KPA #92
TENNESSEE WETLANDS
CONSERVATION STRATEGY
by the
GOVERNOR'S INTERAGENCY
WETLANDS COMMITTEE
and its
TECHNICAL WORKING GROUP
FEBRUARY, 1994
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EPA 4904/RM4/002
TENNESSEE WETLANDS CONSERVATION STRATEGY
by the
GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
and its
TECHNICAL WORKING GROUP
February, 1994
Published by
Tennessee State Planning Office
307 John Sevier State Office Building
500 Charlotte Avenue
Nashville, Tennessee 37243-0001
The information in this document has been funded wholly or in pan by the United States Environ-
mental Protection Agency under EPA Grant No. X004833-90-3 to the Tennessee State Planning
Office. It has been subjected to the Agency's peer and administrative review and has been approved
for publication as an EPA document. Mention of trade names or commercial products does not
constitute endorsement or recommendation for use.
Additional copies of this document are available to the public through the National Technical
Information Service (NTIS) in Springfield, Virginia (Phone: 703/487-4650).
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State of Tennessee
NED McWHERTER
GOVERNOR
February 22,1994
To the Citizens of Tennessee:
In my seven years as Governor of Tennessee, we have attempted to move forward
and resolve the most pressing and difficult issues of our time. The Tennessee
Wetlands Conservation Strategy provides us with a consensus approach that
addresses the issues surrounding wetland conservation. This Strategy provides us
with a blueprint to guide a partnership of state and federal agencies, as well as
private organizations, to make sound wetland policy and management decisions in
the future.
We recognize that Tennessee's wetlands are important and vital components of our
landscape. Properly functioning wetland areas enhance and support the diversity
of our natural and biological resources as well as help lessen the intensity of
artificially induced and naturally occurring impacts on our environment.
Through the Tennessee Wetlands Conservation Strategy, we seek to focus the
financial and human resources currently available in our state to pursue a common
goal. Together, we seek to conserve, enhance and restore the acreage, diversity and
quality of wetlands in Tennessee. To accomplish this, we will quantify our wetland
assets, prioritize our interests, address fundamental reasons for wetland losses and
measure our progress.
Tennessee's wetlands and other natural resources are our inheritance and our gift to
future generations. I urge every Tennessean to play a part in the public and private
cooperation required to implement this Strategy.
Sincerely,
Ned McWherter
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PREFACE
TABLE OF CONTENTS
PAGE
CHAPTER I
TENNESSEE WETLANDS RESOURCES:
DESCRIPTION, STATUS, AND TRENDS.
CHAPTERn
COAL
19
CHAPTER HI OBJECTIVES.
21
CHAPTERW
EXISTING WETLANDS AGENCIES,
ORGANIZATIONS AND PROGRAMS.
23
CHAPTERV
ACTION PLAN.
31
CHAPTER VI COORDINATION AND FUNDING.
53
CHAPTER Vn MONITORING AND EVALUATION,
63
APPENDIX
A
B
TITLE
COMMITTEES AND SUBCOMMITTEES.
A-l
WETLANDS DEFINITION. IDENTIFICATION AND
DELINEATION B-l
TECHNICAL REPORTS.
C-l
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TABLE OF CONTENTS (Continued)
PAGE
APPENDIX TITLE
D EXISTING AGENCIES, ORGANIZATIONS AND
PROGRAMS RELATED TO WETLANDS D-l
E RECOMMENDED TENNESSEE WETLANDS
RESEARCH TOPICS E-l
F GLOSSARY F-l
G ACRONYMS G-l
H REFERENCES H-l
11
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LIST OF TABLES
PAGE
TABLE 1
TABLE 2
TABLE 3
TABLE 4
TABLE 5
ACRES OF WETLANDS AND
WETLANDS INDICATORS FOUND
BY VARIOUS SURVEYS 3
TEST QUADRANGLES SELECTED
FOR DIGITIZATION, CIS MAPPING
AND FIELD ANALYSIS 8
AGENCIES, ORGANIZATIONS AND
PROGRAMS AFFECTING TENNESSEE
WETLANDS 24
SUMMARY OF IMPLEMENTATION
AND REPORTING RESPONSIBILITIES 43
IMPLEMENTATION SCHEDULE 56
in
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LIST OF FIGURES
PAGE
FIGURE 1
GENERAL HYDRIC SOILS OF TENNESSEE...
FIGURE 2
TWRA NWI DIGITIZATION STATUS.
FIGURES
NWI/SOILTEST QUADRANGLES.
FIGURE 4
PHYSIOGRAPHIC PROVINCES OF
TENNESSEE
10
FIGURES
HYDROLOGIC UNITS OF TENNESSEE..
11
IV
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In the fall of 1989, Governor Ned McWheiter appointed an Interagency Wetlands Committee
(IWC) to advise him. Members of the Committee are the leaders of state and federal agencies with pro-
gram responsibilities related to wetlands, and the leaders of private user groups and conservation
organizations. The purpose of the Committee is to exchange information and coordinate the programs
of federal, state and local agencies, conservation organizations and private landowners to manage,
conserve or restore wetlands for beneficial uses. The Committee meets semi-annually to review
programs and budgets, and to prepare recommendations for the Governor.
The Committee has appointed a Technical Working Group (TWG), consisting of professional
staff members from each agency or organization, to carry out necessary research and technical analysis.
A list of the members of the Committee, and of the Working Group, appears in Appendix A.
The Committee's and Working Group's guidance and direction has been derived in part from
emerging national wetlands policy developed by the National Wetlands Policy Forum. The Forum was
a group of 20 members, including three governors; a state legislator, the heads of state agencies; a town
supervisor, chief executive officers of environmental groups and businesses; farmers and ranchers; and
academic experts. It was convened by The Conservation Foundation in 1987 at the request of Lee M.
Thomas, Administrator of the United States Environmental Protection Agency. In its final report,
"Protecting America's Wetlands: An Action Agenda," the Forum recommended that all states undertake
the preparation of State Wetlands Conservation Plans to provide a basis for all subsequent acquisition,
regulation, and other wetlands protection and management activities.
In December 1989, the IWC recommended that the state develop a comprehensive state-wide
Wetlands Conservation Plan for Tennessee. The TWG was directed to prepare a plan outline and to
estimate the human and financial resources needed to develop a plan. In the spring of 1990, the State
Planning Office, acting on behalf of the IWC submitted a proposal to the U.S. Environmental Protection
Agency (EPA) for a Wetlands Program Development Grant for assistance in preparing a plan. The
proposal was successful, and in July 1990, EPA awarded a grant of $102,910 to the state to initiate the
state planning process.
Tennessee was one of the first two states in the nation to attempt development of a State Wetlands
Conservation Plan (WCP); and, as work on the state plan progressed, it became evident that the proposed
plan of work was beyond the reach of available data and technology, and was temporally ambitious. At
the beginning of the planning process, it was realized that the data needed to formulate quantified
objectives were not available.
Unfortunately, alternative resource information anticipated to be provided early in the planning
process was not released by its formulating agency until the end of the process.
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Concurrently, the state of the science of wetlands qualification, including classification, charac-
terization, and functional value assessment, was undergoing a major transition.
The TWO concluded that it was not possible to produce a comprehensive State Wetlands Con-
servation Plan as originally conceived, but that it was possible to develop a comprehensive conservation
strategy to guide statewide wetlands policy and technology development towards a detailed plan at some
future date.
At about the same time, the World Wildlife Fund (WWF) (into which The Conservation
Foundation had been incorporated) convened an advisory panel, including Tennessee and 16 other
states, to formulate State Wetlands Conservation Plan Guidelines. WWF's advisory panel reached the
same conclusion that the Tennessee group had reached. Their conclusions were published in "Statewide
Wetlands Strategies: A Guide to Protecting and Managing the Resource," in 1992.
The TWG decided to prepare a Wetlands Conservation Strategy following the outline published
by the World Wildlife Fund. A strategy defines a process that can be used to adopt a statewide goal and
define objectives; to review the current status of the state's wetlands resources, and the programs
affecting them; and to develop an action plan to meet the state's objectives. A strategy provides a
framework upon which to build a comprehensive wetlands conservation plan as new data is acquired,
and new methods of technical analysis and functional assessment are confirmed, resulting in a better
understanding of the wetlands resources to be conserved.
The Technical Working Group developed the state strategy through an interactive and iterative
process. Members of the group worked intensively to capture the group's knowledge and advice, and
to draft a strategy document upon which the state can build.
On August 24, 1993, the Clinton administration issued a wetlands policy document entitled
"Protecting America's Wetlands: A Fair, Flexible and Effective Approach." The policy paper proposed
a series of improvements to the federal wetlands regulatory programs, and other programs. The policy
will be implemented through an Executive Order, interagency agreements and amendments to the Clean
Water Act. The proposed actions are intended to simplify regulatory programs, improve interagency
coordination, and decrease uncertainty for landowners and the regulated community.
The August proposal confirms the previously adopted "no overall net loss" policy, and the policy
"to increase both the quantity and quality of the nation's wetland resource" as a long term goal.
The TWG reviewed the final draft of the Strategy for consistency with the President's national
wetlands policy. The group concluded that the proposed state strategy is not inconsistent with the new
federal approach, although it differs somewhat in emphasis. In several respects the Strategy's
recommendations are parallel to the administration initiative.
The final draft Strategy document was reviewed and revised by the IWC, and was unanimously
approved for submission to the Governor on November 16,1993. On February 22,1994, Governor Ned
McWherter endorsed the Strategy as an official instrument of state wetland policy.
VI
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The generous financial support of the Environmental Protection Agency in developing the Ten-
nessee Wetlands Conservation Strategy is gratefully acknowledged. The 1990 program development
grant also supported several technical studies which are reported in the Technical Reports listed in
Appendix C and maps accompanying this document. A second program development grant, in the
amount of $264,854 was awarded to the state in September, 1993. The FY 1993 grant will assist the
state to implement elements of the State Conservation Strategy.
vu
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A. DEFINITION: WHAT WETLANDS DOES THE STRATEGY CONSIDER?
Wetlands are transition zones controlled by landscape and hydrology, and they typically contain
attributes of both aquatic and uplands environments. Some, such as deep swamps, bogs and marshes are
typically recognized as wetlands by the prominence of water and distinctly wetland vegetation. Others,
such as bottomland hardwood forests which lack permanent standing water, and submerged aquatic beds
which exhibit hydrologic regimes equivalent to aquatic environments are less recognizable. This
variation in physical characteristics of wetlands tends to confuse public perception of wetland definition.
Wetlands are defined and delineated for various legal, scientific and economic purposes,
including regulation, functional assessment, ecosystem and landscape management, and human use.
Within the framework of regulatory programs, wetlands definition and delineation is usually interpreted
conservatively; whereas, in a landscape management context, such as wetlands habitat assessment, a
broader interpretation is needed. Wetland definition for specialized purposes such as acquisition and
inventory may include river channels, open waters of lakes and reservoirs, sand bars, mud flats, levees,
islands and floodplain terraces that do not fit the classic character of vegetated wetlands, or regulatory
program definition. An overview and discussion of the several Federal wetlands definitions appears in
APPENDIX B.
The intent and purpose of a wetlands definition is fundamental to its interpretation and
application. Due to the significant influence of Federal programs and national initiatives on State
wetland conservation matters, the formulation and use of an independent state definition of wetlands was
not pursued. Instead, the state elected to defer to the federal agencies in defining and delineating wet-
lands. It was concluded that the development of an independent state definition at this time was
unnecessary, and could be counterproductive.
In the August 24 White House policy document, the Clinton administration offered no new rec-
ommendations with regard to the delineation of jurisdictional wetlands by federal agencies. Instead, the
administration will defer a decision on a preferred delineation method to be used by federal agencies
until the National Academy of Sciences committee completes an independent study of the technical
criteria, and makes its recommendations to the President and sponsoring agencies. Due to the dynamic
nature of this process, the state will continue to defer to federal guidance with respect to the delineation
of jurisdictional wetlands.
The wetlands of most concern in Tennessee and the wetlands targeted in the strategy are those
shallow, freshwater wetlands which contain submerged, emergent and or woody vegetation, and are
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collectively referred to as palustrine wetlands.
B. INVENTORIES: HOW MANY WETLANDS ARE THERE IN TENNESSEE?
Wetlands inventories have been made during the past one hundred years, or more. The earliest
surveys were made by the federal agricultural and land management agencies to determine drainage
needs. As interest in wildlife conservation grew, inventories were made to determine the quantity of
habitat available for select water dependent species—especially waterfowl. No complete wetlands
inventory has ever been specifically conducted in Tennessee, and no national wetlands inventory has
accurately quantified the wetlands of Tennessee.
Six references and/or datasets were used to determine the acreage of wetlands in Tennessee.
None of them can be directly compared to another, because of two fundamental issues: (1) differences
in defining, identifying, and delineating the resource base being inventoried; and (2) differences in the
accuracy of the methods employed in the inventory.
Data from the six inventories have been rectified to a common base in an attempt to make them
more comparable. This data is displayed in TABLE 1. However, it should be noted that the interpre-
tations of wetlands types made in TABLE 1 are based on the best professional judgement of the TWO
staff, and not the authors of the referenced publications.
An indirect estimate of the state's "wetlands capability base," i.e. areas that are capable of sup-
porting wetlands, can be made based on the occurrence of hydric soils. USDA Soil Conservation Serv-
ice (1991) soil survey data maintained by the Iowa State University Statistical Laboratory were
summarized for Tennessee. The analysis indicated a hydric soils acreage of approximately 1.55 million
acres. Distribution of the general hydric soils of Tennessee is shown in FIGURE 1 (see page 4).
An additional 1.24 million acres are considered by the TWO to be potentially hydric, and as such,
portions may support vegetation, that can be detected as wetlands by remote sensing methods typically
used in wetlands inventories. Portions of the potentially hydric soils may in fact be hydric, and, if
vegetated, may be jurisdictional wetlands. The remainder of these potentially hydric soils generally
would not meet hydric soil criteria and may lack sufficient hydrology to meet the wetlands definition.
Based on this data, it is projected that Tennessee has approximately 2 million (or more) acres of
wetlands capability base. However, many of these acres have previously been convened to non-wetland
uses and are no longer considered wetlands. An analysis of soils occurrence in individual counties from
the USDA (1991) soil survey database shows that 80% of the hydric soils occur in the western grand
division of the state. Sixteen percent occur in the central division, and only 4% in the eastern division.
FIGURE 1 reflects this distribution by showing that going east there is a smaller percentage of
the area containing hydric soils. Each percentile range indicates that some hydric soils do occur, even
though the amount may be near the lowest value within that range.
Dahl (1990) used data from the National Wetlands Inventory and other sources to determine the
status and trends of wetlands nationally. His data for Tennessee was derived from an analysis performed
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TABLE 1
ACRES OF WETLANDS AND WETLAND INDICATORS FOUND BY VARIOUS SURVEYS
SCS SOILS DAHL SHAW& DAHL NRI mi T^
WETLAND TYPE* DATA 1780'S FREDINE 1956 198°'s 1982 1987 1988
_ , . 639,177
PaJustnne
forested 737,000 730.400
scrub-shrub 8,500 J^QQ
emergent 53*800 53.800
subtotal 799,700 792,700
openwater 64,000
unconsol. bottom 1.937jOOO 828,000 787,000 863JOOO 856,000
unconsol, shore
subtotal 64,000
Total Paluslrine
Lacustrine
limnetic
littoral
subtotal
Riverine
lower perennial
upper perennial
intcrrn iticnl
subtotal
Grand Total
Soils
hydric 1,546,254
potential, hydric 1,236,946
subtotal 2.783,200
TWRAG1S
170 QUADS
522,467
25,516
27,518
575401
38.191
3,132
1,621
42,944
618,445
44,061
3.851
47,912
117.025
96
19
117.140
783.497
as described by COWARDIN, ET AL, 1979.
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UNITFD STATES DEPARTMENT OF AGRICULTURE
[J| 0 to 20 percent hydric
H! 21 to 60 percent hydric
| 61 to 1 00 percent hydric
SOU CONSERVATION SERVICE
FIGURE 1: GENERAL HYDRIC SOILS
TENNESSEE
25
50 75 100 STATUTE UILES
tO 0 20 4O 60 80 KILOMETERS
t=r f- -i • • ~l
SOURCE: Soil Conservotion Service - STATSGO 1:250.000
Map generated by GRASS*. 1 /MAPGEN,
Resources Inventory A CIS staff,
Nashville, lennessee,
UTM projection.
DECEMBER 1993
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for the southeast by Hefner and Brown (1984). Thirty-three 4-square-mile sample plots (equalling 0.3%
of the state's total area) were used to statistically determine that Tennessee contained 787,000 acres
(±16%) of wetlands in the mid 1980's. Dahl then added this acreage to USDA agricultural drainage
statistics (Pavelis, 1987) to determine that 1,937,000 acres probably existed in the 1780's.
Shaw and Fredine (1956) inventoried areas of high waterfowl habitat concentration in their early
1950's national survey. They inventoried all of the state west of Kentucky Lake, the reservoirs of the
east Tennessee ridge and valley province, and some of the perched wetlands on the Eastern Highland
Rim. They estimated that Tennessee had 828,000 acres of waterfowl habitat (assumed to be vegetated
wetlands). It is noteworthy that they described 447,600 acres of the total as "high quality" habitat,
ranking the state sixth in quantity of high quality habitat. It was surpassed only by Minnesota, Arkansas,
Louisiana, Texas and North Dakota.
The USDA conducts a National Resource Inventory (NRI) every five years, and uses the Shaw
and Fredine wetland classification system. NRI is performed by sampling numerous points across the
state with a statistical accuracy of ±5%. The 1982 and 1987 inventories indicated 863,700 and 856,700
acres respectively of palustrine wetlands.
In 1988, the Tennessee Department of Conservation formulated a "Tennessee Wetlands Plan"
as an addendum to the Tennessee State Recreation Planning Report, in compliance with the Federal
Emergency Wetlands Resource Act. Aerial photography and satellite imagery were used to determine
that the state's vegetated wetlands comprised 639,177 acres, with 571,000 (89%) occurring in the
western grand division and 68,177 acres (11%) in the remainder of the state.
Tennessee Wildlife Resources Agency is currently digitizing National Wetlands Inventory
(NWI) maps into their Geographic Information System (CIS). Digitization provides for a relatively
accurate determination of the acreage of wetlands digitized. To date, 170 7.5" quadrangle maps have
been digitized representing approximately 22% of the state1 s total area. Maps have been prioritized for
digitization based on areas of known wetlands concentration. Digitized quadrangles are shown in
FIGURE 2.
One hundred forty of the digitized maps occur in west Tennessee, and the remaining 30 are in
areas of high wetlands concentration in the central and eastern grand divisions. The analysis indicates
that there are 783,497 acres of wetlands on 170 digitized quadrangles; 618,445 of these acres are palus-
trine wetlands. Based on distribution of hydric soils in the state, it appears that 75% to 80% of the state's
wetlands may have been digitized to date. Extrapolation of these estimates indicates a potential range
of 773,000 to 825,000 acres of palustrine wetlands.
No one knows the exact acreage of Tennessee's wetlands. TWRA's digitization of NWI maps
concludes that a minimum of 618,445 acres of palustrine wetlands exist. Hefner and Brown (1984)
conclude a statistically derived maximum of 912,920 acres of palustrine wetlands. The average of
Hefner and Brown (1984), SCS 1987 NRI, and TWRA's GIS projected data indicates approximately
814,000 acres of palustrine wetlands in the state.
A more accurate estimate of Tennessee's total wetlands acreage will be possible as digitization
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FIGURE 2: TWRA NWI DIGITIZATION STATUS
LEGEND:
MI Quad Digitization Completed
Major ffafer Bodies
A/
N
N
Extent of TN Quad Coverage
Major Rivers
County Boundaries
Digital Wetlands Data Obtained
Through August 3, 1993
MAP GENERATED BY THE TENNESSEE WILDLIFE RESOURCES AGENCY G.I.S. 1993
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FIGURE 2: TWRA NWI DIGITIZATION STATUS
LEGEND:
m
•
W/ Quad Digitization Completed
Major Water Bodies
N
N
N
Extent of TN Quad Coverage
Major Rivers
County Boundaries
Digital Wetlands Data Obtained
Through August 3, 1993
MAP GENERATED BY THE TENNESSEE WILDLIFE RESOURCES AGENCY G.I.S. 1993
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of the NWI and hydric soils data for the entire state is completed and imported into the GIS system.
Digital data for 100 quadrangles will be acquired (or digitized) in 1994, as a part of the program of work
to be completed with the aid of a FY 1993 program development grant from USEPA.
Digitization of data and statistical analysis of seven test quadrangles mapped in this project, com -
bined with field verification of soil types and vegetation, provide an opportunity to test the correlations
between hydric soils, mapped NWI wetlands, and vegetative cover. The quadrangles, representing six
of the state's physiographic provinces, are listed and described in TABLE 2; their location is displayed
in FIGURE 3. FIGURE 4 illustrates the state's physiographic regions.
