Three Sisters Springs Project Management Plan

THREE SISTERS SPRINGS PROJECT MANAGEMENT PLAN - DRAFT
Florida Communities Trust (FCT) Project #08-088-FF8

A project of:
The City of Crystal River
The U.S. Fish and Wildlife Service, and
The Southwest Florida Water Management District

Management Plan Prepared 2010

Executive Summary
The effort to acquire the 57+/- acre Three Sisters Springs property for public ownership has been a multi-agency partnership focused on conserving three second-order magnitude springs and lands that surround them. The project is aimed at protecting these significant natural resource values from environmental degradation that would be caused by the development of proposed residential single-family and multi-family homes, as well as the potential for a bottled water facility. The Three Sisters Springs site is located within the acquisition boundary of the Crystal River National Wildlife Refuge (NWR) and represents what is arguably the most significant site for West Indian manatee protection in all of Florida.

The Three Sisters Springs property is located immediately south of downtown Crystal River (FL), and originally was a part of a natural wetland ecosystem adjacent to Kings Bay. In the early 1970's the trees in the forested wetland were removed and an eight-acre lake was dredged in the center of the site. The dredged material was used to fill the immediate wetlands area with the intent of creating a site suitable for residential development.

In 2008, a 300+ unit residential development project was planned for the site. However, prior to completion of the site plan and permitting requirements, the property ownership group acknowledged the environmental importance of the site, and agreed to work with a coalition of conservation groups to see if a feasible plan could be developed to acquire the property for conservation purposes, while also continuing to move forward with development plans in the event the conservation acquisition effort failed.

As a cornerstone in this conservation endeavor, the City of Crystal River agreed to serve as the lead agency in what ultimately was a successful application for a Florida Communities Trust (FCT) grant. The acquisition effort was further bolstered by the Southwest Florida Water Management District (SWFWMD) stepping forward with Florida Forever funding to be used as the match for the FCT grant funding, which resulted in SWFWMD holding a 30% ownership interest in the site. SWFWMD further committed to creating a wetlands area on site to provide stormwater treatment for runoff from adjacent commercial and residential areas.

The Friends of the Chassahowitzka National Wildlife Refuge Complex (Friends) and the National Wildlife Refuge Association took on the leading role in raising $2.7 million in private funding. The U.S. Congress appropriated $3.0 million to the US Fish and Wildlife Service (FWS) for land acquisition, with the City of Crystal River, Citrus County, the Citrus County Tourist Development Council also providing financial support. The $2.7 million in private financial support came from The Felburn Foundation and several other environmental groups, as well as a multitude of private citizens and various civic clubs. The FWS funding and the Felburn Foundation funding ultimately went to acquire the Consumptive Use Permit (CUP) and related water value from the site owners.

Since the inclusion of Crystal River/Kings Bay as a priority water body in its Surface Water Improvement and Management (SWIM) program in 1988, SWFWMD has pursued strategies and programs to improve water quality conditions in this unique tidally-influenced first-magnitude spring system. In keeping with those efforts, SWFWMD has committed to pursuing stormwater treatment via the construction of the previously-mentioned treatment wetlands on the Three Sisters Springs site. To further the environmental impact of this site, SWFWMD has also committed to including elements in the wetland design that will attract birds and other wildlife.

The FWS has committed to managing the overall site in cooperation with the City and SWFWMD once the property is acquired. The FWS will manage the property as part of the Crystal River NWR under a management agreement with the City and SWFWMD. SWFWMD will be involved with the site through the completion of construction of the treatment wetland and will then turn the wetland over to FWS for management and maintenance.

Given the prime opportunities for land-based manatee observation that the Three Sisters Springs site offers, FWS has developed plans to install at least one observation platform adjacent to the springs. The environmental experience will be further enhanced through the development of an on-site environmental center that will focus on manatees and the complex Kings Bay ecosystem. The site will also offer public amenities such as the creation of a nature trail, a canoe/kayak launch, youth fishing areas on the lake, and additional bird habitat through creation of the wetland treatment area.

The conservation of the Three Sisters Springs property fulfills the City's long-term goal of creating a waterfront open space with trails and connection to Kings Bay. Additionally, the City is working to further bolster the City's eco-tourism trade and the City will be providing safe pedestrian/biking access from its downtown area to the Three Sisters Springs site. That access will connect the Three Sisters Springs site to the City's other waterfront parks and the various water-based activities that define the City of Crystal River.

