TENNESSEE WETLANDS
CONSERVATION STRATEGY
SECOND EDITION:
CURRENT PROGRESS AND CONTINUING GOALS
by the
Governor's Interagency Wetlands Committee
and its
Technical Working Group
January 1996
EPA #904 R 96 001
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EPA #904-R-96-001
TENNESSEE WETLANDS CONSERVATION STRATEGY
SECOND EDITION:
CURRENT PROGRESS AND CONTINUING GOALS
by the
GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
and its
TECHNICAL WORKING GROUP
January 1996
Published by
Tennessee Environmental Policy Office
14thFloor, L&C Tower
401 Church Street
Nashville, TN 37243-1553
(615) 532-8545
The information in this document has been funded wholly or in part by the United
States Environmental Protection Agency under EPA Grant No. X004833-90-3 to the
Tennessee Department of Environment and Conservation. 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
DON SUNDQUIST
GOVERNOR
January 18,1995
£aw Tennesseans,
! am very pleased to share with you the Tennessee Wetlands Conservation
_>. Second Edition: Current Progress and Continuing Goals. This plan and its
oHshments result from a concerted effort by private, state and federal interests to
the genuine necessity of wetlands conservation with a sensitivity to the rights and
of our citizens.
Over the last two years, the Strategy has been implemented largely on schedule
^i± sixess inside and outside of Tennessee. The Strategy has encouraged state agencies
- rrsc: state and federal funding for wetlands conservation in much more effective
freedom than the past. State wetlands and soils information has been computerized not
roy nr ihe benefit of wetlands, but also for more thoughtful agricultural, economic and
nrspoTiation activities. Gradual improvements are being made in the fairness and
rbecr.ty of wetlands regulations. More information and technical support are being
rrr-if ec to improve the natural and economic opportunities for privately owned wetlands.
'— idrioa, the Strategy and its unique consensus approach has catalyzed numerous out of
S2i2 requests for copies of the plan and advice
Ii is true that wetlands resources are vital components of Tennessee's valuable and
e±r-es threatened ecosystems. Recent data and current professional opinion indicate
tbe rate of wetlands loss has significantly declined. However, we still recognize that
"no net loss" goai for the state's wetlands remains a challenge To maintain the
am of our accomplishments, my administration will continue to support the
f and its related activities. To all citizens of Tennessee, I urge your support and
Sincerely,
Don Sundquist
State Capitol, Nashville, Tennessee 37243-0001
Telephone No. (615) 741-2001
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TABLE OF CONTENTS
Page
Acknowledgments iv
Preface v
Chapter I Tennessee Wetland Resources: Description, Status, and Trends 1
Chapter n Goal of the State Wetlands Strategy 25
Chapter III Objectives 29
Chapter IV Existing Wetlands Agencies, Organizations, and Programs 33
Chapter V Action Plan 43
Chapter VI Coordination and Funding 69
Chapter VII Monitoring and Evaluation 85
Appendices
A, Part I Tennessee Interagency Wetlands Committee 89
A, Part II Tennessee Interagency Wetlands Committee, Original Members .... 91
B Wetlands Definition, Identification, and Delineation 93
C Technicai Reports • 95
D Recommended Tennessee Wetlands Research Topics 97
E Glossary 99
F Acronyms 103
G State Wetlands Planning Processes 105
H Original Endorsement from Former Governor Ned 107
McWherter
I Key Actions Under Way or Completed and Policies (Parts B&C). 109
J References 113
i
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LIST OF TABLES
Page
Table 1 Acres of Wetlands and Wetlands Indicators Found by
Various Surveys.
Table 2 Test Quadrangles Selected for Digitization, G1S
Mapping and Field Analysis 10
Table 3 Agencies, Organizations and Programs Affecting
Tennessee Wetlands 34
Table 4 Tennessee Wetlands Acquisition, Restoration and
Management 38
Table 5 Summary of Implementation and Reporting
Responsibilities 60
Table 6 Implementation Schedule and Status 73
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LIST OF FIGURES
Page
Figure 1 General Distribution of Hydric Soils in Tennessee 5
Figure 2 Status of National Wetland Inventory Digitization in
Tennessee 7
Figure 3 Status of Soil Survey Digitization in Tennessee 9
Figure 4 Physiographic Regions of Tennessee 11
FigureS Sub-Ecoregions of Tennessee 12
Figured Hydrologic Units of Tennessee 13
111
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ACKNOWLEDGMENTS
The State of Tennessee gratefully acknowledges the contributions and efforts of the
following individuals and organizations who made the Tennessee Wetlands Conservation
Strategy possible The support of Governor Don Sundquist and former Governor Ned
McWherter is especially gratefully acknowledged. Their support empowered, sanctioned and
catalyzed the planning and implementation participants Without their support, the Strategy
would not be a national model of bi-partisanship and a true state wetland conservation plan.
Representative Page Walley and the members of the Joint Committee on West
Tennessee Tributaries and Streams are recognized for fostering awareness and support for the
Strategy and its accomplishments in the Tennessee General Assembly.
The contributions of Dr. Ruth Neff are gratefully acknowledged Dr Neff provided
critical guidance, wisdom and vision as Chair of the planning committee and as author/editor
of the original Strategy. Also acknowledged are the contributions of Mr. Tom Talley. Mr.
Talley provided sound expertise as technical coordinator of the planning process. He
completed three pilot studies identifying worthy wetlands research and information technology
investments and greatly contributed to the development of this document.
Special recognition is due the members of the Governor's Interagency Wetlands
Committee and its diligent Technical Working Group (See Appendix A). These individuals
provided the commitment and cooperation needed to develop and implement the Strategy
The Strategy and its progress would not have been possible without the generous
financial and professional support of the United States Environmental Protection Agency
Tony Campbell, formally of the Tennessee Conservation League and Julius Johnson of
the Tennessee Farm Bureau are recognized for initiating and sustaining the consensus process
and implementation of the Strategy during uncertain transition periods.
Commissioner Don Dills of the Tennessee Department of Environment and
Conservation and Mr. Leonard Bradley, Assistant to the Governor for Policy are recognized
for continuing important executive level coordination in the Sundquist Administration.
The State also gratefully acknowledges the contributions of Ms. Melanie Reddy who
capably edited and revised the text and style of the document and its new status of actions.
iv
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PREFACE
The Tennessee Wetlands Conservation Strategy, first published in February 1994,
created a blueprint to guide agency and organizational decisions, research, and actions to
better understand and conserve Tennessee's wetlands resources. This is the second edition of
the Strategy, developed to provide a progress report on actions accomplished, changes in
institutional support and challenges that continue to be addressed since the first publication.
Much of the original plan text remains unchanged (with the exception of this preface, revisions
in institutional names and updated data). However, this edition will reflect a shift in focus
from planning to implementation.
The development of a Wetlands Strategy in Tennessee began in the fall of 1989, when
Governor Ned McWherter appointed an Interagency Wetlands Committee (TWC) to advise
him concerning the status of the state's wetlands Members of the Committee are the leaders
of state and federal agencies with program responsibilities related to wetlands, and the leaders
of private user groups and 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 appointed a Technical Working Group (TWG), consisting of
professional staff members from each agency or organization, to cany out necessary research
and technical analysis. A list of present members of the Committee and of the Working Group
appears in Appendix A, Part I.
In December 1989, the IWC recommended that the State develop a comprehensive
statewide Wetlands Conservation Plan for Tennessee. Their decision was partially based on
guidance from the 1987 National Wetlands Policy Forum, which recommended that all states
develop conservation plans. In July 1990, EPA awarded a $102,910 Wetland Program
Development Grant to the State to initiate the planning process.
Tennessee was one of the first two states in the nation to attempt development of a
State Wetlands Conservation Plan (WCP). As work on the state plan progressed, it became
quickly apparent that data needed to formulate quantified objectives were not available.
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Concurrently, the state of the science of wetlands qualification, including classification,
characterization, and functional value assessment was undergoing a major transition.
The TWO concluded that it was not possible to produce a comprehensive State
Wetlands Conservation Plan as originally conceived, but that it was possible to develop a
comprehensive conservation strategy to guide statewide wetlands policy and technology
development.
At about the same time, the World Wildlife Fund (WWF) convened an advisory panel,
including Tennessee and 16 other states, to formulate State Wetlands Conservation Plan
Guidelines. WWF's advisory panel also agreed that a Strategy rather than a comprehensive
plan was the most viable option.
The TWO decided to prepare a Wetlands Conservation Strategy following the 1992
WWF strategy guide. 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
The TWO 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 which the State can use for guiding policy decisions
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 proposed actions are intended to simplify regulatory programs,
improve interagency coordination, and decrease uncertainty for landowners and the regulated
community. The 1993 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.
After finding the Strategy to be consistent with the President's policy, the final
document was approved by the IWC. On February 22, 1994, Governor Ned McWherter
endorsed the Strategy as an official instrument of state wetland policy.
Tennessee's current Governor, Don Sundquist, has recognized the value of the
consensus approach taken by the IWC, as well as the importance of executive level
VI
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sponsorship of the Strategy. His adoption of the Strategy has enabled the IWC and the TWO
to continue to work toward fulfilling its objectives.
The generous financial support of the Environmental Protection Agency in developing
the Tennessee Wetlands Conservation Strategy has been a critical component of its success
Since 1989, the State has received $903,047 in grants from EPA for the development and
implementation of the Strategy.
Implementation of the plan is predominantly on schedule, and the first year has seen
several successes in the advancement of our wetlands knowledge base through targeted
research and advances in geographical information system data collection. The focused,
action oriented structure of the Strategy has enabled it to be a working plan, rather than just a
policy document. Its broad based support, and cooperative tone have helped to lessen
negative perceptions of wetland conservation by non-environmental interests. It has also
encouraged numerous state program actions and has increased federal and state interagency
and intraagency coordination (See Appendix I for detailed information concerning
implementation accomplishments)
Growing interest in the Strategy across the nation but particularly the southeast has
provided Tennessee with the opportunity to present the Strategy as a planning model for other
states. Since its adoption, nine presentations have been made at state regional and national
conferences sponsored by private and public interests. Persons from 38 different states have
requested a copy of the Strategy and information related to "lessons learned" in the Tennessee
planning experience (See Appendix G for summary of "lessons")
Overall, the atmosphere for wetlands conservation in Tennessee has been very positive
in the last two years. Acquisition of targeted wetlands by the Tennessee Wildlife Resources
Agency has continued. Increased cooperation among other wetlands interests to purchase and
protect unique wetlands has also occurred. In 1995, local organizations, state agencies and
national conservation groups banded together to purchase a largely pristine, 4000 acre tract of
bottomland hardwood and cypress-tupelo swamp wetlands on the Wolfe River in Fayette
County. Important advances also continue to be made through the stable consensus of the
West Tennessee Tributaries Steering Committee Their restoration demonstration project
seeks to restore over 21 miles of river meanders along a previously channelized river. Federal
vu
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wetland grants, received through the Strategy, have played a significant role in its
development. Federal and state sanctioned mitigation banking, with a strong emphasis on
wetland restoration as opposed to creation and preservation continues to grow. Renewed
emphasis on greenways also offers new opportunities for wetland conservation in rapidly
urbanizing areas.
Challenges in wetland conservation still exist. Polarization over wetlands issues
continues at the national level as the reauthorization of the Clean Water Act and its federal
wetlands regulatory policy is being considered. The balance between growth and
conservation in Tennessee continues to be a challenge not only for wetlands resources but also
for open space, farm communities and farmland, "viewsheds" and floodplains. An emerging
threat is the invasion of purple loosestrife in Tennessee wetlands. This aggressive pest plant
has already displaced natural vegetation and has sterilized valuable habitat in thousands of
acres of wetlands in other states (See Appendix I, Part C).
It is clear, after two years of plan implementation, that interagency and
interorganizational cooperation can effectively focus a broad array of resources and expertise
on a mutually agreed set of objectives and actions The end result however, must be true, "on
the ground" conservation of wetlands in Tennessee (i e, no net loss of acreage and wetlands
restoration). This success has still yet to be determined by solid data. Continued
implementation and active data collection on the status and trends of Tennessee's wetlands
over the next four years will hopefully reveal the progress of this Strategy and associated
conservation efforts
vm
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CHAPTER I
TENNESSEE WETLAND RESOURCES:
DESCRIPTION, STATUS, AND TRENDS
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 distinct 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 wetlands. It was concluded that the development of an independent state
definition at this time was unnecessary, and could be counter-productive
In the August 24, 1993 White House policy document, "Protecting Wetlands. A Fair
Flexible and Effective Approach," the Clinton administration offered no new recommendations
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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 collectively referred to as palustrine wetlands.
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.
In 1993, 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
interpretations of wetlands types made in TABLE 1 are based on the best professional judgment
of the TWO staff, and not the authors of the referenced publications.
