Item 8EAGENDA ITEM # 8E
J[JNE 14, 2010
CITY OF ATLANTIC BEACH
CITY COMMISSION MEETING
STAFF REPORT
AGENDA ITEM: City Commitment Supporting the Basin Management Action Plan 2 for 15
Lower St. Johns River Tributaries (including Hopkins Creek and Sherman Creek)
Classified as Impaired for Fecal coliform by the Florida Department of Environmental
Protection
SUBMITTED BY: Rick Carper, P.E., Public Works Director.
DATE: May 24, 2010
BACKGROUND: FDEP is responsible to develop Florida's list of impaired waters as
mandated by Section 303(d) of the federal Clean Water Act. Under the authority of
Section 403.067, Florida Statutes, known as the Florida Watershed Restoration Act, the
FDEP classified seventy-five (75) tributaries of the Lower St. Johns River as impaired for
fecal coliform and adopted (or is adopting) by secretarial rule a fecal coliform Total
Maximum Daily Load (TMDL) for each. Subsequently, FDEP is merging sub-groups of
these 75 impaired tributaries into basin action management plans and the associated
stakeholders into the Lower St. Johns River Tributaries Basin Working Group (BWG) to
focus stakeholders' efforts in meeting the tributaries' fecal coliform TMDLs. The
stakeholders draft and fine tune each action plan under the direction of FDEP. Once
finalized, each action plan is endorsed by the BWG, legally noticed for public feedback,
and finally adopted by FDEP secretarial rule.
BMAP 2 is FDEP's second fecal coliform action plan group and consists of 15
impaired Lower St. Johns River tributaries. This grouping includes Hopkins Creek, which
is partially located in Atlantic Beach, as well as Neptune Beach and Jacksonville Beach,
and Sherman Creek, which is partially located in Atlantic Beach, as well as Jacksonville
and Mayport Naval Station. Because of this, the City of Atlantic Beach has been
designated a stakeholder in this particular action plan and has a seat on the Basin
Working Group for the plan's development and implementation. The City is represented
on the working group by the Public Works and Public Utilities Directors. Since September
2009, City staff has been working with FDEP and stakeholder representatives in
developing BMAP 2 (a 380 page document). Staff's focus has been primarily Chapter 13,
which addresses Hopkins Creek and Chapter 16, which addresses Sherman Creek. In
addition, staff reviewed (and recommended some changes to) Chapters 1 through 5,
which are applicable to all 15 tributaries.
Actions taken to date or planned by the stakeholders in this BMAP to reduce fecal
coliforms in the affected tributaries have met the FDEP's sufficiency of effort
requirement, so that no additional requirements or projects are required at this time.
Participants in the BMAP will sample the tributaries on a routine basis to monitor
contaminant levels and progress will be assessed in an annual BMAP Review by the
BWG. Examples of actions taken by the City of Atlantic Beach include lining of aging
sanitary sewer systems, septic tank phaseout, sanitary lift station and manhole
maintenance, stormwater system cleaning and maintenance and litter and pet feces
control programs.
AGENDA ITEM # SE
JUNE 14, 2010
The attached document formally presents the City's commitment supporting the
Basin Management Action Plan 2 (BMAP 2) for 15 Lower St. Johns River Tributaries
(including Hopkins Creek) that have been classified as impaired for fecal coliform to the
Florida Department of Environmental Protection (FDEP).
BUDGET: All projected capital expenses are already included in the Public Utilities and
Public Works Capital Improvement Programs. The requirements for complying with this
BMAP have no direct budget impact other than monitoring costs. FDEP anticipates the
BMAP will receive final approval in September, such that monitoring will be required to
begin in October. Funds will be requested in the new fiscal year budget to cover these
costs.
RECOMMENDATION: Authorize the Mayor to sign the attached document on behalf of
the Commission.
ATTACHMENTS: 1. Draft Statement of Commitment
2. BMAP Excerpt: Executive Summary, Hopkins and Sherman Creek
Sample Results and Monitoring Plan
REVIEWED BY CITY MANAGER:
AGENDA ITEM # 8E
JUNE 14, 2010
Z~70
LOWER ST. JOHNS RIVER TRIBUTARIES BASIN MANAGEMENT ACTION PLAN ll
STATEMENT OF COMMITMENT TO SUPPORT PLAN IMPLEMENTATION
The Lower St. Johns River Tributaries Basin Management Action Plan (BMAP) II
was endorsed on May 13, 2010, by authorized representatives of the agencies
and organizations listed as members of the Lower St. Johns River Tributaries
Basin Working Group (BWG).