With time, the Three Sisters Springs site is expected to become a critical resource for the observation and protection of the manatee, while also playing a key role in the restoration and maintenance of water quality within the Kings Bay/Crystal River springs system. The environmental education center, nature trails, and restored wildlife habitat will further enhance an environmental experience that will be in total keeping with the area's reputation as "Florida's Nature Coast".

Table of Contents

Introduction
Purpose
Project Consistency with City's Comprehensive Plan
Natural & Cultural Resources
Natural Communities
Manatee Management
Restoration
Water Treatment Wetlands
Exotic Plant Program
Feral Animal Program
Listed Plant Species
Listed Animal Species
Flora/Fauna
Archeological, Cultural & Historical Resources Protection
Structures & Improvements
Acknowledgement Sign
Existing Physical Improvements
Proposed Physical Improvements
Public Uses
Management Issues
Exhibits
Appendices

Introduction
The Three Sisters Springs project involves the public acquisition of a 57-acre site that contains three second-order springs that play a critical role in both manatee protection and efforts to restore water quality in the Kings Bay/Crystal River spring system. The site is located in the City of Crystal River, on the west coast of Florida.

The site was originally a part of wetlands ecosystem located adjacent to Kings Bay. In the 1970s, the property was cleared and filled with the intent of creating a building site suitable for residential development. A development plan involving the construction of more than 300 residential units had been approved at the time a multi-agency cooperative effort was initiated to bring the site under public ownership.

In addition to the three second-order springs found on the site itself, there is a second order spring (Magnolia Springs) located along the western perimeter of the property and another second-order spring (Idiot's Delight) located along the southeast portion of the property. The man-made waterway fed by Magnolia Springs is a seasonal sanctuary for manatees, with a second sanctuary located where the run from the Three Sisters Springs feeds into a waterway that flows into Kings Bay. During cold weather, manatees heavily utilize the two warm-water sanctuaries and the Three Sisters Springs themselves.

The successful effort to acquire the site resulted in the property being owned by both the City and the SWFWMD, with FWS owning the water rights and managing the property through an agreement. If the FWS is unable to provide management of the site at any point in the future, the City will either seek another governmental entity to manage the site, manage the site itself, or allow ownership of the site to revert back to FCT. The FCT grant funding for land acquisition was supplemented by funding that came from the City of Crystal River, Citrus County, the Citrus County Tourist Development Council, a number of other conservation non-profits, and a multitude of private citizens and local civic clubs. In addition, FWS and the Felburn Foundation provided funding that went to acquire the Consumptive Use Permit (CUP) and related water business from the owners of the site.

In accordance with the terms of the FCT grant, the City of Crystal River has, in conjunction with FWS and SWFWMD, developed this Management Plan to ensure that the project site will be developed in accordance with the Grant Award Agreement and in a manner consistent with the grant application. As explained further herein, this Management Plan describes the ultimate development of boardwalks, a trail, a kayak launch with a boarding pier, at least one picnic pavilion, a fishing dock, and at least two observation platforms that will allow the public to observe manatees in their natural setting; construction of an environmental education center that will focus on manatee protection and watershed restoration; and the creation of a treatment wetland on the site that will treat storm-water from adjacent commercial and residential areas prior to such runoff being released into the Kings Bay/Crystal River springs system, thus improving the health of Kings Bay. The project site will be managed for the conservation, protection and enhancement of natural resources, and for outdoor recreation compatible with those goals.

Purpose
The Three Sisters Springs project was pursued by a broad array of public and private partners for the purposes of:

Creating superb outdoor-oriented recreational and educational opportunities such as wildlife viewing, wildlife photography, environmental education, and fishing, for both the citizens and visitors to Crystal River, compatible with the all purposes of the project;
Conserving, protecting and enhancing natural resources;
Protecting and recovering endangered West Indian Manatees and other fish and wildlife;
Restoring native habitat and biodiversity;
Protecting water quality and quantity in Kings Bay, Florida; and
Protecting the scenic and open space qualities of the Three Sisters Springs property.

