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swim Environmental Pro ress Throu h ft -,AMR&- Partnershi P . .... .. P A&W A Publication by the five ter Management Districts 77ASK 3. 1.09 and the Department of Environmental Protection TABLE OF CONTENTS Introduction 3 Southwest Florida Water Management District 9 South Florida Water Management District 15 St. Johns River Water Management District 21 Northwest Florida Water Management District 27 Suwannee River Water Management District 33 ',h,- .A) je LFLO@t This publication was made possible by a subgrant from the Florida Department of Community Affairs, in cooperation with the U.S. Department of Commerce, National Oceanic and Atmospheric Administration, under Cooperative Agreement Award No. NA37OZO427. The views expressed herein are those of the authors and do not necessarily reflect the view of NOAA or any of its sub-agencies. The Nature Conservancy oversaw production. The Florida Department of Environmental Protection and the water management districts' SWM coordinators were instrumental in completion of the project. September 1994 Dea I Whe 0 min ? If you're like most of us, the Florida you treasure is a wate Mexico .... . crystal clear springs in the panhandle.... the tea- dark p he surf off the Atlantic coast.... the rippling grasses that make up the ER Water 'what brought many of us to this southern paradise in the first place. But Florida's bountiful waters its lakes, rivers, and estuaries - were among the first resources to suffer from the massive population influx of the middle part of this century. By the 1960s, many of our state's most precious waterways were in jeopardy. The effort to clean up Florida's surface waters began with the passage in 1972 of the federal Clean Water Act. That legislation focused on removing the greatest sources of pollution fouling our nation's waters - sewage and industrial waste. But by the late 1980s, it was clear broader restoration and protection was needed. In 1987, the Florida Legisla- ture enacted the Surface Water Improv 'ement and Management program, or SVWM. SVWM's premise was new - water bodies should be looked, at as systems, not isolated wetlands or water bodies. Their salvation was not as simple as buying land or stopping major sources of pollution - a whole array of partners and actions was envisioned. Water management districts and the Department of Environmental Protection would work with federal, state and local governments and the private sector to create and carry out plans for priority water bodies - plans that spoke to restoring habitats, stopping or slowing down sources of pollution, and preserving the natural systems that support valuable living resources. The projects funded through S VWM are targeting clean up some of our state's most troubled water bodies, like Tampa Bay, Lake Okeechobee, Lake Apopka, and Lake Jackson. S MM is also working to preserve and protect systems in good condition, like the Suwannee River, for future generations. You'll read about them in this report. Perhaps most significant, SWIM funding does not stand alone, In many areas, SVWM dollars bring in additional funding -from federal and local governments, regional agencies, and even the private sector. Improving the quality of Florida waters is an ongoing process that requires dependable funding, and S VWM still has no dedicated funding source, Each year, it must compete with other issues for its share of funding. And each year, that share is increasingly unreliable. Restoring Florida's waters deserves a long-term investment. I hope you will support the SMM program and its priceless legacy. Sincerely, Virginia Wetherell, Secretary Jerry . Scarborough, Executive Director Department of Environmental Protection Suwannee River Water Management District RR-75-1 I'S'amuel E. Poole 111, Executive Director Douglas E. Barr, Executive Director South Florida Water Management District Northwest Florid a Water Management District Peter G. Hubbell, Executive Director Henry DT)e Zaecutive Director Southwest Florida Water Management District St. Johns 'er Water Management District OF 7*4 77, AU 4j ater is the essence of Florida. With nearly 11,000 miles of coastline, Florida's very geography is defined by water. The state contains thousands of lakes, and hundreds of rivers measuring more than 10,000 linear miles. Our state owns more offshore land than any other state - 6.4 million acres - and 3 million acres of estuaries, open water and wetlands. Americans love water, and Florida is the most water-loving state of ail. More than 76 percent of our population lives in coastal counties. Tourists list our coasts as the state's num- ber one attraction. Recreational and commercial fishing revenues come.to more than $7 billion each year, making Florida's one of the most valuable fisheries in the nation. When people began flocking to Florida in the 1940s and 50s, they gravitated toward water, settling along rivers, estuaries, and lakes. Farmers and developers thrived -on the abundance of water they found in south Florida, enough for drinking, irrigation, fishing and swimming. It seemed the state's water resources were inexhaustible. By the 1960s, it was clear they were not. Some of our state's most precious resources - Tampa Bay, Biscayne Bay, Lake Apopka - no longer functioned as natural systems. Fish died, birds and other wildlife disappeared, and the smell was enough to drive people away. The first push for clean water came from our national leaders, Ti with the passage in 1972 of the Clean Water Act. The 3 nation's waters, Congress said, should be fishable and swim- mable. The Act focused on removing the primary source of pollution - raw sewage and industrial waste, which had been dumped into rivers, bays and estuaries. The Clean Water Act resulted in many successes. Lakes, rivers and estuaries began to regain their health and birds and other wildlife began to return. By the 1980s, it was apparent that cleaning up sewage was not enough to return our surface waters to complete health. Ironically, when that major source of pollution was being controlled, other sources became more evident. The rainwa- ter running off our increasingly urban lands contained great amounts of sediments and pollutants - fertilizers, yard wastes, pesticides, herbicides, metals, oil, and gasoline. The result: sediments began filling in lakes, water clarity was reduced, excess nutrients made aquatic plants grow faster, affecting