Planning and governance approaches for protecting World Heritage Areas: A comparison of the Great Barrier Reef and the Florida Everglades

The focus of this paper is on two World Heritage Areas: the Great Barrier Reef in Queensland, Australia and the Everglades in Florida. While both are World Heritage listed by the UNESCO, the Everglades is on the "World Heritage in Danger" list and the Great Barrier Reef could be on this list within the next year if present pressures continue. This paper examines the planning approaches and governance structures used in these two areas (Queensland and Florida) to manage the growth and development pressures. To make the analysis manageable, given the scale of these World Heritage areas, case studies at the local government level will be used: the Cairns Regional Council in Queensland and Monroe County in Florida. The case study analysis will involve three steps: (1) examination of the various plans at the federal, state, local levels that impact upon environmental quality in the Great Barrier Reef and Everglades; (2) assessing the degree to which these plans have been implemented; and (3) determine if (and how) the plans have improved environmental quality. In addition to the planning analysis we will also examine the governance structures (Lebel et al. 2006) within which planning operates. In any comparative analysis context is important (Hantrais 2009). Contextual differences between Queensland and Florida have previously been examined by Sipe, et al. (2007) and will be used as the starting point for this analysis. Our operating hypothesis and preliminary analysis suggests that the planning approaches and governance structures used in Florida and Queensland are considerably different, but the environmental outcomes may be similar. This is based, in part, on Vella (2004) who did a comparative analysis of environmental practices in the sugar industry in Florida and Queensland. This research re-examines this hypothesis and broadens the focus beyond the sugar industry to growth and development more broadly.

Life History, Diet, Abundance and Distribution, and Length-Frequencies of Selected Invertebrates in Florida Bay, Everglades National Park, Florida

This report presents information on the life history, diet, abundance and distribution, and length-frequency distributions of five invertebrates in Florida Bay, Everglades National Park. Collections were made with an otter trawl in basins on a bi-monthly basis. Non-parametric statistics were used to test spatial and temporal differences in the abundance of invertebrates when numbers were appropriate (i. e., $25). Invertebrate species are presented in four sections. The sections on Life History, and Diet were derived from the literature. The section on Abundance and Distribution consists of data from otter-trawl collections. In addition, comparisons with other studies are included here following our results. The section on Length-frequency Distributions consists of length measurements from all collections, except 1984-1985 when no measurements were taken. Length-frequency distributions were used, when possible, to estimate life stage captured, spawning times, recruitment into Florida Bay for those species which spawn outside the Bay, and growth. Additional material from the literature was added when appropriate. (PDF contains 39 pages)

Mercury in Florida Bay fish: spatial distribution of elevated concentrations and possible linkages to Everglades restoration

Health advisories are now posted in northern Florida Bay, adjacent to the Everglades, warning of high mercury concentrations in some species of gamefish. Highest concentrations of mercury in both forage fish and gamefish have been measured in the northeastern corner of Florida Bay, adjacent to the dominant freshwater inflows from the Everglades. Thirty percent of spotted seatrout (Cynoscion nebulosus Cuvier, 1830) analyzed exceeded Florida’s no consumption level of 1.5 μg g−1 mercury in this area. We hypothesized that freshwater draining the Everglades served as the major source of methylmercury entering the food web supporting gamefish. A lack of correlation between mercury concentrations and salinity did not support this hypothesis, although enhanced bioavailability of methylmercury is possible as freshwater is diluted with estuarine water. Stable isotopes of carbon, nitrogen, and sulfur were measured in fish to elucidate the shared pathways of methylmercury and nutrient elements through the food web. These data support a benthic source of both methylmercury and nutrient elements to gamefish within the eastern bay, as opposed to a dominant watershed source. Ecological characteristics of the eastern bay, including active redox cycling in near-surface sediments without excessive sulfide production are hypothesized to promote methylmercury formation and bioaccumulation in the benthos. Methylmercury may then accumulate in gamefish through a food web supported by benthic microalgae, detritus, pink shrimp (Farfantepenaeus duorarum Burkenroad, 1939), and other epibenthic feeders. Uncertainty remains as to the relative importance of watershed imports of methylmercury from the Everglades and in situ production in the bay, an uncertainty that needs resolution if the effects of Everglades restoration on mercury levels in fish are to be modeled and managed.

