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                                 TAMPA BAY NATIONAL ESTUARY PROGRAM


                                               RICHARD EcKENROD
                                                    DIRECTOR


                                                HoLLY GREENiNG
                                               PROGRAM SCIENTIST


                                              MARY KELLEY HOPPE
                                           PUBLIC AFFAIRS COORDINATOR


                                                  HEIDI LOVETT
                                            ENVIRONMENTAL PLANNER


                                                JESSICA LAUGHLIN
                                              OFFICE ADMINISTRATOR


                                               CHERYL A. HEATON
                                                   SECRETARY


                                                 JACKIE DEBEER
                                                PROJECT ASSISTANT



                                              EPA PROJECT OFFICER
                                                FELICIA ROBINSON











                                        THE PROGRAM OFFICE IS LOCATED AT:


                                            111 SEV ENTH AVENUE SOUTH
                                            ST. PETERSBURG, FL 33701
                                                  813-893-2765





                                                                                                        -DRAFT
                                                                                                         Cha
                                                                                                            rting the Course
                                                                                                           for Tampa Bay
              Comments, please!


              Thank you for reviewing Charting the Course. The Tampa Bay National Estuary
              Program would appreciate your written comments as we continue to evaluate bay
              restoration strategies for the Comprehensive Conservation & Management Plan for
              Tampa Bay. To reply, simply remove this page and FAX or mail to:

              Tampa Bay National Estuary Program
              111 Seventh Avenue South
              St. Petersburg, FL 33701

              FAX: (813) 893-2767
              Telephone: (813) 893-2765


              Your name:

              Address:

              (with zip)

              Phone:



              General Comments



























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          DRAFT
       Charting the Course           Specific Comments                                                                                   OWF
         for Tampa Bay                                                                                                                   0
                                     Do you concur with the goals for bay restoration presented in the Goals & Priorities
                                     Chapter? What goals would you change or add?











                                     Which specific actions do you consider the highest priority? (Indicate your top five
                                     choices using the assigned codes.)











                                     What specific changes or additions would you recommend to accomplish bay
                                     restoration goals?













                                     How can we improve the plan's format, readability and design?










                                     Thank you!











                                                                                                
                                                                                                 DRAFT
                                                                                             Charting the Course
                                                                                                for Tampa Bay


                                 Charting
                                the Course
                                   for
                                Tampa Bay

                                               Draft
                                          January 1996





               The Draft Action Plans and text in this document are providedfor review
                 by the Tampa Bay community. Charting the Course was produced by
                 the Tampa Bay National Estuary Program, and recommendations by
               reviewers will be consideredfor incorporation into the final plan, to be
                    published and available to citizens in 1996. We welcome your
                comments and inquiries and encourage your use of the section entitled
                 "Comments, Please" that appears at the beginning of the document.






                           Published by the Tampa Bay National Estuary Program
                    in cooperation with the U.S. Environmental Protection Agency, Region IV.
                             th

                            T






































                                            US Department of Commerce
                                            NOAA Coastal Services center Library
                                            2234 South Hobson Avenue
                                            Charleston, SC 29405-2413
 










       Charting the Course
          for Tampa Bay







                                      PREFACE

                                      Charting the Course culminates four years of technical investigation and community
                                      outreach by the Tampa Bay National Estuary Program, which was established in 1991
                                      to assist the region in developing a comprehensive plan to restore Tampa Bay. The
                                      Program is a partnership of Hillsborough, Pinellas and Manatee counties; the cities of
                                      Tampa, St. Petersburg and Clearwater; the Southwest Florida Water Management
                                      District; Florida Department of Environmental Protection; and the U.S. Environmental
                                      Protection Agency.                                                                                    0
                                                                                                                                            0
                                      Draft Action Plans that have been developed with assistance from bay experts, advo-                   0
                                      cates and citizens are presented for community review. The Program has scheduled a                    0
                                      series of town meetings and community forums to present the plan and solicit addi-                    0
                                      tional public input. Comments and revisions will be incorporated in the final                         0
                                      Comprehensive Conservation & Management Plan published in 1996.                                       0
                                                                                                                                            0
                                      This strategic blueprint reflects broad-based input from individuals, groups and com-                 0
                                      munities that share a common interest in a healthy bay as a cornerstone of a healthy                  0
                                      and prosperous region. Our thanks to these participants for their substantial insights                0
                                      and contributions.                                                                                    0
                                      The Tampa Bay National Estuary Program invites your comments and participation as
                                      we continue to assist the region in charting the course for the future of Tampa Bay.


















                                                                                                                                            AM






                                                                                                                                                     DRAFT
                                                                                                                                                 Charting the Course
                                                                                                                                                    for Tampa Bay


                     HOW TO USE Chardng The Course

                     Charting the Course has been designed for easy access and review. A detailed table
                     of contents and index of action plans and associated actions for bay improvement are
                     located at the beginning of the document on pages V - VIE. Tabs direct you to major
                     sections. Other important points of information are provided below to further assist
                     you in your review and understanding of the draft plan for Tampa Bay.


                     GOALS & PRIORITEES
                         Goals and priorities for Tampa Bay are summarized in a chapter immediately
                  T-@4   preceding bay action plans. These specific and attainable accomplishments,
                         summarized in text and presented in a table, are the foundation for strategies and
                         themes advanced in Charting the Course. They relay overall priorities for bay
                         restoration and protection, so that you can better evaluate the benefits of measures
                         to protect this vital natural and economic resource.



                     ACTION PLANS FOR TAMTA BAY
                         Charting the Course contains five action plans for the bay's long-term restoration
                 11@     and protection, addressing: Water & Sediment Quality, Bay Habitats, Fish &
                         Wildlife, Dredging & Dredged Material Management, and Spill Prevention &
                         Response. Tabs provide quick access to these action plans.
                  @
                         Action Plans for Tampa Bay present a range of strategies that allow local commu-
                     X   nities to maximize return on their investment in bay recovery and protection.
                         Many actions also achieve multiple environmental objectives, such as pollution
                         prevention and water conservation. Each action plan begins with an introduction
                         that summarizes the topic, presents management objectives, and includes a list of
                         actions to address those objectives.

                         As this draft goes to press, some technical investigations and cost-benefit analyses
                         continue. This work will be completed in 1996 in preparation for the final version
                         of the Comprehensive Conservation & Management Plan for Tampa Bay.
                         Ongoing studies are noted in applicable action plans.

                         References in action plans to local governments under the headline "Responsible
                         parties" refer to Hillsborough, Pinellas and Manatee counties and the cities of
                         Tampa, St. Petersburg and Clearwater, unless otherwise noted, although all local
                         communities in the region are urged to participate.



                     IMPLEMENTING THE PLAN
                         Actions in Charting the Course represent important measures to aid in the bay's
                         recovery and long-term protection-to focus resources to accomplish the most
                         benefit for the bay. However, not all water quality actions may be appropriate for
                         implementation by all participating communities. For instance, two different






           DRAFT
       Charting the Course                  counties may implement different strategies to achieve the same water quality
          for Tampa Bay                     goal. One county may expand reuse of treated wastewater discharged to the bay
                                            as a means to reduce excess nitrogen loadings that pollute the bay, while another
                                            may implement best management practices to reduce pollution associated with
                                            stormwater runoff to attain the same water quality goal.
                                            As long as water quality goals and a net environmental benefit are achieved, this
                                            flexibility is encouraged. This allows communities that share a common interest
                                            in the bay's health maximum flexibility to tailor a plan that best fits their available
                                            resources. Charting the Course presents a comprehensive slate of actions to assist
                                            community partners in selecting strong and proactive measures to achieve
                                            progress toward goals for the bay's recovery.
                                            While allowing flexibility, all participating communities and agencies are called
                                            upon to adopt the goals for Tampa Bay to assure the bay's long-term health and to
                                            provide the community with meaningful benchmarks in measuring progress in the
                                            bay's recovery. The Tampa Bay National Estuary Program advocates maximizing
                                            the use of existing resources to accomplish goals wherever possible.
                                            The Tampa Bay National Estuary Program is a partnership of the U.S.
                                            Environmental Protection Agency; Florida Department of Environmental
                                            Protection; Southwest Florida Water Management District; The Environmental
                                            Protection Commission of Hillsborough County; Hillsborough, Pinellas and
                                            Manatee counties; and the cities of Tampa, St. Petersburg and Clearwater. These
                                            partners will sign an agreement to implement the final Comprehensive
                                            Conservation & Management Plan for Tampa Bay in late 1996. The Tampa Bay
                                            NEP will oversee implementation of the plan.


                                       WHAT YOU CAN DO
                                            Action Plans conclude with practical tips on What You Can Do at home, at work,
                                            on the water, and in your community, to protect and repair Tampa Bay. We also
                                            encourage you to use the response card located at the front of Charting the
                                            Course to provide the Tampa Bay National Estuary Program with your comments
                                            and questions.


                                        GETTING A HEAD START
                                            Since the Tampa Bay National Estuary Program was established in 1991, the pro-
                                            gram has assisted the community in securing more than $1 million in federal and
                                            state grants for restoration of bay habitats and resources. Profiles of these head
                                            start initiatives, which range from wetland restorations to support of bay scallop
                                            recovery, are presented in the chapter on Early Action.
                                            The Tampa Bay NEP also has awarded more than $50,000 in small grants to more
                                            than a dozen communities, schools, and organizations for various bay improve-
                                            ment projects. These community partnerships are profiled in the Public
                                            Involvement chapter.






                                                                                                                        DRA"'
                                                                                                                    Charting the Course
                                                                                                                       for Tampa Bay

                TABLE oF CoNTENTs

                Introduction    .......................................................................................................1
                         About the Tampa Bay National Estuary Program    ......................................................5
                         Members of the Tampa Bay Management Conference       ..............................................6
                State of the Bay    .............................................................................................. 11
                         State of Bay Management  ........................................................................................ 43
                Goals and Priorities for Tampa Bay         .............................................................. 49
                Draft Action Plans for Bay Improvement
                         Introduction  .............................................................................................................. 57

                         Water & Sediment Quality Action Plan    .................................................................. 59
                                  Stormwater Runoff   .................................................................................... 62
                                  Atmospheric Deposition  ............................................................................ 96
                                  Wastewater  .............................................................................................. 104
                                  Toxic Contamination   .............................................................................. 119
                                  Public Health  .......................................................................................... 135
                                          What you can do   ...................................................................... 143

                         Bay Habitats Action Plan ...................................................................................... 145
                                          What you can do   ...................................................................... 184

                         Fish & Wildlife Action Plan  .................................................................................. 195
                                          What you can do   ...................................................................... 203

                         Dredging & Dredged Material Management Action Plan      .................................... 205
                                          What you can do   ...................................................................... 214

                         Spill Prevention & Response Action Plan   ............................................................ 215
                                          What you can do   ...................................................................... 231
                Implementation & Financing          ...................................................................... 233
                Monitoring Bay Improvement          ...................................................................... 241

                Public Involvement       ...................................................................................... 247

                Early Action for Bay Improvement          .............................................................. 255
                References, State of the Bay      ........................................................................ 259
                Glossary    ........................................................................................................ 263
                List of Acronyms      .......................................................................................... 265




                                               See Index of Action Plans, page VI.

                                                                                                                               V






               DRAFT
          Charting the Course
              for Tampa Bay                           INDEx OF ACTION PLANS AND
                                                      ACTIONS FOR TAMiPA BAY



                                                      WATER & SEDIMENT QUALITY
                                                      Actions to reduce stormwater runoff and associated pollution:

                                                           SW-1          Continue implementation of the Florida Yards & Neighborhoods
                                                                         Program     . .................................................................................................. 64
                                                           SW-2          Assist businesses in implementing best management practices to
                                                                         reduce storinwater pollution, and develop model landscaping
                                                                         guidelines for commercial application                   ..................................................... 69
                                                           SW-3          Encourage local governments to adopt integrated pest
                                                                         management policies and implement environmentally
                                                                         beneficial landscape management practices                      . .......................................... 72
                                                           SW-4          Reduce impervious paved surfaces, focusing on parking space
                                                                         and design requirements for large commercial developments                               . .............. 75
                                                           SW-5          Require older properties being redeveloped to meet current
                                                                         stormwater treatment standards for that portion of the site
                                                                         being redeveloped, or provide equivalent value                      . .................................... 78
                                                           SW-6          Promote compact urban development and redevelopment                                . .................... 81
                                                           SW-7          Improve compliance with and enforcement of stormwater permits                                  . ...... 84
                                                           SW-8          Enforce and require the timely completion of the consent orders
                                                                         for the cleanup of fertilizer facilities in the East Bay sector                      . .................. 87
                                                           SW-9          Encourage "fertigation" and low-flow irrigation on farms                           . .................... 89
                                                           SW-10         Improve compliance with agricultural ground and surface
                                                                         water management plans              . ........................................................................ 92
                                                           SW-11         Determine minimum widths for vegetated buffers along tributaries                                 ....... 94

                                                      Actions to reduce the effects of air pollution to the bay:

                                                           AD-1          Identify sources and monitor effects of atmospheric deposition,
                                                                         and develop an action plan to address this pollution                         .............................. 98
                                                           AD-2          Promote public and business energy conservation                         . .............................. 101

                                                      Actions to reduce the impact of wastewater discharged to the bay:

                                                           WW-1          Expand the use of reclaimed water where projects benefit the bay                                ....... 106
                                                           WW-2          Establish limits on the amount of nitrogen in industrial wastewater.
                                                           WW-3          Extend central sewer service to priority areas around the bay now
                                                                         served by septic tanks          . .......................................................................... 113
                                                           WW-4          Require standardized monitoring of wastewater discharges from
                                                                         industrial and municipal facilities              . ........................................................ 115
                                                           WW-5          Revise HRS rules to incorporate environmental performance
                                                                         standards for septic tanks           . ...................................................................... 117

                                                      Actions to decrease toxic contamination in the bay:

                                                           TX-1          Direct stormwater improvements and other resources to hot spots
                                                                         of contamination         . .................................................................................. 121

                     V1






                                                                                                                                                                    DRAFT
                           TX-2         Improve business and homeowner opportunities for hazardous                                                             Charting the Course
                                        waste disposal       . ...................................................................................... 124         for Tampa Bay
                           TX-3         Reduce toxic contaminants from ports and marinas                         . ............................ 127
                           TX-4         Promote integrated pest management on farms to reduce
                                        pesticides in runoff          ................................................................................ 130
                           TX-5         Establish maximum concentration limits in discharge permits
                                        for toxic contaminants of concern to Tampa Bay                        . ................................ 133

                      Actions to reduce pathogens:
                           PH-1         Establish water quality standards for saltwater beaches                         ........................ 137
                           PH-2         Assess opportunities to reclassify shellfish beds closed to harvesting. 139
                           PH-3         Install additional sewage pump-out facilities for recreational
                                        boaters and live-aboard vessels              . ............................................................ 141


                      BAY HABITATS
                      Actions to increase and preserve the number and diversity of healthy bay habitats:
                           BH-1         Implement the Tampa Bay master plan for coastal habitat
                                        restoration and protection           . .................................................................... 147
                           BH-2         Establish and implement mitigation criteria for Tampa Bay, and
                                        direct mitigation to high priority restoration projects                     . ........................ 151
                           BH-3         Reduce propeller scarring of seagrass                  . .................................................. 155
                           B114         Evaluate whether to establish a special management area for the
                                        protection of coastal habitats            . ................................................................ 158
                           BH-5         Restrict impacts to hard bottom communities                      . ...................................... 161
                           BH-6         Restrict off-road vehicle access along causeways and coastal areas                               ..... 163
                           BH-7         Require mandatory education of boaters                    . .............................................. 166
                           BH-8         Encourage waterfront homeowners to soften shorelines and limit
W
                                        runoff from yards         . .................................................................................. 169
                           BH-9         Improve compliance with and enforcement of wetland permits                                . .......... 172
                           BH-10        Expand habitat mapping programs                    ......................................................... 175

                      Actions to establish and preserve adequate freshwater inflows to Tampa Bay
                      and its tributaries:

                           FI-1         Establish and maintain minimum freshwater flows downstream
                                        of darns     ................................................................................................... 180



                      FISH & WILDLIEFE
                      Actions to protect bay fish and wildlife:

                           FW-I         Improve on-water enforcement of environmental regulations                               . ............ 187
                           FW-2         Establish and enforce manatee protection zones                       . .................................. 190
                           FW-3         Support restoration of the bay scallop                 . .................................................. 193
                           FW-4         Improve public awareness of hazards to bay wildlife                         . .......................... 196
                           FW-5         Assess the need to investigate the cumulative effects of power plant
                                        entrainment on fisheries            ......................................................................... 198
                           FW-6         Continue and expand the Critical Fisheries Monitoring Program                                 ......... 201




                                                                                                                                                                             V11






                 DRAFT
            Charting the Course                              DREDGING & DREDGED MATERIAL MANAGEMENT
                for Tampa Bay                                Actions to reduce the impact of dredging and improve material disposal options:
                                                                  DR-1            Develop a long-term, coordinated plan for port dredging and dredged
                                                                                  material disposal          . .................................................................................. 207
                                                                  DR-2            Develop dredge disposal plans for residential canals                               . .......................... 212


                                                             SPILL PREVENTION & RESPONSE
                                                             Actions to improve spill prevention and response:
                                                                  SP-1            Establish an integrated ship tracking system for the bay and
                                                                                  permanently fund the PORTS system                          . .................................................. 217
                                                                  SP-2            Install permanent boom anchors near environmentally
                                                                                  sensitive areas        . ...................................................................................... 220
                                                                  SP-3            Evaluate state piloting requirements and improve state authority
                                                                                  over federal vessels carrying hazardous materials                              . .............................. 222
                                                                  SP-4            Identify the most appropriate entity to inspect coastal bulk oil
                                                                                  storage facilities in the Tampa Bay watershed                            . .................................... 225
                                                                  SP-5            Improve fueling and bilge-pumping practices among pleasure
                                                                                  boaters    . .................................................................................................. 228









































                     Vill






                                                                                                                     DRAFT
                                                                                                                 Charting the Course
               Introduction                                                                                         for Tampa Bay




               PORTRAIT
               T
                    ampa Bay is the lifeblood of this fast-growing region of more than 1.7 million
                   people. Reflected in its waters are the images of communities united by a bay
               they share and for which they share responsibility.

               Local communities depend on the bay for a quality of life that brings both economic
               and natural dividends. Tampa Bay contributes more than $5 billion annually from
               trade, tourism, development and fishing to the region that bears its name. Its major
               seaports and numerous smaller anchorages serve ships from around the world.

               Bustling trade through the Port of Tampa, among the busiest in the nation, outpaces
               cargo activity at the state's other seaports. Small pleasure craft and commercial ships
               the size of modem skyscrapers vie for position on this increasingly popular bay.
Wr

               Tampa Bay beckons residents and visitors with its magnificent array of waterscapes,
               wildlife and recreational opportunities. Nearly 100,000 boats are registered to anglers
               and boating enthusiasts within the three counties bordering the bay. Numerous local
               and state parks showcase the bay's beauty and bounty. The bay also boasts sizeable
               resident populations of bottle-nose dolphins and Florida manatees.

               Mangrove islands in Tampa Bay are among the most important bird nesting habitats in
               the United States. These vital natural outposts are home to as many as 40,000 breed-
               ing pairs of 25 species each year, including pelicans, egrets, herons, cormorants, tems,
               ibis and spoonbills. Many other birds such as the American white pelican and several
               species of sandpipers spend the winter here, logging thousands of miles on an annual
               pilgrimage to Tampa Bay.


               TROUBLED WATERS
               The bay's natural habitats are the nerve center of this dynamic system, but they have
               sustained heavy damage. Most impacts occurred in a span of about three decades
               beginning in the 1950s with unchecked development along the bay's shoreline.
               Studies by the Tampa Bay National Estuary Program reveal the extent of habitat
               declines driven by massive dredge-and-fill projects to develop navigational channels,
               waterfront communities and industrial sites.


               Dredging and pollution destroyed more than half of the bay's underwater meadows of
               seagrass and natural shoreline. Small creeks and streams were straightened to speed
               drainage of wetlands and expand access to the bay, altering natural freshwater flows
               and allowing fast-growing exotic plants to overtake native wildlife habitats.






           DRAFT
       Charting the Course             As the bayscape was redrawn and as water quality deteriorated, fisheries and wildlife
          for Tampa Bay                declined. A once-thriving bay scallop fishery was virtually eliminated by the mid-
                                       1960s as partially treated sewage poured into the bay. Harvests of clams and oysters
                                       also plummeted as bacterial contamination forced the closure of productive shellfish-
                                       ing grounds. Seagrass and wetland destruction hastened the decline of many other
                                       popular recreational and commercial species, including seatrout, red drum and snook.

                                       Likewise, populations of nesting birds in Tampa Bay have declined in the last half-
                                       century. Particularly vulnerable are species such as the white ibis, which nests in
                                       coastal wetlands but requires inland freshwater food sources for survival. White ibis
                                       populations have dropped by as much as 75 percent in Tampa Bay. While scientists
                                       can't point to a specific cause, a similar pattern of decline triggered by destruction of
                                       freshwater wetlands has been documented in the Florida Everglades.


                                       TURNING POINT

                                       Since the 1970s, when the Clean Water Act was established, local communities and
                                       industries have made significant strides in improving water quality to restore the dam-
                                       aged estuary. Nitrogen was the chief target. Excess amounts of this naturally occur-
                                       ring and otherwise beneficial nutrient had fueled algal growth in the bay, clouding the
                                       water and cutting off light to underwater seagrasses.

                                       The year 1979 marked a turning point in the bay's recovery when the City of Tampa
                                       modernized the Howard F. Curren Plant at Hooker's Point, the region's largest waste-
                                       water treatment facility. The $100-million project is credited with sharply reducing
                                       nitrogen from treated wastewater piped into the bay.

                                       Across the bay, the City of St, Petersburg was pioneering new technology to reuse the
                                       nutrient-rich wastewater it pumped to the bay. Started in 1978, this reclaimed water
                                       project was one of the most ambitious in the nation and now provides treated waste-
                                       water for irrigation to more than 7,000 households and dozens of parks, golf courses
                                       and businesses. The City of Clearwater also has contributed to the bay's recovery,
                                       investing more than $50 million in the mid-1980s to upgrade wastewater treatment
                                       plants to advanced treatment standards.

                                       As discharges of pollutants were reduced, nature responded. Monitoring results show
                                       that water quality has improved since 1984. Improved water clarity is believed to
                                       have triggered a return of seagrasses to areas that had been barren for decades.
                                       Between 1982 and 1992, more than 4,000 acres of seagrasses recolonized the bay.

                                       Aggressive fisheries management, coupled with improvements in water quality and
                                       habitats, have helped to reverse the decline of snook and red drum. Monitoring data
                                       now indicates that juvenile stocks of these prized gamefish are on the upswing.

                                       This impressive turnaround owes much to environmental regulation and advances in
                                       sewage treatment that have helped to cleanse the bay of damaging pollutants.
                                       Community support and involvement also have been instrumental in charting the
                                       course for the bay's recovery. Building on St. Petersburg's initiative, many local com-
                                       munities are discovering the dual benefits of reusing treated wastewater to reduce
                                       demand on dwindling water supplies, while helping to rid the bay of excess nutrients.


               2






                                                                                                                     DRAFT
               Despite this success, other forms of pollution continue to threaten the bay, with poten-
                                                                                                                 Charting the Course
               tial impacts far greater than bay managers previously thought. New studies have
               identified air pollution as a significant and persistent source of bay pollution. Recent            for Tampa Bay
               studies also have revealed the presence of toxic contaminants in bay sediments in
               some urban, industrial and agricultural areas that are in the middle ranges of contami-
               nation nationwide.



               DEFINING TIRE CHALLENGE
               Population in the tri-county region is expected to increase about 20 percent to 2.37
               million by the year 2010. The challenge to bay stewards will be to maintain water
               quality gains and continue the bay's recovery while accommodating future growth.
               The success of local communities over the last 15 years in enhancing water quality
               while experiencing rapid growth is a promising indication that this can be achieved.

dL             The signs of environmental distress that prompted the bay cleanup were more visible
Z              20 years ago. Additionally, limited resources and competing social needs now require
               that bay restoration be accomplished with a smaller share of funding. Environmental
               managers in government and industry will be challenged to define objectives more
               clearly and implement the most cost-effective strategies to assist bay recovery.

Wr             These efforts should be based upon a clear vision, bolstered by broad community sup-
               port, of what Tampa Bay should look like, what uses it should support, and how it
               should be managed. This vision is now taking shape and will be refined over the
               coming months as Action Plans for bay improvement are presented to the community.

               With a well-defined, fiscally sound and united effort, Tampa Bay in the year 2010 can
               be a place where:

                          surrounding communities will be recycling wastewater, reducing both the
                          demand on limited drinking water supplies and the amount of excess nitro-
                          gen and other pollutants discharged to the bay;

                          neighborhoods and businesses will have adopted environmentally friendly
                          landscaping practices, using native and drought-tolerant plants that require
                          less water, fertilizer and pesticides;

                          seagrasses will have responded to increased water clarity and recolonized
                          thousands of acres of bay bottom, providing vital fish habitat;

                          hundreds of additional acres of productive coastal marshes and mangroves
                          will be in public ownership or otherwise safeguarded, extending permanent
                          protection to these wetland habitats crucial to wildlife;

                          toxic contamination of sediments at "hot spots" around the bay will be
                          reduced to levels harmless to fish and shellfish through pollution preven-
                          tion and treatment;


                          farmers will be utilizing low-volume irrigation methods that conserve water
                          and reduce nutrient and pesticide runoff;


,of                                                                                                                        3






           DRAFT
       Charting the Course                     - local governments and the Southwest Florida Water Management District
          for Tampa Bay                          will have established minimum flows for rivers impounded by dams to
                                                 ensure an adequate amount of freshwater to the bay;

                                               ï¿½ water quality and habitat improvements, combined with wise fisheries man-
                                                 agement, will have brought about abundant, sustainable catches of trout,
                                                 red drum, snook and other popular game fish;

                                               ï¿½ harbor pilots will guide oil tankers along the bay's shipping channels using
                                                 a state-of-the-art vessel tracking system that will greatly reduce the risk of
                                                 ship collisions and catastrophic spills;

                                               ï¿½ bay area port authorities and the U.S. Army Corps of Engineers will have
                                                 expanded beneficial uses of dredged material and developed long-term dis-
                                                 posal options through a coordinated management plan;

                                               ï¿½ goals and actions in Charting the Course will have been incorporated into
                                                 permits, providing a clear agenda for bay improvement.

                                      This vision of the bay and its management is attainable. Indeed, some goals have
                                      been nearly met already; others are achievable within the next five years thanks to
                                      measures being taken today by government, citizens and industry. Meeting the
                                      remainder of the challenges defined in this plan, and maintaining the hard-won gains
                                      that already have occurred, will require the community's long-term commitment.


                                      CHARTING THE COURSE
                                      Today's challenges call for a new direction in bay management, one that involves all
                                      stakeholders in developing achievable goals for bay improvement and secures com-
                                      mitinents for action. At the heart of this effort is the overall goal of effective and
                                      broad-based watershed management, an evolving process that considers the bay and
                                      its myriad tributaries as one large, inseparable and interdependent ecosystem.

                                      Watershed management respects and takes into account the connections between ani-
                                      mals and their habitats, and between humans and these natural systems. In doing so, it
                                      prescribes a "bottoms-up" regulatory approach that emphasizes flexibility and measur-
                                      able results instead of "top-down" edicts that often fail to take into account the vary-
                                      ing needs and conditions of individual ecosystems within a larger estuary.

                                      Strategies to repair and protect the Tampa Bay ecosystem, in the most cost-effective
                                      manner and adhering to the principles of watershed management, are the foundation
                                      for Charting the Course.


                                      Charting the Course presents preliminary action plans to support and advance bay
                                      recovery. Action Plans for bay improvement identify necessary steps, associated
                                      costs, implementation schedules, and recommendations on ways to use existing
                                      resources most effectively. Action Plans also recognize major initiatives and pro-
                                      grams already underway. Proposed strategies build on these foundations to accomplish
                                      bay recovery.

                                      Charting the Course begins by exploring the state of the bay and the management
               4





                                                                                                               ARAFT
               structure charged with bay protection. Bay restoration has begun, but much work                  Charting the Course
               remains. Recovery will require time, innovative public-private partnerships, and clear             for Tampa Bay
               strategies that focus on pollution prevention, conservation of natural resources and
               incentive-based alternatives to regulation. Charting the Course presents a vision for
               Tampa Bay and a chance for all citizens to participate in its restoration.

               Volume H of Charting the Course, which will be published in 1996, will explore the
               technical investigations and modeling tools used by the Tampa Bay National Estuary
               Program to characterize bay conditions and support bay improvement strategies.

               About the Tampa Bay
               National Estuary Program
               The Tampa Bay National Estuary Program was established in 1991 to assist the com-
               munity in developing a comprehensive plan to restore and protect Tampa Bay. The
               Program is part of a national network of 29 estuary pirograms established under the
               Clean Water Act and administered nationally by the U.S. Environmental Protection
               Agency. The Program receives local administrative support from the Tampa Bay
               Regional Planning Council.

               The landmark agreement establishing the Tampa Bay Program brought together
               Hillsborough, Pinellas and Manatee counties; the cities of Tampa, St. Petersburg and
               Clearwater; the Southwest Florida Water Management District; the Environmental
               Protection Commission of Hillsborough County; Florida Department of
               Environmental Protection; and the U.S. Environmental Protection Agency in a part-
               nership committed to action. These partners will sign an implementing agreement in
               1996, pledging their commitment to bay action plans presented in the final
               Comprehensive Conservation and Management Plan for Tampa Bay.

               The missions of the National Estuary Program are: to set reasonable, achievable goals
               for the estuary's recovery; to coordinate the many new and ongoing bay management
               initiatives, from small-scale efforts that focus on individual segments of the bay to
               broad-based programs that address the estuary as a whole; and to determine how best
               to implement these programs in the future to avoid costly and ineffective duplication
               of efforts.


               Additional roles of the Tampa Bay Program include evaluating potential options and
               costs of bay management strategies on a site-specific basis, and developing scientific
               and economic models to help bay managers attain the goals of the management plan.

               Since 199 1, the Tampa Bay National Estuary Program has conducted extensive techni-
               cal investigations to define bay conditions, impacts and environmental needs.
               Preliminary findings and early action initiatives were reported to the community in
               Status & Trends, published by the Tampa Bay National Estuary Program in 1993.
               Additionally, the Program has developed a number of educational outreach programs
               and provided grants opportunities to involve citizens and communities in efforts to
               improve their bay.






               DRAFT
          Charting the Course                       Members of the Tampa Bay
              for Tampa Bay
                                                    Management Conference

                                                    The work of the Tampa Bay National Estuary Program is guided by a Tampa Bay
                                                    Management Conference, which was convened at the program's outset to provide
                                                    direction and input into bay problems and solutions from diverse community sectors.
                                                    The Conference is comprised of key policy leaders representing local, state and feder-
                                                    al govemment; members of the region's scientific and technical communities; busi-
                                                    ness, agricultural and special interest groups; and citizens from throughout the region.
                                                    Conference participants are recognized here for their considerable contributions in
                                                    charting the course for Tampa Bay.


                                                    POLICY COMMITTEE                          Peter Clark                               Charles Towsley
                                                                                              Co-Chairman, Community                    Tampa Port Authority
                                                    Allan Antley                              Advisory Committee
                                                    U.S. EPA Region IV                                                                  COMMUNITY ADVISORY
                                                    Co-Chairman                               Karen Collins                             COMMITTEE
                                                    Pamela McVety                             Manatee County                            Dena Leavengood
                                                    Florida Department of                     Mike Connors                              The Florida Aquarium
                                                    Environmental Protection                  City of St. Petersburg                    Co-Chairperson
                                                    Co-Chairman                               Julia Greene                              Peter Clark
                                                       Representative                         Tampa Bay Regional Planning               Tampa BayWatch
                                                       Roxane Dow                             Council                                   Co-Chairperson
                                                    Mayor Dick Greco                          Robert Gordon                             Judith Buhrman
            The Tampa Bay National                  City of Tampa                             Hillsborough County                       Florida Native Plant Society
            Estuary Program also                       Representative                         George Henderson                          Sandra Colbert
            expresses its gratitude to the
            following former Policy                    Mike Salmon                            Florida Marine Research Institute         Egmont Key Alliance
            Committee members for                                                             Florida Department of
            their guidance and dedica-              Mayor Rita Garvey                         Environmental Protection                  Elsie Crimaldi
            tion to bay improvement:                City of Clearwater                        Roger Johansson                           Representing City of Gulfport
            Phyllis Busansky                        Mayor David Fischer                       Co-Chairman, Technical                    Desiree Davis
            Ray Cunningham                          City of St. Petersburg                    Advisory Committee                        Faller, Davis & Associates
            Sandra Freedman                         Commissioner Ed Turanchik                 Dena Leavengood                           Eleanor Gilder
            George Greer                            Hillsborough County                       Co-Chairperson, Community                 Hillsborough Community
            Jan Platt                                                                         Advisory Committee                        College
            Greer Tidwell                           Commissioner Patricia Glass
                                                    Manatee County                            Ralph Metcalf                             Bill Goodall
                                                    Commissioner Bruce Tyndall                City of Tampa                             Allen's Creek Homeowners
                                                    Pinellas County                           Thomas H. Miller                          Association
                                                    Roy Harrell, Jr.                          City of Clearwater                        Ken Hartley
                                                    Governing Board Vice-Chairman             David Moore                               Bait Shrimp Fisherman
                                                    Southwest Florida Water                   Southwest Florida Water                   Bruce Hasbrouck
                                                    Management District                       Management District                       HDR Engineering

                                                    MANAGEMENT                                Annon Bozeman                             Julius Houghtaling
                                                    COMMITTEE                                 U.S. Army Corps of Engineers              Dooley Groves
                                                    Allan Antley                              Ron Schmied                               Maijorie Karvonen
                                                    U.S. EPA Region IV                        Co-Chairman, Technical                    Harbot Isle Homeowners
                                                    Co-Chairman                               Advisory Committee                        Association                                            Ah
                                                    Dr. Richard Garrity                       Roger Stewart                             Jane Keller
                                                    Florida Department of                     Environmental Protection                  Representing City of Safety
                                                                                                                                                                                                lob
                                                    Environmental Protection                  Commission of Hillsborough                Harbor
                                                    Co-Chairman                               County                                    Marilyn Kershner
                                                                                              Jake Stowers                              Audubon Society
                                                    Rob Brown                                 Pinellas County
                                                    Interim Co-Chairman                                                                 Tom Levin
                                                    Technical Advisory Committee                                                        Ekistics Design






                                                                                                                                                     DRAFT
                   Mike McKinney                          William Baker                          Ralph Cantral                                   Charting the Course
                   Hillsborough County                    City of Clearwater - Public            Department of Community
                   Cooperative Extension Service          Works Department                       Affairs - Florida Coastal                          for Tampa Bay
                                                                                                 Management Program
                   Rick Meyers                            Ron Basso
                   Manatee County Public Schools          Southwest Florida Water                Tom Cardinale
                   Jan Regulski                           Management District                    Environmental Protection
                                                                                                 Commission of Hillsborough
                   Representing City of Clearwater        Gene Bauer                             County
                   Penny Rosi                             Bauer Environmental, Inc.              Dave Carpenter
                   Tampa Bay Engineering                  Gordon Beardslee                       Wetland Farms, Inc.
                                                          Pinellas County - Planning
                   Captain John Timmel                    Department                             Richard Chinn
                   Tampa Bay Pilots Association           Jim Beever                             Conservation Consultants, Inc.
                   Winnie Wilson                          Florida Game & Freshwater Fish         Lisa A. Chlebowski
                   Gibbs High School                      Commission                             U.S. Fish & Wildlife Service
                   Alternate                              Susan Bell                             Peter Clark
                   Lita Weingart - Lakewood High          University of South Florida -          Tampa BayWatch
                   School                                 Biology Department                     Walter J. Conley
                   TECHNICAL ADVISORY                     Sheila Benz                            St. Petersburg Junior College
                   CONEUITTEE                             Tampa Bay Regional Planning
                                                          Council                                Suzanne Cooper
                   Ron Schmied                                                                   Agency on Bay Management
                   National Marine Fisheries              Peter Betzer                           Tampa Bay Regional Planning
                   Service                                University of South Florida -          Council
                   Co-Chairman                            Marine Science Department              Roger Copp
                   Roger Johansson                        Norm Blake                             Dames & Moore
                   City of Tampa - Sanitary               University of South Florida -
                   Services Department                    Marine Science Department              Charles Courtney
                   Co-Chairman                            Greg Blanchard                         King Engineering                           Special thanks to former
                   Rob Brown                              Manatee County Environmental           Frank Courtney                             Community Advisory
                   Manatee County Department of           Action Commission                      Florida Marine Research Institute          Committee co-chairperson
                   Environmental Management                                                      (FDEP)                                     Bonnie Hite, and the fol-
dL                                                        Hamid Bojd                                                                        lowing individuals who
                   Interim Co-Chairman                    Delta Environmental Consultants        Bruce Cowell                               served on the committee
                   Andy Squires                                                                  University of South Florida -              from 1991-1993, for their
                   Coastal Environmental, Inc.            Sheryl Bowman                          Biology Department                         contributions:
                   Former Co-Chairperson                  Hillsborough County Parks              Earl Crawley
                                                          Department                                                                        Kathleen Bamberry
                   Kenneth B. Allen                                                              City of Bradenton                          Steve Corsetti
                   Florida Department of                  Gregg Brooks                                                                      Cliff Donley
                   Agriculture and Consumer               Eckerd College - Marine Science        Jack Creighton                             Kay Doughty
                   Services                               Department                             U.S. Soil Conservation Service             Gray Gordon
                   Shelly Allen                           Otto Bundy, Sr.                        Tom Cuba                                   Bob Hite
                   Environmental Resources                Nautilus Environmental                 Pinellas County - Department of            Janet Hoss
                                                                                                 Environmental Management                   Heidi Lovett
                   (FDEP)                                 Allen Burdett                                                                     Wit Ostrenko
                   Damann Anderson                        Environmental Resources                Jim Culter                                 Nancy Riley
                   Ayres Associates                       (FDEP)                                 Mote Marine Laboratory                     Lisa Solomon
                                                                                                                                            Tom Tamanini
                                                                                                 William Cummings
                   Elie Araj                              Rod Burkhardt
                   Hillsborough County                    Tampa Electric Company                 CSX Transportation
d6                 Engineering Services                   Michael Burwell                        David Dale
W                                                                                                National Marine Fisheries
                   William S. Arnold                      City of Tampa - Stormwater
                                                                                                 Service
AL                 Florida Marine Research Institute      Management Division
-W                 (FDEP)                                 David Camp                             Tony D'Aquila
AL                                                                                               Environmental Protection
                   Lucilla Ayer                           Florida Marine Research Institute
                   Hillsborough County                    (FDEP)                                 Commission of Hillsborough
                                                                                                 County
                   Metropolitan Planning                  Mary L. Campbell
                   Organization
                                                          City of St. Petersburg Parks           William Davis
                                                                                                 Pinellas County - Department of
                   Dawn Aylesworth                        Department                             Environmental Management
                   Aylesworth Foundation






                DRAFT
            Charting Me Course                  William Davis                          Steve Graham                          Paul Mahler
                                                U.S. EPA - Environmental               City of Tampa Parks Department        Environmental Science and
               for Tanipa Bay                   Research                               Ken Haddad                            Engineering, Inc.
                                                Bruce DeGrove                          Florida Marine Research Institute     Stu Marvin
                                                Florida Phosphate Council              (FDEP)                                Hillsborough County -
                                                                                                                             City/County Planning
                                                Tommy Denton                           Penny Hall                            Commission
                                                Hillsborough County                    Florida Marine Research Institute
                                                Engineering Services                   (FDEP)                                Fred McLean
                                                Kellie Dixon                           Ken Hartley                           Pinellas County Park Department
                                                Mote Marine Laboratory                 Bait Shrimp Fisherman                 Robert H. McMichael, Jr.
                                                                                                                             Florida Marine Research Institute
                                                Michael Dupes                          Walid M. Hatourn                      (FDEP)
                                                U.S. Army Corps of Engineers           Parsons Engineering Science           Ben McPherson
                                                Mike Durako                            Mike Heyl                             U.S. Geological Survey
                                                Florida Marine Research Institute      Camp Dresser & McKee
                                                (FDEP)                                                                       Jack Merriam
                                                                                       C.W. Hoeft                            Hillsborough County
                                                Craig Dye                              U.S. Fish & Wildlife Service          Engineering Services
                                                Southwest Florida Water                Darrell Howten
                                                Management District                    Environmental Protection              Ron Miller
                                                Wayne Echelberger, Jr.                 Commission of Hillsborough            U.S. Geological Survey
                                                University of South Florida -          County                                Michael Milligan
                                                Civil Engineering Department                                                 Center for Systematics and
                                                                                       Gail Huff                             Taxonomy
                                                Rob Erdman                             U.S. Soil Conservation Service
                                                Eckerd College - Marine                Tony Janicki                          Don Moores
                                                Science Department                     Coastal Environmental, Inc.           Pinellas County - Department of
                                                Ernie Estevez                          Sam Johnston                          Environmental Management
                                                Mote Marine Laboratory                                                       E. 0. Morris
                                                                                       Environmental Science &               Cargill Fertilizer, Inc.
                                                Kent Fanning                           Engineering, Inc.
                                                University of South Florida -                                                Gerold Morrison
                                                Marine Science Department              Kristi Keane                          Southwest Florida Water
                                                                                       Hillsborough County                   Management District
                                                Doug Farrell (deceased)                Engineering Services                  Surface Water Improvement &
                                                Water Facilities (FDEP)                Jay Leverone                          Management (SWIM)
                                                Ross Ferlita                           Mote Marine Laboratory                Nancy Morse
                                                City of Tampa Parks Department         Jordan Lewis                          University of South Florida
                                                Terry Finch                            Department of Health and              Gus Muench
                                                City of Clearwater - Department        Rehabilitative Services               Commercial Fisherman
                                                of Engineering/Enviromnental
                                                Management                             Roy R. Lewis III                      Russell Nelson
                                                                                       Lewis Environmental Services          National Marine Fisheries
                                                Mike Flanery                                                                 Commission
                                                Pinellas County Health                 Kathy Liles
                                                Department                             Ecosystem Management (FDEP)           Joe O'Hop
                                                                                       Ed Long                               Florida Marine Research Institute
                                                Sid Flannery                                                                 (FDEP)
                                                Southwest Florida Water                National Oceanic and
                                                Management District                    Atmospheric Administration            John Ogden
                                                                                       Hazardous Materials Branch            Florida Institute of
                                                David Flernmer                                                               Oceanography
                                                U.S. EPA - Environmental               Sheri A. Lovely
                                                Research                               Pinellas County - Sewer Systems       Shirmatee Ojah-Maharaj
                                                                                       Department                            City of St. Petersburg - Planning
                                                Thomas Franques                                                              Department
                                                University of South Florida -          Mark Luther
                                                Civil Engineering Department           University of South Florida -         Ed Olson
                                                                                       Marine Science Department             U.S. Coast Guard
                                                Boris Galperin
                                                University of South Florida -          Dave MacDonald                        Scott Osbourn
                                                Marine Science Department              Manatee County Port Authority         Florida Power Corporation
                                                Ron Giovanelli                         Kumar Mahadevan                       Andreas Paloumpis
                                                Dames & Moore                          Mote Marine Laboratory                Hillsborough Community
                                                                                                                             College






                                                                                                                                                           DRAFT
                    Neal Parker, Sr.                         Roger Stewart                           Mark Vincent                                      Charting the Course
                    Manatee County - Public Works            Environmental Protection                University of South Florida -
                    Department                               Commission of Hillsborough              Marine Science Department                            for Tampa Bay
                    Dave Parsche                             County                                  David Voigts
                    Tampa Port Authority                     Mark Stewart                            Florida Power Corporation
                                                             University of South Florida -
                    John Paul                                Geology Department                      Chuck Walter
                    University of South Florida -                                                    Florida Department of
                    Marine Science Department                Yvonne Stoker                           Transportation
                    Richard Paul                             U.S. Geological Survey                  Mike Walters
                    National Audubon Society                 Ralph Stone                             Dames & Moore
                                                             City of St. Petersburg - Planning
                    Michael Perry                            Department                              Fred Webb
                    Southwest Florida Water                                                          Hillsborough Community
                    Management District (SWIM)               Richard Stumpf                          College
                    Kevin Peters                             U.S. Geological Survey                  Roger Wehling
                    Florida Marine Research Institute        Lawrence Swanson                        City of Tampa - Planning
                    (FDEP)                                   Environmental Scientist                 Department
                    Kevin Pettus                             Don Sweat                               Robert H. Weisburg
                    Water Facilities (FDEP)                  Pinellas County Cooperative             University of South Florida -
                    Richard Pierce                           Extension Service                       Marine Science Department
                    Mote Marine Laboratory                   Todd Tanberg                            Mike Wells
                                                             Pinellas County Utilities               Cargill Fertilizer, Inc.
                    Edward Proffitt
                    Coastal & Marine Research, Inc.          Janice Taylor                           Julie Weston
                                                             Tampa Electric - Environmental          City of St. Petersburg - Planning
                    Ed Radice                                Planning Dept.                          Department
                    Hillsborough County Parks
                    Department                               Mark Taylor                             Barry Wharton
                                                             Organized Fishermen of Florida          HDR Engineering, Inc.
                    Thomas Reese                             (OFF)
                    Attorney at Law                                                                  Bob Whitman
                                                             Sally Thompson                          Peninsula Design & Engineering
                    Stan Rice                                City of Tampa - Planning
                    University of Tampa - Biology            Department                              Richard Wilford (retired)
                    Department                                                                       Manatee County - Public Works
                                                             Bill Tiffany                            Department
                    Tom Ries                                 Manatee County Port Authority
                    Southwest Florida Water                                                          Dick Williams
                    Management District (SWIM)               Chris Tolbert                           Water Facilities (FDEP)
                    Mark Ross                                Pakhoad Dry Bulk Terminals              Greg Williams
dh                  University of South Florida -            David Tomasko                           IMC-Agrico Company
                    Engineering Department                   Southwest Florida Water
I&                                                           Management District (SWIM)              Michael Wood
9V
dk                  Daniel Savercool                                                                 Manatee County - Planning and
                    Environmental Scientist                  Nick Toth                               Zoning Department
                    Karen Sims-Jackson                       Cockroach Bay & Aquatic                 Michael D. Young
                                                             Preserve
                    Manatee County - Planning                D. Timothy Travis                       Environmental Issues
                    Department                               St Petersburg Air and Port              Hans Zarbock
                    Eric Slaughter                           Authority                               Coastal Environmental, Inc.
                    U.S. EPA
                                                             Jane Urquhart-Donnelly                  John Zimmerman
                    Ed Snipes                                Emergency Response (FDEP)               Manatee County - Public Works
                                                                                                     Department
                    Water Facilities (FDEP)
                                                             Gabriel Vargo
                    Bob Stetler                              University of South Florida -
                    Environmental Resources                  Marine Science Department
                    (FDEP)                                                                           (FDEP) Florida Department of
                                                             Sandra Vargo
                    John Stevely                             Florida Institute of                    Environmental Protection
                    Manatee County Cooperative               Oceanography
                    Extension Service
                                                             Bill Veon
                    Scott Stevens                            Hillsborough County - Planning
                    Southwest Florida Water                  & Zoning
                    Management District (SWIM)






                           DRAFT
                 Charting the Course
                       For Tampa Bay                                                                           Tampa Bay Whtepshed Boundapies and Bay Segments                                                                                                                   Hgupe I

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                                                                                                                                    PASCO COUNTY
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                                                                                                                                                                                                                                                                    POLK COUNTY
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                                                                         PINELLAS COUNTY                                                               . .......
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                                                                                                                                                                             HILLSBOROUGH COUNTY

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                                                                                                                                                       MANATEE COUNTY
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                                                                         More than 2 million people reside in the 2,200-square-mile Tampa Bay watershed, which reaches into Sarasota, Pasco and Polk                                                                                                                                         1W
                                                                         counties and includes three major seaports. Tampa Bay is Florida's largest open-water estuary, covering almost 400 square miles.                                                                                                                                    z
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                                                              STATE OF

                                                               THE BAY



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                                                                                                                DRAFT
                                                                                                             Charting the Course
               Mate                                                                                            for Tampa Bay
                                  of the Bay


               INTRODUCTION

                         e headwaters of the Hillsborough River to the salty waters off Anna Maria
                    m "
               ]FIsland, Tampa Bay encompasses a rich mosaic of underwater and coastal habitats
               that support thousands of species of plants and animals. Preserving and restoring
               these interdependent habitats - even in the face of continued growth - is critical to
               the bay's future.

               Estuaries like Tampa Bay, where saltwater from the sea and freshwater from rivers
               mix, are among the world's most productive ecosystems. More than 70 percent of all
               commercially important species of fish depend on estuaries at some stage in their
               development.' Besides marine life, the bay also attracts a remarkable number and
               variety of birds and animals that depend on its rich tapestry of habitats.

               As Florida's largest open-water estuary, Tampa Bay spans almost 400 square miles
               and receives drainage from a 2,200-square-mile watershed more than five times the
               bay's size.2 Activity in this watershed has a profound influence on the health of the
               bay. Nutrients supplied in stormwater runoff from the watershed fuel the bay's pro-
               ductivity. But excess nutrients and contaminants from neighborhoods, industries,
               cities and farms pollute the bay.

               Achieving a healthy balance of inputs from the land and sea, and redressing past dam-
               ages to habitats and protecting them in the future, remain vital to the bay's health.
               These tasks become challenging in the context of modem growth. As population in
               the tri-county area approaches two million, decisions we make at home, at work and
               in our communities about how we use and maintain our land and address pollution
               increasingly influence the state of the bay.

               This chapter explores the state of the bay - as well as the management structure
               charged with the bay's protection - so that the community can direct future efforts
               where help is most needed and ensure that increasingly limited public funds are spent
               in a manner that best benefits the bay and the people who live around it. Restoration
               is a complex, but achievable, task that will require a steady focus on the ecosystem.
               Decisions based on ecosystem needs - those that recognize how individual habitats
               affect the health of the whole and how fish and wildlife depend upon this network for
               survival - can prevent costly and less effective piecemeal treatment.

ML             Achieving the goals set out by the Tampa Bay National Estuary Program will require
               a flexible yet comprehensive, watershed management approach. Watershed manage-
               ment takes into account the overall needs of the estuary, as well as individual varia-
               tions in specific areas. By considering and capitalizing on these differences, watershed






           JIM R M C T
                 W
           U1
       Charting the Course           management goes beyond traditional regulatory programs - just as the bay ecosys-
          for Tampa Bay              tem itself encompasses a rich mosaic of habitats often far removed from its visible
                                     shoreline. Thus, a plan based on watershed management principles can tailor actions
                                     and policies to better protect the bay's multi-faceted resources.

                                     By focusing less on government-imposed regulations and more on the actual require-
                                     ments of the bay's living resources, watershed management offers opportunities for
                                     producing direct, measurable results that are cost-effective and community-specific.
                                     In this approach, success is measured less by compliance with strict laboratory stan-
                                     dards for water quality than by increases in seagrasses, fish stocks and other biologi-
                                     cal indicators of a healthy estuary.

                                     The National Estuary Program is committed to a course of action that emphasizes
                                     watershed management as a common-sense approach for protecting Tampa Bay well
                                     into the next century.






                BAY HABITATS                                                                                              Charting the Course
                                                                                                                             for Tampa BaY
                W
                        hile many bay animals prefer the open water of the estuary, others require the
                        food and shelter supplied by various structural habitats, including seagrasses,
                mangroves, salt marshes and uplands. Together, these habitats form a natural network
                that sustains vast populations of fish, birds and other wildlife.

                Since 1950, about half of the bay's natural shoreline and nearly 40 percent of its sea-
                grasses have been destroyed, along with significant portions of upland habitat.' Most
                casualties were sustained before the mid-1970s, when the need for "managed" growth
                gained acceptance.






                                                                                                                    F19UPO 2

          Tampa Bay's food web provides a "who eats who" perspective of the ecosystem. But In reality, it is far more complex. The
          marine food web, as its name implies, travels in various directions, bound together by common, interdependent threads.
          Impacts to any part of the food web affect the health of the whole.

          ï¿½ The bay's food web begins with sunlightit, which penetrates through the water column.

          ï¿½ The sun's energy is absorbed by tiny one-celled organisms called phytoplanktonB, microscopic algae that are the most
            prolific plants in the bay. Light also is absorbed by seagrassesC and other underwater plants. There are 270 species of
            phytoplankton in Tampa Bay, and a single quart of bay water may contain as many as 1 million of these minuscule
            creatures, which give the water its greenish cast. By comparison, the bay harbors only four major seagrass species.

          ï¿½ Small grazing animals called zooplanktonD and larger bottom-dwelling filter feeders form the next thread in the web.
            Filter feeders such as the bay scallopE and the sea squirtF are a prime cleaning service for the bay, siphoning in water
            containing phytoplankton, skimming off the tiny plants, and discharging clear water. Larger herbivores, such as
            manateesG and green sea turtles", consume bigger plants like seagrasses.

          ï¿½ Carnivores and omnivores (opportunistic feeders that eat plants and animals) prey on the zooplankton and the filter
            feeders. Small carnivores such as the blue crabl and pinfishJ are in turn eaten by larger carnivores such as snookK,
            redfish and trout, which are eaten by sharksL, dolphins and humansM. Some birds, such as pelicansN and cor-
            morants, also eat the small fish and invertebrates.


          ï¿½ When plants and animals die, their remains sustain another thread in the web, the scavengers. Some of these, such as
            fiddler crabsO and snails, live in burrows along the shoreline. Others, like worms and shrimpP, dwell in the muds at
            the bottom of the bay. The muds of the shore and bay bottom may look barren to a casual observer, but they teem
            with life.

          ï¿½ The scavengers begin another circle of life, providing food for a variety of shorebirds such as the white ibisQ and the
            roseate spoonbill, which frequent the bay's shallows. Small mammals such as raccoons also prey on crabs and snails.




                                                                                                                                     13






           0
                   JIT
             RA.",.1,                                                                                                                        0
       Charting the Course            Now, water quality improvements are helping to fuel the bay's recovery. Seagrasses
          for Tampa Bay               have been a key beneficiary. Since the 1980s, grass beds have waged an impressive
                                      comeback in many areas of the bay in response to improving water quality.


                                      Trends for saltwater wetlands are not as clear. Recent studies show a net increase of
                                      3.3 percent in the bay's saltwater wetlands from 1982 to 1990, which is probably
                                      attributed to wetland colonization of new emergent land created from bottom-fill, as
                                      well as to mitigation and restoration .4 However, the data do not indicate the quality or
                                      level of function of these saltwater wetlands.



                                      Seagrasses and other bottom habitats

                                      SEAGRASSES
                                      Seagrasses provide shelter, nursery and feeding habitat for many popular fish and
                                      shellfish, including snook, red drum, seatrout, shrimp and the bay scallop. These shal-
                                      low grass flats also are an important feeding ground for the endangered Florida mana-
                                      tee, of which only about 1,800 are thought to remain.5 Grass beds also help to
                                      improve water clarity by anchoring bottom sediments.

                                      Because seagrasses require light to grow, light limits the depths at which they occur.
                                      Even in the clearest waters of lower Tampa Bay, seagrasses, typically grow no deeper
                                      than six to eight feet.

                                      In 1950, about 40,000 acres of seagrass flourished along the shallow shelf of the bay.
                                      By 1982, only 21,600 acres remained, and Hillsborough Bay's 2,700 acres of sea-
                                      grasses had been virtually eliminated .6 Three factors are believed to have caused the
                                      decline: dredging and filling for waterfront development; reduced light penetration as
                                      a result of shading by algae fueled by excess nutrients discharged to the bay by
                                      sewage treatment and industrial plants; and cloudiness (or turbidity) caused by dredg-
                                      ing the main shipping channel.

                                      An estimated 13,200 acres of bay bottom have been filled since the early 1900s, and
                                      more than 90 percent of the activity occurred along the bay's shallow shelf, where
                                      seagrasses once thrived .7 Hillsborough Bay is one of the bay's most impacted seg-
                                      ments. Its surface area has been reduced by 14 percent as a result of residential devel-
                                      opment at Davis Islands, creation of spoil islands and construction of port and power
                                      generating facilities. That compares to a surface area reduction of 3.6 percent for the
                                      entire bay caused by filling for development.'

                                      But seagrasses have rebounded in recent years as a result of improving water quality.
                                      From 1982 to 1992, bay seagrass coverage increased by about 4,000 acres, or 18.5
                                      percent, raising the bay's total acreage to more than 25,600 acres.9 Most incoming
                                      grass is shoal grass (Halodule wrightii), an early-colonizer that may eventually be
                                      replaced in many areas by turtle grass (Thalassia testudinum), a later successional
                                      species.

                                      Seagrass gains are largely attributed to upgrades in sewage treatment plants that led to
                                      substantial declines in total nitrogen loadings to the bay. Declines in nitrogen load-
              14                      ings resulted in a decline in phytoplankton density and corresponding improvements






                                                                                                                                                                    DRAFT
                                                                                                                                                              -Charting the Course
                      Historical Trends in Seagrasses                                                                                Rgure 3                       for Tampa Bay

                                                                                   Seagrass Decline

                                80      ......................................................................................................I................................................................................................................................................
 6                                           76, 6
                                70     .........................  ............................ .............................................................................................................................................................................................
 0

                           0
                                60  . .......... ... I.,      . . ........                - - --- ------             . .............. . . .............. . .. . ....... ........... ------ - -------- . .........


                                50-

                                                                                                                               4%@27
                                                             ................. .......           - -------                                         ------------ - - -------------------- ..... - -----
                                40-
                           (n                                                                                                                                        25,072
                                                                                                                                                         23,004
                                       ........... ..........  ................................. ........................................... ................................................................ .............. .................................. ...... .............
                                30-
                           CU
                           (D                                                                                                                                               25,654
                           Cn
                                                                                                                                                                             (1992)
                                                               -----------      ----- ---------- - ----------------- .. ....... . ....... . ....... . ..........         . .........
                                20---
                                                                                                                                                         21,647.
                                                                                                                                                           (1982
                                     . ................ ........ ......... ......................... .............................  ............ ........... ............................. ......................... ................................ .............  ....................
                                10


                                                                                                                        ............
                                                                                 7-7
                                   1870                            1 900:@.                        193&                            1660                            1990
                                                                                                                                              Estimate, based on bathymetry
 0                                                                      SOURCE: LEWIS, HADDAD AND JOHANSSON, BASIS 2
 0                                                                                     REIS (1994), SWFWMD-SWIM
 0                                                                       JANICKI, WADE AND ROBISON (1994), FOR TBNEP


                      in water clarity. Increased water clarity enabled more light to penetrate to underwater
                      seagrasses.


                      Drought conditions prevalent in the 1980s also may have assisted seagrass regrowth,
                      since less rainfall means fewer nutrients and contaminants that cloud the water wash
                      into the bay. Continued monitoring will be necessary to document the trends in sea-
                      grass regrowth.

                      Although more than 40 percent of seagrasses reveal little or no damage from boat pro-
                      pelleTs, seagrass scarring is nevertheless an important problem in some parts of the
                      bay. Studies by the Florida Marine Research Institute indicate that about 27 percent*
                      of Tampa Bay's seagrasses are moderately to heavily scarred - second in severity
                      only to the Florida Keys. 10 Signs of chronic damage are evident around many passes
                      and channels. Intense scarring at Cockroach Bay in southern Hillsborough County and
                      at Pinellas County's Ft. De Soto Park has prompted boating restrictions and closures
 ML                   in these areas to protect seagrasses. Early reports indicate that restrictions and caution-
                                             @6

























































                        Includes all Pinellas County seagrasses, including Gulf grass beds outside the boundaries of the
                       Tampa Bay estuary.
                                                                                                                                                                               15






                  DRAFT
           Charting the Course
               for Tampa Bay                                1850 vs. 1900 Searass Covepage                                                                                            RguPe 4



                                                                                            Tampa

                                                                                                            ... ........                  . ......

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                                                                 .............
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                                                                                            -:-:X XXX:.::@:
                                                                                                 ...........                                         1950 Seagrass Coverage
                                       ........ ...........                       ....-
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                                                                                                                                                     1990 Seagrass Coverage
                                                               .. ...............
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                                                                     .............
                                              .......... ..
                            ..........                                                                      . . ......


                            Since 1950, poHution and dredging in the heavily industrialized Hillsborough Bay sector have claimed more than 90 percent
                            (or 2,277 acres) of seagrasses. This compares to an overall seagrass loss in the bay of almost 40 percent (15,200 acres) for the
                            1950-1990 period. Recent improvements in water quality are beginning to reverse the course of seagrass declines. From
                            1982-1992, scientists have documented the return of more than 4,000 acres of seagrass baywide, including 20 acres in
                            Hillsborough Bay. Seagrass coverage in Hillsborough Bay has more than doubled since then.
                                                                                                                                          SOURCE: SWIM (1994) AND R. JOHANSSON (1995)                                        0






                                                                                                                      DRA!"
                ary areas in Ft. De Soto Park are working to reduce scarring, but evaluations of spe-             Charting the Course
                cific management techniques are still underway." Studies at Weedon Island Preserve                   for Tampa Bay
                suggest that propeller scars in turtle grass may take more than five years to heal.12

                Data have not yet been collected in Tampa Bay to evaluate trends in the quality of
                seagrass and its utilization by animals. However, the Southwest Florida Water
                Management District recently modified its seagrass monitoring program to include
                assessments of seagrass quality at 50 locations around the bay. Monitoring parameters
                include seagrass species diversity, density and quantity of epiphytic algae attached to
                the grass blades.13


                SOFT-BOTTOM
                More than 80 percent of the bay bottom is soft mud or sand.14 These bottom sedi-
                ments support a large diversity of animals, including parchment worms, clams, tuni-
                cates (or sea squirts) and conchs, as well as larger bottom-dwellers that feed on these
                creatures. The surface sediments of this dynamic habitat are constantly churned up
                and re-deposited by bottom-dwelling animals, as well as by waves, currents and
                dredging. Remarkably, one square meter of soft bottom may support more than one
                million invertebrates.


                Dredging of navigation channels and underwater disposal of dredged material have
                impacted an estimated 14,400 acres of bay bottom, mostly in deep-water areas of the
                bay. An additional 1,200 acres of deep-water soft bottom has been filled to create
                spoil islands and causeways.15

                The long-term effects of disposal on these soft-bottom habitats has not been well doc-
                umented. However, a recently established benthic monitoring program will enable
                bay managers to assess trends in the health of these bottom communities.


                HARD-BOTTOM
                Although relatively rare in Tampa Bay, hard- or "live"- bottom habitat features a com-
                position of plants and animals that are unlike any other in the bay ecosystem. Hard-
                bottom habitat is formed when outcroppings of rock or limestone along the bay bot-
                tom are colonized by corals, barnacles, sponges and algae that attract small fish and
                larger predators. Its colorful inhabitants include sea fans, anemones and tunicates.

                A study conducted for the Tampa Bay National Estuary Program revealed major hard-
                bottom communities at Rocky Point (Old Tampa Bay); along the Gandy Bridge (Old
                Tampa Bay)    near Cockroach Bay (Middle Tampa Bay); and in portions of Lower
                Tampa Bay. Long-term trends in hard-bottom coverage are not yet available, since
                this was the first bay-wide attempt to assess the extent of hard-bottom habitat.

                Oyster reef communities are another distinct hard-bottom habitat, although they have
                not been well-documented locally. The reef's intricate structure provides habitat for
                scores of invertebrates and fish species.

                While historical estimates of hard-bottom are sketchy, scientists do know that the bay
                once supported a thriving oyster fishery. The most recent estimate of oyster coverage
                is 8,300 acres in 1972.17 Oysters are not commercially harvested today since most

                                                                                                                             17






           DRAII
       Charting the Course            areas of the bay have been closed to shellfishing because of suspected high levels of
          for Tampa Bay               bacterial contamination.

                                      Additionally, 11 artificial reefs have been established in Tampa Bay to expand hard-
                                      bottom and enhance fishing." Other marimade habitats include bridge and dock pil-
                                      ings, seawalls and spoil islands. Some of these artificial habitats provide additional
                                      structure for attaching organisms such as oysters, sponges and tunicates.


                                      Estuarine Wetlands
                                      The natural shoreline of the bay is bordered by a broad intertidal zone of wetlands,
                                      submerged at high tide and exposed at low tide. These dynamic wet zones, which
                                      include mangroves, marshes and mud flats, provide vital food and protection for vari-
                                      ous marine creatures. They also buffer uplands from storms and help filter nutrients
                                      and particulates in runoff from the surrounding watershed.


                                      MARSHES AND MANGROVES
                                      While mangrove and marsh habitats may occur independently, they often occur
                                      together, with red, white and black mangroves interspersed with smooth cordgrass and
                                      black needlerush. Mangroves outnumber marshes in Tampa Bay by more than a 3-to-
                                      1 ratio.19 Salt marshes, composed of rushes, sedges and grasses, are the dominant nat-
                                      ural habitat along the bay's major tributaries.

                                      Small fish, shrimp and crabs feed on the nutrient-rich detritus formed from decaying
                                      mangrove leaves. The sturdy roots of the mangrove trees anchor the shoreline, while
                                      the mangrove canopies serve as roosts and nests for a remarkable variety of resident
                                      and wintering birds.

                                      Mangroves and marshes also support juvenile fish, such as snook, tarpon, red drum
                                      and mullet, and protect them from larger predators. Mature mangroves in quiet
                                      lagoons and canals in fairly high-salinity areas provide a little known but important
                                      nursery habitat for snook.

                                      Mangroves in Tampa Bay are particularly vulnerable to damage or destruction from
                                      periodic freezes, since the bay is near the northern limit for these species. This under-
                                      scores the importance of maintaining a healthy abundance of these wetland habitats.
                                      Dense stands of mangroves not only are better equipped to survive a freeze, they also
                                      provide more food and better habitat for the animals they support.

                                      About 43 percent (9,700 acres) of Tampa Bay's original saltwater wetlands were lost
                                      between 1950 and 1990, primarily because of dredging and filling for waterfront
                                      development. However, as many as 5,900 acres of new wetlands formed along cause-
                                      ways and other emergent land created from dredged spoil material during this period.
                                      Furthermore, from 1982 to 1990, studies indicate a 3.3 percent increase in saltwater
                                      wetlands in the bay. Precise estimates are difficult to calculate because of differences
                                      in the quality and interpretation of aerial photography. However, the steepest declines
                                      occurred between 1950 and 1980, when efforts to develop coveted waterfront property
                                      for residential and commercial uses proceeded unchecked.20

                                      Recent. estimates of wetland habitat in Tampa Bay indicate that about 18,800 acres of




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-                                                                                                                                                                                                              Nearly half of the natural shoreline in Pinellas County's Boca Ciega Bay was lost to waterfront development between 1950 and 1990.
-
-                                                                                                                                                                                                              Wetland losses throughout Tampa Bay for this period also have been significant. Scientists report a 43 percent (9,700 acres) decline in
-                                                                                                                                                                                                              the bay's existing wetland coverage between 1950 and 1990. However, as many as 5,900 acres of wetlands have formed baywide as a
-
                                                                                                                                                                                                               ,
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-                                                                                                                                                                                                              result of newly emerging land along causeways and areas filled by spoil material. The quality or functional level of these new wetlands
-                                                                                                                                                                                                              is unknown.
-

-
-                                                                                                                                                                                                              is

-
-

    @
-
-

    ,
-






           DRAFT
       Charting the Course            mangrove forests and saltmarsh remain.21 However, thousands of acres of this habitat
          for Tampa Bay               may be damaged from invasion by exotic plants, such as the Australian pine and
                                      Brazilian pepper, that choke out native habitats.


                                      MUD FLATS
                                      Non-vegetated mud flats along the bay's perimeter also are an important part of the
                                      estuarine wetland system. While mud flats may appear barren and lifeless to an
                                      untrained eye, these areas actually are highly productive and valuable.

                                      Mud flats support a diverse community of bottom-burrowing creatures, including
                                      worms, clams and crabs, which are pursued by wading birds and raccoons foraging
                                      for food at low tide. At high tide, fish enter the flats in search of food.

                                      Mud flats also are prime feeding areas for a number of migratory birds, including avo-
                                      cets and several species of sandpiper, which seek refuge in Tampa Bay each winter.

                                      Associated uplands
                                      Neighboring upland habitats of pine forest, hammock and shrub also have been heavi-
                                      ly impacted by development. Often overlooked or undervalued, these buffer areas and
                                      associated freshwater wetlands provide critical or essential habitat for numerous ani-
                                      mals, including the wood stork, white ibis, bald eagle and fox squirrel. Many of the
                                      birds and animals that live in coastal wetlands or along the shore hunt for food in
                                      upland forests and fields. Likewise, many upland species depend on adjacent wet-
                                      lands for survival.


                                      Almost all coastal pine forests have been eliminated from the shores of Tampa Bay,
                                      and about 40 percent of this habitat has been lost throughout the watershed    .22  Coastal
                                      hammocks and salt barrens also have declined. Coastal hammocks of live oaks and
                                      cabbage palms occur in patches where wetlands transition to uplands. Hammocks are
                                      home to raccoons, bobcats, foxes and other animals that feed in neighboring wetlands.
                                      Fewer than 900 acres of salt barren remain, mostly along the bay's southeastern rim     .23
                                      This rare habitat forms in areas where brackish water moves in during very high tides
                                      and evaporates, creating open stretches of salty, dry soil. Historical estimates for
                                      many of these transitional zone habitats are unavailable.

                                      Low-salinity habitats
                                      The bay's four major rivers - Hillsborough, Alafia, Manatee and Little Manatee
                                      and more than 100 smaller tributaries provide critical low- and medium-salinity habi-
                                      tat for numerous species of fish and shellfish at early stages in their development.
                                      Variations in the salt content of the water, from the low-salinity reaches of the bay's
                                      tributaries to full-strength sea water at the mouth of the bay, determine which areas of
                                      the estuary are inhabitable for some species and not for others. Oysters, for example,
                                      flourish in low-sahnity areas of the bay where they are protected from snail predators.
                                      Similarly, fish with wide salinity tolerances use low-salinity areas in rivers to avoid
                                      predators that cannot tolerate these conditions.

                                      Called ohgohahne from the Greek oligos (small) and haline (salty), the low-salinity
                                      areas occur in the upper reaches of the bay's tributaries, where salinities range from






                                                                                                                     DRAFT
               zero to 10 parts per thousand (ppt), as compared to about 35 ppt at the mouth of                  Charting the Course
               Tampa Bay. Downstream, mesohaline or medium-salinity zones occur within a salini-                    for Tampa Bay
               ty range of 11 to 19 ppt.

               Low and medium-salinity habitats are a primary nursery for red drum, snook and tar-
               pon, as well as numerous non-game species including the black mullet. Some of the
               most highly productive juvenile nursery habitat occurs where the waters of these
               salinities overlap stationary wetland vegetation. As the fish mature, they typically
               move to more saline zones in the estuary or out into the Gulf of Mexico.

               Efforts to protect these highly productive nursery habitats depend on maintaining the
               proper seasonal balance of fresh water and salt water within the bay's tributaries.
               Four major tributaries - the Hillsborough River, Palm River (Tampa Bypass Canal),
               Manatee River and Braden River - have darns or reservoirs that divert freshwater to
               serve the region's potable water needs. During dry season, when water demand is
               highest, reservoirs on the Hillsborough, Palm and Manatee rivers release almost no
               water downstream.


               The impact of reservoirs on the low and medium-salinity habitats downstream is the
               subject of several ongoing assessments. Results from one study of flow variations on
               the Manatee River indicate that, on average, river area and volume within the low-
               salinity band were reduced 33 percent and 22 percent, respectively, as a result of
               reservoir operations for the period 1982-1992. Consequently, the area of wetlands
               coinciding with this low-salinity band was reduced by 150 acres or 25 percent.24

               Modeling comparisons of historic and modem landscapes indicate that net freshwater
               inflows to the main body of Tampa Bay have changed little since the 1950s, assuming
               the same amount of rainfall each year.25 This is mainly a result of increases in urban
               and agricultural stormwater runoff, which have countered decreases in freshwater
               flows from rivers. However, long-term measurements of river flows by the U.S.
               Geological Survey indicate that many rivers in southwest Florida (including some in
               Tampa Bay) have experienced gradual freshwater declines since the 1930s because of
               declining rainfall.







ML













                                                                                                                           21






           DRAFT
       Charting the Course
          for Tampa Bay                FISH AND WILDLEM


                                       Fisheries
                                       T
                                           he population of many sport and commercial fish species in Tampa Bay is in a
                                           state of flux. Anecdotal reports from sport fishermen indicate some species such
                                       as snook and red drum are responding positively to fishing regulations designed to
                                       increase their numbers. On the other hand, commercial landings of black (or striped)
                                       mullet and spotted seatrout are significantly below historical catches.

                                       A constitutional ban on gill netting, triggered in part by declining mullet stocks, took
                                       effect in July 1995. Supporters believe the ban will lead to increases in mullet popu-
                                       lations, which are fished almost exclusively by commercial netters. The ban also may
                                       benefit other species like trout and sheepshead, targeted by both commercial and
                                       recreational fishermen.


                                       Bait fish such as menhaden and herring also were targeted for increased protection
                                       following precipitous declines in bait fish landings in the late 1980s. The 1993 ban on
                                       purse seining in the bay is expected to stabilize bait fish populations, as well as bene-
                                       fit other fish and birds that feed on the bait fish.


                                       Careful monitoring of fish populations will be necessary to gauge the effectiveness of
                                       these existing regulations and determine the need for further management actions.

                                       Until recently, resource managers have had to estimate populations of important fish-
                                       ery species in Tampa Bay from landings data because direct measurements were not
                                       available. These data, which record the amounts and types of fish brought to Pinellas
                                       and Hillsborough docks by area fishermen, indicate that 3.7 million pounds of 11
                                       commercial species of finfish were harvested from the bay in 1990 - a decrease of
                                       24 percent since 1966. The decrease is largely due to reduced catches of mullet and sea
                                       trout, while landings for the remaining species stayed the same or increased slightly.   26

                                       In fact, records going further back to 1950 show that harvests of spotted sea trout
                                       declined 86 percent in the bay by 1990, from 487,000 pounds to 67,000 pounds      .27
                                       Similarly, red drum harvests plummeted from 80,000 pounds in 1950 to 15,000
                                       pounds in 1986, the last full year of available data prior to a statewide ban on com-
                                       mercial red drum harvests.21 These raw data do not reflect changes in fishery management
                                       plans or quotas.

                                       Until recently, mullet was the most sought-after commercial species in the bay,
                                       comprising almost half of the 1992 landings of finfish and shellfish, or 2.3 million
                                       pounds. By comparison, bay harvests of spotted seatrout and bait shrimp were only
                                       40,000 pounds and 26,000 pounds, respectively.29

                                       Although useful, landings are an imprecise indicator of stock sizes because changes in
                                       market demand, gear efficiency and fishing regulations may affect them. Recognizing
                                       this, the Florida Marine Research Institute in 1989 initiated a Critical Fisheries
                                       Monitoring Program (CFMP) to provide more reliable estimates of stock sizes and






                                                                                                                          DRAFT
                distribution of important species and key prey species. The research also is helping                  Charting the Course
                clarify the crucial role habitat plays in the life cycles of many species.                               for Tampa Bay

                A summary of results of the first three years of the CFMP (1989-1991) found that 78
                percent of the juvenile spotted seatrout collected were captured over seagrass beds,
                further validating the importance of seagrass habitat to this species. Small red drum
                were found in relative abundance in the bay's major tributaries, while small snook are
                known to frequent at least two of the rivers, the Alafia and the Little Manatee.30

                Mirroring declines in fish stocks, Tampa Bay's once-thriving commercial shellfish
                industry also has virtually collapsed, although bait shrimping continues. Harvests of
                clams and oysters throughout the bay are restricted or prohibited because of docu-
                mented or potential bacterial contamination from fecal coliform associated with
                human and animal wastes entering the bay in stormwater runoff. In the few unrestrict-
                ed areas remaining, shellfish populations are not large enough to support commercial
                harvest.


                However, reassessments of closed or restricted areas are not routinely performed by
                the state, and it is possible that actual water quality conditions in specific areas do not
                warrant the restrictions. That's because decisions to classify or reclassify areas
                according to public health concerns in most cases are based on land use considerations
                and the potential for contamination following a major storm event, rather than actual
                water quality conditions.31

                The bay's fisheries also are impacted by entrainment, the capture of planktonic eggs
                and larvae of fish and shellfish in power plant cooling intakes. The five power plants
                around Tampa Bay take in a daily average of about 2.3 billion gallons of bay water.
                An estimated 274 billion fish eggs and 83 billion fish larvae are captured annually in
                cooling intakes in Tampa Bay, according to power plant monitoring data from the
                early 1980S.32 Assuming 100 percent mortality, the impact of steam electric plants on
                the fishery stocks of Tampa Bay is probably significant. However, in the absence of
                sufficient baseline data on stock sizes and normal survival rates, it is difficult to fully
                assess this impact. Further research is needed to understand the cumulative impacts of
                power plant entrainment on the bay's fisheries.

                Habitat declines, fishing impacts and water quality are considered the primary factors
                responsible for changes in fish populations. The relative impact of each factor is often
                hard to discern because of natural fluctuations in stock sizes.

d1k             Despite these pressures, improving water quality throughout Tampa Bay is creating
                more favorable conditions for fish and shellfish and for the seagrass habitats they
                require. One potential beneficiary is the bay scallop, which all but disappeared from
                Tampa Bay in the 1960s. While experts can't say why the scallop departed decades
                ago, they suspect these highly sensitive creatures were casualties of pollution. Water
                quality in Tampa Bay now has improved to levels that may support scallop recovery,
                and aggressive restocking efforts are underway.






