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Statement To Governor
Reubin O'D. Askew
From The Governor's Conference On
Water Management In South Florida
There is a water crisis in South Florida today. This crisis has
long-range and short-range aspects. Every major water area in the
South Florida basin, Everglades National Park, the conservation
areas, Lake Okeechobce and the Kissimmee Valley is steadily
deteriorating in quality from a variety of polluting sources that
are detailed below. The quantity of water, though potentially
adequate for today's demand, cannot now be managed effectively
over wet/dry cycles to assure a minimum adequate water supply
in extended drought periods.
WATER SUPPLY QUANTITY
To initiate an action program to solve problems in the area of
water quantity, a careful assessment must be made of water
demands linked to projected growth. For an adequate long-range
water supply, the State must have an enforceable comprehensive
land and water use plan. This plan must be developed immediately.
It must be designed to limit increases in population and
machines, with their attendant demands on the water supply, to a
level that will insure a quality environment. Such a management
plan would include, as its first objective, a complete inventory
and assessment of long-range water resources. The controlling
factor in this water resource assessment should be the water supply
that can be anticipated in times of shortest supply. A result of
this planning effort would be a water budget system based on
available resources. This system would serve as a limitation on
allowable population increases.
WATER SUPPLY QUALITY
Water quality is a far graver problem in the long run than is
water quantity. The quality of the water in the South Florida
water basin is deteriorating. This deterioration stems from the
introduction into the basin of pesticides, herbicides, animal and
industrial wastes, heavy metals, salt water, sewage and heated
waters. Channelization has contributed substantially to the process
of deterioration. Water quality in the basin may be restored and
maintained by:
1. Zoning or acquiring the flood plains in the basin.
2. Reflooding the Kissimmee marshes.
3. Initiating a comprehensive treatment program to treat
pollutants at the source before they enter the water system.
(This would necessitate initiation of treatment procedures
in agricultural areas and up-grading existing procedures in
urban areas.)
4. Phasing out back pumping into Lake Okeechobee or
requiring effective treatment at the source before back
pumping.
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5. Research and funding which should begin immediately to
study what to do about recycling water and sewage
effluents and solid waste disposal.
LAND RECLAMATION
There should be no further draining of wetlands1 for any
purpose. As an initial step in controlling the drainage of wetlands,
it is recommended that Chapter 298 of the Florida Statutes
(Soil drainage district law 1913) be repealed. Wetlands are the
most biologically productive of all lands. The need to preserve
them stems from their value for recreation, water storage, aquatic
productivity, nutrient removal and for aquifer recharge. A program
should be initiated to reflood the marshes of the Kissimmee
Valley. A ricultural lands and marshes not resdently in production
be-ow 7ke Okeechobee shoul-calso be reflooded. The initial
efforts shouldbe pilot projects that can provide a clearer assess-
ment of the benefits and techniques of reflooding. It is crucial to
reverse the process of the steady loss of organic soils.2 Reflooding
is the primary method for accomplishing this objective. This
programshould include the acquisition and cnnQnlidaltin lia ds
byjthe State in selected areas north of Consenation Area Three
and or ne Conservation Area Tw as a major ilot prram.
Its purpose shall be toetermine the effect ofcontron ng water
levels, filtering pollutants and recycling wastes to build up organic
soils. Muck conservation programs should be coordinated and
pursued immediately by the Central and Southern Florida Flood
Control District and Trustees of the Internal Improvement Trust
Fund. Even if mucklands are not used for agriculture, their
preservation an r-j o o are necessary to maintain the
eco gical balance of the South Florida basin. Reestablishment
of sawgrass may be the best solution to replenishment of the
mucklands. However, other approaches should be considered on
an experimental basis, including the use of organic material such
as sewage sludge.
(A minority position held that limited drainage of wetlands to
serve a clear public interest, under strict controls, may be
justified.)
POPULATION
There is a limit to the number of people which the South
Florida basin can support and at the same time maintain a
Wetlands, swamps, marshes, bogs, etc.
Organic soils in the South Florida-Everglades area are commonly referred ,
to as muck or muckland. .
quality environment. The State and appropriate regional agencies
must develop a comprehensive land and water use plan with
enforcement machinery to limit population. This is especially
crucial in the South Florida region. The population level must
be one that can be supported by the available natural resources,
especially water, in order to sustain a quality environment. A
State comprehensive land and water use plan would include an
assessment of the quality and quantity of these resources.