the levels of oxygen and sunlight. Fish and other animals died, fisheries were destroyed, birds could not feed their young. In other areas, farms and dairies added pollut- ants like pesticides, fertilizers and animal waste. Both fertilizers and animal waste are high in nitrogen and phospho- rus, which led to excess plant growth - in lakes and rivers as easily as on the farm. At the same time, wetlands and open lands - the natural purifiers of surface waters - were disap- pearing at an alarming rate. When state legislators took a serious look at our state's water bodies in the mid-1980s, they saw major problems remaining: E5@@ While Tampa Bay had come a long way under the Clean Water Act and other federal programs, it was still struggling. Phosphorus levels in Lake Okeechobee had doubled since the beginning of the decade, causing an algae bloom that covered a quarter of the lake's surface. Lake Apopka no longer functioned as a natural system. The number of viable recreational fish camps surrounding the lake had dropped from 21 in 1956 to only one in 1987. While practices such as release of sewage, cirtrus packing wastes, and muck farming had caused the lake's original prob- lems, stopping the flow of waste was not enough to reverse them. Something more had to be done. More than 900 pipes over 12 inches in diameter were draining millions of gallons of untreated stormwater directly into Biscayne Bay. The lower St. Johns River was contaminated with coliform bacteria and heavy metals from faulty septic tanks and stormwater runoff. A New Approach to Water Management In the late 1980s, it was determined the state had to do more to protect and restore its priceless surface waters. While "point" sources - sewage and industrial wastes - were being controlled, "non-point" sources - pollutants that enter water bodies in less direct ways - were still a major concern. In 1987, the Florida Legislature created the Surface Water improvement and Management program, or SWIM, to deal If there Is one with the problems remaining in the state's surface waters. The thinking behind SWIM was clear. "it is the duty of the state," the Legislature said, "to enhance the environmental word that and scenic value of surface waters." describes,SWIM SWIM is different from other natural resource protection programs. It is a program that uses public participation to identify priority water bodies of statewide concern. It is the best, 10 t 10S only program that addresses a waterbody's needs as a system of connected resources, rather than isolated wetlands or water bodies. To accomplish this, SWIM meshes across govern- partnersh' mental responsibilities, forging important partnerships in water resource management. If there is one word that describes'SWIM best, it is partner- ship. While the state's five water management districts and the Department of Environmental Protection are directly responsible for the SWIM program, w they ork in concert with federal, state, and z,- local governments and the private sector. All with funding or in- the partners contribute kind services. In fact, in many areas, state- appropriated SWIM dollars are not the biggest part of program funding. Several water man- agement districts have put more resources in SWIM than they receive from the state, and SWIM dollars have been used as match to secure federal grants. SWIM develops carefully crafted plans for at- risk water bodies, and directs the work needed to restore damaged ecosystems, prevent pollution from, runoff and other sources, and educate the public. SWIM plans are used by other state programs, like Save Our Rivers, to help make land-buying decisions, and by local governments to help -make land-use management decisions. Since its inception, SWIM has made great strides toward improving the quality of a number of troubled water bodies and increasing our understanding of healthy water bodies. The initial legislation identified specific water bodies that would fall under SWIM - Lake Apopka, Tampa Bay, the '7 J@; V I dj n River Lagoon System, Biscayne Bay, the St. Johns n jp and Lake Okeechobee. Subsequently, the legislatur e @--:I_,stat6iorily established the Everglades as another SWIM Today, through public comment and professional YA", ev ition, water management districts identify the water they believe need special protection. Twenty-seven wa er o ies now are rece 6 di iving attention from SWIM. @4 ing SWN I money for SWIM came from state general revenues Al e y U S. d b f nds raised by the water management district 110t,'Ahe Legislature's original commitment of $15 million a to erode by 1990. In 1993, a new source of nue,, - the Advance Disposal Fee (ADF) as adopted -recycled food containers. As companies je,e dn non 1114 1@v V qecycling goals, the ADF will not be an adequate or source of revenue, and SWIM funding is in question 'gain. In many cases, SWIM's shrinking funding has meant that water management districts have had to increase their share of dollars to continue successful protection and restoration programs. In the St. Johns River Water Management District alone, the state's share of SWIM funding fell from 80 percent in 1987/88 to less than 50 percent by 1992. Non-po@nt Pofludanol While some sources of pollutants are easy to pinpoint - the release of sewage and industrial wastes, for instance - others are more subtle. These "non-point" sources of pollution sometimes do not flow through a pipe. Instead, they flow over the ground into rivers or lakes, or seep into the aquifer. The more land that is covered with paved and other impervious materials - such as roads, parking lots and buildings - the greater the amount and speed of runoff. Clearing land - and thus increasing the amount of erosion - also can increase runoff filled with pollutants and sediments that reaches surface water bodies. The most common sources of "non-point" pollutants are: Urban runoff, which contains: Agricultural runoff, which contains: Other non-point sources: Fertilizers Fertilizers Leaky underground Pesticides Pesticides storage tanks Herbicides Herbicides Leaky septic tanks Oil and gasoline Animal waste Landfills off roadways Sediment Yard and animal wastes Heavy metals I , Sediments from road and other construction (05 The Emerging Role of Florida's Water Management Districts The creation of Florida's water management districts was the result of more than 40 years of evolution in the practice and The Four Goals philosophy of managing water