Manatee Protection Plan Guidelines 

(Florida Fish and Wildlife Conservation Commission, drafted 2004)

The impetus to develop a county-wide Manatee Protection Plan (MPP) comes from two parallel efforts. First, the Florida Manatee Recovery Team, an interagency group of manatee experts, developed a Florida Manatee Recovery Plan, which was approved by the U. S. Fish and Wildlife Service (FWS) in 1989, revised in 1996, and is currently being updated. One task of the plan is to "develop site-specific manatee protection plans at the local level." The Florida Manatee Recovery Plan ranks this as a priority task important to the recovery of the species. Secondly, in October, l989, the Governor and Cabinet approved a set of recommendations by the Florida Department of Natural Resources, which included the provision for 13 "key" counties to develop manatee protection plans. These include Brevard, Broward, Citrus, Collier, Dade, Duval, Indian River, Lee, Martin, Palm Beach, Sarasota, St. Lucie, and Volusia Counties. These plans have been a cooperative interagency effort with the county coordinating the plan with municipalities and the state providing technical assistance and being the approval agency for the plans.

In addition to setting policies to safeguard manatees and their habitats, MPPs also have the effect of increasing boater safety, facilitating recreation planning, and protecting estuarine habitat critical to many species. Much of the Florida Fish and Wildlife Conservation Commission's (FWC) research and work is aimed at reducing manatee mortality. However, equally important is the protection of habitat to ensure the long-term viability of the species. These are the two major goals of the Recovery Plan.

MPPs contain a synthesized information base, a collection of protection strategies, programs and recommendations, and an implementation plan and schedule. The following basic provisions of an MPP were taken from Attachment K (Manatee Protection Guidelines) within the 1989 Boating Safety and Manatee Protection Recommendations developed by the Department of Natural Resources (now FWC) and approved by the Governor and Cabinet.

Information Base

1. Manatee data including sighting, mortality and seagrass information:

Manatee use patterns of county waters are studied when evaluating locations for water-dependent boat facility development, so that impacts to manatees and submerged aquatic vegetation (SAV) can be avoided or minimized. With the assistance of the FWC, sites of preferred manatee use for each county and the locations of travel corridors, freshwater outfalls and warm water refuges are identified. Seasonal variations of use patterns and mortality information is analyzed and described. Most of this information is available from FWC, FWS and various other entities depending on the county. Manatee use information can then be compared with boating pattern information in order to identify the boating-caused threats to manatees. Problem areas can be identified and measures can be developed that will reduce or eliminate risks.

2. An assessment of boating activity patterns:

Boating activity studies provide a detailed overview of boat traffic patterns for county waterways. They describe traffic routes (points of origin and destination), the volume and types of boats, seasonal variations of boating patterns, the types and distribution of boating activities, and level of compliance with existing speed zones. Boating studies vary from county to county depending on the nature of each county’s waterways and how they are used locally. The Bureau of Protected Species Management (BPSM) has provided funding for and contracted several countywide boating studies, some of which also contained inventories of boat facilities as detailed in number 3 below.

3. An inventory of existing boat facilities (marinas, docks, boat ramps, dry storage areas, etc.):

• a) The locations of all existing marinas and dry storage facilities are determined and exhibited on maps. A table and database of existing marinas is compiled showing the number of slips (both wet and dry), a breakdown of boat types (power vs. sail) and sizes, the percent occupancy (and any seasonal variations), the distance to the nearest inlet, the proximity of existing speed zones and the distance to popular boating destinations. Also, it should be noted if there are plans for new boating facilities or for expansion of the existing facilities.
• b) An inventory of the location of existing multi-family residential docking facilities is also conducted and shown on maps. The Department of Environmental Protection’s (DEP) Division of State Lands issues submerged land leases for residential docking facilities and marinas. The Division defines multi-slip docks as moorings of three or more vessels. The DEP requires permits for dock construction on both private and sovereign submerged lands. Counties consider developing a threshold for residential multi-slip dock densities.
• c) An inventory of all boat ramps in the county is conducted with information, such as, the numbers of ramps/lanes, on- and off-site parking spaces, and boats launched (with seasonal and weekday/weekend use variations identified). The ramp’s proximity to inlets, the ICW and popular boating destinations is noted and the locations of the ramps are mapped.
• d) If applicable and if they contain launching or docking facilities, an inventory and map showing the locations of port facilities, freight terminals, fuel and transient docks, and boat yards should also be completed for each county. A description of the activities occurring at each of the different types of facilities should be provided. The development, maintenance and expansion of port facilities and inlets are significant activities in Florida’s coastal waters. These activities can have many potential effects on the Florida manatee population due to the alteration of habitat; manatee use patterns and direct physical threats from dredging, material transport, vessel access, blasting and other construction activities.