Moreover, it would set density controls on further development
by regions and sub-regions.
GROUND WATER
Localized ground water problems are common in South
Florida, but they are especially severe in South Dade County and
in portions of Collier and Lee Counties. Ground water contamin-
ations and depletion problems include salt water intrusion.
uncontrolled drilling of wells, drainage well pollution, inefficient
waste water disposal systems, septic tanks and sanitary land fill.
Solutions to ground water problems include:
1. A State Drilling Code requiring licensing of all wells and
well drillers.
2. Purchase or zoning of lands to protect recharge areas.
3. Plugging of abandoned artesian wells.
4. Installation of secondary controls in major canals to hold
higher heads of water.
5. Construction of additional salt water intrusion control
facilities, except on natural rivers, according to a salinity
control line established along the entire South Florida coast.
6. Elimination of the disposal of improperly treated waste
waters.
7. Consideration of all artificial recharge methods which do
not impair the quality of the ground water.
8. Consideration, after study, of filling in certain canals in
the South Dade County area to improve ground water
quality.
9. Prohibition of deep cuts made into the aquifer at the salt
water line which cannot be adequately controlled by
salinity barriers to prevent salt water intrusion.
Water quality, quantity and development controls described else-
where in this report will also improve ground water conditions in
the basin.
GEOGRAPHIC CONSIDERATIONS
The South Florida water resources can only be understood by
considering the entire area. The area begins with the Kissimmee
Valley chain of lakes in the north, extends southward through
Lake Okeechobee, the Everglades (including the Big Cypress) and
encompasses all coastal and estuarine areas. Any significant
change in water quality or quantity in one part of the total area
must be considered in light of its effects on the rest of the system.
(A) The Kissimmee Valley
Pollutants entering the Kissimmee Valley have cumulative
adverse effects on water quality in the Kissimmee chain of lakes
and in Lake Okeechobee. The Kissimmee lakes nA mL ec
should be restored to their hu c conditions and levels to the
Vflratest Thn r-alin order to improve th quality of the
water entering Lake Okeechobee. Action should be taken to
restore fish resources and wildlife habitats. Contamination by
pastured livestock must be reduced. Techniques should be investi-
gated to increase restoration of selective areas to their natural
condition by use of advance waste disposal and composting
materials.
(B) Lake Okeechobee
Recognizing that Lake Okcechobce is the hub of water quantity
and quality in South Florida, the most important and overriding
consideration should- be not only to maintain the present quality
of the lake but also to improve it. Specific consideration should
be given to assure that all water inputs into Lake Okeechobce
are of high quality. Two primary inputs which could improve the
quality of water are (1) reflooding of the Kissimmee Valley flood
plain and (2) assuring that only high quality water is back pumped
into the lake. We should consider the following ways, in
addition, to assure high quality lake water:
1. An appropriate monitoring and enforcement program.
2. Allowing a maximum high water level mark of seventeen
and one-half feet. Higher controlled elevations will not be
considered unless it can be clearly shown that such elevation
would have no adverse effect on the environment of Lake
Okeechobee, its water quality or the ecosystem of South
Florida.
3. Allowing no cattle or agricultural activities inside the diked
area of the lake and immediate cancellation of all agricultural
and mineral leases inside the diked area.
4. Ways should be sought to replace chemical control of
aquatic weeds with alternate methods which are not
harmful to the Lake Okeechobee ecosystem.
5. Nutrient removal by periodic commercial harvesting of the
lake's extensive fish population.
6. Nutrient removal by harvesting of aquatic weeds.
(C) Everglades Outside the Park
Everything possible should be done to retain and enhance
those areas in their naturaTl ";; There is a need for
continuous monitoring an control of these water resources since
they provide the supplies to total South Florida area, including
urban areas. A specific objective should be to maintain and restore
thi.lrass. Present intrusion of non-public interests should be
removed rom Conservation Areas 1, 2, and 3 and all privately
owned lands in said areas be purchased. It is important that the
Big Cypress area be purchased to the greatest extent possible and
that land use controls be established immediately in the Big
Cypress to control development and to preserve this area for the
public benefit. Other potentially valuable areas that need protec-
tion are the Shark River Slough, its head water areas and the
general area near Canal C-l 11.