and related natural resources. One of the first efforts of the state in the area of water man- of the agement was creation in the late 1940s of the Central and SWIM Program South Florida Flood Control District in an attempt to mitigate the effects of a series of crises: hurricanes that had swept 1 . Water quality protection. through the region in the 1920s and 40s, flooding local SWIM's primary goal is to communities, followed by years of drought and groundwater ensure that surface waters are withdrawals which left coastal wellfields contaminated by clean enough to support saltwater. Another hurricane, this time on the west coast, led wildlife and recreation. SWIM to the establishment of a second type of water management plans focus on not just prevent- district in the Tampa Bay region in the 1960s. ing water quality problems, but repairing damage caused by pollution and development. By the 1970s, it had become clear that the management of water resources would have profound effects on the state's 2. Natural systems protection. Natural systems associated i ability to support its rapidly expanding population. The Water with many surface waters are Resource Act, passed by the Legislature in 1972, created a altered so that these water total of five "water management districts," the original two bodies cannot perform their flood control districts and an additional three agencies in the functions. SWIM plans focus northern part of the state. The districts were given the re- on managing and protecting i sponsibility of dealing with regional water quantity issues, like the natural systems that managing surface water and issuing permits for wells. While maintain clean water, and the state set their general direction, each district also had a healthy plants and animals. 3. Cooperative activities. Devel- governing board, appointed by the governor, to make deci- oping and addressing broad sions based on the needs of the area. Over time, the districts' goals for natural system responsibilities grew. Managing stormwater runoff and protection requires participa- protecting isolated wetlands were added to some of the tion of local, state, and federal districts' duties in the early 1980s, and today the emphasis is agencies, and private parties. on planning all aspects of water resource management - SWIM works through partner- from flood control to maintaining water quality (both surface ships between all levels of government as well as business 1 and ground water) and managing natural systems. With the i passage of the SWIM program, the water management dis- and environmental interests. 4. Watershed management. tricts began to plan for the protection, restoration, and man- Land, water, air, and living agement of the state's wetlands, springs, rivers, lakes and resources are linked and estuaries. cannot be effectively managed in isolation from one another. As we move toward the 21st century, water resource manage- SWIM uses watershed manage- ment is driven by the need to protect functioning natural ment approaches to consider systems, restore degraded systems, and integrate urban and linkages between resources in protecting and restoring water agricultural landscapes into their surrounding natural environ- ments. Modern water. management means preserving, as bodies. Also, SWIM provides information to local govern- much as possible, the connections within and throughout eco- ments to help them make land systems and between people and the environment. use decisions to protect surface waters. -its The communities surrounding Tampa Bay have long been a destination for toudsts and new - - - - - - - - - - - - residents, and years of abuse have taken their toll on this precious resource. Restorin the Bay k fu n c t i o n-,,,,, w, an on p dorit of the Soa@@hwest y Water Manageme AN Z@, V \'v V uthwest Florida Water Management,,,,,,.,,,, District The Southwest Florida Water Management District covers just over 10,000 square miles of Florida's southwest coast. Bounded by the floodplain of the Withlacoochee River on the north and Charlotte Harbor on the south, the district includes all or part of 16 counties. The district's SWIM priority list includes nine water bodies with approved plans. They are a diverse group, ranging from extensive estuarine systems to fresh water lakes and springs. By far the largest - and the most endangered - is Tampa Bay, the district's first restora- tion priority. Other restoration projects include Lake Thonotosassa, the site of the one of the largest fish kills in Florida, and Banana Lake, once identified as the most pol- luted lake in Florida. Today, thanks to the SWIM program, these lakes are on the way back to health. SWIM plans also cover Rainbow River, Crystal River/Kings Bay, and Charlotte Harbor. Many, of the projects are cooperative ventures with other agencies, local governments, and private industry. P V11 The Comeback of Tampa Bay When legislators began to consider water quality issues in the 1970's Tampa Bay was one of their primary concerns. Since that time, the bay has become the focus of national, state, and local programs aimed at reducing pollution and restoring natural habitat. The bay's restoration was a first priority of the SWIM program. With a 398-square-mile surface area and a drainage basin covering 2,200 square miles, Tampa Bay is Florida's largest open-water estuary. It is also one of the most heavily used Port facilities, commercial fishing, shrimping, recreation and tourism all play vital roles in the west central Florida econony. Since the beginning of the century, the aquamarine waters of the Gulf of Mexico have drawn people from all over the world. A 1990 clean up In many cases, these tourists later became residents. Be- attracted 4,000 tween 1940 and 1970, the population of the Tampa Bay volunteers from region more than doubled. The St. Petersburg-Tampa area Hillsborough and was one of the state's first true urban areas, with all the Pinellas Counties. opportunities and challenges that designation implies. De- They collected cades of shoreline development, pollution from stormwater more than 83 tons runoff and urban and industrial discharges, took their toll on of plastic, glass, marsh habitat was gone, along withmore than 80 percent of paper, and other its seagrasses. Fisheries had declined and shellfish harvest- marine debris! ing had virtually ended. 