                                                                                                                                 23




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                                                                                                                                                                                                                                                                                                2. Island 3D 8. Courtney Campbell 14. John's Pass 41
                                                                                                                                                                                                                                                                                                (Tampa Port Authority) Causeway 15. Tarpon Key**0
                                                                                                                                                                                                                                                                                                3. Alafia Banks* 9. Alligator Lake 16. Shell Key 41
                                                                                                                                                                                                                                                                                                4. Cockroach Bay Shell Pit 10. Howard Frankland 17. Passage Key** Ah
                                                                                                                                                                                                                                                                                                5. Piney Point Causeway                     W
                                                                                                                                                                                                                                                                                                11. Florida Power/Weedon * National Audubon Sanctuary 49
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                                                                                                                      DRAFT
                Bay Wildlife                                                                                      Charting the Course
                Tampa Bay supports a magnificent array of wildlife, from the familiar brown pelican                  for Tampa Bay
                to the lowly sea squirL But many of these animals also are threatened by impacts to
                water quality and habitats.

                Birds are perhaps the most easily recognized and appreciated creatures in the ecosys-
                tem, and mangrove islands in the bay are among the most important nesting sites in
                the nation. These islands support as many as 40,000 pairs of approximately 25 species
                each season, including brown pelicans, cormorants, ibis, spoonbills and tems.11 The
                bay also attracts sizable and diverse colonies of wintering sea birds, including the
                American white pelican, which travels more than 2,000 miles on its annual pilgrimage
                from the Western United States and Canada.


                Bird populations have dramatically declined in the last half-century as the region has
                been developed. Most vulnerable are beach-nesting shorebirds and wading birds such
                as the white ibis, which lives along the bay but depends upon freshwater food sources
                for its young. As these inland sources dry up or are converted for development, popu-
                lations plummet. Flocks once as large as 30,000-40,000 pairs have declined by as
                much as 75 percent.34

                In addition to habitat losses, the bay's bird populations also have been impacted by
                human disruption of rookeries and by entanglement in monofilament fishing line.

                Marine marnmals and sea turtles feed and reproduce in Tampa Bay. More than 500
                bottlenose dolphins are estimated to be year-round residents. The bay also is the win-
                ter home of one-sixth of the West Coast manatee herd, or upwards of 200 animals,
                according to manatee researchers with the Florida Marine Research Institute (FMRI).31
                These gentle, plant-eating giants cluster around the warm-water discharges of the
                bay's power plants and feed in the grass beds of the bay's perimeter.

                Loggerhead turtles also are occasionally observed in the bay near Egmont Key and
                Fort DeSoto, where they nest on the sandy beaches. And recent stranding data collect-
                ed by FMRI indicates that the bay may also be an important nursery for Kemp's rid-
                leys, the most endangered of the sea turtles.


                Increased boating activity continues to threaten these larger marine creatures. In
                1994, 193 manatees were found dead in Florida, up from 145 in 1993. Boat collisions
                with manatees and propellers that slice the thick hides of these shallow-water crea-
                tures are a major cause of manatee injuries and deaths in Florida. Whether the recent
                upsurge in mortality is an anomaly, or points to an escalating threat from boating
                activity, is uncertain. Regardless, further increases could be significant for the manatee
                population, which already has dwindled to about 1,800 animals statewide.

                Mostly out of sight to casual observers of the bay is a diverse array of bottom-
                dwelling creatures known as the benthic community. Included among the more than
                1,200 species of benthic organisms documented in the bay are the commonly known
                blue crab, pink shrimp, brittle starfish and sea squirt." These epifauna, which reside
                on the surface of the sediment, and their neighboring infauna, which live below the
                surface, are an important link in the bay's food web. They also play an indispensable
                role in the cycling of major nutrients, including carbon, phosphorous and nitrogen.

                                                                                                                             25








       Charting the Course           While their feeding habits vary, these animals mostly scavenge on the bottom, feeding
          for Tampa BaY              on decaying plant and animal material or filtering microscopic organisms like phyto-
                                     plankton from bay waters. In doing so, filter feeders like oysters, scallops and sea
                                     squirts help maintain water clarity.

                                     Many of the bay's inhabitants require not one, but multiple, habitats to survive. This
                                     points to the critical need for resource management strategies that aim for a balance of
                                     diverse, healthy bay and upland habitats, rather than applying resources piecemeal or
                                     concentrating solely on boosting wetland acreage.






                PLIGHT OF THE WHITE IBIS


                Tampa Bay harbors some of the most important wading and shorebird nesting areas in the nation. Most of these nurseries
                are located on natural or manmade islands well-protected from all but human intruders, who increasingly and often unwit-
                tingly disrupt mating and nesting behavior.


                Among the dozens of species that nest in and around Tampa Bay are great blue herons, snowy and great egrets, roseate
                spoonbilis and brown pelicans. The bay also harbors the largest nesting colony of rare reddish egrets outside Texas.


                Many of these species are dependent upon a variety of different habitats to provide food for
                themselves and their young. The white ibis exemplifies the need for a diversity of
                healthy habitats. This familiar wading bird, with its long, scimitar-shaped red bill, is
                one of the most common of the bay's feathered residents. A jack of all trades, it
                pokes and prods for food in a variety of habitats, from seashores to river banks to
                residential backyards. In fact, many gardeners consider it a welcome guest
                because the ibis devours mole crickets, grasshoppers and cockroaches.


                Several thousand pairs of ibis nest in the bay area each year, including about
                5,000 pairs at the National Audubon Society bird sanctuaries at the mouth of the
                Alafia River. But those numbers are a far cry from the 30,000-40,000 pairs count-
                ed just 50 years ago, when immense fleecy flocks of the graceful white birds
                soared over the bay.


                The plight of the ibis provides a textbook lesson in why protection of the bay must extend
                beyond its traditional borders to encompass its life-giving freshwater sources. For although the
                ibis frequently nests in and along the bay itself, the survival of its offspring depends upon a freshwater delicacy, the cray-
                fish.


                Indeed, scientists have found that young ibis fed a diet rich in crayfish grow faster and are more likely to reach adulthood
                than ibis babies fed primarily fiddler crabs from the shores of the bay. The reason, they suspect, is that the low-salt cray-
                fish diet is healthier for the babies than the high-salt fiddler crab meals. Once the birds reach adulthood, they appear to
                have no problem digesting insects or saltier food sources, but when they are young, crayfish are critical.


                As the bay's freshwater habitats have given way to farms, highways and homesites, the ibis have had to forage farther and
                farther to find crayfish for their young, or resort to feeding them the more readily available fiddler crabs. Experts say this
                could be one reason for their declining numbers, and another JuWication for protecting Inland freshwater lakes and ponds.


              28






                                                                                                                       DRAFT
                WATER AND SEDDIENT QUALITY                                                                          Charting the Course
                                                                                                                      for Tampa Bay

                Since the 1980s, local communities have made significant strides in improving water
                quality in Tampa Bay. The quality of the bay's water and sediments is important not
                only to the animals and plants that reside in them, but it also affects human use and
                enjoyment of the bay.

                Excess amounts of naturally occurTing and otherwise beneficial nutrients and chemi-
                cals can jeopardize the bay's health. The most striking example of this occurred from
                the 1960s to the late 1970s, when excess nitrogen from discharges of partially treated
                sewage led to excess algae growth and low dissolved oxygen and light levels in the
                bay - a condition known as eutrophication. Degraded water quality contributed to
                seagrass losses and inhibited their natural recovery by blocking light to the bay's
                underwater grass beds.

                Sediment quality also has been impacted by potentially toxic contaminants carried in
                stormwater runoff, wastewater and atmospheric deposition to the bay. Recent studies
                by the National Oceanic & Atmospheric Administration (NOAA) reveal high levels of
                these contaminants in sediments at several bay sites, including upper Hillsborough
                Bay, Boca Ciega Bay and Bayboro Harbor      .37

                New studies show that atmospheric deposition may play a much larger role in the
                bay's water quality than previously realized. These airborne pollutants, primarily
                from industrial and vehicle emissions, fall to the surface of the bay and its tributaries
                or to land, and are carried to the bay in stormwater runoff. Research financed by the
                Tampa Bay NEP indicates that about 28 percent of the bay's total nitrogen load may
                come from atmospheric deposition directly to the bay.38

                Recent attention also has focused on the problem of sanitary sewer overflows caused
                by heavy rainstorms that force some municipal treatment plants to shunt raw or par-
                tially treated sewage to Tampa Bay. Sewage overflows are of particular concern in St.
                Petersburg and Pinellas County, where low land elevations and rapid population
                growth have combined to strain existing municipal sewer and stormwater systems. In
                August 1995, St. Petersburg was forced to shunt more than 15 million gallons of raw
                sewage into canals leading to the bay when torrential rains caused sewer backups.39
                Corrective actions will be costly and will take time, but they are necessary to mini-
                mize associated water quality impacts and allay public concerns about the bay's safety
                as a recreational resource.


                Since 1974, the Environmental Protection Commission of Hillsborough County has
                conducted a comprehensive water quality monitoring program in the bay's four major
                segments. The wealth of data compiled by the Commission is the principal source of
                information for the following status and trends on bay water quality. A benthic moni-
                toring program has recently been established by the counties surrounding the bay to
                track trends in sediment quality and the abundance and distribution of bottom-
                dwelling animals.





                                                                                                                              27






           DRAFT
                                                                                                                                               0
       Charting the Course            Water clarity                                                                                            0
          for Tampa Bay               Proper water clarity is essential in maintaining the bay's ecological equilibrium. It
                                      determines how much and where submerged vegetation will grow and also enhances
                                      the aesthetic appeal of the bay. Water clarity is greatest in the lower part of Tampa
                                      Bay because of natural circulation and flushing from the Gulf. Here, visibility (based
                                      on Secchi disk measurements) extends to an average depth of 2.5 meters (8.2 feet). It
                                      naturally decreases moving up the bay, dropping to an average of approximately 2
                                      meters (6.6 feet) in Nfiddle Tampa Bay and Old Tampa Bay. In Hillsborough Bay,
                                      which has poor circulation and receives a larger share of nutrients and sediments from
                                      major rivers, average water clarity drops to 1.5 meters (4.8 feet).40

                                      Water clarity changes noticeably with the seasons, improving in cooler months and
                                      declining in summer, when warm temperatures, extended daylight and heavy rains
                                      stimulate the growth of microscopic algae (or phytoplankton), which gives the water a
                                      greenish cast. Suspended algae in the water column reduces the amount of light that
                                      penetrates to underwater seagrasses.

                                      In fact, the ability of seagrasses to recolonize the bay hinges on the amount of sunlight
                                      various grass species require, as well as shading factors, such as the amount of drift
                                      macro-algae and epiphytic or attached algal growth on grass blades. For most bay
                                      species, an estimated 20 to 25 percent of the light striking the bay's surface must pen-
                                      etrate to target depths to allow seagrass regrowth.41 The light requirement for turtle
                                      grass, the most common seagrass species in Tampa Bay, is estimated to be 22.5 per-
                                      cent at the deep edges of the grass beds.42

                                      By maintaining or slightly improving water clarity, fight conditions should be sufficient
                                      to gain back a majority of the seagrasses present in Tampa Bay in the 1950s, excluding
                                      areas that have been permanently altered  .43

                                      Concentrations of chlorophyll a are a useful indicator of algal biomass. In 199 1, mean
                                      annual levels of chlorophyll a for Tampa Bay were near their lowest point since 1974.
                                      Overall, levels from 1989 to 1994 were low enough to allow 20 to 22 percent light
                                      penetration to target depths throughout the bay.44

                                      Nitrogen
                                      Despite progress in bay cleanup, nitrogen continues to be a key focus of concern for
                                      Tampa Bay. Excess amounts of this otherwise beneficial nutrient can pollute the bay
                                      by accelerating algal growth. Excess algae reduces light penetration to seagrasses
                                      and, ultimately, depletes the water of dissolved oxygen.                                                 AM

                                      In 1993, the Tampa Bay NEP set a long-term seagrass restoration goal of 14,000
                                      acres. That goal was based on recovering seagrasses to 1950s levels, except in areas
                                      that have been permanently altered. Studies now indicate that as many as 12,000 acres
                                      of seagrass can be recovered over time by maintaining existing water quality condi-                      A&
                                      tions. That would require local communities to reduce their nitrogen loadings to the                     W
                                                                                                                                               A&
                                      bay by about 10 percent by the year 2010 to compensate for increases in nitrogen
                                      loadings associated with population growth.45 Additional seagrass recovery would
                                      require further reductions. Nitrogen loading goals for the bay will be finalized in
                                      early 1996.
              is                                                                                                                               C






                                                                                                                       DRAITF-71'
                                                                                                                   Charting the Course
                Nitpogen Loading Scenaplos                                                      Hope 8                for Tampa Bay

                                Estimates of Nitrogen Loadings
                                                 to Tampa Bay
                                                     (Tonslyr)

                      10,000  ........... ................................................................................................................... ............................................


                      8,000


                      6,000               ..................        .................. ... ........... ............


                      4,000                                                          1 4,653 tons


                      2,000
                            0 LM                                      . . . . . .. . . . . . . . . . . ..................
                                   Historical       Worst Case         Existin           Future
                                    (ca. 1938)       (ca. 1976)       (ca. 1992-&)      (ca. 201 0)

                                                                        SOURCE: COASTAL ENVIRONMENTAL, INC.
                Estimates of past, present and future loadings of nitrogen are based on computer modeling efforts.
                Most increases are expected to come from non-point sources, principally stormwater runoff.




0               The Program has produced estimates of existing and future nitrogen loadings, by
0               source and for each of the bay's seven major segments. Workshops with local govern-
0               ments to apportion nitrogen loading targets will be conducted in 1996 once these
                goals are finalized.

                Water quality improvements are attributed mainly to advances in domestic and indus-
                trial wastewater treatment and associated declines in nitrogen in effluent discharged
MIL
                from these facilities. Until the late 1970s, most sewage treatment plants operating
                along the bay pumped partially treated sewage into Tampa Bay. This nutrient-rich
                effluent was a chief cause for the pollution that sparked noxious algal blooms and
                depleted oxygen and sunlight from the bay. In 1976, the bay's total annual nitrogen
                load was estimated to be 2.5 times greater than the load computed for the years 1985
                to 1991.46


                Today, all 17 sewage treatment plants discharging to Tampa Bay and bay tributaries
                provide Advanced Wastewater Treatment (AWT), a process that can reduce nitrogen
                loadings from effluent by as much as 90 percent.47 The retrofit of Tampa's Howard F.
                Curren facility at Hooker's Point, the area's largest plant, was a catalyst in the bay's
                water quality recovery. St. Petersburg's pioneering wastewater reuse program, which
                eliminated almost all its direct discharges of treated wastewater to Tampa Bay, also
                contributed to improving water quality. Similar reuse programs now are underway in
                many other bay area communities.


                                                                                                                              28











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                                                                                                                                                                                                                                                                                                                    , ..:::: .:::.:: :::!,:,: :: 1.11 ..... ... FAaAY@:F.L:@@6d@:@@@@@@@.@:::@:,::@.@.::::..@::::::,,
                                                                                                                                                                                                                                                                                                                    ..... .-I ...I...I.... @.. , -, I... --.- -...I.- --::i::@:::::,::::,:,::::: ''....
                                                                                                                                                                                                                                                                                                                    , @...... @ -.:: , @.. ......... : @.111.1 ......
                                                                                                                                                                                                                                                                                                                    .:::::,..,..:. ],:,,:..:::::,:,:,:-,: . . . . . . . . . .,@:.i:. ,.. . : :
                                                                                                                                                                                                                                                                                                                    _: @@ .. RTHEIRVOLOGICALEFFEMA TA 4:,.-:..lF: :._,:.:::,::::.:,::::;i@i
                                                                                                                                                                                                                                                                                                                    .''I'll".I.i .: : :.:,:,:,:.
                                                                                                                                                                                                                                                                                                                    .: .,:].@.:]:l:::@j:j@:]:@::: :::::: :@::::@:::::,- :::X ,, XX :::::::::::::::,:::,-.. IN..M 8AYj.LF::.:x
                                                                                                                                                                                                                                                                                                                    I.. I.. ..,-:,:::: F:::.:.,.,..- I...... ., -:,.@ ,:]:.
                                                                                                                                                                                                                                                                                                                    ,:,::.@:,.! I --,,X::::::: .1 - I..,.,.. , ,::::@X:. ,:.:,:.,, ... :::: - -
                                                                                                                                                                                                                                                                                                                    .1.11'..'' ... --. :: .,-.,--... . ...... ... I .1 --,,,..-,,.
                                                                                                                                                                                                                                                                                                                    I @: s.,@..: I 1.-...- -..-,,..,-:---,- ,:i:::::::::: ::::i,:i:::: ......... :.:::.,::,::: ...I.I.I., '..."I.I..
                                                                                                                                                                                                                                                                                                                    ,::I., FIT ,. .. , I I.... ...... il.i..
                                                                                                                                                                                                                                                                                                                    -::::.. @.,!:-,:. 1:@@@@@.@.@,@@:@@@@@@@@@P.ELS@ARE@pw@D:11 T'.., @....@....... @@.-,...I.... -...
                                                                                                                                                                                                                                                                                                                    .1.., . I . ; v. I..... I...@...... .. --.- ..... ''I'll-l"..
                                                                                                                                                                                                                                                                                                                    -::: : ::::..: ... ,::-.. .". :,GITEU:N.:,:HlS, ::.:::: ....:...... :..., .1 .... @. @ @.. .. @. ,:;: i... ,''.., @ -
                                                                                                                                                                                                                                                                                                                    ., ........ .F. ......-@ i @::: , @ :@ .........@
                                                                                                                                                                                                                                                                                                                    ,:..::..:.,: ,:-@:: 11- ... :,:,@%:.:: @,4::: :::il,-@: ::::i.', ..... ...-:--:: ,:,::@X,:': "''I ..... ....... I'l-,"..'..." I: -,-- I @ ....
                                                                                                                                                                                                                                                                                                                    ,... ...-.,;:::,.:: X :.: .. ,,,.... . '', .11 -..... .,...,.,.,.,.,., ..... -, .. ...... @ @.. :::::::
                                                                                                                                                                                                                                                                                                                    I .. i,-1 @ i : I I -I...I... .1.1 ....
                                                                                                                                                                                                                                                                                                                    ,, i:@::@ ,
                                                                                                                                                                                                                                                                                                                    . .,, i,. -::::::: . :: :::@::::: ....... ,:::.:::
                                                                                                                                                                                                                                                                                                                    -.0 , :::::::]:-: ... @ ::-: ...... :::::,:::::::@:,:::::::'',.:::::::::::,:::,::,:::,:::::::
                                                                                                                                                                                                                                                                                                                    -1                                     31
                                                                                                                                                                                                                                                                                                                    -
                                                                                                                                                                                                                                                                                                                    -
                                                                                                                                                                                                                                                                                                                    /


                                                                                                                                                                                                                                                                                                                    -






              DRAFT
          Charting the Course
             for Tampa Bay                        Toxics of Concem fOP TaMpa Bay



                                                               . .. . ...........
                                                                                                                                                            ............ ...........
                                                                                                                                                               .............. ....         40
                                                                                                                                             .....................

                                                                                                                                                                     ............
                                                                                                                                                         ....................... ....... ..
                                                                                                                                                 ... .......
                                  ......... ....                                                      . ...............


                                  Cadmium -        Potentially toxic and may concentrate in food          Common trace element widely employed in
                                  webs as it is retained for long periods in biological systems.          electroplating applications. Also present in     paints,
                                  Does not appear to accumulate in fish or undergo                        plastics, batteries and domestic sewage sludge.
                                  biomagnification, but does accumulate in sediments. High
                                  levels of cadmium present in sediments from the Hillsborough
                                  Bay/Lower Palm River, Allen's Greek, Cross Bayou and Boca
                                  Ciega Bay.
                                  Chromium - Exhibits varied levels of toxicity in different              Atmospheric sources include alloy and metal production,
                                  fish species. Also listed as a mammalian carcinogen. Highest            coal combustion, waste incineration, cement production.
                                  levels in bay sediments found in Hillsborough Bay near the              Direct sources include electroplating/metal finishing,
                                  mouth of the Alafia River, in Boca Ciega Bay near Cross                 wastewater treatment plants, iron/steel foundries and
                                  Bayou, and near Bayboro Harbor.                                         other industrial applications, residential runoff and
                                                                                                          phosphate fertilizers.
                                  Copper - Widely distributed in the natural environment,                 Large number of human-induced sources to marine
                                  but also demonstrates acute toxicological effects at small              environment, including oil and fuel combustion,
                                  concentrations above essential levels. Exceedingly toxic to             antifouling paints, metal cleaning operations, plating
                                  aquatic biota. Highest levels in bay sediments found in Boca            baths and rinses, commercial pigments and dyes, wood
                                  Ciega Bay near Cross Bayou, in Hillsborough Bay near the                preservatives, leachate from copper pipes, domestic                              0
                                  Alafia River and Davis Islands, and in Middle Tampa Bay near            sewage sludge, and copper sulfate used to control                                0
                                  Bayboro Harbor and Papys Bayou.                                         algae in reservoirs.                                                             49
                                  Lead - Causes a number of acute and chronic human health                Largest source of lead to the environment originates
                                  impacts, and accumulates in sediments. High levels found                from its past use as a gasoline additive and from
                                  in bay sediments from Hillsborough Bay nearthe Alafia River,            atmospheric deposition from auto emissions. Paint,
                                  the lower Hillsborou'gh River, and Boca Clega Bay near Cross            batteries and domestic sewage sludge also are potential
                                  Bayou.                                                                  sources.
                                  Mercury - Naturally occurring in the environment, but                   Atmospheric sources include municipal waste                                      0
                                  also bioaccumulates in biota, causing acute toxicity at high            incinerators, fossil fuel combustion, paint additives                            a
                                  concentrations. Sublethal effects include behavioral changes            (restricted by 1992), and re-emission from land sources.
                                  in invertebrates and birds, growth reduction in fish and algae,         Used to produce batteries, electric switches and other
                                  and impairment of senses and physical and mental                        electronic devices. Moves in sediments and water, and
                                  development of children.                                                through bio-transportation.
                                  Zinc - Toxic at high concentrations and widespread in the               Major application is coating of other metals to protect
                                  environment. Highest levels in bay sediments found in Boca              against corrosion. Used widely as a component in
                                  Cie0a Bay near Cross Bayou and in Hillsborough Bay near                 batteries and tires. Sources include municipal
                                  the Alafia River.                                                       wastewater and sludge, direct industrial discharges,
                                                                                                          surface runoff, and atmospheric deposition.


                                  DOT - Animal and potential human carcinogen; biomagnifies               Formerly used to control a broad spectrum of
                                  in organisms and persists in the environment. Caused wide-              agricultural, silvicultural and household insect pests.
                                  spread contamination of fish and wildlife, especially during
                                  1960-80. Banned in 1972. DDT remains in sediments at
                                  several bay sites. Highest concentrations are reported at
                                  northern Boca Ciega Bay, northern Hillsborough Bay and near
                                  the Alafia River and Papys Bayou.






                                                                                                                                                     DRAFT
                                                                                                                                                 Chart ng the Course
                                                                                                                     Figupe 10                      for Tampa Bay



                                                      ... .......
                                                         . ....... ..    ....... .... .
                                                                                   ..........
                          tontam nan. M


                             Chlordane      - Environmentally persistent insecticide used             Farmers used granular chlordane mixed with fertilizers
                             extensively in termite control and also to control certain agricultural  for broad-spectrum insect control on fields. Also
RW                           insects. Banned in 1988. Concentrations of chlordane at northern         applied occasionally as a liquid spray for some
                             Boca Ciega Bay, Papys Bayou, Mullet Key and northern Hillsborough        beetles, and on golf courses. Agricultural and urban
                             Bay were the highest of any sites measured in the bay.                   runoff are among the major documented sources.
                             Mirex - Neuro-toxic pesticide; also known as Dechlorane.                 Widely applied by aircraft to control fire ants on
                             Sublethal effects in the marine environment include decreased            pastures between 1965 and 1978. Also used as fire
dh                           algal growth, reduced fish growth, disrupted blue crab behavior,         retardant in electrical components, fabrics and
4W                           reduction in body weight and body lipid in salmon. Sublethal             plastics. Sewage sludge also a potential source.
                             effects in birds include reduced reproductive capacity. Causes
                             tumors in rats and mice. Mammalian symptoms include weight
                             loss, enlarged livers, altered liver enzyme response, reproductive
                             failure, fetal abnormalities including cataracts, heart defects,
                             scoliosis and cleft palate. Concentrations of mirex in oysters from
                             Tampa Bay are relatively high compared to many other sites around
AL
                             the nation. Production of mirex discontinued in 1977. Highest
                             concentrations in bay sediments at Boca Ciega Bay, Mullet Key
                             and Cockroach Bay.
                             Endasulfan - Hazardous neuro-toxic pesticide with acute                  Introduced about 30 years ago and widely used to
                             toxicity to marine organisms, high bioconcentration factor and           control winged insects associated with many row
                             fairly long half-life. Although not widely sampled for in Tampa          and field crops. Applied as a liquid spray to crops.
                             Bay, endosulfin has been recorded in sediments from Cockroach
                             Bay and in stormwater from an industrial park in West Tampa.
                             Oleldrin - Pesticide for soil-dwelling insects including termites.       Widely used from 1950-1974 to control soil insects
                             Sublethal effects include starvation, liver damage, immunological        on cotton, corn and citrus. All uses banned in 1985
                             suppression, decreased fertility, postnatal mortality. A carcinogen      except subsurface termite control and some
                             for some animals and a mutagen in cell cultures. Highest levels          mothproofing. Dieldrin is a breakdown product of
                             in bay sediments reported at the mouths of the Hillsborough River        the pesticide aldrin, both of which are long-lasting
                             and Boca Ciega Bay.                                                      in soils and not highly water-soluble.


                             PCBS - Among the most persistent and toxic of organic                    Formerly employed in a wide variety of industrial
                             compounds. Most risk of cancerfrom consumption of contaminated           applications including insulation in electrical
                             seafood attributed to PCBs. Biomagnifies. Manufacture ended in           capacitors and transformers; paints, additives,
                             1976. PCBs at sites in Hillsborough Bay exceed Florida's Probable        adhesives, and caulking compounds; hydraulic fluids.
                             Effects Level (PEL) for biological effects from toxic contaminants.      Sources to environment are varied including direct
                             PCBs also found in sediments at Boca Ciega Bay near Cross                discharge from production facilities into municipal
                             Bayou.                                                                   sewage systems, leaching from disposal sites, refuse
                                                                                                      incineration and reuse of transformer oil.
                             PANs - Many PAHs are potent carcinogens or mutagens. Highest             A group of related compounds present in crude oil
                             levels in bay sediments found in Hillsborough Bay near Davis             and its products, released to the atmosphere during
                             Islands and the Alafia River, Boca Ciega Bay, and Middle Tampa           combustion. Also released from burning of non-
                             Bay near Papys Bayou.                                                    petroleum substances, such as wood (brush fires).
                                                                                                      Sources include treated sewage, stormwater runoff
                                                                                                      and oil spills. Suspected sources include aerial fallout,
                                                                                                      petroleum refinery wastes, and discharges of drilling
                                                                                                      fluids.






                                                                                                                                                              33




                                                                                                                                                                                                       0
                                                                                                                                                                                                       0
               DRAIF"i-l'
          Charting the Course
              for Tampa Bay                           Existing Annual Nitpogen Loadings to Tampa Bay                                                                  Rg. 11
                                                      by Bay Segment (1992 - 1004 avepage)


                                                                                                                  Hillsborough Bay
                                                                                                                  982 tons/     52.9%
                                                                                                                  121 tons/       6.5%
                            Old Tampa Bay                                                                         322 tons/      17.3%
                                                                                                                  236 tons/      12.7%
                            172 tons/ 34.5%                                                                       195 tons/      10.5%
                            250 tons/ 50.1%                                                                       Total 1,856 tons
                            77 tons/ 15.4%
                            <1    ton/ 0%
                            Total 499 tons
                                                                                                                                        Tampa                                                          0

                                                                                                   .... ... .....

                                                                                                       ............


                                                             ... .. . .....
                                                       ...... .....

                                                                                                        Old TO
                                                                     Clearwater

                            Middle Tampa Bay
                                                                                                      .............
                                                                                                                       ......................
                            340 tons/ 48.2%
                            339 tons/ 48.1 %
                            26 tons/ 3.7%
                                                                                                                                                  ........ .. .....
                            <1 ton/              00/10
                            Total 705 tons
                                                                                                                                                      Wb          A
                                                                                                                               ...........         Hi 4            W@@.
                                                                                                                             .......... . .
                                                                                                                                                               Ug...
                                                                                                                                                      .......... Hr
                                                                                                                       ........ ..


                                                                                   St. I e ersburg                     . .....
                                                                                                                                                                                                       49


                                                                                                                                        ........... .......
                                                                                                                                        ........ ...........
                            Boc i Cie a Bay                                                                       .. . ........
                                                                                                                                                                ..........
                            83 tons/ 43.2%
                            106 tons/ 55.2%
                            3 tons/ 1.6%
                                                                                                              ... ...................
                            Total 192 tons
                                                                                                                                          . ........ ......
                                                                                      :Clega..

                                                                                                                  .... ........
                                                                                                                       . . .. ........ ..-


                                                        ...........                                               .. .........
                                                                                                                                        Terra Ceia Bay
                                                                                                     ............. ....
                                                                                                                       ... .........    10 tons/ 29.4%
                                                                                                                                        20 tons/ 58.8%
                                                                                                .... .........  ............
                            Lower Tampa          Bay
                                                                                                                                  W4 tonst 11.8%
                                                 %
                        al         ton/ 0.3
                            302 tons/     2.7%                                                                                          Total 34 tons
                                          8
                                  tons/   9.9%                                                                                                                                                         VIP
                            36
                                                                                         . ............-.. ..........
                            26 tons/      7.1%
                            <1 ton/              0%
                                                                           ............
                                                                                 .... . ........  . . .......
                            Total 365 tons
                                                                               ......              .......
                                                                                                         ..... .. ............. ...
                                                                                     er
                                                                                 LOW
                                                                                         ..........

                                                                                       ..........
                                                                  ......................
                                                           ...... . ............
                                                             ... ...... ....
                                                        ...........
                                                                                                                       7W*id Ceba


                                                                . ............  ...........                       vv-
                                                                                     ..............

                                                                                                                                          . .........
                                                                                                ....... ....  ......
                                                                                            ..........
                                                                                                                  .... ....               .... .
                                LEGEND                                                                            :M           R'

                                       Stormwater Runoff                                                                                                                                               Aft
                                       Atmospheric Deposition
                                       Industrial & Municipal Point Sources
                                       Fertilizer Material Losses                                                                  Manatee River
                                       Springs & Groundwater                                                                       384 tons/ 63.3%
                                                                                                                                   53 tons/ 8.7%
                                                                                                                                   170 tons/ 28.0%                                                     7.
                    34                                                                                                             Total 607 tons









91h

                                                                                                                    unm
               Toxic contaminants                                                                               Charting the Course
               Toxic contaminants represent the other primary focus of concern for water quality                   for Tampa Bay
               managers in Tampa Bay. Toxics of concern, identified in Figure 10, include various
               trace metals, pesticides, polychlorinated biphenyls (PCBs), and polynuclear aromatic
               hydrocarbons (PAHs).48   These substances, some naturally occurring and others syn-
               thetic, can be damaging or deadly to marine life when present in sufficiently high
               concentration; in addition, they have the potential to negatively affect human health.

               Recent studies by the National Oceanic and Atmospheric Administration (NOAA) in
               cooperation with the Florida Department of Environmental Protection provide the
               most complete assessment to date of toxic substances of concern and their distribution
               in Tampa Bay.49   Overall, Tampa Bay has relatively low to moderate levels of most
               toxic parameters when compared to other urban estuaries. Contamination appears to
               be centered around large urban centers, ports and marinas, and concentrations general-
               ly diminish from the top of the bay toward the Gulf.

               However, the studies revealed relatively high levels of contaminants from some local
               sites when compared to others in Southwest Florida. Generally, Hillsborough Bay -
               the bay's most industrialized sector and home to the state's busiest port - revealed
               the highest levels of contamination among bay sites. Upper Hillsborough Bay
               revealed the highest levels of cadmium, copper, mercury, zinc and lead, as well as the
               pesticide DDT, which has been banned for more than two decades. Concentrations of
               chlordane in sediments at a site in northern Hillsborough Bay were the highest of any
1W             toxic constituent measured in Tampa Bay.50
a
10             Boca Ciega Bay and St. Petersburg's Bayboro Harbor, which both border heavily
AL             urbanized areas, also ranked among the area's hot spots of contamination.
-W
dffik@
4W
               Concentrations of toxic contaminants in sediments at several bay sites exceeded
               Florida's Probable Effects Level (PEL), indicating a high probability for biological
               impact to marine organisms (see Figure 9).11 Low levels of liver lesions were found
               in catfish from one site in Hillsborough Bay.52

               Pesticides in sediments and oysters in Tampa Bay were in the mid-range of concentra-
               tions for sites sampled by NOAA around the nation. However, concentrations of
               chlordane and mirex (no longer manufactured in the United States) in oysters from
               Tampa Bay were relatively high when assessed on the national scale. Among mollusk
               samples from the 200 NOAA sites, Cockroach Bay in rural Hillsborough County
               ranked third nationally in 1988 in total chlordane concentration and fifteenth overall
               for a three-year period. Among Tampa Bay sites, Boca Ciega Bay had the highest
               concentration of total pesticides.53 The pesticides DDT, endrin and endosulfan were
               recently found in surface waters receiving runoff from the Cockroach Bay drainage
                     14
               basin.


               Although levels of contamination documented locally pose no known risk to humans,
               effects of repeated exposure to low levels of contamination remain largely unknown.
               Some contaminated sediments remain inert or inactive for many years, but become
               disturbed by dredging, shipping, storms or bottom-dwelling organisms. Bottom-
               dwellers that filter contaminated sediments - and the fish, birds and humans that ulti-
               mately consume them - may be subject to risk, since some toxic substances increase
               in concentration as they ascend the food chain.                                                            35




                                                                                                                                                  0
                                                                                                                                                  0
           DRAFT
        Charting the Course.            Pollution Pathways and Sources
          for Tampa Bay                 Nitrogen and toxic contaminants follow several pathways to the bay, entering through
                                                                                                                                                  0
                                        stormwater runoff from urban, residential and agricultural lands; atmospheric deposi-                     0
                                        tion (pollutants transported to the bay in rainfall and dryfall); and municipal and                       0
                                        industrial wastewater discharged to the bay. Septic tanks and spillage of fertilizer                      0
                                        product in handling and transport also contribute to nitrogen loadings in localized bay
                                        sectors.
                                        Sources of nitrogen include nitrogen oxides from power plant and vehicle emissions                        0
                                        (entering the bay from the atmosphere); treated effluent from municipal and industrial                    0
                                        wastewater plants; fertilizer from yards and farms; leachate from septic tanks and small                  0
                                        package treatment plants; and animal wastes entering the bay in stormwater runoff (see                    0
                                        Figures 11 and 12). Sources of potentially toxic contaminants include metals and                          a
                                        chemicals in industrial and municipal wastewater; pesticides from yards and farms;
                                        contaminants from roadways and paved surfaces washed into the bay in stormwater
                                        runoff, and industrial and vehicle emissions.                                                             0
                                                                                                                                                  10
                                        STORMWATER RUNOIFF                                                                                        0
                                        Stormwater runoff from the Tampa Bay watershed contributes about 47 percent of the                        0
                                        bay's total annual nitrogen load.55 Runoff also conveys more than 60 percent of the                       0
                                        annual loadings from each of the following metals: chromium, zinc, mercury and lead,                      is
                                        as well as significant amounts of other potentially toxic pesticides and substances.
                                        Atmospheric deposition and municipal and industrial wastewater transport the bulk of
                                        remaining pollutants.56

                                        Many toxic contaminants enter the bay attached to fine-grained particles in stormwa-
                                        ter runoff. Consequently, total suspended solids (TSS) also are regarded as a pollu-
                                        tant. Solids suspended in the water are of further concern because they reduce water
                                        clarity and sunlight available for seagrass growth. Paved surfaces increase the flow of
                                        runoff and associated pollution from runoff by preventing natural filtration.

                                        Urban stormwater runoff accounts for about 16 percent, or 680 tons, of the bay's total
                                        annual nitrogen loadings. More than half of the nitrogen in urban runoff comes from
                                        residential areas, the region's largest land use. By comparison, commercial/industrial
                                        sites account for about 20 percent of total nitrogen in urban runoff, although their per-
                                        acre contributions are higher than that of residential.57                                                 Am


                                        Runoff from intensive agricultural land uses (mostly citrus and vegetable production)
                                        contributes about 6 percent of total bay nitrogen loadings, along with sediments and
                                        pesticides. Agricultural runoff from pastures and rangelands, which cover roughly 28
                                        percent of the watershed, account for another 13 percent of total bay nitrogen load-
                                        ings. Forest and wetlands (at 8 percent) and mining (at 4 percent) comprise the
                                        remainder of nitrogen loadings in stormwater runoff.58


                                        ATMOSPHERIC DEPOSITION
                                        Coastal waters of the United States receive large quantities of nutrients, heavy metals
                                        and chemicals from the air - and Tampa Bay is no exception. Until recently, atmos-
                                        pheric deposition (pollutants carried in rainfall and dryfall, which consist of small par-
                                        ticles and aerosols) had not been identified as a significant problem for Tampa Bay.
              38                                                                                                                                  AZ







                                                                                                                                                                                      UhAr I
                                                                                                                                                                               -Charting the Course
                        Soupces of Nitpogen Oxide                                                                                              Rgupe 12                             for Tampa Bay


                                               Sources of NOx (Nitrogen Oxide)
                                                              SOURCE: MOTE MARINE LABORATORY, 1994


                                TH-County Tampa Bay Region                                                        State of Florida
                                  Total: 160,000 tons per year                                           Total: 737,000 tons per year







                                                      .............

                                                      .............
                                ::35%'
                                .............         .............
                                ................      ..............

                                                      .............
                                ................      .............
                                                      .............

                                                      . .........


                                    ..........
                                    ...........
                                                      ...............

                                ............
                                                                                                                                                3%
                                                      ...............
                                                                                                                                             NEEL-
                                Mobil    e            Utilities          Other                       Mobile              Utilities            Other
                                                                     Stationary                                                            Stationary
                                                                       Sources                                                              Sources


                        Studies now suggest that about 28 percent of the bay's total nitrogen loadings are
                        from atmospheric pollutants falling directly on the water.59

                        Nitrogen loadings from atmospheric deposition are actually much higher when pollu-
                        tants falling in the watershed are included, since many of these will eventually enter
                        the bay in stormwater runoff. About 1,200 tons of nitrogen fall on the open bay each
                        year in rainfall and dryfall. An additional 7,500 tons fall in the watershed, although
                        experts can't say how much of that reaches the bay. EPA estimates that as much as
                        67 percent of the bay's total nitrogen load could come from the atmosphere.60
4W
                        Between 1995 and the year 2010, nitrogen loadings to the bay from all sources are
                        expected to increase 10 percent, or about 27 tons per year.61 But those figures do not
                        include changes that may occur if power plants around the bay convert their oil- and
                        coal-fired facilities to a less expensive Venezuelan fuel called Orimulsion. Florida
                        Power & Light (FP&L) already has received conditional regulatory approval to bum
                        Orimulsion at its Port Manatee plant, although the utility still faces administrative
                        hearings and must receive approval from the Governor and Florida Cabinet.

                        Preliminary estimates show that the quantities proposed for use could add another 30
                        tons of nitrogen per year to the bay62
                                                                                      An advanced pollution control technology
                        called re-burning could lower nitrogen emissions associated with Orimulsion, but the
                        technology is still untested in the United States and will only be tested on one of the
                        two FP&L units converting to Orimulsion. If re-burning proves successful, and both
                        units are converted to Orimulsion, state officials estimate that nitrogen emissions
                        could be reduced substantially.

                        Several forms of nitrogen are contained in rainfall and dryfall to Tampa Bay.
                                                                                                                                                                                                 37






           DRAFT
       Charting the Course             Nitrogen oxides (NO.) - mostly linked to power plant and vehicle emissions - are
          for Tampa Bay                chemically transformed in the air, eventually returning to the Earth in aerosol or dis-
                                       solved forms, such as nitric acid and other soluble nitrates in rainfall. Combined
                                       emissions from motor vehicles and power plants contributed almost 70 percent of the
                                       total nitrogen oxides that fell to the earth in United States in 1984. Industrial sources
                                       provided another 15 percent  .63

                                       In the Tampa Bay region, stationary sources (primarily power plants) contribute an
                                       estimated 50 percent of the marimade NO. emissions as compared to 35 percent from
                                       motor vehicles.64 But researchers can't say how much of the local emissions actually
                                       are deposited in the region, since airborne contaminants may travel hundreds (or even
                                       thousands) of miles before settling to Earth. Experts also can't pinpoint what portion
                                       of nitrogen loadings from the atmosphere comes from natural sources, such as light-
                                       ning. Additional research on natural and marimade sources and the relative contribu-
                                       tions from local and distant sources is needed to effectively manage atmospheric
                                       deposition in Tampa Bay, which is expected to increase as population, power con-
                                       sumption and motor vehicle traffic grows.65

                                       Toxic substances also enter the bay from the atmosphere in large quantities. For
                                       example, studies estimate that 44 percent of the bay's total cadmium loading, and                       0
                                       about one-sixth of its copper and lead loadings, come from the air  .66 PAHs also enter
                                       the bay from the atmosphere, although loadings and specific sources are unknown.
                                       PAHs are associated with fossil fuel combustion, such as power plant and motor vehi-
                                       cle emissions and waste incineration.                                                                   0


                                       WASTEWATER
                                                                                                                                               0
                                       While advances in wastewater treatment and increased regulation have helped reduce
                                       pollution, sewage treatment plants and industries discharging directly to the bay
                                       ("point" sources) still contribute substantial pollutants to Tampa Bay.
                                       Sewage treatment plants in the watershed contribute about 8 percent (or 340 tons) of                    0
                                       the bay's total annual nitrogen loadings.67 Although all sewage treatment plants with                   's
                                       surface discharge to the bay or bay tributaries now provide Advanced Wastewater
                                       Treatment, roughly 36 billion gallons of effluent are still discharged to the bay each
                                       year, with Hillsborough Bay receiving the largest portion. In 1991, this sector received
                                       two-thirds of the cumulative nitrogen load from domestic wastewater treatment plants
                                       discharging to the bay.68

                                       Wastewater discharged from industrial facilities in the Tampa Bay watershed is                          0
                                       responsible for about 6 percent of total nitrogen loadings .69 The largest categories of                Ah
                                       industrial sources are fertilizer manufacturing and shipping facilities.

                                       Industrial and municipal point sources also are a major pathway by which toxic sub-
                                       stances enter the bay, contributing roughly 30 percent of the bay's total loadings of
                                       arsenic, cadmium, chromium and copper, as well as low levels of other contami-
                                       nants.70 Homeowners also contribute by discarding toxic cleaners or solvents that                       V
                                       local sewage treatment plants cannot completely remove.










                                                                                                                                1@
                OTHER SOURCES                                                                                     Charting the Course
                Septic tanks, which are estimated to serve about 20 percent of the watershed's popu-                 for Tampa Bay
                lace, also are a key part of the pollution puzzle in localized sectors of Tampa Bay.
                Preliminary studies by the Southwest Florida Water Management District suggest that
                nitrogen loadings from septic tanks, as well as septic waste and sewage treatment
                sludge, may be substantial in some areas.71 Septic systems located near the bay pose a
                particular threat to water quality, since most septic tanks are not designed for nitrogen
dik             removal.


                High densities of mostly older septic tanks can contribute to degraded water quality
                (nutrients and pathogens) in creeks where circulation is limited and the water table is
                near the ground surface. Pinellas County's Allen's Creek and several creeks in
                Hillsborough County are among those thought to be at risk.72 Septic tanks along trib-
                utaries leading to Tampa's McKay Bay also are believed to be a problem.71 Springs
                that feed into the bay's rivers and smaller tributaries also may be impacted by septic
                tank leachate, especially in areas with very porous soils.74

                Another 7 percent of the bay's total nitrogen loadings had been attributed to losses of
                fertilizer - product lost during shiploading and landside en route to port.71 However,
                this figure has substantially declined since these estimates were developed in 1991 as
                a result of efforts to improve portside facilities.


                DREDGING AND DR-EDGED
                MATERIAL MANAGEMENT

                    ampa Bay supports three major seaports and a growing cruise ship industry that
dft             Tcontribute more than $5 billion annually to the region's economy. The Port of
                Tampa is the state's largest port and consistently ranks among the top ten in the nation
                in trade activity. Smaller ports at Port Manatee and St. Petersburg also contribute sub-
                stantially to the region.

                Maintaining the bay's vast transportation network requires ongoing maintenance
                dredging and disposal of sediments that accumulate in shipping channels (see Figure
                13), activities that have dramatically changed the bay bottom. The Tampa Harbor
                Deepening Project, begun in 1972 and completed in 1988, required the removal of
                more than 100 million cubic yards of bay bottom. Another one million cubic yards of
                material - enough to fill 100,000 dump trucks - is removed from the bottom of the
                bay each year at an estimated cost of $10 million to service the bay's three major
                     76
                ports.


                With an average depth of only 12 feet, regular dredging of the bay is necessary to
                serve ships entering the bay. The main shipping channel has been dredged to a con-
                trol depth of 43 feet to allow safe passage of large cargo vessels.77

                In areas of impact, dredging can cloud bay waters, inhibiting light penetration neces-
                sary for seagrasses. Dredging also smothers bottom-dwelling animals and can release
                substances such as ammonia, which can contribute to algal blooms, from the sediments.
                                                                                                                             38






                           DRAFT
                  Charting the Course.
                        for Tampa Bay                                                                 Tampa Bay Shipping Channels and Spoil APeas                                                                                                                              HguPe 13




                                                                                ... . ..... ......    ...........


                                                             .........                                . .....
                                                             .... ..........


                                                                                ..........
                                                             ....................




                                                                                ..........
                                                                                ....... .....
                                                                                                                                                                 . ...............
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                                                             ............
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                                                                                                                                                                                  :IX

                                                                                                                                                                                              .................

                                                             ..........
                                                             ............. .
                                                             ...........

                                                             ............




                                                                                                                                                                               . ............
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                                                                                                      xx
                                                                                                                                                                                                                                -XXV:
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                                                                                                                                                                                                                                 .................... ...............

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                                                                                                                                                                                                                                                ......... .
                                                                                                      .... ......
                                                                                ................
                                                                                                                                                                                                                   NO
                                                                                                      ............
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                                                                                                                                                                                ..... ..........
                                                                                                                                                                                        ............-
                                                                                                                                                                         . ...........
                                                                                                                                                                                ... ..........                                 .....
                                                             ..........
                                                             ................
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                                                                                                                                                                                                                      F ......... .......
                                                                                ................                                                                                                    x:.x
                                                                                ............. ...
                                                                                                      ..........
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                                                                                ... ..........        X
                                                                                .... .... ...
                                                             .....              ....... ........      ..........


                                                                                ... .......           ...........

                                                                                                      .. ..............-
                                                             ..........
                                                                                  .............
                                                             ..........
                                                                                ............................
                                                             .............................................
                                                                                ................
                                                             .............                            ..........



                                                                                                                                                                            .................
                                                                                                                                                                           ....................
                                                                                ...................
                                                                                                                                                                             ...........
                                                                                                                                                                             .................
                                                                                                                                                                             ................
                                                                                                        .........................-
                                                                                                           --xx:
                                                                                                                                                                                .. ..........
                                                                                                                                                                                   ...... ........
                                                                                                                                      .......................
                                                                                                      ...........
                                                                                ............... .............

                                                                                .... .......
                                                                                                                    ...........   . ....... ....-
                                                                                                                                                                                                                LEGEND
                                                                                                                                           ...........
                                                                                -X..X                 .... ..            F   d-:::::  . ....
                                                             .................
                                                                                                                                                                                             ......... ..
                                                                                                          ..........
                                                                                                                                -.. 1,14. I.I.@.@.@....:....".."""..... :::: .... .... . .
                                                                                                          ................ ............-                                                        .:..:
                                                                                                      ..........                                                                   . .......
                                                                                ........              . ....
                                                                                                                                                                                     ............
                                                                                                                                                                                                                                  Land
                                                                                                                                                       ...............                ...........
                                                                                                                                                                                      .............
                                                                                                         ......... .........
                                                             ..........
                                                                                                                                                                                                                                  Approved Spoil Areas
                                                                                                                                                          .....    ........
                                                                                                                                                                                                                                  Spoil Islands

                                                                                                      ................
                                                                                                                                                                                                                                  Shipping Channels
                                                                                                                                                              ...                          ........... .
                                                                                                                                                             ....                            .. .....  ....
                                                                                                                                           .. .. . ........
                                                                                                      ...............
                                                                                                      ............                   ...
                                                                                                                                   . ...... ...
                                                                                                                                             ..........-
                                                                                                      ...............
                                                                                ..........            .. . ...........

                                                                                                                                                                                                                                         SOURCE: COASTAL ENVIRONMENTAL, INC.







                                  48
                                                                                                                                                                                                                                                                                                                                            40





                                                                                                                -DRAFT
               Long-term disposal of dredged material and expansion of existing channels represents              Charting the Course
               the greatest challenge in the absence of coordinated planning. Currently, Tampa Bay                  for Tampa Bay
               has two approved disposal sites within the bay on large maninade islands owned and
               operated by the Tampa Port Authority. At current usage, these islands may serve the
               disposal needs of the upper bay for another decade.

               Officials are exploring options to extend the life of those sites by as many as 20 years
               by raising the dikes around them to accommodate more material.78 But beyond then,
               the upper bay's long-term disposal needs are unresolved - even though annual main-
               tenance dredging is expected to continue to produce one million cubic yards of mater-
               ial annually and some construction dredging is anticipated.

               EPA has approved designation of an ocean dumping site 18 miles offshore in the Gulf
               of Mexico to accommodate approved materials from the middle and lower parts of
               Tampa Bay. Port Manatee currently utilizes upland disposal sites for its dredged
               material.


               Added dredging and disposal needs for the bay's smaller private, industrial and com-
               mercial ports, and numerous residential canals, are unaccounted for, though they are
               likely to be substantial and must be assessed in developing environmentally sound,
               long-term management strategies. Currently, owners and users of these facilities and
               throughways must apply for separate federal, state and local permits and develop
               independent spoil disposal options, which are not now represented in any strategic
               plan.

               Effective long-term planning and coordination among ports, the Corps of Engineers,
               and environmental and business interests is needed to explore long-term disposal
               options and to minimize the ecological impacts of dredging and maximize beneficial
               uses of spoil.


               SPILL PREVENTION ANDRESPONSE

               M
                      ore than four billion gallons of oil and other hazardous materials pass through
                      Tampa Bay each year on large vessels that must navigate relatively narrow
AL             channels. Another 18 million tons of refined fertilizer products and phosphate rock
               are exported from the bay area annually.79 The fertilizer's hazardous compounds, sul-
               furic acid and anhydrous ammonia, routinely traverse the bay en route to fertilizer
               processing facilities.

               While this bustling nautical highway brings billions of dollars in economic rewards to
               the region, it also poses an environmental risk to the bay and underscores the need for
               effective spill prevention and response.

               That risk was brought home to area residents in a dramatic way in August 1993, when
               two barges and a tanker met near the mouth of the bay in a fiery collision that resulted
               in a spill of nearly 330,000 gallons of oil.10 Winds and tides pushed most oil offshore,
               and the quick response of federal, state and local agencies and the maritime industry
               helped to spare the bay serious damage. Still, oil coated hundreds of seabirds, fouled
                                                                                                                           41






           DRAFT
       Charting the Course             area beaches and blanketed small mangrove islands in the Intracoastal Waterway, with
          for Tampa Bay                cleanup costs bome by industry and government exceeding $50 million."

                                       Cooperative efforts led by the U.S. Coast Guard, Florida Department of Environ-
                                       mental Protection and Tampa Bay Regional Planning Council have been lauded for
                                       providing critical advance planning and response for such accidents. Local govern-
                                       ments, shipping interests and local utilities are also a part of this local advance plan-
                                       ning network. However, the spill pointed out several important equipment, planning
                                       and navigational needs that could help avoid similar tragedies in the future. In
                                       particular, officials have pledged renewed efforts to focus on ways to prevent spills
                                       from occurring.

                                       Thanks to existing safety protocols, large spills have been relatively rare in Tampa
                                       Bay. In fact, small spills averaging 25 gallons or less constitute 95 percent of the 422
                                       spills reported in the Tampa Bay region from April 1993 through September 1995.82
                                       Many more small spills go undetected. Efforts to address these smaller, chronic dis-
                                       charges are vitally important, since their cumulative impacts may be substantial.

                                       Small spills occur frequently at dockside as boats are refueled. Oily bilge water also
                                       enters the bay from smaller craft when bilge pumps are discharged. Leakage and                            0
                                       spills of oil and hazardous materials from storage tanks, surface and subsurface                          0
                                       pipelines and material-handling accidents and fires also pose a potential threat to the
                                       bay.
                                                                                                                                                 0
                                       The region is currently equipped to handle spills of up to 10,000 gallons on Tampa
                                       Bay. Larger spills require additional support equipment and personnel from through-
                                       out the state and Gulf region.83 Federal regulations requiring double hulls on all oil-
                                       carrying ships constructed after 1997 will assist spill prevention efforts. Existing oil-                 40
                                       transport vessels will be phased in, with retrofits beginning in 1995 and completed by
                                       2015.14
                                                                                                                                                 0
                                       However, no effective containment methods are available for addressing a major                            Aft
                                       release of water-soluble compounds, such as anhydrous ammonia or sulfuric acid,
                                       which could be devastating to the bay environment.

                                       U.S. Coast Guard statistics reveal that 85 percent of all accidents resulting in spills
                                       stem from human error, not natural conditions or equipment failures.85 These statistics
                                       have important ramifications in Tampa Bay, which has the longest transit of any
                                       Florida port (more than 40 miles) and no coordinated vessel tracking system for com-
                                       mercial vessels.


                                       Ship navigators currently rely on a voluntary broadcast network to relay vessel infor-
                                       mation and destinations when entering and departing port. Large vessels are equipped                      A
                                                                                                                                                 t
                                       with shipboard radar, but the quality and range of these systems vary. In fact, limited                   go
                                       navigational equipment on board some vessels forces pilots to rely heavily on person-
                                       al experience and skills to safely complete each transit.






              42







                                                                                                                              U,
                                                                                                                           Charting the Course
                 The mate of Bay                                                                                             for Tampa Bay
                 Management


                 INTRODUCTION

                 T
                      he struggle to understand and protect Tampa Bay has evolved in less than 25
                      years from a grass-roots citizens effort to a complex, multi-layered regulatory net-
                 work involving three counties, a dozen cities, a variety of regional and federal agen-
                 cies and numerous special interest groups. All this attention has made the bay among
                 the most thoroughly studied estuaries in the nation, but it has also resulted in a con-
                 fusing and often overlapping maze of regulations and programs that at times make it
                 difficult to discern who is responsible for what.

                 A major goal of the Tampa Bay National Estuary Program is to bring all parties with
                 an interest in the bay together to develop a blueprint for its future. Finding consensus
                 on the compqnents of the blueprint, and developing a cost-effective yet comprehen-
                 sive structure within which it can be brought to life, are keys to the Program's suc-
                 cess.


                 This chapter recaps bay management efforts to date and identifies important areas of
                 duplication and omission in the current framework. This assessment is provided to
                 assist the community in identifying obstacles to, and opportunities for, more effective
                 bay management. An inventory of existing regulatory and institutional programs is
                 being completed and will be available when the bay plan is finalized.

                 Going to Bat for the Bay
                 Tampa Bay was an early beneficiary of the burgeoning environmental activism of the
                 1970s, when a newly formed citizens group called Save Our Bay pushed for a halt to
                 uncontrolled dredging and sewage disposal in the bay. Years later, the Hillsborough
                 Environmental Coalition was formed to coordinate and unify local groups with envi-
                 roninental concerns, especially those focused on Tampa Bay. The federal government
                 also was shifting more attention to environmental needs with the establishment of the
                 U.S. Environmental Protection Agency and passage of the Clean Water Act of 1972.
                 One of the major initiatives of EPA in its early years was providing federal grants to
                 upgrade sewage treatment plants.

                 One of those grants was awarded to the City of Tampa, which had for decades piped
                 partially treated sewage into Hillsborough Bay from Tampa's Howard F. Curren
                                                                                                                                     43






           DRAFT
       Charting the Course             Treatment Plant. The sewage was believed to be a major reason Hillsborough Bay
          for Tampa Bay                was clouded with noxious algae and significantly polluted. This grant enabled Tampa
                                       to install an Advanced Wastewater Treatment system at the plant, one of the first of its
                                       kind in the country. The technological improvements substantially reduced the flow of                   40
                                       nutrients such as nitrogen, an achievement that is recognized today as a cornerstone in,                0
                                       the bay's recovery.                                                                                     0
                                                                                                                                               is
                                       Subsequent state legislation, through the Wilson-Grizzle and Grizzle-Figg initiatives,
                                       required all sewage treatment facilities discharging to the bay to meet advanced treat-
                                       ment standards.


                                       The City of St. Petersburg chose another route to address its sewage disposal prob-
                                       lems when it pioneered the first large-scale wastewater reuse program in the state,
                                       resulting in almost zero discharge to the bay.

                                       In the late 1960s, the Environmental Protection Commission (EPQ of Hillsborough
                                       County was established. Over the years, the EPC has provided a comprehensive
                                       long-term water quality record in the bay - critical for tracking and documenting the
                                       "bad old days" and the bay's progressive recovery.

                                       A decade later, the Hillsborough Environmental Coalition led efforts to fight environ-
                                       mental impacts associated with the Tampa Harbor Deepening project. The Coalition
                                       supported Manatee County's legal action against the federal government regarding the
                                       proposed dumping of dredged material from the project into the Gulf of Mexico. The
                                       group also worked to improve coordination of coastal land acquisition, efforts which
                                       would eventually lead to the establishment of Hillsborough County's Environmental
                                       Lands Acquisition and Protection Program (ELAPP). Efforts such as these reinforced
                                       the importance of bridging jurisdictional boundaries to effectively protect the Tampa
                                       Bay ecosystem.

                                       Residents continued to exert pressure to clean up the bay, and that groundswell of sup-
                                       port reached the state Legislature in the early 1980s. The Legislature established a
                                       bay study comniission composed of elected officials and interested citizens to exam-
                                       ine ways to improve bay protection. The study commission resulted in the formation
                                       in 1985 of an advisory group, the Agency on Bay Management. An arm of the Tampa
                                       Bay Regional Planning Council, the agency has become a vigilant guardian of the bay.
                                       The 45-member coalition - which includes elected officials, regulators and represen-
                                       tatives of special interest groups and local governments - has been successful in
                                       focusing public attention on bay problems and in bringing together diverse and often
                                       competing bay users.

                                       The Legislature also created the Surface Water Improvement and Management                               0
                                       (SVVIM) program in 1987 to restore and protect the state's most threatened waterways.                   40
                                       At the urging of the Agency on Bay Management, Tampa Bay was named in the                               0
                                       SWIM Act as a priority waterbody within the Southwest Flo'nida Water Management
                                       District. The SWIM program has so far expended more than $6 million of State and
                                       District funds primarily to restore bay habitats, but also to address pollution in                      0
                                       stormwater runoff.                                                                                      0
                                       Despite the progress that has been made, many bay managers believe the bay still                        0
                                       lacks a comprehensive and cohesive protection scheme. Thus, widespread support                          41
              44                                                                                                                               0
                                                                                                                                               0






                                                                                                                       DRAFT
                was given in 1990 to Tampa Bay's adoption into the National Estuary Program by                     Charting the Course
                EPA to assist the region in developing a comprehensive conservation and management                    for Tampa Bay
                plan for the bay.

                A required step in that process is to identify where unnecessary duplication exists in
                current environmental programs, ensuring that limited public funds are spent in the
                most effective manner.


                Bay Management Expenditures,
                Overlaps and Gaps
                Management of Tampa Bay is currently shared by dozens of federal, state, regional
                and local agencies and by different departments within those agencies. A short list
                includes the EPA, the U.S. Army Corps of Engineers, the Florida Department of
                Environmental Protection, the Tampa Bay Regional Planning Council, the Southwest
                Florida Water Management District, and the Tampa Port Authority, which has been
                deeded all state-owned or sovereign bay bottom in 11illsborough County. On the local
                level, resource management is divided among county and city planning, stormwater,
                solid waste, wastewater, and environmental protection departments.

                A 1994 survey conducted by the Tampa Bay National Estuary Program attempted to
                quantify how much money is spent to manage and monitor bay quality and administer
                environmental programs. That study, based on FY 94-95 budgets, indicates that more
                than $260 million is spent annually by federal, state and local agencies and govern-
                ments on the restoration and management of Tampa Bay.

                By far, the largest portion of that figure - 65 percent or roughly $170 million - is
                attributed to wastewater collection, treatment and reuse, and activities that directly or
                indirectly benefit the bay, even if they aren't performed solely for the bay's benefit.
                The second largest allocation of about 13 percent, or $35 million, is expended primar-
                ily by local goverriments and the Southwest Florida Water Management District for
                stormwater management, including handling and treatment. Budgets for habitat
                restoration, preservation and management totalled approximately $17 million or
                nearly 7 percent, excluding land acquisition expenditures (nearly 4 percent).
                Regulation and enforcement, dredging and dredge material management, environmen-
                tal monitoring and public education comprised the remainder of the expenditures (See
                Figure 14).

                The bay's complex management system has led to duplications in some areas and
                gaps in others. Bay managers who responded to the National Estuary Program's 1994
                survey generally agreed that duplications occur most frequently in permitting and
                research activities, while gaps are most evident in enforcement and monitoring pro-
                grams. Bay managers also cited turf-guarding as a problem, and noted the lack of a
                comprehensive, readily available database through which valuable information about
                the bay's health and living resources could be shared.

                The permitting arena serves as an example of what some believe is unnecessary dupli-
                cation of effort. An applicant seeking permission to remove or alter wetlands along
                the bay may have to obtain permits from as many as half a dozen agencies, depending
                on the extent of wetland impacts and the project's location.
                                                                                                                             45




                                                                                                                                                                   0
                                                                                                                                                                   0
             DRAFT                                                                                                                                                 0
         Charting the Course                                                                                                                                       0
                                             Bay Management and Related Expenditupes                                                  Rgupe 14                     0
            for Tampa Bay                    Fedepall State and Local (FY84-05, Dpaft)                                                                             0
                                                                                                                                                                   0
                                                                                                                                                                   0
                                                                                                                                                                   0
                                                                                                                                                                   0



                                                                                          XXX_
                                                                                                                                                                   0
                                                                       .......             .........
                                                                                                                        6.7%
                                                                                                               Habitat Restoration
                                                                                                                  & Management
                                                                                                                                                                   0
                                                                                                                                 3.7%                              40
                                                                                                                         Land Acquisition
                                                                                                        ..........
                                                                                                                                                                   0
                                                                                                     . . ........ :X:
                                                                                                      ..............
                                                                   ......                ... .. ....                               1.8%                            0
                                                                                         -X
                                                                                         ....... . . .
                                                                                                   X:
                                                                                                        X. ... ......
                                                                                                                            Environmental
                                                                                                                               Monitoring
                                                                                                                                                                   0
                                                                                                                                 2.5%                              0
                                                                                                                      Dredge Management
                                                                                                                                                                   0
                                                                                                    ..........              Regulation&
                                                                                                                                 5.2%


                                                                                                                             Enforcement
                                                                                                                                                                   0
                                                                                        MEW  ==M                            0.5%
                                                                                                                    Public Awareness                               0
                                                          ..............
                                                                                                                                                                   0
                                                                                                                          0.9%
                                                       . . . . . . . . . . .
                                                                                                                     Administration
                                                                                                                                                                   0
                                    This chart illustrates how money spent on bay restoration and management is allocated by federal, state                        0
                                    and local agencies and governments, based on FY94-95 expenditures of more than $260 million.                                   0
                                                                                                                                                                   0
                                                                                                                                                                   49
                                             SOURCE: HAZEN AND SAWYER, FUNDING SOURCE INVENTORY FOR CCMPACTION PLANS
                                             (DRAFT REPORT), JUNE 21,1995, PREPARED FOR THE TAMPA BAY NATIONAL ESTUARY                                             0
                                             PROGRAM                                                                                                               40







                                             That process may be streamlined soon as a result of the state's new Environmental
                                             Resource Permit, which will consolidate review of existing dredge-and-fill, stormwa-
                                             ter management and sovereign lands permits, and will be issued through the state's
                                             water management districts.

                                             Inconsistencies also characterize the permitting process. Because wetland rules and
                                             their interpretation vary from one agency to another, the applicant's project could be
                                             denied by one agency and approved by another. If the project is approved, the appli-                                  AM
                                             cant could be required to meet widely varying mitigation and monitoring requirements
                                             imposed by each regulatory agency.
                48

                                                                                                                                                                   0
                                                                                                                                                                   0






                                                                                                                      DRAFT
                                                                                                                   Charting the Course
                Publicly financed restoration projects are further complicated by state agency require-              for Tampa Bay
                ments that they undergo the same rigorous review as private projects - even when
                the reviewing agencies have participated in the development of the restoration design.
                This process increases the cost of the project and often delays construction by a year
                or more.


                Indeed, many bay managers believe that perniitting is given too much emphasis in the
                regulatory arena, while monitoring and enforcement are short-changed. Lack of ade-
                quate enforcement personnel has been identified by the DEP as a principal reason so
                many mitigation projects required of private developers have neither been properly
                constructed, nor constructed at all. The disparity is prevalent throughout the regulatory
                community, according to bay managers who responded to the NEP's survey.

0               A New Approach to Bay Management
                Shrinking public funds, combined with increasing demands for government services
                and increasing public scrutiny of expenditures, are providing new challenges for
                resource managers. In the future, they will be pressed to spend money even more judi-
                ciously and on programs that yield quantifiable results.

                Concurrently, attitudes about environmental management are shifting away from an
                emphasis on piecemeal oversight and toward a holistic view that assesses the cumula-
                tive impacts of human actions on entire natural systems. This approach is called
                46ecosystem management."

                Many bay managers believe the amount of money spent on Tampa Bay is sufficient to
                adequately manage it, but that it should be re-directed. In particular, they advocate a
                shift in some resources from permitting to monitoring and enforcement. They also
                support proactive projects, such as habitat restoration, so long as these projects pro-
                vide meaningful results and effectively address ecosystem needs.

                These managers see ecosystem management as less, rather than more, expensive,
                since it relies less on micro-reviews of individual permits and more on assessing over-
                all impacts. A critical component of successful ecosystem management is using bio-
                logical living resources - such as seagrass, fish and scallops - as a measure of the
                bay's health, in addition to established laboratory standards. Such an approach allows
                regulators the flexibility they need to achieve realistic, long-term goals and provides
                taxpayers with a better benchmark to judge the return on their investments.

                Making ecosystem management a reality in the Tampa Bay watershed will require a
                strong management plan backed by a stronger bay management structure that is less
                cumbersome, more accountable, and committed to addressing ecosystem needs.
                Bringing this plan to life within the existing bay management structure will be an
                important focus of the Tampa Bay NEP in overseeing implementation of the master
                plan for Tampa Bay.






                                                                                                                             47






          DRAFT
      Charting the Course
                                                                                                                               0
         for Tampa Bay                                                                                                         0
                                                                                                                               0
                                                                                                                               0
                                                                                                                               0
                                                                                                                               0
                                                                                                                               ID
                                                                                                                               0
                                                                                                                               0





























                                                                                                                               A&

















            48




                                        GOALS AND

                                       ACTION PLANS







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                                                                                                                          ,M:M@@V,


                                                                                                                 Charting the Course
                Goals ('V Priorities                                                                                for Tampa Bay
                for                            a Bay


                Charting the Course advances measurable goals and associated strategies to restore
                and protect water quality and bay habitats, as the foundation for healthy and diverse
                populations of fish and wildlife. These goals and priorities for Tampa Bay are the
                focal point of the master plan for Tampa Bay and the subject of this chapter.

                When the Tampa Bay National Estuary Program was formed in 199 1, local govern-
                ment and regulatory agency partners pledged to participate with citizens and scientists
                in the development and implementation of a comprehensive conservation and manage-
                ment plan for Tampa Bay. Subsequent and extensive efforts by the Program's techni-
                cal advisors over the past four years have centered on developing specific resource
                goals as long-term measures of success in implementing the bay restoration blueprint.

                These goals for Tampa Bay, and the foundation for establishing them, are profiled
                below and in the accompanying chart.

                Goals for Water & Sediment Quality
                Water quality goals focus on maintaining the proper water clarity to support seagrass-
                es by controlling nitrogen, which continues to be a major concern in Tampa Bay.
                Excess nitrogen in rainfall, stormwater runoff, and from domestic and industrial point
                sources accelerates the growth of algae in the bay, limiting light penetration to sea-
                grasses, which require sunlight to grow. Past water quality declines contributed to the
                loss of nearly half the bay's seagrasses (or almost 19,000 acres) from the 1950s to the
                1980s, although seagrasses are now waging a comeback in areas of the bay where
                water quality has improved.

                In 1993, the Tampa Bay NEP established a long-term seagrass restoration target of
                14,000 acres. That goal was based on restoring seagrasses to 1950s levels, excluding
                areas that have been permanently altered. Subsequent studies by the NEP indicate that
                as many as 12,000 acres of seagrass can be recovered over time by maintaining exist-
                ing water quality conditions. That would require local communities to reduce their
                nitrogen loadings to the bay by about 10 percent by the year 2010 to compensate for
                increases in nitrogen loadings associated with population growth. Additional seagrass
                recovery would require further reductions. Nitrogen loading goals for the bay will be
                finalized in early 1996.

                A workshop sponsored by the Tampa Bay NEP in October 1995 brought together local
                            TMP
















































                governinents, regulatory agencies, utilities and industry representatives to review pro-
                visional nitrogen loading goals for Tampa Bay and discuss ways to allocate reductions
                                                                                                                           49






                                                                                                                                                0
           OR A ri- T                                                                                                                           0
       Charting the Course             in nitrogen inputs once loading targets are finalized in early 1996. Technical investi-                  0
          for Tampa Bay                gators project increases in nitrogen loadings of about 30 tons per year associated with                  0
                                       population growth, an amount that represents less than I percent of present-day levels.                  0
                                       Participants discussed various proportional allocation methods, in which dischargers
                                       would be required to do their fair share to offset anticipated increases in nitrogen.
                                       Those allocations will be reflected in the final bay management plan.
                                                                                                                                                0
                                       Toxic contaminants in bay sediments represent the other primary focus of concern for
                                       bay managers. Studies by the National Oceanic and Atmospheric Administration
                                       (NOAA) and Florida's Department of Environmental Protection in the late 1980s and
                                       early 1990s documented relatively high levels of pesticides, heavy metals and other
                                       contaminants in sediments at some bay sites, and associated impacts to marine life.
                                       Currently, the Tampa Bay NEP is integrating these and other studies on sediment
                                       chemistry and toxicity with analyses depicting the health of the bay's bottom dwelling
                                       communities-the component of the marine ecosystem most impacted by toxics. A
                                       closely related study involves evaluating the level of risk to marine and human health                   0
                                       associated with these contaminants.                                                                      0
                                                                                                                                                0
                                       These studies, slated for completion in March 1996, will enable bay managers to bet-                     0
                                       ter identify toxics of concern in Tampa Bay. They also will provide the basis for                        0
                                       establishing management objectives to minimize associated risks to marine life and                       0
                                       humans, and to protect relatively clean areas of the bay from being degraded. The                        0
                                       Tampa Bay NEP also is investigating the sources and status of these contaminants in                      0
                                       priority drainage basins, research that will be used to determine cleanup and contain-
                                       ment strategies.
                                       Recent events also have focused the attention of citizens and bay managers on prob-                      0
                                       lems -associated with sewer overflows and discharges to the bay during heavy rain-                       0
                                       storms. That problem came to light recently when the City of St. Petersburg was                          0
                                       forced to discharge more than 15 million gallons of raw sewage into Boca Ciega Bay                       40
                                       when excessive rainfall infiltrated and overtaxed the city's wastewater collection net-                  0
                                       work. Other communities around the bay have occasionally experienced similar prob-                       0
                                       lems during periods of high rainfall. To keep the bay safe for swimming and shellfish                    0
                                       harvesting in the future, local communities will need to grapple with infrastructure                     0
                                       improvements that will ensure that the significant investments made to upgrade                           0
                                       sewage treatment facilities are not diminished by chronic failures in collection and                     0
                                       distribution networks.                                                                                   0
                                                                                                                                                0
                                       Goals for Bay Habitats                                                                                   0
                                       Charting the Course also sets forth an innovative watershed strategy for coastal habi-                   0
                                       tat restoration and protection that goes further and will accomplish more for Tampa                      0
                                       Bay than existing "no net loss" goals for wetlands, which many suspect fall short of
                                       that aim. About half of the bay's saltwater wetlands have been lost to development
                                       since the 1950s. Development also has exacted an especially heavy toll on the low-                       0
                                       salinity portions of the bay's freshwater tributaries, areas that provide critical nursery               0
                                       habitat for numerous species of fish.

                                       Equally important is the fact that some habitats have declined or been degraded more
                                       rapidly than others. The resulting imbalance of habitat types has contributed to                         0
                                       declines in certain fish and wildlife. A strategy to address this imbalance is the center-               0
             58                                                                                                                                 0
                                                                                                                                                0






                                                                                                                       0 R AF
                piece of the Tampa Bay NEP's forthcoming watershed plan for coastal habitat restora-                Charting the Course
                tion and protection. The strategy is based on restoring an optimum mix of habitats to                 for Tampa Bay
                meet the needs of the bay's representative fish and wildlife guilds, groups of animals
                that share similar habitat and food requirements.

                An overall minimum goal is to restore roughly 100 acres of low-salinity tidal marsh
                habitat every five years, while maintaining and enhancing salt marshes and mangroves
                at existing levels. The long-term aim is to recover as many as 1,800 acres of these
                low-salinity habitats over time, either through habitat restoration or enhancement of
                existing areas that have been severely degraded. The strategy effectively targets one
                of the major causes of bay wildlife declines-the accelerated decline of a few unique
                and absolutely crucial habitats whose losses place a "biological chokehold" on the bay
                ecosystem.


                Now being finalized, the coastal habitat master plan coordinates existing local, state
                and regional restoration programs and identifies priorities for both habitat restoration
                and protection, including environmental lands purchases and less-than-fee-simple
                methods such as conservation easements.


                A preliminary seagrass restoration target for Tampa Bay of approximately 14,000
                acres also has been established. That figure is based on the amount of seagrasses lost
                predominantly as a result of water quality declines between 1950 and 1990. Water
                quality improvements stemming from wastewater and stormwater treatment upgrades
                in the 1970s and early 1980s already are helping to reap rewards in this endeavor.

                From 1982 to 1992, 4,000 acres of seagrasses have grown in Tampa Bay as a result of
                improving water quality conditions. Even as water quality improvements occur, the
                natural lag time in seagrass regrowth indicates that recovery will be a long-term
                process.


                Goals for Fish & Wildlife
                While the Tampa Bay NEP has not adopted any specific goals for increases in fish and
                wildlife species, the goals established for water quality and habitat restoration will
                provide direct benefits for fish, birds and other bay inhabitants by improving the areas
                in which they live, reproduce and feed.

                Reductions in nitrogen loading and increases in seagrass coverage, for instance, will
                assist efforts to increase fisheries and return the bay scallop to Tampa Bay by provid-
                ing suitable water quality and habitat. Achieving the NEP's seagrass recovery target
                also will help the bay's population of endangered manatees, which feed in seagrass
                beds.


                Birds, too, will benefit from the goals set forth in the NEP's habitat restoration master
                plan, which will assure protection and enhancement of existing habitats important for
                feeding and nesting, and increase other habitats, such as salt barrens and freshwater
                ponds, which have been severely reduced because of development. The restoration
                and protection of freshwater ponds, for instance, is critical to the survival of the white
                ibis, which depends upon freshwater crayfish and insects to feed its young.

                Additionally, preserving the flow of freshwater into the bay from its myriad tributaries
                                                                                                                              51





                                                                                                                                              0
           DRAFT
       Charting the Course            will yield dividends for a variety of commercially and recreationally valuable fish,
          for Tampa Bay               which seek out these sheltered, low-salinity havens as nurseries.

                                      Other Bay Improvement Goals
                                                                                                                                              0
                                      Other goals, aimed at improving spill prevention and response and dredging and
                                      dredge material management, are equally important in preserving the bay's health and
                                      promoting cooperative planning.

                                      Objectives for managing dredging and dredged material focus on the development of
                                      a long-term, coordinated dredging and dredged material disposal plan involving the
                                      bay's three major seaports and the U.S. Army Corps of Engineers. The plan seeks to
                                      reduce the environmental impacts associated with dredging, and maximize beneficial                      0
                                      uses of material dredged from the bay's shipping channels.
                                      Goals for spill prevention and response emphasize the installation of a state-of-the-art                0
                                      Vessel Traffic System (VTS) that employs a combination of shore-based radar and                         0
                                      global positioning technology to monitor and control shipping traffic in the bay. The                   0
                                      system would greatly reduce the likelihood of an economically and environmentally                       0
                                      devastating spill of oil or hazardous materials.


                                      Measures to Ensure Success
                                      To ensure effective and timely implementation of the bay master plan, local govern-
                                      ment and regulatory agency partners have pledged to continue regular dialogue and
                                      meetings to review actions and evaluate progress toward meeting the bay's goals.
                                      Continued monitoring of the bay's health also is essential to this process (see
                                      Monitoring Bay Improvement). This allows policy leaders and bay managers to
                                      adjust management actions as necessary to keep the plan on track.

                                      Attaining broad-based citizen support for bay restoration and protection will be equal-
                                      ly vital to the success of the plan.

                                      An overall theme expressed in various action plans is to better utilize existing federal,
                                      state and local resources to carry out recommended actions. A strong focus on com-
                                      pliance monitoring and enforcement also is emphasized throughout the plan and in
                                      specific actions to ensure that environmental regulations that have been established
                                      are followed.