The results of a statistical analysis conducted with the GIS with resulting maps and overlays will
be reported and discussed in a separate Technical Report. (See APPENDIX C for a list of Technical
Reports supporting the strategy.) Results of the field investigation of soils, plant species and prevalence
indices for the same seven quadrangles will be published in a second Technical Report.
It is recommended that in the future, inventory and field data should be organized and reported
according to United States Geologic Survey (USGS) hydrologic unit (see FIGURE 5), and by wetlands
type.
C. BASIC WETLAND TYPES
The Wetlands Strategy proposes a new method for classifying the various types of wetlands in
Tennessee, grouping those similar in function. The approach is known as a hydrogeomorphic (HGM)
classification (Brinson, 1992). The concept of HGM classification is evolving nationally with input
from scientists of various disciplines. Several institutions and agencies in Tennessee arc participating
in the development of the HGM classification system.
HGM classification offers advantages over previously used methods, including application of a
broader range of characterizing parameters and consideration of wetlands functions. Additionally,
HGM is applicable to a broad scale of applications, from site specific to landscape.
Wetlands scientists recognize that hydrology is the most significant factor influencing wetlands
character, functions and interactions. However, defining and describing hydrology is more complex and
difficult than identifying and categorizing the vegetation types traditionally used in wetlands character-
ization. Using HGM, wetland types are distinguished by four indicators of hydrology. They are:
* geomorphic setting (position in the landscape);
* landform (the wetland's topography or shape);
* water source; and
* hydrologic profile (water duration, depth, and flow).
Data currently used to determine these indicators include:
* topographic analysis;
* soil characteristics;
* hydrologic data and indicators;
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1 • TABLE 2
TEST QUADRANGLES SELECTED FOR DIGITIZATION, CIS MAPPING AND ANALYSES
QUADRANGLE
Knob Crock
Rutherford
Turnpike
Milledgeville
Fredonia
Isoline
Tellico Plains
PHYSIOGRAPHIC PROVINCE
Mississippi Alluvial Valley
Gulf Coastal Plain
Gulf Coastal Plain
Western Valley
Highland Rim
Cumberland Plateau
Blue Ridge
Ridge and Valley
COUNTIES
Lauderdale
Dyer
Weakley
Obion
Gibson
Haywood
Tipton
Lauderdale
Hardin
McNairy
Coffee
Cumberland
Monroe
RIVER
Forked Deer,
South Fork
Forked Deer,
Obion;
Upper Mississippi
South Fork Obion
Hatchie
Tennessee
Upper Duck;
Barren Fork
of Collins
Emory;
South Fork of
Cumberland
Little Tennessee;
Hiwassee
HYDROLOGIC
UNIT
08010206
08010205
08010202
08010100
08010203
08010208
06040001
06040002
05130107
06010208
05130105
06010204
06020002
PERCENTAGE OF
QUADRANGLE
40%
10%
20%
30%
100%
100%
100%
70%
30%
95%
5%
50%
50%
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FIGURE 3: NWI/SOIL TEST QUADRANGLES
LEGEND:
Test Sites Used in Wettands Analysis
Major Hater Bodies
N
N
N
Major Rivers
County Boundaries
Hydrologic Unit Boundaries
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FIGURE 4: PHYSIOGRAPHIC PROVINCES OF TENNESSEE
}m ••••••••*• •• *». •». •_"»*• •.*•*•"• • »» • * ••
1TESTERN IETLANDS CONCENTRATION
LEGEND:
1 1 1
1 1 1
„ "
' •
"J •".-
• •
•• • .
Miss. Alluvial Valley
Gulf Coastal Plain
Western Valley
Western Highland Rim
pntrn Hfl^in
U U U o 1
s^
1
1
/ /\
Eastern Highland Rim
Cumberland Plateau
Ridge and Valley
Blue Ridge Mountains
MAP GENERATED BY THE TENNESSEE I1LDLIFE RESOURCES AGENCY G.I.S. 1993
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FIGURE 5: HYDROLOGIC UNITS OF TENNESSEE
LECEND:
060401
N
™Hydrotogic Unit Number
Hydrologic Unit Boundaries
\
N
•
County Boundaries
Major Riven
Water Bodies
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* watershed analyses; and
* vegetative indicators.
HGM classification is a holistic approach which facilitates the classification of wetlands and the
assessment of wetlands functions while recognizing the continuum of wetlands from wettest to driest.
HGM classification is presently unconstrained by any single-purpose definition or interpretation of
wetland types. It is not intended to define wetlands for jurisdictional purposes. However, it is a tool that
can be used in many aspects of wetlands assessment and management
Ten wetland types based on HGM concepts have been identified in Tennessee. These occur
within landscape and landform settings that often have wetland hydrology, hydric soils, and that under
normal circumstances would support hydrophytic vegetation. The following are archetypes upon which
a system of HGM classification can be built in Tennessee.
A brief description of the ten types follows:
1. Deep floodplain basins—old river channels, oxbows, or deep sloughs typically devoid of woody
vegetation; often colonized by submergent or floating leaved plants.
2. Floodplain depressions—shallow oxbows or sloughs typically dominated by bald cypress and/
or water tupelo. (Similar to above, but not as deep.)
3. Backswamps—frequently flooded and poorly drained portions of the floodplains often with
surface water standing well into the growing season; typically dominated by overcup oak and
water hickory.
4. Overflow flats—seasonally inundated portions of the floodplain dominated by species such as
willow oak, red maple and green ash.
5. Floodplain ridges—high portions of the floodplain, (including riverfronts, levees and terraces).
Typical species include cherrybark oak, swamp oak, water oak, sycamore, silver maple,
boxelder and cottonwood.
6. Low fringes—semipermanently flooded lake fringes typically dominated by herbaceous emer-
gent and/or scrub/shrub vegetation.
7. Elevated fringes—semipermanently saturated and seasonally flooded areas around lakes and
reservoirs; typically forested.
8. Flow-through depressions—meandering drainways without outlets, found in upland land
scapes in association with intermittent or first order streams whose gradient increases signifi
cantly downstream. Vegetation varies from wet meadow dominated by rushes, sedges, grasses
and herbaceous species to wet forests.
9. Closed depressions—isolated low-lying depressions without outlets found in upland land
scapes; typified by high water tables for long periods. Typical vegetation includes
rushes, alder, and/or red maple/sweetgum forest.
10. Slope seeps—sites on, or at the toe of, a slope where groundwater discharges in a diffuse pattern,
and results in semipermanent saturation in the immediate downstream area; vegetation is highly
variable.
12
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These wetlands types are generalized concepts of types within Tennessee's wetlands universe. Some
types may need further subdivision, and some individual wedands will exhibit key characteristics of two
or more types, giving rise to additional types or combinations. A Technical Report is presently in
preparation to more thoroughly describe the HGM concept and its application in Tennessee.
D. FUNCTIONS AND USES OF TENNESSEE WETLANDS
Historically, wetlands were considered to be wastelands that should be drained as soon as
possible, for fanning or for residential or industrial development. Wetlands were not considered to be
valuable resources, and their complex ecological and hydrological functions were for the most part, un-
recognized.
Only recently have wedands been recognized as valuable natural resources, that if maintained
and properly managed, can provide important benefits to the public and the environment. For example,
wetlands can protect or enhance water supplies, improve water quality, help control flood damage,
provide valuable habitat for wildlife, and contribute to the biological diversity and stability of the
ecosystems where they are found.
Wetlands functions are directly beneficial to people and to the integrity of the environment where
they are found. Not every wetland will perform all of the possible functions, and not all functions are
performed equally well in every wetland. The degree to which a wetland performs a function is related
to and defined by a complex web of interrelations between the wetland* s characteristics and its landscape
setting, upstream contributors, downstream receivers, and biotic interactions.
There are five functions associated with Tennessee wetlands.
1. Water Quality Enhancement
Wetlands enhance the physical and chemical condition of water from a base condition by two methods:
Sediment/Toxic Substance Retention -Reducing the concentration of suspended and bed-load
sediment, and attendant toxicant load, through energy dissipation, precipitation, ionization, and/
or biotic bonding.
Nutrient Kemova//7rans/ornui
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charges by storing and slowly releasing runoff over a longer period of time.
Erosion Potential Reduction -- Wetlands in the natural state are usually vegetated; and this
vegetation reduces the velocity of flood waters and wave action, thereby lessening the potential
for erosion of shorelines and floodplain areas. The root systems of wetland vegetation bind the
floodplain and shoreline soils to further resist erosive forces.
3. Biological Productivity
Wetlands provide habitat (including requisite temporal conditions of food, water, cover, and reproduc-
tive features) that supports a diverse array of wetland dependent or indicative species and populations.
Examples include:
Aquatic Species - Vertebrate and invertebrate species that complete their life cycles in water.
Resident - Species that typically spend all life stages in an area or habitat of analogous
physical conditions.
Transient - Species that typically move in response to changing habitat conditions and/
or with specific life stage requisites.
Semiaguatic Species - Vertebrate and invertebrate species that spend certain life stages in water.
Wetland Wildlife Species - Vertebrate species, typically mammals, birds, and reptiles, that spend
most or all of their life stages above the water's surface, but are heavily dependant on aquatic or
wetland conditions to fulfill requisite needs.
Resident - Species whose annual requirements are met within a single home range.
Migratory - Species whose annual life stage requirements are met by a series of distant ranges
accessed by predictable relocation.
Vegetation - Species of plants typically adapted to periodically anaerobic soil conditions.
Food Chain Support - Providing primary productivity (organic debris) that supports faunal
communities within the wetland and in adjacent and downstream waterbodies.
4. Ground Water Influence
Wetlands significantly influence shallow water aquifers within their vicinity by three processes:
Ground Water Recharge - Retaining water and allowing for its percolation into the underlying
aquifer.
Low Flow Augmentation - Releasing water to adjacent streams or waterbodies during dry
periods of the year and during drought.
Ground Water Discharge Buffering • Enhancing the quality of groundwater discharge by
providing a biochemical water treatment system.
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5. Direct Human Benefits:
In addition to the societal benefits provided by normal wetlands functions, several direct human benefits
can be derived from wetlands and their functions through managed use. Opportunities for human uses
that are compatible with sustained wetland conditions include:
Recreation - Use for play, amusement, relaxation, and/or physical and mental refreshment.
Education - Use for training and developing knowledge, skill, and character.
Timber Production - Providing the potential for profitable production of wetland endemic
trees through management that is compatible with sustained wetland conditions.
Agricultural Production - Providing the potential for agricultural resource management consis
tent with sustained wetland conditions.
E. CONDITION OF TENNESSEE WETLANDS
Tennessee's wetlands are varied and dynamic systems. They occur in topographic positions
ranging from upland slopes and divides to the floodplains of low-gradient coastal plain streams. They
support plant communities that include submerged, floating and emergent plants, shrubs, and trees.
Under natural conditions, wetlands may undergo changes in wetness, species composition, and
morphology in response to climate, geology, and ecological succession. Wetlands are also subject to a
wide variety of direct and indirect human influences.
The effects of human activities on the physical and biological condition of Tennessee wetlands
are hard to overstate. Wetlands are owned and managed by farmers, hunt clubs, timber concerns,
developers, state and federal agencies, and other interests. Land uses in wetlands include timber
extraction, agricultural production, outdoor recreation, and wildlife habitat. Large areas of wetlands
have been convened to non-wetland environments through filling, draining, or diversion of water.
Wetlands are integral parts of hydrologic systems that extend across wide portions of the
landscape. They are affected by natural processes and human activities that occur outside wetland
boundaries. Changes in rainfall, runoff, or erosion in a drainage basin can alter the quantity and quality
of water and sediment delivered to wetlands, changing their physical or biological character. Wetlands
in Tennessee can be found in every possible condition from nearly pristine to severely degraded to
completely destroyed.
Wetlands are created, maintained, modified, and destroyed by the physical processes that control
the distribution and storage of water. These processes include rainfall, infiltration, evaporation, ground-
water discharge, erosion, and sedimentation. These hydrologic processes are largely driven by climate
and topography, with major influences from geology, soil properties and vegetation. All of these factors
are subject to natural change and tend to equilibrate over time.
Human influences can accelerate, reduce, or reverse the direction of hydrologic processes.
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runoff and erosion on the hillslopes, and increased valley sedimentation rates. Dam
;tion has raised the base level upstream of the dams, leading to the formation of deltas and valley
xv,^wti°n- Beaches downstream of dams are deprived of sediment and may begin to down-cut
x v\^lhe^ ^^^^ valleys, significantly lowering the channel bottom, and thereby altering hydrol-
Most of West Tennessee's floodplain wetland acreage has had its wetness reduced by agricul-
v x**»na§e and stream channelization. The magnitude and permanence of floodplain drainage are
v.v vv N'*r*a*"e' *n som« cases, channelization has led to a deepening and widening of stream channels
^.artt to convert former floodplains into well-drained terraces. Elsewhere, beaver activity, debris,
xN\\A>4$upply °^ sediment from channelized reaches upstream have filled excavated channels restoring
vNXNvuung floodplain wetness.
Itie responses of hydrologic systems, including wetlands, to direct and indirect human
^vNVviuons are often unforeseen and perceived as undesirable, leading to additional interventions. As
vxv^v Vennessee s wetlands are in a state of flux that often goes beyond their ability to adjust. Many
Nv\v** *** *xw£ pushed in several directions at once; they hardly begin to adjust to one set of
NV>tN^ons Before another set is imposed upon them to counteract the adjustment.
VOT instance, on many West Tennessee floodplains, local ponding has resulted from an
jjyly of sediment upstream. Such areas are natural sediment traps; left alone they would most
develop toward ecological maturity. Excessive or inadequate water inputs, high sediment or
vs» loads, and direct or indirect interference with vegetation have caused imbalance among the
xv*,. chemical, and biological processes that determine wetland functions. The natural processes
xs *N$«" restore functional equilibrium are rarely allowed to proceed without additional interference.
\lthough the general picture of disequilibrium in Tennessee's wetlands is fairly clear, the
xxV.^ inowledge of wetland functions and quality that would allow land managers to quantify actual
1 benefits is almost wholly lacking. No state or federal agency is systematically collecting,
$, or analyzing information on wetlands. Except in relatively few cases where wetlands are
v >vx»vd as threatened or are under consideration for purchase, little information is currently being
xVv*>i on wetland functions. Such information as is available is generally site-specific, and is
xvS^ under protocols narrowly designed to meet regulatory or agency requirements. There is a
xV iced for a consistent statewide program to evaluate the quality and functions of wetlands and
xv!ki :heir condition.
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monitor their condition.
F. WHERE WETLAND LOSSES OCCUR AND WHY
The National Wetlands Inventory status and trends analysis (Dahl, 1990) estimates that about
53% of. the nation's historic wetlands had been lost by the mid 1980's. The greatest losses occurred in
forested wetlands and freshwater marshes. Dahl (1990) further estimates that Tennessee had lost 59%
of its wetlands by the mid 1980's. Using the estimated 2 million acre wetland capability base derived
in this report from the 1991 Soil Survey Statistical Database as an indicator of historic wetland acreage,
and the current 814,000 acres of existing wetlands indicated by averaging various recent inventories, an
estimate of 59% loss of wetlands can be further supported. However, the Council on Environmental
Quality (CEQ) does not list Tennessee among the states suffering the most "significant" losses.
In the past, losses of wetlands were primarily due to agricultural conversion, drainage, channeli-
zation, and sedimentation. At present, the loss/gain balance is complicated and not well defined. Factors
affecting the balance include both primary land use conversions and long term changes in the hydrology
of major drainage basins.
Although each drainage system is unique, Tennessee's wetlands managers have identified
several general trends, based on their observations, knowledge and experience:
* agricultural conversions are decreasing;
* marginal cropland is being abandoned and allowed to revert to wetlands;
* there is less conversion of bottomland hardwoods (BLH) to cropland;
* urban conversions are increasing; and
* transportation impacts (highways, airport construction) are a growing factor in wetlands
loss.
Unfortunately, no data is now being collected that would allow the state to confirm these obser-
vations or to assess changes quantitatively.
In the future, major losses are likely to be due to urban conversion impacts, transportation con-
struction impacts, or to continuing changes in basin hydrology (channelization, drainage or impound-
ments). Potential factors that might impact wetlands in the future are: changes in timber harvest
management strategies; the introduction of new agricultural crops; or changes in demand or prices of
existing crops.
G. ECONOMIC CONSEQUENCES OF WETLAND LOSS
It is difficult to quantify or place an economic value on the loss of wetlands resources or their
functions. Principal consequences are: increased costs for water pollution control and treatment of
drinking water, higher costs from Hood damages, and a decreased value of wildlife, timber, and crops.
A growing academic discipline is addressing natural resource economics, and in the foreseeable
future it may be possible to estimate the economic costs of wetlands loss with more precision.
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It shall be the goal of the State of Tennessee to provide the
maximum practicable wetlands benefits toTennesseeand her
citizens by conserving, enhancing, and restoring the acreage,
quality, and biological diversity of Tennessee wetlands.
The management of wetlands and protection of their vital functions for the benefit of Tennessee
citizens is a formidable challenge. It will require shared vision, intelligent resource-based planning, long
term commitment, and consistent cooperation. We do not now have all the knowledge needed to prepare
a comprehensive plan—but we can agree on a statewide goal and objectives, and the actions needed to
realize that goal.
The state's goal acknowledges that the majority of the state's wetland resources are currently in
private ownership and management, and are likely to remain so. It follows that many management
decisions that will affect the quality and functions of wetlands will be made by individuals, private
corporations or non-profit organizations.
For this reason, one theme of the strategy is to provide private owners of wetlands with the in-
formation they need to make informed management decisions that will benefit the owner, and at the same
time protect wetlands functions and the public benefits that flow from wetlands. The strategy calls for
the state to collect and share information about the resource, and to offer technical assistance to private
wetlands landowners, upon request.
The Strategy places responsibility for data collection and analysis with the State. Responsibili-
ties include inventory and characterization of the state's wetland resources, creation of a CIS-based
wetlands data base, research, analysis and long term monitoring of status and trends. The Strategy calls
for regular dissemination of technical information to planners and wetlands managers.
The Strategy calls for the State to identify unique wetlands and potential restoration sites, and
to rank them. TheStrategy endorses the existing state policy to acquire certain unique or exceptionally
high quality wetlands that provide many public benefits, and to manage these wetlands in such a way
as to protect or enhance their functions and benefits to die public. Another strong theme in the strategy
is enhancement and restoration of wetlands—public and private—to offset previous losses, and to
increase the resource base by approximately 10% by the year 2000.
The State has a broad mandate to protect the waters of the state—including wetlands. It shares
this mandate with federal agencies. The Strategy recognizes the need for an effective regulatory pro-
gram, and offers recommendations with regard to water quality standards, record keeping and follow up
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of mitigation projects.
The conservation of wetlands is an institutional challenge, as well as a resource management
challenge. Wetlands management is fragmented and sometimes inconsistent; agency mandates and
program responsibilities may overlap or conflict. Public interests may not coincide with private
interests.
For this reason, another strong theme in the Strategy is coordination and cooperative action. The
Strategy calls for sharing the work load, sharing information, pooling resources, and consistent commu-
nication and coordination among agencies and interest groups. In short, the Strategy calls for the
creation of a working partnership between the public and private sectors.
The Strategy recognizes that the actions outlined in the Strategy will require a commitment of
staff and money. It endorses existing funding mechanisms, and calls on respective agencies to allocate
adequate funds to carry out the responsibilities assigned to them.
The Strategy outlines the basic elements of a comprehensive, long range plan to conserve
Tennessee wetlands and their functions. The plan elements will be developed incrementally over the
next few years as we characterize the resource and gain a more secure understanding of wetlands
functions.
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Ten objectives are recommended to achieve the state wetlands goal. They are:
1. To characterize the wetlands resource more completely and identify the critical functions
of the major types of wetlands in each physiographic province. Both regulatory and restora-
tion program managers need to understand the critical functions of major types of wetlands in
order to place a high priority on maintaining and enhancing these critical functions.
2. To identify and prioritize unique, exceptionally high qualUy,orscarcewetland community
types and sites for acquisition or other equally effective protection. Currently, there is lim-
ited information on exceptional wetlands in Tennessee. Certain unique, high-quality wetlands
deserve a higher level of protection because of the public benefits and ecological functions they
provide.
3. To identify priority wetlands restoration sites in each river corridor, based on site charac-
teristics and the distribution and functions of existing wetlands. The objective is not only
to target suitable sites for restoration, but to identify opportunities to restore the biological
integrity of river corridors at the landscape level.
4. To restore 70,000 acres of wetlands in west Tennessee by the year 2000. This objective calls
for the restoration of approximately 10,000 acres/year from 1993 through 2000, or about a 10%
gain in the acreage reported by Hefner and Brown (1984). The intent is to target marginal
croplands for voluntary wetlands restoration.
5. To achieve no overall net loss of the wetlands functional base in each USGS hydrologicunit.
While individual projects may result in gains in some wetlands, offsetting losses in others, the
result of the full array of regulatory and non-regulatory programs will be no further loss of
function in any hydrologic unit.