The signatories of the BMAP agree that, as applicable, their organizations will:
^ Support the use of an equitable and cost-effective coordinated
comprehensive watershed management approach to address and
achieve total maximum daily load (TMDL)-related pollutant load
reductions and water quality improvements.
^ Support the necessary approvals and funding needed to implement the
consensus management actions identified in the BMAP, and assist
implementation of those actions as required approvals and funding are
secured.
^ Pursuant to the process agreed upon by the BWG, track the
implementation of management actions for which they are responsible to
assure that the BMAP is carried out.
^ Identify and advise the Florida Department of Environmental Protection
(FDEP) and BWG of any issues or concerns that could be obstacles to
carrying out management actions identified in the BMAP, including
technical, funding, and legal obstacles.
^ As appropriate, assist with water quality monitoring according to the
BMAP monitoring strategy approved by the BWG.
^ Continue to communicate and coordinate actions and funding across
community organizations, agencies, and programs with regard to BMAP
implementation.
Organization.• City ofAdantic Beach, f/orida
Authorized Name/Tit/e /printJ.•
AGENDA ITEM # 8E
JUNE 14, 2010
DRAFT Lows St. Johns R1wr Trbutari~s Bash Mn~aoamant Action Plan 11-May 1010
EXECUTNE SUMMARY
TRIBUTARIES OF THE LOWER $T. JOHNS RIVER BASp~I
The 15 tributaries discussed in this Basin Management Acton Pert (BMAP) occuPY
appro~matety 3%, or 78 square miles, of the tower St. Johns River. (LSJR) Basin. The urban
planning units are streams in the. Duvet County area, inducting the Trout River, Chtega River,
Ncuth Mainstem, South Mainstem, Jutington Creek, and Intnaooastal Waterway. The wabr
quality of these streams is affected by urbanization. At least part of the drainage from these
tributaries flows thntiugh urban Jadtsorlviile..and many are tidally influenced for substantial
distances.
TOTAL INAAXIMUM DAILY LOAD$
Total 'Maximum Daily toads (TMDLs) are water quaNty targets for spedflc pollutants (such as
fecal coliform) that are established forimpaired weterbodies-that do not meet their designated
uses based on Fbrida water quality standanis. The ftorida Department of Environrrlerrtal
Protedton (FDEP) has identified- 75 tributaries in the LSJR Basin that have verified fecal
coMorrn impairmerrts.
In 2006, FDEP adopted TMC~ts for the fdlowing watel'bodies included in the BMA,P:
• ~Iiamson Creek
• Moncrr`ef Croek
• Wills Branch
FDEP then adopted additicmal TMDLs for the BMAP in 2009 for the folbwing waterbadies:
• McCoy Creek
• Deep Bottom Cr+sek
• Blockhouse Creek
• Sherman Cnr-ek
• Poftsbwg Cmek .
• Upper Trout Rlv+er
(hBID 2203)
• Lower Trout River
(WBiD 2203A~
The remaining TMDLs for the BMAP WBIDs were adopted in 2010:
! Craig Cr+aek
• Fishing _Creeek
• Hopkins Branch
Com~orent Branch
• Greer~eAd Crlgek
LOWER~ST. JOHN8 RNER TRIBUTARIES BASSI ISAANAOfMENT ILGTtON PLAN-
This BMAP is the second BMAP for the LSJR tributaries that are impaired for fecal colifomts.
The BMAP addresses 15 of the 75 tributaries that were identified as some of the -worst-case
waterbody identfication (WBID) segments, based on a ranking method establishing the severity.
of bacterial corrtarrrination. The projects and ac~iviti~ outlined in this BMAP are suffident to
address. all of the identified soun~es and, with the full impiementat3on of the BMAP, the 15
WBIDs are expelled to meet the' TMDL requirements. Through .ongoing studies, 5-year BMAP
xxi
AGENDA ITEM # 8E
JUNE 14, 2010
DRAFT Lowry St, Jrir~s River Trii~utarias Basin Manaaanw~E Aolbn Plan 11•~May 1010
mi~tone evaluation, and annual reviews, any additional sources -can be identified and
addressed.
