Issue papers
- Basin Boards
- Cooperative Funding
- Comprehensive Watershed Management
- Exotic Species Management
- Flood Protection
- Funding Water Resources Protection
- Minimum Flows and Levels
- Mitigation
- Partnership Agreement
- Permitting
- Protecting Lands and Providing Public Uses
- Responsibilities
- Sinkholes
- Springs — A Unique Resource
- A Sustainable Water Supply
Even in a land renowned for its water resources, Florida’s springs are unique. People have been drawn to Florida’s springs for thousands of years, as evidenced by archaeologists’ discoveries of ancient bones and artifacts at spring sites.
Emerging from under the ground, springs discharge billions of gallons of water into rivers and estuaries. Springs provide the same attraction to people today as they did to inhabitants thousands of years ago. As an example, Homosassa Springs State Park attracted over 250,000 visitors in 2002. Private and public spring attractions and parks are a multi-million dollar tourist industry.
Springs represent a unique natural heritage that is particularly sensitive to human impacts. These natural fountains are increasingly threatened by urbanization, poor irrigation and fertilization practices, and the expanding thirst of an ever-growing population. Florida’s population more than quadrupled between 1950 and 2000, and continues to grow today. This growth has resulted in extensive land use changes and a rise in water use. Flows have been reduced in many of Florida’s springs. The water quality of the springs has also been declining.
Many agencies and organizations involved in water resources have been gathering data and working on solutions to these problems. Under Gov. Jeb Bush’s Florida Springs Initiative, established in 1999, Colleen Castille, secretary of the Florida Department of Environmental Protection, oversees a multi-agency task force to recommend strategies for the protection and restoration of the state’s springs. The Florida Springs Task Force released its initial report in 2000 (Florida Springs Report) which has been followed in 2004 by the Florida Geological Survey Bulletin No. 66 “Springs of Florida.”
What are springs?
Springs are areas where water flows directly from the aquifer to the surface, supplying flow to a river or other water body. Geologists estimate there are over 700 springs in Florida, with flows ranging from less than one gallon per minute to up to 1 billion gallons per day. Springs are classified by their flow rates, with a first-magnitude spring producing the greatest amount of water, averaging a flow of at least 100 cubic feet per second (64.6 million gallons daily). Florida boasts 33 first-magnitude springs.
A common misconception is that water from springs is wasted unless it is tapped for some use such as public supply, agriculture or industry. A common refrain in some letters to the editor refers to such water as “lost to the Gulf.” To the contrary, spring water provides a vital function to the state’s ecosystems and economy. Springs serve as a major source of fresh water for rivers which then provide fresh water to estuaries. Estuaries are semi-enclosed water bodies where salty seawater and fresh water meet. The fresh water lowers the salinity or salt levels in the estuaries which play a critical role in the marine ecosystem. Three-quarters of sport and commercial fish species in waters surrounding Florida depend on a suitable salinity level in estuaries in the early stages of their lives. Reduction of the flow of fresh water can cause irreparable harm to these estuaries and the fisheries.
The well documented reduction in flows and degradation of water quality in springs has water resource managers looking for answers to protect and restore these natural treasures.
Problem — reduced flows
The source of springs is the underground aquifers. Any activity that reduces the level of the aquifer that feeds the spring results in reduced spring flows. The combination of drought, major development, mining within a spring’s recharge basin and groundwater withdrawals from supply wells can reduce or even stop a spring’s flow.
The renewed interest of water bottlers in springs as a supply source has sparked concerns about the impacts from such withdrawals on the spring flow. In fact, bottled water uses represent only a small fraction of impacts to spring flows in Florida. Long-term dewatering of the area contributing to the groundwater recharge and groundwater withdrawals account for most of the reduced flows caused by human activity. The more water that fails to reach the aquifer and the more water that is pumped from the aquifer in the contributing area for the spring, the less water that discharges from the spring. The bottling issue has also prompted debate about the best use of water from springs. Should spring water be protected for the same reason that the Grand Canyon is protected, rather than allowed to be commercially exploited by private individuals and corporations? Should springs not be used for any consumptive purposes, but rather protected for the natural systems?