                                      Finally, the Tampa Bay NEP recognizes the need to continue strong community out-
                                      reach and education efforts as the plan is implemented. These efforts are discussed in
                                      the chapter on public involvement.










              52








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                                                 GOALS FOR THE ]RESTORATION &
                                                           PROTECTION OF TAmim BAY

          The following goals for Tampa Bay aim to preserve important water quality and sea-                       will support both recreation and commerce. These issues include the bay's coastal habitats
          grass gains achieved over the last decade and to proactively manage future growth to                     and wildlife, dredging and dredged material management and spill prevention. Local gov-
          continue the bay's recovery. This requires a strong commitment to manage increases                       ernments and agencies in the Tampa Bay NEP have pledged to continue the precedent-set-
          in pollution as growth occurs, rather than allow the bay's health to decline. Goals for                  ting partnership to assure effective and timely implementation of recommended actions, and
          Tampa Bay also focus on issues that must be addressed to sustain a healthy bay that                      to adjust strategies as needed in the future to keep the bay's recovery on track.



          GOAL                                                     RESPONSIBLE PARTIES                 BENEFITS                                                       STATUS

          WATER & SEDIMENT QUALITY                                 Local governments and               Protect existing water quality and seagrass                    Maintaining present-day nitrogen loading lev-
          Maintain or slightly reduce existing nitrogen            citizenry, industries,              improvements and continue restoration, estab-                  els may be sufficient to gain back as many as
          loadings* to Tampa Bay to continue the                   utilities                           lishing as many as 14,000 acres of vital fish-                 12,000 acres of seagrass over time. Additional
          positive course of the bay's recovery and                                                    eries habitat over time, improving lucrative                   seagrass recovery would require further reduc-
          encourage the regrowth of as many as                                                         recreational fisheries and tourism markets.                    tions. Loading goals will be finalized and incor-
          14,000 acres of seagrasses overtime.                                                                                                                        porated into an implementing agreement
          Compensating for anticipated increases in                                                                                                                   signed by local governments and agencies in
          nitrogen loadings associated with popula-                                                                                                                   November 1996. See Water Quality Action Plan
          tion growth may require a reduction in                                                                                                                      for strategies.
          nitrogen loadings of about 10 percent by
          the year 2010.

          Protect relatively clean areas of the bay                Local governments and               Reduce biological impacts to marine life and                   Sediment quality guidelines will be developed by
          from increases in toxic contamination, and               citizenry, industries,              associated public health risks from toxics;                    Tampa Bay NEP, in cooperation with regulatory
          minimize risks to marine life and humans                 ports, marinas                      protect healthy areas of the bay from contami-                 agencies and local governments, by March
          associated with toxic contaminants in                                                        nation.                                                        1996; investigations completed in early 1996
          impacted areas.                                                                                                                                             also will help identify sources and status of cont-
                                                                                                                                                                      aminants in the bay. See action TX-1 to address
                                                                                                                                                                      hot spots of contamination.

          Reduce bacterial contamination in impacted               Local governments and               Make the bay safe for shellfish harvesting and                 See public health introduction, which covers
          areas of the bay to levels safe for swimming             citizenry                           swimming, and allay public concerns about the                  this issue and associated sewer overflow prob-
          and shellfish harvesting.                                                                    bay's use for recreation.                                      lem, and related actions.

          BAY HABITATS                                             Local governments and               These vital cornerstones of the bay ecosystem                  Water quality improvements from the mid-
          Recover as many as 14,000 acres of                       citizenry, agencies,                provide essential habitat for fish and shellfish;              1980s already are aiding seagrass recovery. By
          seagrasses baywide.                                      industries, utilities               recovery will help spur associated recovery of                 preventing future increases in nitrogen load-
                                                                                                       fish and animal stocks that have declined as                   ings to the bay, conditions should allow for the
                                                                                                       seagrasses have been destroyed.                                gradual recovery of approximately 12,000
                                                                                                                                                                      acres of seagrass. See also action BH-4 to
                                                                                                                                                                      reduce propeller scarring of seagrasses.





         Restore an optimum balance of habitats to                Local governments and             Coordinate existing state, local and regional                 See Action BH-1 to implement the coastal
         support fish and wildlife. The minimum goal              citizenry, FDEP, SWIM,            efforts to restore an optimum balance of habi-                habitat restoration and protection master plan
         is to restore roughly 100 acres of low-salini-           FMRI                              tats for bay wildlife, focusing on areas that have            for the Tampa Bay watershed. Priorities and
         ty tidal marsh every five years, while main-                                               suffered the greatest proportional impact.                    goals will be finalized in January 1996.
         taining and enhancing salt marshes and                                                     Prioritize habitat restoration and protection/                Implementation will begin in 1996 through
         mangroves at existing levels. The long-term                                                acquisition efforts.                                          existing agencies with available funding.
         aim is to recover as many as 1,800 acres of
         low-salinity habitat.


         Establish and preserve adequate freshwater               SWFWMD, local                     Protect and enhance critical low- and mid-salin-              See Action FI-1 addressing impounded rivers.
         inflows to Tampa Bay and its tributaries.                governments and                   ity habitats which serve as vital nursery areas               SWFWMD will recommend minimum flows for
                                                                  citizenry                         for numerous species of fish.                                 the Hillsborough and Palm rivers in 1996 and
                                                                                                                                                                  for the Manatee and Braden rivers by 1997.


         FISH & WILDLIFE                                          Local governments and             Reduce impacts to the bay by improving sur-                   See action BH-1 addressing coastal habitat
         Increase the number, diversity and health of             citizenry, regulatory             veillance and protection of fisheries, bird nest-             protection and water quality actions for ongo-
         the bay's fish and wildlife populations by               agencies, Florida Marine          ing islands and habitats; water quality and habi-             ing and proposed efforts to improve conditions
         restoring water quality and habitats and                 Patrol                            tat recovery will also benefit fish and wildlife              for fish and wildlife. See Fish & Wildlife action
         reducing physical impacts. Efforts to recov-                                               stocks, enhancing recreation and tourism.                     plan for other specific measures and imple-
         er bay scallops, establish local manatee pro-                                                                                                            mentation schedules.
         tection zones, and improve on-water
         enforcement of environmental regulations
         are key actions advanced in this plan.


         DREDGING AND DREDGED MATERIAL                            U.S. Army Corps of                Minimize bay impacts and independent costs                    This goal is pending approval by Corps of
         MANAGEMENT                                               Engineers, in coopera-            associated with these activities and maximize                 Engineers, which oversees and conducts most
         Develop and implement a long-term, coordi-               tion with local port              beneficial uses of spoil material; analyze and                of the bay's dredging; other cooperative initia-
         nated management plan for dredging and                   authorities                       address long-term spoil disposal needs                        tives involving the bay's three major indepen-
         dredged material management.                                                                                                                             dent port authorities are beginning. See Action
                                                                                                                                                                  DR-1.

         SPILL PREVENTION & RESPONSE                              Local governments and             Vastly improve spill prevention and response                  Multi-interest task force was established by the
         Prevent catastrophic spills of oil or other              citizenry, Florida                capability in Tampa Bay, which has the longest                Florida Legislature under the auspices of the
         hazardous materials, reduce chronic smaller              Legislature,                      ship transit of any port in Florida and serves                Tampa Port Authority to make specific vessel
         spills from recreational and commercial ves-             port authorities and              three major seaports, including the state's                   traffic technology recommendations to the
         sels, and improve spill response capability.             port users                        largest.                                                      state in 1996, for installation of a system as
         A key goal is the installation of a vessel traf-                                                                                                         early as 1997. See Action SP-1 and other spill
         fic system for Tampa Bay as soon as possi-                                                                                                               prevention measures, especially SP-2, focus-
         ble to improve coordination of ship move-                                                                                                                ing on boom anchors to contain spills.
         ments along the bay's 40-mile-long and rel-
         atively narrow channel.



        Preliminary goal, based on nitrogen loadings avg. for 1992-94
      Implementation of some bay improvement actions may require
      state legislative action and federal government cooperation.




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wr

                                                                                                                      DRAFT
                                                                                                                  Charting the Course
                             oduction to                                                                             for Tampa Bay
                Action -11-Lans


                T
                       he Tampa Bay National Estuary Program was established in 1991 to assist the
                       community in developing a comprehensive bay restoration plan featuring long-
                       range strategies for bay improvement. These strategies are the focus of the fol-
                lowing five Action Plans, addressing:

                         0 Water & Sediment Quality
                               Stormwater Runoff
                               Atmospheric Deposition
                               Wastewater
0                              Toxic Contamination
                               Public Health
                         0 Bay Habitats
                         0 Bay Fish& Wildlife
                         0 Dredging & Dredge Material Management
                         0 Spill Prevention & Response

                This strategic blueprint for Tampa Bay is presented in draft form to further enlist input
                from citizens and community partners. The final Comprehensive Conservation &
                Management Plan for Tampa Bay will be published in mid-1996.

                Action Plans define the bay's most pressing needs, and present strategies to achieve
                bay goals and maximize the community's long-term return on investment. Some
                actions can be implemented quickly and with existing resources. Others will require
                long-term community commitments. Whenever possible, strategies presented in
                Charting the Course seek to strengthen or redirect existing bay programs to accom-
                plish more with available resources.

                Action Plans have been developed with assistance from bay experts and advocates
                working through the Tampa Bay National Estuary Program's management, technical
                and community advisory committees. Each Action Plan begins with an introduction
                that summarizes the issue and includes an index of actions, and concludes with ideas
                on What You Can Do to promote and support bay improvement. Cost estimates are
                presented for each action, but some analyses continue as this goes to press.

                Strategies advanced in Charting the Course represent important measures to aid in the
                bay's long-term recovery and protection, but some actions may not be appropriate in
                all areas. For instance, different land uses may direct local governments to select dif-
                tatr

























                ferent strategies to address pollution to the bay. So long as the bay's water quality
                goals are met, this flexibility is encouraged to enable community partners to select the
                                                                                                                            57






          DRAF"'I'
       Charting the Course
         for Tampa Bay                 most cost-effective course for bay restoration. While flexibility is emphasized, all
                                       participants are called upon to achieve the overall goals for bay restoration and protec-
                                       tion (see Goals & Priorities) to preserve the bay's health.

                                       The Tampa Bay National Estuary Program is a partnership of the U.S. Environmental
                                       Protection Agency; Florida Department of Environmental Protection; Southwest
                                       Florida Water Management District; Hillsborough County and the County's
                                       Environmental Protection Commission; Manatee County; Pinellas County; and the
                                       cities of Tampa, St. Petersburg and Clearwater. These partners will sign an agreement
                                       to implement the final Comprehensive Conservation & Management Plan for Tampa
                                       Bay in 1996. They are joined by numerous other agencies, citizens, and technical and
                                       private-industry advisors who have participated in the development of the bay master
                                       plan.

                                       Preliminary analyses suggest that the cost to meet certain water quality goals may be
                                       relatively minimal over the plan's lifetime (see Implementation & Financing chapter).                     0
                                       Nitrogen loadings to the bay, which continue to be a major focus of concern, may
                                       only require an annual reduction of about 1 percent by 2010 to offset anticipated
                                       increases associated with population growth in order to provide optimum conditions                        0
                                       for seagrass recovery. Several of the proposed actions to reduce excess nitrogen                          0
                                       enhance ongoing efforts in pollution prevention and environmental stewardship, and                        .0
                                       many of those actions could be accomplished with existing bay management                                  0
                                       resources. Others may require a re-direction of resources to achieve more with exist-
                                       ing tax dollars. Additionally, a number of actions seek to improve coordination and
                                       planning among local governments and agencies, and may actually result in savings                         0
                                       for currently funded activities.                                                                          0
                                       Although costs for meeting other goals have not been fully determined, recommended                        0
                                       actions will focus on cost-effective use of existing resources and a clear return on                      40
                                       investment. Any additional funds required to restore Tampa Bay will be documented                         0
                                       in the final bay management plan, and subject to public consideration to ensure that                      0
                                       issues of affordability, accountability and environmental results are given fair hearing.                 0
                                                                                                                                                 0
                                       The Tampa Bay National Estuary Program invites and encourages your comments as                            0
                                       we continue to assist the community in developing this important management blue-                         0
                                       print for Tampa Bay.                                                                                      0
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                ACTION PLM                                                     Water & Sediment Quality             DRAFT
                                                                                                                Charting the Course
                                                                                                                   for Tampa Bay
                                 r
                Seflafflelit Quautv


                Tampa Bay is rebounding from decades of pollution that reached an apex in the late
                1970s, when vast algal blooms clouded the water in some bay sectors and seagrasses
                struggled to survive.

                Now, water quality improvements are helping to chart a course for the bay's recovery.
                Since 1982, more than 4,000 acres of seagrasses-which provide life-support to many
                of the bay's fisheries-have either sprouted in once-barren areas or filled in previous-
                ly patchy meadows as a result of water quality gains. Improved conditions also may
                be setting the stage for recovery of the bay scallop, which disappeared in the 1960s
                when the bay was badly polluted.

                Most water quality gains are attributed to advanced wastewater treatment technolo-
                gies, which can eliminate up to 90 percent of the nitrogen from treated wastewater
                discharged to the bay. Municipal sewage treatment facilities now contribute just nine
                percent of total bay nitrogen loadings, down from 40 percent in the mid-1970s.

                Maintaining these water quality improvements as the region grows represents the fore-
                most challenge for the stewards of Tampa Bay. While direct or "point" discharges of
                pollution to the bay have declined, other sources such as stormwater runoff and
                atmospheric deposition have increased and are expected to grow as more people settle
                in the region. Population in the three counties bordering the bay is expected to
                increase about 20 percent to nearly 2.4 million by 2010. At current treatment levels,
                that growth will be accompanied by increases in nitrogen loadings.

                Nitrogen and potentially toxic contaminants (including heavy metals and pesticides)
                are the key pollutants of concern to Tampa Bay. Pollution pathways, including
                stormwater runoff, atmospheric deposition and wastewater are summarized in this sec-
                tion. For more in-depth coverage, please refer to the State of the Bay chapter, which
                precedes this section.

                Nitrogen is a naturally occurring and beneficial nutrient that pollutes the bay and
                inhibits seagrass growth when excess amounts are present. The Tampa Bay National
                Estuary Program has established a preliminary goal for the amount of nitrogen the bay
                can safely assimilate. That goal is to maintain or slightly reduce present-day nitrogen
                loadings, even in the face of continued population growth and its attendant increase in
                pollution. To maintain existing levels, local communities would need to gradually
                W Ite
























                reduce total nitrogen loadings to the bay by approximately 10 percent by the year
                2010.                                                                                                      58





                                                                                                                                             0
          DRAFT                       ACTION PLM                                                      Water & Sediment Quality
       Charting the Course
         for Tampa Bay                Studies suggest that staying within those limits will maintain water quality suitable for
                                      the regrowth of as many as 12,000 acres of seagrasses, an amount that represents
                                      more than 90 percent of 1950s seagrass levels, minus areas that have been permanent-
                                      ly altered.                                                                                            0

                                      Potentially toxic contaminants entering the bay in stormwater runoff, wastewater, and
                                      from the air represent the other primary focus of concern for bay managers, following
                                      studies that identified high levels of heavy metals, pesticides and other substances in
                                      sediments at various urban and agricultural sites, including Hillsborough Bay and
                                      Boca Ciega Bay. While contamination appears to be localized and few biological
                                      impacts have been documented, the persistence of these substances in the marine
                                      envirom-nent and the prospect of increased contamination associated with population
                                      growth support the need for action now before the problem escalates. Additional
                                      investigations by the Tampa Bay NEP are underway to identify the sources and status
                                      of contaminants in priority drainage basins.

                                      Local governments already are making significant investments each year in stormwa-
                                      ter improvements and pollution prevention in the watershed. These actions will con-
                                      tinue to be important catalysts in protecting the bay from pollution. Strategies
                                      advanced in the National Estuary Program's Water & Sediment Quality Action Plan
                                      are designed to focus these substantial efforts and resources to achieve the greatest
                                      long-term benefit for the bay.

                                      Local communities may choose different paths to achieve the same water and sedi-
                                      ment quality goals. As long as the goals for the bay are achieved, this flexibility is
                                      encouraged to assure the most cost-effective course for bay recovery.


                                      MANAGEMENT OBJECTIVES
                                      ï¿½   Maintain or slightly reduce existing nitrogen loadings to Tampa Bay to encourage
                                          the regrowth of as many as 14,000 acres of seagrass over time. Compensating for
                                          anticipated increases associated with population growth may require a gradual
                                          reduction in nitrogen loadings of about 10 percent by the year 2010.
                                      ï¿½   Protect relatively clean areas of the bay from increases in toxic contamination,
                                          and minimize risks to marine life and humans associated with toxic contaminants
                                          in impacted areas.

                                          Note: Sediment quality guidelines are being developed by the Tampa Bay NEP in
                                          cooperation with state andjederal environmental agencies and local governments
                                          for review in March 1996. These will be used to determine specific strategies and
                                          goals for management of toxic contaminants.
                                      ï¿½   Reduce bacterial contamination in impacted areas of the bay to levels safe for
                                          swimming and shellfish harvesting.






                      ACTION PLM                                                                                  Water & Sediment Quality                           DRAFT
                                                                                                                                                                Charting the Course
                                                    Per-Acre Nitrogen Loadings                                                                                     for Tampa Bay
                                                        from Non-Point Sources
110                                                                             % Loading            % Watershed Yield lbs/aelyr
11111                   Residential                                                    11                    15.5                   4.52
0                       Commercial Industrial/institutionaI                            5                     6.4                    5.26
0                       Mining                                                         4                     3.2                    4.97
0                       Range and Pasture                                              13                    28.4                   2.81
                        Intensive Agriculture                                          6                     6.5                    5.63
0                       Undeveloped Land                                               8                     39.93                  1.15


                      Total Nitpogen Loadings to Tampa BaY (1002-1984 avepage)


                                                                                            28%
                                                                                     Atmospheric
                                                                                       Deposition
                                                6%
                                          Industrial
                                         Wastewater
0

                                                               ... ........
                                    8%                              .................
                              Municipal
                              Wastewater



                                  6%
                           Accidental
                       Fertilizer Losses                                                    47%
                                                                                    Stormwater
                                     4%                                                   Runoff
                              Groundwater






                                                                                                             ...............
                                                                                                        .......... ............
                                                                                                                                     11%
                                                                                                             ..........................
                                                                                                                  .....................
                                                                                                                  ....................-
                                                                                                                  ................... Residential
                                                                                                             ...........
                                                   . ... .......                                                        ......
                                                                                                             ............           Runoff
                                                                  ... ......


                                                                                          . .........

                                                .............         . . ......
                                                ...........
                                                ...                . ... . .....
                                                ....... ...
                                                                   ......... ...
                                                                                                                                  5%
                                   4%                                 ... ..........                                      Commercial/
                                Mining
                                                                                                                       Industrial Runoff
                                                                                                          ..............


                                                                                                                    6%
0                                               8%                                                             Intensive
0                                     Undeveloped                                                            Agriculture
19                                           Land                                     13%
                                                                            Pasture/Range
                                                                                    Lands

                                                                                            SOURCE: COASTAL ENVIRONMENTAL, INC.
                                                                                                                                                                              81






           DRAFT                       ACTION PLM                                                       Water & Sediment Quality
       Charting the Course
          for Tampa Bay
                                       STORMWATER RuNoFF
                                       Stormwater runoff carrying fertilizer, pesticides, oils and other contaminants from                      0
                                       urban and agricultural lands contributes nearly half of the bay's total annual nitrogen                  0
                                       loadings and more than 60 percent of the annual loadings of zinc, mercury, lead and                      0
                                       chromium.

                                       Contaminants in runoff come from land-use activities and from air pollutants that fall                   0
                                       to the bay's watershed. In fact, air pollutants are believed to be a significant contribu-               0
                                       tor to stormwater runoff to the bay, although scientists still don't know the full mea-                  0
                                       sure of those impacts locally (see Atmospheric Deposition).                                              0
                                                                                                                                                0
                                       Approximately 16 percent of the bay's total nitrogen loadings comes from stormwater
                                       runoff from urban residential and commercial/industrial land uses, an amount exceed-
                                       ing all direct or "point" discharges of wastewater to the bay from wastewater treat-
                                       ment and industrial plants. Of that, 11 percent comes from residential areas, which
                                       dominate the urban landscape. Commercial and industrial sites, by comparison, con-
                                       tribute the other five percent of total bay nitrogen loadings.

                                       Runoff from intensely cultivated agricultural lands (mostly citrus and vegetable pro-
                                       duction) contributes another six percent of total bay nitrogen loadings, as well as
                                       potentially significant quantities of pesticides and sediments from erosion. The pesti-
                                       cide DDT (which has been banned for more than a decade) and endosulfan (an insec-
                                       ticide used to control white flies) have recently been found in surface waters receiving
                                       runoff from the Cockroach Bay drainage basin in southern Hillsborough County.

                                       Agricultural runoff also originates from pastures and rangelands, which cover roughly
                                       28 percent of the watershed and account for another 13 percent of total bay nitrogen
                                       loadings. Compared to lands in intensive agriculture, these areas may be less cost-
                                       effective to treat, since total loadings per acre are relatively small. Undeveloped land
                                       (at eight percent) and mining (at four percent) comprise the remainder of nitrogen
                                       loadings carried to the bay in stormwater runoff.

                                       Bay water quality is improving, thanks to stricter environmental controls and
                                       advances in sewage and stormwater treatment, and associated declines in nitrogen
                                       loadings. But concerns about toxic contamination of bay sediments are growing, fol-
                                       lowing studies that revealed concentrations of heavy metals and pesticides at several
                                       sites which were damaging to marine fife. Many toxic contaminants enter the bay
                                       attached to sediments in stormwater runoff, making treatment of sediments in runoff a
                                       key component in the strategy to address stormwater pollution.

                                       In fact, stormwater treatment in conventional wetland retention and detention systems
                                       can be highly effective in removing sediments from runoff. However, wetland reten-
                                       tion/detention is not as effective for reducing nitrogen. Thus, efforts to reduce nitro-
                                       gen emphasize strategies such as wastewater reuse and pollution prevention measures,
                                       as well as efforts to reduce atmospheric deposition of nitrogen to the bay.

                                       The Tampa Bay National Estuary Program has developed a computer model to assist






            ACTION PLAN                                     Water & Sediment Quality     DRAFT
                                                                                      Charting the-Course
            local governments in selecting the most cost-effective best management techniques to for Tampa Bay
            employ in battling stormwater pollution. An overall strategy must focus on pollution
            prevention, stormwater treatment and monitoring to assure compliance with stormwa-
            ter permits.

            Efforts to address pollution from agricultural runoff will focus on water conservation,
            integrated pest management and improved compliance with surface water manage-
            ment plans.



            SUMMARY OF ACTIONS TO ADDRESS STORMWATER RUNOFF


            SW_ I    Continue implementation of the Florida Yards & Neighborhoods Program.

            SW-2     Assist businesses in implementing best management practices to reduce
                     stormwater pollution and develop model landscaping guidelines for com-
                     mercial application.

            SW-3     Encourage local governments to adopt integrated pest management policies
0                    and implement environmentally beneficial landscaping practices on public
                     properties.

            SW-4     Reduce impervious paved surfaces, focusing on parking space and design
                     requirements for large commercial developments.

            SW-5     Require older properties being redeveloped to meet current stormwater
                     treatment standards for that portion of the site being redeveloped, or pro-
                     vide equivalent compensation.

            SW-6     Promote compact urban development and redevelopment.

            SW-7     Improve compliance with and enforcement of stormwater permits.

            SW-8     Enforce and require the timely completion of consent orders for the
                     cleanup of fertilizer facilities in Tampa's East Bay sector.

            SW-9     Encourage "fertigation" and low-flow irrigation on farms to reduce and
                     improve the quality of runoff.

            SW-10    Improve compliance with agricultural ground and surface water manage-
                     ment plans.

            SW-11    Deterinine' minimum widths for vegetated buffers along tributaries.





ML

                                                                                              83






           DRAFT                       ACTION PLM                                                       Water & Sediment Quality               0
       Charting the Course                                                                                                                     0
          for Tampa Bay                                                                                                                        0
                                       Continue hnplementation of the Florida Yards &                                                          0
                                       Neighborhoods Program                                                                                   0
                                                                                                                                               0
                 IW jf,.
                     ...... ......
           ...........
                                       ACTION:
                                       Continue implementation of the Florida Yards & Neighborhoods Program to encourage
                                       residents to use environmentally beneficial landscape management practices to reduce
                                       fertilizer, pesticide and water use contributing to pollution in stormwater runoff, and to
                                       enhance natural habitats. Enlist home-and-garden retailers, developers, and the land-
                                       scaping and pest control industries to practice and promote these concepts.


                                       BACKGROUND:
                                       Urban runoff from residential areas contributes an estimated 13 percent of the total
                                       nitrogen loadings to Tampa Bay, and also carries potentially toxic substances used in
                                       landscape maintenance. Fertilizers from yards and atmospheric deposition to residen-
                                       tial lands, are believed to be key sources of the nitrogen loadings.

                                       Residents within the bay's 2,200-square-mile watershed often do not connect their
                                       landscape design and maintenance practices with environmental impacts to Tampa
                                       Bay. This is especially true for those who do not live on or near the waterfront.
                                       Many residents continue to view a highly maintained lawn as the benchmark for a
                                       well-landscaped home, and often apply excess fertilizer, pesticides and water to main-
                                       tain their turfgrass.

                                       However, residents are beginning to grasp the principles of environmentally beneficial
                                       landscaping as they learn more about these concepts from the Florida Cooperative
                                       Extension Service's Environmental Landscape Management (ELM) program, and
                                       from local governments and the Southwest Florida Water Management District, which
                                       promote XeriscapeTm concepts.

                                       These concepts have been integrated in the Florida Yards & Neighborhoods Program
                                       (FY&N), which was established in 1991 by the National Estuary Programs of Tampa
                                       Bay and Sarasota Bay and the Florida Cooperative Extension Service (FCES), which
                                       administers the program locally. FY&N promotes least-toxic yard maintenance and
                                       the use of beneficial native and drought-tolerant plants to create Florida Yards that
                                       reduce runoff and enhance the environment.


                                       From 1993-1995, the FY&N Program worked primarily with neighborhoods in
                                       Hillsborough, Pinellas and Manatee counties. Additional funding in 1995 from the
                                       West Coast Regional Water Supply Authority (WCRWSA) enabled the program to
                                       expand to Pasco County.

                                       But, to achieve broader changes in residential landscape practices, efforts must be
                                       directed to reach a larger and more diverse audience. FY&N has already begun
                                       expanding its outreach to individual homeowners and lawn service professionals.
                                       These efforts should be expanded to reach a larger, more diverse audience, including
                                       retailers and developers, and members of the landscaping and pest control industries.
              84






               ACTION PLM                                                 Water & Sediment Quality           DRAFT
                                                                                                          Charting the Course
               STRATEGY-.                                                                                   for Tampa Bay
               Strategies to continue and broaden the Florida Yards & Neighborhoods Program and
               to enlist developers, retailers and the horticulture/pest control industries in promoting
               these concepts are proposed below. Implementation of these strategies is contingent             ....... ....
               upon funding.
                                                                                                         ....................
                                                                                                         .. ........................
0              The overall objectives of Florida Cooperative Extension Service in administering the
               FY&N Program are to:


               0   Develop a stable funding and administrative source for the Program.

               0   Explore cost-share and cross-promotion of FY&N and other educational programs
                   among local governments and agencies to maximize outreach and impact.
                   Additionally, continue local government and agency input into the FY&N
                   Program through existing advisory committees.

               0   Maintain a uniform educational program throughout the watershed to provide a
                   consistent message to residents who share common broadcast and print media,
                   while allowing participating counties the flexibility to address specific needs.

               0   Continue to explore statewide implementation through FCES.



               Individuals and Neighborhoods

               STEP1     Continue FY&N outreach to organized community and homeowner associ-
                         ations, with presentations and distribution of the Florida YardStick and the
                         Florida Yards & Neighborhoods handbook.

               STEP 2    Expand outreach to enlist individuals in implementing FY&N concepts.

                   A.    Promote Florida Yard concepts at major home improvement outlets, The
                         Florida Aquarium, home and garden shows, and other well-attended public
                         events; provide educational opportunities through these venues.

                   B.    Pursue arrangements to distribute and bar-code FY&N materials so they
                         may be sold at cost through retail establishments, with revenues tagged for
                         additional reprints. Cost recovery through resale will make these materials
                         self-supporting.

                   C.    Increase news publicity efforts and article placements, and promote use of
                         public service announcements on cable, network and government access
                         stations. Encourage individual counties to consider paid media placement
                         campaigns to broaden public interest and awareness of Florida Yard mes-
                         sages.


                   D.    Increase the number of individuals pursuing Florida Yard certification.

                         Responsible parties: Florida Cooperative Extension Service (FY&N
                         Program), in cooperation with local governments, SWFWMD and
                         WCRWSA
                                                                                                                    65






          DRAFT                      ACTION PLM                                                     Water & Sediment Quality
       Charting the Course
         for Tampa Bay               COST:                                                                                                0
                                                                                                                                          40
                                     Costs for staff and materials for program elements above is estimated at approximate-                0
                                     ly $75,000 per county (Hillsborough, Pinellas, Pasco and Manatee). Cooperative                       0
                        .. ........
               ........ ....         funding may be sought from participating local governments, river basin boards of the
                                     SV;FV;NM, WCRWSA, and the Coastal Zone Management Program.
             SW:
           . ................ .....
                                                                                                                                          0
                       ...........
            .. . ......... ..............._
                 ..... ......... ..........

                                     Retailers, Landscape Management and Horticulture Industry
                                                                                                                                          0
                                     Large and small retailers of gardening products, as well as landscape maintenance and
                                     pest control companies, provide a direct link to consumers. That link can be used to
                                     promote FY&N practices and consumer purchases of environmentally beneficial
                                     plants and yard care products.                                                                       0
                                                                                                                                          0
                                     A proactive strategy to educate retailers and landscape service companies about
                                     FY&N concepts and the potential business value of marketing these concepts and
                                     products to environmentally conscious residents is stressed in this Action Plan.

                                     For homeowners who contract with yard maintenance companies, the prospect of
                                     adopting environmentally beneficial landscaping practices can be even more challeng-                 0
                                     ing. VVhile companies may be willing to reduce "broadcast" spraying of pesticides,
                                     their profits often remain linked to the routine application of these chemicals.

                                     Yard maintenance companies and other members of the horticulture industry also must
                                     continue to be targeted through the FY&N program.

                                     The following strategies are proposed for the FY&N program, contingent upon FCES
                                     securing funding for implementation.
                                     STEP 1     Develop partnerships with key nursery/garden supply retailers in each                     410
                                                county to promote FY&N literature, and with other resources who advocate                  10
                                                environmentally friendly landscaping, at point-of-purchase.                               0
                                                                                                                                          0
                                     STEP 2     Expand existing training programs or develop new ones, as necessary, to
                                                educate retail/landscape management personnel about FY&N concepts.
                                                                                                                                          0
                                     STEP 3     Review existing industry certification programs and recommend changes to                  0
                                                incorporate FY&N concepts.                                                                0
                                                Responsible ParVes: Florida Cooperative Extension Service (FY&N
                                                Program), in cooperation with local governments, SWFWMD and
                                                WCRWSA



                                     COST:
                                     Implementation of steps is contingent upon funding. Costs for development of a
                                     point-of-purchase displays/materials depends on design criteria and materials selected
                                     for distribution.


                                     Developers and Property Managers

                                     Opportunities exist to promote Model Florida Yards at new residential developments,
             as                                                                                                                           0











                                                                                                                     XM.   jx--s@. T.
                                                                                                                        P@ -zs:
                ACTION PLAN                                                     Water & Sediment Quality

                                                                                                                 Charting the Course
                or during the annual Parade of Homes, to illustrate to potential homebuyers the beau-               for Tampa Bay
                ty, reduced maintenance and environmental benefits of a Florida Yard. Developers
                could promote Florida Yards as a home purchase feature for the discriminating, envi-
                ronmentally conscious homebuyer. By creating partnerships between developers and
                nurseries, a Model Florida Yard could be included among new development models.
                A companion educational brochure that highlights FY&N landscaping principles also
                could be made available, as part of a developer's sales kit, to potential home buyers.

                The following strategies are proposed for the FY&N program, contingent upon FCES
                receiving funding for implementation.

                STEP 1     Promote the development of Model Florida Yards at residential model
                           home developments in each county. Work with homebuilders' associations
                           and realtors to identify appropriate new housing developments.

                    A.     Identify nurseries/landscape architects who will cooperate with developers
                           in landscaping model homes using FY&N design and maintenance princi-
                           ples.

                    B .    Schedule one-on-one meetings and/or a workshop with developers to out-
                           line the program.

                    C.     Secure the developer's agreement to include an educational brochure,
                                                                                                                 \fAO\@
                           which highlights Florida Yard landscaping advantages, in the company's
                           sales kit.


                           Responsible parties: This action could be coordinated b the Florida
4f                                                                                   y
                           Cooperative Extension Service (FY&N Program) and local governments.

                STEP 2     Develop interpretive signage (incorporating developer and nursery logos),
                           and Florida Yards promotional brochure that includes a cost-benefit analy-
0                          sis of a Florida Yard vs. a conventional, maintenance-intensive landscape
                           (see SV;FWMD Xeriscape Model Ordinance for reference).
                           Responsible parties: FCES

                STEP 3     Enlist realtors and property managers to adopt and promote FY&N con-
                           cepts by providing educational workshops and opportunities to earn
                           Continuing Education Units (CEUs).
                           Responsible parties: FCES


                COST:
                Implementation of steps is contingent upon funding. Costs to develop a Model
                Florida Yard at a residential development are estimated at $5,000, based on plant
                material, irrigation and interpretive signage. Plants and irrigation costs would be
                borne by developers, with interpretive signage and consulting provided by FCES.
                Costs for interpretive signage to promote Model Florida Yards could range from $500-
                $ 1,000 per site. Funding sources include participating developers, local governments,
                river basin boards, board of county realtors and builders' associations.

                                                                                                                            67






         DRAFT                ACTION PLM                                        Water & Sediment Quality
      Charting the Course
        for Tampa Bay         SCHEDULE:
                              FY&N neighborhood programs are ongoing. Other steps may be initiated beginning
                              in 1996, if FCES is able to secure additional funding from local governments or other
                              cooperating partners.


                   ..........
                              EXPECTED BENEFITS:
                              Reduction in fertilizers, pesticides and water use should result in reduced pollutant
                              loads from urban runoff. Increases in the use of native and other beneficial drought-
                              tolerant plants also can enhance habitat value.


                              MONITORI[NG ENVIRONMENTAL RESPONSE:
                              FCES surveys participants to assess landscape management changes as a result of the0
                              program. Public interest in FY&N also can be gauged by tracking distribution of  0
                              materials and sales at major retail outlets promoting these concepts, number of profes-
                              sionals certified in FY&N concepts, and number of certified Florida Yards.


                              REGULATORY NEEDS:
                              None anticipated.


                              RELATED ACTIONS:                                                                 0
                              SW-2, SW-3                                                                       40
                                                                                                               0








                                                                                                               40














                                                                                                               0
                                                                                                               0






                ACTIM PLM                                                      Water & Sediment Quality             DRAFT
                                                                                                                 Charting the Course
                Assist Businesses in Implementing Best                                                             for Tampa Bay
                Management Practices to Reduce Stormwater

                                                                                                                ...... .................
                Pollution, and Develop Model Landscaping                                                           .............................
                                                                                                                .......Sw 2
                Guidelines for Commercial Application                                                            ...... ................
                                                                                                                ............





                ACTION.
                Encourage and assist businesses in implementing best management practices to reduce
                stormwater pollution, and develop model landscaping guidelines based on Florida
                Yards & Neighborhoods principles for commercial application.


                BACKGROUND.
                Local communities offer various levels of assistance to businesses in assessing site
                management practices that can contribute to stormwater pollution, and in developing
                pollution prevention strategies. These efforts can provide bottom-line dividends to
                participating businesses, by cutting costs of consumable materials such as water or
                pesticides, and to local governments, by emphasizing pollution prevention as a strate-
                gy to reduce costly cleanup or end-of-pipe treatment.

                One example is Hillsborough County's Operation BayWorks-Businesses for a
                Cleaner Future, established with help from a Tampa Bay NEP grant. The program
                enlists and aids businesses in the construction, manufacturing, landscaping and auto-
                motive repair industries in the development of pollution prevention plans.
                Participants learn industry-specific best management practices to reduce stormwater
                pollution associated with landscape management, construction equipment and repair,
                and hazardous materials use and disposal. Programs such as this often target smaller,
                specialty businesses, like automotive repair, whose collective impact on stormwater
                pollution can be substantial. These smaller businesses typically lack knowledge about
                their potential impact on the environment, as well as the resources to research best
                management practices on their own.

                Local communities should evaluate programs such as Operation BayWorks as a model
                for implementation in their own communities to reduce stormwater pollution from
                commercial sites. Efforts such as these may help local governments meet federal
                mandates for pollution prevention as required in NPDES (National Pollutant
                Discharge Elimination System) permits.

                Additional steps should be taken throughout the region to encourage businesses to
                adopt principles of environmental landscape management that are also taught to resi-
                dents through the Florida Cooperative Extension Services' Florida Yards &
                Neighborhoods (FY&N) Program. Commercial landscapes typically feature large
                areas of high maintenance turf grass and exotic plants, which often demand extensive
                amounts of fertilizer, pesticide and water. Stormwater pollution from these commer-
                cial landscapes can be reduced with changes in maintenance practices and landscape
                design, such as downsizing turf areas and expanding the use of beneficial drought-tol-
                erant and native plants, which require less fertilizer, pesticides and water.






           DRAFT                      ACTION PLM                                                      Water & Sediment Quality
       Charting the Course
          for Tampa Bay               These concepts can be packaged for commercial application by developing model
                                      landscaping guidelines for incorporation into local government landscape ordinance
                                      codes. Guidelines could then be incorporated into the site review process for new
          ......... .                 developments. They also should be promoted to existing businesses, along with cost
                   .......................
              .... ........................
             ........ .... ........................
                                      analyses that illustrate potential cost savings in maintenance.
          ..... ..... ......................
            ..... ..................... ..
                                      Improvements in landscaping practices are one important part of an overall pollution
                                      prevention strategy. One highly effective action to curb stormwater pollution from
                                      commercial sites and malls is to reduce the amount of impervious surface devoted to
                                      parking, by reducing parking space requirements in building codes and promoting
                                      alternative, pervious materials for overflow parking (see Action SW-4).                               0


                                      STRATEGY:
                                      STEP I     Target and assist businesses in implementing site management practices to
                                                 reduce stormwater pollution. Evaluate Hillsborough County's Operation
                                                 BayWorks as a model for implementation.

                                                 A comprehensive program might focus on best management practices for                       0
                                                 landscaping and landscape maintenance, erosion control, and hazardous
                                                 materials use and disposal. Workplans, may include: business workshops;
                                                 industry-specific workbooks that promote best management practices and
                                                 include templates for self-assessment and site management plans; model
                                                 commercial landscape demonstration sites; follow-up surveys or on-site                     40
                                                 visits to track progress; regulatory incentives; and recognition through                   0
                                                 existing environmental awards program and on-site promotional materials
                                                 or emblems that participating businesses can display.                                      0
                                                                                                                                            0
                                          A.     Identify and prioritize local target industries and businesses.

                                          B.     Form a business steering committee or utilize an existing structure such as
                                                 environmental committees of local chambers of commerce to oversee
                                                 development of die program and materials, with representation from local
                                                 target industries, environmental agencies and the cooperative extension ser-
                                                 vice. Materials developed for Operation BayWorks may be modified for
                                                 these purposes.

                                          C.     Implement program, including provisions for monitoring results of efforts.
                                                 Responsible parties: local governments in cooperation with chambers of

                                                 commerce


                                      STEP 2     Develop and incorporate succinct and user-friendly model landscaping
                                                 guidelines for local governments and commercial businesses, based on
                                                 FY&N concepts, into local government landscape codes throughout the
                                                 Tampa Bay watershed. Guidelines should include cost comparisons for
                                                 maintenance of traditional landscapes vs. model landscapes.
                                                 Responsible parties: local governments, in cooperation with Florida
                                                 Cooperative Extension Service, Southwest Florida Water Management
                                                 District, West Coast Regional Water Supply Authority

             78
                                                                                                                                            0






               ACTIN PUW                                                      Water & Sediment Quality            DRAFT
                                                                                                               Charting the Course
               STEP 3     Incorporate model landscape guidelines into local government site review               for Tampa Bay
                          process for new development or, alternatively, provide incentives such as
                          reductions in stormwater utility fees to developers who agree to meet these
                          heightened environmental landscaping standards.                                               . .........
                          Responsible parties: local governments

                                                                                                              ..............................
               STEP 4     Incorporate Steps 1-2 as part of the comprehensive stormwater manage-
                          ment plan in NPDES permits, as examples of efforts to meet federal man-
                          dates for pollution prevention.
                          Responsible parties: local governments

               STEP 5     Aggressively promote model landscape design and maintenance guidelines
                          and cost-benefit analyses to businesses, developers, real estate management
                          companies and commercial realty enterprises to promote retrofits of exist-
                          ing landscapes and landscape maintenance practices.
                          Responsible parties: local governments, chambers of commerce, Florida
                          Association of Environmental Professionals, builders associations,
                          Florida Native Plant Society


               SCHEDULE:
               All steps can be initiated in 1996.


               COST-.
               Second-year implementation costs for Operation BayWorks are estimated at $20,000,
               plus administrative time. Costs to develop model landscape guidelines, including
               landscape cost-comparison analysis, are estimated at $20,000.


               EXPECTED BENEFITS-
               Improved landscaping and site management practices and implementation of model
               landscaping guidelines will reduce stormwater runoff pollution from commercial sites.


               MONITORING ENVIRONMENTAL RESPONSE-
               Surveys can be used to track pre-and post-business progress in implementing best
               management practices to reduce stormwater pollution. Local governments also can
               gauge business participation by the number of pollution prevention plans developed as
               a direct result of their outreach. Stormwater sampling also can be employed to moni-
               tor pre-and post-water quality at large commercial sites that agree to implement model
               landscaping guidelines.


               REGULATORY NEEDS-
               Dependent upon work plan, but may include amendments to local comprehensive
               plans, landscape ordinances, criteria for commercial site permitting review, and
               changes to NPDES permits.


               RELATED ACTIONS:
               SW-1, SW-3, SW-4                                                                                          71






           BRAI                      ACTION PLM                                                     Water & Sediment Quality              0
       Charting the Course                                                                                                                0
         for Tampa Bay                                                                                                                    0
                                     Encourage Local Governments to Adopt Integrated
                                     Pest Management Policies and Implement
                                                                                                                                          0
                        ............
                    .....................
              ............................
            .4          0
          ...... ..     ...

           . . ... . ......  ....
                                     Environmentally Benericial Landscaping Practices

                     .............
                        ............
             ...........  ........................
            . .............. ............



                                     ACTION:
                                     Encourage local governments to adopt integrated pest management policies and use
                                     environmentally beneficial landscaping practices on public properties to reduce pollu-
                                     tion from stormwater runoff. As part of this effort, communities are encouraged to                   0
                                     commit a minimum of 50 percent of all new public landscapes and retrofits to existing
                                     landscapes to low-maintenance designs featuring native and other beneficial drought-
                                     tolerant plants.


                                     BACKGROUND:
                                     Local government facilities and parks are visited frequently by the public, providing
                                     an excellent opportunity to expose residents to environmentally sensitive concepts for               0
                                     landscape design and maintenance.                                                                    0
                                                                                                                                          0
                                     Many communities already have begun to develop some public sites in accordance
                                     with XeriscapeTm principles. However, as new landscapes are planned or as existing
                                     landscapes are retrofitted, local governments have an opportunity to further reduce
                                     runoff pollution and lead by example, serving as models to citizens who are being                    0
                                     asked to conserve water and limit pesticide and fertilizer use.

                                     Changes to comprehensive plans and landscape codes continue to reflect environmen-                   46
                                     tal impact concerns, but additional steps can help achieve a broad-based impact within               0
                                     a local government's sphere of influence. Additionally, such efforts can be referenced               0
                                     in the required annual reports for National Pollutant Discharge Elimination System                   0
                                     (NFDES) permits.                                                                                     46
                                     This action seeks a commitment from local governments to devote half of the acreage                  0
                                     of all new public landscapes or retrofits to existing landscapes to low-maintenance                  0
                                     designs featuring beneficial native or drought-tolerant vegetation that reduce the need              0
                                     for water, fertilizer and pesticides. It also calls on local governments to adopt resolu-            a
                                     tions to use Integrated Pest Management (IPM), least-toxic landscape maintenance                     0
                                     practices that employ pesticides only as a last resort. These efforts should be refer-               0
                                     enced in local government applications for NPDES permits, which require increased                    0
                                     emphasis on pollution prevention.                                                                    0
                                     Furthermore, information about environmental landscape management (ELM) con-                         0
                                     cepts taught by county cooperative extension services should be communicated regu-                   9
                                                                                                                                          0
                                     larly to government employees involved in landscape maintenance or the purchase of
                                     fertilizers, pesticides and plant materials. Annual training sessions with those employ-
                                     ees could provide updates on new products and techniques that relate to ELM.                         0
                                     Sessions of this type also serve to reinforce the commitment made by elected officials               0
                                     and senior staff to environmental quality and pollution prevention.                                  0
             71                                                                                                                           &
                                                                                                                                          0
                                                                                                                                          0
                                                                                                                                          0






                ACTION PLM                                                      Water & Sediment Quality              DUF
                                                                                                                   Charting the Course
                STEP I     Commit a minimum of 50 percent of all new public landscapes and retro-                    for Tampa Bay
                           fits to existing landscapes to low-maintenance designs featuring native or
                           beneficial drought-tolerant plants, with allowances for areas where
                           reclaimed water precludes the use of xeric vegetation.
                           Responsible parties: local governments

                                                                                                                      ............
                                                                                                                      ............... .. .
                STEP 2     Adopt a resolution to use Integrated Pest Management (IPM) on all pub-
                           licly owned lands, including parks and government facilities. IEPM employs
                           biological, cultural and chemical techniques to control pests, and empha-
                           sizes pesticides as a last resort.
                           Responsible parties: local governments

                           A model resolution, based on Sarasota County's IPM Policy, has been
                           developed by the Sarasota County Cooperative Extension Service.

                STEP 3     Review purchasing specifications for fertilizer and pesticides to assure gov-
40                         ernment use of least-toxic pesticides and slow-release fertilizers as well as
                           cleaning products and other substances and equipment that may be used in
                           site maintenance.
                           Responsible paHies: local governments, in cooperation with county coop-
0                          erative extension services

                STEP 4     Establish annual training sessions for landscape maintenance and purchas-
                           ing personnel to assure proper use of ELM concepts, BMPs and least-harm-
                           ful products. Coordinate with the county cooperative extension services to
                           determine if continuing education credits can be provided for approved
                           training.
0
                           Responsible parties: local governments
0
                STEP 5     Identify and develop interpretive signage for a minimum of three high-traf-
                           fic sites where native plants and Florida Yard design and maintenance con-
                           cepts can be promoted as an attractive alternative to turf grass and exotic
                           plants. Also, distribute materials, such as the Florida Yards &
                           Neighborhoods brochure and Florida YardStick, available through the
                           Cooperative Extension Service, to promote residents' use of Florida Yards
                           concepts and provide citizens with resources for assistance and additional
                           information. Provide incentives, such as plant giveaways and free design
                           consultations, whenever possible.
                           Responsible parties: local governments

                See also Action SW-2 regarding development of model landscaping guidelines, based
                on Florida Yards & Neighborhoods principles, for incorporation into local govern-
                ment landscape codes.


                SCHEDULE-.
                All steps can be initiated in 1996 for implementation in 1997.




                                                                                                                             73






          DRAFT                      ACTION PLM                                                    Water & Sediment Quality
       Charting the Course
         for Tampa Bay               COST:
                                     Steps 1-4 can be implemented with existing resources. Implementation of IPM and
                                     other landscaping best management practices may result in cost savings to govern-
                   ............
                ............................
                                     ments. Costs to develop model landscapes (Step 5) will vary according to site size
             SW:                     and specifications. For example, plant materials and signage for a 7,200-square-foot
                    ...............
                                     site could be installed for about $5,000.


                                     EXPECTED BENEFITS:
                                     Improvements in landscaping and landscape maintenance will reduce stormwater pol-                   0
                                     lution, conserve water and enhance native habitat. The establishment of environmen-                 0
                                     tal landscapes at public locations will provide homeowners with an "in-ground"
                                     demonstration of these methods.
                                                                                                                                         0
                                     MONITORING ENVIRONMENTAL RESPONSIE:
                                     Local governments monitor water quality. They also can track the amount of consum-
                                     able materials used to maintain public landscapes to quantify reductions and possible
                                     cost-savings.                                                                                       0


                                     REGULATORY NEEDS:
                                     Possible revisions to Local Government Comprehensive Plans and landscape codes.


                                     RELATED ACTIONS:
                                                                                                                                         0
                                     SW-1, SW-2





                                                                                                                                         0





                                                                                                                                         0











                                                                                                                                         0
                                                                                                                                         0
                                                                                                                                         0
             74                                                                                                                          0
                                                                                                                                         0






                ACTIM PLM                                                       Water & Sediment Quality              DRAFT
                                                                                                                   Charting the Course
                                                                                                                     for Tampa Bay
                Reduce hnpervious Paved Surfaces



                ACTIOM.
                Reduce impervious paved surfaces in the watershed to reduce stormwater runoff and
                associated pollution by allowing more stonnwater to filter through the soil.


                BACKGROUNDg
                The large amount of impervious paved surfaces in the Tampa Bay watershed has
                greatly increased stormwater runoff and associated pollution of surface waters by pre-
                venting stormwater from naturally percolating through the soil. Paved surfaces such
                as roads, rooftops and parking lots increase both the amount and speed of runoff by
                channeling rainwater to rivers and bays.

                Existing regulations both address and cause the problem. Stormwater systems are
                designed to move rainwater off roads as quickly as possible to prevent flooding, limit-
                ing stormwater infiltration. Additionally, many development standards require that
                large amounts of impervious surface be incorporated to support traffic or parking. For
0               example, commercial developments are typically required to provide a particular num-
                ber of parking spaces based on the development's total square footage or anticipated
0               absolute maximum demand. On the other hand, water management district rules
0               require that a certain volume of stormwater be retained on-site to provide water quali-
0               ty treatment. That volume is often tied to the amount of a site's new impervious sur-
                face. These apparent contradictions reflect the varied and sometimes competing
                objectives bay managers and engineers must seek to accommodate.

                This action calls for the development of target ratios for impervious-to-pervious sur-
                face to guide local governments in efforts to minimize impervious surface, and pro-
40              motes the use of alternative pervious materials wherever feasible and effective. It also
0               encourages local governments to provide incentives to reduce impervious surface
0               within existing developments, including abandoned or underutilized parking areas.

                Parking lots present a major opportunity for alternatives to impervious surface, partic-
                ularly in overflow areas. Options may include turf block (concrete blocks with holes
                that allow turf growth and ground water infiltration), grass and specialized pervious
                hard-surface materials. The cost-effectiveness of alternatives such as these has not yet
                been evaluated for the Tampa Bay watershed-a shortcoming this action addresses.

                Communities can also reduce impervious surface by reducing the required number or
                size of parking spaces in large developments or malls. For example, the reduction of
                a standard 10' X 20' parking space to 8' X 18' results in a 17 percent reduction in sur-
                face area, or a savings of 5 10 square feet, for a 3,000-square-foot parking lot with a
                350-square-foot drive aisle. Currently, parking space requirements are based on peak
                usage that may be overestimated and can be addressed with overflow parking utilizing
                pervious surfaces.



                                                                                                                             75






           DRAFT                      ACTION PLM                                                    Water & Sediment Quality
       Charting the Course
         for Tampa Bay                STRATEGY:                                                                                           0
                                                                                                                                          0
                                      This strategy calls for the development of target ratios for pervious-to-impervious sur-
                                      face to guide local governments in minimizing impervious surface in their communi-
                       . .........    ties, as well as recommendations and evaluations of management options. Local gov-
                 M.                   erriments also are encouraged to provide incentives to developers in reducing or con-
                                                                                                                                          0
                     . ..............
                     ................. verting impervious surface.
                                      STEP1      Develop target ratios for pervious-to-impervious surface for parking lots                0
                                                 and new development. Provide recommendations and cost-benefit evalua-                    0
                                                 tions in a report to the Tampa Bay NEP Management Committee in early                     0
                                                 1997.                                                                                    0
                                                                                                                                          0
                                         A.      Assess existing development regulations regarding impervious surface, as
                                                 well as model rules from other watersheds.


                                         B.      Evaluate pervious surface options appropriate for use in the Tampa Bay
                                                 watershed. Analysis should include costs, benefits, site requirements,
                                                 effectiveness (pollutant-removal capability and durability) and maintenance
                                                 requirements.                                                                            0

                                         C.      Develop target ratios for pervious-to-impervious surface for new develop-
                                                 ments as guidelines for local governments, along with specific recommen-
                                                 dations for reducing impervious surface through efforts such as reducing                 0
                                                 parking space requirements or requiring pervious surfaces for overflow                   I*
                                                 parking.                                                                                 0
                                                 Responsible parties: Tampa Bay National Estuary Program


                                      STEP2      Based on results from Step 1, revise local government and agency regula-
                                                 tions to incorporate target ratios, encourage the use of pervious surface
                                                 materials and reduce impervious surface. Options may include amend-                      0
                                                 ments to stormwater or local development rules and plans to:

                                                        require fewer and/or smaller parking spaces for new developments,
                                                        particularly malls and multi-family dwellings;
                                                        set a maximum percentage for impervious material for a new site;                  0i
                                                                                                                                          0
                                                        require existing developments to demonstrate the need for their
                                                        impervious surface, such as parking, or replace or remove excess
                                                        amounts at time of redevelopment;

                                                        encourage pervious paving materials for overflow parking and
                                                        multi-level parking for new development projects;
                                                        base stormwater utility rates on impervious surface, not simply
                                                        property size.
                                                 Responsible parties: local governments, SWFWMD
                                                                                                                                          0
                                                                                                                                          0
                                                                                                                                          0
             72                                                                                                                           0
                                                                                                                                          0
                                                                                                                                          0
                                                                                                                                          0






             ACTION PUW                                        Water & Sediment Quality     DRAFT
                                                                                          Charting the Course
             STEP 3  Provide incentives for the replacement or removal of existing impervious for Tampa Bay
                     surface in underutilized or abandoned areas as properties are redeveloped.
                     Examples of incentives include credits toward stormwater requirements,
                     reductions in stormwater utility fees and density bonuses.
                     Responsible parties: local governments, SWFWMD
                                                                                             ...............


             SCHEDULE:
             Recommendations from Step 1 are due in early 1997. Implementation of Steps 2 and
             3 can be initiated in 1997, based on recommendations.


             COST-
             Evaluations outlined in Step I can be completed within existing NEP budgets. Steps
             2 and 3 will require administrative and staff time of local governments and
             SV;FWMD. Costs for incentives for the removal of impervious surface have not yet
             been estimated, but may be offset by reduced municipal costs in treating stormwater
             runoff. Costs associated with incentives to property owners to replace or remove
             impervious surface at the time of redevelopment have not yet been estimated, but will
             be based on demonstrating a clear return on investment.


             EXPECTED BENEFITS:
             Reductions in the amount of impervious surface in the watershed will reduce pollu-
             tants such as heavy metals, oil and grease, and nitrogen in stormwater discharged to
             the bay from urban areas.


             MONITORING ENVIRONMENTAL RESPONSE-
             Local governments monitor ambient water quality in Tampa Bay.


             REGULATORY NEEDS:
             Possible revisions to local development standards and stormwater regulations.


             RELATED ACTIONS -

             SW-5, TX-1














ML                                                                                                77






                                                                                                                        t Quality              0
           DRAFT                      ACTION PLM                                                       Water & Sedimen                         0
       Charting the Course                                                                                                                     0
         for Tampa Bay                Require Older Properties Being Redeveloped to                                                            0
                                      Meet Current Stonnwater Treatment Standards,                                                             0

                    ...... .. .....
            :.A i@w                   or Provide Equivalent Value
                                                                                                                                               0
                X ::W@ .....
                 . .........
                                                                                                                                               0.
                  .............. ............ .
                ............ .............
           . . ......... ... ................

                                      ACTION:                                                                                                  0
                                      Require older properties being redeveloped to meet current stormwater treatment stan-
                                      dards, but only for that portion of the property undergoing redevelopment, plus any                      0
                                      stormwater "co-mingling" areas*, when more than 3,000 square feet of impervious                          0
                                      surface is added or reconstructed. Eliminate other exemptions. Where on-site                             40
                                      stormwater treatment is not feasible, allow and require equivalent compensation                          0
                                      through off-site mitigation, payments to stormwater "banks", or implementation of                        0
                                      other best management practices.


                                      BACKGROUND:
                                      Redevelopment of existing properties is often encouraged and can be highly desirable
                                      as a means of re-energizing a community's urban core. Infrastructure and public ser-                     0
                                      vices are already in place, and development remains concentrated where impacts have                      0
                                      already occurred-a strategy. many urban planners advocate as a means of discourag-
                                      ing urban sprawl and associated stormwater pollution. To encourage and improve the
                                      cost-effectiveness of this option, many local governments offer financial incentives or
                                      exemptions to developers. For instance, local governments may offer a developer an                       0
                                      exemption from meeting regulatory criteria for stormwater treatment even if signifi-                     0
                                      cant amounts of new impervious surface are added in redevelopment.                                       0
                                                                                                                                               a
                                      However, properties being redeveloped also are a logical target in efforts to reduce
                                      pollution from urban stormwater runoff, since many of these properties were devel-
                                      oped prior to the adoption of state stormwater regulations that set criteria for on-site                 0
                                      stormwater management. Properties developed prior to 1982 were not required to                           61
                                      provide stormwater detention and few of these sites have any means of managing and
                                      providing water quality treatment for stormwater. Redeveloped sites also are typically                   0
                                      utilized at a higher intensity, further contributing to overall stormwater impacts.                      40
                                      These areas are often land-limited, concentrated in downtown business and commer-                        0
                                      cial districts, and in drainage basins that continue to be significant contributors to
                                      stormwater pollution.

                                      Local government requirements for redevelopment vary, but most offer exemptions of
                                      one form or another from current Southwest Florida Water Management District
                                      (SWFWMD) stormwater treatment standards, either for projects under a particular
                                      size or in special areas, such as historical districts and downtowns. SWFWMD cur-
                                      rently requires that permittees meet new development stormwater treatment standards
                                      only if there is an increase in pollution or the discharge point is altered.



                                        areas where existing property runoff mixes with additional stormwater runoff associated with the
                                      redevelopment.


             78
                                                                                                                                               0
                                                                                                                                               0
                                                                                                                                               0






                ACRON PLM                                                        Water & Sediment Quality              DRAFT
                                                                                                                    Charting the Course
                This action seeks to require that properties being redeveloped meet current stormwater                for Tampa Bay
                standards for that portion that is redeveloped plus stormwater co-mingling areas, but
                also adds flexibility for alternative means to meet this requirement when on-site treat-
                ment is not feasible. It is based on an existing model ordinance for redevelopment in
                the City of St. Petersburg, which was adopted in 1994 and is widely considered to be
                fair and equitable as well as envirom-nentally beneficial. Since its adoption, the City
                                                                                                                              .......... . ..
                                                                                                                          ... . ......
                has granted only one exemption.

                By allowing alternative on-site stormwater treatment or off-site mitigation, communi-
                ties can still encourage redevelopment without sacrificing stormwater treatment and
                associated impacts to the bay. This action also provides an assessment of those alter-
                native best management practices that may be allowed when traditional on-site treat-
                ment is not feasible. Options may include contributions to a regional stormwater
                facility located in the same drainage area (possibly through payments to a stormwater
                "bank"), the collection of stormwater in cisterns or underground vaults, or improve-
                ments to existing stormwater systems adjacent to the site, as well as non-structural
                BMPs such as street sweeping.


                STRATEGY.
                This strategy calls for revisions to existing rules and regulations to require that proper-
                ties more than 3,000 square feet being redeveloped meet current stormwater treatment
                requirements for only that portion of the site that is impacted, except in cases in which
                on-site treatment is not feasible. In these instances, rule revisions should allow and
                require developers to provide equivalent value, either through contributions to a
                stormwater "bank," off-site mitigation, or by implementing approved best manage-
                ment practices.

                STEP 1     Compare alternative storinwater treatments (both structural and non-struc-
                           tural) that may be employed in redevelopment projects in the Tampa Bay
                           watershed. Provide cost-benefit analysis for each option that includes limi-
                           tations, effectiveness for removing pollutants, and site and maintenance
                           requirements. Recommendations shall be reviewed by the Tampa Bay
                           NEP's Technical Advisory Committee in early 1997 and forwarded to the
                           Management Committee for review.
                           Nesponsible parties: Tampa Bay NEP

                STEP2      Revise local government comprehensive plans and agency regulations to
                           require that properties being redeveloped meet existing stormwater treat-
                           ment standards for that portion of the site being redeveloped, plus any
                           stormwater co-mingling areas, when more than 3,000 square feet of new
                           and/or reconstructed impervious surface is added. When on-site treatment
                           is not feasible, allow and require equivalent off-site mitigation or compen-
                           sation. This would include:


                                0  amendments to SViFWMD stormwater rules to allow alternative
                                   stormwater treatments as options for properties being redeveloped
                                0  amendments to local development standards including zoning laws
                                   and comprehensive plans to require stormwater treatment for prop-

                                                                                                                              78






           DRAFT                        ACTION PLAN                                                       Water & Sediment Quality                0
       Charting the Course                                                                                                                        0
          for Tampa Bay                                    erties being redeveloped and to remove exemptions, and to allow                        0
                                                           the use of alternative options to meet stormwater requirements that                    0
                                                           are not feasible on-site                                                               0
                                                                                                                                                  0
                                                   Responsible parties: local governments and regulatoyy agencies, especial-
                                                                                                                                                  0
                                                   lySWFWMD
                  . . ...........
                     ...... ..........
                                                                                                                                                  0
                                        SCHEDULE:                                                                                                 0
                                        Step 1 can be initiated by the NEP in 1996 with available funds. Step 2 can be initiat-                   0
                                        ed in 1997, following adoption of the final bay comprehensive plan and regulatory                         0
                                        approval to allow developers to meet requirements using alternative means in cases                        0
                                        where on-site treatment is not feasible.


                                        COST:
                                        Step 1 has been funded by the Tampa Bay NER Implementation of Step 2, if
                                        approved, will require local government and staff time, as well as costs associated
                                        with stormwater treatment or alternative options called for at the time of redevelop-
                                        ment. In-lieu fees deposited by developers into a "stormwater banIC' could help                           16
                                        finance implementation of alternative stormwater treatment options, such as develop-                      0
                                        ment of a regional stormwater facility or additional street sweeping. A cost-benefit                      0
                                        evaluation of alternative treatments is being developed as part of an ongoing project                     40
                                        referenced in Step 1.                                                                                     0


                                        EXPECTED BENEFITS:
                                        Additional stormwater treatment from older properties and in the urban areas of the
                                        watershed will reduce pollution in stormwater runoff from areas that are traditionally
                                        higher contributors. Options built into this action provide flexibility in implementa-
                                        tion without sacrificing the need for stormwater treatment or the valuable emphasis on                    0
                                        redevelopment.


                                        MONITORING ENVIRONMENTAL RESPONSE:
                                        Local governments monitor ambient water quality.


                                        REGULATORY NEEDS:
                                        Revisions to local development criteria and SWFWMD stormwater permit rule.


                                        RELATED ACTIONS:

                                        SW-2, SW-4, SW-6, TX-1






               ACTION PLM                                                       Water & Sediment Quality              DRAFT
                                                                                                                  Charting t1w Course
               Promote Compact Urban Development and                                                                 for Tampa Bay
               Redevelopment

                                                                                                                     ..............................


                                                                                                                           A

               ACTION-
               Convene a conference of local government and regional planners, architects and
               neighborhood councils to evaluate and recommend actions to more effectively pro-
               mote compact urban development and redevelopment to minimize urban sprawl and
               associated environmental impacts.


               BACKGROUND:
               Suburban growth in the Tampa Bay region and elsewhere has given rise to some inef-
               ficient patterns of development that can contribute to increased stormwater pollution
               and costly infrastructure needs by promoting low-density, single-use development at
               the expense of fostering compact urban development and redevelopment of previously
               impacted land.

               Most new development today is suburban and characterized by low-density residential
               and commercial land uses. Single-use land patterns that separate residential develop-
               ment from retail and business sectors are most prevalent. Although commercial uses
               are usually grouped together in linear corridors flanking major roadways, there are
               rarely interconnections between sites, increasing the public's dependence on automo-
               biles.


               While new developments are subject to various stormwater and land-use regulations,
0              the overall effect of this low-density, single-use development is to cominit an ever-
               increasing per capita share of land resources within the watershed to suburban uses
Is             that increase impervious surface and ultimately result in more runoff pollution. Low-
               density development also results in greater distances between sites, resulting in longer
               and more frequent vehicle use and associated atmospheric pollution. Perhaps most
               important, it limits opportunities for efficient mass transit.

               Costs to extend infrastructure (utilities, roads, stormwater systems) into outlying areas
               are extensive and ultimately bomeby the community as a whole. As suburban areas
               expand, large tracts of urban areas are vacated, abandoned, or maintained at less than
0              optimal density, factors which discourage reinvestment and reduce the viability of
0              these inner cores. Existing growth management and concurrency guidelines (primari-
lm@
               ly related to transportation) often penalize existing urban areas of development for
               congestion, while further promoting development in outlying areas.


               STRATEGY.
               This strategy is to convene a conference of experts from related fields and neighbor-
               hood interests to evaluate existing growth management strategies and recommend
               environmentally sensitive policies and actions to more effectively promote compact
               urban develo ment and redevelopment. Recommendations would focus on encourag-
                             P
               ing reinvestment and redevelopment of the urban core and the development of mixed-
                                                                                                                            81






           DRAFT                        ACTION PM                                                         Water & Sediment Quality
       Charting the Course                                                                                                                        0
          for Tampa Bay                 use master-planned communities that cluster uses to conserve land and resources.                          0

                                        STEP 1     Organize a Future of the Region conference to evaluate and recommend
                                                                                                                                                  0
                                                   environmentally sensitive policies and actions to encourage redevelopment
                                                   of the urban core and mixed-use, clustering concepts for new development.                      0
                                                   Responsible parties: Tampa Bay Regional Planning Council (to sponsor                           0
                                                   and organize conference), in partnership with metropolitan planning                            0
                                                   organizations and local governments.                                                           0
                                                                                                                                                  0
                                        The conference should include local government planners and metropolitan planning                         0
                                        and transportation organizations, as well as the APA (American Planning Association),                     0
                                        AIA (America Institute of Architects) and ASLA (American Society of Landscape                             0
                                        Architects), councils of neighborhood associations, and environmental/bay interests.                      0
                                        To promote and encourage reinvestment and redevelopment of the urban core, partici-                       0
                                        pants may evaluate ways to:                                                                               0
                                                                                                                                                  40
                                        ï¿½   Define neighborhood boundaries and plan major traffic corridors to reinforce                          0
                                            these boundaries rather than divide neighborhoods. Identify and protect the char-                     9
                                            acter and value (i.e., positive factors influencing quality of life) of existing neigh-               40
                                            borhoods whenever feasible.                                                                           0

                                        ï¿½   Encourage private reinvestment in declining urban neighborhoods by promoting
                                            community appearance, public safety, public services (libraries, schools), and his-
                                            toric preservation.
                                        ï¿½   Develop a separate zoning category and criteria for small-scale retail and service
                                            uses within neighborhoods.
                                        ï¿½   Develop criteria to support the development of high-density residential uses with-
                                            in existing strip commercial corridors.
                                        ï¿½   Promote mixed-use corridors and multi-use buildings to help support the use of
                                            mass transit.

                                        ï¿½   Require new development or projects being redeveloped to evaluate potential
                                            pedestrian interconnections between commercial and residential/commercial uses.
                                            Amend land development codes to require pedestrian connections during commer-                         0
                                            cial plan review.                                                                                     0
                                        ï¿½   Amend Local Government Comprehensive Plans and land development codes to                              0
                                            allow an increase in the floor-area ratio (allowable square-footage per acre) within                  0
                                            targeted commercial and business corridors as a conditional incentive to encour-                      49
                                            age vertical parking garages and more efficient use of land resources.
                                        ï¿½   Provide incentives for development in targeted urban areas by expanding enter-
                                            prise zones, lowering development exactions, and modifying concurrency require-
                                            ments.

                                        To encourage the development of mixed-use, master-planned developments that utilize
                                        concepts such as clustering and transfer of development rights for environmental,                         C
                                        open-space and habitat protection, participants may evaluate whether and/or ways to:                      0


              82







               ACTION PLM                                                 Water & Sediment Quality          umir i
                                                                                                         Charting the Course
               0  Amend land development codes to require that all site plans and submittals for           for Tampa Bay
                  subdivisions include a master plan for pedestrian/bicycle traffic. Support the
                  development of Greenways as "alternative" transportation by earmarking ISTEA
                  (Intermodal Surface Transportation Efficiency Act) funds to support these types of
                                                                                                        . ..........
                                                                                                           ............. ............ .
                  projects.
               0  Establish criteria for a balanced and mutually supportive ratio for commercial-to-
                  residential uses.

               0  Ensure that comrepehensive plans encourage commercial development along
                  established corridors to provide residential uses as part of a mixed-use develop-
                  ment concept. Provide incentives, such as residential density credits, lower park-
                  ing ratios, and impact fee credits, to encourage mixed-use projects.

               0  Identify long-range transit corridors and encourage higher density and intensity of
                  development near future transit stops. Include an overlay district with criteria for
                  development standards in comprehensive plans and development codes.
               STEP 2 Implement recommendations from Step 1 through local government com-
                        prehensive plans, development codes and long-range transportation plans.
                        Responsible parties: local governments, Tampa Bay Regional Planning
                         Council



               SCHEDULE-
               The conference can be planned in 1996, for implementation in early 1997.

               COST-
               Staff and administrative time is anticipated for implementation of these steps.


               EXPECTED BENEFITS-.
               Redevelopment of existing areas and higher density and mixed-use development in
               suburban areas will conserve land and water resources, limit urban sprawl, and reduce
               pollution.


               MONITORING ENVIRONMENTAL RESPONSE:
               Local governments conduct water quality monitoring and periodic planning studies
               that can gauge the net benefit from implementation of these policies.


               REGULATORY NEEDS.-
               Possible amendments to Local Government Comprehensive Plans, land development
               and zoning codes, and MPO plans


               RELATED ACTIONS:

               SW-4, SW-5






                                                                                                                   83






                                                                                                                                              0
           DRAFT                      ACTION PLAN                                                      Water & Sediment Quality
       Charting the Course
          for Tampa Bay               Improve Compliance With and Enforcement of
                                      Stormwater Permits

           .. ..... ....
             sw

                                      ACTION:
                                      Improve compliance with and enforcement of permits for the construction and opera-
                                      tion of stormwater systems by establishing level-of-service targets, providing periodic
                                      performance assessments, and continuing efforts to coordinate permitting and enforce-
                                      ment staff to improve continuity in permit oversight.


                                      BACKGROUND:
                                      Noncompliance with permits for the construction and operation of stormwater treat-
                                      ment systems continues to be a major problem facing regulators, despite recent efforts
                                      to boost enforcement efforts and improve and streamline permitting oversight. Some
                                      stormwater treatment facilities are not constructed to specifications or operated and
                                      maintained properly, resulting in increased pollution in runoff to the bay.

                                      In the Tampa Bay watershed, the Florida Department of Environmental Protection
                                      (FDEP) and the Southwest Florida Water Management District (SWFWMD) share
                                      responsibility for stormwater permitting. Implementation of the new Environmental
                                      Resource Permit (ERP), which consolidates various environmental permits into a sin-
                                      gle application, provides important opportunities to improve permit compliance moni-
                                      toring and enforcement through increased coordination.

                                      A reorganization of the District in 1994 to increase compliance monitoring and
                                      enforcement brought all enforcement and permitting staff together to improve admin-
                                      istrative efficiency and communication. A chief engineer for enforcement now
                                      reviews major projects from the District field offices for consistency and evaluates
                                      enforcement programs.

                                      The District also reassigned four Environmental Specialists and four Engineers, creat-
                                      ed a Director of Enforcement position, and hired three new field technicians for each
                                      of the four District offices within the last three years.


                                      From October 1992 to December 1994, the District issued more than 1400         surface
                                      water or wetland management permits in Hillsborough, Pinellas, Manatee and Pasco
                                      counties. The District's staff has inspected an estimated 99 percent of those facilities
                                      that were constructed. However, thousands of stormwater projects permitted between
                                      1984, when stormwater rules were established, and the early 1990s may not have been
                                      monitored due to limitations in enforcement personnel. Some older stormwater pro-
                                      jects that were not in compliance with design and monitoring standards have been
                                      identified as applicants have sought to renew water-use permits, which the District
                                      will not issue unless stormwater systems are in compliance. But existing staff and
                                      funding levels may be inadequate to achieve adequate oversight of these older systems                   0
                                      which may be poorly maintained or abandoned.


              14
                                                                                                                                              0
                                                                                                                                              0
                                                                                                                                              0









                                                                                                                  n 0 a r!@,
                ACTION PLM                                                    Water & Sediment Quality            U 11 A r I
                                                                                                               Charting the Course
                FDEP also has taken steps to improve coordination in these areas. For instance,                  for Tampa Bay
                FDEP's Submerged Lands and Environmental Resource Program has adopted a "cra-
                dle to grave" pilot program in which all aspects of project management are assigned,
                by county, to one individual. All phases of permitting, compliance monitoring and             .............................
                                                                                                              . ..........................
                                                                                                              .................. ..........
19              enforcement are handled by that individual. This new approach should increase effi-                U.1
0               ciency since project managers will be more familiar with both the permittees and the           ........................
0               specifics of a particular project.
0

                STRATEGY.-
                A strategy to improve compliance monitoring and enforcement of stormwater permits
0               includes the development of level-of-service targets, continued implementation and
0               assessment of an integrated tearn-permitting approach, identification and monitoring
0               of older stormwater ponds that may be out of compliance, and evaluation of existing
                funding and staffing levels as the basis for recommendations for improvement.

                STEP I     Establish "level-of-service" targets for compliance monitoring and enforce-
                           ment of permits for stormwater construction and maintenance. Targets
                           should include monitoring frequency by compliance monitoring personnel
41                         and maintenance frequency for permitted stormwater treatment systems.
0                          Level-of-service targets shall be established and made available for review
0                          by the Management Conu-nittee of the Tampa Bay National Estuary
                           Program (NEP) by December 1996.
                           Responsible parties: FDEP, SWFWMD, local governments with delegated
                           authority for stormwater permitting, compliance monitoring and enforce-
                           ment


                STEP 2     Identify and monitor older major stormwater systems to determine whether
                           they are in compliance with permit design and maintenance criteria, and
                           bring and enforce compliance where necessary. Monitoring candidates
                           should be targeted based on size of service area and the treatment type
                           (some designs may be more problematic than others).
                           Responsible parties: FDEP, SWFWMD, local governments

                STEP3      Continue implementation of a team approach that integrates permitting and
                           compliance monitoring and enforcement personnel to maximize efficiency
                           and provide "cradle-to-grave" permit oversight including maintenance
                           monitoring.
                           Responsible parties: FDEP, SWFWMD, local governments

                STEP 4     Evaluate needs for additional funding, staff and/or resources to meet level-
                           of-service targets for compliance monitoring and enforcement. Provide
                           recommendations to the Tampa Bay NEP by December 1996.
0                          Responsible parties: FDEP, SWFWMD, with recommendations to the
                           Tampa Bay NEP

                STEP 5     Assess the effectiveness of efforts to improve compliance monitoring and
                           enforcement in the Tampa Bay watershed, including progress toward level-
                           of-service targets (particularly compliance rates), results of integrating per-
                           sonnel for team permitting management, and associated costs to agency and

                                                                                                                         85






           DRAFT                      ACTION PLM                                                      Water & Sediment Quality              40
       Charting the Course                                                                                                                  0
          for Tampa Bay                          applicant. Results of evaluation should be reported in the Agency on Bay
                                                 Management's (ABM) State of the Bay Report as well as the Biennial Bay
                                                 Monitoring Report produced by agency and government partners in the
                                                 Tampa Bay NEP.
                   ...........
                 ............
                                                 Responsible parties: Tampa Bay NEP, ABM
                     ...........


                                      SCHEDULE:
                                      Steps 1-4 can be initiated in 1996, with timetable as indicated in steps. Evaluation
                                      identified in Step 5 can be conducted every two years, beginning in 1997.


                                      COST:
                                      Costs associated with existing staff time to complete Step 1 is estimated at $6,000
                                      based on two months mid-level management time, provided through SVVFV;NM's
                                      existing operating funds. Steps 2-3 can also be implemented with existing staff,
                                      although costs associated with this effort estimates have not yet been developed. Costs
                                      for additional resources to assist compliance monitoring and enforcement will vary,
                                      but sources estimate the annual cost of additional field technicians at approximately
                                      $22,000 plus overhead. Support equipment (field truck and survey equipment) is esti-
                                      mated at $20,000 per team.


                                      EXPECTED BENEFITS:
                                      Increased compliance with stormwater permits will decrease pollution from stormwa-
                                      ter runoff. An integrated team permitting approach is also expected to improve staff
                                      efficiency and cost-effectiveness in permit oversight.


                                      MONITORING ENVIRONMENTAL RESPONSE:
                                      Efforts to improve compliance monitoring and enforcement will be assessed periodi-
                                      cally against targets for level of service. Ambient water quality monitoring is con-
                                      ducted by local governments.