(D) Everglades National Park
We should attempt to maintain the water quality and quantity
of the Park adequate for the purpose for which the Park was
created. Where it is deemed advisable, exotic plants and animals
should be controlled in the Park and throughout the Everglades
area.
SHORT TERM PROBLEMS
An inter-agency committee should be established immediately
to consider short term water management problems. The purpose
of this committee shall be to develop an ecologically sound body
of guidelines and policy to be followed in the resolution of short
term problems of the region. There should be an educational
program to alert the public to the possibilities and consequences
of water shortage.
(A) Fire Prevention and Control
Through programmed burning maintain an approximation of
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;. :- e regime of the area. There should be controlled
burning to protect the natural plant and animal systems and to
prevent an undesirable build-up of plant materials. Man should
be excluded from critical areas in times of drought. Fire laws
should be strictly enforced.
(B) Intrusion of Salt Water
To prevent the intrusion of salt water within the coastal areas,
the fresh water head should be maintained as high as feasible.
When a water shortage is anticipated, restriction of water use will
be necessary in order to maintain this head of fresh water during
the drought. Temporary dams should be built on canals, when
necessary, with an established emergency system of permitting
to allow construction of such dams. During droughts, navigation
service should be restricted in order to reduce loss of fresh water.
Canals should not be constructed which would allow salt water
intrusion inland of the salt water line. Appropriate local laws
should be established and enforced.
(C) Establishment of Water Priorities
Since there is competition for water by agriculture, urban areas,
conservation areas, estuaries and the Everglades National Park it is
recommended that the total water supply be considered a common
resource. Survival of the entire South Florida ecosystem, without
sacrificing any segment, should be the prime consideration.
Maintaining the head of fresh water should be given first
priority. The inter-agency committee should propose priorities
in its over-all plan.
(D) Regulation of Water Use
A model water use priority ordinance should be developed
for use by all affected areas, establishing a series of consumptive
controls based on the degree of water shortage.
(E) Desirability of Cloud Seeding
Cloud seeding is not considered a short term solution. There
was a division of opinions on the desirability of cloud seeding
primarily due to a lack of knowledge, especially as to the possible
adverse environmental effects. An opinion is that cloud seeding
may be more effective in producing a water supply during the
wet season to mitigate low water supplies during the dry season.
However, further research is recommended.
(F) Schedules of Water Levels in Lake Okeechobee and the
Conservation Areas
The inter-agency committee should develop and maintain
close coordination between the U. S. Army Corps of Engineers,
the Central and Southern Florida Flood Control District, the
Florida Game and Fresh Water Fish Commission, the U. S. Depart-
ment of the Interior and where appropriate, the Florida
Department of Natural Resources. The purpose should be to
establish water levels in Lake Okeechobee and the Conservation
Areas as well as to establish flexible regulation and delivery
schedules for all water needs in South Florida.
MANAGING AGENCY FOR THE SOUTH FLORIDA REGION
Water management should be coordinated at the federal, state
and regional levels, with the leadership role clearly being taken
by the State of Florida. At the state level there must be an agency
or board that has all power necessary to develop and ensure
implementation of a comprehensive land and water use plan
for the State. The agency or board, whichever it may be, should
report to the Governor.
A regional board for South Florida shall be established. The
regional board shall be composed of nine (9) members appointed
by the Governor. Three year staggered terms shall be used. The
board shall represent the diverse interests in the region. It should
hold periodic public hearings in its region for the purpose of
receiving input from the public. It shall develop and implement a
regional comprehensive land and water use plan in accordance
with the State plan. The development of this regional plan should
commence at once with the proper funding and legislative
authority, even in the absence of an adequate statewide plan.
In the development of these long range plans, procedures should
be adopted which allow and encourage full public participation
and input.
The geographical boundary of the South Florida regional land
and water management agency shall be the Kissimmee River
Basin, the Okeechobee Basin, the Everglades and the Big
Cypress Watershed, including all adjacent coastal and extuarine
areas. The regional land and water management agency shall be
responsible for managing water quality and quantity for the long
term benefit of the environment of the region and the State. The
agency shall be responsible for establishing policy and guidelines
for such activities as drainage, water use, well drilling, land use,
estuary protection, watershed management, flood control and soil
conservation.