Project Consistency with City's Comprehensive Plan
The Three Sisters Springs project supports the City's Comprehensive Plan in a number of ways, as indicated below:

Conservation Element
The Conservation Element states that "the City shall protect and conserve the natural functions of rivers, bays, wetlands, estuarine, and marine habitats, in order to assure the protection of fisheries, native flora and fauna and associated habitat, and especially species designated as endangered, threatened or species of special concern under the Endangered Species Act." [Objective 1.3] There is also language that states that "No net loss of essential upland habitat for endangered or threatened species or species of special concern will be permitted." [Objective 1.6] In addition, there is language that states that "the present quality of surface and groundwater entering Kings Bay and Crystal River will be maintained." [Objective 1.11] The Three Sisters Springs project clearly supports these objectives by protecting manatee habitat and the present quality of water entering Kings Bay, both through protection of the springs themselves and by providing for wetlands treatment of stormwater runoff from adjacent commercial and residential areas.

Recreation Element
The Recreation Element states that "public access to natural resource-based parks will be provided to assist in meeting Crystal River's recreation demands without diminishing the overall quality of those resources." [Goal #1] Specific objectives that will be supported by the Three Sisters Springs project include increasing the amount of public fishing pier access [Objective 1.1]; providing facilities for kayak/canoe access [Objective 1.2]; establishing one mile of nature trails within Crystal River [Objective 1.3]; establishing a program for the identification, designation, management and protection of environmentally sensitive lands [Objective 1.4]; and providing for a sufficient quantity and distribution of open space to meet the City's needs [Objective 3.1]. By providing open space, protection of the natural resources, a kayak/canoe launch, and a nature trail, the Three Sisters Springs project is both consistent with and strongly supportive of the goals set forth in the Recreation Element of the City's Comprehensive Plan.

Coastal Management Element
The Coastal Management Element establishes that the City shall "ensure the protection and enhancement of significant vegetative communities which support wildlife through preserving the diversity and viability of Coastal habitat areas." [Objective 1.1] it further establishes that the City will "increase public access to the Coastal Area's natural Resources through acquisition of new property, which will be consistent with the public's needs and the natural resource capacity of the selected area." [Objective 5.1] The Three Sisters Springs project will preserve the viability of the on-site habitat areas and increase public access to a natural coastal setting, with appropriate management oversight.

The City of Crystal River will amend the land use and zoning of the property to open space to protect the property in perpetuity and allow for compatible recreation and conserve the property's unique natural resource features.

The project area is surrounded by intensive housing developments on three sides and commercial development on the fourth. Residents in the immediate area have voiced concerns over privacy and disturbance from the expected large number of visitors to the project area. To address that concern, the project development will minimize conflicts with the neighborhood by placing observation platforms away from houses. Additionally, native vegetation will be promoted along the property boundaries to screen the public from neighbors and protect watercourses.

Natural and Cultural Resources

Natural Communities
The Three Sisters Springs property is approximately 57 acres of filled in forested wetlands with a man-made lake (Lake Lynda) in the center of the property. Grasses and recently-planted pine trees currently dominate the site, with beautiful natural springs (i.e. Three Sisters Springs) located in the southern center of the property. The Three Sisters Springs are surrounded by an edge of cypress and red maple with a variety of shrubs. The fields are made up of non-native cool season grasses, native herbaceous plants and recently-planted pine trees. The elevation and vegetation of the site have been altered considerably since the 1940s. Based on an examination of historical aerial photos as well as remnant vegetation along the perimeter of the site, it is likely that the majority of the property was originally either mesic or hydric hammock. These forests were removed over time and the elevation of most of the site was increased via fill material generated during the excavation of the Lake Lynda borrow pit. Lake Lynda is approximately 8 acres in size and 40-feet deep; sides of the pit are steep and there is virtually no littoral zone.

A Biological Survey and Wetland Assessment Report was conducted for the Three Sisters Springs Site at the request of Three Sisters Springs Holding, LLC. A copy of their report dated December 14, 2007 can be found in Appendix III. Additional species observed that were not found during this survey include Florida sandhill cranes (Grus canadensis pratensis) and Southeastern American kestrels (Falco sparverius paulus), two state threatened species. A gray fox was observed on site and the likelihood of raccoons, armadillos, and otters using the area is high.

Lake Lynda is an artificial lake created by the filling of the property in the 1970s. Currently, Lake Lynda provides little habitat for fish, birds, and amphibians and poses a hazard to the public because it is deep and has sharp and steep sides with no littoral zone. To the extent that funding is available and sufficient fill is available from the creation of the wetland treatment area, the City will work with SWFWMD to create shallow, littoral habitat along the shoreline of the Lake Lynda borrow pit to enhance the aquatic habitat.