4. Information on aquatic preserves, Outstanding Florida Waters, manatee refuges, etc. within the county:

Any specially-designated areas within the county should be identified and mapped, such as Outstanding Florida Waters, aquatic preserves, federal, state and local parks, sanctuaries, research reserves, wildlife refuges, and any other lands set aside for preservation and open space. Some of these areas may not be available for boat facility development or may have certain restrictions which limit access. This process of identifying locations unavailable or restricted for development helps to narrow down areas that will need to be screened for potential boat facility development. Some municipalities and counties have land development regulations or local ordinances that are more restrictive than state rules. These should be considered the screening process as well.

Protection plan components: strategies, recommendations and protection measures

5. A boat facility siting plan- to determine the best areas for boat facilities, such as wet/dry marinas, multi-family residential docks, boat ramps, etc:

A boat facility siting element is a necessary component and one of the most important provisions of a countywide manatee protection plan. Its goal is to offset or reduce human-caused mortality by minimizing the potential for conflicts between manatees and boats. It is equally important to include address the potential impacts of boat facility developments on seagrasses and SAV. Boat facility siting involves includes facilities with greater than 5 wet slips, dry storage and boat ramps. The objectives of the boat facility siting plan are to determine appropriate dock densities and to identify and map specific areas or sites where boat facilities are preferred to locate or expand. Local baseline information, the majority of which will be contained in elements 1–4 above, is used in the creation of specific criteria or policies for the county concerning the types, locations, and size of boat facilities.

If applicable, a manatee protection plan for ports would also be developed. One protection strategy is to require wharf fenders for all new port facilities, freight terminals, fuel and transient docks, and boat yards. Retrofitting of existing facilities on an established timetable should be considered if these facilities do not provide adequate clearance through an open-face pier design. Another protection measure for the County or Port Authority to consider is the use of propeller guards for tugboats and other large vessels regularly using manatee inhabited waters if a functional and efficient design is available. Expansion of port facilities or the development of new facilities should be designed to avoid (or minimize) impacts to SAV.

6. A habitat protection and water quality program (including dredging, land acquisition, and aquatic plant control plans for manatee areas):

Recommendations should include, but are not limited to, the following:

• a) Using existing habitat data, the location of important manatee foraging areas should be discerned, including seagrass beds, freshwater submerged aquatic vegetation (SAV), and shoreline vegetation (where this type of manatee feeding activity is regularly observed). Known manatee resting, calving, warm water refuges (both natural and artificial) and freshwater sources within the county should also be determined and displayed on maps. Shellfish areas, existing water depths, and water circulation patterns may also be discussed. Much of this information is available from the FWC, FWS and DEP. Suggestions for protected status areas, such as refuges and sanctuaries, can be made by the county.


• b) Dredging and construction recommendations may be addressed in this section if the county has a delegated local program. A complete list of standard
  manatee protection construction and blasting conditions is available online at www.state.fl.us/fwc/psm/permit


• c) Identification of possible land acquisition areas and projects to increase refuges, reserves, and preserves for manatee protection or buffer areas to protect manatee habitat and water quality may be presented.


• d) Additional protection measures, such as coordination efforts with intergovernmental agencies for aquatic plant management and activities to reduce contaminant loading into systems frequented by manatees, may be addressed and summarized.

7. An education and awareness program for the public and boaters, divers, and school children: 

An integral component of the Florida Manatee Recovery Plan involves educating the public. In addition to Florida’s citizens, it is also important to target the state’s 40.5 million annual visitors to increase public awareness of manatees. The Bureau of Protected Species Management has and Education and Information program for this purpose. Since the goals of the MPP are to reduce human related deaths, the MPP education initiatives are more focus. Specific education measures counties are encouraged to include in the MPP are 1) the development of a county boaters’ guide containing information on manatees and boating speed zones and 2) the incorporation of a manatee education program or materials within the public school system. Many counties have gone well beyond these basic education provisions and have a comprehensive education and awareness program aimed at students as well as boaters and divers. Examples of these education initiatives include forming manatee protection educational committees and developing public service announcements, television messages, boater’s brochures, teacher’s guides, posters, pamphlets, and information and marketing displays for public education purposes. Many festivals and outreach events are conducted annually throughout the state. Funding for county manatee education activities may be requested from the Advisory Council on Environmental Education (ACEE). The Council is directed to solicit and select proposals for manatee related environmental education projects for funding with money from the Save the Manatee Trust Fund.