                                      REGULATORY NEEDS:
                                      Possible revisions to agency policies.                                                                0

                                      RELATED ACTIONS:
                                      BH-9




                                                                                                                                            0







                                                                                                                          R
                ACTION PLM                                                       Water & Sediment Quality              U 1, .1
                                                                                                                    Charting the Course
                Enforce and Require the Timely Completion of the                                                      for Tampa Bay
                Consent Orders for the Cleanup of Fertilizer
                Facilities in the East Bay Sector



                ACTION:
                Enforce and require the timely completion of conditions in the consent orders entered
                into by CF Industries, CSX Transportation, EAT Terminals, IMC-Agrico and Pakhoed
                Dry Bulk, for the cleanup of wastewater entering the East Bay sector.


                BACKGROUND:
                In 1990, the Florida Department of Environmental Protection (FDEP) and the
                Environmental Protection Commission of Hillsborough County (EPCHC) discovered
                that five fertilizer shipping facilities in the East Bay area were discharging high levels
                of nutrients into the bay. A subsequent investigation determined that stormwater was
                mixing with fertilizer product from these facilities and that the wastewater discharges
                were not meeting current water quality standards.

                Following lengthy negotiations, the five facilities--CF Industries, CSX
                Transportation, EAT Terminals, IMC-Agrico and Pakhoed Dry Bulk--entered into
                joint consent orders with FDEP and EPCHC in late 1991. The consent orders includ-
                ed requirements for regular sampling of storm-induced discharges, assessments of
                wastewater flows and concentrations at the facilities, and sediment sampling at the
                facilities and at adjacent loading docks. Upon completion of the assessment phase,
                each facility was to construct or implement the best management practices (BMPs) to
                manage its nutrient-enriched stormwater discharges.

                While all five facilities have begun complying with the terms of their consent orders,
                progress has varied widely. Some facilities continue to fall short of required water
                quality standards, and deadlines for completion of site improvements remain undeter-
                mined.


                IMC-Agrico has completed construction of a detention/treatment facility and is rou-
                tinely monitoring its outfall, effectively completing the terms of its consent order.

                CF Industries is also in its final phase, having completed its assessment, and has
                applied for a permit to construct a detention facility that would contain a 25-year/24-
                hour storm event.


                Of the five facilities, CSX Transportation is believed to discharge the largest amount
                of nutrients to the bay. CSX has submitted a permit application and preliminary
                design plans to construct a retention and treatment system capable of containing a 25-
                year/24-hour storm event. The adjacent EAT Terminal is still in the process of devel-
                oping and implementing a treatment strategy for its facility.

                Pakhoed Dry Bulk, the smallest of the facilities, is implementing BUTs to reduce the
                                                                                                                              87






           DRAFT                       ACTION PLAN                                                      Water & Sediment Quality
        Charting the Course
          for Tampa Bay                amount of fertilizer product entering stormwater. These improvements include outside
                                       conveyer belts, truck load-out areas, and roofing improvements at storage warehouses.
                                       Additionally, the company has submitted a permit application and design plans to
                                                   irst inch of rainfall at the facility.
                                       retain the f
           ... .............. ...................
                . ...... .....................
                 Mwai ME-
                  ... .................
                                       STRATEGY:
                                       STEP1       Enforce and require the timely completion of the consent orders.

                                            A.     Continue to require implementation of best management plans and the con-
                                                   struction of systems to detain and treat storm-induced discharges, and
                                                   develop criteria to determine "compliance."

                                            B.     Set deadlines for the final completion of the terms of the consent orders.

                                            C.     Bring facilities into full compliance so they may enter a wastewater permit-
                                                   ting and monitoring mode.

                                                   Responsible parties: FDEP and EPCHC, in cooperation with the five
                                                   facilities


                                       SCHEDULE:
                                       Step 1-A is ongoing. All facilities should be in full compliance within 12 months of
                                       completing construction of treatment systems.


                                       COST:
                                       Costs to implement best management practices at these sites vary according to design
                                       and magnitude, and are borne by the facilities under the consent order.


                                       EXPECTED BENEFITS:
                                       Reduced nutrient loadings to the already nutrient-enriched East Bay sector of Tampa
                                       Bay.


                                       MONITORING ENVIRONMENTAL RESPONSE:
                                       Individual facilities will monitor outfalls. Ambient bay water quality is monitored by
                                       EPCHC and other local governments.


                                       REGULATORY NEEDS:
                                       No further regulatory needs are anticipated.


                                       RELATED ACTIONS:

                                       SW-7











                                                                                                                        -*Ml 0 lx,@- S",
                ACTION PLM                                                      Water & Sediment Quality              U 111, A 111
                                                                                                                  Charting the Course
                Encourage "Fertigation" and                                                                          for Tampa Bay
                NEcro-Irrigation on Farms

                                                                                                                    ....................................
                                                                                                                   m k ......... . ....


                ACTION:
                Encourage farmers to install "fertigation" and micro-irrigation systems that reduce
                runoff from agricultural operations.


                BACKGROUND:
                Stormwater runoff from agricultural operations contributes significant amounts of
                nitrogen, pesticide residues and suspended solids to waterways. This action is aimed
                at reducing pollutant loadings to the bay from runoff associated with agricultural
                operations.

                While agriculture accounts for only six percent of the bay's total nitrogen loading,
                studies commissioned by the Tampa Bay NEP indicate it is a major contributor in
                localized areas of south Hillsborough and Manatee counties. The studies indicate that
                23 percent of the land in the Little Manatee River basin is intensively farmed, mainly
                with row crops and citrus groves. These operations contribute an estimated 23 percent
                of the total nitrogen load entering the bay from that watershed. In the Manatee River
                segment, farming operations comprise an estimated 13.5 percent of the nitrogen load.

                Agricultural practices have become increasingly more sophisticated and improvements
                aimed at conserving water also may be adapted to reduce fertilizer use and, subse-
                quently, farm runoff. One technique developed in recent years allows fertilizer to be
41              applied through drip or microjet irrigation systems. This practice, called "fertigation,"
0               enables farmers to apply liquid fertilizer in smaller, more precise doses, reducing the
0               chance of over-fertilization. Use of fertigation can benefit the farmer, as well as the
                bay, by lowering overall operating costs.

                Although liquid fertilizer is generally more expensive than granular forms, fertigation
                can be more cost-effective since less is used in well-managed fertigation systems.
                However, to realize these costs savings, farmers must be properly instructed in the
0               operation of fertigation systems, which are computer-controlled and require some
0               training to master.
9               Farmers are not required to install fertigation systems. Nevertheless, more than 95
0               percent of Florida strawberry growers use drip irrigation, and most of those fertigate.
9               A smaller percentage of vegetable growers has converted to micro-irrigation, but most
0               who have also fertigate. The situation is reversed among citrus growers: most have
                converted to micro-irrigation, but a smaller percentage fertigate. However, rules
                developed by the Southwest Florida Water Management District (SWFWMD) offer
                opportunities to encourage and expand use of fertigation where practicable.

                Rules adopted by SWFWMI) for the Southern Water Use Caution Area require farm-
                ers to reduce water use by specific amounts over a period of years. The farmers may

                                                                                                                             81






            DRAFT                        ACTION PLM                                                           Water & Sediment Quality
        Charting the Course
          for Tampa Bay                  utilize a variety of irrigation methods to achieve the efficiencies required. One
                                         method of reducing water consumption is through the use of micro-irrigation systems,
                                         which deliver controlled amounts of water directly to a plant's root zone. These sys-
                                         tems also can be used to apply liquid fertilizer in the same controlled manner. If
                     . ...........
                                         growers choose micro-irrigation systems to comply with new water use restrictions,

                         ............
              .......... ............. ...                                                                                 ar     the
                                         they will have the opportunity to fertigate as well. Growers should be aw e of
                                         environmental benefits as well as the costs associated with fertigation so they can
                                         make the best choices for their irrigation systems.

                                         The district's Agricultural Ground and Surface Water Management Plan program
                                         (AGSWM) for farmers provides another opportunity to promote the use of fertigation.
                                         This program allows farmers to implement a surface water management plan in lieu of
                                         obtaining an Environmental Resource Permit. The voluntary plans are developed by
                                         the Natural Resources Conservation Service (formerly the Soil Conservation Service)
                                         and administered by SWFWMD. The plans could be strengthened by encouraging the
                                         use of fertigation, particularly where micro-irTigation systems already exist.

                                         Ongoing actions: Implementation of SWFWMD water conservation rules for agricul-
                                         tural users.



                                         STRATEGY-.
                                         The strategy for this action focuses on more aggressive promotion of fertigation tech-
                                         niques, improved instruction in the use of fertigation systems, and the investigation of
                                         ftmding programs that could provide financial assistance to farmers who wish to
                                         install fertigation systems.


                                         STEPI       Include fertigation among the techniques considered Best Management
                                                     Practices by the state Institute of Food and Agricultural Services (IFAS).
                                                     Fertigation is currently not listed as a BMP in materials provided by WAS
                                                     through its cooperative extension services.
                                                     Responsible parties: IFAS, local cooperative extension services

                                         STEP 2      Investigate the potential for strengthening Agricultural Ground and Surface
                                                     Water Management Plans to strongly encourage fertigation systems where
                                                     micro-irrigation systems already are in place. Where micro-irrigation is not
                                                     already being used, encourage its use along with fertigation.
                                                     Responsible parties: SWFWMD, Natural Resources Conservation
                                                     Service, local soil and water conservation districts


                                         STEP 3      Hold workshops and provide instructional materials about the correct use
                                                     of fertigation systems. Contact local suppliers of fertigation systems and
                                                     urge them to provide detailed guidance and support in the use of the sys-
                                                     tems.
                                                     Responsible parties: local cooperative extension services

                                         STEP 4      Explore possible cost-sharing programs, such as low-interest revolving
                                                     loans, to provide financial assistance for the installation of micro-irrigation
                                                     systems coupled with fertigation systems. For example, a fund might be







              ACTION PLM                                                   Water & Sediment Quality           lk
                                                                                                           Charting the Course
                         established from nitrogen trading credits and administered through the              for Tampa Bay
                         Florida Farm Bureau. Ensure that the funding assistance available is suffi-
                         cient to warrant participation by growers.
                         Responsible parties: Natural Resources Conservation Service, U.S.                    ..................... .
                                                                                                           . ...............................
                         Department of Agriculture, Florida Department of Agriculture &
                         Consumer Services, Agricultural Stabilization and Conservation Service,          .............
                         and local soil and water conservation districts


              SCHEDULE.
              Steps I and 2 can be accomplished in 1996. Steps 3 and 4 can be initiated in 1996,
              with a cost-sharing program identified or established in 1997.


              COSM
              Steps 1, 2 and 3 involve administrative costs. Costs for Step 4 have not yet been iden-
              tified. Representative costs for a fertigation system are estimated at about $700 (for
              mixing and nurse tank), plus installation at $1,000 an acre. This estimate includes
              both the cost of the micro-irrigation system and fertigation components.


              EXPECTED BENEFITS-
              Use of fertigation systems is expected to reduce the amount of nitrogen entering the
              bay in agricultural runoff. Research being conducted by the Hillsborough County
              Engineering Services Department in cooperation with local growers may help quantify
              the benefits of fertigation versus conventional fertilization practices. Farmers
              installing fertigation systems can monitor and report fertilization application rates
              using fertigation systems to compare to baseline applications without these systems in
              place.


              MONITORING ENVIRONMENTAL RESPONSE-
              Ambient water quality in surface waters receiving runoff from agricultural lands
              is monitored by local governments and will be reported in a biennial Bay
              Environmental Monitoring Report.


              REGULATORY NEEDS-
              Revision to SWFWMD guidelines for Agriculture Ground and Surface Water
              Management Plans to encourage fertigation systems where micro-irrigation already is
              in use.



              RELATED ACTIONS.

              SW-10, TX-4






           DRAFT                      ACTION PLM                                                      Water & Sediment Quality
       Charting the Course
          for Tampa Bay
                                      Improve CompHance with Agricultural Ground
                                      and Surface Water Management Plans


                ............................
                 ....................
                   ...I............
                   .......... .
                                      ACTION:
                                      Improve compliance with Agricultural Ground and Surface Water Management plans
                                      to reduce nutrient and pesticide runoff to the bay.


                                      BACKGROUND:
                                      Florida Statutes exempt certain agricultural activities from surface water permitting
                                      requirements designed to minimize impacts to wetlands, flooding and water quality
                                      degradation. However, confusion about or misinterpretation of the exemptions has led
                                      to agricultural activities which may have adverse environmental impacts.

                                      In an effort to boost compliance with surface water rules, the Southwest Florida Water
                                      Management District (SWFWMD) and the Natural Resources Conservation Service
                                      (NCRS), formerly the Soil Conservation Service, have developed a voluntary program
                                      that assists farmers in protecting water resources. The Agricultural Ground and
                                      Surface Water Management Program, or AGSWM, educates farmers about exemptions
                                      and helps farmers develop water management plans that often enable them to qualify
                                      for a permit exemption.

                                      A matrix of Best Management Practices has been developed for the program, listing
                                      each BMP and its potential benefits. Using this matrix, NRCS specialists inspect an
                                      agricultural operation and evaluate which BMPs are suitable. A plan is developed and
                                      the farmer is asked to implement its recommendations, providing a faster, non-regula-
                                      tory avenue for compliance with surface water rules.

                                      Since the program's creation in 199 1, surface water management plans have been
                                      developed for more than 3,000 acres of farmland in Hillsborough and Manatee coun-
                                      ties. While these efforts are impressive, the percentage of agricultural lands managed
                                      under these plans remains small in comparison to the farmed acreage in the region.                     0
                                      Both Hillsborough and Manatee counties, for example, had more than 112,000 acres                       0
                                      devoted to citrus, vegetables or some other form of intensive agriculture in 1990.                     0
                                      Compliance also has been a lingering problem for the program. Few if any follow-up                     0
                                      inspections are conducted to ensure that farm operators have implemented the plans.                    0
                                      Lack of sufficient staff has been identified as a major reason for the lack of follow-up.              0
                                                                                                                                             0
                                      The AGSWM program provides a streamlined, less cumbersome approach for growers                         0
                                      to comply with the intent of SWFWMD's wetlands and water quality protection rules.                     0
                                      But without a reasonable effort to check on the implementation of the AGSWM plans,                     0
                                      the effectiveness of the program cannot be determined.                                                 0
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0






               ACTION PLAN                                                   Water & Sediment Quality             UKAH
                                                                                                              Charting the Course
               STRATEGY'                                                                                         for Tampa Bay
               The strategy for this action involves one regulatory action to monitor compliance with
               AGSWM plans and one voluntary action to encourage greater participation in the pro-
                                                                                                               ..................
               gram.


               STEP 1     When SV;FWMD visits a farm in conjunction with a water use renewal
                          permit, it can use that occasion to check compliance with the farm's
                          AGSWM plan. The site visit made at the time of water use permit renewal
                          provides a convenient time to verify that an existing AGSWM plan is being
                          implemented as agreed to by the grower.

                          If the inspection shows that a farming operation is not in compliance with
                          the approved AGSWM plan, SWFWMD could allow a grace period during
                          which to comply. Failure to comply within the grace period could be
                          grounds to nullify the permit exemption and require a formal
40                        Environmental Resource Permit.
                          Responsible parties: SWFWMD, NRCS

               STEP 2     Recruit growers in Hillsborough and Manatee counties who have success-
                          fully implemented AGSWM plans to showcase the results of their efforts to
                          other growers who qualify for the AGSWM program.
                          Responsible parties: SWFWMD, NRCS, local extension services


               SCHEDULE:
               Both steps could be implemented in 1996.


               COST:
               Both steps could be accomplished with existing resources.


               EXPECTED BENEFITS.
               More widespread participation in and compliance with the AGSWM program will
               reduce agricultural runoff and wetland impacts, improving water quality in the bay.


               MONITORING ENVIRONMENTAL RESPONSE.
               Ambient surface water quality and sediment monitoring will be conducted as part of
               the biennial Bay Environmental Monitoring Report.


               REGULATORY NEEDS.-
               Possible amendments to SV;FWMD permitting criteria to require farmers with
               approved surface water management plans to undergo site inspections at the time of
               their water use permit renewal.


               RELATED ACTIONS.

               SW-9, TX-4

                                                                                                                        83






               DRAFT                             ACTION PLM                                                                        Water & Sediment Quality
         Charting the Course
             for Tampa Bay
                                                 Detemiine Nfinimum Widths for Vegetated Buffers


           . ......................
               ............... ... .......................

                                                 ACTION:
                              ........ . . .
                              . ..........
                 ........... .. ...........
                    ....... . ...........
                                                 Determine minimum widths for vegetated buffers along the bay and its tributaries by                                                 40
                                                 developing performance guidelines and evaluating existing requirements against these                                                0
                                                 standards. Amend stormwater regulations to include these minimum widths.                                                            0

                                                 BACKGROUND:
                                                 Vegetated buffers along tributaries can reduce pollutant loads of metals, solids and
                                                 nutrients by more than 50 percent. Vegetation or grass within these buffer strips slows
                                                 runoff, allowing solids and contaminants to settle out before reaching the bay or its
                                                 tributaries. Buffers also can enhance habitat and stabilize shorelines. For these rea-
                                                 sons, vegetated buffers along surface waters are considered a vital and highly effective
                                                 component in overall stormwater management planning and pollution prevention.

                                                 But while all local governments require setbacks, setback widths vary and no studies
                                                 have been conducted to determine their effectiveness in protecting water quality or
                                                 enhancing habitat-a need which this action addresses. Existing local government
                                                 setbacks range from 25-50 feet. This action calls for the development of "perfor-
                                                 mance" guidelines for vegetated buffers and an evaluation of existing regulations
                                                 against these criteria. Findings will be used to develop minimum widths for vegetated
                                                 buffers based on site-specific conditions as the basis for revisions to existing stan-
                                                 dards.


                                                 STRATEGY:
                                                 This strategy involves the development of minimum widths for vegetated buffers
                                                 based on performance guidelines, and calls for revisions to existing standards, where
                                                 necessary, to properly protect the bay and maximize the effectiveness of these buffers.

                                                 STEP 1        Develop "performance" guidelines (e.g., percentage of total suspended
                                                               solids removed or amount of water percolating through the soil) for vege-
                                                               tated buffers along tributaries. In developing guidelines, reviewers should
                                                               consider reductions in total suspended solids (TSS) and other pollutants
                                                               such as nitrogen; shoreline stabilization; and habitat enhancement value.
                                                               Responsible parties: SWFWMD-SWIM

                                                 STEP 2        Develop a technically sound means for determining minimum widths for a
                                                               variable or constant buffer based on performance guidelines. Calculations
                                                               should be based on site-specific conditions such as slope, adjoining land
                                                               use, soil type, vegetation and land cover. Water quality monitoring at select
                                                               test sites will be required to validate methods.
                                                               Responsible parties: SWFWMD-SWIM





                  84


                                                                                                                                                                                     0








                                                                                                                                                                                               F: E
                         ACTION PLM                                                                                         Water & Sediment Quality                                  U1
                                                                                                                                                                                 Charting the Course
                         STEP 3          Based on results of Steps 1 and 2, evaluate the adequacy of existing                                                                       for Tampa Bay
                                         requirements for vegetated buffers, and revise to include minimum widths.
                                         Revisions may include amendments to stormwater rules and local develop-
Wr                                       ment standards (zoning laws and comprehensive plans) to require minimum                                                                   .........:..........
                                                                                                                                                                                        ....... .............
                                                                                                                                                                                     .......... .. ..........
                                         widths. Alternatively, allow developers to incorporate these minimum
                                         widths into their projects to meet existing stormwater quality requirements.                                                             ................  .............
                                                                                                                                                                                  ........................... ..
                                         Responsible parties: local governments


                         SCHEDULE.
                         Steps 1 and 2 can be initiated in 1996, if funding is available. Step 3 can be imple-
                         mented in 1997.



                         COST.
                         Estimated costs for Step 1 are $40,000. Methods testing in Step 2 is also estimated at
                         $40,000, including a pilot monitoring program. Staff time to evaluate the adequacy of
                         existing requirements may entail one mid-level staff person for two weeks ($2,000)
                         with support from each local government. Legal and staff time only are anticipated in
                         Step 3.


                         EXPECTED BENEFITS.
0                        Performance guidelines will allow local governments to fully evaluate the effective-
                         ness of this best management practice. Minimum buffer widths also will lead to
0                        improved water quality and reduced runoff, as well as improved habitat enhancement
0                        and shoreline stabilization.
0
                         MONITORING ENVIRONMENTAL RESPONSE-
                         Water quality is monitored by local governments. However, to test the effectiveness
                         of performance guidelines, additional monitoring at representative sites will be neees-
                         sary.


                         REGULATORY NEEDS:
                         Possible revisions to local development criteria and stormwater rules.


                         RELATED ACTIONS-.
                         None anticipated.


0









                                                                                                                                                                                                  85






           DRAFT                      ACTION PLM                                                      Water & Sediment Quality
       Charting the Course
          for Tampa Bay
                                      ATmospnnuc DEPosrrioN

                                                                                                                                             0
                                      Research emerges as the priority need in evaluating and addressing pollution that
            .... ..........

           . ...........
                  AW                  enters the bay from the atmosphere.
                       ............
             ..........                                                                                                                      0

                                      As recently as 1991, researchers believed that atmospheric deposition had minimal
                                      impact on the bay's water quality. Studies now suggest that about 28 percent of the                    0
                                      bay's total nitrogen load falls directly to the bay from the atmosphere.' The bay also                 0
                                      receives significant quantities of potentially toxic contaminants from the air, including              0
                                      heavy metals such as cadmium, copper, lead and zinc, which are primarily industrial
                                      in origin, although vehicle emissions also are a source.2                                              0
                                                                                                                                             0
                                      In fact, experts estimate that about 44 percent of the bay's total cadmium loading of                  0
                                      more than 7,000 pounds come from the atmosphere. Cadmium is associated with elec-                      0
                                      troplating and battery production.2 Polycyclic aromatic hydrocarbons (PAHs) associ-                    0
                                      ated with fossil fuel combustion also enter'the bay from the air, although specific                    0
                                      sources are unknown.                                                                                   0
                                      Actual pollution figures are probably much higher if contaminants falling on the                       0
                                      watershed are considered, since some of these eventually will enter the bay in
                                      stormwater runoff. About 650 tons of nitrogen fall on the open bay each year; another
                                      3,600 tons are estimated to fall in the watershed, a portion of which enters Tampa Bay                 0
                                      as stormwater runoff.'                                                                                 9
                                                                                                                                             0
                                      But while experts now know that the contribution to pollutant loadings from atmos-
                                      pheric deposition is substantial, little empirical evidence exists to tie pollution to
                                      sources. For example, stationary sources (primarily coal-fired power plants, but also                  0
                                      waste incineration and industrial facilities) are estimated to be a major manmade
                                      source of local nitrogen oxides (NO,) emissions, contributing about 66 percent as
                                      compared to about 34 percent from motor vehicles.3 But researchers can't say how
                                      much of the emissions generated locally come back to Tampa Bay, since airborne con-                    0
                                      taminants may travel hundreds (or even thousands) of miles before settling to the
                                      earth. Wastewater treatment plants also may contribute nitrogen as gaseous ammonia
                                      generated as a byproduct. Bay managers also can't pinpoint what portion of nitrogen                    0
                                      loadings from the atmosphere come from natural sources, such as lightning or natural                   0
                                      releases from wetlands.


                                      These and other important questions must be addressed in order to develop effective
                                      long-term strategies to manage sources of atmospheric deposition. Atmospheric depo-
                                      sition to Tampa Bay is expected to increase as population, power consumption and
                                      traffic grows, although increases may be mitigated in part by provisions in the Clean
                                      Air Act, which requires utilities and motor vehicles to reduce emissions. Future man-
                                      agement will require coordination at the regional and national level to assure broad
                                      implementation and enforcement of pollution controls. Pollution prevention through
                                      energy conservation also must be emphasized.                                                           0
                                                                                                                                             0
                                                                                                                                             0



                                                                                                                                             0








                                                                                                                                                                    D I
                                                                                                                                                                         W
                      ACTION PLAN                                                                            Water & Sediment Quality                           U111%ir I
                                                                                                                                                           Charting the Course
                      Between 1995 and the year 2010, nitrogen loadings to the bay from all sources are                                                        for Tampa Bay
Mir
                      expected to increase 10 percent, or about 27 tons per year.4 But those figures do not
                      include changes that may occur if power plants around the bay convert their oil- and
4W                    coal-fired facilities to a less expensive Venezuelan fuel called Orimulsion. Florida                                                 ...........  ................
                                                                                                                                                           ...........
                      Power & Light already has received conditional regulatory approval to bum

                                                                                                                                                          ...................................-
                      Orimulsion at its Port Manatee plant, although the utility still faces administrative
                      hearings and must receive approval from the Governor and Florida Cabinet.

                      Preliminary estimates show that the quantities proposed for use could add another 30
                      tons of nitrogen per year to the bay. An advanced pollution control technology called
                      re-burning could lower nitrogen emissions associated with Orimulsion, but the tech-
                      nology is still untested in the United States and will only be tested on one of the two
                      FP&L units converting to Orimulsion. If re-buming proves successful, and both units
                      are converted to Orimulsion, state officials estimate that nitrogen emissions could be
                      reduced substantially.


                      Tampa Bay was recently selected for participation in EPA!s Great Waters Program,
                      which provides funding to assist research of atmospheric deposition to the nation's
                      great waters. The $100,000 award will help support a three-year project to investigate
                      sources of atmospheric deposition and its contribution to stormwater pollution, infor-
                      mation that will be used in the development of a long-term strategy to address the
                      problem. That study begins in 1995, and will be assisted by researchers from
                      Chesapeake Bay and local and state agencies.


                      SUMMARY OF ACTIONS FOR ATMOSPHERIC DEPOSITION

0                     AD-1           Identify sources and monitor effects of atmospheric deposition to Tampa
0                                    Bay, and develop an Action Plan to address atmospheric deposition.
0
                      AD-2           Promote public and business energy conservation.



                      1 Estimates of Total Nitrogen, Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida. TBNEP Technical
0                       Publication #04-94 and addenda. (1994)
                      1 Chemical Contaminants in the Tampa Bay Estuary: A Summary ofDistributions and Inputs. TBNEP Technical Publication
0                       #01-95.(1995)
0                     3 Literature Compilation and Data Synthesis for Atmospheric Deposition to the Tampa Bay Watershed. TBNEP Technical
0                       Publication (Draft).
                      4 Estimating Critical Nitrogen Loads for the Tampa Bay Estuary: An Empirically Based Approach to Setting Management Targets.
&                       TBNEP Technical Publication #03-95 and addenda. (1995)
0
0
0
0
0





dh

                                                                                                                                                                           87






                                                                                                                                       0
          DRAFT                     ACTION PLM                                                    Water & Sediment Quality
       Charting the Course
         for Tampa Bay
                                    Identify Sources and Monitor Effects of
                                    Atmospheric Deposition to Tampa Bay

         . ........     .....



                                    ACTION:
                                    Identify sources and monitor effects of atmospheric deposition to Tampa Bay. Based
                                    on the results of these investigations, develop an action plan to reduce atmospheric
                                    deposition.


                                    BACKGROUND:
                                    Recent studies by the Tampa Bay National Estuary Program estimate that about 28
                                    percent of the bay's total nitrogen loadings are directly deposited to the bay from the
                                    atmosphere. Atmospheric deposition also contributes significant quantities of toxic
                                    substances to the bay, including heavy metals and PCBS.1,2

                                    While specific sources of atmospheric deposition to Tampa Bay have not yet been
                                    identified, studies suggest that power plants and vehicles are major contributors.
                                    Stationary sources in Hillsborough and Pinellas Counties alone produce more than
                                    120,000 tons of nitrogen oxides or NO, emissions per year, mostly from coal-burning
                                    power plants. Mobile or vehicle sources in those counties contribute an additional
                                    60,000 tons of NOx emissions per year.3 But experts don't know what proportion of
                                    local emissions come back to Tampa Bay in the form of atmospheric deposition, since
                                    air pollutants can travel hundreds or even thousands of miles before settling to the
                                    earth.


                                    This action calls for additional research to identify sources of emissions, their contri-
                                    butions to atmospheric deposition in the bay and watershed, and their effects on the
                                    bay. Tampa Bay was recently nominated by the Tampa Bay NEP and selected for par-
                                    ticipation in the EPA Great Waters Program, which provides funding and assistance in
                                    the research of atmospheric deposition. Other national waterways assisted by this
                                    program include the Great Lakes and Chesapeake Bay. Results of the Great Waters
                                    study, which begins in 1995, will be used in the development of an action plan to
                                    reduce atmospheric deposition to Tampa Bay.

                                    A task force* of national researchers and representatives from local governments,
                                    agencies and utilities has been established to oversee the Great Waters study of Tampa
                                    Bay. A detailed study plan is being developed and will include research to identify
                                    sources, the amount and relative contribution of nutrient and toxic emissions and
                                    related deposition to the bay, as well as the contribution to stormwater pollution from
                                    atmospheric deposition to the watershed.


                                    STRATEGY:
                                    STEP 1     Implement the Great Waters research plan for Tampa Bay, which is expect-
                                               ed to require three to four years for completion. The plan will investigate:



                                                                                                                                      0











dh@
                ACTION PLM                                                       Water & Sediment Quality

                                                                                                                   Charting the Course
                               0   the relative contribution to atmospheric deposition from local and                 for Tampa Bay
                                   remote sources;

                               0   the importance of ammonia to the total nitrogen input budget for
                                                                                                                   ........................
                                                                                                                   . ........... ........... ............ .
                                                                                                                               ...... ..... .
                                                                                                                          ............ ......... ...
Ak                                 Tampa Bay;
                                                                                                                    AD 1.1-
                               0   the distribution of nitrogen deposition in the watershed;
                                                                                                                   ...................

                               0   the contribution of dryfall to local atmospheric deposition;

AL                             0   the contribution to stormwater from atmospheric deposition in the
W
                                   watershed.


                           Staff from the Tampa Bay NEP and FDEP Air Quality Division will coordi-
                           nate the efforts of the Great Waters Study in its inaugural year.
                           Responsible parties: Great Waters Task Force

                STEP 2     Based on results of the Great Waters Study, design and implement addition-
                           al studies, if warranted, to determine specific sources of atmospheric depo-
                           sition to Tampa Bay.
                           Responsible parties: Great Waters Task Force, local governments

                STEP 3     Based on Great Waters findings, develop an action plan that includes cost-
                           benefit analyses of options to reduce atmospheric deposition. Options
                           could include voluntary reductions in emissions; additional regulatory crite-
                           ria for permits and other requirements associated with power plants and
                           motor vehicles; reductions in the incineration of toxic materials through
                           expanded mandatory or voluntary recycling and higher quality fuels; and
                           more stringent local and state air pollution rules. A preliminary draft of this
                           action plan will be prepared by the Tampa Bay NEP in cooperation with the
                           Great Waters Task Force by October 1998.
                           Responsible parties: Tampa Bay NEP in cooperation with Great Waters
                           Task Force


                SCHEDULE.
                Steps I and 2 will be initiated in 1995 and 1996. A draft action plan to address
                atmospheric deposition to Tampa Bay will be released in October 1998.


                COST.
                Costs for research associated with Great Waters projects (Steps I and 2) are estimated
                to range from $200,0004500,000. Potential funding sources include the EPA Great
                Waters Program; EPA/FDEP 319(h) grant funds; Florida Pollution Recovery Trust
                Fund: SWFWMD-SWIM; Florida Department of Transportation; local government air
                programs; local utilities; Electric Power Research Institute; and air emission permits
                or permit violation fees. More than $100,000 in federal funds already has been com-
                mitted.






                 DRAFT                                    ACTION PLM                                                                                       Water & Sediment Quality                                   0
           Charting the Course                                                                                                                                                                                        0
               for Tampa Bay                              While action plans have not yet been developed, the following comparison illustrates                                                                        0
                                                          the costs associated with reducing a ton of NO, from both power plants and motor                                                                            0
                                                          vehicles.                                                                                                                                                   0

                          ..... .....
                 .......... .. ............. . ... ..
                                                          Estimated costs to retrofit power plant "wet bottom" or "cyclone" (Group 2) boilers
                                 ...................      (used by some local plants) to reduce NO, range from $2,000-$4,500 per ton of NO,
                                                          reduction. Ratepayer increases would most likely finance these emission controls.

                                                          By comparison, vehicle emission controls might entail engine controls ranging any-
                                                          where from $1,000-$1,500 per car. Reformulated fuel associated with these engine
                                                          upgrades could raise gas prices by an additional $.05-$.15 per gallon. All told, the
                                                          price tag associated with a ton of NO, reduction from motor vehicles is estimated at
                                                          about $30,000-about 10 times higher than the cost to reduce a ton of NOx from
                                                          power plants.


                                                          EXPECTED BENEFITS:
                                                          Research will enable bay managers to allocate responsibility for cleanup and direct
                                                          resources to areas of greatest need. The bay's air, water and sediment quality are all
                                                          expected to benefit from actions to reduce or maintain NOx and toxic emissions,
                                                          which also will affect pollution in stormwater runoff that captures deposition to the
                                                          watershed.



                                                          MONITORING ENVIRONMENTAL RESPONSE:
                                                          Atmospheric deposition monitoring will begin in 1995 and will continue throughout
                                                          the duration of the three-year Great Waters project. Long-term monitoring needs have
                                                          not yet been determined.


                                                          REGULATORY NEEDS:
                                                          None anticipated for Steps 1-2, however regulatory changes may be called for in the
                                                          action plan developed in 1998.


                                                          RELATED ACTIONS:

                                                          AD-2







                                                            Estimates of Total Nitrogen, Total Phosphorus, and Total Suspended Solids Loadings to Twnpa Bay, Florida, TBNEP Technical
                                                            Publication #04-94 and addenda (1994).
                                                            Chemical Contaminants in the Tampa Bay Estuary: A Summary ofDistributions and Inputs, T`BNEP Technical Publication #01-95
                                                            (1995).                                                                                                                                                   40
                                                          3 Attainmenv?daintenance Plan for the Tampa Bay Florida Ozone Nonattainment ArLa, Environmental Protection Commission of                                    9
                                                            Hillsborough County and Pinellas County Board of County Commissioners (1994).                                                                             46
                                                            The Great Waters Task Force is comprised of representatives from EPA Region IV and the Great Waters Program; the Tampa Bay
                                                            National Estuary Program; local government air, water quality and transportation departments; local utilities, and the state                              0
                                                            departments of transportation and environmental protection.                                                                                               40


                   log                                                                                                                                                                                                0
                                                                                                                                                                                                                      0








                ACTIM PLM                                                         Water & Sediment Quality

                                                                                                                     Charting the Course
                                                                                                                        for Tampa Bay
                Promote Business and Public Energy Conservation


                                                                                                                        ...................
                                                                                                                      .. . . . . ......
                                                                                                                          .......... .
                                                                                                                     ............................ .
                ACTION-
                Promote energy conservation to businesses by increasing participation in EPA!s Green
                Lights and Energy Stars programs. Continue to promote public energy conservation.


                BACKGROUND-.
                An estimated 28 percent of the bay's total nitrogen loading comes from atmospheric
                deposition to the surface of the bay. That figure climbs as high as 66 percent when
                contaminants falling in the watershed are included, since a portion of these will even-
                tually enter the bay in stormwater runoff.

                Power plants are a major source of nitrogen emissions, along with motor vehicles, and
                energy conservation may provide a viable source-reduction strategy at the local level.
                Local utilities already devote considerable efforts to promote energy conservation to
                residents, with incentives such as rebates for energy-smart heat pumps and energy
                audits to pinpoint problems and identify opportunities for energy savings. These pro-
                grams should be continued, and the public information literature developed for distrib-
                ution with customer billings expanded to emphasize the link between energy use, air
                pollution and bay water quality, since residents don't automatically make the connec-
                tion.


                Of particular importance are businesses that are heavy energy users. Voluntary pro-
                grains that help businesses reduce energy consumption are appealing because they
                prevent pollution, are non-regulatory and decrease overhead costs. The U.S.
                Environmental Protection Agency sponsors three such programs: Green Lights, which
                targets light-intensive businesses such as hospitals and shopping malls; Energy Star
                Buildings, which focuses on a holistic approach to building efficiency; and Energy
                Star Office Equipment, which addresses energy-intensive computers, copiers, moni-
                tors, fax machines and printers.

                Lighting accounts for 20-25 percent of all electricity sold in the United States-and
                lighting for industry, stores, offices and warehouses represents 80-90 percent of total
                lighting electricity use, so the use of energy-efficient lighting has a direct effect on
                pollution prevention. Every kilowatt-hour of lighting electricity not used prevents
                emissions of 1.5 pounds of carbon dioxide, 5.8 grains of sulfur dioxide, and 2.5 grams
                of nitrogen oxides, which are of particular concern in Tampa Bay. Energy Stars' par-
                ticipants further increase bottom line business and environmental payback by address-
                ing additional energy-demanding features within their facilities such as heating and
                cooling. Implementation of Energy Star programs may also reduce other pollutants
                associated with coal- or oil-fired power plants, such as mercury, a pollutant of concern
                within the Tampa Bay watershed.

                Cox Newspapers, a Green Lights participant and owner of the Atlanta Journal and
                Constitution, estimates its annual savings at more than $55,000 since upgrading its
                lighting. The company reduced its total annual electricity and its fighting electricity
                                                                                                                                101






           DRAFT                      ACTION PLAN                                                     Water & Sediment Quality               0
       Charting the Course                                                                                                                   40
          for Tampa Bay               usage by more than 1.2 million kilowatt hours and 63 percent per kilowatt hour
                                      respectively at a 350,000-square-foot facility. These energy savings translated into the
                                      prevention of 1.6 million pounds Of C02, 7.6 million grams Of S02 and 2.7 million
                       ..........     grams of NO, per year.


                      .... ...........
                                      Nationally, more than 1,800 businesses participate in Green Lights and Energy Stars,
                                      including approximately a dozen partners in the Tampa Bay region. This action calls
                                      for targeting an additional 100 businesses, and expanding cross-marketing opportuni-
                                      ties through environmental agencies and local governments. For example, local gov-
                                      ernments promoting best management practices to reduce stormwater pollution
                                      through programs such as Hillsborough County's Operation BayWorks should also
                                      promote business participation in Green Lights and Energy Stars to increase bottom
                                      line benefits for participants and the envirom-nent. Utilities also are encouraged to
                                      work through the Florida Yards & Neighborhoods program administered by local
                                      county cooperative extension services to promote household energy audits.


                                      STRATEGY-
                                      STEP 1     Develop and provide the U.S. Environmental Protection Agency with a tar-
                                                 get list of 100 light- and equipment-intensive businesses in the watershed
                                                 for possible participation in the program. Also investigate exterior lighting
                                                 sources to determine if energy reductions can be made without compro-
                                                 mising public safety. Additionally, encourage local government partners in
                                                 the Tampa Bay NEP, and local newspapers to participate as Green
                                                 LightslEnergy Stars partners.
                                                 Responsible parties: Tampa Bay NER, in cooperation with local electric
                                                 utilities (Tampa Electric Company, Florida Power Corporation, Florida
                                                 Power & Light) and chambers of commerce

                                      STEP 2     Sponsor a biennial workshop with U.S. EPA in Hillsborough, Pinellas and
                                                 Manatee counties, in partnership with the local utilities and chambers of
                                                 commerce. Also, request that EPA evaluate administrative requirements of
                                                 volunteer participants to investigate opportunities to streamline reporting
                                                 requirements.
                                                 Responsible parties: Tampa Bay NER, local utilities, EPA

                                      STEP 3     Promote Green Lights and Energy Stars through local chambers of com-
                                                 merce, business associations and downtown partnerships, and seek their
                                                 endorsements and commitments to promote these initiatives.
                                                 Responsible parties: Tampa Bay NER, Agency on Bay Management, local
                                                 utilities


                                      STEP 4     Increase cross-promotion of Green Lights and Energy Stars by local gov-
                                                 emments and environmental agencies in their contacts with businesses, and
                                                 incorporate Green Lights concepts into their programs where applicable.
                                                 Responsible parties: local government stonnwater and environmental                          0
                                                 management departments




            lot
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0








            ACTION PLM                                        Water & Sediment Quality

                                                                                         Charting the Course
            STEP 5   Encourage utilities to include information in customer billing newsletters for Tampa Bay
                     about the link between energy usage and bay water quality and the benefits
                     of energy conservation.
                     Responsible parties: Tampa Bay NEP, Agency on Bay Management
                                                                                             ...........
                                                                                        X............................. .....
                                                                                         .............................
                                                                                         AD 91''
                                                                                        ......... ....
            SCHEDULE-.
            All steps can be initiated in 1996. Target lists should be completed by December
            1996, for April 1997 workshops.


            COST-
            Staff time is involved in all steps. Business partners can expect cost savings associat-
            ed with reduced energy use as a result of implementation.


            EXPECTED BENEFITS-.
            Energy conservation will result in reduced emissions from power plants and atmos-
            pheric deposition to the bay.


            MONITORING ENVIRONMENTAL RESPONSE:
            An atmospheric deposition monitoring program will provide estimates of nitrogen
            deposition in the Tampa Bay area.


            REGULATORY NEEDS:
            None anticipated.


            RELATED ACTIONS-

            AD- 1






























                                                                                                 103






                DRAFT                                 ACTION PLM                                                                                Water & Sediment Quality                              0
          Charting the Course
              for Tampa Bay                           WASTEWATER

                                                      Reclaiming treated wastewater for commercial and residential uses represents one of
                                                      the most promising opportunities for reducing nitrogen loadings to Tampa Bay and
                   ...........
                   ..........
                 . . .........
            .. ................
                .. ...........
                                                      conserving precious water supplies in the future. St. Petersburg's pioneering effort in
                                                      reuse in the 1970s which drastically reduced the city's direct discharges to the bay
                                                      from the its four treatment plants paved the way for many of the projects now planned
                                                      and underway. The City of Tampa is currently exploring ways to reclaim up to 50
                                                      million gallons of nutrient-rich wastewater it now discharges daily to Hillsborough
                                                      Bay, to relieve pressure on the region's potable water supplies.

                                                      But evaluations of reclaimed water projects must consider the net effect to the bay and
                                                      its tributaries when large discharges are withdrawn. For instance, declines in nutrient
                                                      loadings that may pollute the bay must be weighed against the impact of redirecting a
                                                      fresh water source from the bay.

                                                      Once a pervasive problem for the bay, point-source pollution has declined substantial-
                                                      ly with improved regulation and advances in treatment technologies. In fact, the
                                                      retooling of Tampa's Howard R Curren wastewater treatment plant at Hooker's Point
                                                      in 1979 is widely regarded as a chief catalyst in the bay's water quality recovery.
                                                      Advanced wastewater treatment technologies employed there and at other upgraded
                                                      facilities can curb up to 90 percent of the nitrogen from treated wastewater discharges.

                                                      Direct or "point" discharges of wastewater to Tampa Bay from municipal sewage
                                                      treatment plants and industries now contribute about 14 percent of total bay nitrogen
                                                      loadings, roughly one-quarter of the amount contributed from "non-point" sources
                                                      represented in stormwater runoff. These regulated point sources also contribute
                                                      roughly 30 percent of the bay's total loadings of arsenic, cadmium, chromium and
                                                      copper, as well as low levels of other contaminants.

                                                      Experts expect continued declines in point source pollution as the use of reclaimed
                                                      water expands. Because point sources are concentrated and easily identified, they
                                                      often are among the most cost-effective to treat. The strategy to address wastewater
                                                      from point sources focuses on expanding the use of reclaimed water where projects
                                                      are beneficial to the bay; improved treatment of industrial effluent; pollution preven-
                                                      tion; and monitoring to improve compliance with discharge permits.


                                                      SEPTIC SYSTEMS
                                                      In some bay sectors, leachate from septic tanks, which serve about 20 percent of the
                                                      region's populace, may contribute substantially to nitrogen loadings. Preliminary
                                                      studies by the Southwest Florida Water Management District (SWFWMD) also sug-
                                                      gest that a proportionate amount of nitrogen loadings to the bay may come from dis-                                                             0
                                                      posal of septage waste and sewage treatment plant sludge containing nitrogen and
                                                      heavy metals.

                                                      Septic tanks located near the bay pose the greatest potential threat to water quality,
                                                      particularly along creeks where flushing is limited and the water table is near the
                   104                                ground surface.

                                                                                                                                                                                                      0






         ACTION PLM                             Water & Sediment Quality DRAFT
                                                                     Charting the Course
         SUMMARY OF ACTIONS FOR WASTEWATER                            for Tampa Bay


         WW-1   Expand the use of wastewater reuse where reuse benefits the bay.
                                                                    . .........................

         WW-2   Establish maximum limits on the amount of nitrogen discharged to the bay
                                                                        .................... ..
                                                                    ......................
                in industrial wastewater.                           .. ..... ......


         WW-3   Extend central sewer service to priority areas around the bay now served by
                septic systems.


         WW-4   Require standardized monitoring of wastewater discharges.

         WW-5   Revise FIRS rules to incorporate environmental performance or design
                standards for septic tanks.









































                                                                           105






           DRAFT                       ACTION PUW                                                       Water & Sediment Quality
        Charting the Course.
          for Tampa Bay                Expand Wastewater Reuse Where
                                       Reuse Benerits the Bay


         . ..........
          ..... .....   . .... .
                                       ACTION:
                                       Expand and encourage the reuse of highly treated domestic and industrial wastewater
                                       where reuse produces a net benefit for Tampa Bay.


                                       BACKGROUND:
                                       St. Petersburg's pioneering efforts in wastewater reuse for residential irrigation in the
                                       late 1970s were at the forefront of a technological movement that would offer both
                                       substantial benefits and some important challenges to a region anxious to conserve its
                                       dwindling freshwater supplies and at the same time save the bay from an overly rich
                                       diet of nutrients discharged in wastewater.

                                       Today, projects to reclaim wastewater for irrigation and other applications are under-
                                       way in all three counties bordering the bay. Local governments now reuse roughly 40                     0
                                       million* gallons of treated wastewater per day, mostly for urban and agricultural irri-                 0
                                       gation, but also for industrial purposes. Projects planned or underway in local com-                    0
                                       munities (see reuse table) will more than triple that amount.                                           40
                                       The Wilson-Grizzle Bill, which called for advanced technology to limit pollutants dis-                  10
                                       charged to the bay from domestic wastewater facilities, was a driving force behind
                                       these early efforts and a lifeline for a polluted bay. The legislation prompted the City
                                       of Tampa in 1979 to upgrade its wastewater treatment plant at Hooker's Point, a
                                       change that helped bring about sweeping improvements in the bay's water quality. At
                                       the same time, St. Petersburg was launching its reclaimed water project, which elimi-
                                       nated most of its direct wastewater discharges to the bay. The Wilson-Grizzle legisla-
                                       tion was eventually repealed but a subsequent Grizzle-Figg bill reinstated the require-
                                       ments for advanced wastewater treatment.


                                       The potential benefits of reuse to the bay and to a water-thirsty region are substantial.
                                       Reuse has helped to reduce annual nitrogen loadings to the bay by approximately 150
                                       million tons and will play a key role in the strategy to reduce future loadings. It is
                                       also widely recognized as a cost-effective, long-term alternative source of water for
                                       irrigation and commercial applications and potentially for potable needs. Reuse is a
                                       key element of the Southwest Florida Water Management District (SVVFWMD) strate-
                                       gy to protect the Floridan Aquifer from saltwater intrusion in highly sensitive portions
                                       of southern Hillsborough and Manatee counties, collectively known as the Southern                       40
                                       Water Use Caution Area. Reclaimed water also may be used to augment wellfields
                                       and freshwater inflows to the bay.

                                       Nevertheless, projects to reclaim wastewater should be evaluated carefully to deter-
                                       mine their net impact to the bay and to address various public health and logistical
                                       concerns. The City of Tampa is now proposing a project to reclaim as much as 50
                                       million gallons of the treated wastewater it discharges daily to Hillsborough Bay from
             128                                                                                                                               0
                                        as of 1990, seeking update of figures                                                                  0
                                                                                                                                               0
                                                                                                                                               0











all
                                                                                              g
                                                                                             Un    I 'I
            ACTION PLM                                         Water & Sediment Quality      1,U1 "'I I"...
                                                                                          Charting the Course
            its Howard F. Curren facility at Hooker's Point. Discharges from this facility now for Tampa Bay
            represent about 7 percent of the total freshwater inflow to Hillsborough Bay during
            the dry months of the year.

            While the bay will benefit from the reduction in nutrients to this heavily impacted bar-

                                                                                             ....... ....
            bor, a portion of this nutrient-rich load may be rerouted to the Tampa Bypass Canal,
            mixed with canal water, and then pumped to the Hillsborough Reservoir.
            Additionally, Hillsborough Bay will lose 7 percent of its fresh water inflow. A plan-
            ning and environmental impact assessment for this project began in late 1995.


            STRATEGY:
            This strategy is to evaluate and recommend implementation of reclaimed water pro-
            jects that result in a net benefit to Tampa Bay.

            STEP 1   Evaluate the environmental impacts of the major reuse projects planned for
                     the Tampa Bay region, including the net effects of reducing or eliminating
                     the discharge (changes in salinity and pollutant loadings) and any coffe-
                     sponding impacts to rivers and reservoirs. Evaluations also should ade-
                     quately address the project's ability to satisfy any public health concerns or
                     perceptions stemming from the use of reclaimed water to augment potable
                     water supplies.

                     The Tampa Bay National Estuary Program recommends implementation of
40                   those reuse projects that benefit the bay.
0                    Responsible parties: local governments, SWFWMD, Florida Department
0                    of Environmental Protection (FDEP)
0
            STEP 2   If cur-rent reuse expansion plans coupled with other efforts to reduce pollu-
                     tion are insufficient to meet long-term goals for nitrogen reduction in the
                     bay, investigate additional opportunities to expand reuse by inter-connect-
                     ing distribution systems or constructing larger storage facilities.
                     Responsible parties: local governments, SWFWMD, in cooperation with
                     9he Tampa Bay NEP


            SCHEDULE.
            The status of major reuse projects that are planned or underway is provided in Table
            1. Evaluation of the City of Tampa project to reclaim treated wastewater currently
            discharged to Hillsborough Bay began in 1995.


            COSM
            Estimated costs and funding sources for major projects are provided in Table 1.
            Information was provided by wastewater reuse coordinators, utility officials and envi-
            ronmental planners associated with these projects.


            EXPECTED BENEFITS.
            Reuse projects have the potential to substantially reduce long-term nitrogen loadings
OF
                                                                                                  107






                DRAFT                                 ACTION PLM                                                                                Water & Sediment Quality                               0
          Charting the Course                                                                                                                                                                          40
              for Tampa Bay                           to Tampa Bay, and also help to conserve the region's dwindling water supplies. Both                                                              0
                                                      the amount of water conserved through a project and the anticipated reduction in                                                                 40
                                                      nitrogen loadings are presented in Table 1. However, major projects should be evalu-                                                             0
                                                      ated to identify any potential drawbacks for the bay or public health concerns associ-                                                           49
                           ......................
                    ................ .. ..... ........
                      -1.11.1.  ............I
                     .. ...... .............  ......
                                                      ated with reuse.

                            .....................
                    .............. ........ ..... . ..
                                  ...........
                           .......................

                                                      MONITORING ENVIRONMENTAL RESPONSE:
                                                      Ambient water quality is monitored by local governments. Local government and                                                                    0
                                                      industrial applicants for reuse permits also will be required to conduct water quality                                                           0
                                                      monitoring as a condition of the permit.                                                                                                         41

                                                      REGULATORY NEEDS:
                                                      FDEP regulations currently discourage the discharge of reclaimed water to natural
                                                      wetlands. Since wetland rehydration is one of the potential uses for reclaimed water
                                                      in the Tampa Bay region, amendments to FDEP regulations or policies may be needed                                                                16
                                                      to allow these uses in cases where there is a net environmental benefit for the bay.                                                             0
                                                      The issue of "ownership" of reclaimed water and control over how that water can be                                                               0
                                                      used also should be clarified.



                                                      RELATED ACTIONS:

                                                      FI- 1



























                  lea                                                                                                                                                                                  0
                                                                                                                                                                                                       0
                                                                                                                                                                                                       0
                                                                                                                                                                                                       0









                                                                                                             Water & Sediment Quality
                     ACTION PLAN                                                                                                                                U I I I'M r I
                                                                                                                                                           Charting the Course
                                                                                                                                                              for Tampa Bay




                     Table 1. Summary of major projected or funded domestic wastowatep
                                    reuse projects In the Tampa Bay region

                                                                                         Total
                                                                                         Reuse                                         TN
                     Local                                                                Vol.         Cost         Funding        reduction                    Project
                     Government                 Plant/Project                            (mgd)       ($XlO')         Source         (tons/yr)                    Status


                     Hillsborough            NW Service Area:
                     County                  1) River Oaks, NW Reg.WWTP -                 15.0         15.0     County CIP,            34.5        9-phase county project to be
                                             Service to residential and                                         SWFWMD                             completed by the year 2000, as
                                             commercial uses and golf courses,                                                                     part of 5-year CIP*.
                                             and connection to Dale Mabry/                             44.0     RWIU*                              Distribution to individual
                                             Van Dyke WWTP-                                                                                        residences is part of 20-year
                                             2) Dale MabryNan Dyke VVVff P -                                                                       plan with expected completion
                                             extend service to an additional                                                                       in 2015.
                                             1,550 residences

                                             Central Service Area:                        16.0         10.0     County CIP,            36.5        WWTP connection lines and
                                             1) Connect Valrico & Faulkenburg                                   userfees,                          storage facilities in design
                                             WWTPs; extend service to golf                                      SWFWMD                             phase. Construction part of 5-
                                             courses and residential areas;                                                                        year CIP with expected comple-
                                             construct storage facilities; inter-                      15.0     RWIU                               tion in 2000.
                                             connect with raw water line to
                                             Cargill plant.

                                             South Service Area:                          6.5          3.3      County CIP,            14.8        Part of 20-year plan, with
                                             1) South County Reg./                                              userfees                           expected completion in 2015.
                                             Surnmerfield WVVTP -
                                             Extend service area and
                                             hook up additional homes

                     Yampa                   Howard Curran WVff P - AWT                   50.0         100      User fees,             137.0       Begin design in 1996. Projected
                                             effluent to Hillsborough River                                     SWFWMD,                            to be on-line in 2000.
                                             Reservoir or Tampa Bypass Canal,                                   State,
                                             to augment potable water supply                                    bonds

                     Plant City              Effluent to CF Industries,                   8.0          14.0     Plant City Util.       18.3        Pending; expected to be on-line
                                             agricultural users                                                 board,                             by 1998-1999.
                                                                                                                SWFMWD
                                                                                                                (Gov. board &
                                                                                                                Hills. River
                                                                                                                Basin Board)

                     Pinellas                North Plant - extend service                 9.0          NA       NA                     20.6        Underway; expected completion
                     County                  to 500 additional homes                                                                               by 1998-1999. This represents
                                             (if flow available)                                                                                   the county's maximum reuse
                                             McKay Creek & South Gross                    23.0         23.0     User fees,             52.5        capacity.
                                             Bayou -WWTP upgrade,                                      phase I  bonds, CIP,
                                             transmission main, infill lines                           60.0     SWFWMD,
                                                                                                       phase 2  State

                     St. Petersburg          NE, SE, SW, Albert Whitted Plants -          4.2          20.0     User fees,             11.4        Expected completion by 2005.
                                             expand overall distribution network,                               SWFWMD
                                             adding 5000 additional homes
                                                                                                                                                                         108






              DRAFT                                ACTION PLM                                                                         Water & Sediment Quality
          Charting the Course.
             for Tampa Bay




                Table 1. Summary of major projected or funded domestic wastewater                                                                                                        0
                               reuse projects In the Tampa Bay region (continued)

                                                                                  Total
                                                                                 Reuse                                      TN
                Local                                                              Vol.      Cost          Funding       reduction              Project
                Government                Plant/Project                          (mgd)      ($00')          Source        (tons/yr)             Status


                Clearwater             No new reuse projects are planned

                Oldsmar                No new reuse projects are planned

                Safety Harbor          City to treat East Lake Woodlands           0.3        4.5        User fees,         0.68         Expected completion by
                                       effluent, return to golf courses                                  SWFWMD                          1997.

                Largo                  Increase reuse from 6 to 12 mgd             6.0        8.0        User fees,         13.7         Expected completion by
                                                                                                         SWFWMD                          2000.

                Manatee                Network SW, SE, and N Plants -              17.2      50.0        Federal            39.3         Expected completion by
                County                 expand distribution to county                                     grant, 50/50                    1999.
                                       residences and homes in west                                      SWFWMD
                                       Bradenton, and east to
                                       agricultural areas (MARS*)

                Bradenton              AWT Discharge to augment                    6.0        3.5        User fees,         13.7         Feasability study initiated;
                                       Braden River flow                                                 bonds,                          timetable not projected for
                                                                                                         SWFWMD                          implementation.

                Palmetto               1) Distribution main to Frog Creek         1)0.9     1)3.5        User fees,         2.74         Will reuse 90% of their
                                       area (agriculture), in cooperation                                CIP funds,                      effluent by 2000.
                                       with Manatee Co. (MARS)                                           SWFWMD
                                                                                                         funds,
                                       2) Distribution system to city             2)0.3     2)1.1        County
                                       parks, golf course, schools                                       funds                                                                           0
                Polk County            no new reuse projects are                                                                                                                         0
                                       planned                                                                                                                                           0

                Lakeland               no new reuse projects are
                                       planned


                  RWIU -    Reclaimed Water Improvement Unit. Similar to special taxing district,
                            used to fund reuse water systems within county subdivisions.
                     CIP -  Capital Improvement Plan
                  MARS -    Manatee Agricultural Reuse System


                Calculation of TN reduction is based on the difference between TN load from direct surface discharge
                to the bay from WWTPs and TN load associated with wastewater reuse.






                                                                                                                                                                                         0
                                                                                                                                                                                         0
                                                                                                                                                                                         0
                                                                                                                                                                                         0








                ACTION PLM                                                      Water & Sediment Quality                         11.1.
                                                                                                                  Charting the Course
                Establish Maximum Limits on the Amount of                                                            for Tampa Bay
                Nitrogen Discharged to the Bay in Industrial
                Wastewater



                ACTION-
                Establish maximum limits on the amount of nitrogen in industrial wastewater dis-
                charged to the bay, based on loading targets established through the Tampa Bay
                National Estuary Program.


                BACKGROUND-.
                This action seeks to establish limits on the amount of nitrogen discharged to the bay
                from industrial point sources to assist in long-term efforts to hold the line on nitrogen
                loadings. Industrial point sources contribute an estimated 6 percent (255 tons) of the
                bay's total annual nitrogen loading and about 14 percent of its total suspended solids
                (TSS) loading. Municipal point sources, by comparison, respectively contribute an
                estimated 8 percent of the bay's nitrogen loadings and less than I percent of its TSS
                loadings. TSS loadings are a focal point of concern for bay managers because they
                contribute to turbidity in some bay sectors.

                Existing state standards governing industrial discharges to Tampa Bay (called
                WQBELs) allow discharges up to the receiving water body's ability to assimilate the
                pollution. But these standards were set before the water quality requirements for the
                bay's seagrasses were established by the Tampa Bay NEP. The Program has now
                computed the amount of nitrogen the bay can safely assimilate without impeding the
                health and recovery of seagrasses. These loading estimates should be the basis for the
                development of maximum limits on the amount of nitrogen discharged from industrial
                point sources.

                Maximum limits would be incorporated into permits as permits are renewed or issued.
                Relatively little would be required of existing point sources, unless existing discharges
                increased. New industrial point sources would be required to compensate in one of
                several ways for the amount of nitrogen discharged to the bay. For example, an appli-
                cant might choose to implement on-site treatment of wastewater or contribute to a
                "bank" for improvements elsewhere.


                STRATEGY-
                STEP 1     Allocate Total Nitrogen JN) loadings for Tampa Bay to each of the bay's
                           seven segments, as well as to major municipal and industrial point sources.

                           A series of workshops to allocate the bay's nitrogen loadings to responsible
                           parties will be conducted by the Tampa Bay NEP in 1996.
                           Responsible paHies: Tampa Bay NEP

                STEP 2     Amend the Florida Administrative Code to link loading targets established
                           in Step 1 to NPDES point source discharge permits to require that industri-






           DRAFT                       ACTION PLM                                                       Water & Sediment Quality                0
       Charting the Course                                                                                                                      0
          for Tampa Bay                           al dischargers meet a particular bay segment's load allocation. Loading tar-                  0
                                                  gets should be tailored to specific industries to account for variations in                   40
                                                  wastewater among different manufacturing processes.                                           41
                   . .... ......                  Responsible parties: Florida Department of Environmental Protection
                        'imiCX.
                                                                                                           A)
                                                  (FDEP), U.S. Environmental Protection Agency (ER

         . . ..................... ..................
                   ......... . .....
                                       STEP 3     Assign loading limits to existing industrial discharges as permits are
                                                  renewed, and allow flexibility in how those targets are met. For example, a
                                                  business may meet a net loading target by implementing various point or
                                                  non-point source controls, or possibly by contributing to a "barik" for bay
                                                  pollution controls implemented off site. Additionally, dischargers should
                                                  be allowed to trade with other nitrogen sources.
                                                  Responsible parties: FDEP

                                       STEP 4     Require new permit applicants to demonstrate how they will meet allocated
                                                  targets for TN loads for a particular bay segment. Since targets most likely
                                                  will involve holding the line on these loadings, an applicant would need to
                                                  be prepared to compensate by some means for all new point source load-
                                                  ings.
                                                  Responsible parties: FDEP


                                       SCHEDULE:
                                       Step 1 will be initiated in 1995. Remaining steps can be initiated in 1996/1997, if
                                       warranted.



                                       COST:
                                                                                                                                                Oil
                                       Staff time will be required to develop amendments to regulations. Costs to comply
                                       with TN limits would be borne by private industry. A cost-benefit analysis is under-
                                       way.                                                                                                     OR


                                       EXPECTED BENEFITS:
                                       The establishment of maximum limits for nitrogen discharged in industrial wastewater
                                       will assist bay managers in maintaining the bay's existing nitrogen loadings to support                  0
                                       seagrass recovery.


                                       MONITORING ENVIRONMENTAL RESPONSE:
                                       Pollutants in industrial wastewater discharges will be monitored as a condition of per-
                                       mit. Ambient water and sediment quality is monitored monthly by local governments.


                                       REGULATORY NEEDS:

                                       Amendments to the Florida Administrative Code.



                                       RELATED ACTIONS:
                                       Not applicable.




                                                                                                                                                0
                                                                                                                                                0











dft
4W       ACTION PLM                          Water & Sediment Quality 11H
                                                                 Charting the Course
         Extend Central Sewer Service to Priority Areas           for Tampa Bay
W        Now Served by Septic Tanks
                                                                    W  ,

         ACTION-
         Extend central sewer service to high density areas along the bay and its tributaries
         where water quality problems associated with septic tanks have been documented.


         BACKGROUND-.
         Preliminary studies conducted for the Southwest Florida Water Management District
         (SVVFWMD) suggest that leachate from septic tank drainfields may contribute about 5
         percent of the bay's total annual nitrogen loadings and significantly more in localized
         areas. Malfunctioning septic systems can also contribute bacteria and viruses
         (pathogens) associated with fecal coliform in human waste to surface waters. Ground
         water carries nitrogen from septic tank drainfields to surface waters. Septic systems
         located closest to the bay and its tributaries pose a particular concern.

         There are nearly 100,000 septic tanks in the Tampa Bay watershed. Areas that
         demand close scrutiny for water quality impacts from septic tanks include creeks,
         where flushing is limited and the water table is close to the surface of the land, and
         other nearshore areas of the watershed with high densities of mostly older tanks.
         Among these are Allen's Creek in Pinellas County, several creeks and the Ruskin inlet
         near the mouth of the Little Manatee River, and Tampa's McKay Bay.

         Elevated levels of fecal coliform, and nitrogen have been reported in many of these
         and other areas around the bay. But few site-specific studies have been conducted to
         directly link septic tanks to these impacts, which may be due to natural causes or ani-
         mal waste carried in stormwater runoff. Nevertheless, the sandy soils in Southwest
         Florida are not highly suitable for septic tanks, and preliminary studies point to the
         potential for nitrogen impacts in some areas.

         This action calls for further investigations at suspected problem sites to document the
         impact from septic tanks, along with efforts to extend central sewer service to areas
         where problems are identified. Nearshore areas with high densities of septic tanks
         (more than two per acre) should be evaluated first.

         Conversion from septic to central sewer service can be costly, with hook-up fees rang-
         ing anywhere from $2,000 to $5,000 or more. This underscores the need to investi-
         gate financing options such as interest-free loans and cost-share grants or partnerships
         to assist residents in areas slated for central sewer service.


         STRATEGY.
         STEP 1Identify areas adjacent to the bay and its tributaries where septic tanks are
               suspected of causing water quality impacts. Areas with septic tanks
               installed prior to 1983, when siting criteria was established, should be
               given high priority status.
               Responsible parties: local governments
                                                                       113






                                                                                                                                            0
           DRAFT                      ACTION PLM                                                      Water & Sediment Quality              0
       Charting the Course
          for Tampa Bay               STEP 2     Analyze worst-case scenarios for nitrogen loadings from septic tanks based
                                                 on their proximity to the creek or surface water. Where necessary and cost-
                                                 effective, install meters and wells to monitor groundwater seepage into the
                 ..........................      creeks or affected areas.
                                                 Responsible parties: local governments
            Ww.

                                      STEP 3     Based on results from steps 1 and 2, extend central sewer service to coastal
                                                 areas where water quality problems have been documented.
                                                 Responsible parties: local governments

                                      STEP 4     For new developments where central sewer service is available or feasible,
                                                 develop and implement a local regulation to require its utilization. Where
                                                 central sewer service is not feasible, determine the most environmentally
                                                 beneficial means to provide sewage treatment.
                                                 Responsible parties: local governments


                                      SCHEDULE:                                                                                             40
                                      Local governments and agencies can begin implementation of Steps 1 and 2 in 1996.                     0
                                      Implementation of Step 3 will depend on results from analyses and cost and financing                  0
                                      factors. Step 4 can be pursued in 1997. Conversion from septic to central sewer ser-                  0
                                      vice is already underway in some areas as part of existing capital improvement plans.


                                      COST:
                                      Costs to analyze water quality in suspected problem areas may cost upwards of
                                      $2,000, based on 10 samples at $200 each. Monitoring of wells and seepage meters is                   40
                                      estimated at $125-$250 per station. Funding options for residents converting to cen-                  0
                                      tral sewer service must be developed to make implementation affordable and feasible.                  0
                                                                                                                                            0
                                      EXPECTED BENEFITS:                                                                                    49
                                      Efforts to convert high density coastal areas served by septic tanks to central sewer                 .0
                                      service will help to reduce nitrogen and pathogen levels in the bay and bay tributaries.              49


                                      MONITORING ENVIRONMENTAL RESPONSE:
                                      Nutrient loadings from on-site septic systems traditionally have been hard to quantify,
                                      however monitoring and modeling called for in this action will assist in this effort.


                                      REGULATORY NEEDS:
                                      Revisions to local government comprehensive plans and the development of imple-
                                      menting ordinances.


                                      RELATED ACTIONS:

                                      WW-4, PH-2, PH-3





             114








               ACTION PLM                                                      Water & Sediment Quality

                                                                                                                 Charting the Course
               Require Standardized Monitoring of Wastewater                                                        for Tampa Bay
               Discharges



               ACTION-
               Require standardized monitoring of wastewater discharges from industrial and munici-
               pal facilities, and improve regulatory and public access to permit compliance monitor-
               ing data.


               BACKGROUND-
               Improvements in the monitoring and reporting standards governing industrial and
               municipal facilities discharging wastewater to Tampa Bay will improve the accuracy
               of information used to develop bay water quality models and pollution control stan-
               dards--efforts that will lead to improved environmental oversight. Inadequacies in
               the existing system prevent effective trends analysis and limit the public's and regula-
               tory community's ability to effectively monitor discharges.


               Standardized units of measurement for wastewater concentrations and flows are nec-
               essary to calculate wastewater loadings to the bay. Municipal wastewater treatment
               facilities currently are required to report standardized flow measurements, but some
               industrial point sources are not. Furthermore, requirements to report the concentration
               of nutrients or other contaminants in wastewater vary considerably among facilities
               with permits to discharge.

               Efforts also are needed to improve local government, agency and public access to data
               collected from these facilities. Most computerized pen-nit compliance data is avail-
               able only through the Tallahassee office of the Florida Department of Environmental
               Protection (FDEP), and often requires extensive time and effort for retrieval.

               This action calls for the standardized reporting of a core group of parameters from all
               point-source facilities discharging more than 100,000 gallons per day, and improved
               access to monitoring data collected from these facilities.


               STRATEGY.
               STEP1      Revise FDEP Rule 62.4 to require the measurement and reporting of a core
                          group of parameters from all point-source facilities with NPDES permits
                          discharging an average daily flow of more than 100,000 gallons of waste-
                          water. The core group should include concentrations of total nitrogen, total
                          phosphorus, total suspended solids, total ammonia, and average daily or
                          monthly flow (actual discharges, not values estimated in permits). These
                          core parameters are in addition to any permit-specific reporting that may be
                          required. An exemption may be allowed for parameters which that facility
                          is not reasonably expected to discharge. Revisions to existing permit crite-
                          ria should be added as permits are renewed.
                          Nesponsible pany: FDEP


                                                                                                                            115





           DRAFT                       ACTION PLM                                                        Water & Sediment Quality                40
        Charting the Course                                                                                                                      0
          for Tampa Bay                STEP 2      Enforce the use of standard reporting units for the core group of parame-                     0
                                                   ters, including flow rate. Nutrient concentrations are required as mg/1-                      0
                                                   flow as average daily flow or monthly flow (mgd or mgm).                                      40
                                                                                                                   -sourcefacili-                40
                 ..................... ......      Responsible pany: FDEP (for permitting), applicable point
                                                   ties (for standardized monitoring and reporting)
                     .............
                .. ............
                                       STEP 3      Accelerate the data entry and internal quality assurance process followed
                                                   by FDEP to allow access to permit compliance data within 90 days from
                                                   the time a compliance report is submitted.
                                                   Responsible party: FDEP

                                       STEP 4      Provide access to the FDEP computerized database for permit compliance
                                                   at the regional level through District offices. Access to this database
                                                   should be available by modem or on disk.
                                                   Responsible party: FDEP Tallahassee and District offices


                                       SCHEDULE:
                                       All steps can be initiated in 1996.


                                       COST:                                                                                                     40
                                       Staff time is anticipated in revisions to the existing FDEP Rule 62.4 and with efforts                    0
                                       to improve and provide more timely access to the compliance monitoring database.                          0
                                       Costs to comply with standardized sampling and monitoring criteria will be incurred                       0
                                       by point-source facilities and are expected to be minimal.                                                0


                                       EXPECTED BENEFITS:
                                       Improved monitoring standards will improve the data used to develop bay water quali-                      0
                                       ty models that are the basis for many of the most significant management actions for                      0
                                       the bay.                                                                                                  0

                                       MONITORING ENVIRONMENTAL RESPONSE:
                                       Results will be measured in improved data quality and accessibility.


                                       REGULATORY NEEDS:
                                       Revisions to FDEP Rule 62.4, to include measuring and reporting standards for a core
                                       group of parameters in each NPDES permit.


                                       RELATED ACTIONS:

                                       WW-2










             lie


                                                                                                                                                 0











                                                                                                                     r
               ACTION PLM                                                      Water & Sediment Quality             UKAr I
                                                                                                                 Charting the Course
               Revise HRS Rules to Incorporate Environmental                                                       for Tampa Bay
               Perfonnance or Design Standards for Septic Tanks

                                                                                                                       ............. .. ....
                                                                                                                 ................ 11 _-
                                                                                                                   ....................



                                                                                                                ...........
               ACTION-.
               Revise the rules of the Department of Health and Rehabilitative Services (HRS) gov-
10             eming septic tank siting and monitoring to incorporate environmental performance or
6              design standards to protect the bay environment and further assure public health and
0              safety.


               BACKGROUND-
               Preliminary studies conducted for the Southwest Florida Water Management District
               (SWFWMD) indicate that as much as 5 percent of the bay's total nitrogen loadings
               may come from the nearly 100,000 septic tanks in the Tampa Bay watershed.

               The Florida Department of HRS currently oversees and approves the siting and moni-
               toring of all on-site sewage treatment systems with a capacity of 10,000 gallons per
               day or less, including septic tanks and other on-site systems. Existing permitting cri-
               teria (Florida Administrative Code (FAQ, Chapter 1OD-6) focuses mainly on public
               health interests and does not include potential impacts from water pollution except
               those that relate to bacteria and viruses and the contamination of public drinking water
               supplies.

               A January 1995 revision allows HRS to consider impacts to ground and surface waters
               from septic systems, but leaves the basic siting and design standards essentially
               unchanged. For example, the rule does not contain effluent quality standards pertain-
               ing to nutrients that leach from septic systems to ground water and surface water,
               except in the Florida Keys. Proposed maintenance schedules are included, but they
               are advisory only. Furthermore, septic systems constructed prior to the establishment
               of the current design criteria may continue to operate-even in high-density areas
0              where their presence may aggravate local water quality problems-as long as the load
0              to them does not change substantially.
0              This action is to develop environmental performance or design standards for the
               design and siting of septic tanks and to incorporate these guidelines into HRS regula-
               tory guidelines. This process should begin with a determination of the allowable con-
               centrations or loadings of nitrogen and pathogens to surface waters. Environmental
               performance standards could then be established to require a minimum level of nitro-
               gen removal from a septic system. However, since these criteria may be difficult to
               establish and enforce, officials may opt to develop design and operating standards that
               would help to prevent nitrogen contamination of ground or surface waters from septic
               tanks. Design standards could include stricter setbacks from surface waters, minimum
               wet-season water table depths, soil permeability and content, and recommended main-
               tenance intervals. At sites where performance standards cannot be met, local govern-
               ments may require septic tanks with nitrogen-removal capability.


dh                                                                                                                         117






           DRAFT                        ACTION PLM                                                         Water & Sediment Quality                0
       Charting the Course                                                                                                                         0
          for Tampa Bay                 STRATEGY:                                                                                                  0
                                        STEP1      Request that the U.S. Environmental Protection Agency (EPA) (Region IV)
                                                   organize a regional panel of experts that includes representatives from
                       ..... ........
                                                   HRS, the Florida National Estuary Programs and the Gulf of Mexico
                                                   Program to develop environmental performance or design standards for
                    ....................
                                                   septic tanks.                                                                                   0
                                                   Responsible parties: EPA, Tampa Bay National Estuary Program, HRS'                              0
                                        STEP 2     Revise FAC Chapter 1OD-6 to incorporate environmental performance or                            0
                                                   design standards established in Step 1.                                                         0
                                                   Responsible parties: MRS

                                        STEP3      Determine and promote the minimum schedules for septic tank mainte-
                                                   nance based on environmental standards in cooperation with private com-
                                                   panies that provide pump-out services. Additionally, require that septic
                                                   tanks be pumped out at time of property transfer, or that the property owner
                                                   provide documentation that the system has been pumped out within the
                                                   previous three years.
                                                   Responsible parties: local governments


                                        SCHEDULE:
                                        All steps can be initiated in 1996.


                                        COST:
                                        Administrative costs and staff time only are anticipated in this action, but the environ-
                                        mental standards that are developed may require additional resources for environmen-
                                        tal protection. HRS and legal staff time to revise the current rule is estimated at
                                        $50,000.                                                                                                   0


                                        EXPECTED BENEFITS:
                                        The establishment of environmental performance or design standards for septic tanks
                                        will help reduce nitrogen loadings to the bay and prevent future siting of septic tanks
                                        in areas vulnerable to water quality impacts.


                                        MONITORING ENVIRONMENTAL RESPONSE:
                                        Ambient water quality is monitored by local governments.


                                        REGULATORY NEEDS:
                                        Revisions to FAC Chapter 1OD-6 to incorporate environmental performance or design
                                        standards for septic tanks.


                                        RELATED ACTIONS:
                                        WW-3, PH-1, PH-2                                                                                           0


             Ila


                                                                                                                                                   0






7               ACTION PLM                                                      Water & Sediment Quality              UKAH
                                                                                                                   Citarting the Course
                                                                                                                     for Tampa Bay
                Toxic CONTAMINATION

                Stormwater treatment, pollution prevention and improved access to hazardous waste
                                                                                                                        ............ .
                                                                                                                     .................... . .... ..
                disposal are key components of the strategy to reduce the amount of toxic contami-
                                                                                                                  . ... .............................. ... .
                                                                                                                    ..... ... ..
                                                                                                                      .... ............
                nants entering the bay.                                                                                .................. ...

                Recent studies by the National Oceanic & Atmospheric Administration (NOAA) point
                to contamination of bay sediments at several sites around the bay by heavy metals,
                pesticides and other substances that at sufficiently high concentration can be damag-
                ing or deadly to marine life.

                Sediments from Hillsborough Bay, the bay's most industrialized sector and home to
                the Port of Tarnpa, generally revealed the highest levels of contaminants.
                Concentrations of cadmium, lead and zinc at Hillsborough Bay exceeded Florida's
                Probable Effects Level (PEL) for toxic contamination, guidelines that predict biologi-
                cal impact to marine life. Pinellas County's Boca Ciega Bay and Bayboro Harbor
                also ranked among the bay's hot spots of contamination.

                Many toxic pollutants enter the bay attached to sediments in stormwater runoff, but
                atmospheric deposition (associated with industrial and vehicle emissions) and waste-
                water discharges also contribute significant quantities of contaminants to the bay.
                Pollutants tend to concentrate around ports, marinas and industrial harbors, as well as
                major stormwater outfalls.

                Overall, toxic parameters in the bay's sediments are in the middle ranges nationally.
                Among 200 sites studied nationwide, samples of oysters from rural Cockroach Bay
                ranked third nationally in 1988 in total concentrations of the agricultural insecticide
                chlordane, which was banned that year. Sediments there also revealed high levels of
                the pesticide DDT, which was banned in the early 1970s, but persists in the marine
                environment.


