Application for Environmental Resource Permit

Bird Island Oyster Reef Habitat Creation Breakwater Project #2Richard T. Paul Alafia Bank Bird Sanctuary

January 30, 2014

Richard T. Paul Alafia Bank Bird Sanctuary, Bird Island, photo: John Landon

Prepared by Ann Paul and Mark Rachal

Florida Coastal Islands Sanctuaries 410 South Ware Boulevard, Suite 702

Tampa, FL 33619813/623-6826

Introduction: This permit application describes a project to add additional breakwater oyster reef habitat on the south side of Bird Island, the eastern island of the Richard T. Paul Alafia Bank Bird Sanctuary, in Hillsborough Bay. This project is an addition to the successful breakwater oyster reef habitat installed in Spring 2011 to protect the shoreline from further erosion. Audubon has secured funding from the Environmental Protection Commission of Hillsborough County and the Tampa Bay Estuary Program for approximately half of the proposed extent of this application. The balance of the breakwater will be installed as funding becomes available.

Erosion from storm wave action and ship boat wakes threatens the long-term existence of the Sanctuary islands. Currently the wave energy impacting the south side of Bird Island precludes sustained presence of marsh grass or mangroves, and the shoreline is progressively eroding, toppling mangrove trees. This project is designed to reduce on-shore wave energy impacting the south side of Bird Island, slowing erosion.

Oyster reef construction is a broadly supported program in Tampa Bay that works to restore the historical degradation and loss of the formerly extensive regional oyster communities which were harvested for food, road construction, and land fill projects. Placing material near shore to construct a breakwater that intercepts wave energy, creating a quiet water “living” shoreline, is an environmental approach to erosion control that has proven its effectiveness.

Tampa Bay, Hillsborough Bay, and project location on Bird Island, Google Earth, 2013

Project location:The project is planned for the south side of Bird Island, the eastern island of the Richard T. Paul Alafia Bank Bird Sanctuary, located in east Hillsborough Bay, in northeast Tampa Bay, in Hillsborough County, FL, to the west of the town of Riverview, FL, 27°50'51.51"N, 82°24'29.61"W, on the south side of the

Alafia Ship Channel and 1000-1300 feet from it, about one mile west of the mouth of the Alafia River. The project area is within the waters of Hillsborough Bay, a state-designated Class III water and in the Bullfrog Creek Aquatic Preserve Area as managed by the Tampa Port Authority.

Hillsborough Bay, FL, showing the town of Gibsonton, the mouth of the Alafia River, the Alafia Ship Channel, and Bird Island, the eastern island of the Richard T. Paul Alafia Bank Bird Sanctuary

Proposed additional project location, and installed breakwater, Bird Island, eastern island of the Richard T. Paul Alafia Bank Bird Sanctuary, Hillsborough Bay

Bird Island

Alafia Ship ChannelHillsborough Bay

Richard T. Paul Alafia Bank Bird SanctuaryThe Alafia Bank, composed of two spoil islands created when the Alafia Channel was dredged in the early 1900s, is widely recognized as one of Florida’s most important bird areas (Audubon Florida 2003, Runde 1991). Sixteen species of colonial waterbirds nest here annually, in a colony that annually totals more than 5,000 pairs, including Florida’s most recognizable species (Brown Pelican) and rarest species (State-listed as Threatened: Little Blue Heron, Tricolored Heron, Reddish Egret, Roseate Spoonbill, and American Oystercatcher). The Sanctuary islands also provide important habitat for wintering and migratory birds. The Hillsborough Bay Important Bird Area, including the Alafia Bank, is recognized by the National Audubon Society and BirdLife International as a globally significant location for birds (National Audubon Society 2014). The annually nesting populations of Roseate Spoonbills and White Ibis at the Alafia Bank are the largest for these species in west central Florida (Hodgson et al. 2006).