The regional agency shall have all powers necessary to develop
and implement the regional land and water use plan including,
but not limited to, taxing powers, eminent domain, police
powers such as intervention to protect the environment, permits
for drainage districts and canals, subpoena and investigative
powers and research properly coordinated with other agencies. A
law providing for public condemnation of lands for environmental
protection is essential to the implementation of the objectives
herein presented.
The regional agency shall be required by the State to relate to
and coordinate with duly constituted State and regional organiza-
tions operating in other functional areas.
Finally, the conference recognizes that present funding for
environmental protection must be greatlyenlarged to accomplish
the common goal of protecting the economic and environmental
values of this State.
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The citizens who have participated in
this Governor's Conference on
Water Management in South Florida in
plenary session assembled acknowledge
and applaud the foresight and courage
demonstrated by
Governor Reubin O'D. Askew
in convening this meeting and offer their
continuing support in accomplishing the
objectives set forth in this statement.
Approved in Plenary Session
September 24, 1971
Panel M-embers Listed
Panel Members Listed
Some 150 experts from the fields of
science, government, agriculture, and
conservation participated in the Gov-
ernor's Conference on Water Management
in South Florida. The panels were headed
up by Professor John DeGrove of Florida
Atlantic University and Professor Arthur
Marshall of the University of Miami.
Names of members on the panel follow:
Group 1 Hal Scott, Audubon
Society, Chairman, and Donald O.
Morgan, FCD, Recorder. Panelists in-
cluded: Dr. Harry A. Allison, University
of Florida; B. O. Beck, Osceola County
Commission; Mrs. J. W. Bernhard,
Tequesta; Richard Bogosian, Indian River
County Commission; Richard Brusulas,
Miami; T. J. Buchanan, U.S.G.S; Thomas
E. Furman, University of Florida; Joel
Gustafson, State Representative, 87th
District; Fred W. John, Belle Glade
Chamber of Commerce; Thamas A.
Kimball, President National Wildlife Fed-
eration; Henry Kittleson, Lakeland;
Richard Klukas, Everglades National Park;
Harry H. Kuck, Jr., South Everglades
Planning Council; Ross McCluney, Uni-
versity of Miami; John McCue, Dade
County Public Works; Dr. Howard Odum,
University of Florida; William Robertson,
Everglades National Park; Dick Robinson,
Bureau of Sport Fisheries and Wildlife;
Dr. Robert Simpson, N.O.A.A.; Angelo
Tabita, Corps of Engineers; Dr. Kenneth
Tefertiller, University of Florida; John W.
Wakefield, U. S. Department of Health,
Education and Welfare; George V. Warren;
Palm Beach County Commission; and
William Zinkil, Sr., State Representative
85th District.
Group 2 Dr. Robert Homas, Florida
Atlantic University, Chairman and Dr.
Manley Boss, Florida Atlantic University,
Recorder. Panelists included: Durward
Boggess, U.S.G.S.; Joe Brown, Everglades
National Park; Dr. George Cornwell, Uni-
versity of Florida; Gratton W. George,
Hendry County Commission; Dr. John
Gerber, University of Florida; Robert
Gibbs, South Florida Environmental
Project; Robert Grafton, FCD; E. E.
Green, St. Lucie County Commission;
Theodore Haeassner, Corps of Engineers;
C. Knecht, U. S. Sugar Corporation;
Philip Lewis, State Senator, 33rd District;
Bill Lund, Jupiter; Frank Nix, Everglades
National Park; Gerald Parker, South West
Florida Water Management District; Ted
Randall, State Representative, 112th Dis-
trict; J. W. Stevens, Broward County
Commission; Dr.Kerry Steward, U.S.D.A.;
Robert B. Steylter, Dade County Water-
Sewer Authority; Mrs. Joyce Tarnow,
Coral Gables; and Dr. William Woodley,
W.O.A.A.