An indirect estimate of the state's "wetlands capability base," areas that are capable of
supporting wetlands, can be made based on the occurrence of hydric soils USD A Natural
Resource Conservation Service (1991) soil survey data maintained by the Iowa State University
Statistical Laboratory were summarized for Tennessee. The analysis indicated hydric soils
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TABLE 1
ACRES OF WETLANDS AND WETLAND INDICATORS FOUND BY VARIOUS SURVEYS
WETLAND TYPE1
Palustrine
• Forested
• Scrub-Shrub
• Emergent
Subtotal
• Open Water
• Unconsol, Bottom
• Unconsol, Shore
Subtotal
Total Palustrine
Lacustrine
• Limnetic
• Littoral
Subtotal
Riverine
• Lower Perennial
• Upper Perennial
• Intermittent
Subtotal
GRAND TOTAL
Soils
• Hydric
• Potential Hydric
Subtotal
SCS SOILS DAHL SHAW & DARL NRI NRI TWP TWRAGIS
DATA 1780'S FREDINE 1956 1980'S 1982 1987 1988 170 QUADS
639,177
737,000 730,400 522.467
8,500 8,500 25,516
53,800 53,800 27,518
799,700 792,700 575,501
64,000 38,191
1,937,000 828,000 787,000 863,000 856,000 3,132
1,621
64,000 42,944
618,445
44.061
3,851
47,912
117,025
96
19
117,140
783,497
1,546,254
1,236,946
2,783,200
1 as described by Cowardin, et al, 1979.
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acreage of approximately 1 55 million acres Distribution of the general hydric soils of Tennessee
is shown in FIGURE 1.
An additional 1.24 million acres are considered by the TWG 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 converted
to non-wetlands 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 the percentage of area containing
hydric soils decreases from west to east 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 for the Southeast by Hefner and Brown (1984) Thirty-three square mile
sample plots (equaling 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 Freding (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 has
828,000 acres of waterfowl habitat (assumed to be vegetated wetlands).
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It is noteworthy that Shaw and Freding (1956) 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 The NRI in past years was performed by
sampling numerous points across the state with reported with a 95% condfidence interval. The
1982 and 1987 inventories indicated 863,700, and 856,700 acres respectively of palustrine
wetlands (this data is based on 1993 calculations1)
In 1988, the former Tennessee Department of Conservation formulated a "State Wetlands
Plan" as an addendum to the 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 (571,000 ac. or 89% in the
western grand division and 68,177 ac. or 11% in the remainder of the state).
Tennessee Wildlife Resources Agency is currently digitizing National Wetlands Inventory
(NWI) maps into their Geographic Information System (GIS). Digitization provides for a
relatively accurate determination of the acreage of wetlands digitized. To date approximately
60% of the state's total area in NWI quadrangles have been digitized (this represents a 38%
increase since 1993 - See Figure 2). Maps have been prioritized for digitization based on areas of
known wetlands concentration.
Out of 170 digitized maps analyzed in 1993, one hundred forty digitized maps occurred in
West Tennessee. The remaining 30 were in areas of high wetlands concentration in the central
and eastern grand divisions. Analysis indicated that there were 783,497 acres of wetlands on 170
digitized quadrangles; 618,445 of these acres are palustrine wetlands. Based on distribution of
hydric soils, it appears that 80% to 85% of the state's wetlands may have been digitized.
Extrapolation of this data indicated approximately 773,000 to 825,000 acres of palustrine
wetlands statewide.
1 In 1994, adjustments were made in the 1982 NRI data to better conform to the Cowardin (1979) wetland classification
system and to make certain corrections. These adjustments resulted in revised estimates of 664,000 acres (± 68,000 acres) of
palustrine wetlands on non-federal lands. The 1992 NRI estimated 668,100 acres (± 67,900 acres) of palustrine wetlands on
non-federal lands. Adding federal wetlands acres would provide a state total The confidence intervals of the data indicates no
statistical difference between samples (i.e., an increase of acreage from 1987 to 1992 cannot be assumed and a no net loss
might be presumed—Quoted from state NRCS staff).
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FIGURE 2: STATUS OF NATIONAL WETLANDS
INVENTOR Y DIGITIZA TION
LEGEND
NWI Digitization Completed Prior
to 10/11/93
NWI Digitization Completed Between
10/11/93 and 08/16/95
County Boundaries
Major Rivers and Reservoirs
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Ill
ill
one knows the exact acreage of Tennessee's wetlands In 1993, TWRA's digitized
(|I1|..J concluded that a minimum of 618,445 acres of palustrine wetlands existed Hefner and
//'
(|, r>84) concluded a statistically derived maximum of 912,920 acres of palustrine wetlands.
iM,ue of Hefner and Brown (1984), SCS 1987 NRI, and TWRA's GIS projected data
M
(|)i •! upproximately 814,000 acres of palustrine wetlands in the state
,\ more accurate estimate of Tennessee's total wetlands acreage will be possible as
,,,1,111 of the NWI and hydric soils data for the entire state is completed and imported into
((j., Astern. Digital data from additional NWI quadrangles acquired and digitized in to date
,l, dvf aid of a FY 1993 program development grant from USEPA are near completion (See
,„ IIGURE 2) Soil survey quadrangles are being digitized by a similar USEPA grant with
i
^•,\\ progress Other soil surveys have been digitized as new soil surveys are completed
. ,0l'RE 3,- EPA finding aided the central West TN efforts)
i <
Uditional data concerning wetland data quality has been provided by the digitization of
,lV>< statistical analysis of seven test quadrangles. This data was combined with field
.u,«i to test the correlation between hydric soils, mapped NWI wetlands, and vegetative
>.^ quadrangles, representing six of the state's physiographic provinces, are listed and
.,v> .n TABLE 2. FIGURE 4 illustrates the distribution of physiographic regions where
. ,x .>.uads were selected.
•v results of a statistical analysis conducted with GIS with resulting maps and overlays
vvv reported along with field investigation of soils, plant species and prevalence indices for
s v seven quadrangles identified in Table 2 (See APPENDIX C for a complete list of
v >xA Reports supporting the Strategy). Based on these and other studies, opportunities for
\
^v „ c soils correlation combined with the use of informative soil survey meta data files has
x .vteased the state's interest in soils digitization.
VT* approaches for evaluating "subphysiographic province1' resource characteristics are
^ ,>*isued by Tennessee as "ecoregion delineation". This data layer may provide new
of wetland systems based on geomorphological positioning, climate and other
FIGURE 5) It is recommended that in the future, inventory and field data should be
ki and reported at least according to the US Geologic Survey (USGS) hydrologic units
s:vURE 6), and by wetlands type.
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FIGURE 3: STA TVS OF SOIL SUR VEY DIGITIZA TION
LEGEND
SoilRecompilation Completed
Soil Digitization Completed
So 11 Digitization Draft
l/vl County Boundaries
IA/J Major Rivers and Reservoirs
MJUICl. SOIL DATA PSO VIDBD IY TWIA AND NIC*.
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TABLE 2
TEST QUADRANGLES SELECTED FOR DIGITIZATION, CIS MAPPING AND ANALYSES
QUADRANGLE
Knob Creek
Rutherford
Turnpike
Milledgeville
Fredonia
sol me
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
080I020S
08010202
08010100
08010203
08010208
06040001
06040002
05130107
06010208
05130105
06010204
06020002
PERCENT OF
QUADRANGLE
40%
10%
20%
30%
100%
100%
100%
70%
30%
95%
5%
50%
50%
10
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FIGURE 4
PHYSIOGRAPHIC REGIONS OF TENNESSEE
:••. . •. .•••.. . f.y . * 'fs.t>.m. .
•...:..••»«.«»,.•! j .••.::•."...•.'..• !,«;!'
IESTERN IETLANDS CONCENTRATION
Mississippi River Va
Gulf Coastal Plain
Western Valley
Western Highland Rim
Outer Basin
Central Basin
e y
Eastern Highland Rim
Cumberland Plateau
Sequatchie Valley
Ridge and Valley
Unaka Mountains
MAP GENERATED BY THE TENNESSEE 1 I LDL I FE RESOURCES AGENCY G.I.S.
1993
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FIGURE 5: SUB-ECOREGIONS OF TENNESSEE
January 1996 - Draft in Progress
25 0 25 50 75 Miles
Ecoregion
Blackland Prairie
Bluff Hills
Cumberland Mountains
jj Cumberland Plateau
Eastern Highland Rim
Fall Line Hills
Flatwoods/Alluvial Prairie Margins
m Southern Igneous Ridges and Mountains
Inner Nashville Basin
Limestone Valleys and Coves
Southern Limestone/Dolomite Valleys and Low Rolling Hills
Loess Plains
, K; ; Mississippi Alluvial Plain
Outer Nashville Basin
^fj§ Plateau Escarpment
Southern Sandstone Ridges
Sequatchie Valley
yjj§ Southern Shale Ridges and Knobs
Southern Shale Valleys and Slopes
Southern Sedimentary Ridges
Southeastern Plains and Hills
Southern Metasedimentary Mountains
Transition Hills
Western Highland Rim
Western Pennyroyal Karst
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FIGURE 6: HYDROLOGIC UNITS OF TENNESSEE
LEGEND:
MMODm Hydrdogic Unit Number
N
Hydrohgic Unit Boundaries
N
•
County Boundaries
Major Rivers
Water Bodies
HAP GENERATED M THE TENNESSEE 1ILDLIFE RESOURCES AGENCY CIS. 1993
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What Are the Basic Types of Wetlands?
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 are 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 characterization. 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
• hydrologic profile (water duration, depth, and flow)
Data currently used to determine these indicators include
• topographic analysis
• soil characteristics
• hydrologic data and indicators
• watershed analyses
• 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.
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Ten wetland types based on HGM concepts have been identified in Tennessee2. 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.
1. Deep floodplain basins: old river channels, oxbows, or deep sloughs typically devoid of woody
vegetation; often colonized by submergent or floating leafed 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 emergent
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 landscapes m
association with intermittent or first order streams whose gradient increases significantly downstream;
vegetation vanes 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 landscapes,
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
1 Two additional classes were offered to the list of ten by Talley (1994): 11. Terrace Flats: saturated, infrequently flooded
flats on terraces and 12. Upland flats saturated, rarely ponded flat areas on uplands See Appendix C. Tennessee
Hydrogeomorphic Wetlands Classification and Functional Assessment report
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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 wetlands will exhibit key
characteristics of two or more types, giving rise to additional types or combinations A Technical
Report is presently available on the HGM concept and its application in Tennessee.
What Are the Functions and Uses of Tennessee Wetlands?
Historically, wetlands were considered to be wastelands that should be drained as soon as
possible, for fanning, residential or industrial development Wetlands were not considered to be
valuable resources, and their complex ecological and hydrological functions were for the most
part unrecognized.
Only recently have wetlands been recognized as valuable natural resources, that if
maintained and properly managed, 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'
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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 Removal/Transformation: Reducing the concentration or modifying the form
of nitrogen, phosphorus, and potassium ions through oxidation, reduction, assimilation, or
other bio-chemical processes
2. Flood Impact Mitigation
Wetlands reduce tiie volume and physical energy of water below a base condition through
two means
Flood Peak Reduction: Wetlands influence regional water-flow regimes by intercepting
storm runoff and temporarily staring excess surface waters, thereby reducing storm runoff
peak discharges 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 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 reproductive 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.
Semiaquatic Species- Vertebrate and invertebrate species that spend certain life stages in
water
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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 dependent
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 treatment system.
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 hurr?.n 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
consistent with sustained wetland conditions
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What is the 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 converted 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, groundwater 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.
Across much of the Tennessee landscape, agriculture, construction, and mining have reduced
infiltration, increased runoff and erosion on the hillslopes, and increased valley sedimentation
rates Dam construction has raised the base level upstream of the dams, leading to the formation
of deltas and valley sedimentation Reaches downstream of dams are deprived of sediment and
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may begin to down-cut through their alluvial valleys, significantly lowering the channel bottom,
and thereby altering hydrology
Most of West Tennessee's floodplain wetland acreage has had its wetness reduced by
agricultural drainage and stream channelization. The magnitude and permanence of floodplain
drainage are highly variable. In some cases, channelization has lead to a deepening and widening
of stream channels sufficient to convert former floodplains into well-drained terraces. Elsewhere,
beaver activity, debris, and oversupply of sediment from channelized reaches upstream have filled
excavated channels restoring or increasing floodplain wetness.
The responses of hydrologic systems, including wetlands, to direct and indirect human
interventions are often unforeseen and perceived as undesirable, leading to additional
interventions As a result, Tennessee's wetlands are in a state of flux that often goes beyond their
ability to adjust. Many systems are being pushed in several directions at once; they hardly begin
to adjust to one set of perturbations before another set is imposed upon them to counteract the
adjustment.