10 Many agencies and ,Ll*l citizens have been working to identify the Bay's problems and solutions for its restora- Jr,' tion. The City of Tampa's Bay Study Group began studying the Bay's plant and animal life in the 1970s. The National Oceanic 4@ and Atmospheric Administration Status and Trends program, in In- conjunction with the Department of Environ- mental Protection, analyzes bay sediments for toxicity. The Tampa Bay National Estuary Program works with state, regional, and local governments on long-term environmental monitoring and management projects. The Tampa Bay Regional Plan- n.ing Council's Agency on Bay Management brings together more than 50 public and private groups and individuals to work on bay management activities. SWIM activities in Tampa Bay focus on restoring habitat, reducing the effects of stormwater runoff, and working with local governments to acquire land. Since the program began in 1987, SWIM has created more than 40 treatment areas for stormwater runoff, replacing lost shoreline habitat and restor- ing coastal areas damaged by development. Local govern- ments have worked in concert with SWIM on nearly all of these projects, particularly on innovative combined stormwater/habitat enhancement projects. -0- Cleanup of the Bay will be a lengthy process that requires the efforts of a host of agencies, programs, and people. But results are already being seen. Water quality is improving and seagrasses are making a comeback. In 1990, studies showed 500 acres more seagrasses than in previous years. An additional 730 came back by 1992. SWIM has also concentrated on restoring habitat in the bay. Working together, SWIM, local governments, and state agen cies have undertaken 25 habitat restoration projects. All have been constructed on public land and involved reestablishing a habitat mosaic of wetland vegetation and uplands. Ex- amples include E.G. Simmons Park, Mangrove Bay, Cock roach Bay, and many others. Public education has been a key ingredient in the SWIM plan for Tampa Bay. Bay cleanups, publications, conferences, and television programs have raised awareness about the Bay's low A0 tAo problems - and solutions. A 1990 cleanup attracted 4,000 volunteers from Hillsborough and Pinellas Counties. They collected more than 83 tons of plastic, glass, paper, and other marine debris! The "SWIM team" concept of public participation has contin- ued to grow. An all-volunteer Citizens Water Quality Monitor- ing program conducts weekly water quality sampling in and around Tampa Bay and its tributaries. Other "citizen scien- tists" measure the success of individual habitat restoration projects. The Southwest Florida Water Management District's SWIM program has been so successful in generating citizen support that it earned a Davis Productivity Award from Florida TaxWatch in 1990. 6:; V 0 U _W thw est Eodda Water n-agern -a ent D@strjct-o Pr@orky M ater Bod@*es and SWR Ooa@s @ WE The Southwest Florida Water Management District's SWIM program has developed plans for nine water bodies. Here's some of what the program is doing: Tampa Bay Restoring wetlands and seagrass habitat Removing sources of non-point pollution @5_- Protecting freshwater flow to the bay Coordinating bay management with other agencies Rainbow River/Blue Run E@@ Managing public use Controlling aquatic plants Controlling sources of excess nutrients Banana Lake Providing follow-up protection for previous restoration efforts Crystal River/Kings Bay Controlling sources of excess nutrients Improving stormwater controls Identifying sources of septic tank pollution Lake Panasoffkee Analyzing and mapping sediment accumulation Controlling sources of excess nutrients Charlotte Harbor Removing sources of non-point pollution Protecting freshwater flow to the harbor Monitoring water quality Coordinating harbor management with local governments Lake Tarpon Controlling aquatic plants Controlling sources of excess nutrients Lake Thonotosassa @5@ Controlling point and non-point sources of excess nutrients z,=- Restoring wetland habitat Enhancing recreational fishing Winter Haven Chain of Lakes Controlling stormwater runoff FTn, The Everglades System, which includes the Kissimmee River and Lake Okeechobee, is the key to South Florida's water supply. From Miami to the Keys and through- out South Florida, the Everglades keeps the salt of seawater from intruding into the freshwater drinking supply. Maintaining the system's delicate balance is the job of the South Florida Water Management District. > 00 j J outh Florida Water Mana ement Distric iz@ es@@ Covering more than 17,000 square miles at Florida's southern -tip, the South Florida Water Management District manages and operates 1,400 miles of canals, levees and water control structures, stretching from the Kissimmee River basin to the Florida Keys. The district's SWIM priority list includes some of the state's largest and most famous water bodies - Lake Okeechobee, Biscayne Bay, the Indian River Lagoon System and the Everglades. The SWIM program will play a key role in implementing the Everglades Forever Act passed by the Florida Legislature in 1994. The challenges that face South Florida are complex, and water lies at the heart of many of them - water is needed for the area's massive population, for agriculture, for wildlife, and for recreation. Finding a bal- ance among these often competing interests is daunting, but the balance must be achieved. In many ways, the issues facing South Florida today will be faced by many areas of the state - and the country - in the years ahead. 15 Lake Okeechobee: Seeking a Natural Balance Agriculture and development, two of the strongest industries in Florida, are also the two largest users of fresh water. In South Florida - for decades, the state's most populated region - maintaining the quality and quan- tity of water needed for agriculture and .communities is a constant challenge. The . I rly South Florida Water Management District's SWIM program is an active player in the area's water issues. #A6- Possibly its "biggest" challenge is Lake Okeechobee. Lake Okeechobee lies at the heart of water circulation in South Florida. Given that position, it's not surprising that the big lake also has been at the center of controversy and conflict. More than any other body of water in the region, Lake Okeechobee is expected to be all things to -7. all people. This 730-square-mile lake is the largest freshwater lake located wholly within Florida. Even though the lake is shallow - averaging only about nine feet deep - it ca n