BMAP BA8IN WoRrclNa QiROUP MEIMBERSHIP
FDEP worked with. the Basin Working Group (BWG) to prepare. this BMAP. The BWG members
represent the following groups and organizations: .
• City of RtlenitC Beech
• City of Jacksonvl~e (Ct7.l)
• City of Jacksonville Beadf
• -City of Neptur+e peach
• Duna! County Department
of Health (DCHD)
• Fonda Depertr-aent of
Trensportetion (Fl)On
• JEA
• Nava! Statra- (NS)
Mayport
• Envk+vnmenta! Interests
BMAP APPitoactl
This BMAP provides for phased .implementation under Paragraph 403.067(7xa)1, Florida
Stattrtes (F.S_}. The adaptive rr~nagement approach for TMDL in~lementatian Best in the
BMAP will address facet coliform bacteria reductions, and the iterative evaluation process will
continue until the TMDL is attained. The phased BMAP approach allows for the implementation
of projects designed to ach~ve reductions, while simultaneously implementing source
assessmen, carrying out.moniboring, and conducting studies to better understand facet coliform
variability and water quality dynamics in each impaired waterbody.
A 5-year milestone in this BMAP will be to ~a~ssess and veriy that adequate pr+ngnsss is .being
made towards achieving the TMDLs. During the 5'" year fopowing the BMAP adoption (2015),
the water quality data will be evaluated for in-stream reductions of fecal colit~orm levels in each
WBID. By this year, the median value for the fecal colif`orm couras in ~e first 4 years of BMAP
implementation should be 50% of the median expressed in the TMDL in each WBID. If this 50%
redaction is not achieved by the time of the. 5~'-year analysis, additlonal efforts-may be required.
Achieving 50% of the required reductions will tie an important .milestone for measuring the
suoLess of the BMAP -and will provide an opportunity to improve source assessment and
management measures going forward.
SUFFICI@ICY of EFFORT EVALUATION
The tributary fecal conform TMDLs are. expressed as a percerrt reduction based on in-stream
fecal. coliforrrt concentrations. This method of TMDL allocation prevents detailed alkns, as
it is complicated to equitably allocate to stakeholdersbased on a percent reduction of in-stream
concentration. Fecalooliforms-can be highly variable and easily transported, making k difficult,.
in many cases, to identify the sauce of the. bacaeria. Additionally, almost no data are available
that show the effiaency of storrrivvcter best management practices (BMPs) and management
actions in removing or reduartg fecal coifforms.
FDEP evaluated fecal cobform reduction activities using a `sufficiency of. effort approach. which
is a WBlla-spedflc assessment of the identified potential sources and the.spec~fic activities that
will reduce or eliminate sources of fecal coliform loading. This sufficiency of effort evaluation is
not an assessment of each entity`s individual activities; rather, it. focuses on whether the
submitted activities correspor>Ided to the potential sources identified in the WBID and whether
the total efforts were adequate to eliminate the known sources, assess unknown sources, and
.prevent the development:af new sources.
7ocN
AGENDA ITEM # 8E
JiJNE 14, 2010
DRAFT iLo,iwr ss. JafMs Rlwr Tributaries iBasii ~/ana~nwnt Aadon Plan 1l-~ap 21110
ff any of the likely sources were insufFcientiy addressed, FDEP identified fife need fior.additional
actions, which were-added to the responsible. entity's project table for that WB(D. -The sum of
the actions iri this BMAP is suf~clent to address the potential sources, based on the information
available. Additional actions may be necessary in the next; cycle if reduct~ns do not occur as
expected.
KEr ELEIr1ENTS of THE BMAP
This BMAP addresses the key elements required 6y the Florida Watershed Restoration Act
(FIIVRA}, Chapter 4f)3.067, F.S., including the lbllowing:
• Document how the public and other. stakelwiders were encoureged to
participate or partkrpated in delrek~ping the BMAP (Section l.3. f and
~ C);
• Equitably allocate poputarlt reductions irr the. basin,(Socdon l.3.4);
• ldeni/lj~ the mechanisms by which potential future increases in pollutant
ioad/ng will be addressed (SvctMn !.3);
• Document management acdons/pn~ects to achieve the TMDLs (Chapter 8
through f+f-apt+er ZO);
• Document the implementation schedule, funding, responsibldtles, and
milestones (Saction~s 6 3, r7.3, 8.3,.9 3, 10 3, 11.3, lY.3, t3 3, l4.3, !5 3,
!6 3, l7.3, !ti 3, 18.3, and 20.3); .and
• Identify monitoring,. evaluation, and a reporting strategy tQ evaluate
reasonable progress overtime (Section 4.2).
