# *Field Report St. Marks National Wildlife Refuge*

##  1.0 Summary

Figure 1. View of St. Marks National Wildlife Refuge

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The St. Marks National Wildlife Refuge (NWR) covers nearly 68,000 acres
of land along Apalachee Bay, to the south of Tallahassee, Florida. The
mission of the refuge is to main­tain conservation areas for wildlife
populations and their habitats while providing opportunities for
wildlife-related recreation and education.

The refuge attracts over 250,000 annual visitors. Refuge activities
include a seven-mile wildlife drive, fishing, hunting, bird watching,
boating, hiking, and picnicking. The ref­uge is divided into three
administrative units. The St. Marks Unit contains the Visitor Center,
and Lighthouse Road with various picnic areas, trails, a boat ramp and
the historic St. Marks Lighthouse. The Wakulla Unit contains no
facilities, but is open for hunting during the season and offers upland
forests, marshes, and a small boat launch. The Panacea Unit is primarily
upland pine and oak forests, with several freshwater lakes. Included in
this unit are the picnic facilities and small boat launch at Otter Lake.
This area is also open for hunting during the season.

In addition, the refuge hosts various events throughout the year that
are related to the wildlife populations. A \$4.00 entrance fee per
vehicle is collected on Lighthouse Road in the St. Marks Unit.
Additional charges apply to buses and vans, and at the Aucilla River
Boat Ramp.

Attractions along Lighthouse Road in the refuge attract the highest
visitation. The St. Marks Lighthouse is located at the mouth of the
St. Marks River on Apalachee Bay. The lighthouse is currently owned by
the Coast Guard and is used for Coast Guard Auxiliary meetings. The
lighthouse is not open to the general public at this time. The ref­uge
staff is currently in negotiation with the U.S. Coast Guard to obtain
the ownership of the Lighthouse.

Peak season visitation during fall and spring weekends stress the
parking facilities avail­able at the refuge, especially along Lighthouse
Road. Lighthouse Road, therefore, would be the most likely to benefit
from a future Alternative Transportation System (ATS). Feasible ATS
alternatives for the St. Marks NWR include:

-   A peak season, weekend shuttle system that operates on a fixed
    schedule between a potential parking lot located in the town of
    St. Marks east of the Fort San Marcos his­toric site and the
    St. Marks Lighthouse.

-   A ferry system on the St. Marks River to transport visitors between
    the town of St. Marks and the St. Marks Lighthouse.

##  2.0 Background Information

### 2.1 Location

St. Marks NWR is located on the shores of Apalachee Bay in northwestern
Florida, approximately 20 miles south of Tallahassee, Florida. The
refuge is accessed by U.S. 98, also known as Coastal Highway. The
closest community to the refuge is St. Marks, Florida located on State
Road (S.R.) 363, approximately one and one-half miles south of U.S. 98.
The refuge is located in Wakulla, Jefferson, and Taylor Counties (see
Figure 2).

### 2.2 Administration and Classification

The St. Marks NWR is one of 16 wildlife refuges in the state of Florida.
The offices for the refuge are located in the refuge on Lighthouse Road,
just south of U.S. 98. There are 18 full-time employees located at the
refuge.

### 2.3 Physical Description

The St. Marks NWR is a 68,000-acre site bounded on the south by
Apalachee Bay and on the west by U.S. 319. An additional 31,700 acres of
Apalachee Bay adjacent to the refuge are closed to hunting by Executive
Order. The eastern boundary lies to the east of the Aucilla River. The
eastern portion of the refuge is known as the St. Marks Unit, the
central portion is known as the Wakulla Unit, and the western portion is
known as the Panacea Unit. The refuge contains 85 miles of hiking
trails, including 43 miles of the Florida National Scenic Trail, three
boat launches and several picnic areas.

Figure 2. Map of St. Marks National Wildlife Refuge

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### 2.4 Mission and Goals of the Refuge

The St. Marks NWR was established in 1931 to provide wintering habitat
for migratory birds. It is one of the oldest refuges in the NWR System.
It is home to a diverse commu­nity of plant and animal life, including
Federal and State Threatened and Endangered birds, wildlife, and plants.
Species that inhabit the refuge include Southern bald eagle,
red-cockaded woodpecker, least tern, woodstork, American alligator,
eastern indigo snake, swallow tailed kite, peregrine falcon, and the
Florida black bear. The goals and objectives of the refuge are to:

-   Provide wintering habitat for waterfowl and other birds;

-   Provide habitat for endangered species;

-   Provide habitat for resident wildlife species;

-   Provide for wildlife dependent recreation and environmental
    education for the public; and

-   Restore and maintain historic landmarks located on the refuge and
    enhance aesthetics of the landscape.