For instance, on many West Tennessee floodplains, local ponding has resulted from an
oversupply of sediment upstream. Such areas are natural sediment traps, left alone they would
most likely fill in and go through a succession of ecological communities adapted to progressively
drier conditions Before this adjustment can occur, however, many such ponds are drained,
without any action to reduce the high sediment loads that led to their creation. Sediment is either
delivered downstream, where it causes similar problems, or, more likely, builds up in the same
place, eventually resulting in a recurrence of the ponding This situation may be repeated in the
same place several times during a few decades
Massive direct and indirect human impacts have led to a significant reduction in the quality
of Tennessee's wetlands. Many areas have remained in a state of early ecological succession and
not been allowed to develop toward ecological maturity Excessive or inadequate water inputs,
high sediment or nutrient loads, and direct or indirect interference with vegetation have caused
imbalance among the physical, chemical, and biological processes that determine wetland
functions The natural processes that might restore functional equilibrium are rarely allowed to
proceed without additional interference
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Although the general picture of disequilibrium in Tennessee's wetlands is fairly clear, the
detailed knowledge of wetland functions and quality that would allow land managers to quantify
actual or potential benefits is almost wholly lacking No state or federal agency is systematically
collecting, recording, or analyzing information on wetlands Except in relatively few cases where
wetlands are perceived as threatened or are under consideration for purchase, little information is
currently being collected on wetland functions. Such information as it is available is generally
site-specific, and is collected under protocols narrowly designed to meet regulatory or agency
requirements. There is a major need for a consistent statewide program to evaluate the quality
and functions of wetlands and monitor their condition.
Where Do 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 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% of 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,
channelization, and sedimentation At present, the loss/gain balance is complicated and not well
defined3. Factors affecting the balance include both primary land use conversions and long term
changes in the hydrology of major drainage basins.
Current professional opinion and supporting data from the 1992 National Resources Inventory contend that the rate of
wetland losses in Tennessee has significantly declined.
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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
• Transportation impacts (highways, airport construction) are a growing factor in
wetland loss
Unfortunately, no data is now being collected that would allow the state to confirm these
observations or to assess changes quantitatively
In the future, major losses are likely to be due to urban conversion impacts, transportation
construction impacts, or to continuing changes in basin hydrology (channelization, drainage or
impoundments). 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
What Are the 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 flood 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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CHAPTER II
GOAL OF THE STATE WETLANDS STRATEGY
It shall be the goal of the State of Tennessee to provide
the maximum practicable wetlands benefits to Tennessee and 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 requires shared vision, intelligent resource-based
planning, long term commitment, and consistent cooperation In the first year of implementation
of the Strategy, we have increased our knowledge base to enable us to better understand and
manage our wetland resource We continue to agree on a statewide goal and objectives, and the
actions needed to realized 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 information 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.
Responsibilities 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 also calls for the State to identify unique wetlands and potential restoration
sites, and to rank them. The Strategy endorses the existing state policy to acquire certain unique
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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 the public.
Another strong theme in the strategy is enhancement and restoration of wetlands, both 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 its waters, including its wetlands. Tennessee
shares this mandate with federal agencies. The Strategy recognizes the need for an effective
regulatory program, and offers recommendations with regard to water quality standards, record
keeping and follow up 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 communication 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 here 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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CHAPTER III
OBJECTIVES
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 restoration 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 quality, or scarce wetland
community types and sites for acquisition or other equally effective protection: Currently,
there is limited 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
characteristics 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
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5. To achieve no overall net loss of the wetlands functional base in each USGS hydrologic
unit: 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, 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 enhance the natural process and restore hydrology.
7. To 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 economic
benefits of wetlands ownership and management. This may be achieved by education, technical
assistance, and incentive programs for private landowners The sound and productive
management of wetlands by private landowners will also 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 green belt 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.
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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, as well as current accomplishments, are described in
Chapter V.
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CHAPTER IV
EXISTING WETLANDS AGENCIES, ORGANIZATIONS AND
PROGRAMS
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,
corporations, 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 which administer programs affecting
wetlands appears in TABLE 3. A general description of agency programs by'program category
follows
Tennessee wetlands managers and owners have made a conscious effort to work together
to share information, pool resources and act cooperatively in order to carry out their program
responsibilities for wetlands effectively and efficiently.
Wetlands program activities in Tennessee may be grouped into six major categories as
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. TVA monitors the status of wetlands adjoining the Tennessee River, its
tributaries, and reservoirs. EPA, through Wetlands Program Development Grants and its
Advance Identification of Wetlands Program (ADID) supports wetlands characterization and
planning at state and local levels.
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TABLE 3
AGENCIES, ORGANIZATIONS AND PROGRAMS
AFFECTING TENNESSEE WETLANDS
L FEDERAL AGENCIES AND PROGRAMS
United States Department of Agriculture: USDA
Farm Services Agency FSA
« Agriculture Conservation Program. ACP
• Conservation Reserve Program- CRP
• Wetlands Reserve Program. WRP
* Swampbuster
Natural Resource Conservation Service. NRCS
• Conservation Technical Assistance
• Cooperative Soil Surveys
« Wetland Delineation for 404 Permits (agriculture land only)
• Resource Conservation and Development Program RC & D •
Forest Service USFS
« Stewardship Incentive Program- SIP
United States Department of Defense: USDOD
Army Corps of Engineers' USCOE
« Clean Water Act, Section 404 Permit Program 404
4 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 NWCP
• North American Waterfowl Management Plan NAWMP
• Partners for Wildlife
• Management of National Wildlife Refuges
• Endangered Species Act: ESA
Geological Survey. USGS
• Cooperative Research Program
• National Water Quality Assessment' NAWQA
United States Environmental Protection Agency
Wetlands Protection Development Grant Program: Section 104(b)(3)
Nonpoint Source Grant Program: NFS
Clean Water Act, Section 404 Permit Review: 404
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TABLE 3 (CONT'D)
United States Environmental Protection Agency (cont'd)
Advance Identification of Wetlands: AD ID
Tennessee Valley Authority: TV A
Research and Technical Assistance
Constructed Wetlands Demonstrations
Management of Wetlands on TVA Reservoir Lands
H. STATE AGENCIES AND PROGRAMS
Tennessee Environmental Policy Office: TEPO
Interagency Wetlands Committee- IWC
Technical Working Group- TWG
Department of Agriculture: TDA
Division of Agriculture Resources. AR
* Local Conservation Technical Assistance
« State Nonpoint Source Program
• Federal 319 NPS Program Management NPS
« Soil Conservation Districts SCD
Division of Forestry DF
• Forest Incentives Program. FIP
* Technical Assistance
Department of Environment and Conservation: TDEC
Division of Water Pollution Control. WPC
• Clean Water Act, Section 401 Certification. 401
• Aquatic Resource Alteration Permit Program ARAP
Division of Natural Heritage: NH
* Natural Areas Registration
• Biodiversity Program
Division of Recreation Services
« Parks and Recreation Technical Assistance Service: PART AS
• State Comprehensive Outdoor Recreation Plan & Wetlands Adden - SCORP
• Land and Water Conservation Fund Grants: LWCF
Department of Economic and Community Development: TECD
Local Planning. LP
Development Districts: DD's
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TABLE 3 (CONT'D)
Department of Transportation: TDOT
Wetlands Mitigation Bank
Tennessee Wildlife Resources Agency: TWRA
Geographic Information Systems: GIS
Wetlands Acquisition Program WAF
North American Waterfowl Management Plan - NAWMP - & Tennessee
Implementation Plan: TIP
Management of Wildlife Management Areas - WMA - Wildlife Refuges - WR -
and Wildlife Observation Sites
Nongame Program (Habitat Protection)
Endangered/Threatened Species Act: ETS
Wetlands Mitigation Bank
University of Tennessee: UT
Water Resources Research Center: WRRC
Institute for Public Service IPS
• County Technical Assistance Services CTAS
« Municipal Technical Advisory Services. MTAS
• Cooperative Extension Service. CES
Tennessee Technological University: TTU
Center for the Management, Utilization and Protection of Water (Water Center)
Bd. PRIVATE CONSERVATION ORGANIZATIONS & LANDOWNER
ASSOCIATIONS
Ducks Unlimited. DU
Tennessee Conservation League: TCL
The Nature Conservancy: TNC
Tennessee Farm Bureau Federation: TFBF
Tennessee Forestry Association: TFA
The Wolf River Conservancy: WRC
Tennessee Greenways: TG
The Conservation Fund' CF
IV. JOINT EFFORTS
Tennessee Partners Program (NRCS, USF&W, TWRA, TDA, UTAE and DU
participating)
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At the state level, the Department of Environment and Conservation (TDEC) and the
Tennessee 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 Comprehensive Outdoor Recreation Plan The Tennessee Environmental Policy Office
(TEPO) leads and coordinates statewide wetlands policy and planning4.
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 Station, conducts active research, with emphasis on modeling and development of a
wetlands functional assessment method. The USFWS, TV A, 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
Conservation 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 Increasingly grass roots organizations like the Wolf River Conservancy have led local
fund raising efforts to purchase significant wetlands. Cooperation and assistance has also come
from the regional organizations like the Conservation Fund.
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
(TOOT) buys and restores wetlands to mitigate unavoidable impacts of road construction on
existing wetlands. Under relatively new program mandates, the USCOE may restore wetlands if
their degradation is a consequence of former Corps projects
TEPO was established by the Sundquist Administration to replace the previous coordinating function of the Tennessee State
Planning Office (SPO) after the SPO was abolished in 1995 All references to the SPO in Cist edition of the Strategy have
been replaced with TEPO in this second edition.
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At the federal level, the USFWS purchases wetlands and manages them Wetlands in
public ownership are managed by the agencies, state or federal, that acquired them. Two new
initiatives, the Tennessee Partners Project and the USIM Wetland reserve program have also
increased opportunities to either permanently protect wci lands or to provide temporary habitat
where habitat would not otherwise be available (See Table 4)
Table 4
Tennessee Wetlands Acquisition, Restoration and Management
Wetlands Acquired by TWRA Wetlands Acquisition Funding 1986-95: 34,791 acres
(This amount includes non-wetland buffer zones)
Acreage Purchased bv TWRA Region
Region 1: (West TN) 31,509 acres
Region 2: (Middle TN) 1,966 acres
Region 3: (the Cumberland Plateau) 512 acres
Region 4 (Eastern TN) 803 acres
Wetlands Enrolled in USD A Wetlands Reserve Program 1994.95 (restored wetlands
under permanent conservation easements): 3,500 aci»•«, (offered and unsiirveyed)
Cropland Enrolled in the Tennessee Partners Project l«)«)3-95 (temporary waterfowl
habitat on cropland during winter months with 10 year commitment): 3000 acres
* The above data are rounded figures
** It should be noted that approximately 80 percent of Tennessee '.s wrtlt]nds are located in West Tennessee
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 nmiiagement 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. A new program, the
Tennessee Partners Project provides assistance for temporary waterfowl habitat on cropland using
federal, state and private resources. The U.S. Forest Service offers assistance to managers of
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forested wetlands through its Stewardship Incentive 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 TVA offers technical assistance to landowners within their river
corridors, upon request.
At the state level, technical and financial assistance is offered by several programs 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.
The IDA also now manages the EPA Non-Point Source (NPS) grant program within the state
[this was previously managed by TDEC-WPC]. The TDEC state Natural Areas program
operates a registry for privately owned sites of special biological significance, including wetlands.
5. 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
USCOE and EPA
At the state level, the Water Pollution Control Division of TDEC reviews and certifies
Section 404 permits, and operates the Aquatic Resources Alteration Permit Program (ARAP)
6. Public Information, Education and Other Efforts
Almost every agency and organization makes an effort to educate landowners, wetlands
users and the public about wetlands and their functions and values The agencies and
organizations disseminate information through publications, slide shows, video tapes, speakers
and special events. The TDEC Division of Recreational Services and the Tennessee Greenways
organization combine the multiple benefits of greenways (e.g., recreation, aesthetic improvement,
and green space preservation) with wetlands conservation in a state wide greenways development
project. The TDEC Division of Recreational Services also places emphasis on wetlands
conservation through its broader recreational assistance programs By incorporating wetlands
information in its education and outreach efforts, local government officials and recreation
development directors become more aware of opportunities for wetlands in urban settings.
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EVALUATION OF WETLANDS 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 IWC/TWG 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. 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 review 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
4. Federal Conservation Reserve Program (CRP)/Wetlands 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.
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
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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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CHAPTER V
ACTION PLAN
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 organizations. Progress made since the initiation of the Strategy is noted for each
action item in the left margin of this chapter and in the Chapter VI summary table
In short, the Action Plan is intended to state who does what, when, and why.
OBJECTIVE 1: TO CHARACTERIZE THE STATE'S WETLANDS RESOURCE BASE
MORE COMPLETELY AND IDENTIFY THE CRITICAL FUNCTIONS OF THE
MAJOR TYPES OF WETLANDS IN EACH PHYSIOGRAPHIC PROVINCE
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 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 functions.
