Application for Environmental Resource Permit
Bird Island Oyster Reef Habitat Creation Breakwater Project #2
Richard 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 33619
813/623-6826
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.
Alafia Ship Channel
Hillsborough
Bay
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
Bird Island
Proposed additional project location, and installed breakwater, Bird Island, eastern island of the
Richard T. Paul Alafia Bank Bird Sanctuary, Hillsborough Bay
Richard T. Paul Alafia Bank Bird Sanctuary
The 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, statelisted 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.
The Richard T. Paul Alafia Bank
Bird Sanctuary, approximate
Ownership Boundary, provided
by the Tampa Port Authority
Bird Island project area location
Sunken Island “Extension” location
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.
Reef Ball specifications
Dimensions: 4 feet wide, 2.9 feet tall
Weight: Approximately 800 pounds
Concrete 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.
Installation
Audubon 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.
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
MHW +1.95 NAVD88
Bird Island
MLW -0.25 NAVD 88
Oyster shell bags or small reef balls
55 linear feet from mean high water to waterward side of reef
MWL
Large reef
balls
Transect B
MHW +1.95 NAVD88
Bird Island
MLW -0.25 NAVD 88
Oyster shell bags or small reef balls
Transect C
MWL
Large reef
balls
50 linear feet from mean high water to waterward side of reef
MHW +1.95 NAVD88
Bird Island
MLW -0.25 NAVD 88
Oyster shell bags or small reef balls
Transect D
MWL
Large reef
balls
45 linear feet from mean high water to waterward side of reef
MHW +1.95 NAVD88
Bird Island
MLW -0.25 NAVD 88
Oyster shell bags or small reef balls
50 linear feet from mean high water to waterward side of reef
MWL
Large reef
balls
Transect E
MHW +1.95 NAVD88
Bird Island
MLW -0.25 NAVD 88
Oyster shell bags or small reef balls
Transect F
MWL
Large reef
balls
50 linear feet from mean high water to waterward side of reef
MHW +1.95 NAVD88
Bird Island
MLW -0.25 NAVD 88
Oyster shell bags or small reef balls
MWL
Large reef
balls
50 linear feet from mean high water to waterward side of reef
Construction schedule
Birds 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 resources
Primary 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
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).
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.
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).
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 19861989. Florida Game and Fresh Water Fish Commission. Tallahassee, FL.