6. To develop the information needed to maintain or restore natural floodplain hydrology for
the sake of wetlands function. Every opportunity to restore natural meandering waterways
without artificial levees should be pursued. It is not the intent of this objective to fill in canals,
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or dredge filled-in streams to historic elevations. Restoration work would be targeted to cases
where a system is attempting to re-establish a stable equilibrium, and a relatively small
intervention would reinforce or enhance the natural process and restore hydrology.
7. To increase the level of benefits from wetlands on private land. Since a majority of Tennes-
see wetlands are in private ownership, it is important to sustain and enhance the economic
benefits of wetlands ownership and management. This may be achieved by education, technical
assistance, and incentive programs for private landowners. The sound management of wetlands
by private owners will assure that the public benefits of wetlands will be sustained.
8. To create more urban riparian/wetland greenbelt areas. The primary threats to wetlands at
the urban fringes, or within an urban community, are land development, construction and
associated road building. As an alternative to development, wetlands can become a community
asset if they are incorporated into an urban greenbelt plan or park and dedicated to low- impact
recreational use and/or storm water management.
9. To increase wetlands information delivery to local government, the public, and the schools.
Many critical wetlands decisions are made by local planning commissions and elected officials;
these decisions are subject to public scrutiny. It is important to provide current information on
the local wetlands resources to these communities to ensure informed resource management
decisions.
10. To establish meaningful wetlands use classifications and water quality standards to
protect those uses. This is an EPA requirement. Tennessee's classification and standards will
be based on wetland types and functions.
Specific actions to achieve these objectives are described in CHAPTER V.
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A. ORGANIZATIONAL RESPONSIBILITIES
In Tennessee, the responsibility for wetlands conservation and management is shared among
state and federal agencies, county and city planners, non-profit conservation organizations, corpora-
tions, and—ultimately—hundreds of private landowners who make day-to-day decisions about the
management and use of the resource. None of the agencies, organizations or individuals alone have a
sufficiently broad mandate, sufficient knowledge or resources (human or fiscal) to adequately protect
wetlands and conserve their functions.
A list of the agencies and organizations in Tennessee (with acronyms) which administer
programs affecting wetlands appears in TABLE 3. A more comprehensive description of these agencies
and a discussion of their mandates, responsibilities and recent program accomplishments is found in
APPENDIX D.
Tennessee wetlands managers and owners have made a conscious effort to work together—to
share information, pool resources and to act cooperatively in order to carry out their program respon-
sibilities for wetlands effectively and efficiently.
Wetlands program activities in Tennessee may be grouped into six major categories. A brief
overview of each category follows.
1. Data Collection, Analysis and Planning
At the federal level of government, the U.S. Fish and Wildlife Service (USFWS) has primary
responsibility for conducting periodic inventories, and analyzing the status and trends of the nation's
wetlands. TV A monitors the status of wetlands adjoining the Tennessee River, its tributaries, and
reservoirs. EPA, through Wetlands Program Development Grants and its ADID program supports
wetlands characterization and planning at state and local levels.
At the state level, the Department of Environment and Conservation (TDEC) and the Tennes-
see Wildlife Resources Agency (TWRA) collect and analyze data on wetlands water quality and the
occurrences of rare plants, animals and communities. TDEC includes wetlands in the State Comprehen-
sive Outdoor Recreation Plan. The Governor's State Planning Office (SPO) leads and coordinates state-
wide wetlands planning.
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TABLE 3
AGENCIES, ORGANIZATIONS AND PROGRAMS
AFFECTING TENNESSEE WETLANDS
I. FEDERAL AGENCIES AND PROGRAMS
United States Department of Agriculture (USDA)
Agricultural Stabilization and Conservation Service (ASCS)
Agriculture Conservation Program (ACP)
Conservation Reserve Program (CRP)
Wetlands Reserve Program (WRP)
Swampbuster
Soil Conservation Service (SCS)
Resource Conservation and Development Council Program (RC&D)
Farmers Home Administration (FmHA)
Forest Service (USFS)
Stewardship Incentive Program (SIP)
Forest Legacy Program (FLP)
United States Department of Defense (USDOD)
Army Corp of Engineers (USCOE)
Clean Water Act (Section 404) Permit Program (404)
Water Resources Development Act (Section 1135)
United States Department of the Interior
Fish and Wildlife Service (FWS)
National Wetlands Inventory (NWI)
Fish & Wildlife Coordination Act (FWCA)
National Wetlands Priority Conservation Plan (NWPCP)
North American Waterfowl Management Plan (NAWMP)
Fanners for Wildlife
Management of National Wildlife Refuges
Endangered Species Act
Geological Survey (USGS)
Cooperative Research Program
National Water Quality Assessment (NAWQA)
United States Environmental Protection Agency (EPA)
Wetlands Protection Development Grant Program (Section 104(b)(3))
Nonpoint Source Grant Program (NPS)
Clean Water Act, Section 404 Permit Review (404)
Advance Identification of Wetlands (ADID)
Tennessee Valley Authority (TVA)
Research and Technical Assistance
Constructed Wetlands Demonstrations
Management of Wetlands on TVA Reservoir Lands
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TABLE3(CONT.)
II. STATE AGENCIES AND PROGRAMS
Governor's State Planning Office (SPO)
Interagency Wetlands Committee (IWC)
Technical Working Group (TWG)
Department of Agriculture (TDA)
Division of Agriculture Resources (AR)
Technical Assistance
Nonpoint Source Technical Assistance
Division of Forestry (DF)
Forest Incentives Program (FIP)
Departinent of Environment and Conservation (TDEC)
Division of Water Pollution Control (WPC)
Clean Water Act, Section 401 Certification (401)
Nonpoint Source Program (NPS)
Aquatic Resource Alteration Permit Program (ARAP)
Division of Ecological Services (ES)
Natural Areas Registration
Biodiversity Program
Division of Recreation Services
Parks and Recreation Technical Assistance Service (PARTAS)
State Comprehensive Outdoor Recreation Plan (SCORP) and
Wetlands Addendum
Land and Water Conservation Fund (LWCF) Grants
Department of Economic and Community Development (TECD)
Local Planning (LP)
Development Districts PD'S)
Department of Transportation (TDOT)
Wetlands Mitigation Bank
Tennessee Wildlife Resources Agency (TWRA)
Geographic Information System (GIS)
Wetlands Acquisition Program (WAF)
Nonh American Waterfowl Management Plan (NAWMP) &
Tennessee Implementation Plan (TIP)
Management of Wildlife Management Areas, (WMA) Wildlife
Refuges (WR), Wildlife Observation Sites
Nongame Program (Habitat Protection)
Endangered/Threatened Species Act (ETS)
University of Tennessee (UT)
Water Resources Research Center (WRRC)
Institute for Public Service (IPS)
County Technical Assistance Services (CTAS)
Municipal Technical Advisory Services (MTAS)
Tennessee Technological University (TTU)
Center for the Management, Utilization and Protection of Water
(Water Center) _____
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TABLE 3 (CONT.)
PRIVATE CONSERVATION ORGANIZATIONS & LANDOWNERS
ASSOCIATIONS
Ducks Unlimited (DU)
Tennessee Conservation League (TCL)
The Nature Conservancy (TNC)
Tennessee Farm Bureau Federation (TFBF)
Tennessee Forestry Association (TFA)
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2. Research
At the federal level, the United States Geological Survey (USGS) conducts an active research
program, focusing on wetlands hydrology and functions. The USCOE, at its Waterways Experiment
S tation, conducts active research, with emphasis on modeling and development of a wetlands functional
assessment method. The USFWS, TVA, and EPA also sponsor or conduct wetlands research.
State research efforts are conducted primarily by scientists at its academic institutions, with
various sponsors. A major research effort, the Biodiversity Project, is led by the Tennessee Conserva-
tion League, with cooperation from both state and federal agencies.
3. Wetlands Acquisition, Restoration and Management
In recent years, acquisition of wetlands in Tennessee has been primarily a state function, led by
the TWRA with the active collaboration of TDEC and the Department of Agriculture (TDA). The
Tennessee Nature Conservancy (TNC) frequently assists the state's acquisition program.
Many of the wetlands purchased by TWRA, USFWS, or a State/Federal/Private joint venture are
restored or enhanced after purchase. The state Department of Transportation (TDOT) buys and restores
wetlands to mitigate unavoidable impacts of road construction on existing wetlands. Under a new
program mandate, the USCOE may restore wetlands if their degradation is a consequence of former
Corps projects.
At the federal level, the USFWS purchases wetlands and manages them. Easements on wetlands
may be acquired by Farmers Home Administration (FHA) in partial payment of loans.
Wetlands in public ownership are managed by the agencies—state or federal—that acquired
them.
4. Assistance to Private Landowners
Providing technical and financial assistance to wetlands landowners is an important program
activity for many state and federal agencies. Some of the programs affect wetlands directly—but most
affect them indirectly by improving the management of adjacent uplands.
At the federal level, technical and financial assistance is provided primarily by the U.S
Department of Agriculture (USDA) and its many targeted programs. The U.S. Forest Service offers
assistance to managers of forested wetlands through its Forest Stewardship Program. The State Division
of Forestry administers federal assistance programs at the local level. Similarly, the USFWS offers
technical and financial assistance for restoration and management of wetlands as wildlife habitat through
the Partners for Wildlife Program. EPA' s nonpoint source program provides funding for erosion control
and pollution reducing measures. TVA offers technical assistance to landowners within their river
corridors, upon request.
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At the state level, technical and financial assistance is offered by the several programs at IDA.
Of special note is a fully staffed and funded program to assist landowners to install best management
practices (BMP' s) on their property to reduce nonpoint source pollution in wetlands or streams. TDEC-
WPC manages the EPA Non-Point Source (NPS) grant program within the state. The state Natural Areas
program operates a registry for privately owned sites of special biological significance, including
wetlands.
S. Regulation
Administration of Federal Section 404 (Clean Water Act) permit program, which regulates
dredge and fill activities in the waters of the United States including wetlands, is shared by the USCOE
and EPA.
At the state level, the Water Pollution Control Division of TDEC reviews and certifies Section
404 permits, and operates a state level Aquatic Resources Alteration Permit program (ARAP).
6. Public Information and Education
Almost every agency and organization makes an effort to educate landowners, wetlands users
and the public about wetlands, their functions and values. The agencies and organizations disseminate
information through publications, slide shows, video tapes, speakers and special events.
B. EVALUATION OF WETLAND PROGRAMS
The scope of this strategy does not allow a comprehensive assessment of each program, or a full
discussion of their respective strengths and limitations. Several programs are especially noteworthy, and
are commended by the TWG/IWC as a model for future program design. These are:
1. Tennessee Wetlands Acquisition Program - The acquisition program is well designed, targeted,
adequately funded, and broadly supported.
2. North American Waterfowl Management Plan - This conservation program has had a stunning
impact on the resource, in dollars and acres. It is a cooperative, public-private partnership with
specific, clearly defined goals. It is "politically correct," non-confrontational, and targeted-
both geographically and with respect to the resources.
3. The Regulatory Programs (Sections 404, 401, and ARAP) - These permit programs are
controversial; however, they arguably have curtailed loss of wetlands to development. The 401 -
404 permitting re view process has frequently resulted in plan modification, and reduced adverse
impacts on the resource. In many cases, degraded wetlands are being restored as a mitigation for
unavoidable adverse impacts. However, some landowners avoid ownership and management of
wetlands, because of regulatory restrictions.
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4. Federal Conservation Reserve Program (CRP)lWetlands Reserve Program (WRP) - CRP
provides successful upland erosion control, with downstream benefits to wetlands. WRP has the
potential for major impact if/when funded nationwide.
An effectively managed regulatory program combined with an incentive program for sound
management is suggested as an effective future strategy for wetlands conservation.
C. STRATEGY IMPLEMENTATION
The only agents for implementing the State Wetlands Conservation Strategy are the existing
agencies, organizations and programs. It is not likely that there will be any new wetlands program, or
a major wetlands program reorganization or consolidation. None is recommended in the strategy.
Instead the strategy assumes that implementation of the Action Plan described in Chapter V will be
through the programs and people now working to conserve wetlands and use them wisely. Close and
continuing coordination and cooperation will be required.
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A. STRATEGIC OBJECTIVES
This Chapter describes specific actions needed to meet the objectives first set forth in
Chapter m. Some of the action items are intended to improve the effectiveness of existing programs,
or to strengthen coordination and cooperative action. The Strategy will describe, at least in concept,
several new initiatives or programs needed to meet the stated objectives.
For each objective, the Strategy will state why the objective is important and in what order the
specific actions should be undertaken. For each action item, the Strategy identifies the agency or
agencies bearing primary implementation responsibility, and lists all cooperating agencies and organi-
zations.
In short, the Action Plan is intended to state who does what, when, and whv.
OBJECTIVE 1: TO CHARACTERIZE THE STATE'S WETLANDS RESOURCE
BASE MORE COMPLETELY AND IDENTIFY THE CRITICAL FUNCTIONS
OFTHE MAJOR TYPES OF WETLANDS IN EACH PHYSIOGRAPHIC PROV-
INCE
Why. In order to allocate scarce program and financial resources intelligently, the state must
consolidate existing information and collect additional information to complete an accurately located
and adequately characterized inventory of its wetlands resources.
Furthermore, both regulatory and restoration program managers need to identify and understand
the critical functions of major types of wetlands, in order to maintain and enhance these critical func-
tions.
The State Planning Office, with the guidance of the IWC-TWG, should seek funding for, and co-
ordinate a statewide effort to characterize its wetlands resources more adequately.
Specific actions include:
A. The State (TWRA) should identify appropriately geo-referenced wetlands-related digitized
data, and import it into the state CIS Wetlands database, where possible.
B. The State (TWRA, SPO) should request an appropriation (or seek other funding) to purchase
digitized NWI data from the USFWS for all undigitized Tennessee quadrangles and import it
into the state CIS wetlands database.
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C. As new county soils surveys are completed by SCS, the State (TWRA) should acquire and import
digital soils survey data into the state CIS wetlands database.
D. For recent soils surveys that are not digitized, the state (SPO, TWRA) and appropriate federal
agencies should initiate a systematic program to convert data to digital form and incorporate it
into the state CIS wetlands database. The state should:
(1) seek immediate funding to digitize soils maps for 21 west Tennessee counties;
(2) develop a schedule for acquiring and digitizing all soils data within 5 years; and
(3) prepare cost estimates for state-wide coverage.
E. The state (SPO, IWC-TWG) should seek funding for and coordinate the development of a
hydrogeomorphic functional assessment method, as a component of a comprehensive state
wetlands conservation plan. The following steps are included:
(1) refine the description of 10 types of wetlands in Tennessee, using a hydrogeomorphic ap-
proach;
(2) develop a basic description, and/or identify one or more reference wetlands, for each
type;
(3) identify wetlands types on selected test quadrangles and field-verify the basic descrip-
tions;
(4) identify and describe wetlands functions associated with each type; and
(5) develop criteria, and a standard state-level hydrogeomorphic assessment method, for the
functional assessment of wetlands.
F. The state (SPO, IWC-TWG, and the University Water Centers) and appropriate federal agencies
should fund and conduct research or field investigations to characterize wetlands hydrology and
ecological functions more precisely.
OBJECTIVE 2: IDENTIFY AND PRIORITIZE UNIQUE, EXCEPTIONALLY
HIGH QUALITY, OR SCARCE WETLAND COMMUNITY TYPES AND SITES
FOR ACQUISITION, OR EQUALLY EFFECTIVE PROTECTION
Why. Certain unique, high-quality wetlands deserve a higher level of protection because of the
public benefits and ecological functions they provide. Examples of exceptional wetlands include: those
wetlands which provide habitat for a threatened or endangered species or an ecosystem; wetlands that
represent a rare type in Tennessee; and wetlands that are of special value because of their function. Each
agency should develop its own criteria for an "exceptional wetland," based on its specific statutory man-
dates and program responsibilities. Unique wetlands should be identified and acquired (or otherwise
protected) before development, conversion or other adverse change in land use is proposed.
32
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There has never been a comprehensive state-wide search for unique or exceptional wetlands in
Tennessee. Previous state wetlands inventory and assessment work has been concentrated largely in
west Tennessee watersheds. The state has limited information about the location, extent or condition
of unique wetlands in the eastern two-thirds of the state. However, several analyses have been done
based on topographic maps, NWI, or the occurrences of certain plant species. A systematic review and
analysis of this body of literature should yield a master list of candidate sites. The acquired information
could be used by several state programs to establish priorities and allocate available resources for
acquisition, or less than fee protection.
Specific actions to implement this objective include:
A. TDEC-ES and the Protection Planning Committee (PPC) should review recent academic studies
and literature and compile a master list of candidate sites to be investigated and evaluated as
exceptional wetlands.
B. All participating state agencies and private organizations should support and fund the inter-
agency Biodiversity and Gap Analysis, in order to complete the project's initial phase within 5
years. Based on the GAP analysis, participating state agencies should:
(1) identify and locate wetlands which support rare organisms or are otherwise of high
ecological significance;
(2) use the collected data to guide future intensive inventory efforts, including remote
sensing and related ground truthing; and
(3) establish a priority list of high-quality wetlands for acquisition and/or other protection
measures.
C The state (TWRA, TDEC-ES, PPC and TDOT) should strengthen the coordination of their
priority lists for full fee and/or less-than-fee acquisition programs, and coordinate them with
federal agencies and private organizations. The agencies should:
(1) add objectives and criteria for protection of unique wetlands;
(2) revisit current procedure for assigning priority;
(3) schedule and carry out more extensive field work to:
* identify rare species/communities;
* develop a uniform methodology for quality judgement;
* share information; and
(4) consider placing a high priority on rare and unique wetlands for protection using
conservation approaches other than fee simple acquisition.
D. The state (TWRA) should continue the existing Wetlands Acquisition Program, at current levels,
indefinitely.
E. The state (TDEC-ES) should encourage the Natural Areas Program to include unique wetlands
as candidates for acquisition, using LWCF, or transfer tax funds.
F. The state (TDEC-WPC) should, within 2 years, promulgate criteria and designate selected high
33
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quality, rare or unique wetlands as "Outstanding Resource Wetlands". Such formally designated
wetlands will require additional scrutiny, or more stringent restriction son any proposed permits
for projects which would affect their water quality, and/or critical wetlands functions.
G. The state (TWRA, TDEC) and non-profit organizations should request the USFWS to renew its
acquisition programs in Tennessee for purchase of rare or species- rich wetland sites.
H. The State (TWRA, TDEC, TDA, TDOT and the Tennessee Department of Finance and Admini-
stration) should establish andmaintain the legal framework and cooperative atmosphere for joint
ventures or public/private partnerships with federal agencies, local governments, businesses and
private, non-profit conservation organizations that share a common goal of protecting/acquiring
rare or unique wetlands.
These entities should focus on strategies that meet conservation intent, reduce total costs and
accelerate closure once willing sellers in priority project areas are identified. These entities
should also develop strategies that facilitate the acceptance and appropriate monitoring of
mandated, purchased, and donated conservation easements and fee simple interests associated
with mitigation requirements.
OBJECTIVE 3: IDENTIFY PRIORITY WETLANDS RESTORATION SITES
IN EACH RIVER CORRIDOR BASED ON SITE CHARACTERISTICS AND
THE DISTRIBUTION AND FUNCTIONS OF EXISTING WETLANDS
Why. This objective is intended not only to target suitable sites for restoration, but to identify
opportunities to restore the biological integrity of river corridors at the landscape level, including
consideration of corridors, contiguousness, and patch size. Identification should be site specific, and
representative of landscape types. The candidate sites should be organized according to hydrologic
units, watersheds, or existing basin authorities.
The process should also identify prime farmland, recognize its value for agricultural production,
and consider this factor in assigning priority as a restoration site.
Specific actions to carry out this objective are:
A. The state (SPO, IWC-TWG) should develop, within 2 years, specific criteria to be used to
evaluate and rank candidate restoration sites, and to predict the probable success of restoration.
The development of criteria will require the collection of data and information on hydrology, but
probably little additional research. Factors to be considered should include:
* landscape unity;
* important functions to be performed by restored wetlands;
* presence of hydric soils;
* restorable hydrology; and
* agricultural production potential.
34
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B. The field staff of all state and federal wetlands-related agencies should identify candidate wetland
restoration sites in the course of their regular responsibilities and add them to a common list, or
database (maintained by SPO or TDEC-ES) for further evaluation.
C. Using the evaluation criteria, the state (SPO, TWG-IWC) should coordinate the evaluation of
candidate restoration sites, prepare a list of priority restoration sites and distribute it to state and
federal resource managers, local government officials, technical assistance providers, private
landowners and wetlands conservation organizations.
D. The State should test the hypothesis that the presence of hydric soils is a reliable predictor of
probable restoration success by determining the relationship between specific hydric soils and
inventoried wetlands. As soils maps are imported into the CIS wetlands database, TWRA, SPO
and the IWC-TWG should:
(1) examine the correlation between hydric soils and NWI wetlands in the 21 West Tennessee
counties; and
(2) examine soils/wetlands correlations in other watersheds, where hydric soils data is
digitized.
