to District lands. Uses may include
floodwater storage, groundwater
recharge, erosion control, potable
water production, natural water
filtration, preservation of unique or
fragile resources, protection of
ecological functions, protection of
fish, wildlife and their habitats,
recreation, and timber production.
The District may enter into land
management agreements with any
agency or organization-public or
private. However, it is anticipated
that the Division of Forestry and the
Division of Recreation and Parks will
provide most management services.
Detailed management plans ,will be
prepared for all District lands.
Management plans will be im-
plemented within 90 days after ac-
quisition. A Land Acquisition and
Management Advisory Council will
be formed to advise the District on
land acquisition issues. The Council
will be made up of 18 represen-
tatives-nine from special interest
groups and nine citizensappointed by
the Governing Board.

The implementation of LAMP will
not have a negative impact on the
economy of the region. Pr example,
the reduction of taxable value in the
counties along the Suwannee will be
less than one percent. It is estimated
that if District and other public lands
along the Suwannee River system
were used for recreational purposes
resulting = a one-percent penetration
into the Interstate-75 and Interstate
10 auto tourist market, an outcome
S could be nearly $100 million in new in-
come and more than two thousand
jobs related to outdoor recreation on
the Suwannee.





Governor's Coffee. Address by Commissioner of Agriculture Doyle Conner.

Florida's Dynamic Future: The Role of the Water Management District?
(Panel Discussion Sponsor: Northwest Florida Water Management District)

A Strategy for State and Regional Water Management Planning. (Panel
Discussion Sponsor: St. Johns River Water Management District)

Keynote Luncheon. Address by James W. Apthorp, President, Good
Property Company. (Host: Southwest Florida Water Management District)

Political Reactions to the 1986 Drought in the Southeastern United States.
(Panel Discussion Sponsor: Suwannee River Water Management District)

Concurrent Information Sessions:

A. The News Reporter: A District's Best Friend.
B. The Medium is Radio: The Message is Water Management.
C. Hacking at the Paper Mountain: Automating Permitting Procedures.
D. Pioneering Water Conservation in Southwest Florida.

Hospitality Hour, cash bar

Banquet. Address by David Morine, Vice President of Land Acquisitions
for The Nature Conservancy. (Host: South Florida Water Management


Concurrent Information Sessions

A. WaterWays Education Program: A Nonstructural Approach to Water
B. Tracking: Programs for Computerizing Permit Status and Issues
C. From S.O.R. to L.A.M.P: The Alphabet of River Protection.

Local Government Assistance from a Local Government Perspective. (Panel
Discussion Sponsor: South Florida Water Management District)

sl^.^.--~.- ~1~_1^-1-- --

N Northwest Florida Water Management District
Route 1, Box 3100
Havana, FL 32333

Suwannee River Water Management District
Route 3, Box 64
Live Oak, FL 32060
I (904) 362-1001

St. Johns River Water Management District
Post Office Box 1429
Palatka, FL 32077
eif (904) 328-8321

S"' Southwest Florida Water Management District
5060 U. S. Highway 41, South
Brooksville, FL 33512

South Florida Water Management District
Post Office Drawer V
West Palm Beach, FL 33402





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