hold more than one trillion gallons of water. This storage capacity is used to supply drinking water to lakeside Of communities, irrigation water for agriculture, and a water source for South Florida's ecosystems. The lake has been regulated to supplement and protect coastal water supplies in times of drought and is used as a receptacle for floodwater from surrounding farm fields and rural communities. Unfortunately, its holding capacity means that Lake Okeechobee has been managed as a reservoir for maximum water storage, rather than as a natural lake with natural seasonal fluctuation and a broader shoreline community. Changes that made it a better storage facility - such as the construction of dikes to control flooding from its rim - eliminated much of the lake's marshy shoreline and took away its ability to cleanse itself, contributing to serious water quality problems. Beginning in the 1970s, a number of government and water conservation programs - including SWIM - have sought to ease the problems caused by rigid water control measures. Lake Okeechobee's primary problems are caused by dt6jq@_ age from the agriculture that surrounds the lake. Rdnoff fr@b' agriculture contains high levels of phosphorus, a nutrient1haii may cause the lake's aquatic plants to grow too quickly. In addition, torpedo grass and melaleuca, both exotic species, have taken hold on the lake's south and west rims. These 261 exotic species are threatening to displace native plant com- munities, which may affect the balance in the lake's plant and animal communities. Since adoption of Lake Okeechobee's SWIM plan in the late 1980s, a great deal of progr ss has been made, including the e reduction of phosphorus from agriculture as required. A Department of Environmental Protection dairy rule, focusing on best management practices, took effect in 1988. Many dairies now channel their wastewater into specially con- structed lagoons filled with vegetation to remove phosphorus. Dairy operators confine operations with barns, fences and other structures that shelter and control the herds' movement, keeping livestock away from waterways. They also have reduced the amount of fertilizer used on pastures and reduced phosphorus in dairy feed. The Okeechobee SWIM program developed a program to regulate nutrients from all other agricultural uses in the basin. Phosphorus is carefully monitored at the point of discharge from a farmer's land. If the discharge does not meet an acceptable nutrient level, the district and DEP can advise better corrective measures. The trend for nutrients in surface w ater in the Okeechobee basin is improving. The ongoing programs and continued research will help surpass any further actions needed to maintain a decline in nutrients to the lake. SWIM has participated in efforts to control melaleuca, a species of exotic tree around the lake. Contol programs began in August 1993, with a three-year project to cut mature trees, spray the stumps with herbicide, and root out seedlings. The district hopes to increase cost-sharing on this project with the Department of Environmental Protection and the U.S. Army Corps of Engineers. I V A It fj- 4, 1171 South F@on*da Water Management Distn*ct.o Pr@onty Water Bod@*es and SWN The South Florida Water Management District's SWIM program has developed plans for four water bodies. Here's some of what the program is doing: Lake Okeechobee Identifying the effects of nutrient input Controlling exotic plants, especially melaleu6al and torpedo grass Investigating and reporting on state water quality standards throughout the lake, and at inflow structures and other tributaries Monitoring nutrient discharges from agriculture Florida Everglades z-= Monitoring water quality and water levels to protect native vegetative communities and controlling exotic plants Addressing mercury contamination Controlling stormwater runoff Improving fresh water flow Educating the public to increase support for protecting the Everglades Indian River Lagoon System Upgrading inadequate stormwater systems to improve water quality Reconnecting mosquito control impoundments to the Indian River Lagoon to restore biological A function and productivity of fisheries Restoring biological productivity to the St. Lucie Estuary by better managing freshwater inflows from contributing basins Assessing the effects of septic tanks on the lagoon system Biscayne Bay Restoring sheetflow to mangrove wetlands Eliminating sewage contamination from storm drains Improving stormwater treatment systems Protecting seagrasses and other submerged habitat Identifying priority stormwater discharge sources The Indian River Lagoon System: Protection through Local, State and Federal Collaboration A broad-ranging partnership in the Indian River Lagoon initiated by the SWIM programs of the St. Johns Water Management District and the South Florida Water Management District is working to protect this water body-- an estuary of state and national significance. The 156-mile-long Indian River Lagoon makes up 40 percent of Florida's east coast. It isn't a river, but an estuary where freshwater from the land and salt water from the ocean mix, creating an environment which serves as a nursery for a wide varietyof marine life. The Lagoon is a national treasure, home to more than 4,300 different species of plants and animals, including snok, redfish, tarpon, and nearly one-third of the manatees in the United States. The lagoon accounts for $300 million in commercial fishing revenues, a $400 million annual sportfishery, and provides half of the east Florida fish catch, and 90 percent of the Florida clam harvest. The fourth largest and most severely polluted lake in Florida Lake Apopka has accumalated muck as deep as 49 inches in some areas. Today, the lake is the focus of an intensive clean up program by the St. Johns River Water Management District. v Johns River Water Mana--yement DROstrict The St. Johns River Water Management District manages ground and surface water in a 19-county area of northeast and east central Florida. While the 3 1 0-mile long St. Johns River is the core of the district's major drainage basin, the area also encompasses five other rivers, 56 spr 'ings, and about 3,500 lakes. An estimated 3.3 million people live within the district's boundaries, an area of 12,400 square miles. Its SWIM program focuses on four water bodies - Lake Apopka, the Upper Oklawaha River, the lower St. Johns River, and the Indian River Lagoon System (in a cooperative effort with the South Florida Water Management District). One of the program's first efforts was ting septic tank problems along the lower St. Johns River. A septic tank inspection and enforcement program con- ducted by Clay County, and partially funded by SWIM, was so succ essful that Doctor's Lake - a large lake connected to the river - has been re- opened for swimming. 