                The Tampa Bay NEP will utilize a trio of tests-evaluating sediment chemistry, toxic-
                ity, and the health and diversity of bay bottom communities-to assess overall bay
                bottom quality. Results from these analyses will be used to classify areas of the bay
                that are heavily contaminated, exceeding threshold levels for biological impact, and
                for which sediment capping or removal may be considered; those that are polluted but
                more readily restorable by reducing or maintaining existing pollutant loads; and toxic-
                free areas that should be protected from contamination. Management actions will
                vary according to sediment classifications.

                In a related study, the Tampa Bay NEP is investigating the sources and status of toxic
                contaminants in priority water basins, information that will be used to develop a more
                comprehensive action plan in 1996. That investigation will help identify which pollu-
                tants pose a continuing threat to the bay and those that represent past or inactive
                sources of pollution.

                A key initiative this year is to develop resource-based sediment quality guidelines to
                serve as the benchmark in evaluating the relative magnitude and risks associated with
                                                                                                                             lie






        DRAFT               ACTION PUW                                      Water & Sediment Quality
     Charting the Course
       for Tampa Bay        toxic contaminants in Tampa Bay. Sediment contamination may increase as the
                            region grows. Addressing the problem now, before it escalates, is crucial to the bay's
                            long-term health.



          ... ... .. .. ..
                            SUMMARY OF ACTIONS TO ADDRESS TOXIC CONTAMINATION


                            TX_ 1    Direct stormwater improvements and other resources to hot spots of conta-
                                     mination.


                            TX-2     Improve business and homeowner opportunities for hazardous waste dis-
                                     posal.

                            TX-3     Reduce toxic contaminants from ports and marinas.

                            TX-4     Promote integrated pest management on farms to reduce pesticides in
                                     runoff.


                            TX-5     Establish maximum concentration limits in discharge permits for toxic con-
                                     tarninants of concern to Tampa Bay.



































         Ito







                ACTION PLM                                                     Water & Sediment Quality              101
                                                                                                                 Charting the Course
                Direct Stormwater Improvements and Other                                                            for Tampa Bay
                Resources to Hot Spots of Contamination

                                                                                                                ............................
                                                                                                                .............................



                ACTION-
0               Direct stormwater improvements and other resources to hot spots of sediment contain-
                ination.
0
0               BACKGROUND:
                Studies by the National Oceanic & Atmospheric Administration (NOAA) have
                revealed relatively high levels of potentially toxic metals and contaminants in sedi-
                ments from several sites in Tampa Bay. Areas of heaviest contamination include por-
                tions of Hillsborough Bay (particularly along Ybor Channel, Garrison Channel and the
                base of the Hillsborough and Palm rivers) and Boca Ciega Bay. Levels of several
                contaminants in sediment samples from these sectors exceeded Florida's Probable
                Effects Level (PEL) for toxic materials, indicating that some biological impact to
                marine life could be expected.

                Several other bay sites registered below the PEL but above the No Observable Effects
                Level (NOEL), which serves as a threshold for the probability of biological impact.
                These sites include Allen's Creek and Cross Bayou (Pinellas shore/Old Tampa Bay);
                Bayboro Harbor, Lower Coffee Pot Bayou, the Municipal Marina (City of St.
                Petersburg) and Bear Creek (City of Gulfport).

                A key effort in 1996 will be to develop sediment quality guidelines to determine the
                amount of a potentially toxic contaminant the bay can safely assimilate. This infor-
                mation will enable bay managers to devise appropriate strategies for cleanup or con-
                tainment. The Tampa Bay NEP also is investigating the sources and status of toxic
                contaminants in several of the bay's most impacted drainage basins.

                This action is to direct stormwater improvements and other resources to the bay's hot
                spots to reduce or contain sediment contamination. The Tampa Bay NEP also recom-
                mends continued monitoring and sampling to assess trends in the quality of bay sedi-
                ments and the animal communities they support. Efforts to reduce pesticides in agri-
                cultural runoff are presented in a separate action promoting integrated pest manage-
                ment in the stormwater section of this action plan. Also see Action TX-3, which
                focuses on important pollution prevention measures and the development of a more
                detailed action plan once technical studies by the NEP are finalized in 1996.

                Many toxic contaminants enter the bay attached to sediments in stormwater runoff,
                making stormwater treatment a key strategy in toxics reduction. BmPs to reduce total
0               suspended solids (TSS) in runoff include retention ponds, vegetated buffer strips,
0               swales and underdrains, as well as non-structural means such as street sweeping or
0               stricter zoning standards to limit development density in sensitive areas. Treatment
0               methods that address large or multi-parcel sites are preferred, since they increase the
0               likelihood of operational success and may offer an added opportunity for habitat cre-
0               ation.                                                                                                      121
0
0
0






       DRAFT             ACTION PLM                                 Water & Sediment Quality
     Charting the Course
      for Tampa Bay      In areas of long-standing sediment contamination, where the source of pollution is no
                         longer active, this action encourages bay managers to consider other opportunities for
                         the cleanup or containment of sediments.

                ...........
                ..........
                         STRATEGY:
            ............. .
       . ..........
                         Based on the identification of hot spots of sediment contamination in the bay and in
                         accordance with sediment quality guidelines developed in early 1996:

                         STEPI  Direct stormwater improvements to drainage basins where stormwater
                                runoff is contributing to hot spots of sediment contamination.

                                The Tampa Bay NEP has developed a computer model to assist local gov-
                                ernments in selecting the most cost-effective mix of best management prac-
                                tices to employ in a given area.
                                Responsible parties: local governments

                         STEP 2 Address contamination from sources that are no longer active or from pol-
                                lutants that have been banned such as DDT, examine options for and assess
                                the feasibility of sediment cleanup or containment.
                                Responsible parties: local governments, SWFWMD-SWIM department

                         STEP 3 Continue local government monitoring of sediment chemistry and benthic
                                communities to track changes and trends in bay sediment quality.
                                Responsible parties: local governments


                         SCHEDULE:
                         All steps can be initiated in 1996, after the sources and status of contaminants are
                         identified and sediment quality guidelines are finalized. The computer model refer-
                         enced in Step 1 will be made available to local governments in 1996.


                         COST:
                         Costs to implement stormwater improvements and other controls are dependent on the
                         BMP selected. Funding options include SV;FWMD-SWIM (through District basin
                         boards), local government stormwater utilities and operating and maintenance bud-
                         gets, and permit application fees. Sediment chemistry and benthic monitoring for the
                         bay is estimated at $150,000 per year. The best management practices "optimization"
                         model (see Step 1) will evaluate the cost-effectiveness of various practices to address
                         stormwater pollution.


                         EXPECTED BENEFITS:
                         Reduced toxic contamination of bay sediments and associated impacts to marine life
                         as a result of reduced pollutant loadings and other efforts to contain or restore heavily
                         impacted areas.






                                                                            Water & Sediment Quality                      r
              ACTION PLM                                                                                        UhAr I
                                                                                                            Charting the Course
              MONITORING ENVIRONMENTAL RESPONSE:                                                               for Tampa Bay
AL            Ongoing benthic and sediment chemistry monitoring by local governments, together
4W
dftL          with monitoring requirements for NPDES permits, will be used to assess the effective-
              ness of management actions to reduce toxic contaminants in the bay.
                                                                                                               .............. ......... .

                                                                                                                      .. ........

                                                                                                                       ...........
                                                                                                               ................. . ...
              REGULATORY NEEDS:
              None anticipated.


              RELATED ACTIONS:
              TX-3, TX-4, SW-5


0






































                                                                                                                       123






           DRAFT                       ACTION PLM                                                        Water & Sediment Quality
       Charting the Course.
          for Tampa Bay                Improve Business and Homeowner Opportunities
                                       for Hazardous Waste Disposal



                                       ACTION:
                                       Improve hazardous waste disposal by small businesses and residents by evaluating
                                       opportunities to better serve or educate these markets through existing programs, or
                                       develop new collection facilities in large metropolitan areas that are not served.


                                       BACKGROUND:
                                       Florida generates about 718,000 tons of regulated hazardous waste each year, including
                                       approximately 116,000 tons from the Tampa Bay region. Experts estimate that another
                                       10-20 percent is generated by unregulated sources such as conditionally exempt small
                                       quantities generators* (CE-SQGs) and residents'. CE-SQGs are businesses that gener-
                                       ate less than 100 kg (approx. 25 gallons) of hazardous waste per month (or I kg of
                                       acutely toxic hazardous waste), and whose waste disposal is not strictly regulated.

                                       Households and CE-SQGs pose a potentially significant source of pollution.
                                       Improper handling, storage and disposal of hazardous materials can lead to air, soil,
                                       surface water and groundwater contamination, which can directly or indirectly impact
                                       the bay and public health and safety. Of key concern are hazardous materials such as
                                       paints, pesticides, batteries and other chemicals discarded with trash, and materials
                                       released (accidentally or intentionally) on the ground, in storm drains or in sanitary
                                       sewer systems. Landfills receiving hazardous waste discarded with trash are not spe-
                                       cially equipped to deal with these materials, which may be burned or buried in pits.


                                       These materials are often discarded with trash because access to hazardous waste col-
                                       lection facilities in most areas is limited, either by hours of operation or by location.
                                       Hillsborough County, for example, operates two household hazardous waste facilities,
                                       in Apollo Beach and on Sheldon Road (Town & Country), which are open one week-
                                       end per month at alternating sites. But major metropolitan areas such as the City of
                                       Tampa and Brandon are not served by household hazardous waste collection facilities,
                                       although residents may use sites in unincorporated Hillsborough County.

                                       Options for small businesses also are limited, mainly because increasing service to
                                       these markets can be costly and complex. In Hillsborough County, CE-SQGs may
                                       transport their waste to the County's Orient Road facility on Wednesday mornings,
                                       under an arrangement with Universal Waste, which operates the facility. However,
                                       there are no real incentives for businesses to use the facility, which assesses a charge
                                       for the waste it receives. Pinellas and Manatee counties also provide household haz-
                                       ardous waste collection and attempt to assist small businesses in properly disposing of
                                       hazardous wastes.


                                       This action calls for improving community and CE-SQG opportunities for proper haz-
                                       ardous waste disposal by aggressively exploring options to better serve and educate
                                       these markets, including establishing permanent household hazardous waste collection
            114                        facilities in communities not currently served.











                                                                                                                         'PAZ nw,,'P@
                                                                                                                           IN
               ACTION PLM                                                     Water & Sediment Quality
                                                                                                                       us,
                                                                                                                Charting the Course
               STRATEGY:                                                                                          for Tampa Bay
               STEP 1     Organize a task force and meeting to evaluate methods to improve opportu-
                          nities for hazardous waste disposal for small businesses and residents, such

                          as:
                                                                                                                  ........... ....
                                                                                                                  .............. ..........
                                                                                                                  ...................... ..
OW
                               0  promote "milk run" services, in which haulers arrange to pick up
                                                                                                                 ............ .............
                                                                                                               .. . ........... __ , .
                                  waste from CE-SQGs on days they service municipal landfills;                 .................. ...... .

                               0  allow CE-SQGs to use household hazardous waste collection facili-
                                  ties;

                               0  provide mobile collection service at central sites several times a
                                  year, perhaps in conjunction with large events that draw high atten-
                                  dance;

                               0  expand existing service either by expanding weekend hours of oper-
0                                 ation, providing recycling services such as "swap shops," or siting
0                                 additional permanent facilities where demand has been justified;
0                              0  encourage broader utilization of existing facilities by increasing
                                  promotion, and develop partnerships with major retail stores to pro-
                                  mote municipal collection facilities;

                               0  develop partnerships with manufacturers to assist in the collection
                                  and recycling of materials such as paint.


                          Additionally, evaluate ways to reduce consumer demand/consumption of
                          hazardous waste materials by promoting "green" shopping through partner-
                          ships with major retailers.
                          Responsible parties: task force to include city and county hazardous
                          wastelsolid waste coordinators, FDEP, SQG program coordinators, user
                          groups, Tampa Bay NEP


               STEP 2     Encourage the City of Tampa and other unserved communities to evaluate
                          establishing permanent household hazardous waste collection facilities.
                          Responsible parties: City of Tampa, FDEP, Tampa Bay NEP

               STEP 3     Cross-market and aggressively promote pollution prevention programs such
                          as the Florida Department of Environmental Protection's P2 Program and
                          Hillsborough County's Operation BayWorks. The P2 program offers busi-
                          nesses free and confidential on-site assessments to assist them in reducing
                          their waste stream and costs. Operation BayWorks assists target business
                          sectors in developing pollution prevention plans by offering industry-spe-
                          cific best management practices and technical assistance.

                               0  Distribute promotional flyers on the P2 Program (and Operation
                                  BayWorks in Hillsborough County) in mailings to/meetings with
                                  SQGs.

                               0  Promote these programs through local chambers of commerce and
                                  the USF small business development center, through chamber publi-
                                  cations and presentations. Invite chambers to serve as partners in
                                  promoting the concept of Businesses for a Cleaner Future by
                                                                                                                          125






               DRAFT                                  ACTION PLM                                                                                Water & Sediment Quality                               0
          Charting the Course                                                                                                                                                                          00
              for Tampa Bay                                                     aggressively promoting these services and targeting 100 chamber
                                                                                members for participation/sign-up during a given time period.
                                                                     Responsible parties: local governments, in cooperation with chambers of
                         .......... ............
                    . .............. ........
                                                                     commerce, FDEP
                              mx.
                                                      STEP 4         Develop summary recommendations from steps 1-3 for review by the                                                                  40
                                                                     Community Advisory and Management Committees of the Tampa Bay                                                                     0
                                                                     National Estuary Program by May 1996.                                                                                             9
                                                                     Responsible parties: task force identified in Step I


                                                      SCHEDULE:
                                                      Steps 1-3 shall be initiated in 1996, with final recommendations (Step 4) provided by
                                                      May 1996.


                                                      COST:
                                                      All steps require staff and administrative time. Implementation costs will vary
                                                      according to recommendations. Costs to construct and operate a permanent household
                                                      hazardous waste collection facility vary depending on design and level of service.
                                                      The Pinellas County facility, built within a Class 1 landfill, cost between $300,000 to
                                                      $400,000 to construct. Potential funding sources include local governments and state
                                                      agency grants.


                                                      EXPECTED BENEFITS:
                                                      Expanded hazardous waste disposal will help to reduce toxic contaminants that enter
                                                      the bay in stormwater runoff, or through groundwater, wastewater, or atmospheric
                                                      deposition.


                                                      MONITORING ENVIRONMENTAL RESPONSE:
                                                      Municipal solid waste departments track both the amount of hazardous waste they
                                                      receive and statistics on usage. These can be evaluated as recommendations are
                                                      implemented to measure progress. Local governments conduct bay sediment sam-
                                                      pling to track the amount and distribution of toxic contaminants in the bay.


                                                      REGULATORY NEEDS:
                                                      None anticipated.


                                                      RELATED ACTIONS:

                                                      TX-3


                                                      1 1991 figures (most recent available) from FDEP, reported by the Tampa Bay Regional Planning Council in the proposed Strategic
                                                        Regional Policy Plan, 1995.                                                                                                                    0
                                                        The Florida State Legislature requires all counties to implement a Small Quantity Generator (SQG) program to notify and verify                 0
                                                        all businesses that are potential generators of hazardous waste. Counties can assess up to S50 per occupational license to fund this           0
                                                        program.                                                                                                                                       0


                 lie






               ACTIM PUW                                                       Water & Sediment Quality              DR A 11'
                                                                                                                -Charting the Course
               Reduce Toidc Contaminants                                                                            for Tampa Bay
               from Ports and Marinas



               ACTION-
               Reduce toxic contaminants from ports and marinas by aggressively promoting volun-
               tary waste stream assessments by the Florida Department of Enviromnental Protection
               (FDEP). Additionally, develop and implement an Action Plan that targets specific
               sources of toxicants after these sources have been identified by the Tampa Bay
               National Estuary Program in 1996.


               BACKGROUND.
               Studies by the National Oceanic & Atmospheric Administration (NOAA) reveal rela-
               tively high levels of toxicity in sediments at some sites in Tampa Bay as compared to
               other areas in southwest Florida and the nation. Sediment toxicity was highest overall
               in northern Hillsborough Bay near the Port of Tampa, especially in Ybor Channel and
               adjoining waterways. Other hot spots of contamination were reported in Bayboro
               Harbor, Boca Ciega Bay and portions of western Nfiddle Tampa Bay.

               Overall, sediments around ports, marinas and industrial harbors, and near major
               stormwater outfalls, exhibit relatively high levels of some toxic substances, as recent
               studies on Tampa Bay confirm. Shipyards and associated port and industrial facilities
               use and release toxic substances to the bay mainly in stormwater runoff and through
               direct or point discharges. Substances may include petroleum products, metals, metal
               treatment chemicals and anti-fouling paints, and contaminants associated with ship
               repair and scrap iron stockpiles.

RW
               Like ports, marinas located at the water's edge are often key point sources of contami-
               nation. Pollutants associated with marinas and boating include oil and oil-based prod-
               ucts discharged to the bay in bilge water and during engine maintenance, boat repair
               and fueling; paints, lacquers, thinners, strippers and solvents; and sewage, detergents
               and gray water, discharged directly from boats.

               This action calls for confidential waste stream assessments of the bay's ports and
               major marinas through the Florida Department of Environmental Protection's P2
               Program, along with the development of a more comprehensive Action Plan to
               address toxic contaminants once sources have been identified by the Tampa Bay
               National Estuary Program. P2 includes free assessments and recommendations on
               ways to curb and properly dispose of hazardous materials.

               This action also calls for evaluation of several nationally renowned best management
               and pollution prevention programs and publications from Puget Sound and
               Chesapeake Bay for marinas and boaters for possible implementation in Tampa Bay in
               1996.


               All states are required by recent amendments to the Coastal Zone Reauthorization Act
               (CZRA) of 1990 to adopt programs to control various sources of coastal non-point
                                                                                                                           127




                                                                                                                                              0
                                                                                                                                              0
                                                                                                                                              0
           DRAFT                       ACTION PLAN                                                     Water & Sediment Quality               0
        Charting the Course                                                                                                                   0
          for Tampa Bay                pollution. Section 6217 of CZRA includes recommendations on best management                            0
                                       practices for marinas and boaters, which will be evaluated as part of the effort to                    0
                                       design an effective pollution prevention campaign for Tampa Bay.                                       0
                                                                                                                                              0
                                                                                                                                              0
                                       STRATEGY:
          ...........
          ... .. ..       ....
                                                                                                                                              0
                                       STEP 1     Work with local port authorities to promote free and confidential waste                     0
                                                  stream assessments conducted by the P2 Program to port tenants.                             0
                                                  Participants would then receive a free on-site assessment followed by a                     0
                                                  report identifying pollution prevention and cost-saving strategies.                         0
                                                  Responsible parties: FDEP P2 Program, in cooperation with the port
                                                  .authorities and the Tampa Bay National Estuary Program

                                       STEP 2     Following completion of a 1995 NEP study to identify the sources and sta-
                                                  tus of toxic contamination in priority basins, develop an Action Plan that
                                                  presents strategies to reduce or prevent pollution from these sources.                      0
                                                  Action Plan shall be completed for review by the Tampa Bay NEP                              0
                                                  Management Committee by May 1996.                                                           0
                                                  Responsible parties: Tampa Bay National Estuary Program, target
                                                  groups, local governments

                                       STEP 3     Encourage marinas to request a free and confidential P2 environmental
                                                  audit to identify pollution sources and appropriate best management prac-                   0
                                                  tices. Target the bay's 10 largest marinas for participation and audits by                  0
                                                  December 1996.


                                                  Identify major marinas and yacht clubs in the Tampa Bay area and promote
                                                  the program through direct mail, telephone follow-up and presentations to
                                                  marina associations. Seek endorsements and co-promotion through these
                                                  membership associations and from the Center for Marine Conservation and
                                                  the Clean Water Trust program of BOAT US.
                                                  Responsible parties: FDEP P2 Program, with assistance ftom local
                                                  Florida Sea Grant Extension Program, Tampa Bay Watch

                                                                                                                                              AM
                                       STEP 4     Review model programs from other regions that promote environmentally
                                                  responsible marina and boat maintenance practices as models for imple-
                                                  mentation in the Tampa Bay region, and submit recommendations to the
                                                  Tampa Bay Management Conference by May 1996. Pursue public-private
                                                  partnerships to maximize promotion and cost-share opportunities.
                                                  Responsible parties: Tampa Bay National Estuary Program, Centerfor
                                                  Marine Conservation, Tampa Bay Watch, user groups

                                       STEP 5     Promote the P2 Program to expand business and local government aware-
                                                  ness and participation in the program.

                                                  Evaluate P2's existing marketing plan and business utilization, and make
                                                  recommendations on how to more aggressively target and expand business
                                                  participation. Submit recommendations to FDEP by February 1996.
                                                  Responsible parties: Tampa Bay NER, in cooperation with FDEP and
                                                  local chambers of commerce.
             Its






               ACTION PLM                                                    Water & Sediment Quality            DRAIF
                                                                                                             Charting the Course
               SCHEDULE-.                                                                                       for Tampa Bay
               Steps 1 through 5 can be initiated in 1996. Dates for completion of actions or recom-
               mendations are noted in steps.


               COST:
                                                                                                                      ............
                                                                                                                ...................... .
               P2 assessments are provided free to businesses that request them, and frequently result
               in cost savings as a result of reducing toxic materials use and properly disposing on
               substances. Costs to implement toxic contaminant reduction strategies developed
               through Step 2 will depend on actions recommended. Cost-effective educational pro-
               grams can be developed by tailoring existing model programs from other regions, and
               by aggressively pursuing funding partnerships. Financing may be pursued from local
               governments, educational grants or the West Coast Inland Navigational District.


               EXPECTED BENEFITS-
               Waste stream assessments and implementation of best management practices at ports
               and marinas will reduce pollution to the bay.


               MONITORING ENVIRONMIENTAL RESPONSE.
               Sediment quality monitoring by local governments, and waste stream reports that
               identify reductions, can assess progress in reducing toxic contamination.


               REGULATORY NEEDS.
               None anticipated.


               RELATED ACTIONS.

               TX-1, TX-2

























                                                                                                                       120






          DRAIF                       ACTION PLM                                                      Water & Sediment Quality
       Charting the Course
         for Tampa Bay                Promote Integrated Pest Management on Farms


           ..........
                  ...........................
                .................... . ....
               ................ ...  ...........
                   .................. .

          . . . .... .....
              TX t.
                                      ACTION:
                    . .............
                                      Encourage the use of Integrated Pest Management (IPM) techniques on farms to
                                      reduce pesticide residues in the bay from agricultural runoff.                                         0

                                      BACKGROUND:
                                      Agriculture is an important component of the bay region's economy, with an estimated
                                      value of $1.3 billion a year. About one-third of all the land in the bay watershed is
                                      used for some form of agriculture. Pasture and range lands comprise the majority of
                                      that acreage, followed by citrus groves and row crops.

                                      Because Florida's wet, humid climate promotes the growth of weeds, molds and
                                      insects that can damage crops, use of pesticides, herbicides and fungicides is greater
                                      in Florida than in any other state. These chemicals tend to adhere to fine soil particles
                                      that may be carried in runoff to streams, lakes and bays, where they can be assimilat-
                                      ed by aquatic animals through the food chain, impairing reproduction or growth.
                                      A recent comprehensive study conducted by the National Oceanic and Atmospheric                         0
                                      Administration (NOAA) assessed the levels and effects of pesticides in bay sediments.                  0
                                      While concentrations of most substances were below levels expected to cause biologi-                   41
                                      cal harm, the Tampa Bay NEP has identified five pesticides of special concern to
                                      Tampa Bay: chlordane, dieldrin, DDT, endosulfan and mirex. Of these, only endosul-
                                      fan is still actively used by farmers in the Tampa Bay watershed, to control whiteflies
                                      and other insects on tomatoes. The remainder are banned or severely restricted.


                                      IPM, a program utilizing biological and chemical weapons to efficiently control pests,
                                      is a proven method of reducing use of toxic chemicals and minimizing their release to
                                      the environment. IPM techniques include examination of crops to identify pest infes-
                                      tations; use of least toxic control materials such as soaps or oils; use of pheromones to
                                      disrupt insect reproductive cycles; and release of pest predators such as ladybugs.                    0
                                      Many farmers employ "scouts," full-time or contract employees trained to identify                      0
                                      and assess the severity of pest problems and recommend solutions based on IPM prin-                    9
                                      ciples.                                                                                                0

                                      Because no requirements currently exist for IPM use, it is not known how many
                                      Florida farmers employ IPM practices, although local extension agents report that
                                      most farmers use at least some aspects in their pest management programs. Surveys
                                      now being conducted by the University of Florida's Institute of Food and Agricultural
                                      Sciences (EFAS) will clarify the extent of IPM usage.

                                      Local agricultural extension agents provide educational materials and assistance to
                                      farmers who wish to learn about IPM. They incorporate IPM concepts in training sem-
                                      inars that farm operators attend to earn Continuing Education Credits, which can be
                                      applied toward the renewal of their pesticide applicator's license. Additionally, IFAS
                                      scientists have prepared brochures describing pesticides least likely to pollute ground
            Ise







                ACTION PLAN                                                      Water & Sediment Quality              unnr i
                                                                                                                    Charting the Course
                or surface water, based on soil types and leaching potential. These "grower's guides"                  for Tampa Bay
                offer a range of pesticide options for 54 different crops grown in Florida.

                However, many farmers are not aware or do not take advantage of these resources.
                                                                                                                          ....... ......
                                                                                                                        I-- ...........
                                                                                                                      . ....................... ..
                Compounding this problem is the rise in growth of "corporate fanning," in which                         @:..
                                                                                                                            :Aw"
                packing houses own or lease the land and contract with growers to produce the crops.
                                                                                                                   ......... ..............
                                                                                                                    ..................... __
                                                                                                                   ............... ........ ...
0               One effect of this has been to shift some of the decision-making from the growers to
0               the packing houses. Hence, packing house managers, as well as growers, may need to
0               be targeted by IPM educational programs.

                Because most farm operators obtain pesticide application licenses from the state
                Department of Agriculture and Consumer Services, tying IPM education to the licens-
                es would ensure that farmers are exposed to IPM concepts. The licenses must be
                renewed every five years, and a fanner can meet the renewal requirements either by
                passing an exam or taking courses equal to eight Continuing Education Units (CEUs).
                Requiring that one section of the exam pertain specifically to IEPM practices, or that at
                least one CEU credit be devoted to IPM training, would offer farmers an incentive to
                learn more about IPM concepts.

                Endosulfan has been targeted for special attention by the Tampa Bay NEP because it
                alone of the five pesticides of special concern in Tampa Bay is still in use and because
                little is known about the quantities applied. Sold under the brand names of Thiodan
0               and Phaser, it was until recently practically the only effective treatment for whiteflies,
                although its use probably has declined in the last two years because of the availability
                of newer compounds. However, it remains a part of many farmers' pesticide rotation
0               schedules. In fact, nearly one-quarter of all the water quality samples collected in
                1991 through 1994 from freshwater creeks and streams draining agricultural lands in
                Cockroach Bay contained at least one form of endosulfan, according to I-Ellsborough
0               County's Environmental Protection Commission. As an unrestricted-use pesticide sold
0               over-the-counter, endosulfan also may be purchased by homeowners.
0
&               A working group composed of experts from the agricultural and scientific sectors
0               could help gather data on who is buying endosulfan, what it is being used for, and
0               how much is being applied. The group also could recommend ways to reduce or
0               restrict its usage.


0               STRATEGY:
0               STEP 1     Revise the state pesticide applicator licensing renewal criteria to incorpo-
0                          rate in the renewal exam a specific section on IPM. For applicants who
0                          choose to earn CEU credits instead of taking the exam, at least one of the
0                          credits should encompass IPM training.
0                          Responsible parties: Florida Department of Agriculture and Consumer
0                          Services, state pesticide coordinator
0
0               STEP 2     Seek increased federal support from the federal government to implement
                           existing IPM educational and application programs.
                           Responsible parWes: Tampa Bay NEP, Agency on Bay Management


                STEP 3     Convene a task force to explore:
                                                                                                                               131






        DRAFT                ACTION PLAN                                       Water & Sediment Quality
      Charting the Course
       for Tampa Bay                     0  the extent of endosulfan use in the Tampa Bay watershed

                                         0  associated environmental effects, by analyzing existing information
                                         0  specific recommendations to reduce or restrict the use of endosul-0
                                            fan, including less toxic alternatives

                   .. . .... ...


                                      The task force should include local growers, extension agents, university
                                      researchers, manufacturers representatives, and pest scouting services, as
                                      well as EPA, FDEP, SV;FWMD and the Florida Department of Agriculture
                                      and Consumer Services.
                                      Responsible parties: Tampa Bay NEP, local extension services, area pest
                                      scouting services and representatives of chemical manufacturers

                             STEP 4   Implement the recommendations of the endosulfan task force (Step 3),
                                      preferably through voluntary cooperation by manufacturers and area farmers.
                                      Responsible parties: area farmers, regulatory agencies as applicable


                             SCHEDULE:
                             Step 1 could be initiated in 1996 or at the next review of the pesticide license renewal
                             criteria, with the development of new guidelines focusing on knowledge of 1[PM.
                             Steps 2 and 3 can be initiated in 1996, with a report due from the endosulfan task
                             force in fall 1997. Recommendations could be implemented in 1998.


                             COST:
                             The costs of revising pesticide license renewal criteria need to be determined. Steps 2,
                             3 and 4 can be accomplished with existing resources.


                             EXPECTED BENEFITS:
                             Reduced use of pesticides, particularly endosulfan, by area farmers will reduce the
                             risks to birds, fish and other aquatic life in Tampa Bay.


                             MONITORING ENVIRONMENTAL RESPONSE:
                             Periodic measurements of pesticide concentrations in sediments will be conducted by
                             local governments as part of the benthic monitoring program for Tampa Bay.


                             REGULATORY NEEDS:
                             Revisions to the pesticide applicator licensing renewal criteria developed by the
                             Florida Department of Agriculture and Consumer Services.

                                                                                                            0
                             RELATED ACTIONS:

                             SW-9, SW-10







                 ACTION PLAN                                                      Water & Sediment Quality              111 10411
                                                                                                                    Charting the Course
                 Establish MCILN m*um Concentration Limits in                                                          for Tampa Bay
                 Discharge Pernuits for To3dcs of Concern to Tampa
                 Bay


                                                                                                                       ............. ...



                 ACTION.
                 Establish maximum concentration or loading limits in point-source discharge permits
                 for toxics of concern to Tampa Bay.


                 BACKGROUND-
                 A toxics characterization study conducted for the Tampa Bay NEP identified domestic
                 and industrial point sources as significant contributors to loadings of key toxic sub-
                 stances of concern to Tampa Bay. For example, industrial point sources contribute
                 more than 30 percent of the bay's total annual loadings of the heavy metals cadmium
                 and copper, and about 27 percent of the bay's chromium loadings.

                 The Tampa Bay NEP is identifying point- and non-point sources of contamination in
                 three basins draining to the bay's most heavily contaminated sectors. This investiga-
                 tion will help pinpoint where concentration or loading limits may be necessary. A
                 companion study is underway to classify areas of the bay where sediments are at or
                 above threshold levels for biological impact to marine life, areas that are restorable,
                 and relatively toxic-free areas that should be protected from contamination.
 0
 0               This action is to establish maximum concentrations or loading limits in permits for
 0               point source facilities discharging toxics of concern to heavily impacted areas of the
 0               bay-where pollutants pose a threat to the bay's living resources-and to enforce
                 compliance with these standards. The toxics of concern to Tampa Bay are the metals
                 cadmium, chromium, lead, mercury, zinc and copper, PAHs, PCBs and several pesti-
 0               cides including DDT.
 0               Existing permit limits for point-source discharges cover some contaminants of con-
                 cern. This action calls for revisions to existing discharge limits where warranted.
                 Some larger facilities are required to periodically test for many potentially toxic
                 chemicals, but this requirement does not extend to smaller industrial facilities whose
 0               collective impact may be substantial. Compliance with these new limits may entail
 0               additional wastewater treatment or the use of alternative materials in manufacturing
 0               and processing.
 0
 0               STRATEGY-
 0               STEP 1     Identify specific point sources contributing toxics of concern to the bay's
 0                          hot spots of sediment contamination.
 0
 0                          (Tampa Bay NEP is now investigating the sources and status of contami-
 0                          nants in basins draining to the bay's most heavily contaminated sectors.
 0                          This step calls for further investigations to identify sources of toxics of
 0                                                                                                                             133






        DRAFT                 ACTION PLM                                        Water & Sediment Quality
     Charting the Course
       for Tampa Bay                   concern in the bay's remaining impacted basins.)
                                       Responsible parties: FDEP

                              STEP 2   For point sources identified in Step 1, establish maximum concentrations or
                                       loading limits needed to reduce or eliminate the continued contribution of
                                       these contaminants of concern.
                                       Responsible parties: FDEP

                              STEP 3   Revise discharge permits to include these limits, and the necessary report-
                                       ing and monitoring requirements to ensure compliance.
                                       Responsible parties: FDER, Environmental Regulation Commission


                              SCHEDULE:
                              All steps can be initiated in 1996. Efforts to identify applicable point sources should
                              be completed by March 1996 for the first three drainage basins, and limits established
                              by March 1997. Monitoring and reporting should commence within six months of the
                              adoption of these limits.


                              cost:
                              Staff time only is anticipated in the establishment of loading limits for application
                              point-source facilities and in the revisions to permit criteria. Costs to identify point
                              sources contributing contaminants of concern to hot spots around the bay are estimat-
                              ed at $150,000. Point-source dischargers will be responsible for costs associated with
                              compliance with discharge and monitoring criteria.


                              EXPECTED BENEFITS:
                              Loading limits on the toxics of concern discharged from point sources to already
                              heavily impacted areas of the bay will reduce the pollution and the potential for bio-
                              logical impact to marine life in the bay, and improve the reporting standards for toxics
                              of concern that are not now effectively traced.


                              MONITORING ENVIRONMENTAL RESPONSE:
                              Monthly monitoring reports of effluent quality by point-source dischargers will docu-
                              ment the success of this action. Ambient water quality is monitored by local govern-
                              ments.



                              REGULATORY NEEDS:
                              In cases where the State standard may not be adequate, revisions to FDEP rules may
                              be required to lower loading limits in NPDES permits.


                              RELATED ACTIONS:

                              -rX- 1, WW-2

                                                                                                              0
                                                                                                              0
                                                                                                              0



                                                                                                              0








               ACTIM PLAN                                                       Water & Sediment Quality

                                                                                                                  Charting the Course
                                                                                                                    for Tampa Bay
               PuBLic HEALTH

               Despite recent strides toward bay recovery, many residents still regard the bay as too
               polluted to swim in, and its fish and shellfish too contaminated to eat. This lingering,
               and largely incorrect, perception stems from the 1960s and 1970s, when the piping of
               raw or partially treated sewage into the bay resulted in algal blooms that decomposed,
               producing noxious odors, and bacterial contamination made some segments unsafe
               even for swimming.

               Today, state laws require sewage treatment of the highest level, and the bay is begin-
               ning to regain its status as a premier recreational resource. However, substantial
               emergency discharges of raw or partially treated sewage still occur when heavy rains
               cause stormwater to seep into some municipal sewer systems, and bacterial contami-
               nation still results in the occasional closure of bay beaches to swimming and shellfish
               beds to recreational harvesting. Correcting these problems would be a significant step
               toward maximizing recreational enjoyment of the bay and allaying public fears about
               its safety.


               Both swimming and shellfish harvesting are restricted when heavy rains wash storm-
0              water, with its potentially high bacteria content from animal wastes and soils, into
               areas where those activities are permitted and monitored. However, decisions about
               when to close shellfish beds or public beaches are usually based on the threat of cont-
               amination, and not on actual sampling that detects high levels of coliform bacteria.

               In the case of public beaches, local health agencies around the bay use different crite-
               ria to determine when a beach should be closed. No common water quality standards
               exist for the bay's beaches-a shortfall that this action plan addresses.

               Shellfish beds, on the other hand, are closely regulated by the state. Limitations on
               funding and manpower, however, as well as the lack of a substantial harvestable
               resource, often mean that Tampa Bay's remaining approved or conditionally approved
               shellfish harvesting beds are not reevaluated as thoroughly or as frequently as areas
               with more significant shellfish resources. Many scientists believe water quality in the
               bay may have improved enough in recent years to explore the potential of reclassify-
               ing and upgrading some areas-another idea addressed in this action plan.

               Knowing the bay's beaches and shellfish beds are monitored routinely and compre-
               hensively, and that decisions about closures or restrictions are based upon hard scien-
               tific evidence of contamination-not merely the potential of pollution-is critical to
               restoring positive public attitudes about the bay and fostering appreciation of its wide-
               ranging recreational opportunities.

               Additionally, public health concerns can be reduced by corrective actions aimed at
               eliminating accidental or intentional discharges of sewage to the bay during severe
               storm events. Sewage overflows are of particular concern in St. Petersburg and
               Pinellas County, where low land elevations and rapid population growth have con-
               tributed to strain existing municipal sewer and stormwater systems. In August 1995,
               St. Petersburg was forced to shunt 15.6 million gallons of raw sewage into canals
                                                                                                                            135






               DRAFT                                 ACTION PLM                                                                                 Water & Sediment Quality
          Charting the Course
             for Tampa Bay                           leading to Tampa Bay when torrential rains caused massive sewer backups in portions
                                                     of the city. Pinellas County has experienced similar problems at its McKay Creek and
                                                     South Cross Bayou facilities, and Hillsborough County also has occasionally been
                                                     forced to discharge partially treated sewage to bay tributaries in times of excessive
               ... ........... ....  ...........
            ----   ................. ......... .......
             ...... .......
                                                     rain
                                                           fall.
              . .................

                               ......  .....
                                ........ ...

                                                     It will be important in future years for communities to correct these problems, through
                                                     aggressive investigations and upgrading of their systems, to ensure that the substantial
                                                     water quality gains achieved by improved treatment facilities are not offset by inade-
                                                     quate collection and distribution networks.

                                                     Actions Summary for Public Health
                                                     PH- 1       Establish water quality standards for saltwater beaches.
                                                     PH-2        Assess opportunities to reclassify shellfish beds closed to harvesting.
                                                     PH-3        Install additional sewage pump-out facilities for recreational boaters and live-
                                                                 aboard vessels.                                                                                                                      0

























                 Ise                                                                                                                                                                                  0






                ACTION PLM                                                    Water & Sediment Quality            DRAFT
                                                                                                               Charting the Course
                Establish Water Quality Standards for Saltwater                                                  for Tampa Bay
                Beaches



                                                                                                              .. . ......................
                                                                                                              . ................ ............... ..
                ACTION-
                Develop local water quality standards for beaches and encourage all counties and
                cities in the Tampa Bay region to use those standards for monitoring public beaches.


                BACKGROUNDg
                Beach closures resulting from fecal coliform in the water have been a problem in
                some parts of the bay where swimming is permitted, such as Spa Beach in St.
                Petersburg and Picnic Island Park in Tampa. The closures are usually a result of poor
                water quality, as evidenced by the presence of fecal coliform, usually found in small
                areas in high concentrations after heavy rainstorms.

                Sampling of area beaches is typically conducted monthly by local public health units.
                However, there are no uniform standards for restricting swimming and other water-
                contact recreation, such as windsurfing, in saline waters. Consequently, bay area com-
                munities have applied different standards to determine whether beaches should be
                temporarily closed, possibly analyzing different parameters and using different sam-
                pling techniques. Consistent standards would improve public health protection and
                maximize recreational use of the bay while helping to identify sources of water quali-
                ty problems at bay beaches.


                STRATEGY-
                STEP 1     Review existing standards, parameters and sampling techniques used by
                           local governments and public health units for testing of beach waters. An
                           assessment of these standards has been completed as part of a technical
                           study for the Tampa Bay NEP.
                           Responsible Parties: local government health units and environmental
                           management departments


                STEP2      Establish uniform standards, sampling techniques and monitoring schedules
                           for waters near public beaches. The standards should be parameters com-
                           monly monitored for public health concerns and should be formally adopt-
                           ed by each government in the form of a local regulation.
                           Responsible Parties: Florida Department of Environmental Protection
                           (FDEP)--to organize and direct effort, local government health units
                           and environmental management departments


                SCHEDULE-
                Step I can begin in 1996, with standards available for adoption in 1997.
0
0               COSM
                Only staff time, document preparation and administrative costs are anticipated.
                                                                                                                         137






         DRAFT                    ACTION PLM                                                Water & Sediment Quality
      Charting the Course
        for Tampa Bay             EXPECTED BENEFITS:
                                  Increased public health protection and increased knowledge about the status and prob-
                                  lems of bay waters.

              .............
              ......... ..........

               ....... .....      MONITORING ENVIRONMENTAL RESPONSE:
               .... ..........
                . ...........
                                  Using a uniform set of standards and sampling techniques to test beach waters will
                                  increase the effectiveness of bay monitoring programs. Sampling can be done more
                                  frequently and results can be compared to other portions of the bay, so trends in water
                                  quality can be determined and problem areas more readily identified.


                                  REGULATORY NEEDS:
                                  Amendments to local or state regulations will be needed to adopt a uniform standard
                                  for marine water quality monitoring.






                ACTION PLM                                                       Water & Sediment Quality              DRAFT
                                                                                                                    Charting the Course
                Assess Opportunities to Reclassify Shelffish Beds                                                     for Tampa Bay
                Closed to Harvesting
                                                                                                                            :W.2
                                                                                                                        .................
                ACTION-.
                Reevaluate shellfish harvesting areas in the bay to identify pollution sources and
                potential for upgrading to less restrictive classifications.


                BACKGROUND-.
                Development and overharvesting have taken a severe toll on Tampa Bay's once-thriv-
                ing oyster, clam and scallop fisheries. Currently, no commercial harvest of shellfish
                takes place in Tampa Bay, and recreational harvests of clams-the only bay shellfish
                approved for consumption-are restricted by poor water quality. The declines in
                Tampa Bay mirror those throughout the state, where approved shellfish harvesting
                areas are shrinking by an average of 1 percent a year.'

                Shellfish are extremely vulnerable to environmental changes and tend to concentrate
                bacteria and other pollutants in their systems, where they can be transmitted to
                humans. Consumption of raw contaminated shellfish is the primary cause of shellfish-
                related illnesses in humans. For this reason, the state closely regulates shellfish har-
                vesting waters, using fecal coliform (a type of bacteria contained in the intestinal
                tracts of warm-blooded animals) as an indication of pollution. The Florida
                Department of Envirom-nental Protection's (FDEP'S) Shellfish Assessment Section is
                responsible for monitoring and classifying shellfish beds.

                Fecal coliforin enters a body of water in rainfall runoff, and shellfish harvesting areas
                are graded according to their potential for contamination after a heavy rainfall. Land
                use surrounding a harvesting area is the major factor in determining the presence of
                coliform; thus, an area bordered by dairy farms, sewage treatment plants or septic
                tanks may not be considered appropriate for shellfishing. Harvesting areas are moni-
                tored by the state at least once a month to gauge water quality, and areas can be
                opened or closed as needed. Comprehensive surveys are conducted every five to six
                years.


                Three classified shellfish areas remain in Tampa Bay: two are approved for condition-
                al harvests, and one is closed. Conditionally approved areas meet water quality stan-
                dards that allow harvesting some of the time. These areas are located in Boca Ciega
                Bay near Mullet Key and south of Port Manatee in Manatee County. The third area,
                Cockroach Bay, is closed because of persistent coliforin contamination.2

                With improving water quality throughout much of the bay, better control of stormwa-
                ter runoff and the potential for restocking the bay scallop, some scientists believe new
                recreational shellfish harvesting areas could be established and existing areas upgrad-
                ed to less restrictive classifications in the next decade. However, limited state
                resources likely mean that any effort to expand or reclassify harvesting areas will have
                to come from local governments. The state Department of Environmental Protection
                can certify local laboratories and personnel to administer such a program.                                     138






           DRAFT                       ACTION PLAN                                                      Water & Sediment Quality
       Charting the Course
          for Tampa Bay                STRATEGY:
                                       STEPI      Monitor restricted or closed shellfish harvesting areas to identify land-
                                                  based sources of potential or actual water quality problems.
                                                  Responsible parties: local government environmental management
                                                  departments, with assistance from the FDEPs Shellfish Assessment
                   .............                                                                                                               9
                                                  Division
                                       STEP2      Identify a clear process to reclassify areas as harvestable and establish local              0
                                                  shellfish monitoring programs---certified by the state-to survey and test
                                                  selected areas with the potential for reclassification.
                                                  Responsible parties: local government environmental management
                                                  departments, with assistance from the FDEPs Shelifish Assessment
                                                  Division


                                       STEP 3     If economically feasible, pursue reclassification of areas with sufficient
                                                  water quality to allow recreational harvests of shellfish.                                   0
                                                  Responsible parties: local governments, with supportfrom the Agency on                       0
                                                  Bay Management                                                                               0
                                                                                                                                               0
                                       SCHEDULE:
                                       All steps can be initiated in 1996.


                                       COST:
                                       Laboratory, personnel, equipment and administrative costs for a local shellfish moni-                   0
                                       toring program are estimated at $ 100,000 yearly for each participating government.                     0
                                       This figure could be reduced by training existing personnel to perform some monitor-                    0
                                       ing and testing duties.


                                       EXPECTED BENEFITS:
                                       Increased water quality protection for classified shellfish harvesting areas and
                                       increased public use of the bay for recreation.
                                                                                                                                               0
                                       MONITORING ENVIRONMENTAL RESPONSE:
                                       Identifying sources of potential contamination of shellfish beds helps pinpoint reme-                   0
                                       dial actions to improve those areas. Additionally, a local shellfish monitoring program                 0
                                       could conduct more frequent surveys of shellfish harvesting areas and more closely                      0
                                       track improvements in water quality.                                                                    0
                                                                                                                                               40
                                       REGULATORY NEEDS:                                                                                       0
                                       None anticipated.                                                                                       0
                                                                                                                                               0
                                                                                                                                               0
                                       1. Personal communication with David Heil, FDEP Shellfish Assessment Section

                                       2. Ibid.


                                                                                                                                               0

            146

                                                                                                                                               0
                                                                                                                                               0






                ACTIM PUW                                                        Water & Sediment Quality              11HAr' I
                                                                                                                    Charting the Course
                Install Additional Sewage Pump-out Facilities for                                                     for Tampa Bay
                Recreational Boaters and Live-aboard Vessels




                ACTION:
                Assist local governments in obtaining assistance through the Florida Clean Vessel Act
                grant program to construct sewage pump-out facilities at publicly owned marinas bor-
                dering Tampa Bay.


                BACKGROUND.
                In the past, efforts to reduce sewage discharges in Tampa Bay justifiably have focused
                on improvements to land-based wastewater treatment plants serving one or more
                municipalities. But with these facilities now operating under strict pollution preven-
                tion rules, attention should be shifted to the smaller, yet continual discharges of the
                thousands of boaters who routinely ply the bay.

                While many private marinas offer sewage pump-out facilities, currently only two pub-
                lic marinas in the region have pump-out stations. Only one of the two, in downtown
                St. Petersburg, is located directly on the bay. Providing more pump-out facilities
                would help reduce fecal coliform as well as nitrogen loadings and suspended solids
                associated with sewage while encouraging boaters to become more responsible stew-
                ards of the bay they enjoy.

                Pathogens associated with human wastes can severely impact a body of water, leading
                to restrictions on bathing, swimming and shellfish harvesting. Although the exact
                effect of sewage discharges from boats on Tampa Bay is not known, studies in other
                waterways indicate the untreated human wastes of one boater can be equal to the
                treated wastes of thousands of people. More than 100,000 boats are registered in the
                three-county area surrounding Tampa Bay, and many more transient boaters pass
                through. In addition, an unknown number of live-aboards reside at bay area marinas.

                Guidelines proposed by the U.S. Clean Vessel Act call for one pump-out station for
                every 300-600 boats. Additionally, a new state law, effective October 1994, prohibits
                boaters from dumping raw sewage into Florida waters and requires many boats 26 feet
                or longer to have a working toilet with waste storage on board when in state waters.
                To aid compliance, the state is offering grants for the next five years to assist marinas
                in adding or improving pump-out facilities. The grants, administered by the Florida
                Marine Patrol, will cover 75 percent of the project's cost, and can be used for public
                education and for planning, permitting, purchasing and installation of pump-out equip-
0               ment and portable toilet dump stations. Marinas awarded funds may charge boaters up
                to $5 for a pump-out.


                STRATEGY-
                STEP 1     Identify public marinas on the bay used by a large volume of boaters, par-
                           ticularly within the City of Tampa. The U.S. Coast Guard or community


                                                                                                                              141




                                                                                                                                            0

          DRAFT                      ACTION PLAN                                                     Water & Sediment Quality               0
       Charting the Course                                                                                                                  0
         for Tampa Bay                           boating groups may be able to assist in identifying the most frequently used               0
                                                 marinas.                                                                                   0
                                                 Responsible parWes: City of Tampa and other municipalities, Florida                        0
                                                                                                                                            0
                                                 Marine Patrol, Agency on Bay Management (ABM)
                                                                                                                                            0
                                     STEP 2      Based on results of Step 1, encourage the responsible municipality to apply                0
                                                 for a state grant to construct a sewage pump-out station at the marina.                    0
                                                 Responsible parties: local government environmental management                             0
                                                 departments, ABM, Tampa Bay National Estuary Program                                       0
                                                                                                                                            0
                                     STEP 3      Construct a sewage pump-out facility at marinas awarded grants and pro-                    0
                                                 vide educational materials to boaters on-site explaining the importance of                 0
                                                 the facility and how to use it. Disseminate educational materials to boating               0
                                                 clubs in the region making them aware of the facility.                                     0
                                                 Responsible parties: local governments                                                     0
                                     SCHEDULE:                                                                                              0
                                                                                                                                            0
                                     Steps 1 and 2 can be initiated in 1996. Step 3's schedule is dependent upon awarding                   0
                                     of grant, but construction could begin in 1997.
                                                                                                                                            0
                                     COST:
                                     Installation and construction costs vary depending on type of equipment selected.
                                     Costs for a stationary or portable pump-out unit range from approximately $2,000-                      0
                                     $6,000. Costs for a portable toilet waste station vary from $1,100-$1,800. With a state                0
                                     grant paying 75 percent of the construction costs, the project's costs to a municipality               0
                                     would be substantially reduced. In addition, construction and maintenance costs could                  0
                                     be recouped by charging boaters a minimal user fee.                                                    0
                                                                                                                                            0
                                     EXPECTED BENEFITS:                                                                                     0
                                     Providing sewage pump-out services for boaters will help reduce pathogens as well as                   0
                                     nitrogen and solids in Tampa Bay.                                                                      0
                                                                                                                                            0
                                     MONITORING ENVIRONMENTAL RESPONSE:                                                                     0
                                                                                                                                            0
                                     Use of the pump-out stations can be tracked to determine effectiveness. Boaters at the                 0
                                     participating facility also can be surveyed to ascertain if they are using the pump-out                0
                                     service and how it can be improved.                                                                    0
                                                                                                                                            0
                                     REGULATORY NEEDS:                                                                                      0
                                     None anticipated, with the exception of permits required for installation.                             0
                                                                                                                                            0
                                                                                                                                            0
                                                                                                                                            0
                                                                                                                                            0
                                                                                                                                            0
                                                                                                                                            0
           142                                                                                                                              0
                                                                                                                                            0
                                                                                                                                            0
                                                                                                                                            0



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                ACTION PLM                                                                    Bay Habitats             DRAFT
                                                                                                                    Charting the Course
                                               0                                                                      for Tampa Bay
                Bay Habitats

                                                                                                                        . ........
                                                                                                                               ..........
                                                                                                                       ......... ..............


9                      ampa Bay's rich mosaic of underwater and coastal habitats support hundreds of
0                      species of fish and wildlife, from the familiar brown pelican to the bottom-hug-
0               Tging sea squirt. Since the 1950s, almost half of the bay's original saltwater
0               wetlands have been lost to dredging and filling for shoreline and port development.
0               Bay seagrasses declined by nearly 40 percent in this same period, although they are
0               waging a comeback in some areas thanks to recent improvements in water quality.
0
                Neighboring upland habitats of pine forest, oak hammock and shrub also have been
                heavily impacted by development. Almost all coastal pine forests have been eliminat-
                ed from the shores of Tampa Bay. These buffer zones and associated freshwater wet-
                lands provide critical habitat for numerous animals, including the wood stork, white
                ibis, bald eagle and fox squirrel.

                Highly productive up-river, low-salinity habitats that provide life-support to many of
                the bay's juvenile fisheries also have sustained damage from invasive exotic plants
                and diversions of freshwater for drinking and irrigation.

                The restoration and protection of these diverse habitats is crucial to the bay's health.
                Studies now being finalized suggest that as many as 12,000 acres of seagrass can be
                recovered along the bay's shallow shelf by maintaining existing water quality condi-
                tions.


0               Strategies to repair and preserve the bay's coastal habitats will be directed by a habitat
0               restoration and land acquisition master plan, produced by the Tampa Bay National
0               Estuary Program in 1995 in cooperation with area agencies and governments. The
                plan includes a preliminary list of priority projects, and seeks to restore a productive
                balance and diversity of coastal and associated upland habitats. Targets include the
                restoration of at least 100 acres of low-salinity tidal stream habitat every five years-
                or as much as 1,800 acres over time-while maintaining or enhancing mangroves and
                salt marshes at existing levels.

                Land acquisition and habitat protection, through conservation easements and other
                special arrangements with property owners, also are vitally important components of
                the habitat master plan for Tampa Bay. A key priority will be the purchase of nearly
                1,500 acres of bayfront property at Terra Ceia Isles in Manatee County. Acquisition
                of this important tract would bring more than 6 percent of the bay's total mangrove
                acreage, and several hundred acres of vital low-salinity, freshwater and upland habitat,
0               into public ownership, and substantially boost restoration opportunities.
0               Finger-fill residential canals constructed in the 1950s and 1960s require special focus
0               because of degraded water quality, habitat loss and siltation. A key effort will be to
0                                                                                                                             145




                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  40
           DRAFT                       ACTION PLAN                                                                     Bay Habitats               0
       Charting the Course                                                                                                                        0
          for Tampa Bay                provide incentives and opportunities for homeowners to enhance canal habitats and                          0
                                       soften shorelines.                                                                                         0
                                                                                                                                                  0
                                                                                                                                                  0
                     ...........
          . . . ... .....-... ................
                  ....................
              ............... ........... .....
                                       MANAGEMENT OBJECTIVES
                                                                                                                                                  0
                                            Increase and preserve the quantity, quality and diversity of seagrass communities,                    0
                   ........ ...
              ............. .................
                .. ...........................
                                            recovering as many as 14,000 acres over time.                                                         0
                                            Restore and preserve an optimum balance of wetland and associated upland habi-                        0
                                            tats to support bay wildlife, specifically:                                                           0
                                                - restore at least 100 acres of low-salinity tidal marsh every five years                         0
                                                                                                                                                  0
                                                - protect existing levels of mangroves and salt marshes                                           0
                                            Protect hard bottom, oyster reef, and soft bottom communities.                                        0
                                                                                                                                                  0
                                                                                                                                                  0
                                       SUMMARY OF ACTIONS FOR BAY HABITATS                                                                        0
                                       BH-1        Implement the Tampa Bay master plan for habitat restoration and protec-                        0
                                                   tion.                                                                                          0
                                                                                                                                                  0
                                       BH-2        Establish and implement mitigation criteria for Tampa Bay, and direct miti-                    0
                                                   gation to high priority projects.
                                                                                                                                                  0
                                       BH-3        Reduce propeller scarring of seagrass.                                                         0
                                       BH-4        Evaluate whether to establish a special management area for the protection                     0
                                                   of coastal habitats in Tampa Bay.                                                              0
                                                                                                                                                  0
                                       BH-5        Restrict impacts to hard-bottom communities.                                                   0
                                                                                                                                                  0
                                       BH-6        Restrict off-road vehicle access along causeways and coastal areas.                            0
                                                                                                                                                  0
                                       BH-7        Require mandatory education for recreational boaters.                                          0
                                                                                                                                                  0
                                       BH-8        Encourage waterfront residents to enhance shorelines and limit runoff from                     0
                                                   yards.                                                                                         0
                                       BH-9        Improve compliance with and enforcement of wetland permits.                                    0
                                                                                                                                                  0
                                       BH-10       Expand habitat mapping and monitoring programs.                                                0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
             148                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0
                                                                                                                                                  0





 d1k


                ACTION PLM                                                                    Bay Habitats              DRAFT
 0                                                                                                                  Charting the Course
 0                                                                                                                     for Tampa Bay
 0              Implement the Tampa Bay Master Plan for
 0              Habitat Restoration and Protection



                                                                                                                            ...........
 0              ACTION-.
 0              Implement the Tampa Bay master plan for habitat restoration and protection, devel-
 0              oped by the Tampa Bay National Estuary Program (NEP) in 1995 in cooperation with
 0              local, regional and state agencies and interests.
 40
                BACKGROUND2
                The Tampa Bay NEP will finalize a master plan for habitat restoration and protection
                in early 1996 to coordinate and strategically focus the many existing state, regional
 0              and local programs now engaged in these efforts.
 0
 0              The plan, designed in cooperation with these programs, recognizes that some habitats
 40             have declined faster than others and seeks to "restore the balance" to more environ-
 0              mentally beneficial proportions. It emphasizes the restoration of tidal stream habitats
                in tributaries to Tampa Bay, low-salinity areas that are vital to juvenile fisheries.
 0              Overall, the plan establishes a minimum restoration goal of 100 acres of low-salinity
 0              tidal marsh every five years-or as many as 1,800 acres over time-while preserving
 0              mangroves and salt marshes at existing levels.
 0              The plan also identifies a preliminary list of priority projects for restoration and pro-
 0              tection, through outright purchase or special arrangements such as conservation ease-
                ments on private property.

                This new strategic focus has important implications in Tampa Bay and elsewhere.
 40             Traditionally, habitat restoration and land acquisition have been largely opportunistic
 0              endeavors: Agencies and communities have sought to purchase and restore habitat
 0              based on what was available or, in some cases, most visibly connected to the bay.
 40             This approach toward highly visible projects helped to build community awareness of
 0              the environmental plight and needs of the bay at a time when this was critically need-
                ed. It also demonstrated to skeptics that habitat restoration was possible.
 40             In recent years, agencies and local governments have increasingly focused on restor-
 0              ing a mosaic of habitat types within a given project to maximize the benefits to fish
 0              and wildlife. The emerging habitat master plan for Tampa Bay takes this concept a
 0              step further by pursuing and selecting sites based on their potential to support the crit-
 40             ical needs of certain species.
 0
 0              The draft plan identifies a series of wildlife "guilds" or groups of animals that have
 0              common habitat and feeding needs. By tuning restoration and protection efforts to
 49             meet these needs, efforts and resources can be more effectively utilized.
 0              The white ibis provides a textbook example of how this new planning approach might
 0              protect an impacted species. Populations of the white ibis have declined dramatically

                                                                                                                               147






          DRAFT                       ACTION PLM                                                                  Bay Habitats              0
       Charting the Course                                                                                                                  0
         for Tampa Bay                in the last half-century, resulting in its listing by the Florida Game & Freshwater Fish
                                      Commission (FGFWFC) as a species of special concern. Adult ibis nest along the
                                      bay, but require inland freshwater sources of food for their young. These shallow                     0
                                      freshwater wetlands or "frog" ponds, as they are sometimes known, have been hit                       40
                   .............
            ....................................
                                      hard by inland development-forcing ibis to travel farther and farther to find food for
                                      their young. A habitat restoration strategy devised with the ibis in mind might seek to
                                      restore small freshwater ponds on properties that are closer to the birds' nesting areas
                                      to compensate for the loss of these food sources in the watershed.

                                      Another habitat strategy might direct bay managers to eradicate Brazilian pepper from
                                      various small but highly valuable low-salinity portions of creeks and streams that                    0
                                      serve as juvenile nurseries for many species of fish. Such results-oriented strategies                0
                                      bode well for communities seeking to maximize their return on bay improvement                         0
                                      expenditures.                                                                                         0
                                      A draft of the plan is available from the Tampa Bay NER Provisions to direct public                   40
                                      and private mitigation credits to these priority projects also are a part of the plan (See
                                      Action BH-2).


                                      Ongoing efforts:

                                      Pinellas, Hillsborough and Manatee counties all have administrative programs for the
                                      public purchase of envirom-nentally sensitive lands. Pinellas and Hillsborough coun-
                                      ties' programs are funded by local taxes that complement state-funded public land
                                      acquisition programs such as Preservation 2000, Save-Our-Rivers, and Conservation
                                      and Recreational Lands (CARL). Manatee County's program is for the purchase of
                                      land in the Lake Manatee Reservoir and is financed by the County's Water Utilities
                                      Enterprise Fund. Private land acquisition programs such as the Nature Conservancy
                                      also contribute to the preservation of upland and wetland habitats.

                                      State environmental agencies such as the Southwest Florida Water Management
                                      District (SV;FVVMD) and its Surface Water Improvement & Management (SWIM)
                                      Program, the Florida Department of Environmental Protection (FDEP) and the Florida
                                      Marine Research Institute (FMRI), are the principal players in habitat restoration and
                                      enhancement. Local municipalities and other agencies such as the Florida Department
                                      of Transportation (FDOT), and local port authorities and utilities also engage in large-
                                      scale habitat mitigation and restoration. Like habitat protection efforts, these pro-
                                      grams have been only minimally coordinated and are driven largely by opportunity
                                      and permitting considerations.


                                      STRATEGY-
                                      This action presents steps to implement the Tampa Bay master plan for habitat restora-                0
                                      tion and protection, including elements to assure and more effectively direct key fund-               0
                                      ing sources.






            142






                ACTION PLM                                                                     Bay Habitats              DRAFT

                                                                                                                     Charti 9 the Course
                STEP 1      Convene implementing groups by April 1996 to develop a written strategy                     for Tampa Bay
                            to implement the master plan according to its established priorities.
                            Responsible parties: Tampa Bay NEP (to organize workshop),
                            SWFWMD, FDEP, FMR1, FGFWFC, local governments

                            Reconvene work group of implementing agencies, local governments and
                                                                                                                        ..........
                            organizations every two years, beginning in 1998, to assess progress toward
                            goals and reevaluate priorities.
                            Responsible parties: Tampa Bay NEP

                STEP 2      Direct credits from public and private mitigation projects to priority pro-
                            jects identified in the plan. (See Action BH-2 on mitigation banking)

                STEP 3      Ensure that the list of priority projects for habitat restoration and protection
                            is incorporated into local government and agency permit reviews and con-
                            ditions.
                            Responsible parties: local governments, FDEP, SWFWMD

                STEP 4      To assist in and more effectively direct funding to implement the habitat
                            restoration master plan:

                            Pursue a permanent source of funding for the SWIM Program;

                            Amend provisions of the State Pollution Recovery Trust Fund to require
0                           that monies from fines collected in the Tampa Bay region be spent in this
                            region and within a specific period of time (e.g., five years)

                            Secure a permanent source of funding for Preservation 2000, the state envi-
                            ronmental lands acquisition program.

                            Amend provisions of the Hillsborough County Pollution Recovery Trust
                            Fund to require that monies collected from fines be spent within a reason-
                            able period of time.

                            [Note: These financing elements are part of the Tampa Bay NEPs 1996
                            state legislative agenda.]


                SCHEDULE.
                Implementation to begin in 1996. Timetables for various priority projects will be list-
                ed in the habitat master plan.


                COSM
                Costs associated with implementation of the plan will be finalized in early 1996.
                However, existing SWW habitat restoration projects may provide some basis for
                comparison. The current SWM plan for Tampa Bay includes proposed projects for
                FY 91-92 through FY 93-94, a total of 16 major and 15-21 smaller projects for a total
                budget of $4.5 million or about $1.5 million annually. SV;FWMD cost analyses indi-
                cate that the cost for the creation/restoration of intertidal wetlands (including design,
                                                                                                                                148


all







           DRAFT                       ACTION PLAN                                                                     Bay Habitats
                                                                                                                                                 
       Charting the Course                                                                                                                       
          for Tampa Bay                permitting, plans, construction and monitoring) range from $30,000 (managed in-                           
                                       house) to $50,000 (contracted to private firm) per acre.
                                                                                                                                                 
                                                                                                                                                 
             .. ............................
              .............. .................
               ...................     EXPECTED BENEFITS:
                                                                                                                                                 
                .......... .......-. ........ Implementation of this strategic watershed plan for habitat restoration and preserva-              
                       ............
               ........ . . ......... ... .....
                      ...............
                                       tion will improve the quality, diversity and quantity of critical coastal habitats that                   
                                       support bay wildlife.                                                                                     
                                                                                                                                                 
                                       MONITORING ENVIRONMENTAL RESPONSE:                                                                        
                                       Progress in implementing the habitat restoration and land acquisition master plan-                        
                                       and in meeting specific targets for habitat recovery-will be monitored by local gov-                      
                                       ernments and agencies and reported in the Biennial Bay Monitoring Report.                                 
                                                                                                                                                 
                                       REGULATORY NEEDS:                                                                                         
                                       Revisions to trust fund provisions and other regulatory changes to ensure and more                        
                                       equitably direct long-term funding for habitat restoration and acquisition.                               
                                                                                                                                                 
                                                                                                                                                
                                       RELATED ACTIONS:
                                       BH-2                                                                                                      
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 

                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
                                                                                                                                                 
 





                ACTION PLM                                                                    Bay Habitats             DRAFT
                                                                                                                    Charting the Course
                Establish and Implement AUtigation Ciiteiia for                                                        for Tampa Bay
                Tampa Bay

                                                                                                                    . .......................... ....


                                                                                                                          .............
                ACTION-
                Establish criteria for mitigation of impacts to tidal habitats in the Tampa Bay water-
                shed, and develop a regional mitigation banking plan that implements those criteria.


                BACKGROUND:
                Mitigation-the process by which applicants whose projects include impacts to wet-
                lands create new ones in their place or restore or enhance existing wetlands-in
                Florida is required of both private developers and public agencies to compensate for
                loss of natural habitats. T@pically, these manmade wetlands are established on the
                same site as the project, in an area not slated for development.

                But keeping track of these projects-and how closely they mimic natural wetlands-
                has proven difficult with the government's limited resources. Studies by the Florida
                Department of Natural Resources Aquatic Preserves Division and Marine Research
                Institute in 1988 reported a failure rate of more than 80 percent for mitigation projects
                in Southwest Florida and Tampa Bay. A follow-up study by the Florida Department of
0               Environmental Protection (FDEP) showed that one-third of applicants issued permits
                by the agency had never even attempted the required mitigation. Of those that had,
                only 13 of 62 mitigation projects were deemed "ecologically successful," meaning
                they generally provided the same functions as natural wetlands destroyed by the pro-
                ject.


                In addition to problems with enforcing mitigation requirements, some bay managers
                believe the mitigation criteria used by the state is insufficient to protect some particu-
                larly valuable bay habitats.

                Problems with the current mitigation program, and pressures from private interests
                who view it as too cumbersome, have led to a new concept called "mitigation bank-
                ing." It allows developers to compensate for wetland losses in one place by preserv-
                ing, restoring or creating wetlands in another to achieve a no-net loss of wetlands.

                A new FDEP rule allows mitigation banking in some instances, although it remains a
                controversial issue. Proponents say mitigation banking can consolidate mamnade
                marshes into central areas, increasing the odds for success and making the permits
                easier to monitor and enforce. Proponents also say it will result in larger wetland
                areas that are more useful for birds and other wildlife than, for instance, a tiny wet-
                land in the middle of a shopping center or along a busy road. Critics say mitigation
                banking will make it easier to destroy wetlands. If an applicant can simply pay to
                restore marshes somewhere else, they fear there will be little incentive to preserve
                wetlands on site.


                Many concerns about mitigation banking stem from provisions (or lack of provisions)
                in the new state rule.
                                                                                                                               151






           DRAliw                     ACTION PLM                                                                   Bay Habitats
       Charting the Course
          for Tampa Bay               Under the rule, mitigation banks are optional and can be either publicly or privately                   40
                                      owned or operated. The state encourages a free-market approach, so does not specify                     0
                                      how much a developer can be charged for mitigation credits. Generally, the price of                     0
                                      credits covers the cost of the restoration and monitoring for several years, in addition
                                      to providing a margin of profit for the private restoration company. Banks are jointly                  0
              ... ...........
                                                                                                                                              0
                    .. ................
                       ...........
                       .... .. .      administered by the FDEP and the state's water management districts.

                                      The state rule also allows private companies to purchase lands for mitigation banks, or                 0
                                      developers themselves to purchase and operate mitigation banks. Additionally, the                       9
                                      new rule permits developers to transfer their mitigation to publicly owned lands if the                 0
                                      landowner agrees, as is the case with a bank on state-owned property at Little Pine                     0
                                      Island in Lee County.
                                      Whether mitigation banks should be permitted on publicly owned lands is a key area                      0
                                      of disagreement among bay managers. Some believe mitigation should only be
                                      allowed on private lands, with those lands subsequently turned over to a public
                                      agency for management. Others say mitigation banking offers a chance to restore
                                      dairnaged public lands much faster than limited government funds currently permit.

                                      The shortcomings of the current mitigation program and the lack of a significant track                  9
                                      record with wetland mitigation banking will continue to make the issue of how and                       0
                                      where banks should be used complex and controversial.                                                   0

                                      The Tampa Bay National Estuary Program (NEP) supports the creation of mitigation
                                      criteria designed specifically for the Tampa Bay region, including the development of
                                      a regional mitigation banking plan tailored to the needs of the bay ecosystem.

                                      A regional mitigation banking plan would accomplish several goals. First, it would
                                      ensure appropriate siting of banks in areas where they are most likely to succeed and
                                      where other valuable habitats, such as mature pine forests, are not sacrificed for wet-
                                      lands. A regional plan also would prevent a profusion of widely scattered banks that
                                      are difficult to monitor, and would give local governments guidance in drafting future
                                      land use plans.

                                      This action also directs mitigation to priority projects for habitat restoration and
                                      enhancement identified in the Tampa Bay NEP's habitat master plan (see Action BH-



                                      STRATEGY-
                                      STEP1      Identify areas where mitigation banks should be used in the Tampa Bay
                                                 watershed, and develop criteria for management and operation of those
                                                 banks.


                                                 Convene a workgroup of the Natural Resources Committee of the Agency
                                                 on Bay Management (ABM) by April 1996 to evaluate and develop recom-                         0
                                                 mendations. Recommendations shall be forwarded to the Tampa Bay NEP                          0
                                                 by September 1996. Consult existing banking criteria guidance developed                      0
                                                 by the federal Environmental Protection Agency (EPA), Army Corps of                          0
            157                                  Engineers (ACOE), Florida Game & Freshwater Fish Commission                                  &
                                                                                                                                              0
                                                                                                                                              0
                                                                                                                                              0







                ACTION PLM                                                                   Bay Habitats             unRr i
                                                                                                                   Charting the Course
                           (FGFWFQ, Fish & Wildlife Service (FWS), National Marine Fisheries                         for Tampa Bay
                           Service (NNTS) and the Southwest Florida Water Management District
                           (SV;FWMD) for reference. Private industry and other non- governmental
                           and environmental groups should be urged to participate.

                           Permitting agencies should continue to emphasize avoidance of wetland
                                                                                                                    ......................
                           impacts in lieu of on- or off-site mitigation. Where wetlands impact cannot
                           be avoided, on-site mitigation should be encouraged. If on-site compensa-
                           tion is not feasible or likely to be effective, mitigation banking should be
                           considered.


0               The workgroup should consider:

                0   evaluating whether mitigation conducted by local governments and private devel-
                    opers should count toward overall habitat restoration goals for Tampa Bay

                0   establishing specific criteria to decide when on- or off-site mitigation is most
                    appropriate

                0   ownership, management and associated cost issues, including whether mitigation
                    banks operated on private lands purchased by the developer or private bank opera-
                    tor should be deeded to a public agency

                0   limitations on the total number of mitigation banks, and the number that one pri-
0                   vate operator can manage, and provisions to make banks large enough to increase
                    ecological values and prevent a glut of banks with no "customers"

                0   siting considerations, to ensure that wetland values lost in one area are replaced in
                    the same general area, thus preventing an overall decline in water quality or habi-
                    tat within one watershed (for example, positioning banks adjacent to existing wet-
                    lands could make replicating the types of wetlands lost easier, increase its proba-
                    bility of success, and boost its value to wildlife)

                0   provisions to ensure the bank mimics as closely as possible the values, appearance
                    and function of the original habitat. Where this is not practical, mitigation credits
                    should be granted at a higher ratio, as in the case of red mangroves, salt barrens or
                    other critical habitats within Tampa Bay

                0   bank monitoring, enforcement and penalties for noncompliance with banking cri-
                    teria

                0   whether the state should establish minimum standards for environmental profes-
                    sionals conducting mitigation projects to increase the chances that marimade
                    marshes will flourish

                0   provisions for enhancement and preservation of existing wetlands within a mitiga-
                    tion bank as compensation if the environmental benefits of such activity will sig-
                    nificantly exceed the level of impact

                0   whether mitigation banks should be considered a replacement for publicly
                    financed restoration projects
                0   safeguards to protect productive native uplands from conversion to wetlands


                                                                                                                             153







                                                                                                                                         
          DRAFT                      ACTION PLAN                                                                 Bay Habitats             
       Charting the Course                                                                                                               
         for Tampa Bay                   mandating the establishment of a trust fund to ensure long-term management of                   
                                         the mitigation bank. The trust fund could be managed by a public agency, with                   
                                         additional oversight by a non-profit group such as the Nature Conservancy                       
                                                                                                                                         
                  
                  
                                                Responsible parties: ABM
              BH-2                                                                                                                     
                                     STEP 2     Implement recommendations from Step 1, and direct mitigation credits to                  
                                                high-priority restoration areas, as identified in the Tampa Bay NEP habitat              
                                                restoration and protection master plan.                                                  
                                                (See Action BH-1)                                                                        
                                                Responsible parties: Tampa Bay NEP, in conjunction with FDEP,                            
                                                SWFWMD, FGFWFC and local governments                                                     
                                                                                                                                         
                                     SCHEDULE:                                                                                           
                                     Step 1 can be initiated in April 1996 with recommendations by September. Step 2 can                 
                                     be initiated in 1996 and completed in 1997.                                                         
                                                                                                                                         
                                     COSTS:                                                                                              
                                     To be determined, based on recommendations in Step 1.                                               
                                                                                                                                         
                                                                                                                                         
                                     EXPECTED BENEFITS:                                                                                  
                                     The establishment of regional mitigation criteria enables bay managers and the com-                 
                                     munity to provide safeguards for and more effectively utilize mitigation banking for                
                                     the benefit of the region.                                                                          
                                                                                                                                         
                                     MONITORING ENVIRONMENTAL RESPONSE:                                                                  
                                     Bay marsh and mangrove habitats are monitored every five years using photo inter-                   
                                     pretation methods. The success of mitigation banks will be monitored through per-                   
                                     mits.                                                                                               
                                                                                                                                         
                                     REGULATORY NEEDS:                                                                                   
                                     Possible amendments to local permitting rules and/or the state mitigation banking                   
                                     rule.                                                                                               
                                                                                                                                         
                                                                                                                                         
                                     RELATED ACTIONS:                                                                                    
                                     BH-1, BH-4, BH-5                                                                                    



                                                                                                                                         
                                                                                                                                         
                                                                                                                                         
                                                                                                                                         
                                                                                                                                         
                                                                                                                                         

            154
                                                                                                                                         
                                                                                                                                         
                                                                                                                                         
 



V

                ACTIM PLM                                                                  Bay Habitats             DRAFT
                                                                                                                 Charting the Course
                Reduce PropeRer Scarring of Seagrass                                                               for Tampa Bay



                                                                                                                 ............................
                                                                                                                     ....................
                                                                                                                           V
                ACTION-

                                                                                                                        ........... ..
                Reduce propeller scarring of seagrasses and other shallow water habitats by installing
                channel markers or implementing other management actions where seagrass scarring
                is severe and by increasing boater awareness of these habitats and methods for protec-
                tion.


0               BACKGROUND:
                Boating activity on Tampa Bay, where there are nearly 100,000 registered recreational
                boats, is intense and increasing-along with damage to seagrass meadows and other
                sensitive marine habitats.


                Propeller scars from boats that cut through shallow seagrasses beds or run aground
                can leave sandy trenches that may stay barren for years. Seagrasses in some sections
                of Tampa Bay-including portions of Cockroach Bay Aquatic Preserve, Ft. DeSoto
                Park, Bishops Harbor and the Double Branch/Rocky Creek portion of Upper Tampa
                Bay-are severely scarred, particularly around narrow channels and passes.

                The Florida Marine Research Institute (FMRI), which recently completed a statewide
                survey of prop scarring, is investigating the most appropriate methods for protection
                in areas of Tampa Bay where scar-ring is severe, including marking of existing chan-
                nels. Findings from this study will comprise the basis for specific recommendations
                by the Tampa Bay National Estuary Program to reduce prop scarring in the bay. This
                action also calls for continued efforts to emphasize boater education by expanding dis-
                tribution of the Boater's Guide to Tampa Bay and installing additional interpretive sig-
                nage at high-use boat ramps where warranted.

                Studies are underway at Cockroach Bay Aquatic Preserve in Hillsborough County and
                Ft. DeSoto Park in Pinellas County, where boating restrictions to protect seagrasses
                are in place, to monitor the effectiveness of various management methods employed.
                These management efforts range from motor boat exclusion zones and restricted
                access areas posted with signs to unrestricted areas where sensitive areas are posted
                with educational signs.

                FMRI will use findings from these studies along with other efforts around the state to
                develop recommendations of the most effective strategies for protection at these and
                other heavily impacted bay sites, and to develop a cost-effective program to monitor
                prop scarring and associated seagrass reestablishment.