About 15 pairs of American Oystercatchers nest annually on the Richard T. Paul Alafia Bank Bird Sanctuary shorelines, and another 75 pairs nest on other Hillsborough Bay islands, including Tampa Port Authority’s Dredge Material Management Areas 2D and 3D. The resident, nesting American Oystercatcher population in Hillsborough Bay is the largest in Florida and the United States, comprising over 20% of the state’s nesting population (Douglass and Clayton 2004, Hodgson et al. 2009). Providing additional foraging habitat will benefit the state-wide population of this very rare, state-listed species (Brown et al. 2008).

Ownership and Management:Recent information about the ownership of the sanctuary conducted by the Tampa Port Authority Real Estate staff shows that the project area is owned by two entities, the Mosaic Fertilizer LLC and the Tampa Port Authority. National Audubon Society’s Florida Coastal Islands Sanctuaries has managed the two islands of the Richard T. Paul Alafia Bank Bird Sanctuary as a lessee of Mosaic and the phosphate companies that formerly owned the islands since the 1930s. The “Extension” area which was added to Sunken Island as a beneficial use of spoil material when the Alafia Shipping Channel was deepened in the 1980s is leased to Audubon by the Tampa Port Authority.

Sunken Island “Extension” location

Bird Island project area location

The Richard T. Paul Alafia Bank Bird Sanctuary, approximate Ownership Boundary, provided by the Tampa Port Authority

Project Objectives:The objectives of the breakwater installation project include 1) reduce shoreline erosion on the south side of Bird Island, 2) create stable oyster habitat, 3) provide a quiet water shoreline where marsh grass and mangroves can establish, 4) facilitate accretion of accumulated sediments and reduce local bay water total suspended solids, 5) increase filtration of water by sessile filter-feeding mollusks at the mouth of the Alafia River in Hillsborough Bay, 6) enhance essential fishery habitat, 7) provide foraging habitat for resident and migratory shorebirds including American Oystercatchers, Willets, Ruddy Turnstones, and Spotted Sandpipers, and other waterbirds including herons and egrets and ducks, and 8) protect habitat for other taxa, including sandy beach habitat for egg-laying horseshoe crabs and haul-out habitat for resident diamondback terrapins.

Diamondback terrapin and American Oystercatchers on breakwater, October 24, 2011. Photo: Mark Rachal

Observations by Audubon staff of shoreline erosion on the south side of Bird Island document losses of 10-20 feet of island perimeter. In addition, pilings from a dock that formerly was located on the inside of the Bird Island eastern cove are now on the south side of the island, illustrating shoreline sand transport and island movement.

Old dock pilings for a dock formerly on inside of the Bird Island Cove are now found on the south side of Bird Island, demonstrating that the south shoreline of Bird Island has shifted northward. Photo: Ann Paul

In addition, Environmental Protection Commission of Hillsborough County staff conducted a shoreline change detection analysis of the Alafia Bank which clearly shows erosion on the south shore of the island, with accretion and sand transport to the east. Movement of sand to the east, creating coves as noted on the east side of the Sunken Island Extension and the east end of the Bird Island cove, is typical of island erosion in this part of Florida (Lewis and Lewis 1978).

Change detection analysis conducted by Eric Lesnett, Environmental Protection Commission of Hillsborough County showing shoreline in 2004 (red outline), 2005 (green outline), and 2010 (vegetated image).

Previous breakwater installation project: In 2011, Audubon installed the first oyster reef ball breakwater project on the south side of Bird Island. The 2011 breakwater installation project has met all agency success criteria and is protecting a portion of the Bird Island shoreline. That project was installed according to specifications in the following agency permits:

- Florida Department of Environmental Protection Permit Project No. 29-0296368-001

- Tampa Port Authority/Environmental Protection Commission of Hillsborough County Permit No. 09-089

- US Army Corps of Engineers Permit No. SAJ-2010-00061

Bird Island breakwater project installed in Spring 2011. Photo: John Landon

Hollow reef balls encrusted with oysters and barnacles inside and out, October 23, 1013. Photo: Ann Paul