Several tools exist to water management district governing boards to afford flow protection to springs, including existing water use permitting rules, the setting of minimum flows and levels (MFL), land acquisition, designation and reservation.
Water use permits give an applicant temporary permission to withdraw a specified quantity of water from the aquifer or surface water bodies under specific conditions. To obtain a water use permit, the applicant must meet several requirements, including demonstrating that the proposed withdrawal will not adversely impact the water quality or quantity; will not adversely impact the fish or wildlife; will meet all MFL requirements; and will not adversely impact existing legal withdrawals.
Today, advances in science allow water regulators to more accurately assess impacts from withdrawals, while tougher permitting rules allow evaluators to consider cumulative impacts from multiple withdrawals, affording additional protection to the resources.
The setting of a minimum flow or level (MFL) establishes the ultimate withdrawal limit for an aquifer or water body. It is the limit at which further withdrawals would be significantly harmful to the water resources or the ecology of the area. If the actual water levels or flows are below the established MFL, a recovery plan has to be developed to reach acceptable levels. The establishment of an MFL for a spring sets the ultimate limit on withdrawals directly from springs, as well as on groundwater withdrawals that affect the spring’s flow. Florida statutes directed that when establishing an MFL, Governing Boards shall consider, and at their discretion may provide for, the protection of nonconsumptive uses. Nonconsumptive uses include recreation, navigation and aesthetics. In other words, Governing Boards have the authority to deny consumptive uses of water to protect nonconsumptive uses.
Land acquisition is another resource protection tool. Acquiring the land around the spring, as the Water Management District did recently with Weeki Wachee Springs, provides total control over any land changes or proposed withdrawals at the site.
Florida statutes provide Governing Boards with two additional methods to protect spring flow. Governing Boards may prohibit or restrict future uses on certain designated water bodies which may be inconsistent with the Boards’ objective to provide for adequate public recreation or the protection and procreation of fish and wildlife. Governing Boards may also reserve from use by applicants certain quantities of water from selected water bodies for the protection of fish and wildlife or the public health and safety.
Problem — water quality degradation
In addition to reduced flows, springs and spring-fed rivers are showing signs of declining water quality and ecological health. In recent years, Water Management District scientists, in cooperation with the Florida Springs Task Force, have discovered increasing nitrate levels in the springs and have linked the increase to residential and agricultural use of inorganic fertilizers. Nitrate is a chemical compound containing nitrogen and is often the main component of inorganic fertilizer. Excess nitrates applied to the land can soak through the ground and into the aquifer, eventually discharging at springs. Excessive nitrate levels can cause increased algae growth, reduced water clarity, and impacts to spring ecosystems. Certain fertilizers and land use practices may also have a greater potential for water quality impacts than others.
The Nitrate Remediation Workgroup was one initiative designed to address impacts to Central Florida’s springs and drinking water sources caused by increasing nitrate levels to ground and surface waters. The workgroup is composed of citizens, industry and government representatives, including the Water Management District, and works cooperatively with the Florida Springs Task Force and other Springs user groups.
Water quality protection can also be achieved through better land use practices and by acquiring lands in areas where rainfall recharges the aquifer. By purchasing these lands, activities that are potentially harmful to the water resources can be effectively prevented through rights of ownership rather than by regulatory police powers.
Springs — the future
Springs and the use of their water continue to be a source of debate as water managers and legislators seek answers to water resource and land use policy questions. How much impact on springs, as a result of groundwater withdrawals in recharge basins, is acceptable? Should water bottling companies be considered differently from other water use permit applicants? Should all consumptive uses be given a lower priority than nonconsumptive uses? What about the riparian rights of those living along a spring run? What about the needs of natural systems within the river and the estuary that receives water from the spring? How much have land use changes and drainage practices already changed the recharge area cumulatively? How do we achieve human behavioral changes so that land use activities do not harm the water resources?
These are important public policy questions that must be answered to protect Florida’s springs while at the same time fulfilling the District’s obligations to meet the needs of all current and future water users.
May 2005