                Additionally, interpretive signage installed at high-use boat ramps around the bay can
                help to raise boater awareness of sensitive seagrass meadows and other vital marine
                habitats. Expanding this effort to other areas of intense use around the bay is another
                important part of a comprehensive habitat protection strategy. Boaters also can be
                reached through expanded distribution of the Boater's Guide to Tampa Bay, which
                was produced in 1992 by FMRI and Tampa Bay NEP for distribution to boaters in
                Hillsborough, Pinellas and Manatee counties.                                                               155






           BRA                         ACTION PUW                                                                   Bay Habitats               0
       Charting the Course
          for Tampa Bay                STRATEGY:                                                                                               40
                                       STEPI      Evaluate results of the FMRI investigation of methods to reduce prop scar-                   0
                                                  ring in severely damaged areas, which will be based, in part, on an evalua-                  0
                     .......... -...
                                                  tion of existing management efforts in boat-restricted areas.
              SH:                                 Recommendations should stress the need for uniformity in management
                      ...............
                  ........................        methods employed around the bay, especially in boat restriction zones. A
                                                  draft report will be submitted to the Tampa Bay NEP in January 1996.
                                                  Recommendations will be incorporated into the final Comprehensive
                                                  Conservation & Management Plan for Tampa Bay.
                                                  Responsible parties: Tampa Bay NEP

                                       STEP 2     Implement and monitor seagrass protection strategies advanced in Step 1.
                                                  Periodically monitor seagrass scarring in Tampa Bay to evaluate impacts,
                                                  recovery, and associated management needs, and to reclassify restricted
                                                  areas where appropriate.
                                                  Responsible parWes: local governments and FDEP

                                       STEP 3     Expand distribution of the Boater's Guide to Tampa Bay through major
                                                  marinas, boating and fishing clubs, The Florida Aquarium, boat ramps, and
                                                  retail outlets in accordance with existing terms and conditions.


                                                  Note: First-tier distribution to county tax collectors' offices, Florida Marine
                                                  Patrol and county marine sheriff's units has been completed by the Tampa
                                                  Bay NEP and the FDEP/FMRI; reorder process for these public and non-
                                                  profit entities is in place.

                                                     A.  Develop target list of distribution outlets and identify major boat
                                                         shows and fishing tournaments for targeted events distribution.
                                                         Evaluate corporate sponsorship and distribution partnership with a
                                                         major sporting goods or boating retail operation.
                                                     B.  Distribute letter with sample, order form and terms and conditions.
                                                         Follow up by phone with major distribution outlets.

                                                     C.  Distribute orders with reorder form/procedures.


                                                  Responsible parties: FDEPIFMRI, with assistance ftom Florida Marine
                                                  Patrol, Coast Guard Auxiliary, Tampa BAYWATCH, Florida Sea Grant
                                                  Extension Program

                                       STEP 4     Identify high-use boat ramps not already posted and design and install
                                                  interpretive signage in these areas to educate boaters about bay habitats and
                                                  their role in habitat protection. Ideally, sign design should be uniform
                                                  throughout the watershed to maximize cost-efficiency and impact.

                                                  [Note: Evaluate opportunities to modify or duplicate the existing bay sig-
                                                  nage series developedfor the Tampa Bay NEP and installed at more than a
                                                  dozen boat ramps around Tampa Bay.]
                                                  Responsible parties: FMR1, with assistance from local governments and
                                                  Tampa BayWatch
                                                                                                                                               0







            ACTION PLM                                                  Bay Habitats        unnr i
                                                                                         Charting the Course
            STEP 5   Design, develop and distribute a boat decal about prop scarring to boaters, for Tampa Bay
                     boat rental and sales outlets, and tackle shops.
                     Responsible parties: Tampa Bay NEP (for design and initial production),
                     FMRI, Tampa Bay Watch, Florida Marine Patrol and local government
                     marine units and tax collectors' offices (for distribution)

                                                                                         . ... ........... .
                     [Note: Preliminary designsfor a boater decal have been developed by the
                     Tampa Bay NEP I


            SCHEDULE:
            FMRI's report is due to the NEP in January 1996. Implementation of Steps 2 through
            5 can begin in 1996.


            COST-
            Costs to implement management actions to protect seagrasses in areas where there is
            intense sear-ring will vary depending on recommendations. For example, the cost to
            purchase and install a channel marker or buoy is estimated at $500. Costs to reprint
            an additional 30,000 copies of the Boater's Guide to Tampa Bay on recycled stock are
            estimated at $8,300, and could be financed through the Sport Fish Restoration Fund.
            Costs to reproduce the imbedded fiberglass master sign on Tampa Bay produced for
            the Tampa Bay NEP by Pannier Graphics in Pennsylvania is approximately $ 1,000,
            excluding any design modifications. The sign is designed with a space for the logo of
            the local municipality or project sponsor.


            EXPECTED BENEFITS:
            Targeted efforts to educate boaters, coupled with more direct management actions and
            channel marking where warranted and enforcement of these actions, can reduce prop
            scarring of seagrasses. Other sensitive bird and coastal habitats also win benefit as
            boaters become more aware of them and how to protect them.


qW          MONITORING ENVIRONMENTAL RESPONSE:
a
            Prop scarTing is monitored where management actions are implemented to test the
            effectiveness of these methods. Prop scarring trends baywide will be monitored as
            part of a program now being designed by FMRI (recommendations due in January).
dh          Seagrass coverage is monitored every two years by SVVFWMD-SV;lm.


            REGULATORY NEEDS-
-W          Pending final recommendations


            RELATED ACTIONS:

            BH-1, BH-10, FW-1



Mkk



                                                                                                 157






                                                                                                                                                0
           DRAFT                       ACTION PUN                                                                    Bay Habitats
       Charting the Course
          for Tampa Bay                Evaluate Whether to Establish a Special
                                       Management Area for the Protection of Coastal
                                       Habitats in Tampa Bay

                        ...........



                                       ACTION:
                                       Evaluate whether to establish a special management area to improve protection of
                                       coastal habitats within Tampa Bay, or pursue classification of those habitats as a state
                                       Ecosystem Management Area.


                                       BACKGROUND:
                                       Current state Wetland Resource (Dredge and Fill) permitting rules typically require
                                       permittees to provide compensatory mitigation (e.g., wetland creation, restoration,
                                       enhancement) for permitted wetland impacts after the impacts have been incurred.
                                       The amount of mitigation required is based upon general guidelines for the ratio of
                                       impacted acreage to mitigation acreage, but is usually negotiated on a case-by-case
                                       basis depending upon the type (e.g., forested vs. herbaceous wetlands) and functional
                                       quality of the wetland systems involved. These compensatory mitigation guidelines
                                       have been developed to theoretically result in a "no-net-loss" of wetland resources.
                                       However, according to a study completed by FDER in 1992, the majority of wetland
                                       mitigation sites required as a condition of permit issuance have either not been con-
                                       structed, or are out of compliance with the terms and conditions set forth in their
                                       respective permits.

                                       Additionally, current rules may not provide adequate protection for some important
                                       marine habitats for which mitigation is especially difficult, such as seagrasses and
                                       hard bottom communities.


                                       Studies show a 43 percent decline (9,700 acres) in the bay's existing wetland coverage
                                       from 1950 to 1990, although several thousand acres of new wetlands were formed
                                       during this period as a result of newly developed emergent land. The vast majority of                    40
                                       these losses can be attributed to the physical impacts associated with dredge and fill                   41
                                       activities. During the same time period, there has been a net loss of about 15,000                       0
                                       acres of seagrasses because of dredge-and-fill impacts and past water quality declines,                  a
                                       although seagrasses are now staging a comeback in some areas thanks to improving                         49
                                       water clarity. Little information is available on historic impacts to hard-bottom com-                   Is
                                       munities, but bridge and dock construction has destroyed oyster reefs and other hard-                    49
                                       bottom in some of these areas.                                                                           40
                                                                                                                                                41
                                       This action is to investigate the costs and benefits of providing stricter protection for                41
                                       tidal wetlands, seagrasses and other coastal habitats in Tampa Bay, through either the                   49
                                       existing state Ecosystem Management Area designation or a new "special manage-                           Ift
                                       ment area" classification. Within this special area, more stringent rules would apply                    MP
                                       to mitigation requirements. For example, amended rules might require:











 ilk
                 ACTION PLAN                                                                   Bay Habitats                RM' mll
                                                                                                                         U.111FIr II
                                                                                                                     Charting the Course
                 0   all mitigation to be constructed and an approved monitoring program initiated                      for Tampa Bay
                     prior to the permittee being allowed to incur the permitted wetland impacts. The
                     permittee will be required to attain a "successful" mitigation at project comple-
                     tion.
                                                                                                                           ibi
                 0   higher bonding requirements for projects within the designated area, and higher                  BHI      4.1
                     mitigation ratios that will result in a "net gain" in wetland acreage.

                 0   development of an ecologically defensible, quantitative mitigation formula for
                     specific estuarine habitats so regulated interests could predict their mitigation
                     requirements.



                 Efforts such as these could contribute significantly to the attainment of the habitat
 0               recovery targets established by Tampa Bay NEP for emergent tidal wetlands and sea-
                 grasses.
 0

                 STRATEGY-
 0               This action calls for the Agency on Bay Management (ABM) to evaluate whether and
                 by what means a special management area should be established for the protection of
                 special habitats surrounding the bay, preferably through an existing state classifica-
                 tion.


                 STEP 1     Convene a workgroup of Tampa Bay area wetland resource regulators from
                            applicable federal, state and local agencies, and local governments, to fur-
                            ther evaluate the need and means for designating the coastal habitats of
                            Tampa Bay as a "special management area" with permitting criteria neces-
                            sary to attain habitat recovery targets. The group also would define the
                            boundaries of this area.


                            Permitting criteria could include the development of a quantitative habitat
                            evaluation and mitigation formula, for all specific estuarine habitat types.
 0                          The rules for the "special management area" also could include provisions
 0                          for off-site mitigation and payment into mitigation banks where on-site mit-
 0                          igation is not feasible.
 0                          Responsible parties: ABM
 0               STEP2      Based upon the consensus findings of the workshop, ABM and the Tampa
 0                          Bay NEP will work with local legislators to develop and support state leg-
 0                          islation to designate the tidal wetlands of Tampa Bay as a "special manage-
                            ment area7' with permitting criteria necessary to attain long-term habitat
                            recovery targets established by the Tampa Bay NEP Management
 0                          Committee.
 0                          Responsible parties: ABM, Tampa Bay NEP, local legislators
 0
 0               STEP3      FDEP, SWFWMD, and counties with delegated wetland permitting authori-
 0                          ty establish new rules, or amend existing rules, to incorporate the provi-
                            sions of the special management area.
                            Responsible parties: FDEP, SWFWMD, Pinellas County, Manatee
 0                          County and Hillsborough County EPC
 0                                                                                                                              158






        DRAFT                ACTION PLAN                                                 Bay Habitats
     Charting the Course                                                                                     0
       for Tampa Bay         SCHEDULE:                                                                       0
                             Pending assessment to determine the need and associated costs and benefits of a 0
                             Special Management Area. If endorsed by the Technical Advisory Committee of the
                             Tampa Bay NTEP, the work group could be convened in Spring 1996 to further define
           B H:   4.....     the boundaries and provisions of the designation.
       . ......... ...........
               ............ .
              ......................


                             COST:
                             A cost-benefit analysis for implementing this action will be conducted based on rec-
                             ommendations from ABM.


                             EXPECTED BENEFITS:
                             A special management area could produce a net gain in, and provide heightened pro-
                             tection for, designated bay habitats.


                             MONITORING ENVIRONMENTAL RESPONSE:
                             Mitigation monitoring is required of the permittee to document "success." A baywide
                             monitoring program has been established to monitor trends in habitat quantity.


                             REGULATORY NEEDS:                                                               0
                             Possible amendments to chapters 17-312 and 40D-4, Florida Administrative Code.
                             Passage of state laws designating the tidal wetlands of Tampa Bay as an ecosystem or
                             special management area.
                                                                                                             0
                             RELATED ACTIONS:                                                                0
                             BH-2,BH-3,BH-5,BH-9                                                             0
                                                                                                             0



                                                                                                             0
                                                                                                             0
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                                                                                                             0
                                                                                                             0
                                                                                                             0

         Its








                ACTION PLM                                                                     Bay Habitats              unRr i
                                                                                                                     Charting the Course
                                                                                                                        for Tampa Bay-
                Restrict Impacts to Hard Bottom Communities in
                Tampa Bay

                                                                                                                      . .................
                                                                                                                        .................. .... ...

                                                                                                                              A
                                                                                                                           H    S....
                                                                                                                      ................
                                                                                                                    . ...... .............
                                                                                                                     ......................................
                ACTION-
0               Amend Wetland Resource (Dredge and Fill 17-312, Florida Administrative Code (FAQ)
0               and Management and Storage of Surface Waters (40D-4, FAC          ) permitting rules to rec-
0               ognize estuarine hard-bottom communities as unique resources, and to provide for
0               increased protection of these resources.
0
a               BACKGROUND:
0               The vast majority of the submerged bay bottom in Tampa Bay is characterized by loose
0               sediments such as sand or mud. Subtidal hard-bottom, or live-bottom, communities
0               exist in sparse areas of the bay bottom where natural rock outcrops protrude into the
0               overlying water colunm. The hard surface of the rock provides an ideal substrate for
0               colonization of a diverse assemblage of marine invertebrates including sponges, gor-
                gonians and corals, and the shelter afforded by the rock outcrops attracts large numbers
0               of a wide variety of fishes. These characteristics make hard-bottom communities some
0               of the most unique and highly productive natural habitats in Tampa Bay.

                Hard bottom communities are known to exist in Old Tampa Bay near Rocky Point and
                the Gandy Bridge, as well as southwest of the Skyway Bridge near Terra Ceia Bay.
0               However, the baywide distribution of these important habitats-particularly in deeper
0               waters-remains undocumented.
0
0               Oyster reefs are another type of hard-bottom community found in Tampa Bay. They
0               typically occur in shallower waters along the shoreline, predominantly within the inter-
0               tidal zone and provide a unique substrate for other encrusting organisms. Relatively little
0               is known about the distribution and health of Tampa Bay oyster reefs despite their rec-
                ognized importance and potential economic value.

                Current state Wetland Resource (Dredge and Fill) permitting rules typically require per-
                mitees to provide compensatory mitigation (e.g., wetland creation, restoration, enhance-
                ment) for permitted wetland impacts after the impacts have occurred. The amount of
                mitigation required is based upon guidelines for the ratio of impact acreage to mitigation
                acreage, but is usually negotiated on a case-by-case basis. Current rules, however, do
                not distinguish estuarine hard-bottom communities from other types of regulated wet-
                lands and submerged bottom types. Consequently, these unique habitats are typically
                not afforded any additional regulatory protection. While it is not clear how many acres
                of natural hard-bottom communities have been lost in Tampa Bay, it is clear that impacts
                to these unique habitats are not easily mitigated, and that a greater recognition and pro-
                tection is needed.


                This action would provide for the identification and protection of hard-bottom commu-
                nities in Tampa Bay by including them in the "Special Management Area" proposed by
                the Tampa Bay National Estuary Program. The designation would allow for changes to
                existing permitting criteria necessary to provide needed protection to these communities.                       181






        DRAFT                 ACTION PLM                                                    Bay Habitats
     Charting the Course
       for Tampa Bay          STRATEGY:
                              STEP 1   Undertake a comprehensive benthic survey of Tampa Bay with the objective
                                       of mapping the detailed distribution of natural hard-bottom communities, 0
                                       including both oyster reefs and rocky outcrop live-bottoms. A small-scale
                                                                                                                40
                                       survey of
                                               hard-bottom communities has been completed, but a more detailed
                                       investigation is needed. The survey would document the species composi-
                                       tion and ecology of natural hard-bottom communities and compare. them to
                                       artificial reef communities. Volunteers could be enlisted to help identify and
                                       map these areas.

                                       Ensure the distribution of these maps to applicable regulatory agencies and
                                       local governments so that these areas are recognized in permitting decisions.
                                       Responsible parties: Florida Department of Environmental Protection
                                       (FDEP) Marine Research Institute, Tampa BayWatch Bay Conservation
                                       Corps, Florida Sea Grant Extension Program
                              STEP 2   Designate hard-bottom communities as part of the Special Management Area 0
                                       for Tampa Bay, with special permitting criteria. [See Action B14-51
                                       Responsible parties: local governments


                              SCHEDULE:
                              Step 1 can be initiated in 1996 and completed in 1997. Step 2 can be accomplished in
                              1996, pending recommendation from the Agency on Bay Management regarding the
                              establishment of a Special Management Area for the protection of specific habitats.


                              COST:
                              The benthic survey could be conducted for approximately $50,000. Financing options
                              include Florida Seagrant, local governments and research funds available through
                              Florida Salt Water Fishing License revenues.


                              EXPECTED BENEFITS:
                              More effective protection of natural hard-bottom communities in Tampa Bay.


                              MONITORING ENVIRONMENTAL RESPONSE:
                              The bay monitoring program will include a hard-bottom mapping element, to be updat-
                              ed periodically (every five years).



                              REGULATORY NEEDS:
                              Amendments to chapters 17-312 and 40D-4, FAC. Passage of state laws designating
                              the tidal wetlands of Tampa Bay a "Special Management Area."


                              RELATED ACTIONS:

                              BH-1, BH-10
         lot                                                                                                    0






                 ACTION PUW                                                                     Bay Habitats             UIR I
                                                                                                                      Charting the Course
                 Restrict Off-Road Vehicle Access Along Causeways                                                       for Tampa Bay
                 and Coastal Areas



                 ACTION-.
                 Restrict off-road vehicle access in environmentally sensitive areas of causeways and
                 coastal areas.



                 BACKGROUND-
                 The sandy shoulders along the bay's causeways have become popular impromptu
                 recreation spots. On any weekend, the "beaches" along the Gandy and Courtney
                 Campbell causeways, the Pinellas Bayway and the approach to the Sunshine Skyway
                 Bridge are packed with cars, people, jet-powered personal watercraft and dogs.

                 Most of these makeshift beaches along the bay have no parking or sanitary facilities
                 and few restrictions on use. Vehicles travel up and down the beach, eroding it and pre-
                 venting emergent vegetation from growing along the shoreline. On the Gandy
                 Causeway, the Florida Department of Transportation (FDOT) periodically dumps new
                 sand on the beach, but much of it is washed into the water by the constant traffic and
                 is forming a large sandbar just offshore.


                 At all the sites, vehicles have carved paths through mangroves in order to park right
                 on the edge of the bay. Mangroves also are "trimmed" by beachgoers for campfires.
                 Lack of sewage and trash facilities pose aesthetic and water quality problems for the
                 bay, while the varied and often incompatible activities that occur there (i.e., personal
                 watercraft users sharing a relatively limited space with swimmers and anglers) often
                 present a safety concern.

                 No information exists on exactly how many people visit these areas, but observations
                 indicate that hundreds use these areas every weekend, especially during the spring and
                 summer.


                 Limiting vehicle access by creating designated parking areas on these beaches would
                 reduce erosion and impacts to mangroves, while still allowing people to enjoy the bay
                 shoreline. These parking areas could be created inexpensively by the use of natural
                 landscaped berms or bollards-sections of telephone poles buried in the ground at
                 widths too narrow for a vehicle to pass through. Beachgoers would park landward of
                 the bollards and then walk to the water.


                 If more control over these areas is desired, sanitary and trash facilities, security lights
                 and picnic facilities could be installed. Mangroves and marsh grass could be planted
                 to revegetate sections of the shoreline, and a small fishing pier or boardwalk could
                 discourage foot traffic through these vegetated areas.

                 Limiting access to these areas will be the responsibility of whoever maintains the road
                 or causeway. In most cases, that will be either the FDOT or a county transportation
0                department. Enforcement would be provided by local law enforcement agencies.
0                                                                                                                                163
0
0
0






           DRAFT                        ACTION PLM                                                                      Bay Habitats
       Charting the Course
          for Tampa Bay                 STRATEGY-
                                        STEP 1     Identify areas along the bay shoreline where off-road vehicle access should
                                                   be controlled. Recommendations from the Agency on Bay Management
                                                   (ABM) should be submitted to the FDOT by the Tampa Bay Regional
                                                   Planning Council and respective local governments by September 1996.
                        ............
                                                   Responsible parties: ABM, Tampa Bay Watch

                                        STEP 2     Implement restrictions on designated causeways and Coastal roads. A pilot
                                                   project at a single site could be implemented first, to gauge public reaction
                                                   and effectiveness. Other sites could follow, drawing upon the lessons
                                                   learned at the test site. One site that might serve as a test area is located in
                                                   Tampa off Cypress Street, where Hillsborough County and the City of
                                                   Tampa are participating in a joint effort to clean up and restrict access to
                                                   that bayside beach.
                                                   Responsible parties: FDOT, local transportation departments in Manatee,                         0
                                                   Pinellas and Hillsborough counties                                                              0
                                        STEP 3     Develop and implement a recreation plan for causeway beaches that                               0
                                                   enhances the environmental integrity of the areas while still allowing pas-                     0
                                                   sive recreation. The plans could include sanitary and trash facilities, board-                  0
                                                   walks and habitat restoration components. This is an optional step that                         0
                                                   depends heavily upon availability of local government funding, although
                                                   some components -such as shoreline cleanups and habitat restoration pro-
                                                   jects-could be accomplished with volunteer labor.                                               0
                                                   Responsible parties: local government parks and transportation depart-                          0
                                                   ments, volunteer groups such as the Bay Area Environmental Action                               0
                                                   Team and the Bay Conservation Corps of Tampa Bay Watch.                                         0
                                                                                                                                                   0
                                        SCHEDULE:                                                                                                  0
                                        STEP I can be accomplished in 1996, with Step 2, a pilot project, implemented in
                                        1997. Other sites could follow in 1998, with a detailed causeway recreation plan
                                        developed in future years as funding becomes available.

                                        LOCATION:                                                                                                  0
                                        Identified causeways and coastal areas throughout the bay and its tributaries.                             0
                                                                                                                                                   0


                                        COST:
                                        Identification of areas in need of vehicle access restrictions can be accomplished at no
                                        cost by the ABM and Tampa BayWatch. Implementation of the restrictions varies con-
                                        siderably according to how extensive the measures are. The cost of installing bollards                     0
                                        in designated parking areas is approximately $32 per bollard. At least 20-30 bollards                      0
                                        would be needed at most sites, for a total cost of about $ 1,000 per site. Implementing                    0
                                        a full-scale recreational facility, with restrooms, picnic tables and other amenities
                                        would cost a minimum of $100,000 per site, with annual operating expenses estimated
                                        at as much as $80,000, based on two full-time staff people, one vehicle, regular trash
                                        pickup and other services.                                                                                 0
            184                                                                                                                                    0
                                                                                                                                                   0

                                                                                                                                                   0









dft,
aw
ok
Wr             ACTION PLM                                                                Bay Habitats
                                                                                                                 11.1 fill" A r 11
                                                                                                             Charting the Course
               EXPECTED BENEFITS:                                                                               for Tampa Bay
               Controlling vehicle access will permit emergent vegetation to recolonize along now-
               barren areas of the bay shoreline, improving fish and wildlife habitat, reducing erosion
               and adding to the aesthetic appeal of the bay.
                                                                                                              SW6
                                                                                                                . .....................
                                                                                                             . ............
               MONITORING ENVIRONMENTAL RESPONSE:
               Any marsh or mangrove plantings conducted at the sites will be monitored by the
               appropriate state or local agency.


               REGULATORY NEEDS:
               None anticipated. Enforcement of the vehicle access restrictions can be accomplished
               under existing local ordinances.


               RELATED ACTIONS-

               BH-l







































dk
W





dl@




                                                                                                                       185






           DRAIT                       ACTION PLM                                                                   Bay Habitats
       Charting the Course
          for Tampa Bay                Require Mandatory Education for Recreational
                                       Boaters

                  MR.-

               ...............................
                                       ACTION:
                                       Improve boating safety, increase environmental awareness and reduce destruction of
                                       bay habitats by supporting statewide legislation to require mandatory education of
                                       boaters. (Note: Bill number will be inserted once established for 1996 legislative ses-
                                       sion)


                                       BACKGROUND:
                                       During the 1996 legislative session, Florida will again consider legislation to require
                                       boaters to complete an approved boating instruction course or pass a course equiva-
                                       lency exam to operate vessels of 20 hp or more. The education requirements will be
                                       phased in, with boaters bom after October 1980 subject to the course requirements
                                       first. In the year 2000, the legislation will expand to cover boaters bom after October
                                       1975.


                                       Under the proposal, affected boaters must have completed an education course before
                                       operating a boat in state waters. Exemptions are provided for boats operating on pri-
                                       vate (one-owner) lakes or ponds, or persons licensed by the Coast Guard. The bill
                                       offers an equivalency exam for experienced boaters and a temporary certification for
                                       boat renters.


                                       A similar bill was tendered during the 1995 legislative session, but had no sponsors in
                                       the House or Senate and failed to make it out of committee. However, the 1996 ver-
                                       sion of the legislation has received sponsorship from Sen. Karen Johnson and Rep.
                                       Emmett Kelly, and also is supported by the Marine Industry Association, the Personal
                                       Watercraft Association and other marine businesses.


                                       More than 700,000 recreational boats are registered in Florida, with about 100,000 of
                                       those in the tri-county Tampa Bay region. Approximately 6,200 teenage Floridians
                                       would be required to comply with the first phase of the mandatory education.


                                       In 1994, there were 1,017 boating accidents and 74 boating fatalities in Florida. The
                                       Florida Marine Patrol reports that most accidents involved 22- to 35-year-olds,
                                       emphasizing the importance of legislation that eventually will require mandatory edu-
                                       cation for that age group. In addition, the marine patrol reports that 73 percent of all
                                       boat operators have no formal training in boating safety.

                                       Increasing boating activity also has led to extensive damage and destruction of marine
                                       habitats-and the deaths or injuries of manatees, sea turtles and other marine animals.
                                       Studies by the Florida Department of Environmental Protection (FDEP) estimate that
                                       more than one-third of the 25,000 acres of seagrasses in Tampa Bay are scarred as a
                                       result of boats that carve through shallow grass flats or run aground and dredge their
                                       way free. Additionally, between 1976 and 1992, 22 manatee deaths in Tampa Bay

            lag






                ACTION PLM                                                                    Bay Habitats             DRAFT
                                                                                                                   Charting the Course
                were attributed to collisions with boats. To protect the state's marine habitats and                  for Tampa Bay
                inhabitants, the Tampa Bay National Estuary Program (NEP) believes that environ-
                mental impacts should be addressed in any boating education program approved by
                the state.
                                                                                                                  M13     I
0               The proposed legislation would immediately instruct an emerging group of Florida                      ............................
0               boaters in basic boating skills, making them better equipped to navigate safely and
0               more responsibly in Florida waters. Just as important, it would-over time---ensure
0               that the age groups traditionally involved in the most boating accidents receive boat-
10              ing safety instruction before they take to the water. However, because of the age
0               thresholds included in the bill, the vast majority of the state's current boaters will be
0               exempt. At its best, only those bom after 1975 will be subject to mandatory education.
0               Thus, it will be many years before a largely uneducated boating public is replaced by
0               a largely educated one.
0               Candidates would be able to choose from one of any number of courses approved by
                the National Association of State Boating Law Administrators (which requires a mini-
                mum eight hours of instruction) or pursue a home correspondence option with course-
                equivalency exam. Those who pass the exam receive a lifetime certification, which
0               verifies that the operator has successful by completed basic boating safety instruction;
                it is not a license. Certification cannot be revoked and does not require renewal.
                However, failure to obtain the certification will be a second degree misdemeanor, pun-
                ishable by a $250 fine or six months in jail.

                Support for this initiative is widespread. Backers include the major marine industry
                groups, a variety of state agencies and environmental groups and Mothers Against
                Drunk Drivers. A public opinion poll conducted by the Tarnpa Bay NEP in 1992
dL
                showed that almost 90 percent of the Tampa Bay respondents-and approximately 75
                percent from a boaters-only sample-favored mandatory boater education.


                STRATEGY:
                STEP 1     Organize formal support for a mandatory boater education bill that requires
                           phased-in instruction for the majority of Florida bozters and includes envi-
                           ronmental education elements. Draft a letter of support from the Tampa
                           Bay NEP to the Tampa Bay legislative delegation, Governor and Cabinet
                           members, and key legislators chairing committees likely to review the bill,
                           with distribution to area press.
                           Responsible parties: Tampa Bay NEP

                           Organize additional support for legislation through businesses, community
                           and environmental advocacy groups, and individuals represented on the
                           Tampa Bay NEP community advisory committee.
                           Responsible parties: Tampa Bay NEP Community Advisory Committee,
AL                         Agency on Bay Management, Tampa Bay Watch

                STEP 2     Ensure that approved courses include environmental awareness elements
RW
                           such as potential impacts to seagrasses, manatees and sea turtles, and that
                           course instructors have adequate training and materials for such instruction.
                           This effort is being led by the Center for Marine Conservation in coopera-
                                                                                                                              167






           DRAFT                      ACTION PLM                                                                Bay Habitats              0
       Charting the Course                                                                                                                0
          for Tampa Bay                          tion with the Coast Guard.                                                               0
                                                 Responsible parties: FDEP, Centerfor Marine Conservation, Coast                          0
                                                 GuardAuxiliary                                                                           0


                      . .. .......
                                      SCHEDULE:
                 ..................
        . ....         ..........
                                      Step 1 will coincide with the 1996 state legislative session. Step 2 can be initiated in
                                      1996 and continue through 1998, since Florida Marine Patrol staff estimates it will
                                      take two years to establish approved boating safety courses in all 67 counties.


                                      COST:
                                      No costs are anticipated for Step 1 beyond staff time to prepare letters of support.
                                      Step 2 will require FDEP administrative costs and costs for production of materials to
                                      address environmental impacts from boating. Potential sources of funding for these
                                      materials include boat registration fees and saltwater fishing license fees. Boaters will
                                      likely pay a modest registration fee for the boating course to cover administrative
                                      costs.



                                      EXPECTED BENEFITS:
                                      Trained and informed boat operators will result in fewer boating accidents and may
                                      result in decreased impacts to shallow water habitats and marine animals.


                                      MONITORING ENVIRONMENTAL RESPONSE:
                                      The FDEP's ongoing seagrass scarring studies and marine mammal monitoring pro-
                                      grams will help determine if boater education is instrumental in reducing environmen-
                                      tal impacts.


                                      REGULATORY NEEDS:
                                      Legislative passage of [Bill name and number].


                                      RELATED ACTIONS:

                                      BH-3, FW-1, FW-2


















                                                                                                                                          0


                                                                                                                                          0











A&
                ACTION PLM                                                                  Bay Habitats             UKAI I
                                                                                                                 Charting the Course
                                                                                                                    for Tampa Bay
                Encourage Waterfront Residents to Enhance
                Shorelines and Lm*u*t Runoff from Yards



                ACTION.
                Encourage waterfront residents to enhance or naturalize shorelines and limit runoff
                from yards.


                BACKGROUND-
                About half of Tampa Bay's natural shoreline has been altered by development or hard-
                ened through the construction of seawalls, piers and jetties that limit plant and animal
                life. These changes have led to significant declines in intertidal marsh and mangrove
                habitat, which supply food and shelter to numerous species of fish, shellfish and
                invertebrates.


                This action presents steps to encourage waterfront residents to soften or enhance sea-
                walls and shorelines with native vegetation, limestone rip-rap, terracing or habitat
                reefs. When properly designed, these improvements not only benefit the environment,
                but also can boost property values by improving shoreline stability and aesthetic
                appeal. However, cost, permitting complexity, and lack of information about suitable
                options are often key deterrents to homeowners, who also are limited by site-specific
                considerations.


                Local communities seeking to encourage waterfront residents to enhance shorelines
                may gain the most by targeting larger, finger-fill communities, where group permits
                are feasible, especially when seawalls are replaced or repaired.

                Limiting pollution in runoff from waterfront yards also is encouraged. Residents can
                help to reduce pollution to Tampa Bay by applying the eco-landscaping techniques
Al
1W              prescribed by the Florida Yards & Neighborhoods (FY&N) Program, which is admin-
d1k             istered by local cooperative extension services. A companion FY&N homeowner's
                guide, which features low-maintenance landscape design and maintenance tips, is ide-
                ally suited to the environmentally conscious waterfront resident. Adopt-A-Canal pro-
                grams also may be effective in select areas in improving water and habitat quality in
                canals through public stewardship and education. Another issue of concern to canal-
                front residents is maintenance dredging, which is addressed as a separate action plan
                (See Action DR-2).


                STRATEGY-.
                The following strategy focuses on incentives and efforts to streamline procedures for
                residential shoreline enhancement, as well as informational resources to assist water-
                front residents in evaluating shoreline options and implementing landscaping practices
                to reduce runoff from their yards.

                STEP 1     Develop property tax incentives or dis-incentives to encourage habitat
                           enhancement along seawalls, and establish cost-share programs to promote
                                                                                                                            lee






           DRAFT                     ACTION PLAN                                                                 Bay Habitats              9
       Charting the Course                                                                                                                 9
          for Tampa Bay                         group-permit shoreline enhancement projects.                                               0
                                                Responsible parties: local governments, Southwest Florida Water                            0
                                                Management District (SWFWMD), in cooperation with Florida                                  40
                                                Department of Environmental Protection (FDEP) Beaches and Shores
                     ........... . ..
              .. ......... ....  ...........
                                                Division

          .. ........ .....
                    ........ ......
              ........... ...... ........
                    .......................
                   ................ . .....
                                     STEP 2     Initiate rdle-making to develop a low-fee or cost-free General Permit that                 0
                                                streamlines application process for group and individual shoreline enhance-                0
                                                ment.                                                                                      0
                                                Responsible parties: S WFWMD, FDER, local governments                                      0
                                                                                                                                           0
                                     STEP 3     Amend state rules to require that habitat enhancement features be incorpo-                 0
                                                rated when seawalls are constructed or repaired.                                           0
                                                Responsible parties: FDEP                                                                  40
                                     STEP 4     Develop and distribute a resource card (#10-envelope size) to waterfront                   0
                                                residents through annual property tax notices to promote available                         0
                                                resources and publications addressing shoreline enhancement, waterfront
                                                landscaping, exotic plant control and canal dredging. Publications noted
                                                below should be featured, as well as brochures on exotic species control
                                                and residential canal dredging. The resource card also should reference
                                                local property tax incentives and cost-share programs available for group
                                                shoreline enhancement projects.
                                                Responsible parties: local governments and the Tampa Bay National
                                                Estuary Program (NEP) (production), Tax Assessors Offices (distribu-
                                                tion), also distribute through Tampa Bay Watch, Agency of Bay
                                                Management (ABM)

                                     4.1        SV&-WMD's 1993 report on Best Manage       ment Practices for Improvement
                                                of Residential Canals includes informative boilerplate text for a public
                                                brochure on enhancement of hardened shorelines. Text should be expanded
                                                to provide more detail on general shoreline design options, associated
                                                costs, and appropriate contacts, and then produced as a brochure for public
                                                distribution.
                                                Responsible parties: SWFWMD (brochure), SWFWMD and local gov-
                                                ernments (distribution), Florida Sea Grant Extension Program

                                     4.2        The FY&N Handbook, produced by the Florida Cooperative Ext        ension
                                                Service and the National Estuary Programs of Tampa Bay and Sarasota
                                                Bay, assists residents in designing and maintaining low-maintenance, envi-
                                                ronmentally beneficial Florida Yards, which minimize fertilizer, pesticide
                                                and water use. Special sections are devoted to waterfront landscaping,
                                                shoreline enhancement, and septic tank maintenance. Local governments
                                                may arrange for reprints of this publication through FCES or refer inquiries
                                                to local cooperative extension services.
                                                Responsible parties: local governments, Florida Cooperative Extension
                                                Service


                                                                                                                                           A&


             172






            ACTION PLM                                                   Bay Habitats       DRAFT
9k
                                                                                          Charting the Course
            STEP 5  Explore the costs and benefits of implementing Adopt-A-Canal programs in for Tampa Bay
                    areas with strong neighborhood associations. Include existing materials as
                    core of a curriculum, but also promote proper boat maintenance and oil-
                    sorb products for boat bilges. Encourage backyard maintenance-free (or      ..............
10                  low-maintenance) buffer zones to limit fertilizer and pesticides in direct
                    runoff.
                                                                                                 ...........
                    Responsible parties: local governments, Florida Seagrant (Marine
                    Extension agents)


            SCHEDULE.
            All projects can be initiated in 1996 for implementation in 1997. Incentives and cost-
            share options will be investigated by the Tampa Bay NEP, which also will develop
            boilerplate design and text for the resource card (Step 4) to provide to local govern-
            ments. These elements will be included in the final version of the plan.


            COST:
            The Program is investigating costs to produce: 1. Resource card-100K quantity, #10
            envelope-size color cardstock, printed 2 sides/1 color; 2. Brochure on shoreline
            options, 25K quantity, first run. Reprint costs for the FY&N handbook are $1 per
            book. Local governments can achieve cost-recovery by providing these materials at
            cost of production as an alternative to free distribution.

            Tax incentives and cost-share programs may be pursued through existing ad valorem
            taxes and river basin boards.


            EXPECTED BENEFITS-
            Improved shoreline habitat and water quality and associated increases in fisheries.


            MONITORING ENVIRONMENTAL RESPONSE:
            Existing bay monitoring programs will track trends in water quality and habitats.
            Environmental response also may be assessed by monitoring group permits for shore-
            line enhancement.


            REGULATORY NEEDS-.
            Possible amendments to Florida Administrative Code, Chapters 4013-4, 17-4, 17-312.

_ol

            RELATED ACTIONS.

            SW-1, DR-2, BH-1










                                                                                                  171






            DRAFT                        ACTION PLM                                                                       Bay Habitats
        Charting the Course
           for Tampa Bay                 Improve Compffance with and Enforcement of
                                         Wetland Permits




           .. ... . . ........ ..........
                                         ACTION:
                                         Improve compliance with and enforcement of permits governing wetland mitigation                              0
                                         by establishing level-of-service targets, providing periodic performance assessments,                        0
                                         and continuing efforts to coordinate permitting and enforcement staff to provide                             0
                                         greater continuity in oversight.                                                                             0


                                         BACKGROUND:
                                         State rules regarding mitigation for wetland impacts have been developed to offset
                                         wetland losses. However, a study of mitigation compliance completed by the Florida
                                         Department of Environmental Regulation (now FDEP) in 1992 concluded that the
                                         majority of mitigation projects had either never been constructed or failed to comply
                                         with the terms of their permit and did not function properly. The generally low suc-
                                         cess rate statewide has been largely attributed to staffing shortfalls and organizational
                                         structures that have traditionally segmented rather than integrated permitting, compli-
                                         ance monitoring and enforcement functions. Without strong compliance monitoring
                                         and enforcement, regulated interests often have little incentive to perform compen-
                                         satory mitigation in a manner consistent with the rules.

                                         Wetland mitigation rules are administered by the FDEP (through the agency's wetland
                                         resource permitting program), SWFWMD (through the Management and Storage of
                                         Surface Waters [MSSW] program), and by local governments with delegated or leg-
                                         islative authority for wetland permitting.*

                                         Non-compliance with wetland mitigation permits in the Tampa Bay watershed has
                                         likely contributed to a net loss of both freshwater and tidal wetlands. However, docu-
                                         menting these trends has been extremely difficult because efforts to track compliance
                                         between and within various regulatory agencies has been inconsistent and lacking in
                                         sufficient detail. Inconsistent mitigation ratios, wetland delineation criteria, and
                                         design and performance standards have further complicated efforts to assess results.

                                         Improving permit compliance will require that agencies focus first on recognizing and
                                         permitting effective mitigation designs, as well as increasing inspections during and
                                         after construction, and following up to promote better project maintenance by regulat-
                                         ed interests. Access to mitigation sites also is a factor. In this regard, locally adminis-
                                         tered programs may have an advantage over state or regional programs.

                                         The state's new Environmental Resource Permitting (ERP) program, which consoli-
                                         dates existing Wetland Resource, MSSW, and Sovereign Lands regulatory programs
                                         into a single permitting function, is expected to improve compliance monitoring and
                                         enforcement by increasing interagency coordination and reducing inconsistencies and
                                         duplication. Implementation of the ERP will create key opportunities for the consoli-                        M

                                           Pinellas County has been delegated authority from SWFWMD to administer its own wetland and
              172                        stormwater permits. The Environmental Protection Commission of Hillsborough County (EPCHC) has
                                         received legislative authority from the state for local permitting.











                                                                                                                         X-M,
               ACTIM PLM                                                                  Bay Habitats             MAN
                                                                                                               Charting the Course
               dation and reorganization of these functions within regulatory agencies and participat-            for Tampa Bay
               ing local governments, and the creation of uniform standards for wetland delineation.


               STRATEGY-
               The strategy to improve wetland permit compliance monitoring and enforcement
               focuses on establishing level-of-service targets, continued implementation and period-
               ic assessment of integrated permitting concepts advanced through the ERP program,
               and evaluation of existing staffing and funding resources and needs as the basis for
dW             recommendations for action. This strategy also calls for standardization of monitoring
               and reporting requirements within and between enforcing agencies and municipalities.

               STEP I     Conduct a workshop to establish level-of-service targets for wetland per-
                          mits (performance criteria and monitoring requirements) and compliance
                          monitoring and enforcement within the Tampa Bay watershed, and assess
                          associated staff and funding needs. Participants also should evaluate ways
dL
mr                        to standardize reporting and monitoring methods between and within agen-
                          cies.


                          Recommendations of actions to improve compliance monitoring and
                          enforcement shall be submitted by the group to the Tampa Bay NEP by
                          March 1997. As a first step, participants are called upon to define steps
                          and issues to be addressed in the workshop and make recommendations by
                          May 1996, for incorporation into the final Comprehensive Conservation
                          Management Plan (CCMP) for Tampa Bay.
                          Responsible parties: FDEP and SWFWMD (to organize workshop): par-
                          dcipants to include U.S. Army Corps of Engineers (USACE), EPCHC,
                          U.S. Fish & Wildlife Service (USFWS), Florida Game and Fresh Water
                          Fish Commission (FGFWFQ, Pinellas County, and other local govern-
                          ments that may be seeking delegated authority for wetland permitting

                          Note: See Action SW-7 addressing stormwater compliance monitoring and
                          enforcement. Strategy elements for assessment of stormwater and wetland
dft,                      compliance monitoringlenforcement needs may be combined

               STEP 2     Expand agency and local government permitting staff training and regular
                          retraining to increase the emphasis on recognizing quality wetland mitiga-
                          tion designs as a first step to ensure that quality projects are permitted.
                          Responsible parties: S WFWMD and FDER, USA CE, EPCHC, USFWS,
                          FGFWFC, Pinellas County

               STEP 3     Continue to integrate permitting and compliance monitoring and enforce-
                          ment functions in an effort to maximize efficiency and provide "cradle to
                          grave" permit oversight. Also, encourage interagency compliance monitor-
                          ing teams where feasible, including federal agencies.
                          Responsible parties: FDEP, SWFWMD, EPCHC, USFWS, FGFWFC,
                          applicable local governments

               STEP4      Based on recommendations from Step 1, standardize mitigation success cri-
                          teria as well as monitoring and reporting requirements for created and
                                                                                                                          173






           DRAFT                        ACTION PLM                                                                    Bqv Habitats
        Charting the Course
          for Tampa Bay                            restored wetlands.
                                                   Responsible parties: FDEP, SWFWMD, EPCHC, USFWS, FGFWFC,
                                                   applicable local governments

                                        STEP 5     Assess the effectiveness of efforts to improve compliance monitoring and
                        ... .......
                                                   e
                                                        rcement in the Tampa Bay watershed, including progress toward level-
                                                    nfo
                                                   of-service targets (particularly compliance rates), results of integrating staff
                                                   to assist in these efforts, and associated costs to agencies and applicants.
                                                   Results of the assessment should be reported in the Agency on Bay
                                                   Management's State of the Bay report and in periodic progress reports
                                                   tracking implementation of the CCMP.
                                                   Responsible parties: FDEP, SWFWMD, EPCHC, USFWS, FGFWFC,
                                                   applicable local governments


                                        SCHEDULE:
                                        A preliminary "scope" for the workshop is requested by February 1996, for incorpora-
                                        tion into the final CCMP. Recommendations from the workshop are due March 1997.
                                        Implementation of Steps 3 and 4 can begin in 1997.


                                        COST:
                                        Only staff time is anticipated in the implementation of this strategy, although recom-
                                        mendations from step 1 may call for additional resources or changes in existing allo-
                                        cations.



                                        EXPECTED BENEFITS:
                                        Improved permit compliance monitoring, enforcement and reporting.


                                        MONITORING ENVIRONMENTAL RESPONSE:
                                        See Step 5.


                                        REGULATORY NEEDS:
                                        Possible amendments to procedural and administrative rules of the Florida
                                        Administrative Code, Chapter 40D-4.


                                        RELATED ACTIONS:

                                        SW-7















             174






               ACTION PLM                                                                   Bay Habitats            I I R AX
                                                                                                                 Charting the Course
               Expand Habitat Mapping and Monitoring                                                               for Tampa Bay
               Programs



               ACTION.
               Ensure implementation of adequate habitat mapping and monitoring programs to track
               trends in areal extent and quality of seagrass, mangroves, coastal marshes and oligo-
               haline habitats in Tampa Bay over time.


               BACKGROUND:
               A critical element of the bay's management plan is the establishment and maintenance
               of a monitoring program to measure progress toward meeting the goals of the Tampa
               Bay National Estuary Program (NEP). This is very important to the local and state
               governments. implementing actions, since counties, cities and state agencies must have
               adequate information to evaluate whether efforts spent on pollution abatement or other
               changes in the watershed are reflected in improvements in bay quality. Monitoring of
               habitats is also necessary to track progress toward reaching long-term restoration and
               protection goals set by the program, and provide essential information that can be
               used to redirect and refocus the plan.

               One of the first efforts of the Tampa Bay NEP was to initiate a multi-year effort to
               develop a baywide monitoring program capable of reliably measuring changes in bay
               quality. This plan incorporates and expands on existing programs where possible, and
               consists of seven major elements: water quality, benthic, seagrass, bay scallop, fish-
               eries, coastal marshes and mangroves, and oligohaline habitats.

               This action ensures implementation of habitat monitoring elements defined in the bay-
               wide monitoring plan.


               STRATEGY:
               STEP 1      Continue existing Southwest Florida Water Management District-Surface
                           Water Improvement and Management (SWFWMD-SWIM) monitoring pro-
                           gram mapping areal extent of seagrass in Tampa Bay, to track trends in
                           areal extent and progress toward restoration goal.


                           The extent of seagrass coverage in all areas of Tampa Bay is currently
                           being monitored by SWFWMD-SWIM every two years. To date, no per-
                           manent funding source for the mapping program has been identified.
                           Responsible parties: SWFWMD

RW
.01            STEP 2      Implement the Seagrass Conditions Monitoring Program as developed by
RW
dft                        the Tampa Bay NIFP Technical Advisory Committee. Hillsborough County
W
.0.                        monitors seagrass conditions in Cockroach Bay, and Pinellas County con-
.W                         ducts seagrass monitoring in Fort DeSoto Park.

                           SWFWMD-SVVJM is conducting the first year of the Seagrass Conditions
                                                                                                                            175






           DRAFT                       ACTION PLM                                                                   Bqy Habitats               0
        Charting the Course                                                                                                                    0
          for Tampa Bay                           Monitoring Program throughout the bay as a pilot project. Potential respon-                  0
                                                  sible entities for conducting quarterly seagrass conditions monitoring in                    49
                                                  upcoming years remain to be identified. The City of Tampa conducts sea-                      9
                                                  grass quality monitoring in Hillsborough Bay.
                     X                            Responsible parties: SWFWMD, Florida Department of Environmental
                                                  Protection-Florida Marine Research Institute (FDEPIFMRI)

                                       STEP 3     Continue existing annual benthic monitoring through 1996. Evaluate
                                                  results of the four-year baseline in 1997 and redirect the program as appro-
                                                  priate.
                                                  Responsible parties: Hillsborough, Pinellas and Manatee counties

                                       STEP 4     Develop and implement a monitoring program to track habitat quantity and
                                                  quality in mangroves, coastal marshes, ohgohaline habitats and associated
                                                  uplands.

                                                  Development of these elements of the habitat monitoring program will be
                                                  initiated as part of the habitat restoration and protection master plan. This
                                                  plan will identify responsible entities for implementation.                                  49
                                                  Responsible parties: to be determined. Responsible parties may include                       0
                                                  SWFWMD, FDEP, local governments                                                              49
                                                                                                                                               0
                                       STEP 5     Report results and integration of environmental monitoring programs to
                                                  bay managers on a regular basis, to allow for redirection and refocus of
                                                  management programs as necessary.


                                                  A template Biannual Environmental Monitoring Report (BEMR) is under
                                                  development. Each ongoing monitoring program is responsible for the
                                                  development of a summary chapter in the BEMR. An integral element of
                                                  the report will be the bay managers' summary, which will contain an inte-
                                                  grated analysis of conditions and trends in Tampa Bay. Areas of the bay
                                                  that show signs of degradation or improvement will be noted in the bay
                                                  managers' summary, to allow for changes in management actions as war-                        41
                                                  ranted.                                                                                      49
                                                  Responsible parties: initial effort part of a 1995 Tampa Bay NEP project.                    0
                                                  The long-term coordinatorfor production of the report has notyet been                        0
                                                  determined.


                                       SCHEDULE:
                                       Steps I and 3 are ongoing. Implementation of Step 4 should begin in 1996. The first                     49
                                       biannual monitoring report will be produced in October 1995 as part of an ongoing                       0
                                       Tampa Bay NEP project.                                                                                  41
                                                                                                                                               0
                                       COST:                                                                                                   40
                                       Seagrass mapping: $40,000 every two years for update                                                    0
                                       Seagrass quality: $36,000 every two years                                                               41
                                       Estimated marsh/mangrove/coastal upland mapping: $120,000 for true color and color
                                       infrared baseline maps; $45,000 every two years for update
             178






              ACTION PLAN                                                             Bay Habitats            URAr I
                                                                                                           Charting the Course
              Benthic monitoring: $150,000 annually ($50k per county)                                        for Tampa Bay
              Estimated marsh/mangrove/coastal upland quality: $40,000 every two years
              BEMR: Production, printing and distribution costs every two years, estimated at
              $10,000.
                                                                                                          ..........
                                                                                                                     W.0
                                                                                                          .............
                                                                                                          .. .........
AL            EXPECTED BENEFITS:                                                                          ...........
              Implementation will provide adequate information to track trends in habitat extent and
              quality, and will provide managers with an "early warning system" to detect areas that
Mr
              may need additional management action.


              MONITORING ENVIRONMENTAL RESPONSE:

d&
              Results of all bay monitoring programs will be included in the BEMR.


              REGULATORY NEEDS-.
              None anticipated


              RELATED ACTIONS-.

              BH-1, BH-2, BH-5,











.W






















                                                                                                                    177






          DRAP                    ACTION PLAN                                                         Bay Habitats
       Charting the Course
         for Tampa Bay


























                                                                                                                            AM
                                                                                                                            w
                                                                                                                            Am
                                                                                                                            ,w
                                                                                                                            An






























           170






                ACTION PUW                                                                    Bay Habitats             DRAFT
                                                                                                                    Charting the Course
                                                                                                                      for Tampa Bay
                FRESHWATER ]INFLOW


                                                                                                                       ..........................
                                                                                                                        . . ....................
                Maintaining an adequate supply of fresh water to Tampa Bay and its tributaries is cru-
                cial to preserving the bay's health. This is especially important for rivers impounded
                by dams that drastically restrict those flows at certain times of the year.

                The bay's four major rivers and numerous smaller tributaries provide critical low-
                salinity habitats to dozens of species of fish and shellfish at important stages in their
                development. They are the primary nursery habitat for red drum, snook and striped
                mullet. While these dynamic habitats tend to be small, they may support thousands of
                juvenile fish each year. As these fish mature, they typically move to more saline areas
                of the bay or out into the Gulf of Mexico, although some species return to these rivers
                during various seasons.

                These vital ecosystems have declined as dams and development have altered the
                amount and timing of freshwater inflows to the bay. Additionally, many smaller creeks
                and streams that once served as nurseries to fish have now been channeled, filled or
                altered through development.

                The area's largest dams, on the Hillsborough and Manatee Rivers, release almost no
                water downstream during peak periods of the dry season; annually, they retain about
                35 percent and 29 percent of their respective up-river flows for drinking, irrigation,
                and industrial uses.


                Recent studies show little overall change in the amount of freshwater entering the bay
0               proper since the 1950s, because declines in natural flows have been partially coun-
                tered by steady increases in stormwater runoff from the watershed. But some signifi-
                cant changes have occurred upstream in the low-salinity zones favored by the young
                of many of the bay's most popular fish. Declines here and associated declines in fish-
                eries make preservation and restoration of remaining low-salinity habitats vital.

                Strategies to preserve and restore Tampa Bay's freshwater tidal streams are addressed
                in the Tampa Bay NEP's master plan for habitat restoration, which will be finalized in
                early 1996 (see BH-1). The following action focuses on establishing seasonal freshwa-
                ter inflows to the bay from rivers impounded by darns.
dt
                MANAGEMENT OBJECTIVES
4W
dEL
                           Maintain optimal freshwater inflows to Tampa Bay and its tributaries.


                           Establish and maintain minimum seasonal freshwater inflows for rivers
                           impounded by dams: Hillsborough River, Manatee River, Braden River and
                           Palm River.



                ACTION TO ADDRESS FRESHWATER INFLOW

                F1_ I      Establish and maintain minimum seasonal freshwater flows downstream of
                           darns.
                                                                                                                               179






           DRAFT                       ACTION PLM                                                                    Bay Habitats
       Cizarting the Course
          for Tampa Bay                Establish and Maintain Minimum Seasonal
                                       Freshwater Flows Downstream of Dams



                                       ACTION:
                                       While safeguarding water supply and flood control functions, establish and maintain
                                       minimum seasonal freshwater inflows downstream of dams on the Hillsborough,
                                       Manatee and Braden rivers, and below Control Structure S-160 on the Palm River, to
                                       restore and preserve the biological productivity of the estuary's critical juvenile fish-
                                       eries habitats.


                                       BACKGROUND:
                                       Estuaries, where fresh water and salt water mix, are highly productive natural habitats
                                       for fish and other marine life. The juveniles of many aquatic species, including spot-
                                       ted seatrout, snook, red drum and tarpon, depend on the low- and medium-salinity
                                       portions of these shallow waters, especially in the tidal sections of rivers and streams.
                                       However, the productivity of these habitats as nurseries and feeding areas depends
                                       largely on maintaining an adequate supply of freshwater from upstream at various
                                       times of the year.

                                       In this region, fresh water from reservoirs and ground water supply potable water for
                                       drinking, irrigation and industrial uses. Demand for fresh water in the tri-county area
                                       is expected to increase from 544 million gallons per day (mgd) in 1990 to 765 mgd in
                                       2020, according to the Southwest Florida Water Management District (SWFWMD).

                                       Florida Statutes Section 373.042 (1991) directs the state's water management districts
                                       to establish "minimum flows" for watercourses and "minimum levels" for surface
                                       waters and aquifers. Minimum flows are defined in the statute as the limits at which
                                       further withdrawals would be "significantly harmful to the water resources or ecology
                                       of the area." Additionally, district Water Management Plans (DWMPs) identify strate-
                                       gies to address ecosystem needs, including schedules for establishing minimum flows
                                       and levels [Chapter 62-40.473, FAC].

                                       Minimum flows based on river ecology have not yet been set for the Hillsborough,
                                       Palm and Braden rivers. A preliminary minimum flow of 0.425 cubic feet per second
                                       (roughly 275,000 gallons per day), which is the estimated leakage from the dam, was
                                       set for the Manatee River in 199 1; the flow's adequacy is now being examined by
                                       SWFWMD in cooperation with Manatee County.

                                       Minimal flows were not required when control structures were constructed on the
                                       Hillsborough, Palm, Braden and Manatee rivers (all before 1972). Nevertheless, a
                                       series of ongoing and recently completed studies should provide SWFWMD with suf-
                                       ficient information to set thresholds for each river to protect the productivity of the
                                       river and the bay downstream.

                                       A minimum flow is not planned for the Alafia River because the SWFWMD Needs

             186








                ACTION PLM                                                                     Bay Habitats

                                                                                                                     Charting the Course
                and Sources Study concluded that water supplies were not needed from the Alafia for                    for Tampa Bay
dft             the 1990-2020 planning horizon.
W
ML
                Other studies on the Braden, Hillsborough, Manatee and Little Manatee rivers, and the
                                                                                                                    ..... ....
                                                                                                                    . . ........
                                                                                                                    ... .................
                Tampa Bypass Canal, have addressed various aspects of river flow and ecology.
                                                                                                                        ................. .... .
                Evaluation of these studies will provide information necessary to set minimum flow
                requirements.


                STRATEGY-
                This action is to evaluate and set minimum seasonal freshwater inflows to Tampa Bay
                to protect the ecological integrity of vital downstream fisheries habitats.

                STEP I     Conduct technical workshops for each impounded river to evaluate results
                           of freshwater studies and develop recommendations for minimum freshwa-
                           ter flow requirements.

                           Tampa Bay National Estuary Program (NEP)-sponsored workshops are
                           ongoing and include analysis of technical studies, discussions of alterna-
                           tives, and efforts to gain commitments from participants for consensus rec-
                           ommendations. An initial workshop on the Manatee River was held in
                           August 1995. Workshop participants include representatives of local gov-
                           ernments, SWFWMD, Florida Department of Environmental Protection,
                           scientists and engineers, utilities and interest groups.

                           In assessing available studies, participants will consider:
                                0  whether flows to the downstream portions of impounded rivers have
                                   been quantified

                                0  whether sufficient information exists to identify a set of target "liv-
                                   ing resources" and their environmental requirements as a basis for
                                   establishing minimum flow recommendations
                                0  if appropriate flows to restore and maintain low-salinity habitats can
                                   actually be determined from the studies
                                0  the impacts of various flow release scenarios on public water sup-
                                   plies and economic development.

                           Responsible padies: Tampa Bay NEP

                STEP 2     Establish seasonal flow requirements by renewal dates for water use per-
                           mits for the Hillsborough, Palm, Manatee and Braden rivers, incorporating
                           recommendations from Step 1, along with other socio-economic and envi-
d1k                        ronmental factors.
lift                       Responsible paHies: SWFWMD
W
d1h.
                STEP 3     Implement minimum seasonal flows. Implementing parties may evaluate
                           and pursue various options to meet minimum flow requirements, including
                           water conservation to reduce demand on impounded water; augmentation
                           of wellfields or reservoirs with highly treated wastewater or stormwater, as
                           long as public health concerns are addressed; and relocating point source
                                                                                                                               181






           DRAFT                       ACTION PLM                                                                  Bay Habitats
                                                                                                                                             0
       Charting the Course
          for Tampa Bay                          discharges to augment freshwater flows downstream of dams.
                                                 Responsible parties: local governments, West Coast Regional Water
                                                 Supply Authority (WCRWSA)

        ............
                                       STEP 4    Monitor the environmental response. Develop and implement a program to
                       . .........               determine spatial and temporal changes in water quality and in-stream biol-
                                                 ogy in response to these limits, perhaps by expanding local government
                                                 water quality and benthic monitoring programs to address these monitoring
                                                 needs.
                                                 Responsible parties: to-be-determined (possibly permit applicant)


                                       SCHEDULE:
                                       Ecological assessment studies are now being conducted as a permit condition for
                                       water use withdrawals. SV;FWMD will evaluate withdrawal rates and recommended
                                       minimum flows for each river by the pen-nit renewal dates, which are:


                                       Manatee River & Braden River              1997
                                       Hillsborough River & Palm River           2000 (flows will be set in 1995-96)


                                       COST:
                                       Steps 1 and 2 require administrative and staff time and associated studies, which are
                                       financed by the local governments seeking permits for water withdrawals. Costs to
                                       comply with seasonal minimum flows (Step 3) will depend on the magnitude of the
                                       effort. One basis for cost analysis is to compute the cost and yield for various alterna-             0
                                       tive sources of water, such as construction of a new reservoir, to replace the amount of              0
                                       additional water released downstream.                                                                 0
                                       For example, Manatee County residents now pay about $1.62 per 1,000 gaHons to                         0
                                       have water delivered to their homes, which includes reservoir and treatment costs and                 0
                                       a Readiness to Serve charge. To meet a 5.0 efs freshwater flow (up from .0425) from                   49
                                       the existing dam would require new alternative potable water sources, ranging from                    is
                                       $.08 per 1,000 gallons for construction of a new reservoir at Gilley Creek to nearly                  40
                                       $.80 per 1,000 gallons for development of an off-stream reservoir. Both options
                                       would increase potable yields, in addition to allowing more water over the dam to sus-                40
                                       tain the biological needs of downstream ecosystems.                                                   0

                                       For the average Manatee County household, which uses roughly 6,500 gallons per
                                       month indoors, the Gilley Creek option would increase monthly water bills by about
                                       4.9 percent or $0.52 per month. For the off-stream reservoir option, monthly water
                                       biRs would rise 49 percent or an additional $5.14 per month.

                                       The costs to monitor the environmental response to minimum flows have not yet been                    41
                                       finalized. However, Manatee County estimates that it spends about $100,000 now to                     0
                                       monitor water quality downstream of the reservoir, which is about half of the county's                41
                                       annual bay monitoring expenditure.                                                                    a

                                       EXPECTED BENEFITS:
                                       Establishing and maintaining appropriate freshwater inflows to the bay from rivers

             let








               ACTION PLM                                                               Bay Habitats
                                                                                                                DRAFT
                                                                                                            Charting the Cour-se
               impounded by dams will restore and protect vital fisheries habitat downstream of                for Tampa Bay
               those control structures. Low-salinity portions of these tributaries are vital nursery
               areas for several species of fish, including red drum and snook.


               MONITORING ENVIRONMENTAL RESPONSE:
               Ongoing fisheries, water quality and benthic monitoring programs (summarized in
               Monitoring Bay Improvement) are used to track the overall environmental quality of
               the bay and its tributaries. Water flows or release rates are recorded by Manatee
               County at the Lake Manatee dam on the Manatee River, and by the City of Bradenton
               at the Evers Reservoir dam on the Braden River. SWFWMD records flow at the
               Tampa Bypass Canal (Palm River), and USGS records flow at the Hillsborough
               Reservoir dam.


               Monitoring to detect environmental responses to new freshwater inflows set as a result
               of this action may be required as a condition for the renewal of water use permits.


               REGULATORY NEEDS.
               None anticipated.


               RELATED ACTIONS:

               BH- 1, WW- 1

































                                                                                                                      183












                 .:X 4x
                                       ACTION PLM                                                                   Bay Habitats

       Charting the Course
          for Tampa Bay
                                                 What You Can Do...
                                                                                                                                              0
                                           To Protect and Restore Bay Habitats
                                           As a homeowner:
                                           E    Where seawalls exist, investigate opportunities to enhance or soften
                                                shorelines with vegetation or rip-rap and to install artificial reefs to pro-
                                                vide habitat for young fish.
                                           N    Remove Brazilian pepper, melaleuca trees and other invasive exotic
                                                plants from your property and plant native flowers, trees and shrubs.
                                           E    Avoid pruning mangroves, which provide important habitat for fish and
                                                wildlife.

                                           0    Support local and state habitat restoration and land acquisition and pro-
                                                tection programs.

                                           0    Visit a bay restoration site to learn how coastal habitats are restored and
                                                why. Contact the Southwest Florida Water Management District SWIM
                                                department or your local government environmental department.
                                           E Join the Bay Conservation Corps directed by Tampa BAYWATCH for
                                                hands-on involvement in the bay's restoration and protection.
                                           0    Take a walk on the wild side with The Florida Aquarium by participating
                                                in weekend BayWalks at Weedon Island Preserve in Pinellas County and
                                                Tampa's McKay Bay.

                                           As a boater:

                                           0 Use channel markers and up-to-date navigation and tide charts to avoid
                                                running aground on or scarring seagrass beds.

                                           E Obey regulations restricting boat access to certain portions of the bay.

                                           As a neighborhood, civic group member or educator:

                                           E Encourage your group to participate in a wetland restoration or bay
                                                improvement project. For ideas and information, contact Tampa BAY-
                                                WATCH and the Southwest Florida Water Management District SWIM
                                                department.



                                           Portions of What You Can Do are reprinted with permission from the Sarasota
                                                Bay National Estuary Program.







                                                                                                                                              0








               ACTION PLM                                                           Bay Fish & Wildlife            unRr i
z                                                                                                               Charting the Course
                                                                                                                   for Tampa Bay
               FI'sh
                                                                                                                ..........
                                                                                                                ..........


                                                                                                                .... ......
                                                                                                     . .............................






               E
                      fforts by the Tampa Bay National Estuary Program (NEP) to protect and
                      enhance Tampa Bay's diverse fish and wildlife resources focus primarily on
                      establishing healthy environments through improvements in water quality and
               habitats. But increased enforcement of existing regulations to limit physical impacts
               associated with fishing, boating, and foot traffic in bird rookery areas also is a priority.

               Hundreds of species of marine and terrestrial animals rely on Tampa Bay and the rich
               tapestry of environments it provides. Mangrove islands in Tampa Bay are among the
               most productive nesting sites in the nation for birds such as the brown pelican, roseate
               spooribill, white ibis and reddish egret. As many as 40,000 pairs of birds nest each
               year on these islands, which support two of the state's five largest brown pelican
               colonies. Other birds, such as the American white pelican from Canada and several
               species of the sandpiper, are seasonal visitors to the bay.
Z              Tampa Bay also attracts as many as 200 endangered manatees during the winter
               months, when the gentle marine mammals gather at the warm-water plumes dis-
               charged by the power plants bordering the bay. About 50- 100 of these gentle giants
               are year-round residents. Manatee mortality has tripled in Tampa Bay from an annual
ah
4W             average of about 4 (from 1976-1985) to more than 12 (from 1990-1994). Boating col-
z              lisions and propeller strikes claimed about 20 percent of the 61 manatees that died in
               the bay during this last four-year period.

               Three species of sea turtles-loggerhead, green and Kemp's ridley-feed in the bay,
               and as many as 500 bottle-nose dolphins reside here year-round. Like the manatee,
               these larger marine creatures are threatened by accidental boat strikes and ingestion of
               and entanglement by marine debris, particularly monofilament fishing line.

               The bay's once plentiful supplies of fish and shellfish have declined in recent decades,
               a result of habitat loss and historic declines in water quality as well as pressures from
               overharvesting. Recent bans on purse seines and gill nets are expected to sharply
               reduce commercial harvesting of some species, such as spotted seatrout. While a pre-
               cise figure of the historical decline is difficult to estimate, fisheries scientists report
               that the amount of bay finfish brought to market at local ports in Hillsborough and
               Pinellas counties decreased by more than 24 percent between 1966 and 1990, from 4.8
               million pounds to 3.7 million pounds.

               Records going back even further, to 1950, show that catches of spotted sea trout
               declined by 86 percent by 1990, from 487,000 pounds to 67,000 pounds. Similarly,
               red drum harvests between 1950 and 1986 plummeted by 81 percent, from 80,000
               pounds to 15,000 pounds, although these raw landings data do not reflect changes in
                                        WiI&A
















                                                                                                                          185






        DRAFT              ACTION PLM                                      Bay Fish & Wildlife
     Charting the Course
       for Tampa Bay       fishery management or quotas. Loss of seagrass habitat and overharvesting are sus-
                           pected in the decline of these popular sportfish.

                           Recent water quality gains and associated seagrass recovery have made some bay
                           managers hopeful that the bay may again support scallops, which disappeared from
          ..........
          .................
           ...... ......
                           these waters more than three decades ago. While scientists can't pinpoint the cause
           .............
                           for the collapse of the local population, they suspect declining water quality was to
                           blame. Stocking efforts designed to jump-start a self-sustaining scallop population are
                           now underway, primarily in the lower portions of the bay where seagrasses and sahni-
                           ties are most favorable.


                           Harvests of oysters and clams have been severely limited in the bay because of actual
                           or suspected contamination (see Public Health actions, Water & Sediment Quality
                           Action Plan).

                           Preserving Tampa Bay's rich fish and wildlife bounty will require continued focus on
                           water and sediment quality, improved enforcement to minimize impacts to habitats
                           and wildlife, and restoration and protection of habitats and food sources.


                           MANAGEMENT OBJECTIVES


                           0 Increase the number, diversity and health of the bay's fish and shellfish popula-
                             tions, and restore a self-sustaining bay scallop population.
                           0 Restore and protect wildlife habitats and food sources, and promote regional
                             wildlife habitat planning.
                           0 Minimize physical impacts to bay wildlife and habitats.



                           SUMMARY OF ACTIONS FOR FISH & WELDLIFE
                           [Reader note: Many of the strategies to supportfisheries and wildlife focus on water
                           quality and bay habitats. Please refer to the draft bay action plans addressing Water
                           Quality and Bay Habitats for these related actions.]

                           FW- 1  Improve on-water enforcement of environmental regulations.

                           FW-2   Establish and enforce manatee protection zones.

                           FW-3   Support restoration of the bay scallop.

                           FW-4   Improve public awareness of hazards to bay wildlife.

                           FW-5   Assess the need to investigate the cumulative impacts of power plant
                                  entrainment on bay fisheries.

                           FW-6   Continue and expand the Critical Fisheries Monitoring Program.



         log








                                                                                                                           10
                ACTION PLM                                                              Bay Fish & Wildlife             unnr P
                                                                                                                    Charting the Course
                                                                                                                       for Tampa Bay
                Increase Enforcement of Environmental
                Regulations on the Bay

                                                                                                                      ... ..........
                                                                                                                   . ..................-............
                                                                                                                         .................. ...
                                                                                                                         ......................



                ACTION-.
                Increase enforcement of environmental regulations on Tampa Bay by obtaining sup-
                port for increased allocation of Salt Water Fishing License revenues to marine law
                enforcement.



                BACKGROUNDg
                Efforts by the Tampa Bay National Estuary Program (NEP) to protect Tampa Bay's
                diverse fish and wildlife resources have focused largely on establishing optimum
                water quality and habitat enviromnents. But increased enforcement of existing envi-
                ronmental regulations to minimize impacts associated with fishing, boating and foot
                traffic in bird rookeries, is also a key priority of the Program's strategic blueprint for
                the bay.


                When the Salt Water Fishing License Rule was enacted by the state in 1989, anglers
                and local communities alike expected it to be a boon for local marine enforcement.
                The rule was established to identify and collect a user fee from saltwater anglers for
                the conservation and management of fishery resources. It stipulates that marine
                research and marine enhancement/habitat restoration shall each receive not less
                than 30 percent of the revenues collected, and that no more than 30 percent be allocat-
                ed for marine law enforcement. Remaining revenues are split among the Marine
                Fisheries Commission (2.5 percent), administration (5 percent), and a state environ-
                mental education trust fund (2.5 percent).

                In fact, statewide allocations for marine enforcement have averaged about 20 percent
                over the past five years, which is two-thirds of the 30 percent maximum allowed by
                law and anticipated by many supporters of the bill. Despite allocations statewide, five
                fewer marine patrol officers are assigned to the Tampa Bay district today than when
                the Rule was enacted in 1989.


                Overall, the state has collected more than $68 million since the Salt Water Fishing
                License Rule was enacted. Of $11.8 million in revenues collected from salt water
                fishing licenses and special stamps statewide in FY 93-94, about 17 percent or $2.3
                million was allocated by the Florida Department of Environmental Protection (FDEP)
                to the Florida Marine Patrol for statewide law enforcement. It is not known how
                much of that allocation came back to the Tampa Bay region (District IV, Florida
                Marine Patrol*), which contributed more than $1.4 million in revenues that year.

                District IV's budget has increased by only about 5 to 10 percent annually since the
                passage of the Rule, mostly to compensate for increasing fuel prices, and declined in
                FY 94-95. Requests for additional Marine Patrol officers have not been granted.
                Some suspect that general revenues for the Florida Marine Patrol have been depleted
                as salt water fishing license revenues have been established - a "lottery syndrome"

                                                                                                                               187






        DRAFT                 ACTION PLM                                             Bay Fish & Wildlife
      Charting the Course
        for Tampa Bay         that results in few or no net increases in available funding to address resource needs.

                              The Florida Marine Patrol, a part of the state's Division of Law Enforcement, enforces
                              state saltwater fishing regulations, boating safety rules and other wildlife and habitat
                              protection measures. It also is the first line of defense in emergencies such as marine
             ............ ............. accidents and hurricanes, and employs a select number of special environmental
                              enforcement officers to investigate land-based environmental crimes such as illegal
                              dumping.

                              Enforcement needs are growing on Tampa Bay, which has one of the lowest ratios of
                              marine patrol officers per registered boats-only 1-2 officers per shift per county for
                              nearly 100,000 registered recreational boats. Local municipal marine enforcement
                              units pick up the slack in some counties, but cannot provide the coverage needed to
                              effectively monitor the 400-square-mile bay and adjoining Gulf coastline, according to
                              local Marine Patrol officials. Enforcement needs have increased further with the
                              recent passage of the marine net ban.

                                District IV, which includes Tampa Bay and Sarasota Bay, stretches north to Levy
                              County, south to Sarasota County and east to Polk and flighland counties.


                              STRATEGY-
                              This strategy calls for a review of saltwater fishing license revenue expenditures for
                              marine law enforcement to secure additional marine patrol officers for Tampa Bay,
                              and possible revisions to the state Salt Water Fishing License Rule to require a mini
                              mum allocation for marine law enforcement.


                              STEP 1   Evaluate allocations and expenditures of revenues collected through the
                                       Salt Water Fishing License, as well as general revenue and other related
                                       expenditures by the FDEP marine law enforcement statewide. The Agency
                                       on Bay Management (ABM) has requested and received information about
                                       these revenues, and ABM and NEP may be developing a formal position on
                                       this issue in the near future.
                                       Responsible parties: ABM, TBNEP, FDEP

                              STEP2    Seek FDEP support for the additional allocation of revenues to marine law
                                       enforcement officers in Tampa Bay. Additionally, NEP may consider a for-
                                       mal legislative request to require that a minimum percentage of Salt Water
                                       Fishing License revenues be directed to marine law enforcement.
                                       Responsible parties: ABM, TBNEP, FDEP


                              SCHEDULE:
                              All steps will be initiated in 1996.


                              COST:
                              This action calls for a reallocation of existing funds, rather than new expenditures, to
                              address environmental enforcement needs.



         Ise






               ACTION PLM                                                           Bay Fish & Wildlife               n A CT
                                                                                                                   unnr i
                                                                                                               -Charting the Course
               EXPECTED BENEFITS.                                                                                 for Tampa Bay
               Increased enforcement of the bay's fisheries and environmental regulations will
Mk             improve protection of fish and wildlife, as well as the habitats they depend upon.
wr                                                                                                             @---@@, ...............
M              Efforts to bolster enforcement also send a message to resource users and anglers that
1W
               existing regulations are important, and that the quality of the public's natural resource
                                                                                                                ............................
               won't be sacrificed for the illegal actions of a few.                                              ...............


               MONITORING ENVIRONMENTAL RESPONSE:
               Florida Marine Patrol can provide information annually on enforcement actions and
               associated benefits to the resource. District IV is encouraged to provide this informa-
               tion in the State of the Bay report published annually by the ABM.


               REGULATORY NEEDS:
               Revisions to the state Salt Water Fishing License Rule.


               RELATED ACTIONS-.

               BH-8


                 Revenue and salt water fishing license data provided by FDEP, August 1995





0























                                                                                                                          189






          DRAFT                       ACTION PLAN                                                          Bay Fish & Wildlife
       Cluirting the Course
         for Tampa Bay
                                      Establish and Enforce Manatee Protection Zones



                      ..............
         . ... ........ .
              9W
                                      ACTION:
                      ... .......
                     ...............
               ..... ...........
                                      Officially designate through local ordinance or state rule 10 manatee protection zones
                                      in Tampa Bay. Encourage the use of boat propeller guards outside designated manatee
                                      protection zones.


                                      BACKGROUND:
                                      Research continues to bolster evidence that Tampa Bay is an important year-round or
                                      seasonal home to many endangered manatees. In fact, more than 200 of the estimated
                                      1,800 manatees remaining in the state, or one-sixth of the Florida Gulf Coast popula-
                                      tion, seek refuge in the winter at the warm-water discharges surrounding the bay 's
                                      power plants.' Additionally, the bay's seagrass meadows and numerous natural and
                                      manmade fresh water sources provide critical feeding and gathering areas for mana-
                                      tees throughout the year.

                                      Although several no-wake areas were established in the bay for boater safety, only
                                      one, a protected area in St. Petersburg's Coffeepot Bayou, was created primarily to
                                      protect manatees. Increases in manatee deaths associated with propeller strikes or col-
                                      lisions reinforce the need for more protective measures in Tampa Bay. Manatee
                                      deaths in Tampa Bay and adjacent coastal waters have risen from an average of 4.1
                                      manatees a year between 1976 and 1985, to an average of 10. 1 manatees a year from
                                      1986 -to 1994. Of the 141 manatee deaths verified in the bay area from 1976 to 1994,
                                      29 (17 percent) died from collisions with watercraft.2

                                      The Florida Department of Environmental Protection's (FDEP's) Florida Marine
                                      Research Institute (FMRI) and local manatee experts in academia have identified 10
                                      areas of the bay where manatees would benefit from increased protection, based on
                                      the best available manatee population and distribution data. The areas are important as
                                      either winter refuges from cold water, seagrass feeding areas, sources of fresh water,
                                      or migration routes. The recornmended zones are:

                                      ï¿½   warm-water outfalls of Florida Power Corporation's (FPC's) Bartow and Tampa
                                          Electric Company's (TECO's) Port Sutton power plants ( winter sanctuaries)
                                      ï¿½   Culbreath Bayou in Tampa (seagrass beds land fresh water source)
                                      ï¿½   Anna Maria Sound near Perico Island (seagrasses)

                                      ï¿½   lower Manatee River near Palmetto (fresh water and seagrasses)
                                      ï¿½   upper Braden River near Bradenton (fresh water source)
                                      ï¿½   Hillsborough River near Sulphur Springs (fresh water)
                                      ï¿½   Upper Terra Ceia Bay near the U.S. 19 Bridge (seagrasses)
                                      ï¿½   Terra Ceia Bay near the wastewater treatment plant discharge in Palmetto (fresh
                                          water)
            leg                       *   the mouth of the Little Manatee River up to E.G. Simmons Park (seagrass beds)







                                                                                              nk  A VkV
             ACTION PLM                                             Bay Fish & Wildlife
                                                                                           Charting the Course
             0  the Rocky Point area, southwest side of the Courtney Campbell Causeway (sea- for Tampa Bay
                grass beds)
30           Designation of the zones could be done unilaterally by local governments, or in con-
             junction with rules developed by the FDER Once designated, maximum boating   ...................-. . .....
             speeds and entry restrictions would be put into place for the zones. The limits might @:.:T 2-1.1
             require boaters to travel at idle speeds year-round within the zones, and forbid boat ..........
             entry entirely during certain times of the year such as winter, when large numbers of
             manatees congregate in just a few small areas. The restrictions would be periodically
             re-evaluated and adjusted as needed, based on updated manatee population data.
             Consequently, continued research into manatee movements, habitat requirements and
             mortality should continue.