As with many refuges, there is an inherent dichotomy in the mission of
the refuge to maintain conservation areas for wildlife populations and
their habitats while providing opportunities for wildlife-related
recreation and education. The refuge places priority on the wildlife
populations and their habitats and would curb any recreational activity
that was detrimental to this primary mission.

### 2.5 Visitation Levels and Visitor Profile

The estimated number of annual visitors to the St. Marks NWR is over
250,000, primarily day users from the Tallahassee area. Major activities
on the refuge include fishing, hiking, and bird watching. The Monarch
Butterfly Festival is held each year in October to cele­brate the United
States' stopping point of the butterflies as they travel toward warmer
climates in Mexico. The refuge also hosts Kids' Fishing Derbies, Duck
Tours, and Night Prowls, where visitors can learn about nocturnal
wildlife. The refuge experiences the most visitors during spring and
fall weekends. The refuge also provides classroom pro­grams to
approximately 6,000 area school children each year.

A \$4.00 per vehicle entrance fee is collected along Lighthouse Road in
the St. Marks Unit. Commercial buses and vans are charged \$25 for 20
visitors or less and \$50 for 21 visitors or more. A \$2.00 user fee is
collected for the boat launch at the Aucilla River Unit.

The Florida National Scenic Trail traverses 43 miles of the refuge.
While there are no overnight accommodations in the refuge, hikers with
permits may camp along the Florida National Scenic Trail.

In addition, each of the units also contains recreational opportunities.
The St. Marks Unit contains the Visitor Center and Lighthouse Road with
various picnic areas, trails, a boat ramp and the historic St. Marks
Lighthouse. Lighthouse Road is a scenic seven-mile drive that winds
through fresh and brackish water impoundments, and ends at the
lighthouse on Apalachee Bay. Approximately 195,000 visitors travel to
the lighthouse each year, although it is currently not open to the
general public. The Wakulla Unit is open for hunting during the season
and offers upland forests, marshes, and a small boat launch on the
Aucilla River. The Panacea Unit is primarily upland pine and oak
forests, with several freshwater lakes. Picnic facilities and a small
boat launch are provided at Otter Lake and the area is open for hunting
during the season. The Otter Lake area is used primarily by local
residents, and less used by day visitors from Tallahassee.

##  3.0 Existing Conditions, Issues and Concerns

### 3.1 Transportation Conditions, Issues and Concerns

U.S. 98, a primary arterial traveling through Wakulla, Jefferson, and
Taylor Counties pro­vides the primary access for the refuge. The
St. Marks Unit contains the Visitor Center, a boat launch, and the
St. Marks Lighthouse. This section of the refuge is accessed by
Lighthouse Road, a paved, two-lane roadway. This roadway is scheduled to
be repaved in the near future. Visitors, often with boats in tow,
frequently travel at excessive speeds along Lighthouse Road. During peak
visitation periods, parking facilities at the attrac­tions along
Lighthouse Road become filled and visitors are forced to park along
Lighthouse Road near the parking lots. The boat launch facility can
accommodate approximately 30 vehicles with trailers, the lighthouse can
accommodate about 15 vehi­cles, and the picnic/restroom area can
accommodate approximately 20 vehicles. The Visitor Center has parking
for approximately 20 vehicles. There are several unpaved sites near the
Visitor Center that are opened for overflow parking, as needed. Also,
the refuge plans to construct additional parking facilities near the
picnic area. However, there is almost no available land that can be used
to expand the existing parking lots without environmental impacts to
wetlands. Also, very little land can be used to develop new parking lots
along Lighthouse Road.

Figure 3. Parking at Lighthouse (Left) and Aucilla Boat Ramp (Right)

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height="1.6375in"}

A two-lane unpaved road in good condition accesses the boat ramp on the
Aucilla River, at the east boundary of the St. Marks Unit. There is an
unpaved parking facility available for approximately 30 vehicles with
trailers. Some overflow parking is also provided. Parking availability
in this area is generally adequate.