Manatee Management
The project area is one of the most important properties in Florida for West Indian Manatees. To illustrate, more than 250 manatees, representing approximately 5% of the entire Florida manatee population, were observed using this site during the abnormally cold winter of 2009/2010. The manatees use the five springs on the property, which deliver millions of gallons of 72-degree water each day. As previously mentioned, the protection of manatees was one of the driving goals of the project. Three Sisters Springs is particularly important to mothers with newborn calves.

The Three Sisters Springs will remain open to the public to be used for swimming. In keeping with the intent of maintaining and sustaining quality visitor experiences while at the same time providing adequate protected areas for manatees, FWS will consider using existing federal rule making/processes to manage the balance of visitors and manatee use. For instance, consideration will be given to temporarily close portions of the springs during the coldest winter months to give mothers with calves opportunity to rest without disturbance. This will also give the general public opportunities to view manatees without swimmers. These partial and temporary closures would allow for a portion of the springs to remain open for traditional wate use. Another consideration would be closing the entire springs on the very coldest days of the year to prevent overcrowding by manatees in the existing manatee sanctuaries. These full closures will only happen rarely and last for short periods of time.

Several large boulders were previously placed in the Three Sisters outflow to prevent boats from accessing the Three Sisters Springs. These boulders impede the movement of manatees in and out of Three Sisters during low tide thus making the springs unavailable to manatees for 20% to 30% of the time. These boulders will be removed to make the Three Sisters available to manatees throughout the whole day and other means will be used to keep boats from entering the springs.

Magnolia Springs will be closed for public use during the winter months as a manatee sanctuary, as it has been. The project acquisition will not change management of Magnolia Springs, but will provide improved wildlife viewing opportunities.

The shallow water basking area across from Idiot's Delight Spring and at the mouth of the Three Sisters outflow will remain a manatee sanctuary.

The manatees in all the springs of the project area will be regularly monitored by the FWS. This monitoring includes weekly surveys and daily checks for injured animals. The management will also include refuge environmental interpretation and law enforcement. The Refuge has two refuge officers that will regularly patrol the site for human/manatee conflicts to help ensure the recovery of this endangered species.

Restoration
The 50-acre upland area will be restored by planting upland forests with live oaks, red cedar, cabbage palms, wax myrtle, and other species native to the area, including a pine forest. Restoration of mesic and/or hydric hammock on the site will require removal of fill material, which can be costly. Replanting of mesic hammock (typical species include swamp chestnut oak, white ash, southern magnolia, laurel oak, and pignut hickory) will be limited primarily to areas surrounding the springs and along the canal that flanks the southern and western borders of the property. Live oak/cabbage palm forest plantings do not require removal of fill. A wetland area will be created by SWFWMD south of the lake, which will be planted with native emergents to make it attractive to wading birds.

The Three Sisters Springs area shall remain relatively untouched except for removal or repositioning some of the boulders at the mouth of the spring run to allow manatees to access the springs on low winter tides. Repositioning the boulders would allow for the same amount of spring flow, but would allow manatees to access to the warm spring water when critically needed during the winter months. To minimize disturbance to manatees, a 50- to 100-foot terrestrial buffer will be maintained around the springs except for one or two observation platforms where visitors can view manatees resting at the bottom of a natural spring. Native vegetation will be planted around the springs to prohibit foot access from land or visitor access from the water.

Some areas will remain open to attract a variety of wildlife species. Nest boxes may be provided for bluebirds and bat houses may be installed. As resources are available, a garden with native species may be planted to attract butterflies.

Water Treatment Wetlands
A portion of the property will be devoted to stormwater treatment wetlands to be created on the east side of the property. The runoff from the commercial and residential areas east of the property will flow through the treatment wetland before being discharged into the channel towards Kings Bay. The treatment wetland will improve the quality of stormwater entering Kings Bay. The wetlands will be created, designed and constructed by the SWFWMD, with design input from the FWS to also allow the wetlands to provide wildlife habitat. The wetlands will be designed in such a way as to maximize benefits to wetland wildlife while meeting treatment goals. The wetland treatment area will be integrated into the natural landscape to facilitate use of the site for education and recreation purposes, with shallow slopes. It is not expected that the perimeter of the wetland area will need to be fenced. The need for a trash trap will be investigated, but may not be necessary since each of the proposed water sources into the wetland treatment area flow through CDS units that remove debris and other solids. Previously, stormwater from these areas was discharged directly into a canal that forms the eastern border of the site.