Diamondback terrapin sunning on installed reef, Photo: Mark Rachal

Ruddy Turnstones foraging on installed reef, Photo: Mark Rachal

Great Blue Heron and sign, Photo: Mark Rachal

Adult Bald Eagle with fish, Photo: Peter Clark American Oystercatchers and Forsters Terns: Photo: Mark Rachal

Breakwater structure Concrete reef ball structures will be installed parallel to the shoreline as an offshore breakwater, extending approximately 750 feet westward from a breakwater oyster reef habitat project that was installed in Spring 2011. The reef ball arrays will be located in shallow water 40-60 feet from the island shoreline, using two lines of large-scale reef balls placed closely together, with either smaller reef balls or bagged oyster shells laid snug against them on the landward side, similar to the breakwater project installed in 2011. The breakwater reef balls are 800-lb, concrete, hollow structures with holes that intercept waves and calm onshore wave energy. The concrete is pH-balanced and rough-sided to facilitate oyster and barnacle growth and attachment. Landward of the large reef balls, washed oyster shell from local shell mines in plastic tubular mesh bags 20 inches long by 8 inches in diameter or smaller reef balls will provide additional hard surface for oyster larvae to settle on and grow and structural support. This type of mesh bags has been used extensively in the Tampa Bay region for oyster reef projects without adverse effects to fish and wildlife resources.

The reef ball arrays will be separated by 12 foot gaps, to allow marine life ample room for transit between arrays. The reef ball array length will measure 150-200 feet. The position of the arrays may be slightly adjusted in the field during installation to avoid impacts to sparse patches of seagrasses.

Based on our experience with the breakwater installed in 2011, we have modified the design to allow interception of higher tide waves and improve the water calming action landward of the breakwater. Specifically the breakwater reef ball arrays are 150-200 feet long (they were 100 feet long or less in the 2011 breakwater project) and placed in slightly shallower water.

InstallationAudubon will contract with Reef Innovations, Inc., Larry Beggs, President, a company that constructs and installs various sizes of reef balls and other erosion control devices. The reef balls will be formulated off site and transported by truck to the Williams Park County Boat Ramp. Audubon will coordinate with Hillsborough County Parks, Recreation, and Conservation staff for permission to deploy from the Williams Park County Boat Ramp. Prior to installation, Audubon staff will mark the reef ball array lines with posts to delineate the specific placement and will be present during the installation. The reef balls will be transported to Bird Island on a shallow water barge with a small crane, especially designed to access the shallow water south of Bird Island. The barge will in the marked navigational channel of the Alafia River to the mouth of Hillsborough Bay, and then south around the east end of Bird Island to the south side installation site. The area around Bird Island south of the marked channel is a designated manatee zone, and therefore the barge and Audubon vessels will operate at “idle speed/no wake” speed in this area. All manatee protection conditions will be adhered to. Staff from Audubon will be on-site to ensure accurate placement of the reef balls. Reef balls will be installed on the bay bottom with the barge crane. Two “Caution Breakwater” signs will be installed on the bay side of the breakwater.

Reef Ball specificationsDimensions: 4 feet wide, 2.9 feet tallWeight: Approximately 800 poundsConcrete volume: 0.33 yard3

Design: Hollow with 17-24 holes to allow free access to water and marine life Construction: Micro-silica fiber-mesh concrete provides long-lived, super high strength reef balls that are resistant to abrasion. Neutral pH promotes attachment by larval marine crustaceans, including oysters and barnacles.

Transport route from Williams Park County Boat Ramp to Bird Island installation site (in yellow)

Site of Williams Park County Boat Ramp

Bird Island installation site

Photographs from the completed breakwater installed in Spring 2011 are offered here to demonstrate the transportation and installation techniques that will be used for this breakwater installation.