E. The state (SPO and cooperating agencies) should consider the possible reformulation of the West
Tennessee Tributaries project as an opportunity to demonstrate a significant wetlands restora-
tion, under Section 1135 of the Water Resources Development Act of 1990.
OBJECTIVE 4: RESTORE 70,000 ACRES OF WETLANDS IN WEST TEN-
NESSEE BY THE YEAR 2,000
Why. This objective calls for the restoration of approximately 10,000 acres per year from 1993
through 2000.
This represents approximately a 10% gain over the wetlands acreage reported by the 1984 NWI.
It should be clearly understood that the objective targets restoration ofmarginal cropland to a functional
wetland; it does not seek to affect prime agricultural land:
The universe of prime candidate restoration sites overlaps, but does not coincide with, the
universe of priority acquisition sites. Restoration projects should be designed and carried out by each
agency, according to its mission. Information will be shared, and work coordinated by the SPO and the
IWC-TWG.
To realize this objective, the following actions are recommended:
A. The SPO and the IWC-TWG should develop a common definition for "restoration" and develop
restoration criteria for each wetland type.
35
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B. The SPO and the IWC-TWG should develop a consolidated list of priority candidate wetlands
restoration sites and disseminate the list widely to state and federal program planners and manag-
ers (See Objective 3.C).
C. The TWRA should encourage and institutionalize joint ventures with private non-profit
organizations to implement the North American Waterfowl Management Project and/or other
wetlands restoration projects.
D. The TWRA should consider use of the federal "Aid to Fisheries Act" (Wallop-Breaux) funds to
enhance or restore fisheries in acquired wetlands, where necessary.
E. The TDEC-WPC should seek funding through CWA Nonpoint Source Abatement programs
(Section 319 (h)) to restore and improve wetlands for water quality enhancement and related
functions.
F. The TDA-AR should continue its cost-sharing program for private landowners to implement
NPS BMPs on private land.
G. The TDA-DF should place priority on wetlands restoration in administering the national
Stewardship Incentive Program (SIP) on private land.
H. The TDOT should continue its mitigation banking program to restore wetlands in compensation
for unavoidable adverse impacts of road construction on wetlands.
I. The USFWS should promote and implement the "Partners for Wildlife" program in Tennessee
to restore wetlands functions supporting wildlife on privately-owned wetlands.
J. All state/local agencies should cooperate with the USCOE to utilize Section 1135 programs to
restore wetlands or wetlands functions in eligible Tennessee hydrologic units or watersheds.
K. The state (TDA and SPO) should seek the support of the Tennessee Farm Bureau Federation
(TFBF) to designate Tennessee as a participating state in the next funding cycle of the USDA
Wetlands Reserve Program (WRP).
L. The SPO and the IWC-TWG should track and evaluate state restoration projects. The group
should record the number of acres restored (an administrative function) and document restora-
tion of function, where possible (a research function). (See CHAPTER VII.)
M. The tracking system should be coordinated with the North American Waterfowl Management
Plan Tracking System (The system identifies wetlands on public lands acquired and restored;
wetlands on private land registered in a joint venture project; wetlands on private land
participating in the Partners for Wildlife programs; and wetlands on private land under USDA
conservation program contracts (see CHAPTER VII).
N. The SPO and IWC-TWG should prepare and issue an annual report to the Governor and
legislature on the status of restoration projections and, if appropriate, offer recommendations to
state leaders on revising the state's long range wetlands restoration strategy (see CHAPTER VII).
36
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OBJECTIVE 5: ACHIEVE NO OVERALL NET LOSS OF THE WETLANDS
FUNCTIONAL BASE IN EACH USGS HYDROLOGIC UNIT
Why. While individual projects will involve gains in some hydrologic units off-setting losses
in other units, the result of the full array of both regulatory and voluntary cooperative wetlands programs
should be no further loss of wetlands function(s) in any hydrologic unit, or sub-unit. To meet this
objective, the state should designate a lead agency for wetlands resource monitoring and fund the
necessary data collection and analysis adequately. All state and federal agencies should participate.
Many state agencies generate or collect data on wetlands functions related to their specific
programs, e.g. waterfowl habitat, or water quality. However, there is currently no single state agency
or program specifically charged with the continuing responsibility to compile ^available qualitative
and quantitative data on Tennessee wetlands location, condition, and functions—or to collect new data,
where it is lacking. Neither is any agency directed to establish a clearinghouse and archive, to assess the
status of the state's wetlands resources, and monitor trends over time.
In CHAPTER VI, the strategy strongly endorses a continuing oversight and coordinating role for
the Governor's State Planning Office, through the existing Interagency Wetlands Committee, or a
permanent statutory Wetlands Conservation Commission. This responsibility now requiries about 50%
of one full time professional staff position. One additional permanent staff member will be needed to
develop and administer a permanent program to receive, compile, collect and correlate wetlands data,
to carry out periodic status and trends analyses, and to prepare reports, as described in CHAPTER VII.
Specific action items include:
A. TDEC-WPC should apply the principals of the Interim Wetlands Mitigation Policy, adopted by
the IWC (within each hydrologic unit, where feasible) in the implementation of the wetlands
regulatory program (See APPENDIX C).
B. The Governor should designate the SPO as the lead agency to coordinate and oversee a long term
program to monitor Tennessee wetlands resources and their functions; SPO should establish at
least one full time position to cany out this responsibility.
C. The SPO, in cooperation with all agencies and organizations participating in the Interagency
Wetlands Committee, should document the current status of, and where data is available, the
functions provided by the state's wetlands resource base according to USGS hydrologic units.
(See Objective 1, A, B, and E.)
D. The SPO, in cooperation with other agencies, should define (or initiate research to define) the
major functions provided by the state's wetlands, according to USGS hydrologic unit. (See
Objectives IE and 6.)
37
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E. The IWC-TWG and the SPO should design a common framework for entering, storing and
analyzing statistical data collected by cooperating agencies. (Geographic data should be in
digital form, when possible, for importation into the state-wide CIS wetlands database). (See
CHAPTER VII.)
F. The SPO staff should compile and update the monitoring data, at least biennially. On a six year
cycle, SPO should correlate, and analyze the information to prepare a detailed "status and trends"
report on Tennessee's wetlands resources. The study should specifically evaluate the state's
wetlands resource base in the context of the "No Overall Net Loss of Function" objective. (See
CHAPTER VII.)
G. Based on the status and trends conclusions the IWC-TWG should evaluate the "No Overall Net
Loss of Function" objective, and if the goal has not been achieved, prepare recommendations to
the state leaders to strengthen both regulatory and the voluntary cooperative state programs.
OBJECTIVE fr DEVELOP THE INFORMATION NEEDED TO MAINTAIN OR
RESTORE "NATURAL" FLOOD PLAIN HYDROLOGY FOR THE SAKE OF
WETLAND FUNCTION
Why. The behavior of water—the hydrologic regime—is the engine that drives wetlands
function. Our understanding of the "natural" hydrology of flood plains and the interactions of rivers,
lakes, and aquifers with associated wetlands is incomplete, and should be systematically addressed by
a cooperative research program, tailored to meet state wetlands information needs. Projects including
demonstration of techniques for restoring or maintaining natural floodplam hydrology should also
include sufficient monitoring and follow up work to permit an assessment of the effectiveness and
transferability of these techniques.
As our understanding grows, every opportunity to restore natural meandering waterways
without artificial levees should be pursued. It is not the intent of this objective to fill in existing canals,
or to dredge all streams to historic elevations.
Restoration work would be targeted to those instances where a river system is attempting to re-
establish a stable equilibrium, and a relatively small intervention would reinforce or enhance the natural
process and restore hydrology.
A. The SPO and the IWC-TWG should sponsor an annual meeting to allow wetlands researchers
to report their findings and to solicit recommendations on future research needs, and areas in
which research is most needed. A list of tentative research needs adopted by the IWC-TWG
appears in APPENDIX E.
B. When research needs have been determined, SPO and the IWC-TWG should identify an
appropriate agency to sponsor fund, or conduct the needed research.
38
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C. All research organizations (USGS, WRRC, TTU Water Center) should interpret and communi-
cate relevant findings on wetland and floodplain hydrology to program managers and land-
owners.
D. State resource management agencies should design and fund projects demonstrating restoration
of wetland hydrology and incorporating natural meandering waterways.
E. State and federal agencies should support the demonstration of the restoration of wetlands and
natural floodplain hydrology as components of agricultural and other flood damage reduction
projects and project maintenance.
OBJECTIVE 7; INCREASE THE LEVEL OF BENEFITS FROM WETLANDS
ON PRIVATE LAND
.. Since a majority of Tennessee wetlands are in private ownership, it is important to sustain
and enhance the economic benefits of wetlands ownership and management. This may be achieved by
education, technical assistance, and incentive programs for private landowners. The sound management
of wetlands by private owners will assure that the benefits of wetlands to society are sustained.
The following specific actions are recommended:
A. The State (TDA, UT-AES) and federal assistance agencies (USDA) should strengthen wetlands
information delivery at the county level, using existing networks and staff.
Suggested activities include:
(1) select a lead agency (TDA) to coordinate delivery of information;
(2) establish an information clearinghouse at the county level, preferably at the Soil
Conservation District office;
(3) request the UT-AES to develop and deliver a wetlands education program for technical
assistance staff, and landowners;
(4) develop a comprehensive brochure and directory promoting the value of wetlands and
describing available programs to assist landowners in effective wetlands protection and
management; and
(5) develop a special program to recognize and reward landowners who protect wetlands.
B. TDA should employ at least one full-time employee to train and work with the county assistance
providers, and/or directly with landowners to manage/protect wetlands and wetlands functions.
C. The State (TDA-DF) and federal assistance agencies should provide technical assistance and
cost-share programs to restore convened marginal cropland to bottomland hardwood forests. -
D. The State (TDA) and federal assistance agencies should provide technical assistance to
landowners who wish to establish or restore natural hydrologic conditions for bottomland
hardwood forests. 39
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E. The State (TDA) and federal assistance agencies should provide technical assistance to
landowners to allow winter flooding of cropped fields (between October and March) to enhance
waterfowl habitat and conserve soil moisture.
F. The State (TDA, TWRA) and federal assistance programs should provide technical assistance
and information on planting waterfowl food crops compatible with landowners crop production
regimes.
G. The State should continue to support assistance and incentive programs that protect and enhance
wetlands, and investigate the use of tax incentives for landowners who protect wetlands.
OBJECTIVE 8: CREATE MORE URBAN RIPARIAWWETLAND GREEN-
BELT AREAS
Why, The primary threats to wetlands at the urban fringes, or within an urban community, are
land development and associated road construction. As an alternative to development, wetlands can
become a community asset if they are incorporated into an urban greenbelt plan or a park and dedicated
to low impact recreational use.
A. The TDEC Division of Recreation Services (RS) should incorporate wetlands conservation sites
and riparian greenbelts into its Parks and Recreation Technical Assistance Service (PARTAS)
and funding assistance (LWCF) programs to local governments.
B. The SPOandthe IWC-TWG should coordinate with, andencourage the federal conservation and
recreation agencies to include wetlands in urban greenbelt plans, (for example, USDI-NPS
Rivers and Trails, TVA's Rood Reduction and Clean Rivers programs).
C. The TDA-DF s Urban Forestry Program should include forested wetlands protection strategies
in its activities.
D. The state wetlands regulatory program (TDEC-WPC) should coordinate potential wetland
mitigation projects with established urban greenbelt plans. Both state and federal agencies
(TDEC-WPC and US COE) should:
{1) encourage communities to incorporate wetlands and floodplains into a greenbelt
concept; and
(2) should make urban community planners aware of financial assistance for greenway
projects.
E. The Department of Economic and Community Development Local Planning Division (ECD-
LP) should encourage local governments to consider wetlands in their Federal Emergency
Management Agency (FEMA) flood insurance plans. (Urban wetlands can be protected, as
floodways are drawn on flood protection maps.)
40
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OBJECTrVE 9: INCREASE WETLANDS INFORMATION DELIVERY TO
LOCAL GOVERNMENTS, THE PUBLIC, AND THE SCHOOLS
.. Many critical wetlands decisions are made by private land developers, regulated by local
planning commissions or local elected officials. Land-use decisions are subject to public review and
scrutiny. It is important to provide current information on the affected wetlands resource to all interests
(developer, local government and the public) to facilitate informed decisions.
The state should encourage local communities to protect wetlands functions, or to incorporate
wetlands and floodplains into conservation programs that monitor and enhance natural wetlands
functions, with emphasis on water quality, flood flow attenuation, wildlife habitat, open space and
greenway continuity, recreation and education.
It is also important for young people to understand the characteristics and functions of wetlands,
as an element of a sound environment.
Specific actions include:
A. All state and federal agencies should provide copies of wetlands plans, maps and reports to state
university and regional library reference room collections.
B. The SPO and the IWC-TWG should develop and distribute a brochure targeted at County/City
officials summarizing general values of wetlands and providing a directory of program managers
and assistance providers.
C. The SPO and TWRA should make current wetlands maps, hydrologic data, and acquisition/
restoration priority lists available to local planning commissions who review development plans;
and to the local assistance providers who advise local governments (ECD-LP, UT-IPS MTAS
and CTAS Advisors), professional planning associations, and architectural/engineering consult-
ants.
D. The Biodiversity project should include specific wetlands information in county resource maps
to be developed by the project to support sound natural resource conservation in land use
decisions by local government.
E. The TDEC-WPC and ECD-LP should encourage communities where rapid growth may threaten
wetlands functions, to apply for a planning grant and assistance from EPA and USCOE, in order
to undertake a joint wetlands Advanced Identification study (ADID) to guide future regulatory
decisions.
F. The SPO should expand the membership of the Governor's IWC to include a commercial
developer, a local government representative, and a planner.
41
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G. SPO should prepare information about wetland functions, values, and management to be
included in the in-service teacher training delivered by the Department of Education's CENTS
program.
H. TVA should incorporate wetlands information and management into its River Action Team/
Clean River initiatives and programs.
OBJECTIVE 10: ESTABLISH MEANINGFUL STATE WETLANDS USE
CLASSIFICATIONS AND WATER QUALITY STANDARDS
WJiy.. The TDEC must develop and promulgate wetlands water quality standards as required by EPA.
TDEC-WPC has received a grant to support this work. Tennessee's classification and standards will be
based on wetlands types and functions as described in the wetlands conservation strategy.
Specific milestones include:
A. Develop a classification system that encompasses all wetland types in the state.
B. Designate uses for each wetlands type. The uses shall be based on the functions and values
attributable to wetlands.
C. Develop aesthetic and biological narrative criteria to protect the classified uses.
D. Adopt existing numeric water quality standards for those wetlands that are adjacent to or hydrol-
ogically connected to surface waters.
E. Develop criteria for Outstanding Resource Wetlands (ORW).
F. Extend the antidegradation policy and implementation methods to wetlands.
The assignment of Implementation and Reporting Responsibilities is summarized in
TABLE 4.
B. ACTION PRIORITIES
All of the ten objectives are important and interrelated. None of them is trivial. Nevertheless,
the state clearly does not have sufficient information, adequate tools, enough people or money to
undertake all of the individual action items simultaneously.
Neither must the state be overwhelmed by the magnitude and complexity of the task to the point
of paralysis. Instead, it is necessary to establish priorities, share data, talent and information, and/or to
phase the recommended programs in over several years as more resources are allocated to wetlands
conservation. Estimated staffing and budgetary needs (where they can be determined), and a tentative
timetable for implementation are discussed in CHAPTER VI.
42
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TABLE 4
OBJECTIVE NUMBER
1 . CHARACTERIZE WETLANDS AND
IDENTIFY THEIR FUNCTIONS
2 IDENTIFY UNIQUE OR EXCEPTIONALLY
HIGH QUALITY WETLANDS FOR
ACQUISITION OR OTHER PROTECTION
ACTION ITEM NUMBER
A. Identify and import digitized data into the stale CIS.
B. Request funds to buy digitized NWI data for the
state CIS.
C. Acquire and import digitized soils survey data into
the state CIS.
D. Initiate a program to digitize remaining soil survey
data and import it into the state CIS.
E. Seek funding to develop a hydrogeomorphic
functional assessment method as pan of a slate WCP.
F. Fund and conduct research/field studies to
characterize wetlands hydrology and ecological
functions.
A. Review recent academic studies & compile a master
list of candidate sites for Held investigation.
B. Support & fund biodiversity and GAP analysis
project.
C. Strengthen coordination of priority lists.
D. Continue ex isting wetlands acquisition program at
current level.
E. Acquire wetlands through LWCF.
PRIMARY
IMPLEMENTING
AGENCIES
TWRA
TWRA
SPO
TWRA
TWRA
SPO
SPO
SPO
TDEC-ES
All Agencies &
Non-Profits
TWRA
TDEC-ES
PPC
TDOT
TNC
TWRA
TDEC-ES
COOPERATING
AGENCIES
USFWS
SCS
TVA
TDEC-ES
SCS
SCS
IWC-TWG
IWC-TWG
TTU- Water Center
IWC-TWG
UT-WRRC
TTU-Water Center
PPC
All Agencies
USFWS
FMHA
NPS
TDA
Local Governments
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TABLE 4 (CONT.)
SUMMARY OF IMPLEMENTATION AND REPORTING RESPONSIBILITIES
OBJECTIVE NUMBER ACTION ITEM NUMBER
2. (CONTINUED) F. Prom ul gale criteria and designate selected wetlands
as "outstanding resource wetlands".
G. Request USFWS to renew acquisition of species-rich
wetlands in Tennessee.
H. Establish legal framework and cooperative
atmosphere Tor public/private partnerships or
joint ventures to acquire unique wetlands and
monitor them.
3. IDENTIFY PRIORITY WETLANDS A. Develop criteria to evaluate and rank candidate
RESTORATION SITES restoration sites.
R. Identify candidate sites and add them to a common
list (database) for evaluation.
C. Evaluate candidate sites; prepare and distribute
a priority list to resource managers.
D. Test hydric soils as a predictor of successful
restoration.
E. Consider reformulating WTT project as a wetlands
restoration demonstration under Section 1 135.
4. RESTORE 70.000 ACRES OF WEST A. Define "restoration" and develop restoration
TENNESSEE WETLANDS BY 2000 criteria for each wetland type.
B. Develop a consolidated list of priority candidate
sites & distribute it.
PRIMARY
IMPLEMENTING
AGENCIES
TDEC-WPC
TWRA
TDEC-ES
TWRA
TDEC
TDA
TF/A
TDOT
SPO
SPO
TDEC-ES
SPO
TWRA
SPO
SPO
USCOE
WTT Committee
SPO
SPO
COOPERATING
AGENCIES
All Agencies
USFWS
Federal Agencies
Non-Profits
Corporations
Local Governments
IWC-TWG
All Agencies
Field Staff
All Agencies
IWC-TWG
All Agencies
IWC-TWG
All Agencies
WTT
FWC-TWG
IWC-TWG
All Agencies
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TABLE 4
SUMMARY OF IMPI.F.MFNTATinN AND RF.PORTINfi RESPONSIIUMTIFS
OBJECTIVE NUMBER
4. (CONTINUED) C.
D.
E.
F.
G.
H.
I.
J.
K.
L.
M.
ACTION ITEM NUMBER
Encourage joint ventures to implement North
American Waterfowl Plan state implementation
plan.
Consider use or "Wallop-Breaux funds" to restore
wetlands functions supporting fisheries.
Target EPA/state NPS grant program to improve
water quality related functions in wetlands.
Continue state cost sharing program for landowners
to implement NPS BMFs.
Place priority on wetland restoration in USFS/TDA
forest stewardship incentive program for landowners.
Continue mitigation banks to compensate
unavoidable impacts of road building.
Promote and implement "Partners for Wildlife"
technical assistance program.
Utilize Section 1 1 35 to restore wetlands and/or
wetlands function.
Seek participation of state in federal wetlands
reserve program (WRP).
Monitor and evaluate state restoration projects.
recording acreage and function (See Chapter VII).
Coordinate state tracking system with annual
PRIMARY
IMPLEMENTING
AGENCIES
TWRA
TDEC
TDA
TF/A
TOOT
TWRA
TDEC-WPC
EPA
TDA
TDA-DF
USFS
TDOT
USFWS
USCOE
TDA
SPO
TFBF
SPO
IWC-TWG
SPO
COOPERATING
AGENCIES
Federal Agencies
Non-Profits
Corporations
Local Governments
TDA
USDA Agencies
USDA Agencies
USDA Agencies
TDEC-WPC
TDA-DF
TWRA
TWRA
All Slate/Local Agencies
SCS
SCO'S
RC&D'S
uses
TTU/UT
All Agencies
TWRA
in
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TABLE 4 (CONT.)
SUMMARY OF IMPLEMENTATION AND REPORTING RESPONSIBILITIES
OBJECTIVE NUMBER
4. (CONTINUED) N.
5. ACHIEVE NO OVERALL A.
NET LOSS OF WETLAND
FUNCTIONS
B.
C.
D.
E
F.
G.
6. DEVELOP INFORMATION TO A.
RESTORE "NATURAL" FLOOD
PLAIN HYDROLOGY
B.