Exotic Plant Program
The uplands contain some exotic plants including Brazilian pepper (Schinus terebinthifolius), cogon grass (Imperata cylindrical), and air-potato (Dioscorea bulbifera) which are all listed as Category I species on the Florida Exotic Pest Plant Council list. All exotics will be removed from the property within 3 years of acquisition and the property will be monitored to ensure exotic repopulation does not occur. The "Exotic Pest Plant Council's List of Florida's Most Invasive Species" will be used to identify invasive exotic plant species; a copy of that list is provided within the appendix.

Feral Animal Program
Currently, there are no feral animals on the property, but the property will be monitored for introduction of exotic/nuisance animals such as feral cats. If any feral animals are found on the site, they will be removed by qualified personnel.

Listed Plant Species
Currently, there are no known listed plant species found on the site.

Listed Animal Species
The West Indian manatee, Florida sandhill crane and wood stork have been identified using the site. The development of the site will be done in such a manner to enhance the habitat used by listed species, with a strong emphasis on protecting the manatee habitat.

Flora/Fauna
A flora/fauna list is provided as a biota summary within the Exhibits portion of this plan.

Archaeological, Cultural, and Historical Resources Protection
There are no known archaeological, cultural, and historical resources on the site. The City will notify the Division of Historical Resources immediately if evidence is found that indicates an archeological or historic resource at the project site, and will also take appropriate measures to protect such resources. The collection of artifacts or the disturbance of archeological or historic sites that may be found or identified on the project site will be prohibited unless prior authorization has been obtained from the Division of Historical Resources within the Department of State. The management of the archeological and historic resources will comply with the provisions of Chapter 267, Florida Statutes specifically Sections 267.061 2(a) and (b).

Structure and Improvements

Acknowledgement Sign
There will be a sign at the entrance of the property (not less than 3' X 4' in size). The sign will acknowledge that the property was acquired using funds from the Florida Communities Trust and the SWFWMD. The sign will also acknowledge the managers of the property (FWS) and major financial contributors (the Felburn Foundation, SWFWMD, Jane's Trust, Citrus County, Citrus County Tourist Development Council, the City of Crystal River, and FWS). The sign will also indentify that the property was conserved in 2010. The sign will be landscaped in native xeric vegetation.

Existing Physical Improvements
Small dock on the Three Sisters Springs, two picnic tables with shades, barbeque pit, storage shed, barbed wire fence and an entrance gate - all these structures will be removed.

Proposed Physical Improvements

Observation Platforms:
A platform that will accommodate at least 10 to 20 people will be placed adjacent to the easternmost spring within the Three Sisters Springs, which is an area that provides an open view of the springs. A smaller platform (5-10 visitor capacity) will also be installed near the westernmost spring; this would provide minimal intrusion to the springs and manatees while providing an optimal manatee viewing experience. The structure will be constructed with minimal impact and no vegetation removal if possible in order to preserve the wild setting around the perimeter of the spring.

As resources become available, additional viewing platforms will be considered for the area adjacent to Magnolia Springs and adjacent to the wetland treatment area.

Nature Trail:
The project will include a land-based nature and hiking trail that is at least 1/4 mile in length with minimal disturbance of natural resources. The trail will provide visitors with a view of the treatment wetland and connect the kayak launch site, the education center, the fishing pier, the manatee observation platforms, and the picnic pavilion(s).

Bicycle Trail:
The City is designing an extension of its current Crosstown Trail to connect to the property to allow people to visit the property in a carbon-friendly manner. Park visitors will not be able to ride their bicycles through the property, but will be able to access the property via bicycle.

Kayak/Canoe Launch
A kayak/canoe launch will be provided. Visitors will be able to come to the site via water and leave their kayak/canoe at the launch site. There will be no access to the launch from land, meaning that individuals will not be able to drive on to the site and launch a kayak/canoe from the site. There are no plans to include a motorized boat landing facility, and the launch will be designed and located to prevent access by motorized boat craft. The canoe/kayak launch will restricted to use only by individuals using those types of watercraft.

Picnic Pavilions
At least one picnic pavilion will be provided within the project site. As resources become available, additional picnic pavilions will be considered.