Audubon staff mark installation site

Reef balls are delivered to the Williams Park County Boat Ramp

Reef balls are loaded onto a shallow water barge for transport to Bird Island

Reef Innovations’ shallow water barge loaded with reef balls

Reef balls are placed using a crane mounted on the barge Two Caution Breakwater signs will be installed on

the bay side of the breakwater

Two Caution Breakwater signs will be installed. Location of current Caution Breakwater sign.

Transect A

Oyster shell bags or small reef balls Large reef balls

Bird IslandMHW +1.95 NAVD88

MLW -0.25 NAVD 88MWL

55 linear feet from mean high water to waterward side of reef

Transect B

Transect C

Transect D

Oyster shell bags or small reef balls Large reef balls

Bird IslandMHW +1.95 NAVD88

MLW -0.25 NAVD 88MWL

45 linear feet from mean high water to waterward side of reef

Oyster shell bags or small reef balls Large reef balls

Bird IslandMHW +1.95 NAVD88

MLW -0.25 NAVD 88MWL

50 linear feet from mean high water to waterward side of reef

Oyster shell bags or small reef balls Large reef balls

Bird IslandMHW +1.95 NAVD88

MLW -0.25 NAVD 88MWL

50 linear feet from mean high water to waterward side of reef

Transect E

Transect F

Construction scheduleBirds generally do not nest along the south shore of Bird Island and will not be impacted by the installation activities. The installation will proceed as soon as the appropriate permits are received. Approximately half of the project will be installed in 2014; the balance will be installed when additional funding is secured.

Impacts to resourcesPrimary benefits of the proposed oyster reef breakwater will include reduction of shoreline erosion, provision of oyster reef habitat beneficial for fish, invertebrates, birds, and other wildlife, promotion of mangrove and saltmarsh recruitment, and improved water quality. There are no negative impacts to the islands’ natural resources and this project will not cause any direct, secondary, or cumulative impacts to wildlife or wildlife habitat. The project serves the public interest and does not affect the public health, safety, welfare, or property of others. The proposed project does not affect navigation or commercial maritime productivity. Instead the project will create Essential Fish Habitat for the area and improve water quality resulting from the filtration by living oysters. Historically oyster reefs were

Oyster shell bags or small reef balls Large reef balls

Bird IslandMHW +1.95 NAVD88

MLW -0.25 NAVD 88MWL

50 linear feet from mean high water to waterward side of reef

Oyster shell bags or small reef balls Large reef balls

Bird IslandMHW +1.95 NAVD88

MLW -0.25 NAVD 88MWL

50 linear feet from mean high water to waterward side of reef

wide spread in the Tampa Bay region. Unfortunately current conditions support only remnant portions of historic reefs and small areas of oyster populations on marine debris and mangrove roots. The bay bottom habitat on the south shore of Bird Island is bare sand. Live oysters occur on rocks and mangrove roots along the shoreline and on the previously installed reef breakwater project and will provide viable young pelagic oyster larvae that will recruit on the new breakwater substrate.

Audubon staff and Florida Department of Environmental Protection permit staff conducted seagrass surveys in the area where the breakwater will be installed on October 23 and 31, 2013 (see attached), and found sparse seagrass, generally consisting mostly of one plant unit or small clumps. We anticipate that the oyster reef will promote additional seagrass colonization on protected sand flats in the area. The National Marine Inventory existing land use within the footprint of the proposed reef is 100% M2US2 (marine, intertidal, unconsolidated shore, sand). The land use of the proposed reef breakwater footprint will change to M1RF (marine, intertidal, reef).

Installation will be conducted in a manner that adheres to all state water quality standards. Best management practices for sediment control will be implemented during installation if needed. Practices will follow guidelines set forth in Chapter Six of the Florida Land Development Manual: A Guide to Sound Land and Water Management (Department of Environmental Regulation, 1988). No permanent control measures will be needed post-construction.

Federal Channel: The breakwater installation site is located 1000-1300 feet south of the federal navigation channel (Alafia River Channel) and on the south side of Bird Island which is located between the channel and the installation site, so there will be no encroachment or work within the federal channel.