The Tennessee Environmental Policy Office (TEPO), with the guidance of the IWC-
TWG, should seek funding and coordinate a statewide effort to characterize its wetlands
resources more adequately. Specific actions should include:
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S A The State (TWRA) should identify appropriately geo-referenced wetlands-
related digitized data, and import it into the state GIS Wetlands database,
where possible.
S $ B The State (TWRA, TEPO) 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 GIS wetlands database.
E C. As new county soils surveys are completed by NRCS, the State (TWRA)
should acquire and import digitized soils survey data into the state GIS
wetlands database.
® $ D For recent soils surveys that are not digitized, the State (TEPO, TWRA) and
appropriate federal agencies should initiate a systematic program to convert
data to digital form and incorporate it into the state GIS 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
3 Prepare cost estimates for statewide coverage
0$ E The State (TEPO, IWC-TWG) should seek funding for and coordinate the
development of a hydrogeomorphic functional assessment method The
following steps are included
1 Refine the description of 10 types of wetlands in Tennessee, using a
hydrogeomorphic approach
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
descriptions
4. Identify and describe wetlands functions associated with each type
5 Develop criteria, and a standard state-level hydrogeomorphic assessment
method, for the functional assessment of wetlands
44
E jf notes Action Item is under vmy. 0 denotes completed Action Item. S denotes pant rece,ved;n denotes no progress
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$ F The State (TEPO, IWC-TWG, and the University Water Centers) 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
ecosystems, 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 mandates 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.
There has never been a comprehensive statewide search for unique or exceptional
wetlands in Tennessee [one is currently underway]. 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 should include:
E$ A. TDEC-NH 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.
45
IB denotes Action Item is under way. 0 denotes completed Action Item, $ denotes grant received;^ denotes no progress
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13$ B All participating state agencies and private organizations should support
and fund the interagency 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
3. Establish a priority list of high-quality wetlands for acquisition and/or other
protection measures
S$ C. The State (TWRA, TDEC-NH, 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 judgment
> share information
4 Consider placing a high priority on rare and unique wetlands for protection
using conservation approaches other than simple fee acquisition
S D. The State (TWRA) should continue the existing Wetlands Acquisition Program
at current levels, indefinitely (See Table 4, page 33).
S E. The State (TDEC-NH) should encourage the Natural Areas Program to
include unique wetlands candidates for acquisition, using LWCF, or transfer
tax funds [TWRA proposal submitted].
S F. The State (TDEC-WPC) should, within 2 years, promulgate criteria and
designate selected high quality, rare or unique wetlands as "Outstanding
46
B denotes Action Item is underway. 0 denotes completed Action Item. S denotes gmnt received;*} denotes no progress
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Resource Wetlands " Such formally designated wetlands will require
additional scrutiny, or more stringent restrictions on 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 Administration) should establish and maintain the legal framework
and cooperative atmosphere for joint ventures or public/private partnerships
with federal agencies, local governments, businesses and private groups, and
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
RTVER COKRIDOR 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.
47
B denotes Action Item is under way, 3 denotes completed Action Item. $ denotes grant received;^ denotes no progress
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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
S$ A. The State (TEPO, IWC-TWG, TDEC-NH) 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
IE! 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 TEPO or TDEC-
NH) for further evaluation
E$ C. Using the evaluation criteria, the State (TEPO, 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 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, TEPO and the
IWC-TWG should:
1. Examine the correlation between hydric soils and NWI wetlands in the 21 West
Tennessee counties
48
B denotes Action Item is underway. B denotes completed Action Item. S denotes grant received;O denotes no progress
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2 Examine soils/wetlands correlations in other watersheds, where hydric soils
data is digitized
E. The State (TEPO and cooperating agencies) should consider the possible
reformulation of the West Tennessee Tributaries project as an opportunity to
demonstrate a significant wetlands restoration, under Section 1135 of the
Water Resources Development Act of 1990 [different funding is being used].
OBJECTIVE 4: RESTORE 70,000 ACRES OF WETLANDS IN WEST TENNESSEE BY
THE YEAR 2000
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
of marginal 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
TEPO and IWC-TWG To realize this objective, the following actions are recommended
0 A TEPO and IWC-TWG should develop a common definition for "restoration"
and develop restoration criteria for each wetland type
®$ B TEPO and 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 managers (See Objective 3C, both objectives will be
addressed by two separate grants).
S C. 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 [proposal currently
submitted].
49
E denotes Action Item is under nay. 0 denotes completed Action Item. S denotes gnmt received:^ denotes no progress
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D D. TWRA should consider use of the federal "Aid to Fisheries Act" (Wallop-
Breaux) funds to enhance or restore fisheries in acquired wetlands, where
necessary
S$ E. TDA-AR [previously TDEC-WPC; program moved to TDA] should seek
funding through CWA Nonpoint Source Abatement programs [Section 319
(h)] to restore and improve wetlands for water quality enhancement and related
functions [implemented in conjunction with Objective BE and other efforts].
[*1 F. TDA-AR should continue its cost-sharing program for private landowners to
implement NFS BMP's on private land
D G TDA-DF should place priority on wetlands restoration in administering the
national Stewardship Incentive Program (SIP) on private land.
EEQ H. TDOT should continue its mitigation banking program to restore wetlands in
compensation for unavoidable adverse impacts of road construction on
wetlands
IE) I USFWS should promote and implement the "Partners for Wildlife" program in
Tennessee to restore wetlands functions supporting wildlife on privately owned
wetlands
D J All state/local agencies should cooperate with USCOE to utilize Section 1135
programs to restore wetlands or wetlands functions in eligible Tennessee
hydrologic units or watersheds.
0 K. The State (TDA and TEPO) 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 USD A Wetlands Reserve Program (WRP).
D L. TEPO and IWC-TWG should track and evaluate state restoration projects.
The group should record the number of acres restored (an administrative
function) and document restoration of function, where possible (a research
function). (See CHAPTER VH)
E M. A tracking system should be coordinated with the North American
Waterfowl Management Plan Tracking System The system identifies
50
IS denotes Action Item is under-way. 0 denotes completed Action hem. S denotes grant received:^ denotes no progress
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wetlands acquired and restored on public lands, 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 TEPO 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)
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 all available
qualitative and quantitative data on Tennessee wetlands location, condition, and functions, or to
collect new data where it is lacking Nor 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 TEPO through the existing Interagency Wetlands Committee, or a permanent statutory
Wetlands Conservation Commission. This responsibility now requires 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
51
B denotes Action Item is under way. El denotes completed Action Item. S denotes grant received;O denotes no progress
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out periodic status trends analyses, and to prepare reports, as described in CHAPTER VII
Specific action items include.
0 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).
E B The Governor should designate TEPO as the lead agency [completed] to
coordinate and oversee a long term program to monitor Tennessee wetlands
resources and their functions, TEPO should establish at least one full time
position to carry out this responsibility [no progress].
E C. TEPO, 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 above and Obj 1: A,B, & E)
B D TEPO, 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)
0 E The IWC-TWG and TEPO 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 statewide GIS wetlands database) (See CHAPTER VII)
HI F. TEPO staff should compile and update the monitoring data, at least biennially
On a six year cycle, TEPO 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)
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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 6: 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 floodplains 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 floodplain
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 reestablish a stable equilibrium, and a relatively small intervention would reinforce or enhance
the natural process and restore hydrology.
D A. TEPO 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 D.
D B. When research needs have been determined, TEPO and the IWC-TWG should
identify an appropriate agency to sponsor, fund, or conduct the needed
research.
53
(9 denotes Action Item is under way, 0 denotes completed Action Item. S denotes grant received;O denotes no progress
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C. All research organizations (USGS, WRRC, TTU Water Center) should
interpret and communicate relevant findings on wetland and floodplain
hydrology to program managers and landowners
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.
Why? Since a majority of Tennessee wetlands are in private ownership, it is important to
^stain and enhance economic benefits of wetlands ownership and management This may be
achieved by education, technical assistance, and incentive programs for private landowners. The.
sound and productive management of wetlands by private landowners will also assure that the
public benefits of wetlands will be sustained The following specific actions are recommended'
S 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 inclucL.
1. Select a lead agency (TDA) to coordinate information delivery [complete]
2. Establish a county level information clearinghouse, preferably at the Natural
Resources Conservation Service, Soil Conservation District office [underway]
3. Request UT-AES to develop and deliver a wetlands education program for
technical assistance staff and landowners [no progress]
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09 denotes Action Item is under tvay. 0 denotes completed Action Item, S denotes grant received.-^ denotes no progress
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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 [underway]
5 Develop a special program to recognize and reward landowners who protect
wetlands [underway]
El 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.
[El C. The State (TDA-DF) and federal assistance agencies should provide technical
assistance and cost-share programs to restore converted marginal cropland to
bottomland hardwood forests.
13 $ D. The State (TDA) and federal agencies should provide technical assistance to
landowners who wish to establish or restore natural hydrologic conditions for
bottomland hardwood forest.
S 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.
13 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 [currently under legislative review].
55
@ denotes Action Item is under way. 0 denotes completed Action Item. S denotes grant received, D denotes no progress
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OBJECTIVE 8: CREATE MORE URBAN RIPARIAN/WETLAND GREENBELT
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
E 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.
E B TEPO, IWC-TWG and TDEC-RS should coordinate with, and encourage the
federal conservation and recreation agencies to include wetlands in urban
greenbelt plans (e g., USDI-NPS Rivers and Trails, TVA's Flood Reduction,
Clean Rivers programs, and Tennessee Greenways)
D C The TDA-DF's Urban Forestry Program should include forested wetlands
protection strategies in its activities
E D The state wetlands regulatory program (TDEC-WPC & RS) should coordinate
potential wetland mitigation projects with established urban greenbelt
plans Both state and federal agencies (TDEC-WPC & RS and US COE)
should
1 Encourage communities to incorporate wetlands and floodplains into a
greenbelt concept
2. Make urban planners aware of financial assistance for greenway projects
D 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
56
B denotes Action Item is under way. B denotes completed Action Item. S denotes grant received;^ denotes no progress
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plans Urban wetlands can be protected, as floodways are drawn on
flood protection maps.
OBJECTIVE 9: INCREASE WETLANDS INFORMATION DELIVERY TO LOCAL
GOVERNMENTS, THE PUBLIC AND THE SCHOOLS.
Why? 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
S A All state and federal agencies should provide copies of wetlands plans, maps
and reports to state university and regional library reference room collections.
03$ B TEPO 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
S C. TEPO 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-1PS MTAS and CTAS Advisors),
professional planning associations, and architectural/engineering consultants
[FY 97 grant proposal submitted].
57
B denotes Action Item is under way. B denotes completed Action Item. S denotes gnml received. D denotes no progress
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S 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
D 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 for EPA and USCOE, in order to undertake a joint wetlands
Advanced Identification study (ADED) to guide future regulatory decisions
D F. TEPO should expand the membership of the Governor's FWC to include a
commercial developer, a local government representative, and a planner
S G. TEPO 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.
S 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
Why? 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
S A. Develop a classification system that encompasses all wetland types in the state.
S B. Designate uses for each wetlands type. The uses shall be based on the
functions and values attributable to wetlands.
E3 C. Develop aesthetic and biological narrative criteria to protect the classified uses
13 D. Adopt existing numeric water quality standards for those wetlands that are
adjacent to or hydrologically connected to surface waters
58
B denotes Action Item is under way. B denotes completed Action Item. $ denotes grant received;^ denotes no progress
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S E Develop criteria for Outstanding Resource Wetlands (ORW)
B F. Extend the antidegradation policy and implementation methods to wetlands.
The assignment of Implementation and Reporting Responsibilities is
summarized in TABLE 4
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
The State should not be overwhelmed by the magnitude and complexity of the Strategy to
the point of paralysis. Instead, it is necessary to establish priorities, share data, talent and
information and/or to phase the recommended program in over several years as more resources
are allocated to wetlands conservation (See Table 5 for agency summary) Estimated staffing and
budgetary needs (where they can be determined), and a tentative timetable for implementation are
discussed in Chapter VI.
High Priority Objectives. 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 2. To Identify and Prioritize Exceptional Wetlands for Acquisition
Objective 3 TD 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.