ACTION ITEM NUMBER
Prepare biennial report to Governor and General
Assembly on status or restoration projects
(See Chapter VII).
Apply interim wetlands mitigation policy in the
stale's regulatory program.
Designate SPO to coordinate and oversee long
term monitoring program, and employ staff.
Document current status and known functions
of the slate's wetlands.
Assess (or initiate research to define) the major
functions provided by the stale's wetlands.
Design a common reporting formal for entry
and storage of monitoring data.
Compile and update monitoring data.'biennially,
and prepare an analysis and report every 6 years.
Evaluate, and prepare recommendations for
program revisions.
Sponsor annual wetlands research needs
conference.
Identify agency to sponsor or conduct needed
research.
PRIMARY
IMPLEMENTING
AGENCIES
SPO
TDEC-WPC
USCOE
Governor
SPO
SPO
IWC-TWG
SPO
IWC-TWG
SPO
IWC-TWG
TWRA
SPO
rwc-Two
SPO
IWC-TWG
SPO
SPO
IWC-TWG
COOPERATING
AGENCIES
IWC-TWG
All Agencies
All Reviewing Agencies
AH Agencies
uses
UT-WRRC
TTU- Water Center
All Agencies
All Agencies
All Agencies
IWC-TWG
All Agencies
uses
UT-WRRC
TTU- Water Center
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TABLE 4 (CONT.)
SUMMARY OF IMPLEMENTATION AND RFPORTINP. RESPONSIBILITIES
OBJECTIVE NUMBER
ACTION ITEM NUMBER
PRIMARY
IMPLEMENTING
AGENCIES
COOPERATING
AGENCIES
(CONTINUED)
D.
E.
Research agencies should report and interpret
findings to program managers & landowners.
Support demonstration projects.
Include natural floodplain hydrology/wetlands
restoration in flood damage reduction projects.
USGS
UT-WRRC
TTU-Watcr Center
All Agencies
USCOE
All Agencies
SCS
TDA
USDA Agencies
7. INCREASE THE LEVEL OF
WETLANDS BENEFITS
A. Strengthen wetlands information delivery at the
county level.
B. Employ full time trainer & coordinator Tor local
assistance providers.
C. Provide technical assistance and cosl sharing lo
restore convened marginal cropland to bottomland
hardwood forests.
D Provide technical assistance 10 restore natural
hydrology to bottomland hardwood forest land.
E. Provide technical assistance to promote winter
flooding of cropland.
F. Provide technical assistance in selecting compatible
food crops for waterfowl.
G. Support technical and financial assistance to
protect wetlands and investigate possible tax
incentives for landowners who do.
TDA
UT-AES
USDA Agencies
TDA
TDA-DF
TDA-DF
TDA
TDA
TWRA
TDA
USFS
USDA Agencies
USDA Agencies
USFS
TVA
USDA Agencies
TVA
USDA Agencies
IWC-TWG
All Agencies
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TABLE 4 (CONT.)
SUMMARY OF IMPLEMENTATION AND REPORTING RESPONSIBILITIES
OBJECTIVE NUMBER
ACTION ITEM NUMBER
PRIMARY
IMPLEMENTING
AGENCIES
COOPERATING
AGENCIES
g. CREATE MORE
URBAN/RIPARIAN/WETLAND
GREENBELTS
A. Include wetlands and riparian greenbelts in
recreation assistance programs.
B. Coordinate stale wetlands conservation with
federal conservation and recreation programs.
C. Include forested wetlands in urban forestry
program.
D. Coordinate wetlands mitigation projects with
existing urban greenbelt plans.
E. Encourage local governments to protect wetlands
in flood insurance plans.
TDEC-RS
PARTAS
SPO
IWC-TWG
TDA-DF
TDEC-WPC
ECD-LP
Local Governments
National Park Service
TVA
TOOT
USCOE
Local Governments
FEMA
TVA
INCREASE DELIVERY OF WETLAND
INFORMATION TO LOCAL GOVERNMENT.
THE PUBLIC AND SCHOOLS
Provide copies of wetlands plans, maps and
technical reports to libraries.
Develop & publish a general brochure on
wetlands values, including a directory.
Make GIS maps and priority lists available to
local planners and advisors.
D. Include wetlands information in biodiversity
handbooks.
Consider sponsoring an ADID study in
communities where development threatens
wetland function.
All Agencies
SPO
TWRA
SPO
TCL
TWRA
TDEC-ES
USCOE
USEPA
Local Government
All Agencies
IWC-TWG
ECD-LP
UT-IPS
TVA
TDEC-WPC
TDEC-ES
TWRA & USFWS
-------
TABLE 4 (CONT.)
SUMMARY OF IMPLEMENTATION AND REPORTING RFSPONSIHIMTIES
OBJECTIVE NUMBER
ACTION ITEM NUMBER
PRIMARY
IMPLEMENTING
AGENCIES
COOPERATING
AGENCIES
(CONTINUED)
F. Expand IWC-TWG lo include other interest groups.
C. Develop wetlands function & values information
for in-service teacher training.
H. Include wetlands information in clean river
projects.
SPO
SPO
TVA
DED-CENTS
10. ESTABLISH STATE USE CLASSIFICATION
AND WATER QUALITY STANDARDS
FOR WETLANDS
A. Develop a classification system that
encompasses all wetland types in the state.
B. Designate uses for each wetland type. These uses
shall be based on the functions and values
attributable to wetlands.
C. Develop aesthetic and biological narrative
criteria to protect the the classified uses.
D. Adopt existing numeric water quality standards
for those wetlands that are adjacent or hydrologically
connected to surface waters.
E. Develop criteria for outstanding resource
wetlands (ORW).
F. Extend the antidegradation policy and
implementation methods to wetlands.
TDEC-WPC
TDEC-WPC
TDEC-WPC
TDEC-WPC
TDEC-WPC
TDEC-WPC
All Agencies
All Agencies
AH Agencies
All Agencies
All Agencies
All Agencies
-------
PRIORITY ONE. The highest priority for action is assigned to four Objectives. These are:
Objective 1. To Characterize the state's wetlands resources and identify their critical
functions.
Objective ?. To Identify and Prioritize Exceptional Wetlands for Acquisition.
Objective 3. To Identify Priority Wetlands Restoration Sites.
Objective 7. To Increase the Benefits from Wetlands on Private Land.
The first three objectives are clearly related. It is imperative that the state identify and
characterize its wetlands resource base more adequately than it has done in the past. We know
approximately the quantity and distribution of Tennessee's wetlands, but for thousands of acres of
wetlands we have no current data about their condition, or the functions that they provide.
Moreover, as was pointed out in Chapter I, while we have good information about a few wetlands
functions, and a general understanding of others, we have limited hard data about wetlands hydrology,
water quality and certain aspects of their ecological structure. The Strategy calls for the state to capture
existing data from many agencies, and to initiate a serious effort to collect new data on wetlands
functions.
Data acquisition efforts should begin in the river corridors of West Tennessee, and move to other
major river corridors and areas of wetlands concentration, and finally into areas of the state where
wetlands are localized and rare. The data will be compiled, and entered into a computerized format for
easy access by planners and program managers.
The need to identify the so-called "unique" wetlands is particularly acute. This information is
needed to guide decisions regarding the purchase and long term management of high quality wetlands—
those that are rare, that support rare plants and animals, or that represent typical unaltered ecosystems.
The Strategy calls for restoration of degraded wetlands. The state should develop a common
definition of "restoration", and compile a list of potential wetlands restoration sites where the probability
for successful restoration of beneficial wetlands function is high. The focus of accomplishing
restoration lies in the acquisition of restorable sites, or use of private land initiatives to encourage
restoration of marginal croplands.
The fourth high-priority objective calls for a comprehensive cooperative effort to provide
education, information, technical assistance, and in some cases, financial assistance to private landown-
ers in order to increase the benefits of wetlands ownership. Sound information and program flexibility
is as important to many landowners as financial incentives.
It is important to increase benefits—tangible and intangible—to those landowners or land
managers who are willing to protect and manage their wetlands in accordance with sound ecological
principals. Well managed and functional wetlands will also provide valued benefits to society. There
is no specific sequence in which the action items should be carried out; the technical assistance programs
can be tailored to a specific group of property owners, and delivered simultaneously.
50
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PRIORITY TWO. The second tier of Objectives also includes four objectives. These are:
Objective 4. To Restore 70,000 acres of Wetlands in West Tennessee by the Year 2000.
Objective 5. To achieve "No Overall Net Loss" of Wetland Function.
Objective 6. To Develop Information to Maintain or Restore "Natural Floodplain
Hydrology".
Objective 10. To Establish a Wetlands Use Classification and Water Quality Standards.
The successful implementation of Objective 4, which calls on the state to restore 70,000 acres
of degraded wetlands by the year 2000, coupled with the "No Overall Net Loss" Objective, would
increase the states resource base by approximately 10% over the next six years.
The research objectives—Objectives 5 and 6—were placed in the second group. Achieving
these objectives will require both time and money. Efforts should begin almost at once, but at a modest
scale, and be phased in over several years.
These two objectives may be initiated at a later date, if necessary, when adequate resources are
available to pursue them.
The Strategy recognizes that the development of a system of classification and water quality
standards for wetlands is needed at an early date. Clear regulatory criteria are needed to guide permitting
and wetlands management decisions.
PRIORITY THREE. The remaining two Objectives are important, but slightly less urgent, and are
placed in the third category. These Objectives are:
Objective 9. Increase delivery of Wetlands Information.
Objective 8. Create More Urban/Riparian Wetland Greenbelt Areas.
These two objectives may be initiated at a later date (if necessary), when the state's information
and understanding of wetlands is more complete, and resources are available to pursue them.
51
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52
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A. COORDINATION
The responsibility for wetlands conservation and management is decentralized and shared
among federal agencies and programs, state agencies and programs, regional organizations, county and
city planning commissions, and ultimately hundreds of private landowners who make day-to-day
decisions about their land.
It is imperative that these agencies and individuals share their knowledge and coordinate their
work andresources to implement the action plan outlined in CHAPTER V. The Governor's Interagency
Wetlands Committee, and its Technical Working Group, staffed by the Governor's State Planning
Office has proved to be an effective forum for information exchange, coordination, and planning. This
strong coordination function should be continued and the concept should be incorporated into the state's
long term strategy to conserve its wetlands.
As effective as it has been, the Interagency Wetlands Committee is an adJhfi£ group, convened
by the Governor and serving at his pleasure. It might not be retained by another administration.
For this reason, it is recommended that the state establish a permanent Wetlands Coordinating
Committee or Commission, staffed by the SPO. Legislation would be required. A statutory mandate
would confer long term stability and consistency of coordination and oversight.
It is recommended that the membership of a permanent committee be similar to that of the
existing committee, consisting of the leaders of state and federal agencies, conservation organizations
and landowner associations. Responsibilities should include information sharing, program coordina-
tion, and advising the Governor on wetlands policy, budgets and legislation.
The SPO would provide ongoing staff support to a permanent Wetlands Conservation Commit-
tee. SPO would continue to seek andadminister federal grants, draft andoversee publication of technical
reports and/or public information and educational materials, and coordinate wetlands programs with
similar cross cutting resource management programs in Tennessee—for example, the Biodiversity and
Gap Analysis efforts.
Because wetlands conservation and regulatory programs cut across so many boundaries, the
Strategy places major new resource monitoring and reporting responsibilities in the Governor's State
Planning Office. SPO is directed to assemble a state-wide wetlands information archive, identify re-
search and information needs, and to "keep score"—i.e., to monitor, analyze, and report on the state's
wetlands resources.
The proposed work load will require the establishment of one additional position to carry our
these monitoring and reporting duties, or to oversee a contract with an academic institution to do so.
53
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B. FUNDING
It is nearly impossible to calculate the financial resources now dedicated to Wetlands Conser-
vation in Tennessee, or to determine their cost-effectiveness with precision. An early attempt to do so
was abandoned by the TWO and staff.
This is due to the fact that the state's wetlands acquisition and restoration efforts, technical as-
sistance programs, and regulatory programs are dispersed among so many agencies, organizations and
programs. In some agencies, wetlands conservation is only pan of a broader program mission, and staff
and institutional support is shared. The state has no information on the wetlands conservation costs
incurred by private or non-profit organizations, or by private landowners.
In CHAPTER IV, the strategy identified several state and federal wetlands programs that were
considered to be efficient and cost effective. The strategy commends these programs, and recommends
their indefinite continuation at current or increased funding levels. These include: the state wetlands
acquisition program administered by TWRA; the North American Waterfowl Management Plan joint-
venture acquisition program; the federal USDA Wetlands Reserve Program (WRP); and the nonpoint
source (NPS) technical assistance program administered by TDA. In general, the strategy calls for the
indefinite continuation of these programs at current or expanded levels.
The Strategy also identified unmet needs and underfunded programs. Implementation of the
Action Plan outlined in CHAPTER V will clearly require a greater commitment of staff and money. The
state's existing programs must be efficiently administered, and the work carefully coordinated; but
additional resources will be required.
In general, three strategies to increase funding levels are suggested. These are:
1. The SPO should seek another EPA Wetlands Program Development grant to implement
elements of the Wetlands Conservation Strategy; complete a comprehensive state Wetlands
Conservation Plan (WCP); and monitor progress toward its implementation. SPO should
request an appropriation to provide the required state cost share.
2. All state agencies should compete for other federal grants/cooperative program opportunities
and allocate funds, or in-kind services to provide the required state cost share. Funding
assistance needs include:
* wetlands function research (SPO, TDEC);
* scanning and/or digitization of NWI data and recent soil surveys for counties in
the state where there are abundant wetlands (TWRA, SPO); and
* monitoring, evaluation, and trends analyses (SPO).
3. All state resource management agencies should pool their resources and data. All agencies
should contribute to and participate in state-wide, interagency data collection and evaluation
projects, such as the Biodiversity and GAP Analysis project; geo-referenced data should be
54
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collected in a compatible format and shared with the Wetlands datasets, the Biodiversity
datasets, the TDEC-TRIS, and Heritage databases.
C. IMPLEMENTATION SCHEDULE AND MILESTONES
The IWC-TWG discussed and arrived at consensus about priorities for action; their recommen-
dations have been discussed in CHAPTER V. The IWC-TWG identified four high priority objectives,
and recommended that these objectives be undertaken as soon as possible. It identified other objectives
that should be initiated immediately, at a modest level, and phased in over a period of several years. The
remaining objectives, although deemed to be important, may be deferred or reduced in scope if resources
are limited.
Each agency has carefully reviewed the Strategy document, to determine how it would carry out
the responsibilities assigned to it in the Action Plan. Each agency was asked to review the assigned action
items and determine their relative priority within the agency; to identify who within the agency would
carry out each designated action, and what it would cost; and to lay out a tentative schedule for initiating
and completing the work. The information was then compiled and assembled into a tentative
implementation schedule, which is summarized in TABLE 5.
55
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TABLE 5. WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE
LEAD AGENCY/ORGANIZATION: TENNESSEE DEPARTMENT OF AGRICULTURE (TDA)
OBJ/ITEM
2
3
4
5
6
7
8
9
10
DESCRIPTION OF ACTION
(Cnnpcruling agency)
H. IXluMKh frame-work &
atmosphere for Joint
vcnlu rcs/parlnershlps
(Cooperating agency)
-------
TABLE 5. WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE (CONT.)
LEAD AKENCY/ORKANIZATION: TN DEPARTMENT OF ENVIRONMENT & CONSERVATION-ECOLOGICAL SERVICES
on I/ITEM
1
2
J
4.8
9
10
vn
DESCRIPTION OF ACTION
(Cooperating agency)
A. Review academic studies &
compile list of candidate sites
B. Support biodiversity project
C. Strengthen coordination of lists
E. Acquire WL's with LWCF
G. Request USFWS to buy WL's
D. ID candidate restoration site
(Cooperating agency)
D. Include WL Info In biodiversity
manuals
(Cooperating agency)
8. List, assess & report condition of
"unique" WL on ES database
9. Inspect & report condition of WL
on natural area register
PR*
H
H
H
H
H
1994
i ' i
1995
1 ' i
1996
i i
1 ' '
1997
1 "I 1 1
i ii
1998
1 1 1
1999
1 1 1
PR'=AGENCY PRIORITY H=HIGH M=MEDIUM L=LOW "
2000
1 1 1
-------
TABLE 5. WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE (CONT.)
LFAP AnENrv/nRRANIZATION: TN DEPT. OF ENVIRONMENT & CONSERVATION-WATER POLLUTION CONTROL
ORJ/ITF.M
1
2
3
4
5
6.7
8
9
10
vn
DESCRIPTION OF ACTION
Cooperating agency)
*. Promulgate criteria & design
ORW's
Cooperating agency)
Target NPS $$ to improve WL waste
quality/restore
Apply iterim wetlands mitigation
policy
Cooperating agency)
D. Coordinate wetlands mitigation
with urban greenbell plans
Cooperating agency)
Use classifications of WQ standards
for WL's
3. Monitor & report changes in WL
from permitted acts
4. Monitor gains and losses due to
permitted acts & report functions
of mitigation bank offsets
5. Monitor & report on status of
ORW's/reference WL
6. Monitor & report on status of
WL functions restored by
NPS project
PR*
H
H
M
H
H
L
M
M
1994
i i i
1995
i i 1
1996
i i 1
1997
_i 1 1
1998
i i i
1999
i i i
2000
i i i
PR»=AGENCY PRIORITY H=HIGH M=MEDIUM L=LOW
-------
TABLE 5. WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE (CONT.)
LEAD AGENCY/ORGANIZATION; TENNESSEE WILDLIFE RESOURCES AGENCY (TWRA)
OBJ/ITFM
IA
IB
1C
ID
2B
C
D
E
H
3A,B
D
4C
D
J
M
5&6
7F
8A
8F
9
10
vn
DESCRIPTION OF ACTION
ID Wetlands databases & import to
CIS
Seek funding lo acquire NW1 digital
data
ID & import existing digital soils
surveys
Initiate program to digitize/soils data
Support biodiverslly/GAP analysis
Coordinate priority lists
Continue wetlands acquisition
Request USFWS to purchase
wetlands in TN
Maintain atmosphere Tor join!
venture and partnerships
ID candidate restoration sites
Analyze hydrlc soils/restoration
success
Continue TIP & NAWMP joint
ventures
Utilize Wallop-Breaux $ to enhance
WL's
Utilize 11 JS where possible
Coordinate NAWMP reports with
SPO
(Cooperating agency)
TA for waterfowl food crops on WL
Make WL maps, priority lists
available to local govt.
Include WL info in biodiversity HB's
(Cooperating agency)
(Cooperating agency)
Inspect, monitor & report on
wetlands acquisition thru WAF
PR*
H
H
H
H
H
M
H
H
H
H
H
H
L
H
M
H
M
1994
i 1 !
1 1 1
199$
I i I
i i i
1996
i i i
i i i
1997
i i i
i i i
1998
— i 1 r —
1 1 '
1999
i i i
1 1 1
2000
' T~ 1 1
1 1 1
PR*=AGENCY PRIORITY H=HIGH M=MEDIUM L=LOW
-------
TABLE 5. WETLANDS CONSERVATION STRATEGY . IMPLEMENTATION SCHEDULE (CONT.)
LEAD AGENCY/ORGANIZATION; STATE PLANNING OFFICE AND GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
OBI/ITEM
9
9
9
9
9
1
5
DESCRIPTION OF ACTION
COORDINATION/
COMMUNICATION/FUNDING
K. ICxpand 1WC-TWG tu include
mure groups
E. Define IWC-TWG work plan
R. Write and publish WL
brochure
Seek lo include TN in WRP In
FY 1994
G. Develop in-service WL material
for CENTS
A/C.Provide WL maps/info to local
Rovt.
CHARACTERIZE WL & IDENTIFY
FUNCTION
B. Seek funds to buy/digitize NWI
data
D. Seek funds to buy/digitize soils
data
C. Seek grant or request $$ to
develop a HGM assessment
method
F. Seek grant, or request $$ lo
conduct field research on
hydrology/ecology
C. Document known WL functions
PR*
H
M
M
L
H
H
H
M
1944
i i 1
1995
i i i
1946
1997
I I I
i i i
1998
— \ 1 I
— 1 ' i
1999
i i r~~
' ' '
2000
— l 1 1 —
— ' ' •
PR* =AOENCY PRIORITY H=H1GH M=MEDItlM L=LOW
-------
TABLE 5. WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE (CONT.)