Cultural Resources: Because the Alafia Bank Bird Islands were created by dredging projects conducted in the late 1920 to early 1930s and late 1970s to early 1980s time frames, there are no cultural resources in the project area (see attached letter, Mary Berman, Division of Historical Resources, Florida Master Site File, February 12, 2014).

Sparsely distributed seagrasses were found during a survey conducted by Audubon and Florida Department of Environmental Protection staff on 10/23/13 (see attached). Location of the breakwater arrays may be slightly adjusted during installation to avoid impacting seagrasses.

Avoidance and minimization: Barge transportation of materials will occur during tides sufficient to provide a one-foot clearance from the bay bottom. We are using a barge especially designed for shallow-water operation. The placement of the breakwater reef balls may be slightly adjusted during installation to avoid impacting seagrasses, to avoid and minimize impacts to underwater resources.

Because no negative impacts to natural resources are expected, no mitigation is proposed.

Monitoring:Audubon will submit a “time-zero” monitoring report within 60 days of completion of the breakwater installation. Audubon will monitor and report on the newly created oyster reef units every six months for two years including the following parameters:

- measurement of oyster shell colonization including percent coverage measured using 20 random 0.25 m2 quadrants,

- measurements of live oyster size, - wildlife use of the breakwater oyster habitat, - fixed reference point photo-station comparison color photographs to document reef

condition, - presence, percent cover, and growth of non-native and invasive species, and - a written summary describing the functioning of the breakwater and its structural integrity.

The breakwater will be deemed successful when the following criteria have been continuously met for a period of at least one year without intervention:

- native oysters have achieved a minimum of 25% coverage and exhibit vigorous growth characteristics,

- including increasing total biomass, consistent with the species,- the overall height of the breakwater, as measured on the waterward side, is at least 50% of

the original calculated height, - the percent cover of non-native sessile species is less than 20%, and - the bar is functioning as intended and is maintaining its structural integrity.

References:Audubon Florida. 2003. The Important Bird Areas of Florida. Bill Pranty, Coordinator. Miami, FL.

Brown, S., T. Simons, S. Schulte, F. Sanders, B. Winn, B. Truitt, A. Wilke, S. Johnston, S. Melvin, and the American Oystercatcher Working Group. 2008. A Business Plan for Conservation of the American Oystercatcher: A Ten Year Plan to Secure a Keystone Coastal Species. American Oystercatcher Working Group and collaborators.

Douglass, N. and L. C. Clayton. 2004. Survey of breeding American Oystercatcher (Haematopus palliatus) populations in Florida. Florida Fish and Wildlife Conservation Commission, Bureau of Wildlife Diversity Conservation: Avian Biological Surveys Report. Tallahassee, FL.

Hodgson, A. B., A. F. Paul, and M. L. Rachal. 2006. Chapter 14: Birds in Bay Environmental Monitoring Report, Tampa Bay Estuary Program, Tampa, FL.

Hodgson, A. B., A. F. Paul, and M. L. Rachal. 2008b. American oystercatcher nesting in Hillsborough Bay, Florida: Population trends 1990-2007 and management recommendations. Florida Coastal Islands Sanctuaries, Tampa, FL. Sovereign Lands Management Initiatives Program 2006. Tampa Port Authority, Tampa, FL.

Lewis, R. R. III and C. S. Lewis. April 1978. Colonial bird use and plant succession on dredged material islands in Florida: Vol. II. Patterns of plant succession. Dredged Material Research Program Technical Report D-78-14. U. S. Army Engineer Waterways Experiment Station. Vicksburg, MS.

National Audubon Society. Important Bird Areas. http://netapp.audubon.org/IBA/Site/70, Website accessed February 12, 2014.

Runde, D. E. October 1991. Trends in Wading Bird Nesting Populations in Florida 1976-1978 and 1986-1989. Florida Game and Fresh Water Fish Commission. Tallahassee, FL.