59
& denotes Action Item is under way. 0 denotes completed Action Item, S denotes grant received, D denotes no progress
-------
TABLE 5
SUMMARY OF IMPLEMENTATION AND REPORTING RESPONSIBILITIES
OBJECTIVE NUMBER ACTION ITEM NUMBER
1. CHARACTERIZE WETLANDS AND A. Identify and import digitized data mlo the state CIS
IDENTIFY THEIR FUNCTIONS
1 High Priority 1 3. Request funds to buy digitized NWI data for the state CIS
C. Acquire and import digitized soil survey data into 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 part of a stole WCP
F. Fund and conduct research/field studies to characterize
wetlands hydrology and ecological functions
2. IDENTIFY UNIQUE OR EXCEPTIONALLY A. Review recent academic studies & compile a master list
I QGH QUALITY WETLANDS FOR of candidate sites for field investigation
ACQUISITION OR OTHER PROTECTION
1 High Prior ity \
C. Strengthen coordination of priority lists
D. Continue existing wetlands acquisition program at
current level
E. Acquire wetlands through LWCF
PRIMARY
IMPLEMENTING
AGENCIES
TWRA
TWRA
TWRA
TWRA
TEPO
TEPO
TDEC-NH
TDEC-NH &
TWRA
TWRA, TDEC-NH
TWRA
TDEC-NH
COOPERATING
AGENCIES
USFWS
SCS, TVA
TDEC-ES
TEPO
SCS
TEPO, SCS
IWC-TWG
IWC-TWG
TTU-Watcr Center
IWC-TWG
UT-WRRC
TTU-Water Center
PPC
All Agencies &
Non-Profits
PPC. TDOT, TNC
USFWS, NPS
TDA
Local Governments
60
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TABLE 5 (CONT'D)
OBJECTIVE NUMBER
2. (CONTINUED)
\Hlgh Priority 1
3. IDENTIFY PRIORITY WETLANDS
RESTORATION SITES
I High' Priority]
4. RESTORE 70,000 ACRES OF WEST
TENNESSEE WETLANDS BY 2000
j Medium Priority \
ACTION ITEM NUMBER
F. Promulgate criteria and designate selected high quality, rare or
unique wetlands as Outstanding Resource Wetlands
G. Request USFWS to renew acquisition of species rich wetlands
H. Establish legal framework and cooperative atmosphere for
public/private partnerships or joint ventures to acquire
wetlands and monitor them
A. Develop criteria to evaluate and rank candidate restoration
sites
B. Identify candidate sites and add them to a common database for
evaluation
C. Evaluate candidate sites, prepare & distribute a pnonty list to
resource managers
D. Test hydnc soils as a predictor of successful restoration
E. Consider reformulating WTT project as a wetlands restoration
demonstration under Section 1 135
A. Define "restoration" and develop restoration criteria for each
wetland type
B. Develop & distribute a consolidated list of pnonty candidate
sites
C. Encourage joint ventures to implement North American
Waterfowl Plan in Tennessee
PRIMARY
IMPLEMENTING
AGENCIES
TDEC-WPC
TDEC-NH
TWRA.TDEC
TDA, T F/A
TDOT
TDEC-NH
TWRA
TDEC-NH
TWRA
TDEC-NH
TWRA.TEPO
TEPO, USCOE
WTT Committee
TEPO
TDEC-NH
TWRA
COOPERATING
AGENCIES
IWC-TWG
All Agencies
TWRA, USFWS
Federal Agencies
Non-Profits, Corps
Local Governments
IWC-TWG
All Agencies
Field Staff
All Agencies
IWC-TWG
All Agencies
IWC-TWG
All Agencies
WTT
IWC-TWG
IWC-TWG
All Agencies
Federal/State
Agencies
Non-Profits, Corps
Local Governments
61
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TABLE 5 (CONT'D)
OBJECTIVE NUMBER
4. (Continued)
1 Medium Priority \
5. ACHIEVE NO OVERALL NET LOSS OF
WETLAND FUNCTIONS
ACTION ITEM NUMBER
D. Consider use of "Wallop-Breaux funds" to restore wetlands
functions supporting fisheries
E. Target EPA/state NFS grant program to improve water quality
and related functions in wetlands
F. Continue state cost sharing program Tor landowners to
implement NFS BMP's
C. Place priority on wetland restoration m USFS/TDA forest
stewardship incentive program for landowners
H. Continue mitigation banks to compensate for unavoidable
impacts of road building
L Promote and implement "Partners for Wildlife" technical
assistance program
J. Utilize Section 1 1 35 to restore wetlands and/or wetland
function
K. Seek participation of stale in federal wetlands reserve program
(WRP)
L. Monitor and evaluate state restoration projects, recording
acreage and function (See Chapter VII)
M. Coordinate state tracking system with annual NAWP
monitoring system (See Chapter VD)
N. Prepare biennial report to Governor and General Assembly on
status of restoration projects (See Chapter VD)
A. Apply interim wetlands mitigation policy in the state's
regulatory program
PRIMARY
IMPLEMENTING
AGENCIES
TWRA
TDA
TDA
TDA-DF
USFS
TDOT
USFWS
TEPO
USCOE
TDA, TEPO
TFBF
TEPO
IWC-TWG
TEPO
TWRA
TEPO
TDEC-WPC
USCOE
COOPERATING
AGENCIES
EPA&
USDA Agencies
USDA Agencies
USDA Agencies
TDEC-WPC
TDA-DF, TWRA
TWRA
All Stale/Local
Agencies
SCS, SCO'S
RC&D'S
USGS.TTU/UT
All Agencies
TWRA
IWC-TWG
All Agencies
All Reviewing
Agencies
62
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TABLE 5 (CONT'D)
OBJECTIVE NUMBER ACTION ITEM NUMBER
S. (CONTINUED) B. Coordinate long term monitoring program and employ staff
C. Document the status and function of TN wetlands by USGS
-- hydrolooic unil
Medium Priority I
1 I' Assess for imlmlp research In rlpCinc) lh,» mnj«r fnprf,™,'*
provided by the slate's wetlands
E. Design a common reporting format for entry and storage of
monitoring data
F. Compile and update monitoring data, biennially, and prepare
an analysis and report every 6 years
G. Evaluate and prepare recommendations Tor program revisions
6. DEVELOP INFORMATION TO RESTORE A. Sponsor annual wetlands research needs conference
"NATURAL" FLOOD PLAIN HYDROLOGY
B. Identify agency to sponsor or conduct needed research
1 Medium Priority I
C. Research agencies should report and interpret findings to
program managers & landowners
D. Support demonstration Projects
E. Include natural floodplnm hydrology/wetlands restoration in
flood damage reduction projects
7. INCREASE THE LEVEL OF BENEFITS FROM A. Strengthen wetlands information delivery at the county level
WETUVNDS ON PRIVATE LAND
B. Employ trainer & coordinator for local assistance providers
PRIMARY
IMPLEMENTING
AGENCIES
TEPO
TEPO
IWC-TWG
TEPO
IWC-TWG
TI-PO, IWC-TWG
TWRA
TEPO
IWC-TWG
TEPO, IWC-TWG
TEPO
TEPO,
IWC-TWG
USGS, UT-WRRC
ITU- Water Center
TEPO, IWC-TWG
USCOE
TDA
TDA
COOPERATING
AGENCIES
All Agencies
USGS, UT-WRRC
TTU- Water Center
All Agencies
All Agencies
All Agencies
IWC-TWG
All Agencies
USGS, UT-WRRC
TTU-Waler Center
All Agencies
SCS.TDA
USDA Agencies
SCD, UT-AES
USDA Agencies
63
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TABLE 5 (CONT'D)
OBJECTIVE NUMBER
7. (CONTINUED)
1 High Priority \
8. CREATE MORE
URBAN/RIPARIAN/WETLAND GREENBELTS
I Low Priority \
9. INCREASE DELIVERY OF WETLAND
INFORMATION TO LOCAL GOVERNMENT.
THE PUBLIC AND SCHOOLS
ACTION ITEM NUMBER
C. Provide technical assistance and cost share to restore converted
marginal cropland to bottomland hardwood forest
D. Provide technical assistance to 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
A. Include wetlands and npanan green bells in recreation
assistance programs
B. Coordinate state wetlands conservation with federal
conservation and recreation programs
C. Include forested wetlands in urban forestry program
D. Coordinate wetlands mitigation projects with existing urban
grcenbelt plans
E. Encourage local governments to protect wetlands in flood
insurance plans
A. Provide copies of wetlands plans, maps and technical reports
to libraries
PRIMARY
IMPLEMENTING
AGENCIES
TDA-DF
TDA-DF
TDA-AR
TDA
TWRA
TDA
TDEC-RS
PARTAS
TDEC-RS
*rr*i A r\c
TDA-DF
TDEC-WPC
TUEC-RS
EDC-LP
All Agencies, TWRA
COOPERATING
AGENCIES
USFS
USDA Agencies
USFS
USDA Agencies
USDA Agencies
USFS, TVA
USDA Agencies
IWC-TWG
All Agencies
State Legislature
Local Governments
TEPO, IWC-TWG
National Park Service
TWA
TVA
TDOT
USCOE
Local Governments
FEMA, TVA
All Agencies
64
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TABLE 5 (CONT'D)
OBJECTIVE NUMBER ACTION ITEM NUMBER
9. (CONTINUED) B. Develop & publish a general brochure on wetlands values,
including a directory
1 Low Priority \ c- Make CIS maps and priority lists available to local planners
1 and advisors
D. Include wetlands information in biodiversity handbooks
E. Consider sponsoring on ADFD study in communities where
development threatens wetland function
F. Expand IWC-TWG to include other interest groups
G. Develop wetlands information for in-service teacher training
H. Include wetlands information in clean nver projects
10. ESTABLISH STATE USE CLASSIFICATION A. Develop a classification syslem for all slate wetlands types
AND WATER QUALITY STANDARDS
FOR WETLANDS
& Designates uses for each wetland type based on the functions
i^ and values attributable to wetlands
[Medium Priority \
\ r. Develop aesthetic and biological narrative criteria to protect
the classified uses
D. Adopt existing numeric water quality standards for wetlands
adjacent or hydrologically connected to surface waters
E. Develop criteria for outstanding resource wetlands (ORW)
F. Extend the antidegradation policy to wetlands
PRIMARY
IMPLEMENTING
AGENCIES
TEPO
TWRA
TEPO
TCL,TWRA
TDEC-NH
USCOE, USEPA
Local Government
TEPO
TEPO
TVA
TDEC-WPC
TDEC-WPC
TDEC-WPC
TDEC-WPC
TDEC-WPC
TDEC-WPC
COOPERATING
AGENCIES
IWC-TWG
ECD-LP
UT-IPS, TVA
TDEC-WPC,
USFWS,
TDEC-ES. TWRA
IWC-TWG
IWC-TWG
IWC-TWG
All Agencies
All Agencies
All Agencies
All Agencies
All Agencies
All Agencies
65
-------
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
landowners 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.
66
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Medium Priority Objectives. 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 state's resource base by approximately 10% in six years (2000)
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 recognized 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.
Low Priority Objectives. 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.
67
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CHAPTER VI
COORDINATION AND FUNDING
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 and resources to implement the action plan outlined in CHAPTER V. The Governor's
Interagency Wetlands Committee and its Technical Working Group, staffed by the Tennessee
Environmental Policy Office (TEPO), 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 ad hoc group,
convened by the Governor and serving at his pleasure Although the Sundquist Administration
has recognized the benefits of the IWC, it might not be retained by other administrations
It is recommended that the State establish a permanent Wetlands Coordinating Committee
or Commission, staffed by TEPO Legislation would be required A statutory mandate would
confer long term stability and consistency of coordination and oversight. Given future changes in
state government, the IWC should review the need for a coordination committee in relationship to
the current political climate
It is recommended that any 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 coordination, and advising the Governor on wetlands policy, budgets, and legislation
The TEPO should provide ongoing staff support to a permanent Wetlands Conservation
Committee. TEPO should continue to broker federal grants for other agencies implementing the
Strategy, draft and oversee publication of technical reports and/or public information and
69
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educational materials, and coordinate wetlands programs with similar cross cutting resource
management programs in Tennessee, such as 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 TEPO TEPO
is directed to review the opportunities for a statewide wetlands information archive, identify
research and information needs, and to "keep score," i e., to monitor, analyze, and report on the
state's wetlands resources.
The proposed work load may require the establishment of one additional position to carry
out these monitoring and reporting duties, or to oversee a contract with an academic institution to
do so.
FUNDING
It is nearly impossible to calculate the financial resources now dedicated to wetlands
conservation 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 assistance programs, and regulatory programs are dispersed among so many agencies,
organizations, and programs In some agencies, wetlands conservation is only part 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 It is recognized that the EPA State Wetland
Programmatic Development Grant has sustained progress for the Strategy. The EPA grant
program has basically allowed an unfunded plan to be largely funded 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 (NFS) technical assistance program
70
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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 TEPO should help other agencies 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. TEPO should request state appropriations to provide required state cost
shares.
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 (TEPO, TDEC)
• scanning and/or digitization of NWI data and recent soil surveys for counties in the
state where there are abundant wetlands (TWRA, TEPO)
• monitoring, evaluation, and trends analyses (TEPO)
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 collected in a compatible format and shared with the Wetlands datasets, the
Biodiversity datasets, the TDEC-TRIS, and Heritage databases.