             The Florida Marine Patrol (IMP) and local marine law enforcement units would
             enforce the restrictions in the manatee zones. However, the amount of money allocat-
             ed to FMP activities in the Tampa Bay area currently is not sufficient to ensure ade-
             quate enforcement, thus this action also proposes additional funding for the FMP
             through the existing Salt Water Fishing License to compensate for any increased
             needs. Enforcement also could be enhanced through public education, as well as citi-
             zen monitoring and reporting of speed violations.

             Recognizing that manatees travel great distances and will not always remain within
             the protected zones, this action also encourages boaters to install special cage-like
             guards on their propellers to avoid causing propeller injuries to manatees outside the
0            protected areas. These guards, which now are manufactured commercially and cost
             about $100 each, also can protect the bay's seagrasses from propeller damage.

0            STRATEGY.-
0            STEP 1   Hold a joint meeting of the Tampa Bay NEP and the Agency on Bay
0                     Management, including a presentation from FMRI, to discuss the justifica-
10                    tion and ramifications of establishing the proposed manatee protection
                      zones. These groups should make a recommendation on implementation to
                      the NEP's Policy Committee.
                      Responsible parties: Tampa Bay NEP, Agency on Bay Management
                      (ABM), FDEPIFMR1

             STEP 2   Implement recommendations from Step 1.
                      Responsible parties: FDEP, local governments

             STEP 3   Increase funding for the Florida Marine Patrol in Tampa Bay (see Action
                      FW- 1) and local law enforcement marine units to ensure adequate enforce-
                      ment of boating speed and entry restrictions within the manatee protection
                      zones.
                      Responsible pany: Florida Legislature (through Salt Water Fishing
                      License revenues), local governments

             STEP 4   Organize and train qualified volunteers to monitor and report speed or entry
                      violations within the protection zones.
                      Responsible parties: FDEP, working with local environmental action
0                     groups such as Tampa BAYWATCH.                                               lei






           DRAFT                      ACTION PLM                                                            Bay Fish & Wildlife             0
       Charting the Course                                                                                                                  0
          for Tampa Bay               STEP 5     Continue ongoing manatee population and mortality studies in Twnpa Bay.                    0
                                                 Reassess justification for the protection zones periodically based on moni-                40
                                                 toring data to determine the need for changes.                                             0
                                                 Responsible parties: FDEPIFMRI

                                      STEP 6     Promote the use of propeller guards to avoid injuring manatees outside the
                                                 protection zones.
                                                 Responsible parties: Tampa BAYWATCH, Florida Conservation
                                                 Association, local boating and environmental groups andfishing clubs


                                      SCHEDULE:
                                      Steps 1-4 can be initiated in 1996, with appropriate rulemaking and financing in place
                                      in 1997. Step 6 also be can initiated in 1996, with demonstrations of the propeller
                                      guards to various boating and fishing groups. Step 5 is an ongoing project that should
                                      continue indefinitely.


                                      COST:
                                      Designation of manatee protection zones would involve administrative and noticing
                                      requirements, as well as posting of designated areas. However, gaining public and
                                      boater support for designation of the zones and associated boating restrictions is
                                      expected to be a staff-intensive effort. Step 3 could be accomplished with a greater
                                      allocation of revenues from the state Salt Water Fishing License, or legislative autho-
                                      rization of a law requiring local governments to transfer 25 percent of funds received in
                                      fines and penalties to the FDEP's FMP for those violations where arrests were made by
                                      FMP officers. The funds received from those transfers should be used exclusively for
                                      increasing enforcement capabilities of the FMP in the district generating the funds.


                                      EXPECTED BENEFITS:
                                      Designation of manatee protection zones will increase protection of manatees and
                                      vital seagrass habitats within Tampa Bay.


                                      MONITORING ENVIRONMENTAL RESPONSE:
                                      FDEP/FMRI currently monitors manatee abundance, distribution and mortality in
                                      Tampa Bay. These reports can be incorporated within the Tampa Bay NEP's Biennual
                                      Environmental Monitoring Report.


                                      REGULATORY NEEDS:
                                      Passage of local ordinances and/or state rules designating manatee zones. Legislative
                                      action also may be needed to ensure adequate funding for FMP and local enforcement
                                      of the restrictions.


                                      RELATED ACTIONS:

                                      BH-4, BH-7, FW-1, FW-4


                                       August 1995 data from Dona Banowitz, manatee statistics coordinator at FMRI
            lot                       2 Ibid.                                                                                               0
                                                                                                                                            0






                                                                                                                           "AH
                ACTION PLAN                                                            Bay Fish & Wildlife             11V lrli
                                                                                                                   Charting the Course
                Support Bay ScAop Restoration                                                                         for Tampa Bay


                ACTION-.
                                                                                                                      ................
                                                                                                                  ........ .................
                                                                                                                   ..... .... ..
                Support bay scallop restoration by assisting stocking, spawning and monitoring                      Vw 311.
                                                                                                                       ..........
                                                                                                                    ................................
                                                                                                                  ..... .....................
                efforts.



                BACKGROUND.
                Improving water quality in Tampa Bay has created opportunities in the southern por-
                tion of the bay for recovery of the bay scallop, which all but disappeared from the bay
                in the 1960s. Experts suspect that bay pollution was a key factor in the collapse of
                this highly sensitive species.

                Studies by the Tampa Bay National Estuary Program (NEP) indicate that bay water
                quality has improved to levels necessary to support the reintroduction of this mollusk.
                However, stock sizes are so depleted that seeding is needed to jumpstart a sustainable
                population.

                To assist recovery, the Tampa Bay NEP has supported pilot projects by the University
                of South Florida (USF) to seed the bay with almost a quarter-million juvenile scallops
                raised in laboratories. Large seed stocks are necessary since natural predation and
                mortality of young scallops is high.

                While improving water quality and observed growth and reproduction of caged scal-
                lops at several bay locations indicate that scallop restoration may be achievable, the
                Tampa Bay NEP also is conducting a study through the Florida Marine Research
                Institute (FMRI) to evaluate the effectiveness of existing stocking strategies. That
                study, due in January 1996, will help bay managers tailor and evaluate the effort.

                Funding from the Program is now directed to the second phase of this effort, which
                has allowed USF to seed an additional 100,000 juvenile scallops with the help of citi-
                zen volunteers recruited along the bay. More than 50 waterfront residents in the
                southern portion of the bay have each adopted as many as 500 juvenile scallops,
                placed in "scallop condominiums" along docks until they spawn. A single adult may
                release as many as 500,000 eggs, but fewer than 5 percent are expected to survive to
                adulthood. Most adult bay scallops die shortly after spawning.

                Other groups also are assisting in efforts to bring about return of the bay scallop. In
                August 1995, Tampa BAYWATCH directed a scallop air lift, with assistance from
                WFLA-TV, the Florida Marine Patrol and the Florida Conservation Association, trans-
                porting nearly 2,000 adult scallops by helicopter to Tampa Bay from the Steinhatchee
                River. The caged mollusks, expected to spawn this fall, have been placed at protected
                sites in Ft. DeSoto Park Aquatic Preserve.







                                                                                                                               193






           DRAFT                      ACTION PLM                                                            Bay Fish & Wildlife
       Charting the Course
          for Tampa Bay               STRATEGY:
                                      STEP 1     Continue support for the scallop stocking program, which is directed by
                                                 USE Phase 1, involving the seeding of almost 250,000 stock, and Phase 2,

          ..........
                       ..........
                                                 which placed an additional 100,000 juvenile scallops at waterfront docks in
                                                 the southern portion of the bay, have been completed.

                                                 Pending a full program evaluation, Phase 3 would support placement of as
                                                 many as two million additional scallops annually over a period of about
                                                 five years.
                                                 Responsible parties: USF


                                      STEP2      Monitor the bay to assess trends in scallop recovery.

                                                         Define monitoring objectives and evaluate the effectiveness of
                                                         using citizens to meet these monitoring needs.

                                                         Develop an alternative monitoring program if existing citizens-mon-
                                                         itoring is deemed insufficient.

                                                 Responsible parties: FMRI (for monitoring objectives, evaluation of citi-
                                                 zens monitoring), to-be-determined (for long-term monitoring) in 1996

                                      STEP 3     Evaluate the effectiveness of existing stocking techniques in assisting bay
                                                 scallop recovery, and provide recommendations to the Tampa Bay NEP by
                                                 early 1996.
                                                 Responsible parties: FMRI in cooperation with USF

                                      STEP4      Fully evaluate the stocking program in Tampa Bay in 1997 to assess
                                                 progress and initial efforts toward re-establishing a sustainable bay scallop
                                                 population in the southern portion of the bay.                                              0

                                                 If a scallop population has not been re-established, and if monitoring and
                                                 program evaluation fail to indicate a reasonable probabilit@ for success,
                                                 determine whether the program should continue, or explore alternative
                                                 techniques that may be more cost-effective. Provide recommendations to
                                                 the Bay Management Coordinating Council by June 1998.
                                                 Responsible party: FHRI in cooperation with USF


                                      SCHEDULE:
                                      STEP1        (Phase 1: 1992-1993) (Phase 2: 1994-1995) (Phase 3, pending evaluation
                                                   of stocking techniques)

                                      STEPS 2,3    Pending results of 1995 studies by FMRI


                                      STEP4        1997
                                                                                                                                             0
                                      COST:                                                                                                  0
                                      Scallops costs for Phase 3, which is pending, are estimated at $.05 each, which
                                      includes administrative support and overhead. Placing 2,000,000 scallops annually
            184                                                                                                                              0
                                                                                                                                             0
                                                                                                                                             0
                                                                                                                                             0








              ACTION PLM                                                   Bay Fish & Wildlife

                                                                                                   Charting the Course
              would cost about $ 100,000. Costs for monitoring and program performance review        for Tampa Bay
              are to-be-determined.



              EXPECTED BENEFITS -
              Recovery of this popular shellfish species, which depends on healthy seagrasses and
                                                                                                   ........................
              favorable water quality conditions, may provide some of the most important evidence
              to date that Tampa Bay is on the course to recovery.


              MONITORING ENVIRONMENTAL RESPONSE:
              The bay will be monitored to track population trends, and sightings and data from
              commercial fishermen will be incorporated. Evaluations will factor in appropriate
              recovery lag time for population recovery.


              REGULATORY NEEDS.
              None anticipated.


              RELATED ACTIONS:

              FW-6









0




0










0
0
40





                                                                                                             115

0
a






           DRAFT                       ACTION PLM                                                            Bay Fish & Wildlife
       Charting the Course                                                                                                                    0
          for Tampa Bay                                                                                                                       0
                                       Improve Public Awareness of Hazards to Bay Wildlife



                                       ACTION:
                                       Improve public awareness of the hazards of marine debris, feeding and other human
                                       impacts to bay wildlife.


                                       BACKGROUND:
                                       Coastal environments are among the most popular recreation areas for people, but
                                       human activities can be detrimental to bay habitats and wildlife. Some activities that
                                       may cause harm include boating and the use of jet skis, propeller scarring of seagrasses,
                                       human and pet intrusion into bird and turtle nesting areas, wildlife feeding, and littering
                                       of bays and beaches with debris and monofilament fishing line.

                                       Plastic bags and monofilament fishing line are among the most hazardous types of
                                       marine debris. Birds and marine animals, such as sea turtles and bottlenose dolphins,                  0
                                       and seabirds that utilize coastal areas for feeding and nesting can become entangled in                0
                                       fishing line, causing injury or death. During a single coastal clean-up day, 36 miles of               0
                                       monofilament line were retrieved from 20 bird nesting islands by citizen volunteers in and             0
                                       around Tampa Bay. Ingestion of plastic bags or other marine debris also can kill wildlife.

                                       Impacts to wildlife also are caused by people who feed them and by human intrusion
                                       into nesting *sites. For example, dolphin or seabird feeding can cause injuries and create
                                       a dependency on humans for food. Human and pet intrusion into the bay's bird nesting
                                       colonies, and destruction of nests, also is a pervasive problem.

                                       The strategy to improve public awareness about these impacts to wildlife focuses on
                                       placing educational signage in bayside locations where boaters, recreational fishermen,
                                       residents and tourists congregate-at fishing piers and public boat ramps. Signage also
                                       is needed to protect the bay's numerous bird rookeries.

                                       The Tampa Bay National Estuary Program (NEP) also strongly supports continuation of
                                       the annual Florida Coastal Cleanup, sponsored by the Center for Marine Conservation.                   0
                                                                                                                                              0
                                       STRATEGY-                                                                                              0
                                       STEP I     Survey local and state governments to determine who is responsible for fish-                0
                                                  ing piers and public boat ramps and their trash receptacles. Also, survey                   0
                                                  existing signage and the environmental messages they contain.                               0
                                                  Responsible parties: Tampa BA YWATCH, Florida Department of
                                                  Environmental Protection (FDEP)IFlorida Marine Research Institute
                                                  (FMRI), Centerfor Marine Conservation                                                       0
                                       STEP 2     Develop educational signage that can be affixed to trash receptacles or                     4)
                                                  dock/sign posts. Signage will educate boaters/fishers about the adverse                     0
                                                  impacts to wildlife caused by marine debris, the feeding of wildlife, and other
                                                  disturbances. Particularly at fishing piers, develop signage that discourages
                                                  feeding birds, identifies the problems of monofilament fishing line and fish-
            ISO                                   ing fine recycling options, and steps to release hooked/entangled birds.                    0
                                                                                                                                              0







                         ACTIM PLM                                                                                                    Bay Fish & Wildlife                              UHRr I
                                                                                                                                                                                 Charting the Course
                                           Responsible parties: local governments, Tampa BAYRATCH, National                                                                          for Tampa Bay
                                           Audubon Society, Pinellas Seabird Rehabilitation Center, FDEP/FMRI,
                                           Centerfor Marine Conservation

                                                                                                                                                                                     .............................
                                                                                                                                                                                   . . .. .................... ..
                                                                                                                                                                                . .. .......................
                                                                                                                                                                                       ..................
                         STEP 3            Install signage. Assure that pick-up of trash is timely, especially after                                                                 ..........
                                           weekends and holidays.                                                                                                                ..............   ..........
                                                                                                                                                                                  . .................
                                                                                                                                                                                .. ..... ......
                                                                                                                                                                                .. .......
                                                                                                                                                                                ....................................
                                           Responsible parties: local governments

                         STEP 4            Conduct annual cleanups at colonial bird nesting sites during the non-nest-
                                           ing season to remove monofilament fishing line and debris.
                                           Responsible parties: Tampa BAYWATCH, National Audubon Society,
                                           U.S. Fish & Wildlife Service (USFWS)

                         STEP 5            Work with the USFWS and the National Audubon Society to develop and
                                           install signage, as appropriate, designed to protect bird rookeries through-
                                           out Tampa Bay from human intrusions.
                                           Responsible parties: USFWS, National Audubon Society, Tampa BAY-
                                           WATCH


                         STEP 6            Work with local "Adopt-a-Shore" coordinators to include fishing piers,
                                           docks and boat ramps as "adoptable" sites, and encourage their adoption
 0                                         and routine cleaning a minimum of three times per year.
                                           Responsible parties: local Keep Florida Beautiful afflliates, Tampa BAY-
                                           WATCH, Centerfor Marine Conservation


                         SCHEDULE-.
                         All steps can be initiated in 1996.


                         COST-.
                         Costs for the development and installation of signage are estimated at $300 per sign.


                         EXPECTED BENEFITS:
                         Increased public awareness of the harmful effects of marine debris, wildlife feeding
                         and other intrusive activities.


                         MONITORING ENVIRONMENTAL RESPONSE-
                         The National Audubon Society monitors bird populations and mortality. FMRI
                         records bottlenose dolphin and sea turtle strandings. Beach/bay cleanups coordinated
                         by the Center for Marine Conservation, Keep Florida Beautiful affiliates, Tampa
 40                      BAYWATCH and other partners track the amount of marine debris collected by volun-
                         teers at various sites throughout the bay.


                         REGULATORY NEEDS.
                         None anticipated.


                         RELATED ACTIONS.

                         FW- 1, FW-2
 0                                                                                                                                                                                                187
 0






           DRAFT                      ACTION PUW                                                            Bay Fish & Wildlife
       Charting the Course                                                                                                                   0
          for Tampa Bay                                                                                                                      0
                                      Assess the Need to Investigate the Cumulative                                                          0
                                      Impacts of Power Plant Entrainment on Bay                                                              0
                   .......... .... .. Fisheries
                       @xxw

                  . .... . . . ....
             . . ..... . .. ...........
         . ... .... . .........
                 ............... ...........



                                      ACTION:
                                      Determine whether a comprehensive study to assess the cumulative impacts of multi-
                                      ple power plant operations on Tampa Bay fish populations is needed. If a study is
                                      warranted and shows cumulative adverse impacts, adjust plant operations and mainte-
                                      nance schedules as appropriate to reduce power plant entrairiment.


                                      BACKGROUND:
                                      Currently there are five steam electric plants utilizing open-cycle cooling systems on
                                      Tampa Bay: Tampa Electric Company's (TECO's) Big Bend, Gannon and Hooker's
                                      Point facilities and Florida Power Corporation's (FPC's) Higgins and Bartow plants
                                      (currently, FPC's Higgins Plant in not operating). Open-cycle, or once-through, cool-
                                      ing is the most economical method of condensing steam from the turbines of steam
                                      electric plants. However, the volumes of ambient bay water used for this purpose, and
                                      the quantities of waste heat added to the bay as a result, can be significant.


                                      Although the discharge of heated bay water from the power plants into the subtropical
                                      Tampa Bay estuary produces temperature changes that have demonstrable impacts
                                      (subject of a Florida Department of Environmental Protection [FDEP] study), another
                                      problem results from the capture of planktonic eggs and larval fish and shellfish in the
                                      cooling-water intakes of the power plants. This process, called entrainment, can lead
                                      to high rates of mortality from physical and thermal stress. Estimates from power
                                      plant monitoring in the early 1980s project that 274 billion fish eggs and 83 billion
                                      fish larvae are entrained annually in Tampa Bay. However, in the absence of sufficient
                                      baseline information on current stock sizes, natural survival rates and losses caused by
                                      habitat degradation, fishing pressure and other factors, it is extremely difficult to
                                      assess the impact of power plant entrainment on overall bay fisheries populations.

                                      Under the current regulatory system, each power plant must obtain operating permits
                                      from the Environmental Protection Agency (EPA) and the FDEP. But the permit
                                      review process only examines the localized impacts of each individual plant; the
                                      cumulative impacts of multiple facilities on the fish populations of the bay are rarely
                                      evaluated or considered.


                                      Conducting a comprehensive study of cumulative impacts is an expensive and lengthy
                                      task, and could be fraught with legal complications. There currently is no requirement
                                      in the state rules governing power plants that cumulative impacts be addressed, and
                                      initiating such a study in Tampa Bay may necessitate a rule change. Additionally, the
                                      lack of suitable background information of fish populations, and the effects of other
                                      human-related impacts such as fishing, may make a study on entrainment inconclu-
                                      sive. Finally, the cost of a cumulative impacts study would be substantial, as would
                                      the installation of best available technologies to reduce the capture of eggs and larvae.
            ISO                                                                                                                              0
                                                                                                                                             0






                ACTION PLM                                                            Bay Fish & Wildlife             IMP r I
                                                                                                                   Charting the Course
                Entrainment and impingement studies financed by power companies in the Hudson                        for Tampa Bay
                River exceeded $2 million a year for monitoring and $1 million for analysis. And
                while some techniques to decrease entrainment are relatively low in cost (i.e., TECO's
                installation of fine-mesh screens on intake pipes at its Big Bend plant), other solutions
                                                                                                                     X.- ..............
                                                                                                                  ...... ........................
                                                                                                                  .......................... - I..
                                                                                                                  ...... ....... ..............
                such as the construction of cooling towers to reduce the need for bay water can cost
                                                                                                                    F        S'..'
                                                                                                                  ......... .. .....
                                                                                                                  ..... .. ..... ...
                hundreds of millions of dollars.


                Thus, the need to assess the cumulative effects of entrainment must first be demon-
                strated and the possible benefits of such a study balanced against its cost implications
                for utilities and their customers. This action seeks to develop a consensus on whether
                further research into power plant entrainment is warranted.


                STRATEGY
                STEP1      Conduct a joint workshop involving regulators, fisheries scientist and rep-
                           resentatives of the electric utility industry to evaluate the need, costs,
                           cost/benefit and ramifications of conducting a study of the cumulative
                           impacts of entrainment.
                           Responsible parties: EPA, FDEP, Florida Marine Research Institute
                           (FMRI), local power plant representatives

                STEP2      (Contingent upon Step 1) If a study is deemed necessary and justified,
                           workshop participants should design a scope, identify potential data needs
                           and funding sources, and conduct a comprehensive entrainment study.
                           Based upon the results of that investigation, a plan to minimize entrainment
                           through measures such as adjusting the operating or maintenance schedules
                           of power plants for periods of peak plankton and juvenile abundance
                           should be developed.
                           Responsible parties: EPA, FDEP, FMR1, local power plant representa-
                           gives


                STEP 3     If warranted, amend state and federal rules to require a cumulative impact
                           review for all future power plant siting and operating permits located on
                           Tampa Bay National Estuary Program (NEP) waterways.
                           Responsible parties: EPA, FDEP


                SCHEDUM
                Step 1 can be accomplished in 1996. Step 2, if necessary, can be initiated in 1997.
                Step 3 can be initiated following the completion of the study, if the results of the study
                show a need for further action to reduce entrainment.



                COSM
                Step I entails only administrative costs. Step 2, the comprehensive cumulative
                impacts assessment, will likely involve extensive field, lab work and data analysis that
                could cost from $1 million to $5 million. The costs of remedial action to reduce
                entrainment have not yet been determined, but are expected to be substantial and
                should be evaluated in detail.






           DRAFT                       ACTION PLM                                                            Bay Fish & Wildlife              0
       Charting the Course                                                                                                                    0
          for Tampa Bay                EXPECTED BENEFITS:                                                                                     0
                                                                                                                                              40
                                       Enhanced fish stocks in Tampa Bay.


                     .................
                                       MONITORING ENVIRONMENTAL RESPONSE:

               . . . ...........
                       ............    FDEP is the state agency responsible for power plant siting and permitting. EPA has                    0
                                       authority over power plant siting and operation permits. Monitoring of fish stocks is                  0
                                       conducted by the FMR1. Results of any entrainment study, and subsequent actions to                     0
                                       reduce the problem, will be reported in the Tampa Bay NEP's Biennial Environmental                     0
                                       Monitoring Report.                                                                                     0
                                                                                                                                              0
                                       REGULATORY NEEDS:                                                                                      0
                                       Possible amendments to the federal Water Pollution Control Act (Sections 316a, 316b                    0
                                       and 402) and the Florida Electric Power Plant Siting Act (Sections 403.501 through                     0
                                       403.517, F.S.).                                                                                        0

                                       RELATED ACTIONS:                                                                                       0

                                       FW-6













































            too






                                                                                                                          "A" I
AL
                ACTION PLM                                                            Bay Fish & Wildlife                    r
                                                                                                                  Charting the Course
                Continue and Expand the Critical Fisheries                                                          for Tampa Bay
                Monitoring Program

                                                                                                                          .............

                                                                                                                          AN:
                                                                                                                         ..................
                                                                                                                  .... ......... ***-,...,.'.,.'.'.,_@
                ACTION-
                Continue the state's Critical Fisheries Monitoring Program and expand it to include
                oligohaline portions of the bay's tributaries.


                BACKGROUND:
                Tracking the long-term health of bay fisheries is an important component of the ongo-
                ing monitoring program being developed for the Tampa Bay management plan.
                Recent water quality improvements in the bay, along with new regulations on com-
                mercial and recreational fishermen, make a regular assessment of fisheries trends even
                more critical for bay managers. The fisheries surveys will serve as a barometer for the
                success of management efforts, and provide an early-waming system to alert man-
                agers to potential problems that may require additional actions.


                Currently, the Florida Department of Environmental Protection's (FDEP's) Critical
                Fisheries Monitoring Program (CFMP) provides the most comprehensive sampling of
                fisheries in the bay. This program, conducted by the FDEP's Florida Marine Research
0               Institute (FMRI), employs stratified random and fixed-station monitoring to assess the
                abundance and distribution of fish and macroinvertebrates in Tampa Bay. The strati-
                fied random sampling divides the bay into specific habitat types (i.e., seagrasses,
                deep-water, riverine), which are sampled at varying locations twice a year, usually in
10              the spring and fall and using gear suited to that particular bottom type. The fixed-sta-
0               tion monitoring samples 24 stationary sites scattered throughout the bay once a
0               month, using a single type of fishing gear. Both survey methods record the number,
0               species and length of fish and invertebrates captured, as well as the temperature and
0               salinity of the water.
0
                The program is financed by revenues from the state's Salt Water Fishing License.
                More than $3.2 million was allocated statewide to CFMP in fiscal year 1994-1995,
0               with about $700,000 of that dedicated to sampling in Tampa Bay.
0               While the monitoring attempts to be as thorough as possible, funding and manpower
0               limitations mean that some areas of the bay potentially important to fish recruitment
0               and survival are not surveyed. For example, of the bay's myriad tributaries, only the
                Little Manatee, Manatee and Alafia rivers are sampled. The Hillsborough and Palm
                rivers and numerous tidal creeks in Upper Tampa Bay, such as Double Branch and
                Rocky Creek, are not assessed. The existing program could be expanded to include
                more oligohaline areas, using cost-effective fixed-station monitoring. Additionally, a
                quick visual examination of fish and invertebrates for the presence of visible lesions
                could be added to assist bay managers in tracking the long-term movement of toxic
                contaminants through the bay system.


dft

                                                                                                                            201






         DRAFT                 ACTION PLM                                               Bay Fish & Wildlife
      Charting the Course
        for Tampa Bay          STRATEGY:
                               STEP 1   Evaluate the need and costs to expand Critical Fisheries Monitoring into
                                        small tributaries and oligohaline areas, and identify candidate tributaries.
                                        Responsible parties: Tampa Bay National Estuary Program (NEP) and
           F771WW                       FDEPIFMRI
        ...........

        ...........

                               STEP 2   Require field scientists conducting the sampling to perform a quick visual
                                        examination for lesions on the fish and invertebrates they collect, and
                                        record the species, lesion type and location of the lesions, as well as the
                                        location the affected fish were caught.
                                        Responsible parties: FDEPIFMRI

                               STEP 3   Incorporate results of the CFMP in Tampa Bay in the Biennial
                                        Environmental Monitoring Report, and redirect sampling efforts as needed.
                                        Responsible parties: FDEPIFMRI, Tampa Bay NEP


                               SCHEDULE:
                               The Tampa Bay NEP and FDEP&`MRI will evaluate the feasibility of expanding fish-
                               eries sampling and develop a formal recommendation by April 1996. The detection of
                               lesions indicative of toxic contamination could begin in 1996. The first expanded
                               sampling could begin in 1997.


                               COST:
                               The estimated annual cost for the current Tampa Bay sampling program is $700,000.
                               The cost of sampling six or seven additional sites is estimated at $50,000, based on
                               salary estimates for two additional full-time staff personnel. Financing sources for
                               additional sampling (if needed) could be pursued through a change in FMRI's current
                               allocation from the Salt Water Fishing License revenues or identification of new rev-

                               enue sources.



                               EXPECTED BENEFITS:
                               Implementation will provide more comprehensive information about the status and
                               trends of bay fisheries, and will provide managers with an early-warning system to
                               detect areas that may need additional management action.


                               MONITORING ENVIRONMENTAL RESPONSE:
                               FDEP/FMRI currently monitors the health and abundance of fisheries within Tampa
                               Bay. These reports can be incorporated in the Tampa Bay NEP's Biennial
                               Environmental Monitoring Report for the bay.


                               REGULATORY NEEDS:
                               None anticipated.


                               RELATED ACTIONS:

                               TX-1, TX-3, BH-1, FW-1, FW-3, FW-5








              ACTION PLM                                                         Bay Fish & Wildlife

                                                                                                           Charting the Course
                                                                                                              for Tampa Bay
                         Anal You Can Do...                                                                 FW
                   To Protect and Support
                   Bay Fisheries and Wildlife:

                   As an angler:

                   E Practice catch and release. Keep only fish of legal size, which you will
                       use.

                   E Properly dispose of or recycle used monofilament fishing line and
                       removed snagged fishing line you come upon while fishing.

                   As a boater.

                   0   Observe speed limits and no-wake zones to reduce turbidity in the water
                       and to avoid collisions with manatees.

                   N   Bring all trash, sewage and other shipboard waste back to shore for proper
                       disposal.
                   ï¿½   Avoid boating near bird rookeries during the nesting season to keep from
                       disturbing birds and their young.

                   ï¿½   Don't feed seabirds. Many injuries to birds, especially pelicans, occur
                       when they are hooked while pursuing bait or fish on a line.

                   M   Don't feed marine mammals; it interferes with their natural behavior and
                       is illegal.
                   M   Boating safety instructors can incorporate bay-protection information into
                       existing programs to raise awareness of the bay's inhabitants and

                       resources.

                   As a neighborhood, civic group member or educator:
                   M   Participate in a coastal cleanup and Adopt-A-Shore programs to reduce
                       litter along the bay.
                   M   Learn more about the bay's inhabitants by requesting materials and infor-
                       mation from a bay stewardship organization, such as the Center for
                       Marine Conservation, Tampa BAYWATCH, the Agency on Bay
                       Management, Florida Marine Research Institute and the Tampa Bay
                       National Estuary Program. For information on the bay's fabulous bird
                       colonies, contact the National Audubon Society's Tampa Bay Sanctuaries.
                   N Incorporate a Tampa Bay curriculum into core school lessons. Teaching
                       materials are available from Hillsborough, Pinellas and Manatee county




                                                                                                                     203







                                    ACTION PLM                                                        Bay Fish & Wildlife

       Charting the Course
         for Tampa Bay


                                              school systems and from local newspaper-in-education programs.
                                              Also contact the Florida Aquarium Learning Lab.
                 FW                      0    Take an educational tour of the Lowrey Park Zoo, the Suncoast
                                              Seabird Sanctuary, the Florida Marine Research Institute, the
                                              Clearwater Marine Science Center, The Florida Aquarium or Mote
                                              Marine Laboratory in nearby Sarasota.

                                         As a business person:
                                         E Boat rental and sales companies, travel agencies, hotels and restau-
                                              rants and real estate agencies can distribute materials that promote
                                              envirorunentally friendly bay recreation. Contact local and state envi-
                                              ronmental agencies for brochures, booklets and other materials.



                                         Portions of What You Can Do are reprinted with permission from the
                                              Sarasota Bay National Estuary Program.




































           124









                                                           Dredging & Dredged Material Management
               ACTION PLAN                                                                                      UP
                                                                                                             Charting Hie Course
               WN&                                                                                             for Tampa Bay
               Predog                                  Dredged
                                                                                                                    ... .........
               Malen Management                                                                             . I.a.R


0              Coordination among local ports in long-term planning for dredging and dredged
               material disposal is essential in Tampa Bay to minimize environmental impacts and
               maximize cost-sharing opportunities and beneficial uses of spoil material.

               With an average depth of only 12 feet, regular dredging of the bay is necessary to
0              maintain safe passage through shipping channels serving the bay's three major sea-
0              ports, its shore-based power plants and industries, and recreational boaters. But
0              dredging can take a toll in areas of immediate impact, clouding the water, smothering
9              bottom life and releasing potentially harmful substances that bind to fine particles in
0              sediments.

               Disposal of dredged material presents another important challenge. Deepening of the
               40-mile main shipping channel in the 1970s required the removal of almost 100 mil-
               lion cubic yards of sediment. Maintenance dredging to support the bay's three com-
               mercial ports scoops another I million cubic yards of material from the bottom of the
               bay each year---enough to fill about 100,000 dump trucks. Most material is generated
               by the U.S. Army Corps of Engineers to maintain the main ship channel, which serves
               the ports and numerous port-related industries.


               Not yet reflected in any long-term plans are dredging and disposal needs of smaller
               industrial ports and the extensive network of finger-fill canals serving residential com-
               munities. These needs must be assessed and recognized in developing environmental-
               ly sound, long-term management strategies.

               Currently, most dredged material from the upper segments of the bay is deposited on
               two large spoil islands located in Hillsborough Bay and managed by the Tampa Port
411            Authority. These sites are expected to serve this sector's disposal needs for another
0              decade. Officials are exploring the feasibility and options for extending the life of the
0              islands another 15 years by raising the dikes to contain more material. Beyond then,
               long-term disposal needs for upper Tampa Bay are unresolved.

               There are no long-term plans for disposal of material from the southern half of the
               main shipping channel. Although EPA has approved a dumping site 18 miles out into
               the Gulf of Mexico, this site is expected to accommodate material from only a small
               portion of the lower part of Tampa Bay. Shipping distances and associated costs cur-
d1k
               rently preclude use of this site to accommodate the vast quantities of material generat-
                                     al
















































               ed in the bay's upper sector surrounding the Port of Tampa.
                                                                                                                       205




                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
            DRAFT                         ACTION PLM                                        Dredging & Dredged Material Management                       0
        Charting the Course                                                                                                                              0
           for Tampa Bay                  Coordination of individual port plans by the U.S. Army Corps of Engineers, which                               0
                                          oversees and conducts most of the major dredging projects on Tampa Bay, will be an                             0
                                          important first step in effective long-term management. Representation from other                              0
                                          maritime, business, utility and environmental interests also is important to assure a
            .... ... Un-
                                          compatible coexistence in the future between protection of the bay ecosystem and                               0
                    ......................
                      ..................
                     . ...... .. .        continued growth of the ports and industries dependent upon the bay's shipping chan-                           0
                                          nels.                                                                                                          0
                                                                                                                                                         0
                                          Momentum for cooperative planning already is building thanks to a recent state-                                0
                                          financed study by the port authorities that explore areas of mutual concern and ways                           0
                                          to increase cooperation. Among the more than a dozen proposals approved by the                                 0
                                          bay's three port authorities is an effort to establish and maintain shared dredged dis-                        0
                                          posal sites, an action endorsed by the NEP in this plan.                                                       4)
                                          The June 1995 report was prepared by an independent consultant and proposes other                              0
                                          priority measures, such as the establishment of a vessel tracking system for the bay,                          0
                                          permanent funding for the PORTS navigational network, and the development of an                                0
                                          oil spill model.                                                                                               0
                                                                                                                                                         0
                                          MANAGEMENT OBJECTIVES                                                                                          0
                                                                                                                                                         0
                                          ï¿½   Improve planning and coordination for dredging and for long-term spoil disposal.                           0
                                          ï¿½ Minimize environmental impacts from dredging and spoil disposal.                                             0
                                          ï¿½ Maxiim'ze beneficial uses of dredged material.                                                               0
                                                                                                                                                         0
                                                                                                                                                         0
                                          SUMMARY OF ACTIONS FOR DREDGING &                                                                              0
                                          DREDGE MATERIAL MANAGEMENT                                                                                     0
                                               DR-1 Develop a long-term, coordinated strategy for dredging and dredged mate-                             0
                                                       rial management for Tampa Bay.                                                                    0
                                                                                                                                                         0
                                               DR-2 Develop dredge disposal plans for residential canals.                                                0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0
              its                                                                                                                                        0
                                                                                                                                                         0
                                                                                                                                                         0
                                                                                                                                                         0






                ACTION PLM                                     Dredging & Dredged Material Management                 DRAFT
                                                                                                                  Cliarting the Course
                Develop a Long-Term, Coordinated Strategy for                                                        for Tampa Bay
                Dredging and Dredged Material Management for
                Tampa Bay



                ACTION-.
                Develop a long-term management plan that coordinates individual dredging and
                dredged material management plans of the bay's three major seaports and the utilities
                and industries that rely on the bay's navigational channels.


                BACKGROUND:
                Tampa Bay serves three major seaports with independent, tax-supported port authori-
                ties. Various utilities and industries also share the bay's 40-mile-long deepwater trans-
                portation highway. This action calls for the development of a long-range plan to coor-
                dinate dredging and dredged material management for Tampa Bay to maximize shared
                disposal and beneficial use opportunities while minimizing the environmental impacts
                and costs associated with these activities in the future. The U.S. Army Corps of
                Engineers (USACE), as the major coordinator and sponsor of dredging projects in the
0               bay, is the logical choice to spearhead this comprehensive planning effort.

                On average, about 13 million gallons of petroleum products pass through Tampa Bay
                each day on tankers and barges carrying fuel for power plants, jetliners, and automo-
                biles. Another 18 million tons of fertilizer is exported from Tampa Bay each year to
                ports around the world, along with vast quantities of other cargoes. Indeed, water-
                borne commerce is a cornerstone in the region's economy, condibuting an estimated
                $5 billion per year.

                With an average depth of only 12 feet, regular dredging of ship channels and berths is
                needed to serve these seaports and industries. Ship channels, which are dredged to
                depths of up to 43 feet, must be cleared periodically to remove silty sediments.

                Coordinated planning among ports and area industries will help ensure that the most
                envirom-nentally sensitive and cost-effective strategies are pursued, especially in
                regard to long-range dredge material disposal, for which there are only limited exist-
                ing plans. Cooperative planning also enables bay managers to investigate options for
                beneficial uses of spoil material, ensure minimal impacts to nesting birds on dredge
                disposal islands, and explore best available technologies to reduce sediment resuspen-
                sion during dredging.

                In fact, local port authorities already have begun working together to examine mutual
                concerns and foster cooperation. Results of a study conducted for Tampa Bay's port
                authorities and the Florida Department of Transportation in 1995 cited the establish-
                ment and maintenance of shared dredge disposal sites as one of 13 recommendations
                adopted by the participants.

                The Tampa Port Authority (T?A) estimates that about 840,000 cubic yards of material
                                                                                                                             207






                                                                                                                                             0
           DRAFT                      ACTION PLM                                     Dredging & Dredged Material Management                  0
       Charting the Course                                                                                                                   0
          for Tampa Bay               will be generated annually to maintain the upper part of the main ship channel, which                  0
                                      extends south to the Gadsen Point widener. Associated long-term disposal needs
                                      exceed the current 8.5-million- cubic-yard capacity of the Port Authority's two spoil
                                      islands in Hillsborough Bay. TPA has proposed to meet the shortfall by raising the
          ..........
                                      islands' dikes from 20 to 30 feet, a strategy being reviewed by the Florida Department
                                      of Environmental Protection (FDEP) and the USACE, which issue and periodically
                  .......... ..........
                                      reassess the port's maintenance dredging permit.

                                      Maintenance dredging of the main ship channel between Gadsen Point and the mouth
                                      of Tampa Bay is expected to generate another 350,000 cubic yards of material a year.
                                      Dredged material from the lower segment of that channel, below CUT B, will be dis-
                                      carded at a recently-approved ocean disposal site 18 miles from the bay's entrance.
                                      There are no long-term plans for disposal of the remainder of the material.

                                      Port Manatee's development blueprint includes plans to enlarge its turning basin and
                                      widener, and dredge its harbor channel to maintain a 40-foot mean low water depth.
                                      A total of about 3.1 million cubic yards of material will be removed for these projects                0
                                      in order to keep pace with the anticipated shoaling of some 220,000 cubic yards of                     0
                                      material each year. To avoid impacts to nearby Aquatic Preserves, the Port Authority                   0
                                      will contain all construction and maintenance dredging material at several upland sites                0
                                      on its property. However, the Port Authority has not yet analyzed whether these                        0
                                      upland sites can handle the entire 25-year payload that is anticipated.                                0
                                      The Port of St. Petersburg, the smallest of the bay's three major seaports, has no exist-              9
                                      ing long-term dredged material disposal plans, relying instead on land disposal for its                0
                                      sporadic dredging needs. Also unknown is how private facilities plan to dispose of
                                      their dredged material, an issue which should be addressed in long-term planning sce-
                                      narios.


                                      STRATEGY:
                                      This strategy focuses on establishing an advisory committee to support development
                                      and implementation of a long-range plan to coordinate dredging and dredged material
                                      management for Tampa Bay, and highlights additional planning needs that must be
                                      addressed to complete this coordinated strategy.

                                      STEP I     Establish a committee directed by the Corps of Engineers and comprised of
                                                 the bay's three major seaports, port-related industries and utilities, and
                                                 major commercial/private ports, as well as FDEP, EPA, local governments
                                                 and environmental interests including representatives of Egmont Key State
                                                 Park, for the purposes of-

                                                     ï¿½   coordinating existing port and industry plans for dredging and
                                                         dredged material management, and developing a long-range strate-
                                                         gy that integrates these plans for environmental as well as economic
                                                         benefits

                                                     ï¿½   exploring beneficial uses for spoil material




             tog

                                                                                                                                             0











                                                                                                                     'i lip
               ACTIM PLM                                    Dredging & Dredged Material Management                WWI.
                                                                                                               Charting the Course
                             0   investigating and encouraging best available technologies to reduce             for Tampa Bay
                                 sediment resuspension during dredging and for dredged material
                                 disposal and contaim-nent
                          Responsible parties: U.S. Army Corps of Engineers, in cooperation with
                          local port authorities

               STEP 2     Develop a 25-year plan for disposal of maintenance material removed from
                          the southern segment of the main ship channel from the Gadsen Point
                          widener to the western end of Cut A, at the mouth of the bay. The U.S.
                          Army Corps of Engineers (USACE) should develop the plan in consulta-
                          tion with the advisory committee established in step 1. Planning should
                          incorporate relevant elements of the Corps' former Long-Term
                          Management Strategy (LTMS) procedures for dredging management.
                          Responsible parties: USACE, in cooperation with 9he step I advisory
                          committee


               STEP 3     Confirm the ability of Port Manatee's existing and future upland spoil dis-
                          posal sites to accommodate spoil material from channel and berthing areas
                          for the next 25 years. Amend the Manatee County Port Authority's Master
                          Plan to reflect the results of that analysis.
                          Responsible parWes: Manatee County Port Authority

               STEP 4     Develop and adopt a long-range plan for disposal of dredged material from
                          the Port of St. Petersburg and its channel.
                          Responsible parties: St. Petersburg Port Authority

dft
W              STEP 5     Determine status of long-term spoil disposal plans for privately maintained
                          shipping channels in the Bay, particularly channels serving Big Bend and
                          other utilities.
                          Responsible parties: Advisory Committee, Step .1

d1k

               SCBEDULE-.
               Establishment of a committee to oversee coordination of the bay's dredging and
               dredged disposal planning could be accomplished in 1996, pending federal approval
               and funding for the Corps to direct these efforts.

-01
               COST-.
               Step I involves administrative costs on the part of USACE. Costs to implement step
               2 are estimated at $150,000, with possible cooperative funding from the Tampa Bay
               port authorities, Army Corps of Engineers and the Florida Department of
               Transportation. Estimates for steps 3 and 4, which would be funded by responsible
               port authorities, are in development. Implementation and costs associated with step 5
               are dependent on recommendations of the committee.


               EXPECTED BENEFITS.
               Coordinated, long-range planning will help to minimize impacts to bay habitats and
               water quality from dredging and dredged material disposal and maximize beneficial
                                                                                                                         208






          DRAFT                    ACTION PLAN                               Dredging & Dredged Material Management
       Charting the Course
         for Tampa Bay             uses of spoil material, while fostering cooperation that is likely to yield cost-savings
                                   for taxpayer-supported port authorities. Removal of muck from channels also can
                                   help to improve water quality in localized areas.


                                   MONITORING ENVIRONMENTAL RESPONSE:
               ...   ........
                     ............
                                   The Army Corps of Engineers will be responsible for monitoring progress on long-
                                   range planning and implementation.


                                   REGULATORY NEEDS:
                                   None anticipated.


                                   RELATED ACTIONS:

                                   DR-2























                                                                                                                               dM








                                                                                                                               AM
















                                                                                                                               Aft









                                                                                 Dredging & Dredged Material Management
                   ACTION PLM

                                                                                                                                                   Charting the Course
                                                                                                                                                       for Tampa Bay
                   Tampa Bay Shipping Channels




                                                   .. . ..... ...... ..


                                                            Xv  :x                                                    Tampa                                V.4,


                                                                                                                                 . . .. ......
                                                                                                                                  b:                      Port
                                                                                                                                                        Sufton



                                                                                                        .-Rattlesnake
                                                                                    V.


                                                                                                             Port                           -34
                                                                                                            Tampa


                                                                                                             F.




                                                                                                          V

                                                                                                      ... ...       ......
                                                                                                                                                                  Big
                                                                                                                  . ....... . .
                              :X                                                     F': ...... ....... ..
                                                                                                                                                                 Bend
                                                                                                                                                      ...........
                                              St. Petersburg
                                                                                                                                                      ... .......










                                                                                   ...........



                         V"

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 .4                 SOURCE: TAMPA PORT AUTHORITY
                                                                                                                                                                 211







                                                                                                                                                     40
            DRAFT                        ACTION PUN                                      Dredging & Dredged Material Management                      0
        Charting the Course                                                                                                                          0
           for Tampa Bay
                                         Develop Dredge Disposal Plans
                                         for Residential Canals
                                                                                                                                                     0




                       ...........
                                         ACTION:
                                         Assess the long-term spoil disposal needs associated with maintenance dredging of
                                         existing residential canals and commercial marinas; and develop a plan to address
                                         those needs.



                                         BACKGROUND:
                                         Shoreline developments featuring finger-fill canals are a prominent fixture in Tampa
                                         Bay. Construction of most of these canals occurred in the 1950s and 1960s, and many                         0
                                         now are experiencing severe siltation that, in some cases, renders them unusable by                         0
                                         adjacent landowners who purchased the property specifically for its boating access,                         0
                                         Silting of commercial and private marinas also is a widespread problem throughout the                       0
                                         bay.                                                                                                        is
                                                                                                                                                     49
                                         These dead-end canals and marina basins often are plagued by poor water quality                             40
                                         caused by a lack of tidal flushing, the build-up of oxygen-deficient sediments, and                         49
                                         contamination with nutrients, petroleum hydrocarbons, and toxic chemicals.                                  40
                                         Routine, coordinated dredging of these areas could improve water quality in these                           41
                                         canals, as well as preserving the cumulative economic value of existing residential                         Am
                                         and commercial waterfront property. However, costs to dredge residential canals and
                                         dispose of dredge materials will be borne largely, if not exclusively, by the waterfront
                                         residents that are direct beneficiaries of improvements.

                                         Currently, maintenance dredging of privately owned waterways is rarely done because
                                         local governments are reluctant to assume the financial responsibility for the dredging
                                         and there are no federally or state-approved disposal sites for the dredge spoil. In
                                         addition, the high costs of the dredging (removing 20,000 cubic yards of muck from a
                                         200-yard long canal may cost as much $200,000) put the work beyond reach of many
                                         private residents and homeowner groups. But failing to address this chronic problem
                                         may compound the environmental damage to canals, as frustrated homeowners resort
                                         to propeller dredging, or other undesirable methods, to keep their canals navigable.

                                         In the Tampa Bay area, only Manatee County performs maintenance dredging of resi-
                                         dential finger canals and other private navigation channels within its jurisdiction. This
                                         is because Manatee County historically has required developers to deed the canal bot-
                                         toms to the county as rights-of-way. Homeowners here petition the county to have
                                         their canal dredged at the residents' expense, usually through a special assessment.

                                         This action calls upon local governments to assess dredging needs for residential
                                         canals and marine basins, and to develop long-term plans for the disposal of dredge
                                         materials from these areas. A key effort will be to identify landside disposal sites that
                                         can accommodate this material. If successful, the planning effort may result in a
                                         streamlined permitting process for homeowners who do wish to dredge their canals.







                                                                                                                         F T
               ACTION PLM                                   Dredging & Dredged Material Management               Us IM11, I
                                                                                                              Charting the Course
               To obtain this faster permit, the applicants could be asked to enhance or replace por-           for Tampa Bay
               tions of hardened seawalls along the canal sides with more environmentally friendly
               materials, such as rip-rap, vegetation, or terraced blocks that help support vegetation
               and sealife (see Action BH-8).


               STRATEGY.                                                                                      . ............ ..
               STEP1     Conduct a simple water-depth survey of canals and marina basins in the
                         bay, and interview waterfront residents, to assess the severity of siltation in
                         those waterways, and prioritize dredging needs.
                         Responsible parties: local governments

               STEP2     Incorporate dredge disposal projections for finger canals and marina basins
                         into long-term dredge material management plans, and identify land-side
                         disposal sites to accommodate the material.
                         Responsible parties: local governments

               STEP3     Identify funding mechanisms to finance maintenance dredging of private
                         waterways. Options include special assessments and user fees.
                         Responsible parties: local governments


               SCHEDULE-
               All steps can be initiated in 1997, with appropriate funding.


               COST-
               Costs to perform dredging and removal of spoil to an approved site will be bome in
               some fashion by the adjacent property owners who will benefit from the work, and
               those costs are likely to be substantial. Conducting a simple water-depth survey to
               determine depths and muck layers in canals and marina basins throughout Tampa Bay
               is estimated to cost from $50,0004100,000, depending on level of detail. Identifying
               upland disposal sites to contain the material may require the purchase of land or land
               easements. Step 3 involves administrative costs only.


               EXPECTED BENEFITS-
               The primary beneficiaries of this action are waterfront homeowners, who also will pay
               for any dredging and dredge material disposal. Routine dredging of dead-end canals
               and marina basins may also improve local water quality.


               MONITORING ENVIRONMENTAL RESPONSE-
               The impacts of dredging projects in these canals will be monitored as a result of
               permits issued for these activities.


               REGULATORY NEEDS-.
               Local governments may need to enact rules or special taxing districts to establish a
 04            funding mechanism for maintenance dredging of private waterways.



                                                                                                                        213




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               ACTION PLM                                                   Spill Prevention & Response            DRAFT
                                                                                                                Charting the Course
                                                                                                                  for Tampa Bay
                                 Prevention

                                                                                                                ..........


                                                                                                                      .... ......
               (V Itesponse


               Installation of an integrated vessel tracking system to guide large ships through Tampa
               Bay ranks as one of the highest priorities in the prevention of oil and hazardous mate-
               rials spills.

               On average, about 14 million gallons of oil and other hazardous materials pass
               through Tampa Bay each day on huge ships the size of modem skyscrapers. These
               ships traverse a long, relatively narrow shipping channel that leaves little room for
               navigational errors.

               In addition, billions of gallons of hazardous materials and chemicals-including
               petroleum products, phosphoric and sulfuric acid and anhydrous ammonia-are stored
               in tanks at various ports and industries along the bay. While spill prevention efforts
               are essential for all hazardous materials, they are particularly significant in dealing
               with highly toxic, water-soluble compounds such as anhydrous ammonia or sulfuric
0              acid. A spill of these materials could have a severe, but relatively short-term, impact
               on the bay's fish and wildlife, as well as threaten public safety.

               A three-vessel collision at the entrance to Tampa Bay in August 1993 was a vivid
               reminder of the bay's vulnerability. More than 330,000 gallons of oil escaped, fouling
               area beaches and mangroves and killing dozens of seabirds. But more extensive darn-
               age was averted due to favorable tide and weather conditions and quick deployment of
               response crews.


               While large spills have been rare in Tampa Bay, the cumulative impact of countless
10             small spills of less than 25 gallons from fuel and bilge pump discharges and uninten-
               tional leaks represent a chronic problem.

               Tampa Bay is currently equipped to handle cleanup of oil or fuel spills of up to 10,000
               gallons with mobile equipment transported by response crews. Larger spills require
               that equipment and personnel be brought in from other parts of the state and Gulf
               region. That makes effective advance planning and coordination essential.







                                                                                                                          215






           DRAFT                      ACTIM PUW                                                     Spill Prevention & Response              0
       Charting the Course                                                                                                                   0
          for Tampa Bay               MANAGEMENT OBJECTIVES                                                                                  0
                                                                                                                                             0
                                      0    Prevent catastrophic spills of oil and hazardous materials.                                       0
                                      0   Reduce chronic smaller discharges from boats, ships, marinas and other sources.                    0
                     L
          ..........
                       P11,11             NEnimize the environmental impact of spills through planning and response.
                       ...........
                     ......... ...



                                      SUMMARY OF ACTIONS FOR SPIELL PREVENTION & RESPONSE
                                           SP-1 Establish an integrated vessel tracking system for Tampa Bay and perma-
                                                  nently fund the PORTS system.

                                           SP-2   Install permanent boom anchors near environmentally sensitive areas.

                                           SP-3   Evaluate state piloting requirements and improve state authority over fed-
                                                  cral vessels carrying hazardous materials.

                                           SP-4   Identify the most appropriate entity to inspect coastal bulk oil storage
                                                  facilities in the Tampa Bay watershed.

                                           SP-5   Improve fueling and bilge-pumping practices among recreational boaters.

                                      Reader note: An additional action to "evaluate the needfor a risk assessment of
                                      overland and underwater pipelines carrying hazardous materials" is in review, and
                                      will be the focus of a meeting organized by the Tampa Bay NEP in 1996, involving
                                      industry and environmental agency representatives.









                                                                                                                                             0


















                                                                                                                                             0






               ACTION PLAN                                                Spill Prevention & Response            DRAFT
                                                                                                             Charting the Course
               Establish an Integrated Vessel 'Eraffic System for                                               for Tampa Bay
               Tampa Bay and Permanently Fund the PORTS
               System



               ACTION-.
               Establish an integrated vessel traffic system for Tampa Bay to reduce the potential for
               maritime collisions and spills of hazardous materials. Additionally, secure a perma-
               nent source of funding for PORTS, which provides real-time tide and current data to
               recreational and commercial mariners and to the spill response community.


               BACKGROUND:
               Tampa Bay is home to three major seaports, a growing cruise ship industry, and
               dozens of power plants and businesses that utilize the bay for transportation.
               Approximately 10,000 ships and large vessels pass through Tampa Bay annually,
               transporting more than 4 billion gallons of oil, petroleum products, and other haz-
               ardous materials.


               Guiding large tugs and ships along the bay's 44-mile main ship channel, in fair and
               foul weather, through shallow depths, and amid increasing boating activity challenges
               even the most experienced mariner. The absence of a coordinated vessel trackihg sys-
               tem for the bay increases this pressure, as well as the potential for spills resulting from
               accidents.
0
               Currently, pilots and ship captains on Tampa Bay utilize a voluntary radio broadcast
               network to relay vessel information when entering or departing port. Large vessels
               are equipped with ship-b6ard radar, but the quality and range of these systems vary.
               In fact, limited navigational systems on some vessels force pilots to rely heavily on
               personal knowledge and skills to safely complete each transit.

               Tampa Bay had been one of several ports scheduled to receive a U.S. Coast Guard
               vessel traffic system (VTS) in 2002, but this acquisition now appears unlikely. That
0              system would have consisted of a shore-based radar system and personnel to coordi-
               nate traffic flow and transmit data to vessels via radio.


               However, even this enhanced system would have limitations due to its exclusive
               reliance on radar. While radar can pierce fog and darkness, its accuracy and range is
               limited in heavy rain. Severe and sudden thunderstorms-a summer signature in
ML             Tampa Bay-can reduce visibility and radar capabilities to zero, increasing the poten-
               tial for groundings and accidents.


1W             Some new technologies available would reduce or eliminate this risk. One of those is
               a differential global positioning system (DGPS), which transmits high-precision data
               on vessel movements directly to the ship-in all weather conditions. A key feature of
               the system is a lap-top, computerized piloting tool that can be carried aboard vessels
               or installed on ships. This lap-top device enables pilots to view the position and
               movements of other large vessels as they occur. Collision-avoidance data and weather
                                                                                                                       217






          DRAFT                       ACTION PLM                                                   Spill Prevention & Response
       Charting the Course
         for Tampa Bay                information also are provided by the system, which would be fully integrated with
                                      radar surveillance to provide 100 percent coverage of vessel traffic on Tampa Bay.

                                      Global positioning technology, coupled with shore-based radar, provides the safest

        . ...........
                                      available means for navigation. This added protection is particularly vital to Tampa
                                      Bay, which has the longest transit of any port in Florida. Because there are no
                                      anchorages along the route, once a pilot has committed to a transit, he must proceed
                                      or risk grounding.

                                      While collisions and spills are infrequent, they do occur. Since 1970, several major
                                      spills have occurred in Tampa Bay. The largest of these occurred in August 1993,
                                      when more than 330,000 gallons of oil flowed from a collision of three vessels at the
                                      mouth of Tampa Bay. Clean-up costs to contain the spill and scour oil-soaked beach-
                                      es exceeded $50 million. Investment in a more technologically sophisticated vessel
                                      tracking system for Tampa Bay could easily be recouped by avoiding even a single
                                      accident involving hazardous materials.

                                      The Tampa Bay National Estuary Program supports implementation of the best avail-
                                      able vessel positioning technology as soon as possible. A legislative report summariz-
                                      ing a state study of navigational needs for Florida ports was completed in January
                                      1995. The draft of this report noted compelling reasons to install a more sophisticated
                                      VTS for Tampa Bay, in advance of the proposed Coast Guard system. It recommended
                                      that a local technology coninfittee be established to investigate various configurations
                                      and financing mechanisms for a combined GPS-radar system for implementation by
                                      July 1, 1997. That committee has been organized under the purview of the Tampa
                                      Port Authority, with preliminary recommendations expected in early 1996.
                                      Meanwhile, Tampa Bay pilots will be supplied with prototype lap-top navigators to
                                      help evaluate this new technology.

                                      The Tampa Bay Program also supports permanent funding for the ongoing manage-
                                      ment of Tampa Bay's Physical Oceanographic Real-Time System (PORTS), which
                                      provides tide and current data to navigators. The system's "real-time" measurements
                                      are most critical to pilots of large commercial vessels and to spill response crews who
                                      must carefully execute containment and cleanup.

                                      In recent years, the PORTS system-which is based in St. Petersburg-has received
                                      funding from maritime industries and the Hillsborough County phosphate severance
                                      tax. In 1995, the Florida Legislature approved a one-time loan of $77,000 through the
                                      Coastal Protection Trust Fund for maintenance of the system. However, no permanent
                                      funding source exists for this unique system, which is currently the only one of its
                                      kind in the nation.



                                      STRATEGY:
                                      STEP1      Support efforts to implement a vessel tracking system utilizing best avail-
                                                 able technology as soon as possible in Tampa Bay.
                                                 Responsible parties: Tampa Bay NEP, in cooperation with local govern-
                                                 ment partners and the Agency on Bay Management                                             40
                                                                                                                                            0

            212







               ACTION PLM                                                 Spill Prevention & Response           unnr i
                                                                                                             Charting the Course
               STEP 2    Establish a permanent source of funding for PORTS. Funding options                    for Tampa Bay
                         include: county boater registration fees, navigation districts, port user fees,
                         Florida Coastal Protection Trust Fund, Hillsborough County Phosphate
                         Severance Tax. The last two sources currently provide maintenance fund-
                         ing, but long-term commitments have not been secured.
                         Responsible parties: local governments and Florida Legislature
                                                                                                            ............



               SCHEDULE:
               Steps 1 and 2 are both ongoing.


               COST-
               Sources estimate that a combined GPS-radar system will cost $2 million, including
               installation and training, and another $450,000 annually to maintain the system.
               Funding options for installation and maintenance include: user fees (all vessels enter-
               ing port), Florida Seaport Transportation and Economic Development Trust Fund,
               State Transportation Trust Fund, General Revenue and the Coastal Protection Trust
               Fund.


               Ongoing maintenance funding for the $1.2-million federally financed PORTS system,
               which was installed in 1991, is estimated at $220,000.


               EXPECTED BENEFITS:
               A combined vessel positioning and information system and real-time weather and cur-
               rent data will ensure the highest level of spill prevention and response for Tampa Bay.


               MONITORING ENVIRONMIENTAL RESPONSE.
               Collision-avoidance data from the new vessel traffic system could be used to measure
               the success of this technology to aid in spill prevention. The Coast Guard Marine
               Safety Office tracks all oil and hazardous materials spills.
ML
4W
               REGULATORY NEEDS.
               None anticipated.


               RELATED ACTIONS-.

               SP-2, SP-3












 .4                                                                                                                    218






           DRAFT                       ACTION PLM                                                  Spill Prevention & Response
        Charting the Course
          for Tampa Bay.               Install Permanent Boom Anchors Near
                                       Environmentally Sensitive Areas
                                                                                                                                            0


                       K.X
                                       ACTION:                                                                                              46
                                       Install permanent boom anchors, along with risers and equipment storage facilities,                  0
                                       near environmentally sensitive areas of Tampa Bay to enable quick and effective                      0
                                       deployment of oil containment equipment in the event of an oil or hazardous materials
                                       Spill.

                                       BACKGROUND:                                                                                          0
                                       An environmental workgroup supporting the development of Tampa Bay's Area                            0
                                       Contingency Plan (ACP) on oil spills met several years ago to prioritize areas of the                0
                                       bay for protection from spills. That workgroup identified the following seven priority
                                       areas, along with site-specific protection strategies to guide response:

                                       ï¿½   Terra Ceia Bay - Block off sensitive inner embayments, and direct material east to
                                           a causeway collection area.
                                       ï¿½   Bishops Harbor - Protect inner portions of the harbor and direct material south to
                                           causeway collection area.
                                       ï¿½   Cockroach BaylLittle Manatee River - Protect inner areas portions of Cockroach
                                           Bay and Piney Point and direct material south to Port Manatee or north to Bahia                  0
                                           Beach or Apollo Beach.                                                                           .0
                                                                                                                                            41
                                       ï¿½   Bullfrog Creek - Protect the creek and direct material to Cargill along the north
                                           side of the Alafia for collection, or south to TECO property.

                                       ï¿½   Bower Tract - Block entrances to creek and direct material to Courtney Campbell
                                           Causeway for collection.

                                       ï¿½   Weedon Island - Implement Island's own spill response plan and direct material to
                                           nearby causeway for collection.
                                       ï¿½   Ft. DeSoto - Protect inside "arrow" of Ft. DeSoto Park, directing material to Ft.
                                           DeSoto Beach for collection.

                                       For each area, the group recommended the development of more detailed response
                                       plans, including maps identifying response staging, equipment storage and material
                                       collection areas; access points; boat ramps and channel markers; and water depths.
                                       The group also strongly urged the installation of permanent boom anchors, where fea-
                                       sible and appropriate, to improve spill response and reduce boom deployment time.

                                       Permanent boom anchors are most effective in small areas that are easily contained,
                                       such as creeks, embayments or canals. They provide a permanent fixed point from
                                       which to deploy floating oil booms that are used to surround and contain spilled mate-
                                       rial, or deflect it to other areas for cleanup, saving critical time for spill response
                                       crews.



             225






                ACTION PLM                                                     Spill Prevention & Response              DRAFT

                                                                                                                     Chartinu the Course
                This action is to determine the best locations for these boom anchors, a task that the                 for Tampa Bay
                Florida Marine Research Institute has begun with a grant from the Tampa Bay NEP,
                and to promote installation of these anchors to aid in the protection of these vital areas
                of the bay.
                                                                                                                       SP Z
                                                                                                                    .... .......
                STRATEGY:
                STEPI      Reconvene the Oil Spill Contingency Plan's environmental workgroup in
                           the spring of 1996 to consider results and recommendations on boom
                           anchor locations by the Florida Marine Research Institute. Proposed
                           anchor sites will be evaluated on the basis of technical and permitting feasi-
                           bility, potential for navigational hazard, liability considerations, and cost of
                           implementation. Recommendations from the workgroup will be presented
                           in the final Comprehensive Conservation & Management Plan for Tampa
                           Bay, which will be completed in mid 1996.
                           Responsible parties: US Coast Guard Marine SafeV Office


                STEP2      Secure commitment for installation and maintenance of boom anchors, and
                           install them at recommended sites.
                           Responsible parties: Based on Step 2


                SCHEDULE-
                Step I will occur in 1996, with the goal of having boom anchors installed by 1998.


                COST:
                No additional costs are anticipated for step 1. VAiile installation and construction
                costs for permanent boom anchors will vary, costs are estimated $3,000-5,000 per
                anchor. Long-term maintenance costs are additional.


                EXPECTED BENEFITS.
                Installation of permanent anchors will save critical time in boom deployment, enhanc-
                ing protection of the bay's most ecologically sensitive resources in the event of a spill.


                MONITORING ENVIRONMENTAL RESPONSE:
                The Florida Department of Environmental Protection's Bureau of Emergency
                Response monitors environmental responses to oil spills.


                REGULATORY NEEDS-
                Permits will be required for anchor installations.


                RELATED ACTIONS.-

                P-1




                                                                                                                                221






           DRAFT                      ACTION PLAN                                                   Spill Prevention & Response
       Charting the Course
          for Tampa Bay
                                      Evaluate State Piloting Requirements and Improve
                                      State Authority Over Federal Vessels Carrying
                                      Hazardous Materials

                     .. .. ......



                                      ACTION:
                                      Improve state oversight of harbor pilots and expand state authority over federal ves-
                                      sels carrying hazardous materials.


                                      BACKGROUND:
                                      More than 5,000 vessels traversed Tampa Bay in 1993 on their way to or from the
                                      bay's three ports, located at Tampa, St. Petersburg and Port Manatee. Together, these
                                      ports provide more than 75,000 jobs and generate a combined economic impact of
                                      more than $5 billion a year. The Port of Tampa alone is the nation's seventh largest in
                                      terms of cargo tonnage.

                                      But this bustling waterborne commerce puts the environmental resources of the bay at
                                      risk from collisions and groundings that can result in massive spills of oil and other
                                      hazardous materials. An estimated 14 million gallons of petroleum products pass over
                                      the bay daily, along with anhydrous ammonia, sulfuric acid and other products associ-
                                      ated with the bay area's thriving fertilizer industry.

                                      The nature of the bay itself compounds the risk of accidents. With an average depth of
                                      only 12 feet, the skyscraper-sized ships plying its waters must rely upon a meandering                 41
                                      80-mile network of dredged deep-water channels to safely reach their destination.                      49
                                      Some of the bay's most ecologically productive mangrove forests, marshes and sea-                      0
                                      grasses lie just a few hundred yards from the edge of the shipping channel, and shoal-                 Aft
                                      ing along these steep edges provides a constant navigational hazard.

                                      A journey from the Gulf of Mexico into the Port of Tampa can take three to seven
                                      hours, and mariners at the helm of the ships must make split-second decisions to
                                      avert catastrophes. Highly skilled and locally knowledgeable harbor pilots are the first
                                      line of defense against accidents, and are especially important given that there
                                      presently are no emergency anchorages for ships to pull into in case of emergency,
                                      and a huge container vessel may require  .a mile or more to come to a complete halt.

                                      Currently, the bay's harbor pilots undergo a rigorous training, examination and
                                      apprenticeship period before being allowed to guide a ship on their own. The piloting
                                      system is governed by the state Department of Professional Regulation (DPR) and
                                      appointed representatives of the piloting and maritime industries, who serve on the
                                      state Board of Pilot Commissioners. All state pilots must have a federal pilot's license,
                                      but federal pilots are not required to obtain a state license.

                                      A fiery three-way ship and barge collision that occurred at the mouth of Tampa Bay in
                                      August 1993 served as the catalyst for a reexamination of the current oversight mech-






                ACTION PLM                                                   Spill Prevention & Response             DRAFT
                                                                                                                 Charting the Course
                anisms. That accident resulted in a spill of more than 330,000 gallons of oil, coating              for Tampa Bay
                nearby beaches and mangrove islands for weeks and killing dozens of seabirds.

                Following the spill, the state Legislature passed a bill expanding the grounds for disci-
                                                                                                                     P 3,@::..
                pline of state pilots, to include actions against a driver's license for alcohol- or
                drug-related reasons, and piloting while in an impaired state. The bill also closed a
                loophole which had prevented discipline of state pilots whose federal licenses had
                been placed on probation or who had voluntarily surrendered their federal license in
                lieu of prosecution. Enhanced access to the piloting system was also granted to quali-
                fied minority and women applicants.

                Despite these improvements, additional changes could further reduce the risk of an oil
                or hazardous materials spill in the bay. Requiring that state pilots be used on more
                vessels is one suggestion. For example, state pilots are not required on U.S.-flagged
                vessels under 1,600 gross tons and tugs and barges under 10,000 gross tons. This cate-
                gory encompasses vessels such as small ammonia tankers and propane gas barges,
                which require an exclusion or "safety zone" while in the shipping channels because of
                the hazardous nature of their cargoes.

                Vessels over 1600 gross tons and petroleum barges over 10,000 gross tons require
                only a federal pilot with minimal local experience, while barges of any size not carry-
                ing petroleum products are exempt from all pilotage requirements.

                Enhancing the licensing requirements and disciplinary procedures governing state
                pilots is another way to improve navigational safety. Training of state pilots could be
                expanded to mandate the successful completion of at least one continuing education
                course every two years at a facility approved by the Board of Pilot Commissioners.
                Since pilots curTently are not required to take an exam to renew their license, these
                refresher courses would ensure that their skills remain sharp and up-to-date.
                Additionally, pilots involved in a major accident should have their licenses suspended
                pending the outcome of an investigation into the cause of the accident.


                STRATEGY.
                STEP I     Require a state-licensed pilot on board any vessels carrying hazardous
all                        materials and requiring a "safety zone" while traversing the bay.
                           Responsible parties: Florida Department of Business Regulation, Florida
                           Legislature, U.S. Coast Guard

                STEP 2     Suspend the license of any pilot involved in a major accident until the com-
                           pletion of a preliminary investigation into the cause of the mishap.
                           Responsible parties: Florida DPR, State Board of Pilot Commissioners

                STEP 3     Require that state pilots successfully complete at least one continuing edu-
                           cation course at an approved facility every two years in order to renew their
                           license.
                           Responsible parties: Florida DPR, State Board of Pilot Commissioners




                                                                                                                            223






          DRAFT                   ACTION PLM                                             Spill Prevention & Response
      Charting the Course
         for Tampa Bay            SCHEDULE:                                                                                   40
                                  Step 1 will require at least administrative. rule changes, and possibly legislative action
                                  that could be initiated in 1996 or 1997. Steps 2 and 3 could be accomplished through
                                  administrative rule changes by the Board of Pilot Commissioners, commencing in
             SP                   1996.
                   sx-


                                  COST:
                                  Three to four of the ships crossing Tampa Bay each week require a safety zone for
                                  passage, but do not currently require pilots on board. Given this relatively low num-
                                  ber, it is not anticipated that additional harbor pilots will be needed to handle this
                                  small increase in their workload. Therefore, the costs associated with Steps 1 and 2
                                  are only administrative. The cost of Step 3, requiring ongoing education, will be borne
                                  by the Tampa Bay Harbor Pilots, who already send many of their members to refresh-
                                  er courses. The estimated cost of a one-week seminar at a facility such as the Marine
                                  Institute of Training and Graduate Studies in Maryland is $4,000.


                                  EXPECTED BENEFITS:
                                  The risk of a catastrophic spill of oil or other hazardous materials in Tampa Bay will
                                  be reduced.


                                  MONITORING ENVIRONMENTAL RESPONSE:
                                  `fhe measure of success for this action will be its implementation, which will help to
                                  prevent spills to the bay.


                                  REGULATORY NEEDS:
                                  Possible changes to Chapter 3 10 of the Florida Statutes, governing regulation of
                                  licensed industries in the state. Possible federal legislation to address the need for
                                  pilots on cruise ships. Administrative rule changes by the Florida Department of
                                  Professional Regulation, through the Board of Pilot Commissioners.


                                  RELATED ACTIONS:

                                  SP-1, SP-2






                                                                                                                              Aft










           114






                ACTION PUW                                                      Spill Prevention & Response              DRAFT
                                                                                                                     Charting the Course
                Identify the Most Appropriate Authority To                                                              for Tampa Bay
                Inspect Coastal Bulk OR Storage Facilities In The
                Tampa Bay Watershed



                ACTION.
                Identify the most appropriate entity to conduct annual inspections of coastal bulk oil
                storage facilities.


                BACKGROUND:
                Petroleum products comprise the largest cargo category at the Port of Tampa, and vast
                quantities of oil and other fuels are stored in tanks at and near the port. Tank failures
                caused by equipment malfunctions, structural problems or an airplane or vehicle colli-
                sion could result in a spill of millions of gallons of oil into the bay, with potentially
                devastating economic and environmental damage.

                Under the federal Oil Pollution Act (OPA) of 1990, 21 bulk oil storage facilities at the
                Port of Tampa with a combined capacity of more than 471 million gallons of oil were
                designated Significant and Substantial Harm Facilities, with special inspection and
                planning requirements. OPA gave responsibility for inspecting the waterfront compo-
                nents of these facilities-including docks-transfer pipelines and vessel safety to the
                U.S. Coast Guard, while inspection of the landside components-including contain-
                ment berms, fencing and the tanks themselves-was assigned to the U.S.
                Environmental Protection Agency (EPA).

                This division of responsibilities has some disadvantages, however. One drawback is
                that EPA!s manpower limitations may prevent it from inspecting all the coastal storage
                facilities it is assigned, increasing the risk of a spill. The cost of performing the
                inspections also is a limiting factor, since the inspections are done by personnel from
                EPA!s regional office in Atlanta. Additionally, the inspectors are not able to work with
                facility managers on a regular basis to ensure that their spill prevention safeguards are
                the best possible.

                Because spill prevention is critical to preserving the natural resources of Tampa Bay,
                this action seeks to determine whether EPA authority over inspections of these facili-
                ties should be delegated and, if so, to identify the authority best equipped to take over
                this responsibility.

                The Coast Guard is one potential candidate to assume this duty, since it already con-
                ducts inspections of the docks, vessels and oil transfer components associated with
                the oil storage facilities. The Coast Guard also maintains a high profile among local
                maritime interests through its local Marine Safety Office, and would be a convenient
                and familiar contact point. However, Coast Guard officials are concerned about the
                costs of training their personnel to conduct the additional inspections, as well as legal
j               and enforcement ramifications.



                                                                                                                                225






         DRAFT                 ACTION PLAN                                      Spill Prevention & Response
      Charting the Course
        for Tampa Bay          State or local government environmental and emergency response personnel represent
                               another possible solution. Like the Coast Guard, their proximity to the facilities
                               increases the likelihood that inspections would be performed regularly, and they have
                               a vested interest in preventing pollution from entering Tampa Bay. However, financ
                               ing obstacles exist with this option as well.

               . ............
                               Even if the authority to conduct the coastal facility inspections is delegated, EPA like-
                               ly would retain control of enforcement and compliance issues. The local entity, how-
                               ever, would serve as an early warning system to identify problems and target facilities
                               with a history of non-compliance, forwarding its observations and concerns to EPA.

                               EPA also would continue to conduct inspections of inland oil storage facilities.


                               STRATEGY:
                               This action proposes a workshop to identify whether delegation of the inspections of
                               coastal bulk oil storage facilities is appropriate; what authority is best suited to assume
                               the duty; and what training and additional funding would be necessary to test this
                               approach in the Tampa Bay watershed.

                               STEP I  Sponsor a workshop to evaluate options for improving inspections of
                                       coastal bulk oil facilities in the Tampa Bay watershed. The workshop
                                       should involve spill response experts from EPA, the Coast Guard, Florida
                                       Department of Environmental Protection (FDEP) and maritime interests, as
                                       well as local environmental management and emergency response person-
                                       nel. The workshop should explore cooperative planning, delegation of
                                       authority if appropriate, training and funding requirements, development of
                                       uniform inspection forms and criteria, and legal and enforcement issues.
                                       Responsible parties: Tampa Bay NEP, Coast Guard, EPA, FDEP, mar-
                                       itime interests, local government environmental management and emer-
                                       gency response personnel

                               STEP 2  Forward the recommendations of the workshop participants to the Coast
                                       Guard and EPA representatives serving on the Regional Response Team,
                                       which has authority to implement spill prevention plans and inspections.
                                       The recommendations can be implemented regionally, or just in Tampa
                                       Bay, through a letter of agreement between EPA and the delegated agency.
                                       Responsible parties: Tampa Bay NEP


                               SCHEDULE:
                               The workshop (Step 1) should be held in early 1996, with the recommendations for-
                               warded to the Regional Response Team for implementation in FY 1996-97.


                               COST:
                               Organizing a workshop will involve only administrative and staff costs. The Oil
                               Pollution Act already provides a mechanism for funding inspections of coastal oil
                               storage facilities, so no additional funds will be needed to conduct the inspections.







                                                                                                                    F I R 11, C, T
               ACTIM PLM                                                    Spill Prevention & Response             UIL"Pla-1 *
                                                                                                                 Charting the Course
               However, some additional training of personnel may be necessary if authority for the                for Tampa Bay
               inspections is delegated.


               EXPECTED BENEFITS-.
               Consolidating inspections of bulk oil storage facilities along Tampa Bay will improv                     ...........
                                                                                                      e
               spill prevention efforts, reducing the potential risks to bay fisheries and wildlife from
               a spill.


               MONITORING ENVIRONMENTAL RESPONSE:
               Not applicable.
0              REGULATORY NEEDS.
               None anticipated.



               RELATED ACTIONS-.

               SP-1, SP-2, SP-3















ilk





4W
















                                                                                                                           227






           DRAFT                       ACTION PLM                                                    Spill Prevention & Response
        Charting the Course
          for Tampa Bay
                                       ]Improve Fueling and Bilge Pumping Practices
                                       Among Recreational Boaters


              .. . ...... ... .

                                       ACTION:
                                       Improve fueling and bilge pumping practices among recreational boaters.