ANTICIPATED OtiTCOIME8 OF BMAP IMPLEfif1ENTATION
Through the implementation of projects,. activities, and additional source assessment in this
BMAP, stakeholders expect the following outcomes:
• Impnaved water. quality trends in tha LSJR tributaries that will also help
improve water quality in the main stem of the river,
• Decreased loading (lerrels) of the target pollutant (fiscal oolifonn);
• Enhanced public awareness offecal oo/iform sources and impacts on water
quality;
• Enhanced eflactiweness of corresponding corrective actions 6y stakehoders;
• Enhanced understanding of basin hydrokrg ,water quality, and pollutant
souroes;-and
• Improved ebAity to evaluate management actions, esttmate their benefits, end
identify additional pollutant sounes
BMAP CosT
Costs were provided 1br 59% of the activities identified in the BMAP, with an estimated total. cost
of more than $51 million for capital projects and more than $92 million for ongoing programs
and activities. in addition, some of the activities identified in the BMAP only -had countywide
tx~sts available, for a total of more than .~25 million. The funding sources range from local
oonMbutiorffi to legislative appropriations.. Technical stakeholders and BWG members will
xxii
AGENDA ITEM # 8E
JiJNE 14, 2010
DRAFT l.osax is..lolms River Trib~ias Basin Manaasinsnt Aetbn Plan 11~--2010
cxxrtinue to explore new opportunities fiorfund'rng assistance th .ensure that-the activities fisted in
this BMAP can be maintained at the necessary ~vel of effort:
E3MAP Fo~tow-uP
As a part of BMAP follow-up, FI3EP and stakeholders will track implementation efforts and
monitor water qualihr to determine add~ionai sources and water quality bends. The sampling
locations in the monitoring. plan were selected to identify other potential sources of.
oontam~tion through source assessment monihming in key locations throughout the
watersheds and to track trends in fecal coliforms in the WBtDs by using existing stations with
extensive historical data. The source assessment monitoring will follow the established
Tributaries Assessment Team (TAT) protoca, in which arty observed fecal conform colony
oouMs over 5,OEHI will be fdk~wed up wide bracketed sampling in an effort to determine the
soun~e of -the high .fecal coliforrrt count. COJ, FDEP, JEA, .City of Atlantic Beach. City of
JadcsonviNe beach, City of Neptune Beach, .and NS Mayport are r~ponsit~te for the trend and:
source assessment sampling in the. monitoring plan.
The results of these efforts wiN be used tD evaluate the effectiveness of the BMAP activities in
reducir~ fecal coliform loading in the. tributaries.. The BWG will meet at least every 12 months
to discuss implementation issues, cmrsider new information, and determine what other
management stnstegass are needed, if monitoring indicates abet additional measures are
necessary th tBduce fecal c~oliforms.
BEI~FR8 OF THE 6tMAP PROCESs
With the knplerrietitation of acdviftes outlined in this BMAP, in addition b the anticipated
outcxxries noted above, the following benefits are expected:
• Increased coordination beiw~een state and local govrgmments and within
divisions of i~al goi+^emments in problem solving Itx surface water quality
restocsdon;
• Securing addiGbrra/ stalls end Iota! funding for water quality resbretion;
• Improved Qommunicetion and cooperation among staf+e -and local agencies
raspondui9 to restoration needs; and
• The deiennirTation of eflrec~ive projects through fhe stakeholder decisiat-
'making and P~iorltysetd-ng Pwceases. .