IMPLEMENTATION SCHEDULE AND MILESTONES
The IWC-TWG discussed and arrived at consensus about priorities for action; their
recommendations 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
71
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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 6 [The
original format has been revised to be more inclusive of all references to plan actions and to
reflect past progress.]
It should be noted that the financial assistance of the US EPA has allowed the State to
implement the plan on or ahead of schedule
72
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TABLE 6: WETLANDS CONSERVATION STRATEGY - IMPLEMENTATION SCHEDULE AND STATUS
LEAD AGENCY: TN DEPARTMENT OF AGRICULTURE
OBJECTIVE ACTION & STATUS (S)
High Priority
2H Establish framework Tor joint
ventures
7A Strengthen WL information
delivery at county level
(Seepg. 51-52)
7B Employ coordinator/trainer Tor local
assistance providers
7C Provide TA to restore converted
cropland to BLH forest
7D Provide TA to restore BLH
hydrology
7E Provide TA to promote winter
flooding on cropland
7F Provide TA to select compatible
waterfowl food crops
70 Investigate tax incentives
Med. Priority
4E Target NPS S to improve WL water
quality related WL functions
4F Continue cost-sharing program for
private landowner NPS BMP
S
X
X
^
S
X
X
X
X
X
S
X
X
1994
1995
»
1996
*'.! Revised Schedule \
•>
! Revised Schedule
fc
1997
J
1998
1999
2000
73
(S) = Status ^ denotes Action Item Completed, X denotes under way, S denotes grant received, the absence of a symbol indicates "no progress "
Note: See Table 5 and associated item tts w Chapter 7 for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD AGENCY; TN DEPARTMENT OF AGRICULTURE
OBJECTIVE ACTION & STATUS (S)
Med Priority
4G Emphasize WL restoration in TDF
Forest Stewardship Program
4K Seek participation in WRP
Low Priority
8C Include WL in urban forestry
program
Other
Chapter VQ Monitor wetland functions restored
#6 through NPS demonstrations
#10 Monitor and report on bottomland
hardwood stands and other forested
wetlands in enrolled in Forest
Stewardship Program*
# 1 1 Monitor status of hydrology in
bottomland hardwoods, forested
wetlands and adjacent farmland*
#12 Monitor privately owned wetlands in
USDA programs*
H 1 3 Share/receive program and NRI data
with/from USDA*
* These tasks are done in
conjunction with the 1WC and with
the 6 year monitoring and reporting
schedule.
s
X
•
X
V
1994
-*
I99S
1996
1997
1998
1999
2000
74
(S) = Status- J denotes Action Item Completed, X denotes i nder way, S denotes grant received, the absence of a symbol indicates "no progress "
Note: See Table 5 and associated Hem Us in Chapter 7for It. I of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD AGENCY: TN DEPARTMENT OF ENVIRONMENT & CONSERVA TION - NA TURAL HERITAGE
OBJECTIVE ACTION & STATUS (S)
High Priority
2A Review academic studies & compile
a list of candidate sites
2B Support biodiversity project
2C Strengthen coordination or lists
2E Acquire WL's through LWCF,
NRTF&SLAF
2H Establish framework for joint
ventures
20 Requesl USFWS to buy WL's
3A & 3B ID candidate restoration sites and
develop criteria
Medium
Priority
4B Develop and distribute priority lists
Low Priority
9D Include WL info in biodiversity
manuals
Other
Chapter VD
#8 List, assess, and report condition of
"unique" WL on ES database
#9 Report on status of privately owned
wetlands in Natural Areas Registry
S
X
X
S
X
X
X
X
S
X
1994
«-+
1995
•*-
1996
JP
1997
'.'. Revised Schedule '.
->•
•«—
1998
«•
1999
•<-
2000
— >
75
(S) - Status1 • denotes Action Item Completed, X denotes under way, S denotes grant received; the absence of a symbol indicates "no progress"
Note: See Table 5 and associated item ifs in Chapter 7for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD AGENCY; 77V DEPT. OF ENVIRONMENT & CONSERVATION: WATER POLLUTION CONTROL
OBJECTIVE ACTION
1996
1997
—
™
1998
1999
-—
2000
*
76
(S) = Status •/ denotes Action Item Completed, X denotes water way, 5 denotes grant received; the absence of a symbol indicates "no progress'
Note- See Table 5 and associated item Us in Chapter 7 for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD AGENCY: TNDEPT. OF TRANSPORTATION
OBJECTIVE ACTION & STATUS (S)
High. Priority
2C Cooperating Agency - Strengthen the
coordination of priority lists for full
fee and/or less-than-fee acquisition
2H Cooperating Agency Establish
framework for joint ventures
Med. Priority
4H Continue its mitigation banking
program
S
X
X
X
1994
1995
1996
1997
1998
1999
2000
77
(S) = Status: S denotes Action Item Completed, X denotes under nay, S denotes grant received, the absence of a symbol indicates "no progress"
Note See Table 5 and associated item Hs in Chapter 7 for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD AGENCY: TN WILDLIFE RESOURCES AGENCY
OBJECTIVE ACTION & STATUS (S)
High Priority
I A ID WL's databases & import to CIS
1 B Seek funding for NWI digital data
1 C Import existing digital soil surveys
ID Initiate program to digitize soil data
2B Support biodiversity/GAP analysis
2C Coordinate Priority Lists
2D Continue wetlands acquisition
2E Request USFWS to purchase WL's
in TN through LWCF
2H Establish atmosphere for joint
ventures and partnerships
3A & B With TDEC-NH develop criteria &
ID/rank candidate restoration sites
3D Test hydric soils as predictor or
successful restoration
Med. Priority
4C Continue TIP &, NAWMP ventures
4D Utilize Wallop-Breaux S to enhance
WL's
S
X
5
X
X
S
X
X
X
X
X
X
1994
4 1
•4 >•
4 >
•**
1995
4 1
«_*
^ „
1996
4 — »
«_>
^ +
1997
^ >
*_*
„ ^
1998
•« — *
4-+
4 „
1999
•«— »
•^ — ^
2000
78
(S) = Status. S denotes Action Item Completed, X denotes under way, $ denotes grant received, the absence oj'a symbol indicates "no progress'
Note: See Table 5 and associated item #s in Chapter 7for Its', of cooperating agencies
-------
TABLE6(CONT'D)
LEAD ORGANIZATION: TENNESSEE WILDLIFE RESOURCES AGENCY (TWRA) (CONT'D)
OBJECTIVE ACTION & STATUS (S)
Med. Priority
4} Utilize 1 1 35 where possible
A M Coordinate NAWMP reports with
TEPO
Low Priority
9D Include WL info in biodiversity
Project
Other
Chapter VD
#1 Keep NWI data current
#2 Inspect, monitor & report on WL
acquisition through WAF
S
X
X
X
X
1994
1995
•4 — *•
—
1996
1997
« — *•
-—•
1998
1999
«-
— •>
2000
79
(S) = Status S denotes Action Item Completed, X denotes under way, S denotes grant received, the absence of a symbol indicates "no progress "
Note: See Table S and associated item Us in Chapter 7for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD ORGANIZATION: TNENVIRONMENTAL POLICY OFFICE & GOVERNOR'S INTERAGENCY WETLAND COMMITTEE
OBJECTIVE ACTION & STATUS (S)
(Listed by Policy Category)
CHARACTERIZE WL & IDENTIFY FUNCTION
High Priority
I B Seek funds to buy/digitize NWl data
1 D Seek funds to buy/digitize soil data
1 E Seek funds to develop 1 1G Method
IF Seek funds for hydrol /ecol
research
Medium
Priority
5C Document known WL functions
POLICY DEVELOPMENT: RESTORATION
High Priority
3A . Develop ranking criteria for
candidate sites
3C (& 4B) Compile candidate site list, evaluate
and distribute priority list
Mcd. Priority
4A Define "restoration" and develop
restoration criteria for each WL type
41 Promote Partners for Wildlife
4J Cooperate with USCOE to utilize
Section 1 135 programs
4L Track/ evaluate restoration projects
4N Issue annual report on restoration
protections and long ranee strategy
S
X
S
X
S
/•
S
X
S
X
X
X
S
•
1994
„ f.
•4 —
1995
-*• •«—
1996
»
1997
'-. ,' Revised Schedule '.
— + •«-
— *• -4 —
1998
—
-* •*-
1999
«—
-*• -4-
2000
— >•
80
(S) = Status ^ denotes Action Item Completed, X denotes under way, S denotes grant received, the absence of a symbol indicates "no progress'
Note. See Table 5 and associated item Its in Chapter 7 for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD ORGANIZATION: TN ENVIRONMENTAL POLICY OFFICE & GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
(CONT'D)
OBJECTIVE ACTION & STATUS (S)
RESEARCH & DEMONSTRATIONS
High Priority
3D Test hydnc soils as
indicator for successful
restoration
3E Consider reformulation of
WTT as a WL restoration
demo project
Med. Priority
5D Assess (or investigate to
define) WL functions
6A Sponsor annual WL
research conference, & ID
research needs
6B & C ID agency to
sponsor/conduct needed
studies & share data
6D Design & fund projects
demonstrating restoration of
hydrology
6E Include natural floodplain
hydrology in flood damage
reduction projects
S
X
X
X
S
X
1994
•« —
1995
j
4 fr
—+• -4
1996
•* — >•
-»• •« —
1997
-> ^
1998
*— «
*• -4 —
1999
-+ +
2000
-»•
81
(S) = Status: ^ denotes Action Item Completed, X denotes under way, $ denotes grant received; the absence qfa symbol indicates "no progress"
Note- See Table 5 and associated item Its in Chapter 7for Its! of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD ORGANIZATION: TN ENVIRONMENTAL POLICY OFFICE & GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
(CONT'D)
OBJECTIVE ACTION & STATUS (S)
MONITORING, ANALYSIS &
REPORTING
Med Priority
4M Coordinate state reports
with NAWP reports, SCS
Swampbuster reports, NRI,
etc.
SB Designate agency (TEPO)
to coordinate and oversee
long term monitoring
SB Employ/assign staff
5E Design standard reporting
format
5Fa Compile monitoring data
from other agencies &
organizations (see 4L, M &
ch.vnj
SFb Update and analyze
monitoring data biennially
SFc Prepare "status and trends"
report on "NNL" goal
SG Make recommendations to
state leaders for
improvements in regulatory
and voluntary programs
plan revisions
S
X
/•
S
X
X
X
1994
*-
1995
»•
1996
1997
1998
1999
2000
82
(S) = Stalus ^ denotes Action Item Completed, X denotes under way, S denotes grant received, the absence of a symbol indicates "no progress "
Note: See Table 5 and associated item Us in Chapter 7 for list of cooperating agencies
-------
TABLE 6 (CONT'D)
LEAD ORGANIZATION: TNENVIRONMENTAL POLICY OFFICE & GOVERNOR'S INTERAGENCY WETLANDS COMMITTEE
(CONT'D)
OBJECTIVE ACTION & STATUS (S)
MONITORING, ANALYSIS &
REPORTING
Other
Chap. VII Revisit and rcevaluale the
Strategy as needed
Chap. VII Report to Governor and
Legislature on plan progress
COORDINATION / COMMUNICATION /
FUNDING
Low Priority
8A Promote WL's in TDEC
PARTAS & LWCF
SB Promote wetlands in urban
greenbelt plans
8E Promote wetlands in local
flood insurance plans
9A/C Provide wetland maps/info
to local govt
9B Wnte/publish WL brochure
9F Expand IWC-TWG
representation
9G Develop in-service for WL
through Project CENTS
9H Encourage TVA wetland
efforts
S
X
<,
X
X
X
X
S
X
1994
....: 1996 only ;
»
'•.:/?
1995
tvised Schedules
1996
4 *•
, •
4 T
1997
1 >
\
1998
«->
'• . ^Revised Schedule '.
•*
1999
2000
4— *
83
(S) = Status: S denotes Action Item Completed, X denotes under way, S denotes grant received, the absence of a symbol indicates "no progress "
Note1 See Table 5 and associated item Its in Chapter 7 for list of cooperating agencies
-------
CHAPTER VII
MONITORING AND EVALUATION
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 CHAPTER V of the Strategy. 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.
Each agency will be responsible for tracking its assigned responsibilities, documenting its
program activities, and providing data and progress or status reports to the Tennessee
Environmental Policy Office (TEPO) every two years TEPO 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 [as evidenced by this document], the second in four years A progress report
should be prepared eveiy 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
85
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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
to man, cannot be isolated and evaluated, monitored or managed without regard to those forces
and activities at work within their hydrologic unit boundaries
CONCLUSIONS
It is therefore proposed that evaluation and monitoring of the status and trends of
Tennessee's wetlands be a part 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 p'art to 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 part 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 GIS 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
Resources 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) TEPO should create a
central archive to receive monitoring data and status reports, the office should compile and update
the monitoring data every two years.