Fishing Pier
A handicapped-accessible fishing dock will be developed on Lake Lynda to provide recreational fishing to the general public. The dock will be placed on the west side of the lake and be connected to the Education Center by an ADA-compliant trail. There will be interpretive panels explaining the species of fish in the lake, and catch-and-release practices will be encouraged.

Education Center
The site will house an education center on the property that will be a minimum of 2,000 square feet. The center will be located away from critical wildlife habitat, wetlands, and water bodies. The center will provide information on the springs and their function as a manatee sanctuary, as well as the role the property plays in protecting the manatees and water quality.

At least 12 environmental or historical educations classes or programs will be provided on site per year. The classes/programs will educate visitors about the springs and their function as a manatee refuge, as well as the role of the springs in protecting water quality in the Crystal River Outstanding Florida Waterway.

It is acknowledged that the final design of the education center will require review and approval from FCT.

Parking Facilities
Size: A parking lot of not less than 40 spaces will be constructed adjacent to the environmental education center. An adjacent overflow lot and grass area will be designated for overflow during major events.

Visitor Carrying Capacity: The calculated number of parking spaces is also tied to the maximum number of visitors that the manatee viewing platforms and decks can accommodate during the highest visitation period (December - March). USFWS intends to establish at least two manatee viewing areas (see Observation Decks).

Turnaround Lapse: Vehicle turnaround times (the amount of time spent by a vehicle occupying a parking space) were also considered in the process of calculating the number of parking spaces. Based on observations from other manatee viewing sites, it's apparent that visitors who view manatees tend to spend prolonged periods (15 minutes average) of time watching manatees.

Parking/Entrance Location: The parking lot entrance will most likely come from the northeast corner of the property and parking will most likely be in the southeast corner of the property. The site will be easily accessible from U.S. Highway 19.

Materials: The parking lot and access road will be created using permeable materials that will accommodate drainage requirements. To the degree possible, natural materials will be used to enhance the appearance of the site.

Landscaping
Minor landscaping will be placed around the entrance way and the visitor center. All plants will be native to Central Florida. Landscaping around the education center could include the planting of a pollinator garden. These plants will be drought tolerant and require no watering or pesticides or herbicides. The plants will include berry producing shrubs and native herbaceous plants that are attractive to pollinators.

Wetland Buffer
Native forested buffers will be restored along the properties wetlands and water-bodies at least 50 feet wide to protect water quality. The exception will be around the treatment wetlands that will be created for improving King's Bay water quality and provide habitat for cranes, wading birds, waterfowl, water birds, and shorebirds. The impoundments will be surrounded by dikes seeded into cool-season grasses.

Stormwater Facilities
A treatment wetland, as previously described, will be created on the property to treat water running off of neighboring commercial and residential properties. The wetland will improve King's Bay water quality, and can also be used to treat run-off from the property's parking site. The wetlands will be designed to look as natural as possible, with shallow slopes. The treatment wetlands will be designed to attract birds and other wildlife and will be used to provide additional wildlife viewing opportunities in the project area.

Hazard Mitigation
Appropriate hazard mitigation will be in place around the parking site and fuel storage locations (if any). All structures and facilities will be designed to mitigate impacts by 100-year floods, hurricanes, and other severe natural events.

Interpretive Signs
Several interpretive signs will be installed to educate visitors about the springs and their role as a manatee refuge, water quality issues of the Crystal River Outstanding Florida Waterway, and the native upland and wetland plantings.

Permits
Development work will likely include the construction of structures such as an education center, observation platform(s), a fishing pier, a kayak/canoe launch, a trail(s), a parking lot, and signage. Restoration activities will include storm-water facilities and exotic plant removal.

A number of potential permits and/or orders and authorizations for development and restoration activities have been identified. These can include:

A City of Crystal River building permit
A Citrus County Florida Development Order/Permit
A Citrus County Florida Development Order issued by the Citrus County Building Division for any activities not specifically exempted by the Land Development Code
A State Programmatic General Permit (SPGP) for minor work located in waters of the United States (including navigable waters)
A Noticed General Environmental Resources Permit issued by the Southwest Florida Water Management District in conjunction with the Florida Department of Environmental Protection
A Nationwide Permit 27 for stream and wetland restoration activities issued by the U.S Army Corps of Engineers.
An authorization to use Sovereign Submerged Lands

As part of the FCT grant conditions, and to ensure that other permitting requirements are not missed, the following agencies will be contacted prior to initiating any site development activities:

Florida Fish and Wildlife Conservation Commission
Florida Department of Environmental Protection
Florida Department of Agriculture and Consumer Services, Division of Forestry
Florida Department of State, Division of Historic Resources
Southwest Florida Water Management District
U.S. Army Corps of Engineers

Estimated Cost of On-Site Physical Improvements
Creation of Wetland Treatment Area $500,000
Installation of First Observation Platform $100,000
Installation of Second Observation Platform $100,000
Creation of Nature Trail $50,000
Kayak/Canoe Launch $40,000
Picnic Pavilion $25,000
Fishing Pier $150,000
Education Center $350,000
Parking Facilities $75,000
Restoration of Wetland Buffer TBD
Interpretive Signs $10,000

Projected Timeline for Physical Improvements to be Completed
Creation of Wetland Treatment Area Design 2011
Creation of Wetland Treatment Area Construction 2012
Installation of First Observation Platform 2012
Installation of Second Observation Platform 2014
Creation of Nature Trai 2012
Kayak/Canoe Launch 2014
Picnic Pavilion 2014
Fishing Pie 2015
Education Center 2015
Parking Facilities 2012
Restoration Wetland Buffer 2013
Interpretive Signs 2014

Public Uses:

Water Access to the Three Sisters Springs
The public currently accesses the Three Sisters Springs by water, entering the springs while in the water or by kayak/canoe, primarily to view manatees. Management activities will include providing compatible, wildlife-oriented recreational opportunities for visitors while optimizing use of the springs for manatees. Compatible uses of the site will likely include existing in-water uses, managed to enhance visitor experiences and minimize manatee disturbance. FWS may enact partial closure of Three Sisters Springs during the coldest winter months and would consider full closure only fo extreme cold winter events.

Management actions concerning the protection of manatees in the springs and adjacent areas will be addressed independent of the acquisition and will be made with input from the public as provided for by federal law.

Land Access to the Springs
At present, the public is prohibited from accessing the springs from land and are prohibited from accessing the shoreline and property from the water. Inasmuch as the water bottoms are included in the acquisition, access to the water bottoms from land and water will be managed. Management actions will include preserving shoreline vegetation, controlling erosion, and maintaining water clarity. Consistent with these actions, access to the water from land and vice versa will continue to be restricted. Manatee rescues and regular maintenance activities will be the only exceptions to these restrictions. Land-based uses will include the use of observation platforms to provide visitors with an opportunity to view manatees from shore.

Fishing
Fishing in the springs is not compatible with currently planned visitor activities or with manatee protection, and therefore will not be allowed in the springs. However, there are opportunities for limited fishing in Lake Lynda and a fishing dock is planned. In order to minimize disturbance from angling activity and fishing gear litter, these uses will be controlled and monitored. All fishing activities will be restricted to a designated fishing pier and bank fishing will not be permitted on any other area of the property in order to minimize wildlife disturbance. The fishing pier will be ADA-compliant and would be of sufficient size to accommodate several individuals at one time. The springs will be closed to fishing year-round.

Festivals & Special Events
The project site may be used for festivals and special events that are oriented toward conservation/appreciation of natural resources, wildlife protection, and other environmental themes.

Management Issues

Coordinated Management
The Three Sisters Springs property will be managed by (FWS) and the Southwest Florida Water Management District, with the District's involvement limited to creation of the wetlands treatment area and related replanting efforts. FWS has broad experience in co-managing property with municipal and state governments. The property will be managed as part of the Crystal River National Wildlife Refuge. The governance of refuges follows the National Wildlife Refuge Administration Act, as amended, the Refuge Recreation Act, and other regulatory statutes.

Bicycle/Walking Access
An extension of the City's Crosstown Trail is under design to provide for access to the Three Sisters Springs property. Entry into the property will require payment of an entrance fee. Vehicle and pedestrian entrance fees will be used by the U.S. Fish and Wildlife Service to maintain property facilities, including the land-based nature and hiking trail to be provided within the property.

Maintenance
The U.S. Fish and Wildlife Service will be responsible for the long-term maintenance of all the facilities on the Three Sisters Springs property. The Service has a large modern maintenance facility 10 miles south of Crystal River with all the necessary equipment, personnel, and tools for up-keep of the property. The Fish and Wildlife Service will use revenues from entrance fees and Refuge operations budgets to fund the needed maintenance.