21 Lake Apopka: The Lon Road Back Until the mid- 1950s, Lake Apopka was a major destination for fishermen seeking trophy-sized game fish. Today, it is drawing scientists and environmentalists from around the world who are eager to see how Florida's fourth-largest lake is being restored through the efforts of the St. Johns River Water Management District's SWIM program. Located 15 miles northwest of Orlando,' Lake Apopka was long renowned as a largemouth bass fishing lake. Today, after years of pollution from agricultural activities, only one of the 21 fish camps that dotted the lake in 1956 remains open today, and recre- ational activity on the lake is all but non- existent. The reasons - the sportfish are gone and pollution has turned the lake a sickly green color. The centerpiece of Lake Apopka's SWIM t restoration will be a 5,000-acre, Marsh Flow-way System being developed from former agricultural lands. An overabundance of phosphorous and nitrogen, elements common in fertilizer and animal waste, is the principal cause of the lake's degraded condition. These nutrients feed blue-green algae, which give the lake its color. Functioning much like a swimming pool filter, the flow- way removes suspended sediments that are rich in phospho- rous and nitrogen from the lake as water passes through the grassy marsh in a shallow sheet flow. An 1,850-acre demonstration project constructed to test the feasibility of the larger system already has had a promising effect on water quality and clarity. Initial tests show the marsh is removing nearly half of the phosphorus and nitrogen from the water - exceeding designers' projections. Almost all suspended solids are removed. F 22 I Lake Apopka's SWIM is pilot-testing two other projects designed to supple- Marsh Flow-way ment the marsh flow-way's restoration of the lake. The first project's natural involves planting aquatic shoreline plants that help filter the filtering process is water and provide food and shelter for small game fish. having a visible Native plant species, including giant and softstemmed effect on water bullrush, fragrant water lily, southern naiad, spatterdock, quality and clarity. knotgrass, eel grass, and pondweed, are being planted at 25 Initial tests showed sites totalling 15 acres around the lake. the marsh is removing nearly half of the The second project involves removing the millions of gizzard phoshorus and shad (a so-called "rough" fish, not a game fish) from the lake nitrogen from the and finding a market for them. If successful, this method water - exceeding could provide an annual economic boon of about $1 million. designers' Harvesting the fish would also cut 10 metric tons of phospho- profjections. rus and 35 metric tons of nitrogen from the lake each year, lowering the amount of nutrients available for the problem algae. The key is finding a consumer market fot the fish, so district staff are working with the Department of Agriculture and Consumer Serivces to find a way to move shad from the bait bucket to the dinner table. 23 fill f4j 24 St. Johns Water Mana ement D@stkt: Nority Water odies "')J and SWN Goals The St. Johns River Water Management District's SWIM program has developed plans f for four water bodies. Here's some of what the program is doing: Lake Apopka Fully implementing a large-scale marsh restoration project Restoring vegetation near the shoreline Removing gizzard shad from the lake 2 Increasing public awareness to support restoration efforts Indian River Lagoon System Restoring wetland and seagrass habitats Removing nonpoint sources of pollution Managing freshwater flows to the lagoon Maintaining intergovernmental working relationships Lower St. Johns River Working with farmers and local officials to reduce agricultural and stormwater runoff Increasing public awareness and participation Monitoring water quality and analyzing trends Analyzing fish for toxic chemicals Mapping and analyzing contaminated sediments r1J 10 C11 0 Upper Oklawaha River Basin Helping local governments develop environmental protection ordinances and comprehensive plan review Coordinating activities with local governments through the Upper Oklawaha Basin Board Educating the public to increase awareness and support of protection efforts Conver 'ting approximately 16,000 acres back to native wetlands and marshes Controlling nutrient levels by: Reducing agricultural discharges 1@@ Adopting nutrient loading limits Controlling septic systems Developing marsh flow-ways to filter lake waters Adopting more natural schedules for fluctuation and discharge from the headwater chain of lakes 1225 From the seafood industry of Apalachicola Bay to sport fishing on Leon County's Lake Jackson, the -057 surface waters of Florida 's panhandle are an important source of many residents' livelihoods. Protecting these waters from the effects of develop of the Northwest F1 Management District. W I x 00 fI N, ,NA z Ag' orthwest Foi@da Water Management The Northwest Florida Water Management District manages water resources in an 11,200 square-mile area that covers 16 counties, from the St. Marks River Basin in Jefferson County to the Perdido River Basin in Escambia County. The district's SWIM program already has helped a variety of surface waters in the Panhandle, including Leon County's Lake Jackson, the Apalachicola River and Bay, Deer Point Lake near Panama City, and Pensacola Bay. 27 Lake Jackson: WeatheFing the StoFm(wateF) Just north of Tallahassee, SWIM funds are being used to protect one of the state's best known recreational fishing spots, Lake Jackson, from the effects of stormwater runoff. Lake Jackson, designated a State Aquatic Preserve and Outstanding Florida Water, is well known to fishermen for its largemouth bass and to local residents for boating and watersports. The lake's watershed provides habitat for many species of wildlife, including bald eagles, ospreys, ducks, great blue herons, foxes, alligators, and turtles. Water comes in to the lake from rainfall, stormwater runoff, and several creeks, including Megginnis Arm, Timberlane