COlailmilEliT TO BMAP fMPI.EMF.NT'ATION
BWG members w~l endorse the BMAP on behalf of the entities. they represent and are
conimittad to ensuring that the plan is implemen#ed to reduce fecal coliforrris in the LSJR
tributaries. In addition to this endorsement, the entities will also be encouraged to. provide
FDEP with letters of commr~rnent .or rescrtutiorrs of support to ensure that as .staff .and--board
members change owsr time, the entity has- a way to ensure support fior the BMAP and the efforts.
it describes.
xxiv
AGENDA ITEM # 8E
JiJNE 14, 2010
DRAFT L~owsr it Jahns Ri~rar Tributaries Basin Managsrr~snt Action Plan 11-May X010
TABLE 14.• SUMi1IARYOF BLACKHIX/sE cREEKFECAI CoLe~a01I DATA BY YEAR FoR
- - 6npty os6Mo dw
'Table yeas for wFMch dams exist.
or samples
~ColKanr- ooums aro iN100mL.
'Exosadan
1998 oss
0 values ab
- ove 400 aournf/10
- 0mL
-
-
-
-
1897 0 - - - - - -
1998 3 1,400 17,000 2,400 8,933 3 100%
1999 4 2,200 9,000 3,700 4,850 4 100%
2000 4 170 17,000 2,850 -5,718 3 75%
2001 4 184 11,000 1,915 3,754 2 50%
2002 4 .28 520 389 322 2 50%
2003 2 430 580 505 -505 2 100%
Z. ~ B Hoprr/NS CREEK
The fecal oaiform concentration in Hopkins Creek ranged from 10 to 9.000 counts/100mL and
averaged 1,563 counts/1.00mL during the period of observation. High fecal coliform
concentrations in 2007 were correlated with 3~ay precipitation (e.g., when 3~tay precipitation
was 1.42 inches, the fecal coliform concentration was 8,5D0 counts/100mL at Station
21 FLJXWQIWWH on September 20, 2007). The data from Station 21 FLJXWQIWWH-during
the Cycle 2 verified period were used to obtain long-temp annual and seasonal fecal coliform
averages and percent exceedanoes. No long-term temporal trends were observed. Episodic
peak fecal ooliforrrl concentrations ocxurred throughout the period of observation, and the
average concentration in the creek neither increased nor decreased over the period of
observation (Table 1S). The mean fecal coliform concentrations were slightly lower in the first
and fourth quarters than in the second and third ?EP„ XX 2a'~.
TABLE ~$.' 3UMMARYO,FHAPIiOHS CREEKfECAL COlJFOIRMDATA BY YEAR
FOR THE V~l~IF1E0 PERIOD (./AHGfAI?Y 7, 2001-,/UNE 30, ZOQBf
'Nunes of samples
ZCourarm oour>is are ~YJ100mt..
-
2001 - -
4
220
9,000
500
2,555 }
2 Y
50%
2002 4 10 388 277 233 0 0%
2003 4 ZO B00 480 445 2 50%
2004 3 980 -7,000 2,000 3,320 3 100%
2005 4 140 1,300 885 693 2 50%
2008 4 40 .500 297 284 2 50%
2007 8 20 8,500 90 1,472 1 17%
Z- t.9 CORMauwT BaAII~cH
The fecal coliform concentration ranged from 20 to 10,200. oounts/100mL and averaged 1,269
crounts/100mL during the Cycle 2 verified period. High fecal coliform concentrations in 2007
were not correlated-with rainfall. The data from Station 21FLJXWQJC15 (from January 2001-
November 2007) were used to obtain long-tens annual and seasonal feel coliform averages
and percent exceedanoes. No long-term temporal-trends were observed (Table 16). Episodic
18
AGENDA ITEM # 8E
JUNE 14, 2010
DRAFT' L,orsar St Johns River Tributariias Basin Managsinsnt Action Plan IlaMay 2010
Z.1 f1 SHERMAN CREIX
Table 18 summarizes the fecal coltform results for Sherman Creek, by year, during the verified
period. There was a 41.696 overall exceedance rate. Exoeedances occurred in all months,
except March and Juty, with 10096 exceedances in August. When aggregating data by season,
the lowest percentage of exceedances occurred in the winter and fall, and the highest occurred
in summer. There was at least a 33.3396 exceedance rate across each season. By year, there
appeared fA be a general downward trend in exceedances firorrt 1996 to 2002, except for 2000.
However, there was only 1 sample from 1996; all other. years had at least 9 samples (FDEP,
Juty 2009).