1979 Ecological study of fishes and the water quality characteristics of Florida Bay, Everglades National Park, Florida

Fish collections under varying ecological conditions were made by trawling and seining, monthly and quarterly in depths of <1 m to depths of 3 m of the Florida Bay portion of Everglades National Park, Florida. From May 1973 through September 1976, a total of 182,530 fishes representing 128 species and 50 families were taken at 27 stations. An additional 21 species were identified from sportfish-creel surveys and supplemental observations. Most of the species collected were juveniles of species that occur as adults in the Florida Bay creel census survey, or were small species that were seasonal residents. Marked temporal and spatial abundance of the catches was observed. The greatest numbers and biomass of the fishes occurred in the wet season (summer/fall), whereas lowest numbers and biomass appeared during the dry season (winter/spring) The greatest abundance and diversity of fishes was found in western Florida Bay followed by eastern and central Bay regions respectively. Overall, five species comprised 75% of the numerical total while eleven species made up 75% of the total biomass. Collections were dominated numerically by anchovies (Engraulidae), especially Anchoa mitchilli, in western Florida Bay. Mojarras (Gerridae), mostly silver jenny Eucinostomus gula, and porgies (Sparidae), especially pinfish Lagodon rhomboides, dominated numerically in central and eastern portions of the Bay, respectively. Except for salinity, other measured physico-chemical parameters (water temperature, pH, dissolved oxygen, and turbidity) showed no variation beyond ranges considered normal for shallow, tropical marine environments. Salinity varied from 0 to 66 ppt near the mainland. Nearshore hypersaline conditions (>45 ppt) persisted for nearly 2 years during the 1974 - 1975 severe drought period. Significant reductions in fish abundance/diversity were observed in relation to hypersaline conditions. Bay-wide macrobenthic communities were mapped (presence/absence) and were primarily comprised of turtle grass (Thalassia), shoalgrass [(Diplanthera = (Halodule)], and/or green algae Penicillus. Seasonal dieoff of seagrasses was observed in north-central Florida Bay. (PDF contains 107 pages)

Juvenile and small resident fishes of Florida Bay, a critical habitat in the Everglades National Park, Florida

This compendium presents information on the life history, diet, and abundance and distribution of 46 of the more abundant juvenile and small resident fish species, and data on three species of seagrasses in Florida Bay, Everglades National Park. Abundance and distribution of fish data were derived from three sampling schemes: (1) an otter trawl in basins (1984–1985, 1994–2001), (2) a surface trawl in basins (1984–1985), and (3) a surface trawl in channels (1984–1985). Results from surface trawling only included pelagic species. Collections made with an otter trawl in basins on a bi-monthly basis were emphasized. Nonparametric statistics were used to test spatial and temporal differences in the abundance of species and seagrasses. Fish species accounts were presented in four sections – Life history, Diet, Abundance and distribution, and Length-frequency distributions. Although Florida Bay is a subtropical estuary, the majority of fish species (76%) had warm-temperate affinities; i.e., only 24% were solely tropical species. The five most abundant species collected, in descending order, by (1) otter trawl in basins were: Eucinostomus gula, Lucania parva, Anchoa mitchilli, Lagodon rhomboides, and Syngnathus scovelli; (2) surface trawl in basins were: Hyporhamphus unifasciatus, Strongylura notata, Chriodorus atherinoides, Anchoa hepsetus, and Atherinomorus stipes; (3) surface trawl in channels were: Hypoatherina harringtonensis, A. stipes, A. mitchelli, H. unifasciatus, and C. atherinoides. (PDF file contains 219 pages.)

Ichthyoplankton survey of the estuarine and inshore waters of the Florida Everglades, May 1971 to February 1972

Quarterly ichthyoplankton sampling was conducted at 16 estuarine and 24 inshore stations along the Florida Everglades from May 1971 to February 1972. The area is one of the most pristine along lhe Florida coast. The survey provided the first comprehensive information on seasonal occurrence, abundance (under 10 m' of surface area), and distribution of fish eggs and larvae in this area. A total of 209,462 fish eggs and 78,865 larvae was collected. Eggs were identified only as fish eggs, but among the larvae, 37 families, 47 genera, and 37 species were identified. Abundance of eggs and larvae, and diversity of larvae, were greatest in the inshore zone. The 10 most abundant fish families which together made up 90.7% of all larvae from the study area were, in descending order of abundance: Clupeidae, Engraulidae, Gobiidae, Sciaenidae, Carangidae, Pomadasyidae, Cynoglossidae, Gerreidae, Triglidae, and Soleidae. Clupeidae, Engraulidae, and Gobiidae made up 59.9% of all larvae. The inshore zone (to a depth of about 10 m) was a spawning ground and nursery for many fishes important to fisheries. The catch of small larvae (<>3.5 mm SL) indicated that most fishes identified from the 10 most abundant families spawned throughout the inshore zone at depths of <> 10 m, but Orthopristis chrysoptera, Gerreidae, and Prionotus spp. spawned at depths > 10 m, with offshore to inshore (eastward) larval transport. Salinity was one of several environmental factors that probably limited the numbers of eggs and larvae in the estuarine zone. Abundance of eggs and larvae at inshore stations was usually as great as, and sometimes greater than, the abundance of eggs and larvae at offshore stations (due west of the Everglades). (PDF file contains 81 pages.)