86
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Examples of data to be reported include.
I. 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 (Natural Resources Section - MRS) should biennially monitor and document
changes in water quality or other functions in wetlands, resulting from legally permitted
activities or projects.
4. TDEC-WPC (MRS) 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 (MRS) 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 (NRS) should biennially inspect, assess and document the status of wetlands
functions restored through NPS abatement demonstration projects
7. TDEC-WPC (NRS), 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-NH 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-NH 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.
87
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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-NRCS (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-NRCS should share data collected on the status and trends of wetlands on agricultural
land through the NRI assessment, and periodic "swampbuster" monitoring
14 USFWS [with TWRA] 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, TV A,
NPS, etc.) should contribute data on the status of publicly owned wetlands on the lands which
they manage in Tennessee.
Every six years, TEPO 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.
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
revision 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. 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
88
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APPENDIX A
PARTI
TENNESSEE INTERAGENCY WETLANDS COMMITTEE
EXECUTIVE GROUP
Mr Leonard Bradley, Assistant to the Governor for Policy
Governor's Office
Suite G-12, Stale Capitol
Nashville, TN 37243
615'532-4648
Mr Don Dills, Commissioner
Tennessee Department of Environment & Conservation
401 Church St. 21st HOOT. L&C Tower
Nashville. TN 37243-0435
615/532-0109
Mr Gary T Myers, Executive Director
Tennessee Wildlife Resources Agency
P O Box 40747
Nashville, TN 37204
615/781-6552
U. Colonel John L. Whilser. Jr, District Engineer
US Army Corps of Engineers
P O Box 1070
110 9th Avenue South
Nashville, TN 37202-1070
615/736-5626
Mr Tony Campbell
282 Woodland Ct
Kingston Springs, TN 37082
615/952-3342
Dr Lee Barclay, Field Supervisor
446 Neal Street
Cookev.lle.TN 38501
615/528-6481
(Vacant)
The Nature Conservancy
Suite 304C, Richard Jones Road
Nashville, TN 37215
615/298-3111
Mr Julius Johnson, Chief Administrative Officer
Tennessee Farm Bureau Federation
P.O Box 313
Columbia, TN 38401-0313
615/388-7872
Mr Dan Wheeler, Commissioner
Tennessee Department of Agriculture
P O Box 40627
Nashville, TN 37204
615/360-0100
Mr Bruce Sahsman
Commissioner
Tennessee Department of Transportation
7th Floor. James K. Polk Building
Nashville. TN 37243
615/741-2848
Mr Jerry Lee. State Conservationist
U S D A. Soil Conservation Service
675US Courthouse
Nashville, TN 37203
615/736-5471
Colonel Gregory G Bean, District Engineer
U S Army Corps of Engineers
167 North Mid-America Mall, B-202
Memphis, TN 38103-1894
901/544-3221
Mr Enc Hughes, Chief of Wetland Planning Unit
U S Environmental Protection Agency
345 Counland Street NE
Atlanta, GA 30365
404/347-3633
Ms Janet Hernn. Vice President, Water Management
Tennessee Valley Authority
400 West Summitt Drive
Knoxville.TN 37902
615/632-6770
Ms. Candice Dinwiddie, Executive Director
Tennessee Forestry Commission
P O Box 290693
Nashville. TN 37229
615/883-3832
Mr. Harold Mattraw, District Chief
U S Geological Survey
810 Broadway, Suite 500
Nashville, TN 37203
615/736-5424
Mr David Sievers, State Director
Rural Economic and Community Development
3322 West End Avenue, Suite 300
Nashville, TN 37203
615/783-1300
Ms Ann Murray, Executive Director
Tennessee Conservation League
300 Orlando Avenue
Nashville, TN 37209
615/353-1133
89
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TECHNICAL WORKING GROUP
Mr DanEagar
TDEC - Water Pollution Control
7th Floor, L&C Annex
401 Church Street
Nashville. TN 37243-1S34
615/532-0708
(Vacant)
US Army Corps of Engineers
167 North Mid-America Mall, B-202
Memphis, TN 38103
901/S44-3857
Mr MikeZeman
US Soil Conservation Service
675 U.S Courthouse
Nashville. TN 37203
615/736-7241
Mr Ray Hednck
U S Corps of Engineers
ATTN ORNE-EP-P
RoomA-425,US Courthouse
Nashville, TN 37202
615/736-5026
Mr Geoff Roach
The Nature Conservancy
2002 Richard Jones Road, Suite 304C
Nashville, TN 3721J
6 IS/198-3111
Ms Rhcdona Rose, Director of Public Affairs
Tennessee Farm Bureau Federation
PO Box 313
Columbia, TN 38402-0313
615/388-7872
Mr Bob Ford
Tennessee Conservation League
300 Orlando
Nashville. TN 37209-3200
615/353-1133
Mr Reggie Reeves
Director
TDEC, Division of Natural Heritage
401 Church Street
8th Boor, L&C Tower
Nashville, TN 37243
615/532-0434
Mr Mike Lee
TDEC, Water Pollution Control
401 Church Street
7th Floor. L&C Annex
Nashville, TN 37243
61S/S32-0712
Mr GaryMullaney
WESTVACO
PO Box458
Wicklifle, KY 42087
502/335-3151
Mr DougWinford
US Fish & Wildlife Service
446 Neal Street
Cookeville, TN 38501
615/528-6481
Dr Peter Kalla
Environmental Protection Agency, Region IV
Wetlands Section
345CouruandSL,NE
Atlanta, GA 30365
Mr Mike Countess, Assistant Commissioner
Department of Agriculture
PO Box40627
Nashville, TN 37204
615/360-0103
Ms Mary Sue Brent
Farmers Home Administration
3322 West End Avenue. Suite 300
Nashville, TN 37203
615/783-1359
Dr Tom Roberts
Department of Biology
Tennessee Tech University
Campus Box 5063
Cookeville. TN 38505
615/372-3138
Mr Tony Campbell
282 Woodland Court
Kingston Springs, TN 37082
615/952-3342
Dr Richard D Urban
Tennessee Valley Authority
1101 Market Street, CSTI7D
Chattanooga, TN 37402
615/751-3164
Mr DoddGalbreath
Tennessee Environmental Policy Office
401 Church Street
14th ROOT, L&C Tower
Nashville. TN 37243
615/532-8545
Mr Joe Hopper
T—jiessee Wildlife Resources Agency
PO Box40747
Nashville, TN 37204
615/781-6612
Mr CluTWhiiehead
Tennessee Wildlife Resources Agency
Planning and Federal Aid Division
PO Box70747
Nashville, TN 37204
615/781-6535
Dr TimDiehl
US Geological Survey
810 Broadway, Suite 500
Nashville, TN 37203
615/736-5424
Mr Greg Upturn
Department of Agriculture
Non-Point Source Program
PO Box40627
Nashville. TN 37204
615/360-0690
Mr Bill Wolfe
US Geological Survey
S10 Broadway - Suite 500
Nashville, TN 37203
615/736-5424
Mr RayBrissom
Tennessee Department of Transportation
Suite 900, James K_ Polk Building
Nashville. TN 37243
615/741-2612
90
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APPENDIX A
PART II
TENNESSEE INTERAGENCY WETLANDS COMMITTEE
PAST MEMBERS
Ms CarolC White, Director
Tennessee State Planning Office
Mr L. H Ivy, Commissioner
TN Department of Agriculture
Mr J W Luna, Commissioner
TN Department or Environment and Conservation
Mr Carl Johnson, Commissioner
TN Department of Transportation
Colonel Theodore Fox, District Engineer
U S Army Corps of Engineers
Mr James Pulliam Jr, Regional Director
U S Fish & Wildlife Service
LL Colonel J David Norwood
District Engineer
US Army Corps of Engineers
Mr Frank M Rodgers, Chief
Farmers Home Administration
X
Mr Norm Mangmm
USDS Environmental Protection Agency
Mr Terry Oliver
TN Department of Agriculture
Colonel Theodore Fox, Memphis District Engineer
US Army Corps of Engineers
Dr Moms Mauney
Memphis District, U.S Army Corps of Engir.:^.
Mr Dan Sherry
Tennessee Wildlife Resources Agency
Dr Ralph Brooks
Tennessee Valley Authority
Mr JefTSinks. Executive Director
The Nature Conservancy
Mr Tony Campbell
Executive VP for Conservation Policy
Tennessee Conservation League
Mr Dan Wheeler, ASSL to President
TN Farm Bureau Association
Dr RuthNeff
Tennessee State Planning Office
Mr Harold Mattraw, District Chief
US Geological Survey
Mr Robert Baker
TN Department of Environment and Conservation
Mr Thomas S Talley
Tennessee State Planning Office
Dr Andrew Barrass
TN Department of Environment and Conservation
Mr Ray Tucker
Tennessee Wildlife Resources Agency
LL Colonel J David Norwood, Nashville District Engineer
U S Army Corps of Engineers
Mi Don Porter
Tennessee Valley Authority
91
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APPENDIX B
WETLANDS DEFINITION, IDENTIFICATION, AND DELINEATION
[The following is based on a 1993-94 analysis of agency guidelines and rules.] Wetlands
possess three unique identifying characteristics: (1) hydrophytic vegetation, (2) hydnc soils, and (3)
wetlands 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 partly 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 ngors 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
Hydnc 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, hydnc
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 Hydnc
Soils has developed cntena for hydnc soils and has published a list of the soil phases considered hydnc in
"Hydnc Soils of the United States" (USDA-SCS 1991)
Of the three technical cntena of wetland identification, wetlands 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 dnvuig 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 the 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
93
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performed by interpretation of aenal 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 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 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 328 3)
NRCS 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-1988)-
Wetlands are defined as areas that have a predominance of hydnc 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 junsdictional purposes (Federal Interagency Committee for Wetland Delineation, 1989).
Wetlands possess three essential characteristics (1) hydrophytic vegetation, (2) hydnc soils, and
(3) wetland hydrology...The three technical criteria specified are mandatory and must all be met for
an area to be identified as a 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 [as of January 1994] Some of the field procedures are being modified; however,
present indications are that the technical criteria will be retained
94
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APPENDIX C
TECHNICAL REPORTS
TECHNICAL REPORTS
SUPPORTING THE WETLANDS CONSERVATION STRATEGY
{copies are available in Tennessee university and state regional libraries)
1. The Use of Geographic Information Systems to Enhance Wetlands Data Management
and Analysis (Thomas S Talley and Leonard Ray Tucker, June 1994)
2. Wet Soils of Tennessee (Thomas S Talley, May 1994)
3. Characterization of Selected Types of Palustrine Wetlands in Tennessee (Bradley W
Bingham and Thomas H. Roberts, May 1994)
4. Tennessee Hydrogeomorphic Wetlands Classification and Functional Assessment: A
Development Concept for Tennessee (Thomas S. Talley, June 1994)
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
2. Tennessee Interim Wetlands Mitigation Policy. Report of the Mitigation Subcommittee
June 10, 1991.
3. Note: See Appendix I and G for other process products.
95
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APPENDIX D
RECOMMENDED TENNESSEE WETLANDS RESEARCH TOPICS
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)
n. 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
El. 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. Re-establishment and Spread of Beaver
V. ECONOMICS
A. Forest Management Practices
B. Agricultural Uses and Benefits
C. Private Ownership Benefits, Liabilities, and Opportunities
D Public Interest Benefits, Liabilities, and Opportunities
97
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APPENDIX E
GLOSSARY
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 constiuction) 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 nvers, with diverse vegetation that vanes 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 capability
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
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hydric soil, a soil that is saturated, flooded, or ponded long enough dunng 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
hydrologic modification an alteration to an existing hydrologic regime
hydrologic regime the normal characteristics of frequency, duration, seasonably, depth, and movement of
water in a waterbody or wetland
hydrologic unit land area having boundaries drawn mostly along surface water basin divides, Tennessee
contains all or part 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 nver channel. (2) lacking trees, shrubs, persistent emergent
vegetation, emergent mosses, or lichens with greater than 30 percent aenal 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 created 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
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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' an 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
potentially hydric soils wetness limited soil map units that (1) are similar to hydnc soils in taxonomy and
water properties, (2) are not classified as hydnc 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 hydnc 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 the photosynthetic activity of producer organisms (chiefly green
plants) in the form of organic substances which can be used as food matenals
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 attnbute 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 banks of streams, nvers, 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: rivenne systems with continuous flow and low gradient
upper perennial: rivenne systems with continuous flow and high gradient
intermittent: nverine 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
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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 detectable by typical aenal 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 parameters; 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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APPENDIX F
COMMONLY USED ACRONYMS IN THE STRATEGY
BLH
BMP
CRP
CWA
FEMA
FSA
CIS
HGM
LWCF
MBCF
NFS
MU
SCO
WCP
WRDA
WRP
WTT
TSD
Bottomland Hardwoods
Best Management Practice
Conservation Reserve Program
Clean Water Act
Federal Emergency Management Agency
Food Security Act
Geographic Information System
Hydrogeomorphic
Land and Water Conservation Fund
Migratory Bird Conservation Fund
Nonpoint Source Pollution
Natural Resource Inventory
Soil Conservation District
Wetlands Conservation Plan
Water Resources Development Act
Wetlands Reserve Program
West Tennessee Tributaries Project
Technical Summary Document
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APPENDIX G
STATE WETLANDS PLANNING PROCESSES
• To interview staff call the TN Environmental \
Lessons Learned for Successful State Wetlands Planning: : .P.°!'^.°^e. °(6.(5^3.2.^5.: •
• Rely on "grass roots" support - A planning process should be initiated by key special interest or
lobbying groups. Strong grass roots support wall help sustain progress during political change.