LEAD AGENCY/ORGANIZATION: STATE PLANNING OFFICE AND GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
OB.I/ITF.M
4
3
J&4
6
5
6
3
3
DKSCRIPTION OF ACTION
POLICY DEVELOPMENT:
RESTORATION
A. Define "restoration" and
develop restoration criteria for
each WL type
A. Develop ranking criteria Tor
candidate sites
C. Compile candidate site list,
evaluate and distribute priority
list
RESEARCH &
DEMONSTRATIONS
A. Sponsor annual WL research
conference, and ID research
needs
D. ID agency to sponsor/conduct
needed studies
D. Assess (or undertake
investigation to define) WL
functions
D. Design and fund projects
demonstrating restoration of
hydrology
E. Demonstrate restoration of
hydrology in flood damage
reduction projects
A. Consider reformulation of
WTT as a WL restoration
demonstration project
D. Test hydric soils as indictor
for successful restoration
PR*
H
H
H
M
M
M
M
M
H
M
1994
i i i
1995
i i i
1996
i i i
1997
i i i
1998
i i i
1999
i i i
2000
— l 1 '
PR*=AGENCY PRIORITY H=HIGH M=MEDIUM L=LOW
-------
TABLE 5. WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE (CONT.)
LEAD AGENCY/ORGANIZATION: STATE PLANNING OFFICE AND GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
OR.I/ITEM
5
DESCRIPTION OF ACTION
MONITORING. ANALYSIS &
REPORTING
It. Designate agency (SPO) lo
coordinate and oversee long
term monitoring
R. Kmplny/assign staff
E. Design standard reporting
format
F. Compile monitoring data from
other agencies and organizations
(see 4L. M & Chapter VII)
and send to TWRA for
digitization and entry Into CIS
F. Analyze data and prepare reports
- biennial progress reports
- major plan revisions (6 years)
G. Distribute reports to agencies.
organizations, governor, general
assembly and the public
G. Make recommendations for program
and plan revisions
M. Coordinate state reports with NAWP
reports, SCS swampbuster
reports, NRI, etc.
PR»
1994
i i i
1995
i i i
1996
i i i
1997
i -- i 1
— 1 1 '
1998
1 1 i
1999
— 1 1 1
1 ' '
2000
— i— i — i
1 1 1__
PR*=AGENCY PRIORITY H=HIGH M=MEDIUM L=LOW
-------
A. CONSIDERATIONS
There are two aspects to be considered for monitoring and evaluation of the implementation of
the Strategy. The first concerns monitoring and evaluating the actions called for in CHAFFER V of the
strategy document. The second aspect is monitoring the condition of the state's wetlands. Periodic
evaluation of the resource base is required to measure progress on Objectives. These aspects are
discussed as follows.
1. Monitoring the Action Plan
The Action Plan, as set forth in CHAPTER V, describes specific actions to be taken, and assigns
responsibility for each item to one or more agencies, or programs. Responsibility for tracking
program milestones and providing progress reports is summarized in TABLE 4 (see page 43).
Each agency will be responsible for tracking its assigned responsibilities, documenting its
program activities, and providing data and progress or status reports to the Governor's SPO
every two years. The SPO will compile the reports, prepare and deliver a statewide progress
report to the Governor, the General Assembly, and the public. The first progress report will be
produced two years after the State Wetlands Conservation Strategy is adopted, the second in four
years. A progress report should be prepared every two years thereafter.
2. Monitoring, Evaluation and Trends Analyses
To determine whether Tennessee's remaining wetlands resources are being lost or adversely
impacted by man's activities, a method must be developed or selected to periodically determine
wetland gains or losses, the types of wetlands being impacted, the activities which are
contributing to these wetland changes, and changes resulting from on-going natural processes at
work across the state. It is equally important to understand those activities and processes which
are contributing to increases in the overall wetlands base and the restoration or enhancement of
wetland functions.
Tennessee's wetlands are important components of the overall habitat fabric of our state. As
such, their functions and importance to various wildlife and plant species, as well as their value
63
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to man, cannot be isolated and evaluated, monitored or managed without regard to those forces
and activities at work within their hydrologic unit boundaries.
B. CONCLUSIONS
It is, therefore, proposed that evaluation and monitoring of the status and trends of Tennessee's
wetlands be a pan of a more comprehensive program of monitoring and evaluating changes in
Tennessee's total habitat. Such a process has already been identified as a part of the Tennessee
Biodiversity Program.
The CIS-based habitat type mapping which is being done as a pan of the Biodiversity Program
has a built-in mechanism for 5-year updates of statewide vegetation mapping using satellite
imagery. Quantitative wetland habitat changes will be mapped as a pan of these periodic
updates. This information will be reinforced and/or refined by regular NWI inventory updates,
and status and trends reports. However, not all relevant information can be captured or displayed
on a CIS system.
In order for the resource monitoring program to be successful, all agencies, both state and
federal, involved in the management of some portion of Tennessee's wetlands resources, along
with the regulatory community, must join in a partnership to inspect, monitor and evaluate both
the quantity and quality of Tennessee wetlands. It is crucial to document changes to the various
ecosystem habitats across the state in an efficient and cost-effective manner.
Resource information should be collected in a manner which is useable by a variety of resource
managers. Wetlands definition, types, and functional aspects should be agreed to by all parties
for inventory purposes, and relevant information collected and reported in a format that can be
understood and used by all (See Objective 5, CHAPTER V). The SPO should create a central
archive to receive monitoring data and status reports; the office should compile and update the
monitoring data every two years.
Examples of data to be reported include:
1. TWRA should acquire (or digitize) and keep National Wetlands Inventory data current.
2. TWRA should biennially inspect, monitor and prepare a report on the quantity, quality
and functions of the publicly owned wetlands acquired and enhanced/restored through
the state acquisition programs.
3. TDEC-WPC should biennially monitor and document changes in water quality or other
functions in wetlands, resulting from legally permitted activities or projects.
64
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4. TDEC-WPC (Natural Resources Section) should track gains and/or losses in acreage
brought about by the permitting process, and examine actual delivery of wetlands
functions through mitigation banking.
5. TDEC-WPC should biennially inspect, assess and report on the status of wetlands
designated as "Outstanding Resource Wetlands," or wetlands designated as "reference
wetlands" for the state's regulatory wetlands classification scheme.
6. TDEC-WPC should biennially inspect, assess and document the status of wetlands
functions restored through NPS abatement demonstration projects.
7. TDEC-WPC, TDOT and TWRA should jointly inspect, assess and report on the status
of wetlands purchased and restored to mitigate unavoidable adverse construction impacts
on wetlands.
8. TDEC-ES should biennially, as an element of the state's Heritage database, list, assess,
and record the condition of those "unique" wetlands that support a rare ecosystem, or
provide habitat for endangered plants and animals.
9. TDEC-ES should biennially inspect and record the status of wetlands in private
ownership that are registered on the state "Natural Area Registry".
10. TDA-DF should biennially monitor and document the status of bottomland hardwood
stands, or other forested wetlands in private ownership, which are participating in the
forest Stewardship Incentive Program.
11. TDA-DF should biennially monitor and document the status of hydrology in bottomland
hardwood forests, and adjoining agricultural lands, with particular attention to emerging
problems in the Gulf Coastal Plain province.
12. USDA-SCS (and/or the TDA-AR) should biennially monitor and report on the status of
wetlands in private ownership enrolled in the USDA assistance programs.
13. USDA-SCS should share data collected on the status and trends of wetlands on
agricultural land through the NRI assessment, and periodic "swampbuster" monitoring.
14. USFWS should biennially inspect and report on the status of wetlands acquired in fee,
or by easement, under the North American Waterfowl Management Plan, or "Partners
in Wildlife" (See Objective 4M, p. 50).
15. Other federal water resource agencies or land management agencies (e.g. USCOE, TVA,
NPS, etc.) should contribute data on the status of publicly owned wetlands on the lands
which they manage in Tennessee.
Every six years, SPO should analyze the information (or enter into a contract with one of the
state's academic water resources centers to analyze the data) and prepare a detailed status and
trends report on Tennessee's wetlands resources. The report should specifically evaluate the
resource base in the context of the "No Overall Net Loss of Wetlands Functions" and restoration
goals.
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The first statewide assessment of wetlands trends should be completed six years following the
adoption of the plan, concurrent with the third biennial progress report, and prior to a major revi-
sion of the plan. The report should be delivered to the Governor, the members of the General
Assembly, the leaders of state and federal agencies in Tennessee, and made available to the
public.
Based on the conclusions of the report, the IWC (or its successor) should revisit and reevaluate
the state's Wetlands Conservation Strategy or Plan. If the major goals have not been achieved,
the committee should prepare recommendations to the state leadership to strengthen both the
regulatory and the voluntary cooperative state programs.
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TENNESSEE INTERAGENCY WETLANDS COMMITTEE
Ms. Carol C. White, Director
Tennessee State Planning Office
Room G-12, State Capitol
Nashville, TN 37243
615/741-4131
Mr. L. H. Ivy, Commissioner
TN Dept. of Agriculture
P.O. Box 40627
Nashville, TN 37204
615/360-0100
Mr. J. W. Luna, Commissioner
TN Dept. of Environment & Conservation
21st Floor, L&C Tower
Nashville, TN 37243
615/532-0109
Mr. Carl Johnson, Commissioner
TN Dept. of Transportation
7th Floor, James K. Polk Bldg.
Nashville, TN 37243
615/741-2848
Mr. Gary T. Myers, Exec. Director
TN Wildlife Resources Agency
P.O. Box 40747
Nashville, TN 37204
615/781-6552
Mr. Jerry Lee
State Conservationist
U.S.D.A. Soil Conservation Service
675 U.S. Courthouse
Nashville, TN 37203
615/736-5471
Lt Colonel J. David Norwood
District Engineer
U.S. Army Corps of Engineers
P.O. Box 1070
110 9th Avenue South
Nashville, TN 37202-1070
615/736-5626
Colonel Theodore Fox
District Engineer
U.S. Army Corps of Engineers
167 North Mid-America Mall, B-202
Memphis, TN 38103-1894
901/544-3221
Mr. James Pulliam, Jr., Regional Director
(Mr. Lee Barclay, Alternate)
U.S. Fish & Wildlife Service
75 Spring Street, SW, Room 1200
Atlanta, GA 30303
404/331-6343
Dr. Ralph Brooks
Tennessee Valley Authority
Evans Building, 1W141A
Knoxville,TN 37902
615/632-6770
Mr. Jeff Sinks, Executive Director
The Nature Conservancy
2002 Richard Jones Road
Suite 304C
Nashville, TN 37215
615/298-3111
Mr. Tony Campbell
Executive VP for Conservation Policy
Tennessee Conservation League
300 Orlando Avenue
Nashville, TN 37209
615/353-1133
Mr. Dan Wheeler, Asst. to President
TN Farm Bureau Federation
P.O. Box 313
Columbia, TN 38401-0313
615/388-7872
Ms. Candace Dinwiddie, Executive Director
Tennessee Forestry Association
P.O. Box 290693
Nashville, TN 37229
615/883-3832
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Mr. Eric Hughes
U.S. Environmental Protection Agency
345 Courtland Street, NE
Atlanta, GA 30365
404/347-3633
Mr. Harold Mattraw, District Chief
U.S. Geological Survey
810 Broadway, Suite 500
Nashville, TN 37203
615/736-5424
Mr. Frank M. Rodgers, Chief
Farmers Home Administration
3322 West End Avenue, Suite 300
Nashville, TN 37203
615/783-1359
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TECHNICAL WQRKTNn GROUP
Mr. Robbie Baker
TDEC - Water Pollution Control
7th Floor, L&C Annex
Nashville, TN 37243
615/532-0710
Mr. Andy Barrass
TDEC - Water Pollution Control
7th Floor, L&C Annex
Nashville, TN 37243
615/532-0691
Ms. Mary Sue Brent
Farmers Home Administration
3322 West End Avenue, Suite 300
Nashville, TN 37203
615/783-1359
Mr. Ray Brisson
TN Department of Transportation
Suite 900, James K. Polk Building
Nashville, TN 37243
615/741-2612
Mr. Tony Campbell
Executive VP for Conservation Policy
Tennessee Conservation League
300 Orlando Avenue
Nashville, TN 37209-3200
615/353-1133
Mr. Mike Countess
Assistant Commissioner
Department of Agriculture
P.O. Box 40627
Nashville, TN 37204
615/360-0103
Mr. Tim Diehl
U.S. Geological Survey
810 Broadway, Suite 500
Nashville, TN 37203
615/736-5424
Mr. Dan Eager
TDEC - Water Pollution Control
7th Floor, L&C Annex
Nashville, TN 37243
615/532-0625
Mr. Ray Hedrick
U.S. Army Corps of Engineers
ATTN: ORNED-E
Room A-452 U.S. Courthouse
Nashville, TN 37202
615/736-5026
Mr. Joe Hopper
TN Wildlife Resources Agency
P.O. Box 40747
Nashville, TN 37204
615/781-6612
Mr. Eric Hughes
U.S. EPA, Region IV
345 Counland Street, NE
Atlanta, GA 30365
404/347-3633
Mr. Julius Johnson
Director of Public Affairs
Tennessee Farm Bureau Federation
P.O. Box 313
Columbia, TN 38402-0313
615/388-7872
Mr. Mike Lee
TDEC - Water Pollution Control
7th ROOT, L&C Annex
Nashville, TN 37243
615/532-0712
Mr. Norm Mangrum
U.S. EPA, Region IV
345 Courtland Street, NE
Atlanta, GA 30365
404/347-2126
Dr. Morris Mauney
U.S. Army Corps of Engineers
167 North Mid-America Mall, B-202
Memphis, TN 38103
901/544-3857
Mr. Gary Mullaney
WESTVACO
P.O. Box 458
Wickliffe, KY 42087
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Dr. Ruth H. Neff
TN State Planning Office
308 John Sevier Building
Nashville, TN 37243-0001
615/741-5782
Mr. Teny Oliver
Deputy Commissioner
TN Department of Agriculture
P.O. Box 40627
Nashville, TN 37204
615/360-0105
Mr. Don Porter, Flood Plain Mgt.
Tennessee Valley Authority
Multi-Purpose Building, Room 1C
Muscle Shoals, AL 35660
205/386-3454
Mr. Reggie Reeves
TDEC - Ecological Services
8th Floor, L&C Tower
Nashville, TN 37243
615/532-0434
Mr. Joe Richardson
TN Department of Agriculture
P.O. Box 40627
Nashville, TN 37204
615/360-0108
Geoff Roach
The Nature Conservancy
2002 Richard Jones Road
Suite 304C
Nashville, TN 37215
615/298-3111
Dr. Tom Roberts
Department of Biology
Tennessee Tech University
Campus Box 5063
Cookeville, TN 38505
615/372-3138
Mr. Dan Sherry
TN Wildlife Resources Agency
P.O. Box 40747
Nashville, TN 37204
615/781-6572
Mr. Tom Talley
829 West Millers Cove Road
Walland,TN 37886
615/977-0871
Mr. Ray Tucker
TN Wildlife Resources Agency
CIS Division
P.O. Box 40747
Nashville, TN 37204
615/781-6535
Dr. Richard D. Urban
Tennessee Valley Authority
Haney Building, 2C
1101 Market Street
Chattanooga, TN 37402
615/751-3164
Mr. Doug Winford
U.S. Fish & Wildlife Service
446 Neal Street
Cookeville, TN 38501
615/528-6481
Mr. Bill Wolfe
U.S. Geological Survey
810 Broadway, Suite 500
Nashville, TN 37203
615/736-5424
Mr. Mike Zeman
U.S. Soil Conservation Service
675 U.S. Courthouse
Nashville, TN 37203
615/736-7241
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Wetlands possess three unique identifying characteristics: (1) hydrophytic vegetation, (2) hydric
soils, and (3) wetland hydrology. These characteristics individually or in combination determine
classification and delineation of wetlands for numerous technical and/or legal purposes.
Hydrophytic vegetation (hydrophytes) are macroscopic plants growing wholly or panly in
water, soil or on a substrate that is at least periodically deficient in oxygen as a result of excessive water
content Hydrophytes have adapted structurally, physiologically, and/or reproductively to the rigors of
a periodically anaerobic environment. The U.S. Fish and Wildlife Service has published the "National
List of Plant Species That Occur in Wetlands" (Reed, 1988). There are over 7,000 species on the
National List and approximately 1,600 of these occur in Tennessee.
Hydric soils are defined as soils that are saturated, flooded, or ponded long enough during the
growing season to develop anaerobic conditions in the upper part (typically 18 inches). In general,
hydric soils are flooded, ponded, or saturated for two weeks or more during the "growing season" when
the soil temperature is above biologic zero (41 degrees Fahrenheit). The National Technical Committee
for Hydric Soils has developed criteria for hydric soils and has published a list of the soil phases
considered hydric in "Hydric Soils of the United States" (USDA-SCS, 1991).
Of the three technical criteria of wetland identification, wetland hydrology is the most difficult
to identify, due to annual, seasonal, and daily fluctuations. Numerous factors influence the wetness of
an area, including precipitation, topography, soil permeability, and plant cover. Permanent or periodic
inundation, or soil saturation are the driving forces behind wetland formation. The presence of water
for two weeks or more during the growing season typically creates anaerobic conditions in the soil,
which affect the types of plants that can grow and the types of soils that develop. On-site observation
can sometimes be used to ascertain the presence of saturation and/or inundation. However, soil and
vegetation characteristics and other surrogate indicators often must be relied upon as evidence of
hydrologic regime.
Several definitions have been formulated to identify and delineate wetlands to meet various
specific legal or technical needs of resource management.
The U.S. Fish and Wildlife Service (FWS) developed a definition of wetlands for purposes of
conducting a National Wetlands Inventory (NWI). The inventory is performed by interpretation of
aerial imagery, and observable surface conditions are a key component of the definition. The definition
covers vegetated and non-vegetated wetlands, recognizing that some types of wetlands lack vegetation
(e.g., open water lakes, river beds, mud flats, sand bars, rocky shores). The wetland definition is
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published and its technical application is fully explained in the FWS publication "Classification of
Wetlands and Deepwater Habitats of the United States" (Cowardin, et al, 1979):
"Wetlands are lands transitional between terrestrial and aquatic systems where the water table
is usually at or near the surface or the land is covered by shallow water. For purposes of this
classification, wetlands must have one or more of the following three attributes: (1) at least
periodically, the land supports predominantly hydrophytes, (2) the substrate is predominantly
undrained hydric soil, and (3) the substrate is nonsoil and is saturated with water or covered by
shallow water at some time during the growing season each year."
The definition of wetlands used by the EPA and Corps of Engineers for administering the Section 404
permit program is based primarily on hydrology, with soils and vegetation implicated as on-site
indicators of hydrologic conditions:
"Those areas that are inundated or saturated by surface or groundwater at a frequency and
duration sufficient to support, and that under normal circumstances do support a prevalence of
vegetation typically adapted for life in saturated soil conditions. Wetlands generally include
swamps, marshes, bogs, and similar areas. (40 CFR 230.3 and 33 CFR 3283)"
SCS uses a definition that relies more on soils and hydrology to determine eligibility for U.S.
Department of Agriculture program benefits under the provisions of the Food Security Act (USDA-
SCS, 1988):
"Wetlands are defined as areas that have a predominance of hydric soils and that are inundated
or saturated by surface or ground water at a frequency and duration sufficient to support, and
under normal circumstances do support a prevalence of hydrophytic vegetation typically
adapted for life in saturated soil conditions...(except certain permafrost lands in Alaska)."
All four of the above agencies agreed on a unified approach for identifying and delineating wetlands for
jurisdictional purposes (Federal Interagency Committee for Wetland Delineation, 1989):
"Wetlands posess three essential characteristics: (I) hydrophytic vegetation, (2) hydric soils,
and (3) wetland hydrology....The three technical criteria specified are mandatory and must all
be met for an area to be identified as wetland. Therefore, areas that meet these criteria are
wetlands."
However, in the Energy and Water Development Act of 1992, Congress prohibited the use of the
1989 delineation manual for jurisdictional determinations. The federal agencies are currently using the
1987 manual.
The wetland delineation methods used by federal agencies are currently undergoing review and
possible revision. Some of the field procedures are being modified; however, present indications are that
the technical criteria will be retained.
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TECHNICAL REPORTS
SUPPORTING THE WETLANDS CONSERVATION STRATEGY
1. Geographic Information System Investigations (in preparation)
* Analysis of GIS Data
* Utility of GIS Data to Decision Makers
Copies of GIS Pilot Products
Feasibility of Continuation of GIS Database Development
Recommended Future Direction of Research, Investigations and Application
*
*
*
2. Wetness Affected Soils of Tennessee (in preparation)
3. Characterization of Tennessee Wetlands (in preparation)
4. HGM Wetland Classification and Functional Assessment Concept (in preparation)
TECHNICAL WORKING GROUP SUBCOMMITTEE REPORTS
INCORPORATED INTO THE STRATEGY
1. "Wetlands Technical Assistance: An Inventory and Assessment" Report of the Private
Landowner Technical Assistance Subcommittee
June 10,1991; revised 1993
'Tennessee Interim Wetlands Mitigation Policy" Report of the Mitigation Subcommittee
June 10,1991
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A. FEDERAL PROGRAMS
UNITED STATES DEPARTMENT OF AGRICULTURE (USDA)
1. Agriculture Conservation Program ( ACP)
The program provides technical and financial assistance to fanners, primarily to control
erosion. The effects on wetlands are largely indirect, but potential benefits are for
reduced sedimentation and pollution to wetlands.