In the Panacea Unit, a substandard two-lane paved road provides access
to the Otter Lake picnic grounds and boat ramp. Parking is available for
approximately 10-15 cars near the picnic area and approximately five
vehicles with trailers near the boat ramp. Parking availability is
generally adequate.

Figure 4. Rails to Trails Bikepath in St. Marks (to Tallahassee)

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Bicycling is a popular activity in the area and on the refuge. A Rails
to Trails bikepath connects Tallahassee with the town of St. Marks, and
ends several miles from the refuge Visitor Center. Also, many visitors
bring bicycles in by motor vehicle, park at the Visitor Center, and bike
along Lighthouse Road to Apalachee Bay. There are also unpaved roads on
many of the levees that are for refuge staff use and are open to the
public for non-motorized travel. The refuge management would like to
widen Lighthouse Road to allow safer bicycle traffic. Widening
Lighthouse Road by eight feet (to allow two four-foot bike lanes) would
impact 14.4 acres of wetlands, and is considered prohibitive.

The Florida National Scenic Trail also offers visitors a bicycling
experience. A portion of the trail ends at the St. Marks River, across
the river from the town of St. Marks. Bicyclists and hikers often shout
to business owners and patrons and are provided boat rides across the
river to gain access to the businesses in St. Marks.

### 3.2 Community Development Conditions, Issues and Concerns

The population of Wakulla County has doubled in the past eight years,
primarily due to Tallahassee commuters who prefer a more rural
lifestyle. The town of St. Marks, a desig­nated Enterprise Zone, is the
only incorporated area in Wakulla County. The population of St. Marks is
approximately 300, but new development in the area is expected to double
this population in the next few years. The largest new development in
the area is the Villages of St. Marks, which will include over 130
townhomes and apartments, in addition to commercial development. Many of
the new residents are anticipated to be commuters who will work in the
Tallahassee area.

Figure 5. Rendering of the Villages of St. Marks

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The entire town is below the 100-year floodplain, and new development
must be raised above that level. The town is also considering the
annexation of additional land to the north of the current town limits.
St. Joseph Land and Development Company owns approximately 33,000 acres
of forest to the north of the town of St. Marks and the refuge, and has
discussed developing a portion of their property in conjunction with
Arvida. Primex, a subsidiary of the Olen Corporation, owns most of the
land to the west of St. Marks.

Employment opportunities in the St. Marks area include an oil refinery,
a power plant, and commercial fishing. The Villages of St. Marks will
provide additional retail employ­ment opportunities.

### 3.3 Natural or Cultural Resource Conditions, Issues and Concerns

Conservation of the wildlife and their habitats is the foremost goal of
the refuge. Though hunting is allowed on the refuge, this activity
controls overpopulation and is monitored and regulated by the refuge.
Fishing is controlled by the laws of the state of Florida.

Other than litter, damage to resources at the refuge has been caused by
roadside parking and petroleum contamination. There have been incidents
of oil waste dumping on the refuge and a barge carrying petroleum
products has leaked its cargo into the St. Marks River and impacted the
shoreline.

The St. Marks Lighthouse, currently owned by the United States Coast
Guard, is an his­toric landmark located in the refuge. The lighthouse is
located on Apalachee Bay near the St. Marks River. The refuge is
currently negotiating with the Coast Guard to transfer the lighthouse to
the refuge. It is not open to the general public, but is used for
occasional Coast Guard Auxiliary meetings.

### 3.4 Recreation Conditions, Issues and Concerns

Though the refuge's highest priority is to provide wildlife habitat,
another goal of the ref­uge is to provide wildlife-dependent recreation
and education. Visitors to the refuge are able to fish, boat, hunt, and
observe bird and other wildlife, hike, and picnic. The refuge hosts
organized events during the year, such as the Annual Monarch Butterfly
Festival, Duck Tours, Night Prowls (nocturnal wildlife observation
tours), and Kids Fishing Derbies. Refuge officials indicated that they
are able to accommodate more recreational visitors, but additional motor
vehicle parking is not available.

The refuge is considering the prohibition of air boats within its
boundaries as an incom­patible use. The refuge has also discussed
limiting horseback riding on the refuge due to its questionable
compatibility with the mission of the refuge.