Security
The National Wildlife Refuge Complex staff that manages Crystal River National Wildlife Refuge has two full-time Refuge Officers. These Officers will provide law enforcement and security for the property. Additional Officers can be provided by the Service at special events or particularly busy times.

Entry Fees, Concessions, and Leases
Entry Fees: The Service anticipates establishing a user fee. The fee amount may vary by season (summer vs. winter). Seasonal passes are being considered. The Service will compare other similar sites and their respective entrance fees to determine consistent user fee amounts.

Management Agreement: The FWS will hold a management agreement over the entire property to manage the property. The management agreement will be multi-year in length and will obligate the FWS to manage the project in such a way as to allow the City to comply with the terms of the FCT grant and allow SWFWMD to manage their lands in accordance with that agency's policies. If the FWS gives up their management agreement for any reason, or fails to adequately perform, the City would be responsible for finding another agency to manage the property, managing the property itself, or being required to allow the ownership of the property to revert back to FCT.

Concessions: The Friends of Chassahowitzka may operate a concession in the education center. FWS will manage all concessionaire activities in accordance with Federal regulations.

It is acknowledged that the City must provide 60 days written notice to FTC on the lease of any interest, the operation of any concession, or other contracts of a similar nature, and that execution of any such document requires review and approval by FTC.

Staffing Requirements
There are 10 existing full-time staff available to staff the project from the Crystal River National Wildlife Refuge. These staff members include Refuge Managers, Recreation Specialists, Law Enforcement Officers, Biologists, and Maintenance Workers. Cost estimates for initial management of the site are shown in the table below. These costs will be covered under the existing refuge budget, as funding is available. All staffing and management actions for the project are contingent upon availability of funding through the Federal government budget process.

Cost Estimates for Initial Management
Refuge Manager - 10% FTE $15,000
Asst. Manager - 10% FTE $10,000

Wildlife Biologist - 10% FTE $10,000
2 Law Enforcement Officers - 25% FTE each $57,000

Recreational Specialist - 20% FTE $15,000
2 Maintenance workers - 20% FTE $34,000
Maintenance Fund - $25,000
TOTAL $116,000

As funding becomes available, the refuge will seek to add positions to increase management and education at the site, including two entrance gate workers, a law enforcement officer, a maintenance worker, a supervisory recreational specialist and two interpretive park rangers. These additional positions and maintenance cost estimates are shown in the table below, but are once again dependent on the availability of funding. Once the property has been developed and is open fully to the public, anticipated user fee collections may reach approximately $375,000 annually. These fees will be placed in a separate account and will be used for the upkeep and maintenance of the project site.

Cost Estimates for Increased Management with Property Development

2 Fee Booth Collectors - 100% FTE each $90,000
Law Enforcement Officer - 100% FTE $100,000
2 Interpretive Park Rangers - 100% FTE $170,000
Supervisory Recreational Specialist - 100% FTE $100,000
Maintenance Worker - 100% FTE $85,000
Maintenance Fund $200,000
TOTAL: $745,000

Monitoring and Reporting
FWS will be responsible for monitoring the project area. The FWS will monitor the following:

Number of visitors
Number of cars, kayaks, and bicycles used to access the project area
Number of manatee/ human disturbance issues
Weather and need for temporary manatee closures
Manatee use of the project area
Wading bird use of the project
Removal of exotic plants
Infrastructure needs

These findings will be compiled in a report and given to the City of Crystal River and FCT on an annual basis, with such report to be filed by no later than January 30th of each year. The City, SWFWMD, and FWS will meet each quarter to discuss issues relating to the management of the project area.

Management Plan Revisions
It is acknowledged that written approval must be requested from FCT before undertaking any site alterations or physical improvements that are not addressed in the approved management plan.

Exhibits

Location Map
Master Site Plan
Public Lands Map
Natural Communities Map
Biota Known or Likely to Occur at Three Sisters Springs (Crystal River, Florida)
Copy of the Exotic Pest Council of Florida's Most Invasive Species List
City Bike Tail Network Map
Copy of Grant Award Agreement or Grant Contract
Interagency Agreement

Appendices

Executive Summary Site Suitability Study Three Sisters Springs Property, Crystal River, FL. 2004. HSA Engineers and Scientists.
Biological Survey and Wetland Assessment Report for the Three Sisters Springs Site, Citrus County, FL 2007. Biological Research Associates.

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