Agricultural Stabilization and Conservation Service (ASCS) county committees deter-
mine which conservation practices will be cost-shared; the cost-share ranges from 20 to
75 percent Funding of application work is limited to $3,500 per fiscal year per fanner.
In FY 1992, just over 37,000 program participants applied 19 different conservation
practices to their farms. ACP assistance to Tennessee farmers resulted in a soil savings
of approximately 1.27 million tons from erosion.
2. Set-Aside Acreage Program
Participating producers are required to set aside certain acres and reduce crop production
to receive program payments and price supports. The producer is required to devote the
set-aside acreage to vegetative cover capable of maintaining soil protection, water
quality enhancement, wildlife production and natural beauty. Marginal wetlands can be
maintained in this program.
3.
Conservation Reserve Program
CRP is another program which affects wetlands indirectly, by controlling erosion. It
assists landowners in establishing permanent vegetative cover on highly credible
cropland. CRP provides annual rental payments to eligible landowners who elect to
participate in long term contracts. Cost sharing is also available to help establish
approved cover on eligible lands. Contracts are for 10-15 years, and have been used
primarily in Tennessee to convert highly erodible cropland to permanent grass cover.
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In 1989 and 1990, a wetland restoration practice designed to reforest bottomland
hardwood sites was initiated in the program. Approximately 3,473 acres of eligible
cropland have been restored to bottomland hardwoods. Two other practices that most
directly affect wetlands are "Shallow Water Areas for Wildlife", and "Filter Strips". As
of the last sign-up in FY 1992,478,926 acres have been enrolled in the program. There
was no CRP sign-up in FY 1993.
4. Wetlands Reserve Program (WRP)
The WRP is modeled after the CRP, but it has the potential to affect wetlands directly.
It offers a landowner a ten-year contract, in which the owner agrees to restore wetlands
by retiring marginal cropland in return for compensatory payments and a cost-share for
the re-establishment of the wetland.
In addition to restoring wetlands, some existing wetlands may also be enrolled in the
program and riparian areas may be established on eligible areas. Croplands accepted in
the program would be retired under a minimum 30-year easement or a permanent
easement. In FY 1992, a demonstration program was conducted in nine states, but not
in Tennessee. Funding was not approved for the WRP in fiscal year 1993. Tennessee
is actively seeking to be a participating state in FY 1994.
The pilot WRP was authorized to cover a maximum of 50,000 acres. During the initial
sign-up period, a total of 466,000 acres (ten times the amount that could be funded) was
offered by farmers. This experience demonstrates the potential impact of the WRP,
should it be implemented nationwide.
5. SWAMPBUSTER: Section 1221 of the U.S. Food and Agricultural Conservation Trade
Act of 1990 (amends the Food Security Act of 19851
The SWAMPBUSTER provision protects wetlands by denying all USDA benefits to any
farmer who makes production of a commodity possible on a wetland, or who produced
a commodity on a wetland convened between December 23, 1985 and November 28,
1990. The Act is administered by the ASCS and the Soil Conservation Service (SCS).
SCS has suspended making wetland determinations under Swampbuster, pending
resolution of the federal wetlands delineation manual controversy. An exception is made
for those program participators who plan to manipulate wet areas. SCS continues to
enforce Swampbuster when wetland conversions are encountered on farms of USDA
program participants. The potential for wetlands protection through the Swampbuster
program is high in Tennessee because Tennessee farmers produce large quantities of
subsidized crops.
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6. Technical Assistance
The SCS provides technical assistance to Tennessee farmers. SCS has inventoried the
majority of wetlands in Tennessee. The SCS assists landowners in identifying wetlands
and, as a pan of a site-specific conservation plan, assists them in lessening impacts to
wetlands. The funding is administered through the ASCS.
7. Resource Conservation and Development fRC&Dl
Resource Conservation and Development Councils, funded through SCS, work to
enhance resource development and environmental protection in multi-county areas.
Conservation measure plans are developed with the support of local sponsors to provide
community benefits and improve the quality of life in rural areas.
Financial assistance may be available to implement conservation measures for con-
trolling erosion and sedimentation, controlling nonpoint sources of pollution, improving
water quality, developing natural resources for community benefits, and protection of
fish and wildlife habitat.
8. Farmers Home Administration
FmHA is authorized by the Food Security Act of 1985 to acquire easements and deed
restrictions for preservation of wetlands in exchange for partial debt release. The
potential magnitude of the program is estimated to be as much as 200-300 acres per year.
9. Forest Stewardship/Stewardship Incentive Program
This new program affects management of private forest land, including a cost-share for
wetland restoration, riparian and wetland protection, and wetlands restoration. It was
funded at a level of $380,000/year in Tennessee forFY 1992. Funding forFY 1993 is
expected to be about $300,000. This program is significant for wetlands conservation on
private lands. It is administered by the Tennessee Department of Agriculture, Division
of Forestry, (TDA/DF).
10. Forest Legacy Program
The Forest Legacy Program (FLP) is a pilot program for designation of special forest
areas on private lands, including bottomland hardwood forests and other wetlands
associated forest types. The program is being piloted in New England; and future
funding is not assured. This program will also be administered by the Tennessee Division
of Forestry if it is implemented in the State.
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DEPARTMENT OF DEFENSE: ARMY CORPS OF ENGINEERS (USCOE)
1. Section 404. U.S. Clean Water Act
The USCOE has primary responsibility for the regulatory program under Section 404 of
the Clean Water Act in coordination with EPA as outlined below. The Section 404
regulatory program prohibits the discharge of dredged or fill material into waters of the
United States (including wetlands) unless it can be demonstrated that the discharge
would not have unacceptable impacts on the aquatic ecosystem in accordance with the
Section 404(b)(l) Guidelines (40 CFR 230). The numbers of wetlands protected
through actual denial of permit requests involving wetland encroachments appears small
and relatively important. Of much greater importance are the wetlands avoided or
impacted at a substantially reduced level as proposals are reviewed and coordinated with
resource agencies. This review and coordination is a pan of both the pre-application and
application phases under the "sequencing" requirements of the USCOE/EPA mitigation
policy (i.e. avoidance of impacts, then minimization of impacts, and then compensatory
mitigation). Permit approvals by Letters of Permission or General Permits are very often
made possible by applicants being willing to modify their initial proposals to avoid
wetland encroachments or minimize wetland losses.
During FY 1992, the Memphis District reviewed and processed 51 permits and issued
29 Section 404 permits. Two permits were denied. The remaining 22 permit applications
were issued under the general permit provisions, or it was determined that no permit was
required. In addition, 50 Nationwide Permits were issued most of them under NW 26.
Figures for the Nashville District's permit program are not available by state. During
FY 1992, the Nashville District, having approximately 2/3 of its area in Tennessee,
reviewed and processed 141 permits; 125 permits were issued and 16 were denied. In
addition 1,500 General Permits (Nationwide and Regional Permits) and 1,000 Letters of
Permission were issued.
2. Section 1135. of the Water Resources Development Act of 1990 (WRDA)
This section provides federal assistance for habitat restoration on existing or past Corps
civil works projects if the Corps project contributed to loss of wetlands or degradation
of wetlands habitat. Projects such as main stem levees, channelization, and flood control
structures are eligible for funding under Section 1135.
A generous cost-share is provided (75% federal, 25% for local sponsor or state). The
1135 program could result in the restoration of as many as 300 acres/year in Tennessee.
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National funding in 1992 was $15 million, which was allocated among 36 districts.
UNITED STATES DEPARTMENT OF THE INTERIOR (USDI):
UNITED STATES FISH AND WILDLIFE SERVICE (USFWS)
1. National Wetlands Inventory
Congress has given the USFWS the responsibility to monitor the nation's wetlands, and
to report regularly on their status. The Service has been assessing the nation's wetlands
since the agency was established shortly after the second World War.
The National Wetlands Inventory has now evolved into an ongoing monitoring process
for assessing wetlands gains, losses and changes in status. The NWI data has become the
standard source for wetlands information, used by wetlands resource planners and
managers in state and federal agencies.
The NWI data is considered to be highly reliable at the national level, less so at a state
level of analysis. There are simply too few data points per state to create a state level data
base with a high confidence level.
2. U.S. Emergency Wetlands Resources Act (EWRA^ of 1986
This Act authorizes the establishment of a national priority conservation plan which
specifies which wetlands and interests in wetlands should be given priority with respect
to federal and state acquisitions.
Section 301 of the Act requires that the Secretary of the Interior establish and periodi-
cally review and revise a National Wetlands Priority Conservation Plan (NWPCP). Im-
plementation of the Plan by the Service includes a step-down process requiring the
development of regional plans. The regional plan for the southeast, which includes the
State of Tennessee, was completed in September 1992. In Tennessee, twenty-four sites
containing approximately 104,300 acres were identified as potential candidates for
acquisition.
The USFWS pursues land acquisition projects under five basic target program areas: ( 1 )
migratory birds, (2) threatened and endangered species, (3) nationally significant
wetlands, (4) significant biodiversity, and (5) fishery resources.
The primary sources of funds for wetland acquisition are the Land and Water Conserva-
tion Fund (LWCF) and the Migratory Bird Conservation Fund (MBCF).
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Between 1987 and 1992, utilizing funds from the LWCF and the MBCF, the USFWS has
acquired fee title to 8,128 acres of wetlands in Tennessee. During the last five years, the
Service, in addition to fee title acquisitions, has acquired 7,422 acres of wetlands by
easements or lease agreements.
The USFWS manages 7 National Wildlife Refuges in Tennessee, containing 113,500
acres of wetlands.
3. North American Waterfowl Management Plan is a joint federal/state and public/private
initiative focusing on restoration and enhancement of wetlands. Its competitive grant
program is very flexible and allows for private funds to be used as pan of the match funds.
Funds may be used to enhance private lands. Tennessee has successfully competed for
funding.
4. Partners for Wildlife
The USFWS offers technical and financial assistance to private landowners interested in
wetland restoration and enhancement activities. Between 1990 and 1992, the Service
entered into wetland restoration or enhancement agreements with twelve landowners
involving 1,725 acres. The majority of the agreements involved bottomland hardwood
reforestation, although wetland hydrology has been restored on 225 acres. The Service
published a technical assistance guide in 1992 to support the Partners for Wildlife
program.
The USFWS also actively pursues the development of partnerships with other govern-
ment agencies, as well as private conservation organizations, for sound management of
wetlands habitat.
5. Education and Outreach
The USFWS participates in various education and outreach activities to inform the public
about wetland resources and their values to fish and wildlife resources.
UNITED STATES GEOLOGICAL SURVEY (USGS)
6. Cooperative Research Program
The Water Resources Division conducts hydrologic research in cooperation with state
and local governments and with other Federal agencies. Much of this research is directly
or indirectly related to the hydrology of wetlands. There are currently 44 projects in
progress.
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7. Data Analysis and Interpretation
USGS has an extensive water resource library, hydrogeologic and water quality
databases, and expanding CIS coverage of Tennessee. These resources are available to
other agencies upon request.
8. National Water Quality Assessment
The National Water Quality Assessment Program (NAWQA), initiated in 1986, is
designed to describe the status and trends in the quality of the Nation's water resources
through intensive and extended assessment and monitoring of ground-water and surface-
water quality in 60 hydrologic study units, representing approximately 45 percent of the
area of the coterminous United States and 60-70 percent of the Nation's water use.
Two studies scheduled to begin in FY 1994 will include areas within Tennessee. The
Upper Tennessee River study will include most of East Tennessee, while the Mississippi
Embayment NAWQA study will include all of the West Tennessee plateau.
In FY 1997, A NAWQA study of the lower Tennessee River is scheduled to begin,
encompassing much of Middle Tennessee and pans of West Tennessee.
UNITED STATES ENVIRONMENTAL PROTECTION AGENCY (EPA)
1. State Wetlands Protection Development Grant Program
EPA offers competitive grants to the states for wetlands program development, e.g., for
development of a wetlands conservation strategy, hydrogeomorphic wetlands assess-
ment methodology, or development of water quality standards for wetlands.
The Tennessee State Planning Office (SPO) received a FY 1990 planning grant of
$ 102,910 which is assisting the state to characterize its wetlands resources and to develop
a Strategy that will form the conceptual framework for a State Wetlands Conservation
Plan (WCP).
The Tennessee Department of Environment and Conservation (TDEC) was awarded a
grant of $100,000 in FY 1991 to assist the state to develop water quality standards for
wetlands.
EPA's funding priorities in 1993 include the development of Wetlands Conservation
Plans; state assumption of Section 404 responsibility; and watershed protection demon-
stration projects. The total funding available in FY 1993 was $ 10 million, of which $1.4
million was allocated to Region IV states.
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The SPO has been awarded aFY 1993 grant in the amount of $264,000 for expansion of
the state's NWI mapping coverage, exploration of remote sensing as a way to monitor
wetlands status and trends over time, and a floodplain hydrology demonstration project.
2. Nonooint Source Grants (CWA Section 319(h))
EPA offers grants to state-designated water quality agencies which can be used to abate
pollution and restore degraded wetlands. EPA also allows states to use Section 319(h)
funds for wetlands water quality restoration or mitigation. The 319(h) grants are
administered by the TDEC-Water Pollution Control Division (WPC).
3. Section 404 Permit Review
Section 404 of the CWA created a permit program to regulate the discharge of dredge and
fill material into waters of the United States, including wetlands. Primary responsibil-
ity for day-to-day operation of the program has been delegated to the USCOE.
EPA retains authority to review and comment on the impact of proposed dredge and fill
activities with respect to water quality. EPA can also "veto" permits that have already
been approved by the USCOE if the activity will result in significant environmental
degradation to aquatic resources of national importance.
While the USCOE has primary permitting and enforcement responsibility for Section
404 permits, EPA has enforcement authority to deal with discharges of dredge and fill
material where no permit has been obtained.
Both the USCOE and EPA have authority to seek civil or administrative remedies for
unauthorized discharges into waters of the U.S. In addition, EPA can pursue criminal
action in its enforcement actions.
4. Advance Identification of Wetlands (AD1D)
Within the past two years, EPA and the USCOE have initiated a pro-active planning
process, designed to identify and map wetlands within a study area and evaluate their
functions. The purpose is to identify ecologically valuable wetlands providing functions
to be protected, and which are therefore unlikely to be permitted to receive fill, under
Section 404. The process also defines areas where permit decisions can be made on a
case-by-case basis, as well as wetlands of limited ecological value which can probably
be permitted as fill sites.
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In cooperation with state regulators and planners, and local planning agencies, an AD ID
project defines a study area (usually one under some development pressure) and puts
together a field study team to characterize the wetlands, and assess their functions.
Eleven functions are evaluated for each area.
The wetlands in the study are mapped. Based on the field study and assessment, a
preliminary determination is made for each area. These results are entered into a draft
Technical Summary Document (TSD) which is circulated to all affected agencies,
members of the regulated community, and the public for review and comment. After
revision, if needed, the final map and TSD are distributed to regulators, planners and the
public; the information is used to guide decisions about Section 404 permits.
At the end of 1992, EPA Region IV had funded 12 ADID projects, to evaluate more than
750,000 acres, in 7 southeastern states. Most of these projects utilize remote sensing data
and CIS mapping technologies to display their findings. Tennessee currently has no
ADID projects in progress.
5. Public Education and Outreach
EPA publishes and distributes program materials for local government officials and
schools on values and functions of wetlands. EPA's outreach focuses on American
Wetlands Month (May) The theme in 1993 is "Wetlands are Wonderlands."
EPA has established a "Hotline" to provide information about wetlands and wetlands
publications to the public. The number is: 1-800-832-7828.
TENNESSEE VALLEY AUTHORITY (TVA)
1. Management of TVA Wetlands
TVA initiates a wetlands review for any action affecting TVA fee-owned properties or
properties of which TVA owns certain land rights; or for projects authorized, funded, or
carried out by TVA. Through this review process, TVA attempts to minimize the
destruction, loss, or degradation of wetlands and to preserve and enhance the natural
functions and beneficial values of these unique resources.
In cooperation with state wildlife management agencies and the USFWS, TVA operates
ten dewatering projects in northern Alabama and western Tennessee. These projects
provide more than 18,000 acres of critical wetland habitat that annually supports more
than 500,000 migratory ducks and geese, as well as other important wetland wildlife
species. In addition to the dewatering areas, TV A cooperates with state and federal wild-
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life agencies, Ducks Unlimited (DU), and other private conservation organizations to
develop waterfowl and wetland wildlife habitat on select tracts of TVA reservoir
property.
2. Constructed Wetlands Demonstrations
TVA is promoting the use of constructed wetlands as a wastewater treatment for animal
wastes, isolated residential communities, and individual residences where soils are
unsuited for conventional septic tanks and drainfields.
3. Technical Assistance
TVA staff has considerable expertise on wetlands identification, classification, vegeta-
tion, stream renovation and aquatic plant control. However, TVA's technical assistance
has been curtailed by budget and personnel reductions. Assistance with mitigation or
management is still offered when TVA actions have adversely affected the resource.
Also, TVA assistance is available where its efforts in areas such as the improvement of
water quality, reduction of local flood risks, or enhanced management of TVA lands
(including demonstrations on other private or public lands) involve or impact wetlands.
4. Research
TVA is developing a model environmental research center at its Muscle Shoals, Alabama
reservation to identify and evaluate technologies and methodologies to minimize adverse
wetland and water quality impacts resulting from wastewaters. A constructed wetlands
research facility is also located at the Muscle Shoals site.
B. STATE PROGRAMS
GOVERNOR'S STATE PLANNING OFFICE
The Tennessee State Planning Office (SPO) is part of the Governor's Office. Its responsibili-
ties include data collection, research, long range planning, and coordination for programs which
cross departmental lines.
In 1989, the Governor appointed a policy-level Interagency Wetlands Committee (TWC) to
provide a forum for discussion of wetlands issues, to share information, and to advise him on
state wetlands policy. The IWC has designated staff to participate in a Technical Working Group
(TWG) to carry out all necessary research and policy development. SPO staffs the coordinating
committee and administers a federal grant to support research and development of a state
wetlands conservation plan.
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In addition, the Governor has recently directed SPO to lead and coordinate a multi-party refor-
mulation of the West Tennessee Tributaries Project.
TENNESSEE DEPARTMENT OF AGRICULTURE
1. Technical Assistance
State soil conservationists provide technical assistance to landowners, in applying best
management practices (BMPs) to reduce soil erosion, and improve water quality
(including wetlands).
2. Financial Assistance forNPS-BMPs
The Division of Agricultural Resources administers a cost-share program in cooperation
with Soil Conservation Districts to assist landowners in implementing best management
practices (BMPs) for nonpoint sources of pollution. The BMPs reduce water quality
impacts associated with erosion, animal waste, nutrients, and pesticides. Approximately
$1.4 million/year received from a land transfer tax is allocated to the program through
the Agricultural Nonpoint Water Pollution Control Fund.
3. Forestry - Technical Assistance and Services
Technical assistance is provided by the Division of Forestry to non-industrial, private
landowners regarding multiple resource management of forest land, including forested
wetlands and bottomland hardwood forests. The Division nurseries provide seedlings
for reforestation of cropped wetlands.
The State Division of Forestry also administers two USDA programs: The Forest
Stewardship Program, and the Forest Legacy Program.
TENNESSEE DEPARTMENT OF ENVIRONMENT AND CONSERVATION (TDEC)
1. Section 401 Certification
The Clean Water Act requires the TDEC-WPC to review all Section 404 permit applica-
tions to determine whether the proposed action will cause water pollution. The state
reviews 130-150 permit applications each year. If the state denies water quality
certification, then the 404 permit cannot be issued.
2. Aquatic Resource Alteration Permit f ARAP)
The Tennessee Water Quality Control Act of 1977 requires a state permit if changes are
proposed to an existing aquatic environment, including wetlands; the TDEC-WPC
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reviews 140 permits applications per year. Agricultural and forestry activities are
exempted.
3. Nonpoint Source Program (NFS)
The NFS water quality program administered by TDEC-WPC conducts demonstration,
restoration, and landowner assistance programs in targeted watersheds to reduce impacts
of nonpoint source water pollution. The program has an annual budget of approximately
$2.2 million. The program uses wetlands as a treatment alternative, as well as targeting
protection of important wetlands.
4. Recreation Services (RSI
The Division is responsible for preparation of the State Comprehensive Outdoor
Recreation Plan (SCORP) which includes a wetlands addendum. The SCORP is required
for the state to be eligible for a Land and Water Conservation Fund (LCWF) allocation;
the SCORP guides expenditure from the LWCF in Tennessee. The plan must be revised
and updated every five years.
The division also provides technical assistance to local government units through the
Parks and Recreation Technical Assistance Service (PARTAS).
5. Ecological Services (ES1
The basic functions of the Division are database management, survey, inventory and
research. The Division maintains the state's "Heritage" database, which documents the
occurrence and location of rare plants, rare animals (with TWRA), and significant or
unique ecological communities, including wetlands. Upon request, the staff can assess
and evaluate specific wetlands sites.
Within the past year, the Division has established a river conservation program, the
Tennessee River Information System (TNRIS). The TNRIS program is compiling a
database for the state's river corridors. It will be linked to the GIS system, and used in
designation of the state's "Outstanding Natural Resource Waters", in recreation plan-
ning, and to support local land use decisions.