Creek and Ox Bottom Creek. But, because Lake Jackson is a closed basin," water leaves the basin in only two ways - through evaporation and slow seepage into the ground. This means that contaminants that find their way into Lake Jack- son stay there. The lake's bottom has a system of sinkholes that are connected to the Floridan Aquifer through a network of spaces in the underground rock. These sinkholes periodically open up, draining most of the water from the lake. The sinkholes have naturally plugged themselves after each natural Ut drawdown, allowing the lake to refill. Lake Jackson faces a serious threat from extensive urban and residential develop- ment in the southern portion of its water- F". shed. Shopping malls, an Interstate interchange, and a vast array of busi- V"I"' nesses and residen- tial areas all have sprung up around the lake during the past two decades. This rapid rate of development has led to increased stormwater runoff, resulting in contamination of the lake by fertilizers, sediments, pesticides, herbicides, heavy metals, oil, gasoline, and wastes from malfunctioning septic tanks. 286) 4r The Northwest Florida Water Management 71 District's SWIM program, in cooperation with federal, state, and local government agencies, has undertaken several projects aimed at improving water quality in C Lake Jackson. Most focus V directly on- treating stormwater, the single greatest threat to the lake's Al health. The District's Megginnis Arm Stormwater Treatment Facility uses a large detention pond, a sand filter, and manmade marshes to clean up the stormwater flowing into the lake. The SWIM program recently expanded this facility to increase its stormwater storage capacity. SWIM funds also were used to construct the new 1- 1 O/Megginnis Creek Pond Facility, completed in 1993, as a cooperative project of Leon County, the Department of Transportation, and the SWIM program. SWIM plans call for construction of three more regional stormwater treatment facilities over the next few years, and correction of a number of smaller problems in the drainage network. Other District activities include dredging approximately 112,000 cubic yards of degraded sediments from Megginnis Arm. This effort substantially increased water quality and clarity in this portion of Lake Jackson. An initial cooperative SWIM effort involving federal, state, and local agencies planted 12 acres of wetlands around the lake and provided several thousand elementary, middle, and high school students with an opportunity to learn about surface water treatment and protection of natural systems. Saving Lake Jackson - and the largemouth bass and other wildlife that call it home - is a cooperative effort of the SWIM am, the Lake Jackson Action Team (a citizen group), progr the City of Tallahassee, Leon County, and a number of state and federal agencies. Though the lake has been harmed by development, SWIM is helping it "weather the storm." 1,291 Av 4!F 10 @ do @ T'i :MAI 'g Nw Northwest F@ori'da Water Management Di*strict: Priority Water Bodies and SW@M Goa@s The Northwest Florida Water Management District's SWIM program has developed plans for four water bodies. Here's some of what the program is doing: Lake Jackson The SWIMprogram Preserving undisturbed portions of the lake Restoring polluted portions of the lake by has undertaken expanding the Megginnis Arm stormwater several projects treatment facility Constructing additional stormwater aimedat improving treatment facilities water quali,@y...,in Removing degraded sediments Apalachicola River and Bay System Lake., J@, t Ensuring Florida's interests are addressed in this river system, which descends to /6cL&@,dih,eq-,',,' the Gulf through Georgia, Alabama, and Florida Evaluating the effects of proposed alterations to freshwater flow /h, rp;@3 Rejuvenating old spoil sites and planning for the proper disposal of dredged material Maintaining buffer zones throughout the watershed to prevent degradation through intensive land use Deer Point Lake Controlling stormwater pollution N w Preserving critical areas such as etlands, floodplains, and springs Providing baseline data for future water quality, biological, and land-use/land cover assessments Pensacola Bay Controlling stormwater discharge -a Restoring wetlands, including seagrass nd saltmarsh planting, and refurbishing- oyster bars Accelerating shoreline acquisition The tranquil Suwannee River wends its way from the black waters of the Okefenokee Swamp through the vast pine and hardwood forests of north central Florida, 245 miles south to the Gulf of Mexico. Its relatively unspoiled beauty is protected by the Suwannee River Water Management District. ;A, 00 X J V A Ulwannee miver 'Water Mana,-7ement District The Suwannee River Water Management District covers 7,640 square miles in north central Florida, an area that includes all or part of 15 counties and a total population of about 250,000 people. The district's low population means that its surface waters are relatively unspoiled, and SWIM program funds are spent primarily on prevention programs, like water quality monitoring and public education. AF 5 PF The Unspoiled Suwannee River Most Floridians are familiar with the setting of their state song, at least by name. What many don't know is that the Suwannee is one of Florida's most unspoiled rivers. As one SWIM educational exercise for children puts it, "If Seminole Indians returned today and The SWIM program, walked along the Suwannee River, they would recognize Is the main source, many of the places where they used to hunt and fish"' That of water quality claim would not be true for many other Florida rivers. The and biological monitoring in the region. relative health of the areas surface waters means that the Suwannee, River Water Man- agement District's SWIM!' money is used primarily for prevention programs rather, than restoration. The source of the Suwannee is the Okefenokee Swamp. Two major tributaries; the Alapaha and Withlacoochee Rivers, drain south 'Georgia and join the Suwannee in Florida'. From its headwaters in the Okefenokee, the Suwannee descends 245 miles ,mostly through hardwood hammocks, pine flatwoods, and bottom- land hardwood swamps to the, Gulf of Mexico,at the small, fishing town of Suwannee. Above White Springs,the Suwannee begins to cut through the underlying clays and limestones, most notably at Big Shoals, Forida's largest rapids. As the river cuts deeper into the limestone of