Applying Habermas's critical theory to public administration and policy: A case study of Florida Everglades restoration program

The foundation of Habermas's argument, a leading critical theorist, lies in the unequal distribution of wealth across society. He states that in an advanced capitalist society, the possibility of a crisis has shifted from the economic and political spheres to the legitimation system. Legitimation crises increase the more government intervenes into the economy (market) and the "simultaneous political enfranchisement of almost the entire adult population" (Holub, 1991, p. 88). The reason for this increase is because policymakers in advanced capitalist democracies are caught between conflicting imperatives: they are expected to serve the interests of their nation as a whole, but they must prop up an economic system that benefits the wealthy at the expense of most workers and the environment. Habermas argues that the driving force in history is an expectation, built into the nature of language, that norms, laws, and institutions will serve the interests of the entire population and not just those of a special group. In his view, policy makers in capitalist societies are having to fend off this expectation by simultaneously correcting some of the inequities of the market, denying that they have control over people's economic circumstances, and defending the market as an equitable allocator of income. (deHaven-Smith, 1988, p. 14). Critical theory suggests that this contradiction will be reflected in Everglades policy by communicative narratives that suppress and conceal tensions between environmental and economic priorities. Habermas’ Legitimation Crisis states that political actors use various symbols, ideologies, narratives, and language to engage the public and avoid a legitimation crisis. These influences not only manipulate the general population into desiring what has been manufactured for them, but also leave them feeling unfulfilled and alienated. Also known as false reconciliation, the public's view of society as rational, and "conductive to human freedom and happiness" is altered to become deeply irrational and an obstacle to the desired freedom and happiness (Finlayson, 2005, p. 5). These obstacles and irrationalities give rise to potential crises in the society. Government's increasing involvement in Everglades under advanced capitalism leads to Habermas's four crises: economic/environmental, rationality, legitimation, and motivation. These crises are occurring simultaneously, work in conjunction with each other, and arise when a principle of organization is challenged by increased production needs (deHaven-Smith, 1988). Habermas states that governments use narratives in an attempt to rationalize, legitimize, obscure, and conceal its actions under advanced capitalism. Although there have been many narratives told throughout the history of the Everglades (such as the Everglades was a wilderness that was valued as a wasteland in its natural state), the most recent narrative, “Everglades Restoration”, is the focus of this paper.(PDF contains 4 pages)

Growth, mortality, and hatchdate distributions of larval and juvenile spotted seatrout (Cynoscion nebulosus) in Florida Bay, Everglades National Park

Life history aspects of larval and, mainly, juvenile spotted seatrout (Cynoscion nebulosus) were studied in Florida Bay, Everglades National Park, Florida. Collections were made in 1994−97, although the majority of juveniles were collected in 1995. The main objective was to obtain life history data to eventually develop a spatially explicit model and provide baseline data to understand how Everglades restoration plans (i.e. increased freshwater flows) could influence spotted seatrout vital rates. Growth of larvae and juveniles (<80 mm SL) was best described by the equation loge standard length = –1.31 + 1.2162 (loge age). Growth in length of juveniles (12–80 mm SL) was best described by the equation standard length = –7.50 + 0.8417 (age). Growth in wet weight of juveniles (15–69 mm SL) was best described by the equation loge wet-weight = –4.44 + 0.0748 (age). There were no significant differences in juvenile growth in length of spotted seatrout in 1995 between three geographical subdivisions of Florida Bay: central, western, and waters adjacent to the Gulf of Mexico. We found a significant difference in wet-weight for one of six cohorts categorized by month of hatchdate in 1995, and a significant difference in length for another cohort. Juveniles (i.e. survivors) used to calculate weekly hatchdate distributions during 1995 had estimated spawning times that were cyclical and protracted, and there was no correlation between spawning and moon phase. Temperature influenced otolith increment widths during certain growth periods in 1995. There was no evidence of a relationship between otolith growth rate and temperature for the first 21 increments. For increments 22–60, otolith growth rates decreased with increasing age and the extent of the decrease depended strongly in a quadratic fashion on the temperature to which the fish was exposed. For temperatures at the lower and higher range, increment growth rates were highest. We suggest that this quadratic relationship might be influenced by an environmental factor other than temperature. There was insufficient information to obtain reliable inferences on the relationship of increment growth rate to salinity.

Larval abundance, distribution, and spawning habits of spotted seatrout (Cynoscion nebulosus) in Florida Bay, Everglades National Park, Florida

The spotted seatrout (Cynoscion nebulosus) is one of the most sought after recreational fish in Florida Bay, and it spends its entire life history within the bay (Rutherford et al.,1989b). The biology of adult spotted seatrout in Florida Bay is well known (Rutherford et al., 1982, 1989b) as is the distribution and abundance of juveniles within the bay. The habitats and diets of juveniles are well documented (Hettler, 1989; Chester and Thayer, 1990; Thayer et al., 1999; Florida Department of Environmental Protection1). Nevertheless, the spatial and temporal spawning habits of spotted seatrout and the distribution of larvae have only been partially described (Powell et al., 1989; Rutherford et al., 1989a).