The Division also participates in the state's Protection Planning Committee (PPC), a
network of the biological resource managers across the state. The PPC meets quarterly
to compile, review and prioritize lists of ecologically significant sites - including
wetlands.
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The Division also administers the Natural Areas Acquisition and Registration Program.
The state may acquire outstanding examples of the state's natural landscape, including
wetlands, and protect or manage them. Acquisition is funded from a portion of the state
real estate transfer tax, funded at a level of $ 1 to $2 million/year; from the State allocation
from the federal Land and Water Conservation Fund (LCWF), or by direct appropriation.
The state may, with the consent of the owner, place unique or high quality wetlands on
the state Natural Areas Register. The power to make resource management decisions is
retained by the owner, although the state may offer technical assistance for protection of
registered sites. The status of a registered site is monitored annually.
TENNESSEE DEPARTMENT OF ECONOMIC AND COMMUNITY DEVELOPMENT
1. Local Planning Division
The division offers technical assistance and contractual planning services to counties and
cities, including land use planning and flood insurance programs.
2. Development Districts
The state's nine development districts also provide planning and grant writing assistance
to local governments, particularly for community based projects.
TENNESSEE WILDLIFE RESOURCES AGENCY (TWRA)
1. Geographic Information System (GIS1
The state's Geographic Information System is housed and staffed by TWRA. In addition
to basic information (political boundaries, roads, rivers and lakes, etc.) the Agency is
systematically importing databases from other agencies into the system (e.g., occur-
rences of endangered species, outdoor recreation areas, water quality data, etc.). The
state's long range goal is to provide CIS coverage for all 805 7-1/2 minute quadrangles
in the state.
The Agency has, as of the end of FY 1992, completed digitization of NWI data from 170
quadrangles, or 21 % of the quadrangles in the state. Digital data from recent SCS county
soils survey data are also systematically imported into the system, and additional recent
SCS maps are being digitized and added to the system, as funds are appropriated.
The GIS system is available to all state and local agencies, upon request, at nominal cost.
2. The Tennessee Wetlands Acquisition Act of 1986. amended on May 22,1989, earmarks
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a portion of the state real estate transfer tax for acquisition of wetlands. The tax gener-
ates approximately $3 million/year for the Wetlands Acquisition Fund (WAF). As of the
close of Fiscal 1992, the State had purchased 21,138 acres, for an expenditure of
$12,833,752 land cost, with an average cost/acre of $607.
Acquisition must be on a "willing seller" basis and approved by both the Commissioner
of Agriculture and the Director of TWRA. The first $300,000 received from the transfer
tax was set aside as a "Wetlands Compensation" fund, to be used for "in lieu of tax
payments to local governments.
Under special circumstances, uplands contiguous to wetlands and pan of an acquisition
unit may be purchased using the WAF, especially if they provide a buffer zone, or if
improved management of the land may minimize erosion, or contribute to the enhance-
ment of degraded wetlands. Uplands tracts of greater than 5000 acres per unit may be
purchased. For example, in September, 1991 43,621 acres of uplands (known as the
Koppers tract) was acquired with $3,638,581 from the WAF.
3. North American Waterfowl Management Plan
TWRA is the state agency charged with preparation of a State Implementation Plan (SIP)
for identification of appropriate sites, and for negotiations with other agencies and
organizations to carry out the plan. (See USFWS.)
4. Aid to Fisheries Act (Wallop Breaux)
TWRA administers funds allocated to the state to improve fisheries, including purchase,
enhancement and restoration of wetlands that provide fisheries benefits.
TENNESSEE DEPARTMENT OF TRANSPORTATION
1. Wetlands Mitigation Bank
The Department has developed a Wetlands banking program to offset unavoidable
impacts of highway construction on wetlands. TDOT currently has two wetland bank
sites in West Tennessee.
The Crooked Creek bank site is located in Carroll County between Huntingdon and
McKenzie immediately adjacent to State Route 22 and Crooked Creek. This 146± acre
site has been previously converted to cropland and a levee was constructed around the
area. The levee was removed during the widening of State Route 22 and a portion of the
site has reverted back to wetlands. The Department let a contract this past spring to
restore the remaining area to wetlands. Restoration consists of constructing a large basin
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for waterfowl and the planting of 78 acres of bottomland hardwoods.
The second wetland bank site is in Shelby County near Millington and is located between
proposed State Route 385 (Paul Barrett Parkway) and Big Creek. This site encompasses
571± acres most of which is prior convened cropland and a portion is still being farmed
today. This site is immediately adjacent to a large bottomland forest. The Department
plans to lei a contract for this project late this year or early next year. The Department
will construct several meandering basins for waterfowl and plant over 300 acres of
bottomland hardwoods.
In addition to these two sites the Department is presently working with the Tennessee
Wildlife Resources Agency and the Nature Conservancy to identify potential bank sites
across the State. The Department is actively investigating potential wetland banking
sites in all areas of the State to offset unavoidable losses due to highway projects. If
suitable sites are identified, TDOT will seek federal approval and funding to develop
them as mitigation banks.
The Department currently has 13 on-site wetland mitigation areas across the State that
are immediately adjacent to roadway improvements. In each of these sites, as well as the
banking sites, TDOT is creating waterfowl habitat and restoring bottomland hardwoods
utilizing prior converted and marginal cropland. The banking sites will eventually be
transferred to the Tennessee Wildlife Resources Agency to be managed as wetlands in
perpetuity.
INSTITUTIONS OF HIGHER LEARNING
1. Water Resources Research Center fWRRQ. University of Tennessee
The Water Resources Research Center is one of fifty state centers funded by the
Department of the Interior, to support water resources research projects of particular
interest to the state. Every year, the WRRC identifies and prioritizes research needs in
Tennessee and administers a competitive grant program to meet targeted needs. Wet-
lands research projects have been funded over the past decade. In 1992, the Tennessee
allocation was $ 110,000. Grants were made to 4 investigators at 3 institutions; none were
related to wetlands hydrology and function.
The Center also supports graduate education and serves as an information clearinghouse
and transfer agent.
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2. University of Tennessee Institute for Public Service (IPS)
The Institute, through its County Technical Assistance Service (CTAS), the Municipal
Technical Advisory Service (MTAS), and the Center for Government Training (CGT)
provide training, education and technical assistance to local government on many
subjects, including state and federal laws and programs. These agencies frequently assist
counties and cities to draft local ordinances and rules to guide development or manage
natural resources.
3. Tennessee Technological University: Center for the Management. Utilization and
Protection of Water
The Center is a fully established Center of Excellence, supporting both basic and applied
research related to water quality and quantity. In fiscal 1992, the Center had a budget of
$2.2 million, including both appropriated funds and extramural support. The Center
sponsored 47 projects last year, but only four of them were related to wetlands. It also
supports graduate education and training, and sponsors technology transfer programs.
C. PRIVATE CONSERVATION ORGANIZATION PROGRAMS
TENNESSEE CONSERVATION LEAGUE (TCL)
1. Biodiversity Program and GAP Analysis
The Biodiversity Program was initiated by the Tennessee Conservation League. The
Tennessee Biodiversity Program is a partnership between private conservation organiza-
tions, and several resource management agencies. The program's goal is to integrate
natural resources planning with agricultural production, industrial development and
community needs.
The Biodiversity initiative will assemble all available databases about Tennessee's bio-
logical resources—plants, animals and their habitats, by physiographic province. Wetlands
habitats are among the ecosystems included in the study, because of their species richness
and supporting functions. The assembled data will be entered into a common data base,
using Geographic Information System (GIS) overlays to display the information. The
accumulated data will be used to identify gaps in knowledge, gaps in habitats where
diverse ecosystems may be at risk, and gaps in conservation programs.
The biodiversity data will be integrated and displayed on GIS generated maps, and will
be shared with private landowners and local decision makers to enable them to protect
habitat as they make informed land use choices.
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THE NATURE CONSERVANCY (TNC)
The Nature Conservancy preserves rare plants, animals, and natural communities by protecting
the lands and waters they need to survive.
The Conservancy uses non-confrontational, market-based economic solutions to protect habitat.
Working only with willing sellers and donors, the Conservancy protects land through gifts,
exchanges, conservation easements, management agreements, targeted landowner education
and assistance efforts, and purchases. Some acquisitions are transferred to local, state, or federal
agencies, other conservation groups, and academic sector institutions for management. Pre-
serves retained by the Convervancy are managed with the most sophisticated ecological
techniques available.
The Tennessee Chapter has protected approximately 54,500 acres in the Volunteer State. The
Conservancy has acquired and manages 9 preserves across Tennessee.
In addition, the field office has been involved in numerous cooperative projects including the
addition of nearly 20,000 acres of bottomland hardwood forest to the USF&WS and the
Tennessee Wildlife Resources Agency to become the Chickasaw National Wildlife Refuge.
D. LANDUSER ASSOCIATIONS
TENNESSEE FARM BUREAU FEDERATION (TFBF)
The Farm Bureau is an association of farmers and agricultural landowners. The Bureau conducts
research and educational activities for its membership, and represents agricultural interests in
both legislative and administrative rule making proceedings.
TENNESSEE FORESTRY ASSOCIATION (TFA)
TFA is an association of industrial and individual forest owners, managers, and professional
foresters. TFA monitors state and federal forestry programs, and speaks for forest owners in the
General Assembly. TFA represents forestry interests in development of forest management
regulations and incentive programs.
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I. BASIC HYDROLOGY
A. Hydrologic Regime of Wetlands
1. Hydroperiods and Inundation Depths
2. Sources, Sinks and Pathways
a. Evapotranspiration Rates and Controlling Factors
b. Groundwater Interactions
c. Flow Regimes (Velocities)
H. WATER QUALITY
A. Spatial and Temporal Variability
1. Water Quality Effects of Wetlands
a. Upstream vs. Downstream
b. Wetlands vs. Drainage Canals
2. Seasonal Variation of Water Quality
HI. ECOLOGY
A. Plant Distribution and Succession
B. Wildlife Utilization of Wetlands
C. Fisheries Utilization of Wetlands
D. Nutrient and Energy Pathways
E. Characterization of Geomorphic, Hydrologic and Biotic Interrelations
IV. HISTORICAL CHANGES
A. Sedimentation Rates
B. Logging, Timber Kills, and Reforestation
C. Channel Modification
1. Catalog of Construction and Maintenance Activities
2. Direct Causes and Effects of Modification
D. Agricultural Expansion and Contraction
E. Reestablishment and Spread of Beaver
V. ECONOMICS
A. Forestry Management Practices
B. Agricultural Uses and Benefits
C. Private Ownership Benefits, Liabilities and Opportunities
D. Public Interest Benefits, Liabilities and Opportunities
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anaerobic - a condition in which molecular oxygen is absent (or effectively so) from the environment
aquifer - a layer of rock or sediment containing water that can be withdrawn in usable quantities from
a well
best management practices - a set of guidelines or standards detailing the methods to be employed in
the conduct of an activity (e.g. timber harvest, road construction) to reduce its impacts
biodiversity - the number of species in an area; species richness
bottomland hardwood forests - hardwood forests of periodically flooded lowlands and alluvial
floodplains along streams and rivers, with diverse vegetation that varies in species composition and
growth characteristics along gradients of flooding frequency and soil saturation
climax - the terminal stage of ecological succession resulting in a self perpetuating plant community
conversion - to drastically alter land use; e.g., to clear a forested area and develop a subdivision on the
site
delineation manual - a set of procedures for precisely determining the boundaries of wetlands; based
on hydrology, soils, and vegetation
emergent vegetation - a rooted herbaceous plant that has parts extending above the water's surface
endangered species - a species considered to be in immediate danger of extinction
enhancement - to improve; in the context of wetlands the process of improving the functional capabil-
ity and therefore the quality of wetlands that have been degraded by past activities
facultative hydrophyte - a species of plant that is equally likely to occur in a wetland or a non-wetland
(estimated probability 33 to 67 percent)
function - the normal characteristic actions or activities of wetlands; e.g., many wetlands perform the
function of sequestering and transforming nutrients; distinguished from value
GAP analysis - a methodology for identifying areas in which there are gaps in biodiversity; based on
CIS technology and the analysis and overlaying of plant and animal distribution data bases
geographic information system (GIS) - a methodology using computer maps integrated with multiple
data bases; used to characterize, identify, and manage at local or landscape scales; a computerized
approach for overlaying maps
hydric soil - a soil that is saturated, flooded, or ponded long enough during the growing season to
develop anaerobic conditions in the upper part; conditions favor the growth and regeneration of
hydrophytic vegetation
hydrogeomorphic system - a classification system for wetlands based on geomorphic setting, water
source, and hydrodynamics; used to identify and group functionally similar wetlands
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hydrologic modification - an alteration to an existing hydrologic regime
hydrologic regime - the normal characteristics of frequency, duration, seasonally, depth, and move-
ment of water in a waterbody or wetland
hydrologic unit -' land area having boundaries drawn mostly along surface water basin divides;
Tennessee contains all or pan of 57 cataloging units which are aggregated into 12 accounting units
hydrology - the science dealing with the properties, distribution, and circulation of water, both above
and below ground
hydroperiod - pertaining to the temporal aspects of a hydrologic regime
hydrophyte - a plant (other than microscopic species) that grows in water or on a substrate that is
periodically deficient in oxygen as a result of excessive water content; plants typically found in wet
environments
jurisdictional wetland - an area determined to have the characteristic hydrology, vegetation, and soils
typical of wetlands; therefore the area is subject to various regulations such as section 404 of the CWA
lacustrine - wetlands and deepwater habitats with all of the following characteristics: (1) situated in a
topographic depression or a dammed river channel; (2) lacking trees, shrubs, persistent emergent
vegetation, emergent mosses, or lichens with greater than 30 percent areal coverage; and (3) total area
exceeds greater than 20 acres.
limnetic - all deepwater habitats in lacustrine waterbodies
littoral - wetland habitats of a lacustrine system that extends from shore to a depth of 2 meters below
low water or to the maximum extent of nonpersistent emergent plants
levee - a naturally crated elongate ridge formed by deposition of waterborne sediment parallel to and
adjoining the shoreline of a body of open water; or a manmade feature of the landscape that restricts
movement of water into or through an area
mitigation - the lessening or moderating of negative effects; in regards to wetlands, actions that result
in reducing the loss or degradation of wetlands in an area
mitigation bank - an area established for the purpose of offsetting unavoidable losses of wetlands;
acreages (or other units based on function) are "withdrawn" from the bank to compensate for ones that
have been lost
nonpoint source pollution - pollution not associated with a specific locality such as a discharge pipe,
drain, etc.; broad-based input of pollutants
no overall net loss - in reference to wetlands, the concept that acreages and functional capability will
not be reduced below existing or baseline levels; any wetlands lost must be replaced by creating new ones
obligate hydrophyte - a plant that occurs almost always (estimated probability greater than 99 percent
of the time) in wetlands; almost never occurs in non-wetlands
palustrine wetlands - nontidal wetlands dominated by trees, shrubs, or persistent emergent vegetation;
and wetlands lacking such vegetation but with the following characteristics: (1) area less than 20 acres
in size; (2) lack of wave formed or bedrock features; and (3) water depth in the deepest part of the basin
of less than 2 meters at low water
poorly drained - a condition in which water is removed from the soil so slowly that the soil is saturated
periodically during the growing season or remains wet for long periods greater than 7 days
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potentially hydric soils - wetness limited soil map units that (1) are similar to hydric soils in taxonomy
and water properties, (2) are not classified as hydric because they fail to demonstrate sufficient depth of
saturation, flooding frequency, drainage rates or other essential criterion, and (3) may exhibit site
specific morphological properties or inclusions of hydric soils upon field evaluation
prevalence index - a weighted average measure of the sum of the frequency of occurrences of all species
along a single transect or as calculated for a plant community by averaging the prevalence index of all
sample transects through the community
primary productivity - energy stored by phptosynthetic activity of producer organisms (chiefly green
plants) in the form of organic substances which can be used as food materials
remote sensing - the gathering of information from instruments not actually on site; for example, using
color infrared photography to study the species composition of a forest
restoration - the process of replacing some attribute that has been lost or decreased; with wetlands,
manipulating vegetation or hydrology to facilitate the establishment and maintenance of conditions that
previously existed
riparian - associated with the bank of streams, rivers, or lakes
riverine wetlands - wetlands contained within a channel; exceptions include those dominated by trees,
shrubs, and persistent emergents and those in which ocean-derived salinities are greater than 5 ppt
lower perennial - riverine systems with continuous flow and low gradient
upper perennial - riverine systems with continuous flow and high gradient
intermittent - riverine systems in which water does not flow for part of the year
scrub-shrub - dominated by wood vegetation less than 6 meters tall
slough - a slowly flowing shallow swamp or marsh
soil survey - a process of identifying and mapping soils; usually within a county
succession - the orderly replacement of one plant community by another
value - benefits, goods, and services that result from functions; e.g., one function of many wetlands is
the storage of surface water, the value of that function is to reduce flood damage
wetland type - a category of wetlands based on similar physical characteristics, such as vegetation,
geomorphology, and/or hydrology
wetlands capability base - the acreage of existing soil map units that are indicative of existing and
restorable conditions capable of supporting wetlands vegetation deteptable by typical aerial inventory
methodologies
wetland(s) characterization - describing the typical distinguishing attributes of a wetland type (e.g.,
deep floodplain basins) or the wetlands of a particular geographic area (e.g., Reelfoot Lake and
watershed), including biological, geomorphological, hydrological, climatological, and chemical para-
meters; and socioeconomic and ecological processes and effects
wetness limited soils - those soils in which excessive water from flooding or saturation impairs or
prohibits certain activities or uses, such as agriculture or septic system sewage disposal
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BLH Bottomland Hardwoods
BMP Best Management Practice
CRP Conservation Reserve Program
CWA Clean Water Act
FEMA Federal Emergency Management Agency
FSA Food Security Act
CIS Geographic Information System
HGM Hydrogeomorphic
LWCF Land and Water Conservation Fund
MBCF Migratory Bird Conservation Fund
NFS Nonpoint Source Pollution
NRI Natural Resource Inventory
SCD Soil Conservation District
WCP Wetlands Conservation Plan
WRDA Water Resources Development Act
WRP Wetlands Reserve Program
WTT West Tennessee Tributaries Project
TSD Technical Summary Document
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Brinson, M.M. 1992. A Hydrogeomorphic Classification of Wetlands. U.S. Army Corps of Engi-
neers, Washington, D.C. Technical Report WRP-DE-4. (Unpublished Draft)
Cowardin, L.M., V. Carter, F.C. Golet, and E.T. LaRoe. 1979. Classification of wetlands and
deepwater habitats of the United States. U.S. Fish and Wildlife Service, Washington, D.C. 131 pp.
Dahl.T.T. 1990. Wetlands losses in the United States 1780's to 1980's. U.S. Department of the
Interior, Fish and Wildlife Service, Washington, D.C. 22 pp.
Federal Interagency Committee for Wetland Delineation. 1989. Federal Manual for Identifying
and Delineating Jurisdictional Wetlands. U.S. Army Corps of Engineers, U.S. Environmental
Protection Agency, U.S. Fish and Wildlife Service, and U.S.D.A. Soil Conservation Service.
Washington, D.C. Cooperative Technical Publication. 77 pp. plus appendices.
Hefner, J.M. and J.D. Brown. 1984. Wetland trends in the southeastern United States. Wetlands.
Vol. 4, pp. 1-11.
Mitch, W.J. and Gosselink, J.G. 1993. Wetlands. Second Edition. Van Nostrand Reinhold, 115
Fifth Ave., New York, N.Y. 697 pp.
Pavelis, G.A. 1987. Economic survey of farm drainage. In Farm Drainage in the United States.
U.S.D.A., Economic Research Service, Washington, D.C. pp. 110-136.
Reed, P.B., Jr. 1988. National List of Plant Species that Occur in Wetlands: National Summary.
U.S. Department of the Interior, Fish and Wildlife Service, Washington, D.C. Biol. Rpt. 88(2A).
244pp.
Shaw, S.P. and C.G. Fredine. 1956. Wetlands of the United States. U.S. Department of the Inte-
rior, Fish and Wildlife Service, Washington, D.C. Circular 39. 67 pp.
Tennessee Department of Conservation. 1988. Tennessee Wetlands Plan: An addendum to the
Tennessee State Recreation Planning Report. Nashville, Tennessee. 118 pp.
U.S. Department of Agriculture, Soil Conservation Service. 1988. National Food Security Act
Manual. Washington, D.C.
U.S. Department of Agriculture, Soil Conservation Service. 1982. National Resources Inventory,
Washington, D.C.
U.S. Department of Agriculture, Soil Conservation Service. 1987. National Resources Inventory,
Washington, D.C.
U.S. Department of Agriculture, Soil Conservation Service. 1991. Hydric soils of the United
Washington, D.C.
U.S. Department of Agriculture, Soil Conservation Service. 1991. Soil survey statistical database.
(Unpublished). Iowa State University Statistical Laboratory, Ames, Iowa.
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