the Floridan Aquifer, numerous springs add clear,ground water to the tannin-stained river. The Suwannee's current good health does not mean it is immune to contamination. The very things that make the Suwannee so beautiful also make it vulnerable. Agricultural and forestry practices in the Suwannee basin can Cause erosion as well as pollution from fertilizers and pesticide, Animal wastes may also cause pollution. Many -of the streams that feed into the Suwannee are easily,damaged by, heavy use. The area's tranquility has attracted new residents in recent years, raising concerns about septic tanks and' fertilizer runoff. Over 40,000 platted lots now exist in and near the I 00-year floodplain of the Suwannee and its tributaries, but only about 25 percent are developed. If the remaining lots are dev.elbO@A there may be adverse water quality impacts. -,,44 ctivities along the Suwannee focus on monitoring water quality, developing a geographic information data base, educating the public about the river, and A, cting information about the plants and animals found it in the river system. The SWIM program also provides the s to begin establishing of minimum flows and levels for Yy mean the Suwannee. Looking ahead to insuring proper develop- ment, the program has developed specific rules for develop rnent within the 1 00-year floodplain. It has put together geographic information system (GIS) data on soils, land cover, to ography, floodplain boundaries, and land ownership P m�r, in the Suwannee River System floodplain and assisted local governments on their comprehensive plan elements that affect the river system. The District's SWIM program has worked with the Department of Health and Rehabilitative Services to assess whether septic tanks in the town and the 10-year floodplain of the Lower Suwannee and Santa Fe Rivers are operating as permitted. The program has also helped to coordinate the successful effort to bring a sewage treatment plant to Suwannee. Concerns about the ftiture health of the Suwannee River led, in 1988, to the formation of the Suwannee River Task Force. This group, made up of representatives from state agencies, industry, environmental groups, and local government, developed 44 recorrimenda- tions, and is now called the Suwannee River Coordination Committee. Besides admonitions against discharging wastewa- -year ter within the river's hundred floodplain and encouragement to acquire more riverfront land for conservation and public recreation, the Task Force com- mended that the SWIM program should receive continued financial support. Suwannee River Water Management Distri*ct-. ?rlority Water Bodies and SW@M Cjoa@s The Suwannee River Water Management District's SWIM program has developed plans for six water bodies. Here's some of what the program is doing: Suwannee River System Monitoring 24 stations in the only regional surface water quality and aquatic biological monitoring network in North Central Florida Establishing limits for the pollution load the river can tolerate without losing water quality Helping local governments protect the river basin through their comprehensive plans V., Determining minimum flows and levels needed to maintain water quality and eco-integrity Developing a GIS database for mapping purposes Santa Fe River System Monitoring surface water quality and aquatic biology at ten sites Determining minimum flows and levels needed to maintain water quality and eco-integrity Developing a GIS database for mapping purposes Coastal Rivers System E@@ Monitoring surface water quality and aquatic biology at eleven sites Developing a GIS database for mapping purposes Monitoring timber industry activities in the basin Alligator Lake REza Helping local governments acquire the land needed to create a stormwater control system for lake restoration Aucilla River System E@ Monitoring surface water quality and collecting biological data at two sites R@@R Developing a GIS database for mapping purposes J, Waccasassa River System T Monitoring surface water quality and aquatic biology at one site Developing a GIS database for mapping purposes 36 The Future of SWIM The 1987 Florida Legislature created the Surface Water Improvement and Manage- ment Program to fill a serious gap in the state's environmental protection programs. It was not enough, legislators knew, to buy land. It was not enough to stop sewage and industrial wastes from flowing into our surface waters. We needed to take the next step - to reduce the pollutants entering our waters in more subtle ways. To help farmers to limit pollution caused by fertilizers, herbicides, and pesticides. To control stormwater more effectively. To work with local governments to ensure developments that protect these resources. To educate people about how their actions - the use of fertilizers, pesticides, and other toxic compounds - affect our lakes, rivers, and estuaries. To restore already polluted waters. SWIM does all these things and more. Its emphasis on partnerships means that federal, state, and local programs are working together to protect and restore our surface waters. Its creative use of state funds means that many more dollars -from local govern- ments, federal programs, and even private sources are available to help reduce the pollution of our ters and to restore those water bodies that te' sta s wa need serious help. As Florida looks to the future of its environmental programs, SWIM has an integral role to play. Its continued funding is essential to the health of all Florida's surface waters. M NOAA COASTAL SERVICE CTR LIBRARY 3 6668 141'1718 6 5311 nformation on the Surface Water ent an anagement (SWIM) Program e SWIM program in efforts to clean up waters, contact: Office of Water Policy Florida Department of Environme 'ntal Protection 3900 Commonwealth Boulevard Mail Station #46 Tallahassee, Florida 32399-3000 (904) 488-0784 or your water management district: Northwest Florida Water Management District Route 1, Box 3100 Havana, Florida 32333-9700 (904) 539-5999 Suwannee River Water Management District Route 3, Box 64 Live Oak, Florida 32060 (904) 362-1001 St. Johns River Water Management District Post Office Box 1429 Palatka, Florida 32178-1429 (90-4) 329-4500 Southwest Florida Water Management District 2379 Broad Street Brooksville, Florida 34609-6899 (813) 985-7481 South Florida Water Management District Post Office Box 24680 West Palm Beach, Florida 33416-4680 (407) 686-8800 printed on recycled paper