• Be led by state government - After securing grass roots support, the process should be led by the
state, preferably the executive or legislative branch Federal agencies should participate
• Seek broad participation and involve key stakeholders - Key political interests (i.e, the lead
political lobbies in your state) should be involved as well as groups directly affected by or
involved in wetland programs or policies (e g, government agencies with wetland authorities or
programs, and affected private interest groups) Planning committees should be diverse, relatively
balanced and manageable in size. Some state and regional organization leaders offer effective
representation for the general public and make consensus possible. Academic and legislative
representation is important. The involvement of agency managers or staff who will implement the
plan are very important for successful planning and final implementation.
• Be committed to dialogue - If facilitated correctly, the participants in a discussion of the issues
will (1) become more personally acquainted, (2) alter personal biases and pre-concewed notions
over time, and (3) learn to appreciate other participant's perspectives and values. Regular
attendance by appointed committee members is important
• Utilize a competent, objective and neutral "process coordinator", facilitator and if necessary,
a mediator - The process coordinator chairs meetings, sets schedules, and interacts with political
sponsors (Governor, etc.). The facilitator (possibly the same as the coordinator) encourages
participation, keeps everyone focused and moves the process along a structured path. A process
led by an ineffective facilitator can result in false consensus, meeting delays, slow progress and
loss of interest by key participants. A professional mediator is helpful for extremely polarized
situations. All process leaders should be perceived as objective, neutral and fair.
• Require a open and structured dialogue - All viewpoints should be discussed openly. Personal
attacks, value judgments or domination by individual members should be tightly controlled by the
facilitator. Meetings should be perceived as objective, neutral and fair.
• Seek 100 percent consensus - If the dialogue is managed properly, total consensus can be
reached on most key issues. Total consensus means that everyone (or at least each executive level
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member) has a veto After exhaustive dialogue, if consensus can not be reached on a certain
point, move on to other issues.
• Plan using sound science and technical approaches - Wetland or environmental policy should be
based on sound science tempered by public values One successful scheme is to establish (1) a
policy oversight committee of executive/management/political persons, and (2) a working group
composed of key technical professionals and managers (those who implement), led by the process
coordinator, to work out plan details. The executive committee approves working group products.
• Plan within the context of larger systems - Develop a plan that recognizes the larger system
context in which wetlands reside (e g., wetlands are components of npanan zones, floodplains or
watersheds, therefore larger system impacts should also be addressed).
• Recognize political issues - The planning process should recognize the political risks associated
with plan products and seek to address them constructively or if necessary to avoid them.
• Involve political leaders - The governor or the legislature should sponsor the planning process.
r
They empower and legitimize the planning process and final plan Their appointees also feel
representative of higher authority and will usually participate more seriously.
• Develop strategic actions and focus on results - The planning process should focus on actions
and "on-the-ground" results that can conserve, protect or restore wetlands
• Move quickly from abstract planning to implementation Plan implementation is the priority
goal. The planning process should follow an efficient but realistic predetermined schedule
The Final Plan - A State Wetland Plan Should: (from World Wildlife Fund recommendations and more)
• Describe the status of the state wetland resource (e g., state wetland classes; state wetland
distribution, state wetland losses; and sources of losses (mutually agreed by all)
• Define a future vision or a broad goal for the resource and list measurable objectives and
actions to implement it.
• Address the issues comprehensively and prioritize their importance - The plan should address
all relevant issues. However, the issues and corresponding actions to address them should be
prioritized and scheduled over a limited time frame.
• List existing programs and government agency responsibilities (state, federal and private)
• List why the actions are needed, what actions will be done, when to do them, who will do
them and in what priority - The plan should list specific actions, their implementation schedule
and those responsible for implementing them in a concise and clear manner so that accountability
can be established and progress measured.
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APPENDIX H
ORIGINAL EXECUTIVE ENDORSEMENT LETTER
State of Tennessee
>ED MrUHEKTER
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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APPENDIX I - PART A
DETAIL CONCERNING KEY IMPLEMENTATION ACTIONS
The Tennessee Wetlands Conservation Strategy:
• resulted in a focused, action oriented, policy blueprint to guide state actions,
• catalyzed $903,047 in federal wetland grants to Tennessee (many are listed below),
• helped to direct over $473,000 of federal wetland funding toward a the West Tennessee
Tributaries river/floodplain/wetlands restoration demonstration project;
• resulted in the digitization of over 60% of the state's National Wetland Inventory;
• resulted in the digitization of 88 quads (approximately 12 of 26 counties in West Tennessee
Region (an additional proposal has been submitted to complete all by 2000 - this area
constitutes over 80% of the state's hydric soils and wetlands),
• began efforts in 1994 to improve the predictability and objectiveness of state and federal
regulatory wetland permitting using the hydrogeomorphic methodology (HGM) and
functional assessment method,
• catalyzed a 1995 project to identify and prioritize wetland restoration sites in TN,
• catalyzed a 1993 technical assistance program for temporary waterfowl habitats,
• catalyzed a 1996 forestry assistance program for bottomland hardwood restoration,
• initiated a 1995 standard reporting system for wetlands restoration and mitigation;
• resulted in four pilot studies in 1994 identify effective technologies and methods,
• increased public and local government outreach and education (a local officials regional
workshop was held Summer 1995, brochure slated for development in 1996);
• increased interagency coordination and communication through Governor's IWC;
• helped to initiate the "General Memorandum of Agreement for Wetlands Mitigation Banks in
Tennessee (1 sanctioned bank and 3 "combined mitigation sites" exist); and
• catalyzed legislative investigations for landowner incentives (wetland property tax relief to be
acted on in 1996 session), and
• through its consensus process, lessened negative perceptions and increased appreciation for
wetland conservation among non-environmental interests
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APPENDIX I-PART B
POLICY GUIDANCE
WETLAND RESTORATION, ENHANCEMENT AND CREATION
Definitions and General Success Criteria for Wetlands in Tennessee
by the
INTERACENCY WETLANDS COMMITTEE AND ITS TECHNICAL WORKING GROUP
Adopted May 8,1995
In previous years, over 59 percent of Tennessee's original wetlands have been converted or substantially
degraded The goal of the State of Tennessee is to regain both the quantity and quality of wetlands
Restoration of "converted wetlands" and enhancement of severely degraded wetlands are the preferred
alternatives to achieve this goal. The focus of any effort to restore, enhance or create wetlands is to first
establish natural hydrology from which all other attributes in a wetland will anse.
For the purposes of the Tennessee Wetlands Conservation Strategy wetland restoration goal Restore 70,000
acres of wetlands m West Tennessee by the year 2000 and for regulatory activities in Tennessee, the State of
Tennessee defines the following terms-
Wetland Restoration: To return a former wetland area to a wetland
Wetland Enhancement. To improve the functional capacity of a degraded wetland
Wetland Creation. To create a wetland where a wetland never existed
General Success Criteria: (Use -with the above definitions for all wetland types in Tennessee )
In general, a successfully restored, enhanced or created wetland should:
• possess naturally sustained and self-regulating hydrology (Wetland hydrology-should not depend on
"active management" However, it is recognized that actively managed wetland systems such as low-level
terraces, waste water treatment wetlands and other "constructed wetlands," provide important functions);
• use hydrology to drive the return and establishment of hydric soils, hydrophytic vegetation, and
biological and chemical wetland functions;
• closely approximate a holistic set of functional attributes in a reference wetland (an HGM or
other "officially" designated reference site),
• possess at a minimum certain critical functions (found in a reference site) within a very short
time period after initial establishment (other functions should return in due course);
• be the result of a process that allows for passive adaptive management (i e., mid-course
corrections as needed over time until the wetland closely approximates its reference site),
• be a dynamic system capable of natural change over time;
• when appropriate, be given additional legal protection in the form of easements, deed restrictions,
purchase of development rights or fee simple acquisition (In most situations, these transactions will be
voluntary However, for regulatory mitigation or when public funds are invested to restore, enhance, or
create wetlands, perpetual protection should be required); and
• (for restored and enhanced wetlands only) be established in an area with a predominance of
historically wet soils (hydric soils or soils with hydric indicators).
Special Note: Wetland restoration for "prior converted" farmland should primarily target marginally
productive land.
Preferred Assessment Methods: The State of Tennessee is investigating the Hydrogeomorphic Method
(HGM) as a process to classify wetlands by type and the HGM Functional Assessment Models as a procedure
to identify and rate wetland functions. These methods, if found to be technically sound and practicable, may be
adopted at a later date to measure objectively the success of wetland restoration, enhancement and creation
projects.
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APPENDIX I - PART C
POLICY RECOMMENDATION
Purple Loosestrife: A Threat to Tennessee's Wetlands
by the
INTERAGE1SCY WETLANDS COMMITTEE AND ITS TECHNICAL WORKING GROUP
Adopted May 8, 1995
Background
Purple Loosestrife (Lythrum salicana) is an aquatic plant that has been transported into the United States
from Europe. Purple Loosestrife has spread throughout the northeastern U S and is currently becoming
established in several locations in Tennessee
Purple Loosestrife is an invasive, aggressive species that crowds out native vegetation
A single plant can produce up to 2.5 million seeds annually. The seeds have a germination rate in excess of
80 percent and are viable in wet soils for years. Plants can grow up to eight feet tall and six feet wide with
30-50 stems per plant Infestations in one state grew seven thousand acres in six years
The following detrimental impacts of Purple Loosestrife have been documented
• Purple Loosestrife displaces natural vegetation at an aggressive rate (much like Kudzu and Johnson
Grass) and has no value for wildlife habitat or as a food source Aquatic habitats can be "sterilized"
reducing acreage available for hunting and fishing
• State investments to restore or protect high quality wetlands can be nullified when Purple Loosestrife
becomes established in wetlands
• Existing urban flood control ditches, agricultural drainage ditches, and highway drainage ditches can
be choked by aggressive infestations of Purple Loosestrife increasing maintenance costs and impairing
positive drainage.
• Loosestrife can invade bottomland pasture land by crowding out desirable forage.
• Loosestrife can reduce property value by limiting landuse opportunities through large, aggressive
infestations that are very difficult to eradicate.
Many states have listed Purple Loosestrife as a noxious weed and have passed legislation to ban the
planting and selling of Loosestrife No such designation exists in Tennessee Currently, nurseries and
other businesses in Tennessee are selling Loosestrife to the public due to its attractive flowering plumage as
a landscape perennial
Policy Recommendation
Recently, the Legislature has expanded the authority of the Department of Agriculture (TDA) to control
certain "pest plants". Plants species can be formally targeted as pest plants through "Departmental rule"
and a public comment review processes. Quarantine procedures can be used to prevent Has importation,
sale, distribution and possession of targeted pest plants.
Given the new authority delegated to TDA, the Interagency Wetlands Committee recommends that
TDA develop rules to ban the propagation, importation and sale of Purple Loosestrife and related
cultivars for the preservation of function, quality and value of wetlands and other water-oriented
areas in Tennessee.
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APPENDIX J
REFERENCES
Bnnson, M.M 1992. A Hvdroeeomorphic Classification of Wetlands U S Army Corps of Engineers,
Washington, D C. Technical Report WRP-DE-4. (Unpublished Draft)
Cowardin, L.M, V. Carter, F.C Golet, and E T LaRoe. 1979 ClassificaUon 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, DC 22 pp
Federal Interagency Committee for Wetland Delineation 1989. Federal Manual for Identifying and Delineating
Junsdictional 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 Wetlands Trends in the Southeastern United States Wetlands vol. 4, pp 1-
11.
Milch, W.J and Gossehnk, J G 1993 Wetlands Second Edition Van Nostrand Remhold, 115 Fifth Ave, New
York, NY 697 pp
Pavelis, G.A. 1987. Economic Survey of Farm Drainage Farm Drainage in the United States U.S D.A ,
Economic Research Service, Washington, DC 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, DC Biol Rpt 88(2A) 244 pp
Shaw, S.P and C.G. Fredme. 1956 Wetlands of the United States U S Department of the Interior, 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, TN ll&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 Hvdnc Soils of the United States 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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