##  4.0 Planning and Coordination

### 4.1 Unit Plans

The St. Marks NWR will be preparing a Comprehensive Conservation Plan in
2001. There is currently no Comprehensive Conservation Plan in effect at
St. Marks NWR although the refuge does have single subject management
plans in effect for refuge activities such as public use, wildlife
conservation, and prescribed burning.

The refuge has been considering the widening of Lighthouse Road to
better accommodate bicycle traffic, but environmental concerns have
prohibited widening the road to include two four-foot bike lanes. A
parking facility near the picnic area on Lighthouse Road will be paved
for parking in the near future. The refuge has an approved expansion
proposal to add an additional 8,000 acres. This expansion is not
currently funded.

### 4.2 Public and Agency Coordination

The refuge enjoys a very good relationship with the town of St. Marks,
as well as the counties of Wakulla, Jefferson, and Taylor. The Aucilla
boat launch is managed by Taylor County. The refuge also works closely
with the Wakulla Chamber of Commerce, the Wakulla County Tourist
Development Council, and the Wakulla County Commission. The refuge also
enjoys a good relationship with the Apalachicola National Forest, which
bounds the refuge to the west.

The refuge is currently working with the Eastern Federal Lands Division
of FHWA to resurface Lighthouse Road. The refuge also has active
cooperative agreements with the St. Marks Refuge Association, the
Florida Trail Association, the Florida Division of Forestry, and the
Tall Timbers Research Station. The refuge continues to communicate with
the United States Coast Guard and the Coast Guard Auxiliary regarding
the St. Marks Lighthouse.

##  5.0 Assessment of Need

### 5.1 Magnitude of Need

Alternative transportation may have potential to enhance the experience
of visitors to the refuge, as well as protecting the resources within
the refuge. Parking along Lighthouse Road appears to be the primary
transportation-related problem associated with the refuge. Opportunities
to reduce the need to use private motor vehicles to access the refuge
could reduce impacts on the resources of the refuge, as well as enhance
the visitor experience by reducing vehicle intrusion in the refuge and
ensuring that visitors will gain access to the facilities in the refuge.
However, alternative transportation will not reduce the need for
additional vehicle/trailer parking facilities at the boat launch along
Lighthouse Road.

### 5.2 Feasible Alternatives

For each alternative, there is the opportunity to use a potential
parking lot adjacent to the current commercial area of the town of
St. Marks.

-   A peak season, weekend shuttle system that operates on a fixed
    schedule between a potential parking lot located in the town of
    St. Marks east of the Fort San Marcos his­toric site and the
    St. Marks Lighthouse. The parking lot near Fort San Marcos is
    located near the southern terminus of the Rails to Trails bike trail
    that connects the city of Tallahassee, Florida with the town of
    St. Marks. Bicyclists could choose to use the shuttle to travel to
    Lighthouse Road and avoid riding on U.S. 98, a major arterial
    highway in the Florida Panhandle. As the shuttle system would be
    used only on weekends for a limited time during the year, it is
    possible that school buses and driv­ers could be used to serve this
    need, rather than purchasing buses.

-   As the St. Marks River connects the town of St. Marks to the
    St. Marks Lighthouse, a ferry system may also be a feasible
    alternative to transport visitors between the two sites. Parking
    could be provided at the facility near Fort San Marcos, as described
    above. While this would not provide service to points along
    Lighthouse Road to the north of the lighthouse, it would provide
    transportation to the lighthouse, the primary visitor attraction
    along Lighthouse Road. A pontoon style boat of 20-30 feet in length
    would probably be sufficient to transport passengers and it may
    appeal to certain visitors as part of the attraction of visiting the
    refuge.

##  6.0 Bibliography

Florida State University, St. Marks National Wildlife Refuge Web page,
Tallahassee, Florida, 1999.

St. Marks National Wildlife Refuge, Public Use Management Plan (Draft),
St. Marks, Florida, 1994.

St. Marks National Wildlife Refuge, *St. Marks Light,* St. Marks,
Florida, Summer/Fall 1999.

U.S. Fish and Wildlife Service, St. Marks National Wildlife Refuge Bird
List, St. Marks, Florida, October 1998.

U.S. Fish and Wildlife Service, St. Marks National Wildlife Refuge
Reptile, Amphibian, and Mammal List, St. Marks, Florida, October 1998.

## **** 7.0 Persons Interviewed

James Burnett, St. Marks National Wildlife Refuge, Manager

Chuck Shields, St. Marks, Florida, Mayor