TABLE f8,'Sl/AIMARYOPSHEIQMLM-CREEKI~ECAL CAL/FOI~t/QATABYYEAR
FOR THE V~RII~7ED PERlAD (/ANLfARY f, f996~/U/VE' S0, ?OQ3f
- ~ Empty ceWtw deb
'Tools represents vests for tivt~ date wrist.
'Nwntwr of samples
3CoNform courts are #l100mL.
'Exceedanoes represent values above 400 counts/100m!_
1996 1 1,300 1,300 1,300 1,300 1 100.0096
1997 - - _ _ _ _ -
1998 9 20 5.000 700 1,089 5 55.56%
1999 12 ZO 1,700 225 390 5 41.67%
2000 12 20 42,000 2,600 7,754 8 88.8796
2001 12 20 5,000 285 793 5 41.67%
2002 14 4 5,800 97 506 1 .7.1496
2003 - - - _ _ _ _
Z. f. f2 GREENF/ELD CREEK
The fecal co6foma concentration in Greenfield Creek ranged from 14 to 10,500 counts/100mL
and averaged 1,237counts/100mL during the period of observation. Nigh fecal colitorm
concentrations in 2007 were correlated with 3-day precipitation (e.g., when 3-day preapitation
was 2.66 inches, fecal coliform concentration was 10,500 counts/100mL at Sthtion 21FLA
20030809 on October 3, 200. The -data from Station 21 FLJXWQGCI were used to obtain
long-term annual and seasonal fecal coliform averages and percent exceedanoes. No long-
term temporal trends were observed (Table 19). Episodic peak fecal colifomt concentrations.
occurred throughout the period of observation, and the average concentration in the creek
neither increased nor decreased ~~*~XX 20tpe).
TABLE f9.' SUMrYARYOF GREENFII=LD CREEK FECAL COL/FORM DATA BY YEAR
FOR THE NER/F/ED PER/OD (JANUARY f, ,200E-/uwE 30, 2008)
r of samples
n courts sro #/100mL.
2001 4 40 600 -285 303 1 2596
2002 4 120 1,800 286 623 1 25%
2003 4 50 4,000 380 1,203 2 5096
2004 2 100 2,500 1,300 1,300 1 50%
20
AGENDA ITEM # 8E
JANE 14, 2010
DRAFT Low~atr a'ti . JoNna River Tei~tarias Basin Mana~anw~t Action Plan 11-Maur 2010
4.2.3.6 Moncrief Creek Monitoring Network
FDEP- will be responsible for monitoring in Moncrief Creek. Table 30 lists the stations that will
be sampled.
21FWXWOTR318 Trend Quarterry 33"° Street FDEP
21 FLR 20030728 Trend Quarterly Moncrier Creek at Moncrier Road FDEP
New station Bourne assessment Monthly Soulhweetem branch at West 18s' Stroet -FDEP
New station Source aessssrnsnt Morrthly Nwtt+sastem branch at West 63n° Street FDEP
4.2.3.7 Hopkins Crtaek Monitoring Network
COJ, Atiarttic Beach, Jacksonvfile Beach, and Neptune Beach will be responsible for monitoring
in Hopkins Creek. Table 31 fists the stations that will be sampled.
Teal c3i• Ynsurnwwr_ Sre~muu~ke m ilnor~ue re~rr
21FLJXWQIWWH Trend Quarterly Kings Road COJ
21 FLA 20030897 Source assessment Monthly Hopl6ns Creek at At~rrfic
Boubvard ~~ Beach
Nsw station Bourne assessment Monthly Main chanrrel at Penman Road Neptune Beach
Southeastern tuanch at
New sbtion Source asseesrrient Monthly Avenue North (Seagate
Avenue Jacksonville Beach
New station Source assessment Morrlhry Southweslsm branch at Jacksonvile Beach
TaNwood Road
4.2.3.8 Sherman Creek Monitoring Network
COJ, NS fNaypott, and Atlantic Beach will be responsible for monitoring in .Sherman Creek.
Table 32 lists the stations that wilt be sampled.
Through cooperation on TMDL-related data ootledion, FDEP and stakeholders have
consistently used similar standard operating procedures (SOPS) for field sampling and lab
analyses. This consistency will continue into the future. to ensure that data can be used not only
32
4.2.4 QUAL/TI'AssuRANCE/QuAL/TYCONi7?oL