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NRLI Explores the Past and Present of Kissimmee River Restoration Efforts

By Laila A. Racevskis

Hunters, hikers, birdwatchers, property owners, cattle ranchers, state land managers - what do they all have in common? In the Kissimmee River watershed, these groups have all been involved in or affected by the historic channelization of the river and the more recent ecosystem restoration efforts. The Florida Natural Resources Leadership Institute (NRLI) held its first session of Class VIII in Sebring to learn about the history of Kissimmee River restoration and to better understand the various roles and perspectives of diverse stakeholder groups involved in this process. Discussions with experts, local landowners and land managers, along with a boat tour of the river as well as a swamp buggy ride through adjacent state-owned lands provided information that set the stage for understanding the environmental and policy context of this issue.

The Kissimmee River watershed covers about 3,000 square miles and forms the headwaters of the Kissimmee-Okeechobee-Everglades system¹. Historically, the river meandered across a one to two mile floodplain covered by approximately 35,000 acres of wetlands that served as habitat for many plant communities and wading birds, waterfowl and fish species². Beginning in 1962, the Central and Southern Florida Flood Control Project introduced channelization efforts to the Kissimmee River system, transforming the river and flanking floodplain into a 30 foot deep central drainage canal. As channelization progressed, however, concerns began to emerge from citizens and environmental groups regarding the environmental impacts of the flood control project. Subsequent extensive research on these impacts led to the development of a restoration plan through a state-federal partnership, authorized in the 1992 Water Resources Development Act². The project aims to achieve restoration of ecological integrity to about 20 square miles of river and floodplain habitat and 44 continuous miles of the historic meandering river channel. The first of four phases of implementation were completed in 2001 and the remaining three are projected to be completed by 2012⁴.

Restoration of the Kissimmee River necessitated changes in land ownership from private to public hands, resulting in tensions and conflicts among different stakeholder groups. Landowners living in the historic floodplain of the Kissimmee River system sold their land back to the state, but inconsistent communication efforts added to the contentious nature of the situation. Although fair compensation was paid, landowners suffered other losses that cannot be compensated, including family heritage values, emotional ties to the land, and time and effort invested over the years. We learned from panel members that the process of channelization itself was a long and arduous process for residents of the local community, and by the time residents had adjusted and the channel had been stabilized, the decision was made to change it back and a longer process began.

Recreational users and landowners debated the question of whether hunting and hiking should be simultaneously allowed on public lands. Safety concerns among hikers and private landowners who own property adjacent to hunting lands were countered with the view that all state-owned lands should be open for all recreational uses. The public lands in question are unique in that they form a long, narrow piece of land with many edge effects, and therefore present the potential for many interface issues and conflicts among stakeholder groups.

Hearing the perspectives of those who have lived through these significant public/private land ownership changes illuminated the challenges of stakeholder groups that have been affected by the restoration process. The panel discussion concluded with some insightful lessons learned. Communication and involvement of all stakeholders in the process is critical and should include those affected by the change as well as those who stand to benefit from the change. Because stakeholder preferences and attitudes and circumstances continually change, you can never "close the book" and therefore need to be able to accommodate change and adapt. One of the most important lessons gleaned from the panel is that communication among stakeholders needs to be consistent, continuous and honest.

The Florida Natural Resources Leadership Institute (NRLI), a joint program of University of Florida IFAS Extension and School of Natural Resources and Environment, is a leadership training program designed to help rising leaders develop skills to build consensus around contentious natural resource issues and move beyond conflict to find solutions. Class VIII Fellows and the NRLI alumni network represent a wide variety of backgrounds and professions, including state and federal agency employees, citizen activists, the academic community, legal professionals, environmental scientists, private industry, and the agricultural community. Throughout this year-long training program, NRLI Fellows become familiar with natural resource management and policy while learning concepts, tools and skills that will help them play a role in shaping the future of Florida.

Laila Racevskis is an Assistant Professor in the Food and Resource Economics Department at the University of Florida and Director of the Florida Natural Resources Leadership Institute.