8. Manatee protection measures, such as boating speed regulations in areas with high boat and manatee usage:

a) The Florida Manatee Sanctuary Act (1978) gives FWC the authority to adopt rules to regulate boat speeds and to limit other activities where necessary to protect manatees. The first state-designated boat speed zones for manatee protection were established in 1979. There were 13 “key” counties identified in 1989 by the Governor and Cabinet as a priority for establishment of countywide speed zones. Speed zones are a primary component of comprehensive manatee  protection and the establishment of those zones was a high priority for the state. As of November 1999, all 13 counties have countywide manatee protection speed zones in place. Counties that have not yet developed MPPs do not need to address speed zones. However, the counties may make suggestions to the FWC on fine-tuning existing zones. See 9 f) below.

9. Implementation provisions/schedule:

A plan and implementation schedule should be included to provide an approximate timeline for the establishment of the recommended protection measures identified in the plan, especially for items 5 through 8 above. It can address the issues listed below:

• a) Goals, objectives and policies - This section should include any local ordinances or comprehensive plan policies which implement recommendations or address issues relevant to overall manatee protection;


• b) The process the county will employ to use the MPP in future growth decisions
  should be described;


• c) Recommendations for continued monitoring of vessel traffic and manatee use patterns and a suggested timeframe to update the MPP;


• d) This section of the plan may also evaluate and propose solutions for county specific manatee mortality caused by locks, gates, exposed culverts, high speed boat races, large vessels and ships, and the prevention of any adverse effects from commercial fishing practices;


• e) Plans may be discussed for marking navigation channels in currently unmarked waterways used by manatees;


• f) Although currently not a section required for adoption, recommendations for new or expanded county-specific boat speed zones, refuges or sanctuaries may be referenced in the MPP. Because state rule-making must implement state zones, this element requires a separate approval process from the MPP;


• g) Areas recommended for water-related activities requiring high boat speeds, such as water skiing, boat races, or certain types of commercial fishing may be addressed. Specific manatee protection measures for high speed marine events in significant manatee habitat may be found online at www.state.fl.us/fwc/psm/permit;


• h) Plans to install/maintain manatee speed zone signage may be included; and


• i) Recommendations and strategies for improving and enhancing enforcement efforts for the manatee protection zones;


• j) Coordination of county and municipal rules and ordinances needs to occur in
  order to implement the provisions of the plan on a countywide basis.

Steps for Developing and Approving an MPP

Once all of the above information has been accumulated, county staff, a committee or consultant drafts a manatee protection plan, which is reviewed at the local level through administrative staff and county-appointed committees, FWS, FWC and other concerned parties. FWC staff typically provides technical assistance and review many stages of the draft from outline to final product. Also, the FWC has funded contracts for plan development. Once the plan is finalized, it is then submitted to the County Commission for approval. The County Commission may hold one or two public meetings to receive public comment. Workshops or public hearings may also be held in selected municipalities. The MPP may be revised to address any issues that arise at these public meetings and then resubmitted to the local governing body. Mechanisms for intergovernmental coordination between the county and municipalities are put in place. Once the County Commission approves the plan, it is then transmitted to the FWC for approval. The FWC Executive Director is delegated to approve the plans. Due to the complexity of issues a county must address in its plan and the range of information that must be collected, plans are usually several years in development.

The FWC encourages county/municipal governments to adopt MPPs as an amendment to the county’s comprehensive plan or by county/municipal ordinance. The individual components, especially boat facility siting, should be consistent with the local comprehensive plan, ordinances, and land use codes while addressing important manatee habitat areas. Among the key counties, Citrus, Collier, Dade, Duval and Indian River Counties currently have FWC-approved manatee protection plans. Several other county and regional plans are under development.

Return to the Broward's Manatee main page