Group 3 Dr. Carl McKenry, Uni-
versity of Florida, Chairman; and Colonel
J. W. Sollohub, State Department of
Natural Resources, Recorder. Panelists
included: Lothian Ager, Game and Fresh
Water Fish Commission; Dr. Taylor Alex-
ander, University of Florida; John Bethea,
Director Division of Forestry; Mrs. Jean
Booker, Fort Lauderdale; Stephen P.
Clark, Mayor Dade County; George
Cooper, Princeton; Mrs. Marjorie Stone-
man Douglas, Miami; Dr. Charles Eno,
University of Florida; W. E. "Bill" Ful-
ford, State Representative, 40th District;
George Gardner, U. S. Department of the
Interior; James H. Hartwell, University
of Miami; K. K. Huffstultler, E.P.A.; Ray
Knopke, State Senator, 23rd District;
Dr. Charles M. Loveless, Denver Wildlife
Research Center; Art Marshall, University
of Miami; William G. Meyers, Martin
County Commission; Martin Northrup,
Florida Audubon Society; Dennis
O'Connor, University of Miami; Vincent
Patton, Air and Water Pollution Control
Board; John Pennekamp, Miami Herald;
Ralph Poe, Orange County Commission;
A. W. Sarrinen, consulting engineer;
William Schneider, U.S.G.S.; Bruce Scott,
Lee County Commission; Garrett Sloan,
Dade County Water-Sewer Authority; and
William V. Storch, FCD.
Group 4 Dr. Lloyd B. Stover, Florida
International University, Chairman; and
Bill Partington, Environmental Informa-
tion Center, Recorder. Panelists included:
Mrs. Jean Bellamy, Miami Chamber of
Commerce; Dr. J. I. Garcia Bengochea,
consulting engineer; Joe Carrol, Bureau of
Sport Fisheries and Wildlife; Dr. Frank C.
Craighead, South Florida Environmental
Project; Don Crane, State Representative,
52nd District; J. Walter Dineen, FCD;
Robert Graham, State Senator, 48th Dis-
trict; Aaron Higer, U.S.G.S.; Mrs. Virginia
Hine, Miami; Dr. Wayne C. Huber, Uni-
versity of Florida; M. J. Kolpinski,
U.S.G.S.; Stanley D. Leach, U.S.G.S.;
Larry Lukin, Palm Beach County Environ-
mental Director; Riley S. Miles, Water
Users Association; Dr. William Morgan,
University of Florida; Dr. Oscar T. Owre,
Audubon Society; Richard Pettigrew,
Speaker of the House of Representatives;
H. H. Raulerson, Okeechobee County
Commission; James F. Redford, Miami;
Larry Shanks, U. S. Department of the
Interior; Cecil P. Skipper, Highlands
County Commission; Dr. Sam Snedecor,
University of Florida; William R. Vines,
Naples; Lorenzo Walker, State Representa-
tive, 113th District; James O. Woodward,
Glades County Commission.
Group 5 Jack Shreve, State Repre-
sentative, 75th District, Chairman; and
Joel Kupperberg, Trustees of the Internal
Improvement Fund, Recorder. Panelists
included: Peter Baljet, Dade County
Health Department; William Bevis, Com-
missioner Florida Public Service Commis-
sion; David Blumbert, Miami Chamber of
Commerce; Joe Burgess, House of Repre-
sentatives Committee on Natural Re-
sources; Aldine Combee, Polk County
Commission; Clyde Conover, U.S.G.S.;
Hugh M. Evans, Brevard County Commis-
sion; Harry Harris, Monroe County Com-
mission; Dr. Robert C. Harris, Florida
State University; E. T. Heinen, Environ-
mental Protective Agency; John C. Jones,
Florida Wildlife Federation; Walter Kautz,
Florida Farm Bureau; Dr. Ariel Lugo,
University of Florida; John R. Maloy,
FCD; John Opel, Palm Beach Post-Times;
George Patten, Legislative Aide to U. S.
Senator Lawton Chiles; Earl Rich, High-
land County Commission; Lyman Rogers,
Conservation 70's; Dr. Ernest T. Smerdon,
University of Floirda; Guy Spicola, State
Representative, 75th District; Dr. Durbin
C. Tabb, University of Miami; Richard
Tillis, Department of Education, Tallahas-
see; Reggie Walters, Director of Planning
for Dade County; Lester Whitaker, Sr.,
Collier County Commission.
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