                                       BACKGROUND:
                                       As the number of recreational boaters utilizing Tampa Bay increases, the incidences of
                                       small fuel spills and releases of oily bilge water also are expected to escalate. Small,
                                       but chronic, spills occur routinely through careless fueling habitats, operation of out-                0
                                       board motors, discharges of oily bilge water, and improper disposal of used oil prod-                   0
                                       ucts. According to the National Research Council, these small spins account for 90                      0
                                       percent of the oil that ends up in the nation's waterways.                                              0
                                                                                                                                               0
                                       Although many boaters store their boats on land, thousands of vessels remain in the                     a
                                       bay at marinas, yacht clubs and countless docks. Some boat insurance policies require                   0
                                       automatic bilge pumps, but boat owners also pump their bilges manually. The cumu-                       0
                                       lative amount of oil entering the bay as a result of recreational vessel bilge pumping                  40
                                       can be substantial.                                                                                     0

                                       Typically, recreational vessels stored dockside use automatic bilge pumps to prevent
                                       accidental sinkings, from equipment failures or storms. These pumps are activated                       0
                                       when the interior volume of water reaches a certain level. The bilge water that is
                                       automatically pumped from vessels with internal engines may contain small amounts
                                       of fuel, cleaning solutions, and other chemicals that pollute the bay.
                                                                                                                                               0
                                       In addition, fuel spills frequently occur when boat owners fill their tanks. Boat own-                  0
                                       ers often can't tell when the tank is full until the overflow valve discharges diesel or                41
                                       gasoline into the bay.                                                                                  0
                                       Federal and state laws prohibit the discharge of any fuel or oil within 12 nautical                     is
                                       miles of shore. As little as one cup of fuel can cause a "fuel sheen," which is a misde-                40
                                       meanor that can result in a warning or fine. To help prevent discharges, very large                     41
                                       commercial vessels are required to have oil-water separators. However, these are not                    An
                                       required, and are often impractical, for smaller vessels. Additionally, only vessels                    7.
                                       longer than 26 feet in length are required to have a placard reminding the operator that
                                       oil discharges are prohibited.

                                       If a substantial amount of fuel or oil is spilled in a bilge, the vessel owner or operator
                                       is required to hire an oil recycling contractor to pump the w4ter-oil mixture into an
                                       approved container. If a spill empties directly into navigable waters, operators also                   C
                                       must also immediately notify the U.S. Coast Guard. State law also prohibits the dis-
                                       charge of oil dispersants or bilge cleaners into bay waters.

                                       Though enforcement of these regulations is difficult because of the number of boaters
                                       and marinas on the bay, current U.S. Coast Guard procedures since April 1995 allow

             its







                                                                              1131R'1-11
                                                   Spill Prevention & ResponseI
          ACTION PLM                                                          11311FIN-21 I I

                                                                           Charting the Course
          enforcement officers to cite violators. The Tampa Marine Safety Office conducts for Tampa Bay
          daily patrols and has written 33 tickets to recreational boaters (and 22 to commercial
          boaters). Fines range from $50 to $1,000 for a first offense, depending on the size of
          the spill and can escalate up to $25,000 a day for large spills.

                                                                                X",
                                                                           ...Sp S....
          Boater education remains the most effective long-term strategy for reducing chronic
          spills of oil, fuel and oily bilge water to the marine environinent. According to a 1992
          survey by the Tampa Bay NEP, boaters are more concerned than land-bound residents
          about environmental impacts, so heightened awareness may accelerate responsible
          actions by this group.

          There are no recreational bilge pump-out facilities in Tampa Bay. If a marina has
          drums set up to receive oily-water, boat owners often have to manually pump their
          bilge water into buckets and transfer it to a drum-a cumbersome practice that dis-
          suades all but the most environmentally conscientious boaters. Davis Island Yacht
          Club has established such an operation; boat owners are charged 55 cents per gallon,
          which pays for the drums to be hauled away properly.

          Use of existing commercial products can assist these efforts. Bilge pillows, diapers,
          and oil-absorbent pads, available at most marine stores, act like a magnet in separating
          oil from bilge water. Boat owners put them in their bilges and dispose saturated pads,
          oil-water mixtures, and other hazardous boat chemicals in a proper waste container or
          with a recycler. Various fuel-air separators, designed to fit most vessels, also are
          available for less than $50 for installation in the vent line.

 Ilk
 .W
          Boater education courses, offered by the Coast Guard Auxiliary now include environ-
          mental protection and fueling safety components. Coast Guard Reservists that are
          SEA PARTNERS present environmental programs and attend boat shows to educate
          the public and boaters. This action seeks to reduce small spills by improving educa-
          tion of new boaters and boat owners who store their vessels in the water.


          STRATEGY-.
          The strategy to improve fueling and bilge-pumping practices encourages boat owners
          with internal engines and fuel tanks to install fuel-overfill protection devices and oil-
          water separators, where feasible. It also emphasizes boater education and outreach to
          yacht clubs, sailing organizations, marinas, and "high-dry" facidties where boats are
          stored.


          STEPI  Encourage registered boat owners to install fuel overfill protection devices
                 and oil-water separators in automatic bilge pumps. Encourage boat owners
                 to switch bilge pumps "off' when fueling, and to visually inspect bilges
                 after fueling.
                 Responsible parWes: Florida Department of Environmental Protection
                 (FDEP), U.S. Coast Guard Auxiliary, Marine Manufacturers Association,
                 Sea Grant
 ,4



 10


                                                                                  229






           DRAFT                        ACTION PLM                                                    Spill Prevention & Response
        Charting the Course
          for Tampa Bay                 STEP 2     Develop education materials that will stimulate solutions to bilge contami
                                                   nation and fuel handling situations. Ideally, materials will include a free
                                                   sample "oil sorb" product that will allow the recreational boater to see, first
                                                   hand, the practical application of such a product.
                                                   Responsible parties: FDER, U.S. Coast Guard Auxiliary, SEA PART-
                        51.1,
                                                   NERS, Sea Grant
                        .... ........


                                        Note: Extensive educational material produced by manufacturers and other boater
                                        environmental education programs (Puget Sound Alliance, Chesapeake Bay
                                        Foundations, CMC etc.) already exists and can be tailoredfor local use.

                                        STEP 3     Distribute educational materials to yacht clubs, sailing schools, boating
                                                   organizations, and boat shows around the bay, as well as to all marinas that
                                                   store boats in the water and in "high and dry" facilities. Form or utilize an
                                                   existing speakers bureau to address these groups and possibly distribute
                                                   free oil-sorb samples in partnership with one of the leading manufacturers.
                                                   Responsible parties: FDER, U.S. Coast Guard Auxiliarists, SEA PART-
                                                   NERS, Sea Grant Marine Extension, CMC


                                        SCHEDULE:
                                        The Tampa Bay National Estuary Program will convene the organizations listed above                      40
                                        to evaluate on-going programs and materials, and develop a plan to implement the                        0
                                        Steps 1 - 3 (with new or existing materials) in 1996.                                                   0

                                        COST:
                                        Costs will to develop and distribute educational materials will be determined based on                  A:
                                        format selected, but should be accomplished through existing resources or available                     Am
                                                                                                                                                1W
                                        grants. Manufacturer and boat dealershi sponsors should be aggressively pursued.                        Am
                                                                                  p


                                        EXPECTED BENEFITS:
                                        Reduced small spills during fueling and during automatic bilge pumping.


                                        MONITORING ENVIRONMENTAL RESPONSE:

                                        The measure of success for this action will be a reduction in the number of minor
                                        spills reported.


                                        REGULATORY NEEDS:
                                        None anticipated.


                                        RELATED ACTIONS:

                                        BH-4, TX-3, PH-3




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  0                                                                                                                                                                                                                                                                                                                                                                             ACTION PLM Spill Prevention & Response      DRAFT -
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                                                                                                                                                 IMPLEMENTATION

                                                                                                                                                  AND FINANCING


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                                                                                                                        DRAFT
                                                                                                                    Charting the Course-
                                                                                                                       for Tampa Bay
                finplementation &
                FM`ancM*
10                                             9






                Introduction
                This chapter describes how the comprehensive management plan will be implemented
                by local governments, agencies and other bay stakeholders, and discusses the over-
                sight role of the Tampa Bay National Estuary Program in ensuring that the goals of
                the plan are achieved.

                Local government and agency partners in the Tampa Bay NEP will sign an agreement
                in late 1996 pledging to carry out the recommendations of the final management plan.
                The agreement will include specific goals for the recovery of vital resources, such as
                seagrasses and wetlands, as well as water and sediment quality goals for nitrogen and
                toxic contaminants. It also will spell out each partner's responsibility for meeting
                those goals, and a timetable for achieving them.

1W              But how those targets are reached will be left up to individual communities, who may
                select the most suitable options from among a range of alternatives. Many of those
1W              options are described in this plan as examples of how a community might comply
                with its commitment to reduce pollution in the bay. This approach not only empha-
                sizes flexibility, but allows local governments to focus their limited resources in the
                most cost-effective and environmentally beneficial manner.

                Additionally, the implementation strategy outlined in this chapter addresses how these
                goals and initiatives for Tampa Bay will be integrated into existing management plans
                and regulatory programs.

                Existing bay management expenditures also are presented to provide readers with an
                understanding of how much money is currently allocated and where it is going.
                Financing options that follow illustrate possible sources of revenue and approaches to
                accomplish goals of the plan that might not otherwise be achieved with existing
                resources. Wherever possible, the Tampa Bay NEP advocates the reallocation or more
                efficient use of existing revenues to carry out recommended actions.

                Implementing the Plan for Tampa Bay
                Successful implementation of the bay restoration blueprint will require firm commit-
                ments for action, flexibility for local governments to pursue the most cost-effective
                strategies to achieve a particular goal, integration of goals and strategies into existing
                                                                                                                               233






           DRAFT
       Charting the Course            regulatory programs and rules, and effective oversight to ensure that actions are car-
          for Tampa Bay               ried out in a timely manner.

                                      Commitments will be secured through an implementing agreement signed by
                                      regulatory and local government partners in the Tampa Bay NEP in 1996, after the
                                      bay management plan has been finalized. These partners include Hillsborough,
                                      Pinellas and Manatee counties; the cities of Tampa, St. Petersburg and Clearwater; the
                                      Southwest Florida Water Management District; Florida Department of Environmental
                                      Protection; and U.S. EPA. Other relevant agency and industry partners also will be
                                      encouraged to become part of the formal implementing agreement.

                                      This agreement will incorporate the finalized goals for Tampa Bay and equitably
                                      assign responsibility for achieving them. A draft version of the goals and priorities for
                                      Tampa Bay is presented in Chapter Three, immediately preceding the section on Bay
                                      Action Plans.


                                      To strengthen this agreement, the Tampa Bay NEP has applied to the U.S. EPA to par-
                                      ticipate as a community pilot project under the President's new XL Initiative on
                                      Reinventing Environmental Regulation. Acceptance into this program will give EPA
                                      the flexibility it needs to allow other regulatory agencies, local governments and
                                      industries to pursue the most environmentally beneficial and cost-effective strategies
                                      for bay restoration and protection. Concurrent flexibility from the state, the Southwest
                                      Florida Water Management District, and local regulatory agencies is anticipated.

                                      A key focus of the Tampa Bay NEP over the coming months will be to secure final
                                      commitments from those agencies, local governments and community partners identi-
                                      fied as "responsible parties" to implement specific actions advanced in Charting the
                                      Course.


                                      Allocations of nitrogen loading targets for Tampa Bay to local governments and possi-
                                      bly to other dischargers also will be finalized in 1996. To ensure that these allocations
                                      are equitable, the Tampa Bay NEP is investigating proportional allocation schemes, in
                                      which dischargers are assigned a fair share of the cleanup burden based on their con-
                                      tribution to the problem. Additionally, the Program is investigating the use of loading
                                      reduction credits, to allow public and private interests who discharge less than their
                                      pollutant allocation to sell or trade the remaining amount to another discharger that
                                      cannot meet its limits.


                                      The NTEP also advocates public and private partnerships to achieve more cost-effective
                                      results than could be attained through individual actions.

                                      Action Plans to Achieve Bay Goals
                                      In accordance with a schedule agreed to in the implementing agreement, each partici-
                                      pating local government and agency will be asked to submit an action plan detailing
                                      how it intends to achieve the bay goals and associated responsibilities for review by
                                      the NEP's Management and Policy Committees. Communities may select from vari-
                                      ous strategies advanced in the plan to reach water quality, habitat restoration, and
                                      other applicable bay improvement goals. These action plans should include descrip-
                                      tions of proposed projects, how that project contributes to achieving goals (quantified,


            134







                                                                                                                          RA B*:`
                                                                                                                       ?I h
                                                                                                                       USH7 I I*;
                where applicable) with supporting documentation of benefits, an implementation                      Charting the Course
                schedule, and a cost and financing plan.
                                                                                                                      for Tampa Bay

Mh
4W              These action plans are particularly important in relation to nitrogen loading goals,
                because they will be incorporated into regulatory permits and may replace existing
                standards where a net benefit to the bay can be demonstrated. These action plans may
                be based on ongoing watershed initiatives begun prior to the adoption of the compre-
                hensive plan for Tampa Bay, as long as these watershed plans are consistent with the
                bay plan's objectives. In fact, watershed action plans that address specific basins
                within the larger bay ecosystem can be an excellent tool for implementing the bay plan.

                Goals for habitat restoration and protection are being finalized now. Both local gov-
                ernments, and agencies at the local, regional and state level that participated in the
                development of the habitat master plan will promote these goals and overall strategies
                in their respective plans. Furthermore, as part of the implementing agreement, the
                Tampa Bay NEP will secure commitments from these partners to devote a significant
                percentage of their planned expenditures for habitat restoration and protection along
                Tampa Bay to these common goals and priority projects.

                Integrating the Plan into Existing
                Environmental Rules & Programs
                Charting the Course has been developed in cooperation with the bay area's six largest
                local governments, and environmental agencies at the local, state and federal levels, to
                reach consensus on bay restoration goals and strategies. Once government and
                agency action plans to achieve bay goals are submitted and approved by the
                Program's Policy Committee, these action plans will be incorporated into state and
                federal water quality permits addressing direct or point discharges and stormwater
                management, and become part of local government comprehensive plans.

                The Tampa Bay NEP also has coordinated closely with numerous environmental
                alliances devoted to improving and protecting specific portions of the bay, including
                the Hillsborough River Greenways Task Force, the McKay Bay initiative, and the
                Cockroach Bay Aquatic Preserve Management Team. These public-private alliances
                of environmental and economic stakeholders are excellent models for community-
                based planning.

0               A key partner in the Tampa Bay NEP has been the Southwest Florida Water
0               Management District and its Surface Water Improvement and Management (SWIM)
0               Program, which is expected to play an important role in implementing the bay plan.
0               The Tampa Bay NEP also works closely with the Agency on Bay Management
0               (ABM), which serves as the natural resources committee of the Tampa Bay Regional
                Planning Council. ABM will be spearheading efforts to investigate and make final
                recommendations to the NEP for several key actions in the habitat restoration and
                protection action plan.

                Results of a Federal Consistency Review, to evaluate and rectify possible inconsisten-
                cies among the goals of other federal programs and those established for Tampa Bay,
                will be included in the final bay plan.


                                                                                                                              235






         DRAFT
      Cizarting the Course        Roles of the Tampa Bay NEP in
        for Tampa Bay             Overseeing Implementation
                                  The success of the Tampa Bay National Estuary Program ultimately will be measured
                                  in bay improvement achieved through implementation of the comprehensive bay man-
                                  agement plan. Consequently, a key ingredient for success is defining who should
                                  oversee implementation of the plan and what oversight should entail.

                                  The primary oversight roles of the Tampa Bay NEP will be to monitor progress (in
                                  implementation and the bay's recovery), assist implementation, continue public out-
                                  reach and involvement, and help improve data management. Specific efforts associat-
                                  ed with these functions are outlined below.


                                  One of the strengths of the Tampa Bay NEP is the precedent-setting alliance of local
                                  governments and regulatory agencies represented on the NEP's Policy Committee,
                                  which sets overall direction and contributes funding for the Program. In fact, local
                                  government and agency partners feel that maintaining this decision-making struc-
                                  ture-with regulators and regulated interests working together toward common goals
                                  and assisted by scientific and community advisors-is critical to assuring implementa-
                                  tion of the plan for Tampa Bay. This bottoms-up approach to environmental manage-         40
                                  ment gives all partners a voice in the future of Tampa Bay.

                                  The Policy Committee also is evaluating options for expanding committee member-
                                  ship to broaden representation by smaller local governments and other interests.

                                  The U.S. EPA, which administers the National Estuary Program, has set aside $1.2
                                  million or $300,000 over four years beginning in April 1997 to assist the Tampa Bay
                                  National Estuary Program in overseeing implementation of the bay restoration blue-
                                  print. This federal contribution requires a 25 percent local match from the communi-
                                  ties and agencies now participating in the NEP, a percentage equal to their current
                                  contributions.


                                  Oversight Roles
                                  Monitor & Report Progress

                                  ï¿½   Monitor progress in implementing bay action plans and achieving goals for
                                      Tampa Bay

                                  ï¿½   Produce periodic updates to action plans

                                  ï¿½   Prepare an annual progress report to policy leaders and the community on
                                      progress in charting the course for Tampa Bay

                                  ï¿½   Produce a biennial bay monitoring report for bay managers

                                  Assist Implementation

                                  ï¿½   Seek timely implementation of priority actions
                                  ï¿½   Pursue grants and other funding to support bay restoration
                                  ï¿½   Direct or coordinate technical investigations and other efforts to assist implemen-
                                      tation (especially EFA's Great Waters Program, which is funding research studies
                                      of atmospheric deposition to Tampa Bay)








                0   Provide staff support for the committees of the Tampa Bay NEP, comprised of                    Charting the Course
                    participating local governments, agencies, and technical and community interests
                                                                                                                     for Tampa Bay
                    devoted to bay improvement

                0   Assist in conflict resolution if mediation is needed

                Public Outreach and Involvement

                0   Continue community outreach and involvement efforts, promoting priority issues,
                    progress in charting the course for bay restoration, and bay stewardship and
                    appreciation

                Data Management
                0   ]Improve public and agency access to bay management data and information, par-
                    ticularly on the Internet


                Cost & Financing
                Costs associated with individual actions presented in Charting the Course are present-
                ed in those action summaries. In many cases, these represent the level of effort that
                an implementing party might anticipate in budgeting these tasks. However, these
                should not automatically be construed as requirements for new sources of revenues,
                since some of these initiatives can be accomplished with existing resources or by re-
                directing current funding allocations to better address the bay's needs.

                Additionally, a number of actions seek to improve coordination and planning among
                local governments and agencies, and may actually result in cost savings for currently
                funded activities.


                In fact, the Tampa Bay National Estuary Program strongly advocates the reallocation
                or more efficient use of existing resources to carry out recommended actions. A study
                by the NEP indicates that existing bay-related expenditures at the local, state and fed-
                eral levels exceed $260 million per year (based on FY94-95 budgets). Of that
                amount, 65 percent, or roughly $170 million, is devoted to wastewater collection,
                reuse and treatment-activities that either indirectly or directly benefit the bay, even if
                they aren't performed solely for the bay's benefit. These activities are funded largely
                through wastewater utility enterprise funds, created by local governments expressly
                for these purposes.

                The next largest allocation of 13 percent, or nearly $35 million, is expended primarily
                by local governments and the Southwest Florida Water Management District for
                stormwater management, including handling and treatment. About half of these pro-
                grams are financed through storTnwater utility funds. The remainder comes from ad
                valorem taxes, energy utility taxes, permit fees and licenses, pollution trust funds, and
                state and federal general revenues.

                Budgets for habitat restoration, preservation and management total approximately $17
                million or nearly seven percent, excluding land acquisition (another four percent).
                Regulation and enforcement funding, dredging and dredged material management,
                envirom-nental monitoring and public education comprise the remainder of the expen-
                ditures. General revenues, in combination with ad valorem taxes and special fees and
                licenses, are used to finance these vaxious efforts.
                                                                                                                             237






           DRAFT
       Charting the Course             Preliminary analyses indicate that the cost to maintain existing nitrogen loadings to
         for Tampa Bay                 the bay may be relatively minimal over time. However, additional water quality
                                       improvements may be necessary to achieve further progress. Offsetting anticipated
                                       nitrogen loadings associated with growth may require an overall nitrogen reduction of
                                       about 10 percent by the year 2010, or approximately one percent per year. Annual
                                       costs to reduce nitrogen loadings are estimated at approximately $100,000 per ton of
                                       nitrogen, or about $3 million per year for every percent decline in nitrogen.

                                       Preliminary costs also have been established for habitat restoration, another focal
                                       point of the comprehensive plan for Tampa Bay. Those figures suggest existing annu-
                                       al expenditures of approximately $350,000 can be used to restore an optimum balance
                                       of habitats for Tampa Bay. That amount is based on restoring about 20 acres of low-
                                       salinity tidal marsh habitat per year.

                                       Although costs for meeting other goals have not been fully determined, recommended
                                       actions will focus on cost-effective use of existing resources and a clear return on
                                       investment. Any additional funds required to restore Tampa Bay will be documented
                                       in the action plans submitted by local governments and subject to public consideration
                                       to ensure that issues of affordability, accountability, and envirom-nental responsibility
                                       are given a fair hearing.                                                                               40
                                       In keeping with this theme, the Tampa Bay NEP advocates the following approach for                      0
                                       funding the comprehensive management plan for Tampa Bay:

                                       ï¿½  Maintain existing levels of expenditures for programs making cost-effective con-
                                          tributions to bay restoration goals;

                                       ï¿½  Evaluate programs that fall short of these aims and investigate opportunities to re-
                                          direct resources to accomplish more with public tax dollars;
                                       ï¿½  Aggressively pursue state and federal funding assistance for environmental
                                          improvement;

                                       ï¿½  Promote public-private partnerships with the potential for bottom-line benefits for
                                          the bay and businesses;

                                       ï¿½  Pursue new funding sources only if strategies above fail to achieve adequate
                                          progress toward bay improvement;

                                       ï¿½  Aggressively pursue permit streamlining for projects advanced in the bay plan, in
                                          conjunction with overall regulatory flexibility in areas where a net benefit to the
                                          bay can be achieved.

                                       If additional funds are necessary in the future, the Tampa Bay NEP has identified vari-
                                       ous funding sources for local and state partners to consider. These include three broad
                                       categories of revenue sources:

                                       ï¿½  debt instruments, such as long-term municipal bonds or the state revolving loan
                                          fund, which support large projects involving substantial engineering and construc-
                                          tion, such as wastewater treatment and reuse facilities and associated pipeline
                                          infrastructure;

                                       ï¿½  recurring sources, such as taxes or user fees, that might be tapped for bay restora-                 0
                                          tion purposes, although this would probably require budget reallocations on the
            238                           part of local governments, and;








                                                                                                                        unRr i
                0   short-term revenue sources, such as federal, state and private grants, which can                Charting the Course
                    provide short-term capital for bay improvement projects. Their long-term avail-
                                                                                                                       for Tampa Bay
                    ability is uncertain, but these sources have been aggressively and successfully
                    pursued by the Tampa Bay NEP and other agency and local government partners.

                Revenue sources are summarized and evaluated in a separate report available from the
                Tampa Bay National Estuary Program. That report notes that some revenue sources
                are currently not being used to their full legal capacity. Federal grants and various
                debt instruments fall into this category. Ad valorem taxes also may apply, since all
                major local governments currently operate below the maximum millage cap, although
                the margin is small in some cases. Impact and user fees as a funding mechanism for
                environmental programs also appear to be under-utilized by local governments.

                The report also notes other funding mechanisms that are allowed by law but have
                never been implemented locally, such as a saltwater fishing license surcharge and a
                marine fuel surtax. Some of these same revenue sources may even serve as incentives
                for environmentally responsible behavior, as this chart illustrates:



                Funding Source                              Incentive Mechanism

                User fees                                   When fee based on usage, reduces impact on
                                                            resource

                Anchorage fees                              Reduce anchor damage to near-shore areas
                Privilege fees                              Can be implemented to manage use at public
                                                            facilities
0               Stormwater utility fees                     May reduce runoff pollution from properties
                                                            by encouraging on-site retention/stormwater
                                                            treatment

                Impact fees                                 Reduce septic tanks and package treatment
                                                            plants
                Fines & penalties                           Encourage compliance with environmental
                                                            laws

                Marine fuel surtax                          Reduce use of marine fuels and associated
                                                            pollution
                Shellfish license fees                      Encourage local shellfish management plans.







0
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RW
                                                                                                                     UNIAr I
                                                                                                                 Charting the Course
               MoflitormQ@ Bav                                                                                      for Tampa Bay
               fmProvement

               E
                   fforts to monitor the bay's health are central to the success of bay restoration
                   efforts, for monitoring enables communities to measure return on investment and
               helps environmental managers validate or refocus existing strategies for bay improve-
               ment.


               An effective monitoring program provides the data necessary to assess the status and
               trends in the health and abundance of the bay's wildlife and habitats. This informa-
               tion allows local governments and agencies to evaluate progress made in the restora-
               tion and protection of Tampa Bay. The data also provides insights into the effective-
               ness of current management strategies, indicating when goals have been met, if
               actions should continue, or whether more stringent efforts are warranted.

               Monitoring the changes caused by management actions in an estuary is not as simple
               as counting fish or measuring water quality. Estuaries, by their very nature, are
               dynamic systems. Populations of fish, birds and other organisms fluctuate following
               natural cycles. Water quality also varies, particularly as seasonal and annual weather
               patterns change. The task of tracking environmental changes in an estuary can be dif-
               ficult - and distinguishing changes caused by human actions from natural variations
               can be even more difficult.


               The coordinated bay monitoring program devised by the Tampa Bay NEP in coopera-
               tion with local governments is designed to address many of these challenges by build-
               ing on existing efforts to more fully and clearly assess progress in the bay's recovery.

               Tampa Bay benefits from several existing water quality, habitat and fisheries monitor-
               ing programs, including an ambient water quality monitoring program operated by the
               Environmental Protection Commission (EPQ of Hillsborough County since 1974.
               These programs have contributed significantly to the wealth of knowledge available
qW             on the Tampa Bay estuary.

               The monitoring design devised by the Tampa Bay NEP builds on this existing founda-
all
               tion. Existing monitoring programs have been standardized and expanded in some
               areas, and new components - to measure atmospheric deposition, bay sediment
               chemistry and the health of benthic communities - have been added.

               A series of workshops with local government and agency partners helped to define
               five general monitoring objectives for the water quality, fisheries, benthic and habitat
               components of the program. These objectives are to:

                                                                                                                            241






           DRAFT
       Charting the Course            0    estimate the areal extent of the bay that does not provide adequate water quality
          for Tampa Bay                    conditions to support seagrasses and other living resources
                                      ï¿½    assess the abundance and health of bay fish populations over time
                                      ï¿½    estimate the areal extent of degraded benthic habitat in the bay and within each
                                           bay segment
                                      ï¿½    estimate the areal extent and quality of seagrasses, mangroves and emergent bay                   0
                                           wetlands

                                      ï¿½    estimate the areal extent of oligohahne (low-sahnity) habitat in the bay and its
                                           tributaries.


                                      This focus on measuring the areal extent of bay conditions expands upon traditional
                                      methods and can dramatically increase the value of information collected. For
                                      instance, simply considering the average concentration of dissolved oxygen through-
                                      out the bay may appear to indicate that water quality standards have been met. But, in
                                      fact, this may not be the case, since water quality in some portions of the bay may still
                                      be inadequate - or much better than average. The new approach will indicate how
                                      much of the bay, by percentage or number of acres, is not meeting water quality con-
                                      ditions to support seagrass recovery targets. It also allows more effective assessment
                                      of trends in cases where some areas decline and others improve but the overall condi-
                                      tion does not change.

                                      Another new element in the monitoring program for Tampa Bay is an increased
                                      emphasis on communicating information in a standard and more meaningful format.
                                      Prior to standardization, monitoring programs used various methods to communicate
                                      their results. The monitoring framework has been specifically designed to provide a
                                      forum and format for compiling and synthesizing results from major monitoring pro-
                                      grams in a single comprehensive document - the Biennial Environmental Monitoring
                                      Report.

                                      Monitoring workshops will be held regularly, every second or third year, allowing
                                      environmental professionals from various programs to meet and review findings. A
                                      separate report will be written for decision-makers at government agencies responsible
                                      for the management of the Tampa Bay estuary.

                                      Monitoring Components
                                      The environmental monitoring program for Tampa Bay encompasses five
                                      components:


                                             1.  Water quality
                                             2.  Benthos and sediment chemistry
                                             3.  Atmospheric deposition
                                             4.  Bay habitats (including seagrasses, emergent wetlands and
                                                 oligohaline areas)
                                             5.  Bay fisheries and wildlife.
                                                                                                                                             CP
                                      Each of these bay monitoring components is summarized below.                                           a


            242






                                                                                                                    DRAFT
               Water Quality
                                                                                                                Charting the Course
               While current programs measure trends in water quality over time very effectively,                  for Tampa Bay
               they were not originally designed to provide estimates of the spatial extent of condi-
               tions in the bay. Four local governments measure water quality (including nutrients,
               chlorophyll a and other parameters) at 125 stations in Tampa Bay. Those stations
               were selected to meet the needs of their respective programs and may not entirely sat-
               isfy the needs of the bay-wide environmental monitoring program. To truly determine
               the extent of conditions reported, stations must be randomly selected.

               About 70 percent of the 125 stations have been incorporated into a statistically valid
               bay-wide monitoring design. This design is based upon EPNs Environmental
               Monitoring and Assessment Program (EMAP) grid, which allows for random station
               selection. It enables local governments to continue their long-term study at many sta-
               tions while providing a more rigorous method to evaluate the spatial extent of condi-
               tions in specific segments of the bay.

               The EPC of Hillsborough County, Pinellas County, Manatee County and the City of
               Tampa conduct water quality monitoring in the bay. Coordination between team par-
               ticipants includes standardizing collection and analysis methods, sharing and compari-
               son of collected data and collation of all data into biennial moritoring reports. These
               governments also are participating in the West Coast Regional Ambient Monitoring
               Program (RAMP), an ongoing program initiated by Tampa Bay and Sarasota Bay
               NEPs, the Southwest Florida Water Management District (SWFWMD) and local gov-
               ernments to coordinate environmental monitoring data from Tampa Bay to Charlotte
               Harbor.


               Benthic Communities and Sediment Analysis
               A new component in Tampa Bay's monitoring program will focus on measuring the
               quality of bay-bottom sediments and their effects on bottom-dwelling sea life.
               Collection stations will match those randomly selected for water quality sampling.

               The Tampa Bay monitoring program will evaluate the abundance and composition of
               benthic species found throughout the bay to identify those areas that differ from
               expected patterns. Since some species of benthos are more sensitive to environmental
               stress, these areas may indicate impacts from contaminants, habitat alteration or other
               trauma.


               The health and abundance of benthic organisms are indicators of the bay's overall
               health. If contaminants are present in the water column or sediment, filter-feeding
               benthic organisms and detritivores can accumulate these contaminants in their tissue.
               They also are an important link in a food web that supports many forms of marine
               life, and can therefore pass on accumulated contaminants to other organisms that feed
               on them.


               Dissolved oxygen is another indicator scientists use to gauge the health of the bay's
               benthic communities. Research in nearby Sarasota Bay indicates that stressed sea-
               grass beds may not support the fish and other aquatic life typically associated with
               healthy grass beds. The lack of sealife may be a result of low levels of dissolved oxy-
               gen during pre-dawn hours, an issue that will be addressed in Tampa Bay as an ele-
                                                                                                                           243






           DRAFT
       Charting the Course           ment of the benthic monitoring program.
          for Tampa Bay              The bay monitoring program also calls for local governments to monitor levels of
                                     contaminants in sediments as part of their assessments.- Initial studies indicate that
                                     some areas of the bay contain contaminated sediments, but the severity and spatial
                                     extent of contamination in these areas are currently unknown. In future years, the
                                     effect of contaminants on benthic life also is scheduled to be studied with bioassays
                                     that subject test organisms to benthic sediments. Observing the health of benthos
                                     exposed to sediment samples in a laboratory will help to indicate toxic sites or areas
                                     of healthy benthic communities.

                                     Sediment chemistry and toxicity measurements also are designed to correlate with
                                     other monitoring programs and allow comparison of toxicity data across the country.

                                     The EPC of Hillsborough County, Pinellas County and Manatee County are partici-
                                     pants in the benthic monitoring program, which was initiated in 1993.

                                     Atmospheric Deposition
                                     Preliminary research indicates that up to 28 percent of nitrogen loading in Tampa Bay,
                                     as well as a significant percentage of cadmium, copper and lead, may come from
                                     atmospheric deposition.

                                     The Tampa Bay NEP has funded a pilot program to measure nutrient and heavy metal
                                     loadings from atmospheric deposition at seven sites in the Tampa Bay watershed.
                                     Pesticides (including DDT) and other organic pollutants also are being measured at
                                     selected sites. Weekly samples will be monitored for levels of copper, lead, zinc,
                                     nitrates and phosphorus. Mercury, which also is associated with atmospheric deposi-
                                     tion, is being monitored under a separate program through the Florida Department of
                                     Environmental Protection. The pilot program will provide new insights into the distri-
                                     bution of contaminants transported by rainfall and dustfall.

                                     Air and water quality divisions of the EPC of I-Ellsborough County, Pinellas County
                                     and Manatee County, as well as SWFWMD, the Florida Department of Environmental
                                     Protection (FDEP) and the Florida Department of Transportation, will be participating
                                     in a long-term monitoring program for atmospheric deposition throughout the water-
                                     shed, in association with EPA!s Great Waters initiative.


                                     Bay Habitats
                                     The extent and quality of habitat available for fish and wildlife is critical to maintain-
                                     ing and restoring Tampa Bay. Many species have specific habitat requirements that
                                     must be met for their survival.
                                                                                                                                          A"
                                     Among the most vital habitats in Tampa Bay are the seagrass meadows that once cov-
                                     ered much of the bay's shallow regions. Ongoing monitoring efforts have demonstrat-
                                     ed recovery of seagrasses in some areas of the bay, but more comprehensive monitor-
                                     ing efforts are needed to document the overall health of these existing and recovering
                                     grass beds.

                                     SWFWMD maps seagrass beds using aerial photographs taken every two years and
                                                                                                                                          AM
            144                      verifies the data with field checks gathered from 73 randomly selected sites. The






                                                                                                                        DRAFT
0               health of seagrasses in randomly selected areas also will be monitored by measuring
40              density of plants, the number of blades per plant and the relative density of epiphytic             Charting the Course
0               algae attached to the grass blades. More frequent sampling may be required if signifi-                 for Tampa Bay
0               cant declines in seagrass coverage or health are noted in the future.
0
0               SWFWMD is responsible for mapping and seagrass quality monitoring. The City of
0               Tampa is conducting more detailed monitoring in Hillsborough Bay.
41,
                Ohgohaline - or low-salinity - habitats also are critical for fisheries. Located in
41              portions of tributaries where salinities range from zero to 10 parts per thousand, the
40              boundaries of these low-salinity habitats fluctuate with the flow of fresh water in nat-
                ural cycles. They also have been hard-hit by development along the tributaries and
0               diversions of fresh water to serve the region's potable water needs.
0
0               Until recently, little effort had been made to quantify the loss of low-salinity habitats,
0               but new studies by regional and state agencies have mapped marshes, mangroves and
40              other wetland vegetation. The studies also are measuring salinity and other parame-
0               ters in major rivers.
0
0               An ongoing project to develop a watershed master plan for habitat restoration and pro-
0               tection will evaluate methods of tracking the extent and quality of oligolialine habi-
41              tats, as well as marshes and mangroves. A separate study also is underway to deter-
                mine the effects of changes in freshwater inflows to Tampa Bay, including their
0               effects on fisheries and other aquatic life.
0               Parties responsible for monitoring oligohaline habitats will be identified as part of an
0               ongoing technical project.

                Fish & Wildlife
                Both fish and wildlife in the Tampa Bay region have shown steep declines over the
                past 30 years. Activities to document their resurgence as new bay management prac-
                tices are implemented are necessary to maintain ongoing support for bay restoration.

                The FDEP's Critical Fisheries Monitoring Program, established in 1990, provides the
                most comprehensive sampling of fisheries in the bay. This program, conducted by
                FDEP's Florida Marine Research Institute, employs stratified random and fixed-sta-
                tion monitoring to assess the abundance and distribution of the bay's fish and
                macroinvertebrates.


                To monitor potential environmental effects from toxic or hazardous materials, the
                Tampa Bay NEP has recommended that the program be expanded to document abnor-
                malities in all fish over 75mm long, including tumors, parasites, skeletal malforma-
                tions and deformities in the gills, mouths and eyes. The largest five fish in each target
                species also would be analyzed for chemical contaminants.

                DEP also monitors the numbers of endangered sea turtles, manatees and bottle-nose
                dolphins in Tampa Bay with aerial surveys conducted over nearshore waters. Data
                collected includes location, species, number of adults and calves, and animal behavior.

                The bay's colonial breeding bird populations are monitored by Audubon Society's
                Tampa Bay Sanctuaries, which conducts an annual ground survey and census at island                            245






           DRAFT
       Charting the Course            nesting sites in the region. Audubon also sponsors an annual Christmas count
          for Tampa Bay               fundraiser, dispatching teams of volunteers to various places to note numbers and
                                      varieties of birds. Aerial surveys of pelicans and mid-winter surveys of waterfowl are              40
                                      conducted annually by Florida's Game & Fresh Water Fish Commission throughout
                                      the state.
                                      Evaluating Progress                                                                                 0
                                      Participants in the Tampa Bay monitoring program recognize that monitoring efforts
                                      are only as good as our ability to get current and correct data to appropriate managers
                                      in a timely manner. A bay monitoring report, to be published every two years begin-
                                      ning in 1996, will compile data from various governmental agencies and communities
                                      responsible for monitoring into a common format. One of its objectives is to report
                                      progress toward achieving restoration and protection targets set forth in the
                                      Comprehensive Plan for Tampa Bay.

                                      The format will include updated environmental data focusing on both status and
                                      trends within Tampa Bay and its watershed. The report also will highlight areas
                                      where additional management actions may be needed to restore the diverse habitats
                                      within the bay and function as an early warning system for local and state govern-
                                      ments responsible for maintaining the environmental integrity of Tampa Bay.


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                                                                                                                      DRAFT
                                                                                                                  Charting the Course
               Public                                             ment                                               for Tampa Bay


               A
                    well-crafted community outreach program that enlists and involves diverse inter-
                    ests as partners in bay restoration and protection is a hallmark of all successful
               National Estuary Programs.

               This principle has guided the Tampa Bay National Estuary Program since it was estab-
               lished in 199 1. A public opinion poll conducted for the Program found citizens gener-
               ally were willing to pay more to restore the bay - but wanted assurances that curTent
               programs "work smart" to effectively apply existing regulations and resources before
               adding new mandates. Responses also indicated that citizens didn't fully understand
               the bay's most pressing problems, or how actions at home impact the health of the bay.

               Survey results confirmed the need for diverse public input from the outset of the pro-
               gram in the development of the Comprehensive Conservation & Management Plan for
               Tampa Bay. Findings also pointed to the need for a broader community outreach
               campaign to educate and involve the public in pollution prevention and bay steward-
               ship.

               These findings became the springboard for a tri-county community outreach program
               initiated by the Tampa Bay National Estuary Program in 1991. From these three com-
               munities, the Tampa Bay Program recruited citizen representatives with diverse per-
               spectives and backgrounds to form a Community Advisory Committee.

               This 25-member forum has provided structured input from citizens who share a com-
               mon interest in a healthy bay that supports both recreation and commerce. Advisors
               are appointed by the Program's Policy Comirlittee and include community leaders and
               representatives of homeowner's associations, agriculture, industry, education, fishing,
               and the environment, who also share their perspectives as citizen-taxpayers. The
               Committee assists the Program in understanding community concerns. Members also
               provide information to constituents and help design and execute community outreach
               programs.


               This chapter profiles key elements of the Program's public education and involvement
               efforts and recommends ways to maximize community participation in the future to
               continue the positive course of the bay's recovery.

               Addressing the Bay's Priority Problems
               Priority issues, such as stormwater runoff and seagrass protection, have provided a
               focal point for educational outreach by the Tampa Bay National Estuary Program.

               Studies by the Tampa Bay NEP estimate that stormwater runor; contributes about half
                                       involve
























               of the bay's total nitrogen input and significant amounts of heavy metals and pesti-
               cides. Yet, fewer than half of the citizens responding to a public opinion poll on
                                                                                                                             247






          DRAFT
       Charting the Course            Tampa Bay in 1991 were able to identify stormwater runoff as a major source of bay
          for Tampa Bay               pollution.

                                      Even fewer recognized their own potential contribution to stormwater pollution. In
                                      fact, while most residents believe businesses are the major source of bay pollution,
                                      residences - which far outnumber commercial sites - actually contribute more to
                                      the bay's total nitrogen input. And that contribution could grow as more people move
                                      into the region.

                                      Yards & Neighborhoods as Pathways to the Bay
                                      Yards and neighborhoods are one of the bay's first lines of defense against pollution in
                                      stormwater runoff. Yet many homeowners fail to understand the potential impact of
                                      excess fertilizer, pesticides and water used in landscape care on the long-term health
                                      of Tampa Bay. The connection may be immediate in a waterfront neighborhood, or
                                      gradual, through the flow of stormwater drains, ditches, streams or rivers.

                                      To publicize these concepts and to efilist residents in pollution prevention, the                     0
                                      National Estuary Programs of Tampa Bay and Sarasota Bay, and the Florida
                                      Cooperative Extension Service established the Florida Yards & Neighborhoods
                                      (FY&N) Program in 199 1. Experts from county extension services, which administer
                                      the program, teach residents techniques to reduce runoff pollution and enhance their
                                      environment by improving home and landscape management. The program promotes
                                      the establishment of Florida Yards, which emphasize native and other beneficial plants
                                      that blend beauty and environmental benefits. The program also emphasizes least-
                                      toxic techniques for landscape maintenance to reduce pesticides in runoff to the bay.

                                      In 1994, the West Coast Regional Water Supply Authority joined the FY&N founding
                                      partners in a move to expand the program's outreach to neighborhoods and individual
                                      residents in Hillsborough, Pinellas, Pasco and Manatee counties. Neighborhoods
                                      accepted into the program participate in an extended effort to learn and apply environ-
                                      mental landscaping techniques and other pollution prevention practices. To advance
                                      these concepts, the FY&N program has produced a number of learning tools and
                                      materials. These include:


                                          the Florida Yards & Neighborhoods Handbook - a citizens' comprehensive
                                          guide to creating and maintaining an environmentally beneficial Florida yard;
                                          the Florida Yardstick - an interactive poster that asks homeowners "Does Your
                                          Yard Measure Up?" and provides a self-test and actions to measure progress in
                                          implementing environmental landscaping concepts. Homeowners who tally suffi-
                                          cient points can have their yard certified as a Florida Yard;
                                          educational slide programs and the FY&N Newsletter, a publication designed to
                                          stimulate and educate program participants.
                                      Actions presented in Charting the Course seek to expand these efforts to reach more
                                      people by enlisting retailers, developers and landscaping professionals, as well as
                                      other non-profit educational groups, to promote FY&N concepts. Local governments
                                      also are called upon to lead by example by landscaping and maintaining public prop-                   fa
                                      erties in accordance with these environmental principles. These groups can help stim-
                                      ulate consumer demand for Florida Yards that are less maintenance-intensive, result-

            248






                                                                                                                      DRAFT
                ing in reduced pesticides and fertilizers in runoff to the bay.                                    Charting t1w Course
                                                                                                                     for Tampa Bay
                Educating Boaters to Protect Seagrasses
                Seagrass protection has been another educational priority of the Tampa Bay Program.
                Studies estimate that roughly one-third of the bay's seagrasses are moderately to heav-
                ily scarred as a result of propeller scarring by boats that cut through shallow grass
                flats or dredge their way free after running aground. Prop scars produce sandy trench-
                es that may stay barren for years. Intense scarring at several bay locations, including
                Weedon Island Preserve, Cockroach Bay and Ft. DeSoto Park, has led to boating
                restrictions and an increased emphasis on boater education. Other sections of the bay
                also have sustained damage and remain vulnerable to damage from propellers.

                To promote protection of seagrasses and other vital bay habitats, the Tampa Bay NEP
                and the Florida Department of Environmental Protection (FDEP) published a Boater's
                Guide to Tampa Bay in 1992. While bay stewardship is the central theme of the
                guide, the guide's strength is that it features information that boaters want in a handy
                format that invites use. The guide's focal point is a 34" x 22" color chart of Tampa
                Bay that identifies ship channels, seagrasses, aquatic preserves, reefs and public boat
                ramps. The chart's flip side features profiles and illustrations of native habitats, man-
                atees and birds of the bay. It folds to 9" x 4" (standard road map-size for easy on-boat
                storage) and is available in both water-resistant and recycled stocks.

                More than 80,000 Boater's Guides have been distributed in Hillsborough, Pinellas and
                Manatee counties through marine patrol units, marinas, tax collector's offices, local
0               agencies and special events. A companion Boater's Guide to Charlotte Harbor has
                since been produced by FDEP, which hopes to use the Tampa Bay guide as a model
                for statewide implementation.

                To further seagrass protection, the Tampa Bay NEP also produced a series of high
                quality interpretive signage for installation at more than a dozen high-use boat ramps
                and waterfront parks along the bay. The set includes a master sign featuring a map of
                the Tampa Bay estuary, which highlights seagrass areas. The accompanying text sug-
                gests ways for boaters to avoid impacts to seagrasses and other shallow marine habi-
                tats. Smaller companion signs in the series profile topics ranging from mangroves
                and seagrasses to the brown pelican and manatee.

                Enlisting Volunteers for Bay Improvement
                The Tampa Bay NEP also has been instrumental in supporting volunteer efforts for
                bay restoration and protection. In 1993, the Program helped establish a Bay
                Conservation Corps under the direction of Tampa BayWatch, a non-profit bay stew-
                ardship group. Since then, BayWatch has introduced more than 1,000 adults and stu-
                dents to the wonders of Tampa Bay through dozens of salt marsh plantings, bird island
                and coastal cleanups, storm drain stenciling projects, and an innovative coastal wet-
                land nursery program (see profile in Community Partnerships below). The organiza-
                tion serves as a clearinghouse, matching interested volunteers with hands-on activities
no              around the bay sponsored by various agencies and communities.

                Each year, the Tampa Bay NEP and Tampa BayWatch host the Great Bay Scallop
                Search, in which teams of volunteers don snorkels, masks and fins to comb the bay's
                                                                                                                             240






           DRAFT
       Charting the Course             grassbeds in search of the elusive bay scallop. The scallop disappeared from Tampa
          for Tampa Bay                Bay in the 1960s when the bay was badly polluted. Recent studies have documented
                                       the bay's improving water quality and emerging seagrass recovery, rekindling hope that
                                       scallops can again thrive in Tampa Bay. Experimental stocking efforts are imderway.

                                       Developing Community Partnerships
                                       for Bay Restoration
                                       A Bay Grants program established by the Tampa Bay National Estuary Program in
                                       1992 has been an important catalyst in developing community partnerships for bay
                                       restoration. Since 1992, the NEP has awarded small grants totalling more than
                                       $50,000 to more than a dozen organizations, schools and communities for projects to
                                       educate and involve diverse interests in bay restoration and protection. These initia-
                                       tives have leveraged the talents and resources of many varied organizations, maximiz-
                                       ing the community's and the bay's return on investment. Profiles of our community
                                       partners and their projects for bay improvement are provided below.

                                              Tampa Bay Docents - A grant from the Tampa Bay NEP helped The Florida
                                              Aquarium establish a Bay Docents program in 1992 to train interested volun-
                                              teers to lead weekend BayWalks on Tampa Bay at Tampa's McKay Bay Nature
                                              Park and Weedon Island Preserve in Pinellas County. The Program has trained
                                              more than 30 guides and introduced hundreds of children and adults to the
                                              bay's coastal ecosystems. To become a BayWalk guide, volunteers complete a
                                              nine-week class and field course conducted by The Florida Aquarium, and com-
                                              mit to leading a minimum of six BayWalks per year. The BayWalks on Tampa
                                              Bay Program has now become an ongoing component of the Aquarium's out-
                                              reach curriculum, and is serving as a model for other NEPs and communities.

                                              Operation BayWorks - This project by Hillsborough County assists businesses
                                              in developing pollution prevention plans and implementing best management
                                              practices to reduce stormwater runoff. Nearly 100 businesses from targeted
                                              industry sectors, including landscape maintenance, construction and automotive
                                              repair, are participating in the pilot program. Participants receive pollution pre-
                                              vention workbooks designed specifically for their industries, along with instruc-
                                              tional and promotional literature. This program blueprint will be evaluated for
                                              implementation in other watershed counties.

                                              Coastal Wetland Nursery Program - This project, directed by Tampa
                                              BayWatch, enlists high school ecology clubs in cultivating wetland plants for
                                              coastal restorations. Grants assistance from the Tampa Bay NEP enabled devel-
                                              opment of an operations guide for culturing mangrove and salt marsh vegeta-
                                              tion and the construction of a wetland nursery at St. Petersburg's Lakewood
                                              High School, which produced more than 2,000 salt marsh plants. The idea is
                                              taking root at other bay area schools and BayWatch eventually hopes to produce
                                              about 75,000 salt marsh plants each year to aid in local restorations.

                                              Eco-Landscaping for Businesses - Businesses are beginning to understand the
                                              bottorn-line benefits of Florida landscapes that feature native and other benefi-
                                              cial drought-tolerant plants that demand less water, fertilizer and pesticides.
                                              The bay- and cost-saving message is the central theme of an educational and

             252






                                                                                                                           DRAF`
                       promotional campaign led by the Tampa Audubon Society in cooperation with
                       the Florida Association of Environmental Professionals, Westshore Alliance,                      Charting the Course
                       Lewis Environmental Services and the Tampa Bay National Estuary Program.                           for Tampa Bay
                       A $4,500 grant from the Tampa Bay NEP to the Tampa Audubon Society assist-
                       ed in the development of a corporate "pitch" brochure and slide presentation
                       that features cost-benefit analyses for interested parties. The group hopes to tar-
                       get large commercial developments where landscape modifications may be
                       cost-effective; another target is urban and landscape designers involved in plan-
                       ning new commercial projects.

                       Least-Toxic Pest Controls - The effectiveness of natural predatory insects as
                       an alternative to pesticides was tested in a six-month trial using various orna-
                       mental crops, under the direction of the Manatee County Cooperative Extension
                       Service. Results showed important cost and labor savings, in addition to envi-
                       ronmental benefits associated with reduced pesticide use. Workshops also were
                       conducted to promote least-toxic pest management techniques to nurserymen
                       and growers.


                       Emerson Point Restoration - Volunteers under the direction of the Manatee
                       County Soil & Conservation District teamed up to restore severely damaged
                       mangroves and salt marshes at this key conservation site. The project also pro-
                       duced a plant and conservation guide to Emerson Point and neighboring Terra
                       Ceia Aquatic Preserve.

                       Egmont Key Seagrass Protection - Navigational buoys were installed by the
                       Egmont Key Alliance at this popular coastal barrier island to deter boat traffic
                       from heavily scarred seagrass beds. Interpretive signage on the island educates
                       boaters about the importance of protecting these vital cornerstones of the bay
                       ecosystem.


                       Model Florida Yard Landscaping Demonstration - This project by
                       Hillsborough County's Public Utilities Department involved the design and
                       installation of a low-maintenance Florida landscape and interpretive signage at
                       northwest Hillsborough's Austin Davis Library, where visitors can learn about
                       and view bay-friendly landscape concepts that can be applied at home.

                       Shell Key Bird Nesting Protection - The St. Petersburg Audubon Society
                       received a $500 grant from the Tampa Bay NEP to develop an educational sign
                       for installation at this important bay bird nesting site to enlist visitors in protect-
                       ing the island's feathered inhabitants.

                A special community partnership between the Tampa Bay NEP and The Florida
                Aquarium was formed in 1995 to support the development of the Florida Landscapes
                gardens at the entrance to the Aquarium. This living exhibit features a mosaic of
                native habitats, from beaches and wetlands to wildflower gardens, with interpretive
                signage that emphasizes the beauty and environmental benefits of landscaping with
                native plants. Funding from the Tampa Bay NEP also will support educational pro-
                grains at the Aquarium and off-site at various bayside venues.




                                                                                                                                  251






          DRAFT
       Owning the Course             Outreach to Schools
         for Tampa Bay               While many NEP programs have targeted adults, the Program also recognizes the
                                     value of fostering an environmental ethic among students who represent the futurr,
                                     decision-makers.


                                     Through partnerships with school districts in Hillsborough, Pinellas and Manatee
                                     counties and The Florida Aquarium, the Tampa Bay NEP has sponsored field trips and
                                     workshops for several thousand students and hundreds of instructors. The Program
                                     also has participated in the development of classroom materials focusing on the
                                     Tampa Bay estuary for incorporation into core curriculums and supported field trips.

                                     Junior high and high school students participated in outdoor learning labs at
                                     Cockroach Bay, McKay Bay, Emerson Point and Weedon Island. The NEP targeted
                                     younger schoolchildren with performances by the Marine Gang, a group of costumed
                                     sea creatures whose creative mix of music and theater bring the bay to life on stage.
                                     With support from the Tampa Bay NEP, the Marine Gang introduced more than
                                     65,000 elementary school students to the wonders of the estuary and kid-friendly con-
                                     cepts for pollution prevention. The Marine Gang is administered through the Museum
                                     of Science & Industry (MOSI), which continues to offer this program to schools
                                     thanks to funding from the Southwest Florida Water Management District.

                                     Teacher's workshops sponsored by the Tampa Bay NEP have provided an additional
                                     opportunity for educational impact by bringing instructors in touch with the bay and
                                     supplying them with resources to take back into the classroom.

                                     Charting the Course for Tampa Bay

                                     COMMUNITY INVOLVEMENT IN THE
                                     DEVELOPMENT OF THE PLAN FOR TAMPA BAY


                                     The Tampa Bay NEP has brought together diverse sectors of the community as part-
                                     ners in the development of the plan for Tampa Bay. This effort began in 1991 with
                                     the establishment of the Community Advisory Committee and has continued into 1996
                                     with increasingly focused efforts to expand public participation in the plan's review
                                     and finalization. In 1993, the Tampa Bay NEP began publishing a series of bay issues
                                     briefs - on topics ranging from stormwater pollution and habitat loss to dredging and
                                     spill prevention - that outlined various management options to address the bay's pri-
                                     ority problems. These briefs were the springboard for a series of meetings with the
                                     NEP's technical and community advisory committees and key community groups to
                                     discuss and improve management options and then rank strategies for bay improve-
                                     ment.


                                     As part of this initiative, the Community Advisory Committee hosted a series of focus
                                     groups in 1994 with students, seaport interests, farmers and homeowners to invite
                                     groups with diverse perspectives and interests in the bay to contribute to the emerging
                                     action plans for bay restoration. These focus groups have helped strengthen commu-
                                     nity investment in the work of the National Estuary Program and assisted the Program
                                     in better understanding and anticipating the concerns of key constituent groups.






                                                                                                                     DRAFT
                A preliminary outline of the action plans for Tampa Bay was developed from this                  Charting the Course
                process and released for review by the Tampa Bay Management Conference in                           for Tampa Bay
                January 1995. Further research and more than 200 responses from technical and citi-
                zen reviewers were instrumental in shaping the draft of Charting the Course, which is
                now presented for full community review.

                In conjunction with its release, the Tampa Bay NEP is sponsoring a series of industry
                briefings and community forums to further enlist participation from specific audiences
                who may be affected by the plan and who may be able to assist in crafting effective
                strategies with broad-based support. More formal Town Meetings, which also will ful-
                fill legal requirements for public hearings, will be conducted in February 1996 to pre-
                sent and discuss the draft plan with the community.

                The Tampa Bay NEP also has hosted an occasional series of point-counterpoint
                forums on bay topics of key concern such as the public referendum to 1994's Ban-
                The-Nets, and mitigation banking, the practice of pooling credits from on-site wetland
                impacts for the purposes of off-site mitigation.

                The Program also has examined a series of complex bay issues through its quarterly
                newsletter, Bay Guardian, which is distributed to policy leaders, citizens and other
                bay advocates and interested parties.

                Planning for the Future
                The Tampa Bay National Estuary Program will complete the Comprehensive
                Conservation & Management Plan (CCMP) for Tampa Bay in 1996, and through an
                intergovernmental agreement with participating communities and agencies, begin
                implementation of this strategic blueprint for bay restoration and protection. As atten-
                tion shifts from planning to implementation, the focus of public involvement and edu-
                cation also will shift to address long-term, but vitally important, needs. Future out-
                reach to the community should seek to:

                0  foster continued community support for bay restoration and implementation of the
                   CCMP by continuing to educate citizens on bay issues and publicize the bay's
                   progress and needs;
                0  improve public faith in the ability of bay managers and organizations dedicated to
                   the bay's restoration and protection to "work smart" to leverage resources, avoid
                   duplication and focus on priorities;

                0  maximize direct opportunities for public involvement in bay restoration and envi-
                   ronmental improvement.

                These objectives for community outreach and education are part of a public affairs
                blueprint the Community Advisory Committee of the Tampa Bay NEP will finalize in
                1996. The committee's recommendations will help guide the Tampa Bay NEP as it
                oversees implementation of the bay master plan, and may call for:

                0  continuation of the quarterly newsletter Bay Guardian to spotlight the state of the
                   bay and progress in the bay's recovery; aggressive efforts to publicize bay issues
04                 in the media to inform and educate the public;


                                                                                                                           253




                                                                                                                                          0


           DRAFF-Ta
       Charting the Course            0   continued advocacy of bay restoration and protection efforts in cooperation with
          for Tampa Bay                   other public policy and interest groups; continued efforts to educate the public on
                                          topical issues affecting the bay;
                                      ï¿½   efforts to support and enhance environmental organizations that enlist and effec-
                                          tively utilize volunteers, such as Tampa BayWatch, The Florida Aquarium, Florida
                                          Native Plant Society and the National Audubon Society. This represents an ongo-
                                          ing commitment and emphasis of the Tampa Bay NEP to utilize and promote
                                          existing organizations that are specifically organized to conduct outreach and edu-
                                          cational programs rather than relying solely on in-house programming that may be
                                          duplicative;
                                      ï¿½   annual "spotlight on solutions" field trips targeted to and co-sponsored by various
                                          audiences with regulatory and natural resource interests. For example, a field trip
                                          co-sponsored by a local alliance of developers might target urban designers and
                                          showcase exemplary commercial landscapes that enhance the environment and
                                          substantially reduce the need for fertilizer, pesticide and water use, and provide
                                          resources and cost-benefit analyses for implementing these bay-friendly and cor-
                                          porate image-enhancing ideas at other commercial sites. Public field trips to bay
                                          restoration sites and parks, and visits by boat over the waterways also might be
                                          offered in cooperation with The Florida Aquarium;
                                      ï¿½   annual progress reports to the community on Charting the Course for Tampa Bay,
                                          in conjunction with an existing organization such as the Agency on Bay
                                          Management and its annual published State of the Bay report, and companion
                                          written progress report summaries for local legislators and policy leaders;
                                      ï¿½   a graphic-and-text state of the bay environmental index to be published on an
                                          occasional basis in partnership with one of the bay area's daily newspapers.
                                      These are among the ideas that will be evaluated as the Tampa Bay National Estuary
                                      Program continues its efforts to build strong advocacy for bay restoration and provide
                                      interested citizens with a more personal and direct opportunity to improve and protect
                                      the bay.























             154






                                                                                                                      DRAFT
                                                                                                                  Charting the Course
               Early Action                                                                                          for Tampa Bay
0






               Since its inception, the Tampa Bay National Estuary Program has demonstrated its
               commitment to improving Tampa Bay by investing in early action projects designed
               to jumpstart restoration efforts and build a community consensus for the bay's recov-
               ery. To this end, the Tampa Bay NEP has secured almost $1 million in matching
               grants and federal funds to support a wide variety of restoration and outreach projects.

               These diverse projects have allowed researchers to test new techniques and concepts
               for reducing pollution and restoring degraded habitats; identify and fill in gaps in cur-
               rent protection programs; and educate bay area citizens about threats facing the bay -
               and how they can help overcome them.

               Several of these key early action initiatives are summmized below:

               Cockroach Bay Restoration
0              This secluded inlet on Tampa Bay's eastern shore harbors some of the most productive
               mangrove forests and seagrass meadows in the entire bay system. However, the
               long-term health of this area has been jeopardized by intensive alteration of its upland
               fringe, primarily from agricultural and mining operations.

               The Tampa Bay NEP, together with regional and state agencies providing matching
               funds, secured $700,000 in federal grants to assist in the restoration of this area -
               $300,000 from the Coastal America Program and $400,000 in grants under Section
               319(h) of the federal Clean Water Act. The effort is part of a $2.3-million restoration
               directed by the Southwest Florida Water Management District's Surface Water
               Improvement & Management (SWIM) Program, in cooperation with Tampa Bay NEP
               and more than a dozen other public- and private-sector partners. Hillsborough County
               spent $2.1 million to purchase the restoration site.

               The 500-acre project is the largest saltwater restoration of its kind conducted in
               Florida. The project is unique in its multi-faceted focus on creating a mosaic of habi-
               tats, including brackish and freshwater marshes, grass beds, oyster and live-bottom
               reefs, salt barrens, and upland pine and hardwood forests. In addition, the project will
dh             provide much-needed treatment of stormwater runoff from the surrounding farmlands
W
v              by building a treatment pond in which runoff will be filtered before being discharged
               naturally to a restored stream bed leading to the bay.

               Extensive removal of exotic vegetation such as Brazilian pepper already has been
               accomplished, and construction of the stormwater improvements is scheduled to begin
               in December 1995.




                                                                                                                             255






          DRATI,"
       Charting the Course            Bay Scallop Recovery
         for Tampa Bay                The bay scallop was once a common resident of Tampa Bay, but virtually disappeared
                                      in the mid-1960s. Many scientists blame declining water quality for the scallop's
                                      demise and speculate that the dramatic improvements now occurring in the bay's
                                      health may offer hope for restoring bay populations of these sensitive mollusks.

                                      The Twnpa Bay NEP has contributed more than $130,000 to research aimed at pin-
                                      pointing the water quality conditions necessary to support bay scallops and to aggres-
                                      sively restock suitable bay segments with scallops. That effort, directed by the
                                      University of South Florida, has so far raised more than one million juvenile scallops
                                      in laboratories, using strips of artificial turf that mimic the seagrasses to which the
                                      scallops cling in the wild. Hundreds of thousands of these juvenile scallops have been
                                      released in lower Tampa Bay, and monitoring is underway to determine whether these
                                      exploratory transplant efforts can help bring back a sustainable scallop population.

                                      Gandy Shoreline Alternatives
                                      Construction of vertical seawalls along the bay's borders has destroyed much of the
                                      bay's sloping fringe of ecologically valuable mangroves and salt marshes. This pro-
                                      ject, financed with $65,000 from the Tampa Bay NEP, tested different techniques for
                                      44 softening" seawalls along the industrialized southeast shoreline of the approach to
                                      the Gandy Bridge. Funds from the Tampa Bay NEP were matched with about
                                      $150,000 from partners in the Bay Area Environmental Action Team (BAEAT),
                                      including SWIM, which directed the project.

                                      The project evaluated structurally sound and environmentally friendly alternatives to
                                      seawalls that enhance habitat values while still providing protection of upland proper-
                                      ties. The techniques were tested on an existing seawall extending along 1,200 linear
                                      feet of the Gandy Bridge approach, in an area subject to heavy boat wakes and ero-
                                      sion. The methods evaluated included: lowering the elevation of the original seawall
                                      to create a gentler slope and installing riprap to allow tidal flushing and pools for
                                      juvenile fish; planting salt marsh grass behind the riprap to stabilize the shoreline;
                                      adding riprap to both ends of a remnant seawall offshore to provide habitat for oysters
                                      and crabs and to create a small lagoon behind the structure; and installing "MacBlox,"
                                      cement blocks with scalloped contours and multiple openings that provide more sur-
                                      face areas for oysters, barnacles and fish to utilize.

                                      Information gleaned from this project, which was completed in 1993, gave officials
                                      insight into how to design more ecologically benign shoreline stabilization structures.
                                      Techniques evaluated by the project are now being recommended by regulatory offi-
                                      cials for commercial and residential use.


                                      In addition to the seawall studies, the project also restored the littoral marsh and man-
                                      grove habitat upland of the seawall, constructed a boardwalk, and installed signs
                                      describing the restoration and the seawall alternatives demonstrated there.

                                      Pepper Busters Brochure
                                      Brazilian pepper is the most invasive and persistent of the exotic plants to gain a toe-
                                      hold along Tampa Bay. This tall shrub, sometimes called Florida holly because of its
            258                       red berries, quickly moves into disturbed shoreline areas, strangling mangroves and






                                                                                                                   DRAFT
               forming a dense monoculture that provides little ecological benefit and is extremely             Charting the Course
               difficult to eradicate.                                                                             for Tampa Bay

               The Tampa Bay NEP funded a $3,000 project by the Cockroach Bay Aquatic Preserve
               Management Team (CAPMAT) and its South Hillsborough Pepper Patrol to create an
               illustrated brochure explaining the environmental hazards of this plant and how to get
               rid of it. It also explained the importance of preserving native plant communities.
               This popular brochure, one of the first of its kind written for the general public, is
               widely distributed by county and state environmental agencies, county extension
               agents and public libraries.

               Assessment of Management Efforts
               to Protect Seagrass
               Propeller scarring of seagrass beds in Tampa Bay is widespread and impairs the ability
               of these underwater meadows to protect against erosion and provide habitats for
               marine life. T'his project, financed in part with $14,000 from the Tampa Bay NEP,
               enabled Pinellas County to assess the extent of seagrass scarring in one area of the
               bay through aerial mapping and interpretation and to evaluate various methods of pro-
               tecting those seagrasses from further damage.

               The site chosen for the project encompassed 420 acres of severely scarTed seagrass
               around Fort DeSoto Park in Pinellas County, in a large embayment called Boca Ciega
               Bay. Scarred areas were mapped in March and October 1993, and again in October
               1994. Mapping will continue annually for three more years.

               After examining results of the baseline survey, two protection zones were established
               in the seagrass beds. Signs were posted restricting boating access in one area except
               at high tide, while motor boats were completely prohibited in the second area. The
               losses were virtually the same for both the closed and restricted-access areas, indicat-
               ing that signs alone may be effective deterrents to seagrass scarring and that complete
               closures may not be necessary to reduce propeller scarring.

               This project is providing important information about what protective measures are
               effective in reducing seagrass scarring, and may help bay managers develop uniform,
               easily recognizable guidelines that can be implemented throughout not only the bay,
               but also the entire state.
Aft
               Data-Sharing Through GIS
               Tampa Bay is among the most well-studied waterways in the nation, yet valuable
               information from research and monitoring projects is not always shared among bay
               managers. This is often because the data bases and formats used by one agency are
               incompatible with those of another.

               Maps are a particularly important and visible management tool, with their ability to
               relate a vast amount of information, including land uses, natural resources, drainage
               patterns, pollution sources and political boundaries. This project, supported with near-
               ly $20,000 from the Tampa Bay NEP, enabled the Environmental Protection
               Commission (EPQ of Hillsborough County to create a comprehensive, readily
               retrievable data base for the bay based on computer-generated maps utilizing
                                                                                                                          257






          DRAFT
       Charling the Course           Geographic Information System (GIS) technology.
         for Tampa Bay
                                     Cockroach Bay was selected as a testing ground for this innovative approach.
                                     Officials with the EPC compiled information about Cockroach Bay from various
                                     sources and imported those files into their data banks. They then produced GIS maps
                                     that synthesized the information in a format compatible with other agencies, govern-
                                     ment organizations and research institutions. These techniques will be expanded bay-
                                     wide, providing across-the-board information that will result in less duplication and
                                     promote greater cooperation among bay managers in the future.


                                     Seabird Rescue Initiative
                                     Although Tampa Bay has largely been spared the damaging effects of major oil spills,
                                     those that have occurred have pointed to the need for a trained corps of volunteers to
                                     rescue and rehabilitate injured wildlife, especially seabirds.

                                     In conjunction with the Pinellas Seabird Rehabilitation Center and the Tampa Bay
                                     Regional Planning Council, the Tampa Bay NEP contributed $7,500 to finance the
                                     organization and training of nearly 100 citizen-volunteers to assist in seabird rescue
                                     efforts, in addition to the production of a volunteer training manual. Beginning in
                                     October 199 1, the volunteers attended several seminars featuring leading wildlife
                                     rehabilitators; the group also received rescue kits, nets and communication equipment.

                                     In August 1993, more than 330,000 gallons of oil and jet fuel were spilled in the bay
                                     when two barges and a tanker collided near the Sunshine Skyway Bridge. The seabird
                                     rescue teams put their training to good use, rescuing and treating 371 birds at a tempo-
                                     rary "hospital" at Fort DeSoto Park. Eventually 318 birds, or 85 percent, were recov-
                                     ered and released - an extraordinary success rate when compared to similar efforts in
                                     other regions. The advance planning, organization and chain-of-command structure
                                     demonstrated by this network serves as a model for similar groups throughout the
                                     nation.


                                     Emerson Point Project
                                     Emerson Point is a historically and ecologically rich coastal area at the mouth of the
                                     Manatee River. The cultural resources of the 195-acre site include American Indian
                                     mounds and middens that were studied by researchers with the Smithsonian
                                     Institution, and the remains of a 19th century plantation. Natural resources include
                                     extensive hardwood hammocks, mangroves and salt marshes, as well as colorful and
                                     rare live-bottom reefs in the shallow waters offshore.


                                     The Tampa Bay NEP provided $50,000 to Manatee County to aid in the protection
                                     and restoration of this area, which was purchased by the state in 1991 and is now
                                     managed by the County as Emerson Point Park. The project focuses on providing
                                     public access to the site for education and recreation, while preserving its unique cul-
                                     Wral and natural attributes. Work includes removal of exotic vegetation, excavation
                                     and stabilization of the Indian mounds and plantation, and the construction of board-
                                     walks and trails for public access. Signs will be posted to describe the land, its human
                                     and natural history, and resident wildlife, and plans are now underway to develop a
                                     county environmental education center on the site to teach schoolchildren about this
                                     priceless ecological and historical heritage.






                                                                                                                                      DRAFT
0                 REFERENCES, STATE OF THE BAY                                                                                    Charting the Course
0                                                                                                                                    for Tampa Bay
0                 1.  K. Haddad, Habitat Trends and Fisheries in Tampa and Sarasota Bays, NOAA Estuary of the
                      Month, Tampa and Sarasota Bays: Issues, Resources, Status and Management, Seminar Series No.
                      11,1989.
                  2.  H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                      Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                      National Estuary Program Technical Publication #04-94, May 1994.
                  3.  Coastal Environmental, Inc., Physical Impacts to Habitats in Tampa Bay, Tampa Bay National
                      Estuary Program Technical Publication #03-93, May 1994 (shoreline modifications).
                      A.J. JanicId, D.L. Wade, and D.E. Robison, Habitat Protection and Restoration Targets for Tampa
                      Bay, Tampa Bay National Estuary Program Technical Publication #07-93, June 1995 (seagrass
                      losses).
                  4.  K. Haddad, Habitat Trends and Fisheries in Tampa and Sarasota Bays, NOAA Estuary of the
                      Month, Tampa and Sarasota Bays: Issues, Resources, Status and Management, Seminar Series No.
                      11, 1989 (1982 emergent wetland acreage, proportional estimates).
                      A.J. Janicki, D.L. Wade, and D.E. Robison, Habitat Protection and Restoration Targets for Tampa
                      Bay, Tampa Bay National Estuary Program Technical Publication #07-93, June 1995 (1990
                      emergent wetland acreage).
                  5.  Florida Department of Environmental Protection, Marine Research Institute, unpublished data;
                      personal communication, Brad Weigle, 1995.
                  6.  R.R. Lewis, K.D. Haddad, and J.O.R. Johansson, Recent Areal Expansion of Seagrass Meadows in
                      Tampa Bay, Florida: Real Bay Improvement or Drought-Induced?, Proceedings, Tampa Bay Area
                      Scientific Information Symposium 2 - The Watershed (BASIS 2), 1991 (1950 and 1982 seagrass
                      acreage estimates).
                      A.J. Janicki, D.L. Wade, and D.E. Robison, Habitat Protection and Restoration Targets for Tampa
                      Bay, Tampa Bay National Estuary Program Technical Publication #07-93, June 1995 (1950 and
                      1990 seagrass acreage estimates).
                  7.  Coastal Environmental, Inc., Physical Impacts to Habitats in Tampa Bay, Tampa Bay National
                      Estuary Program Technical Publication #03-93, May 1994.
                  8.  C.R. Goodwin, Tidal flow, Circulation, and Flushing Changes Caused by Dredge and Fill in
                      Tampa Bay, Florida, U.S. Geological Survey Water-Supply Paper 2282, 1987.
                  9.  R.R. Lewis, K.D. Haddad, and J.O.R. Johansson, Recent Areal Expansion of Seagrass Meadows in
                      Tampa Bay, Florida: Real Bay Improvement or Drought-Induced?, Proceedings, Tampa Bay Area
dh                    Scientific Information Symposium 2 - The Watershed (BASIS 2), 1991 (1982 seagrass acreage
                      estimates).
                      Tom Ries, Southwest Florida Water Management District, SWIM, unpublished data; personal
                      communication, 1994 (1992 seagrass acreage estimates).
                      Doug Robison, Coastal Environmental, Inc., personal communication, 1995 (percentage of change
                      between 1982 and 1992).
                  10. Florida Department of Environmental Protection, Marine Research Institute, Scarring of Florida's
                      Seagrasses: Assessment and Management Options, FMRI Technical Report TR-1, 1995.
                  11. J.N. Ehringer, Results ofAnalysis of Prop Scar Damage at the Fort Desoto Aquatic Habitat
                      Management Area 199211993, Tampa Bay National Estuary Technical Publication #05-94, August
                      1994.
                  12. Penny Hall, Florida Department of Environmental Protection, Marine Research Institute,
                      unpublished data; personal communication, 1995.
                  13. Tom Ries, Southwest Florida Water Management District, SWIM; personal communication, 1995.
                  14. R.R. Lewis, III, and E.D. Estevez, The Ecology of Tampa Bay, Florida: An Estuarine Profile, U.S.
qW                    Fish & Wildlife Service Biological Report 85(7.18), September 1988.
                  15. Coastal Environmental, Inc., Physical Impacts to Habitats in Tampa Bay, Tampa Bay National
                      Estuary Program Technical Publication #03-93, May 1994.
                  16. Lewis Environmental Services, Inc., Hard Bottom Mapping of Tampa Bay, Tampa Bay National
                      Estuary Program Technical Publication #07-94, 1994.
                                                                                                                                             259






              DRAFT
          Charting the Course                     17. R.R. Lewis, III, and E.D. Estevez, The Ecology of Tampa Bay, Florida: An Estuarine Prvfile, U.S.
                                                      Fish & Wildlife Service Biological Report 85(7.18), September 1988.
             for Tampa Bay                        18. Tampa Bay National Estuary Program and Florida Marine Research Institute, Boaters Guide to
                                                      Tampa Bay, 1993.
                                                  19. A.J. Janicki, D.L. Wade, and D.E. Robison, Habitat Protection and Restoration Targets for Tampa
                                                      Bay, Tampa Bay National Estuary Program Technical Publication #07-93, June 1995
                                                  20. Ibid.

                                                  21. Ibid.

                                                  22. Based on information from LANDSAT Ground Cover Database; Jim Beever, Florida Game &
                                                      Freshwater Fish Commission, personal communication, 1995.
                                                  23. A.J. Janicki, D.L. Wade, and D.E. Robison, Habitat Protection and Restoration Targetsfigr Tampa
                                                      Bay, Tampa Bay National Estuary Program Technical Publication #07-93, June 1995
                                                  24. Dames & Moore and Mote Marine Laboratory, Impact of Freshwater Flow Variations in the
                                                      Manatee River Tampa Bay National Estuary Program Technical Publication #09-94, December
                                                      1994.

                                                  25. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Current and Historical
                                                      Freshwater Inflows to Tampa Bay, Florida, Tampa Bay National Estuary Program Technical
                                                      Publication #01-94, July 1995.
                                                  26. Landings data from the National Marine Fisheries Service and the Florida Department of
                                                      Environmental Protection; personal communication, Martha Norris, 1995. Landing data includes
                                                      bluefish, black drum, flounder, jack crevalle, whiting, Spanish mackerel, menhaden, mullet, sea
                                                      trout, sheepshead, and gray snapper. Some fish landed in Manatee County may have been caught in
                                                      Tampa Bay, but those harvests cannot be segregated from catches in Sarasota Bay. Regardless, the
                                                      inclusion of Manatee landings does not change the percent declines noted here.
                                                  27. Ibid.

                                                  28. Ibid.
                                                  29. Florida Department of Environmental Protection, Marine Research Institute, unpublished data;
                                                      personal communication, M. Norris, 1994.
                                                  30. Coastal Environmental, Inc., Distribution of Selected Fish Species in Tampa Bay, Tampa Bay
                                                      National Estuary Program Technical Publication #05-92), May 1992.
                                                  31. Based on the National Shellfish Sanitation Program Guidelines; Brian Pierce, Florida Department
                                                      of Environmental Protection, Bureau of Marine Resource Regulation and Development, personal
                                                      communication, October 1995.
                                                  32. Tampa Bay Regional Planning Council, The Future of Tampa Bay, 1985.
                                                  33. Richard Paul, National Audubon Society, Tampa Bay Sanctuaries, unpublished data; personal
                                                      communication, 1995.

                                                  34. Ibid.
                                                  35. Florida Department of Environmental Protection, Marine Research Institute, unpublished data;
                                                      personal communication, Brad Weigle, 1995.
                                                  36. J.L. Simon and S.K. Mahadevan, Benthic Macroinvertebrates of Tampa Bay, Proceedings, Tampa
                                                      Bay Area Scientific Information Symposium (BASIS), 1985.
                                                  37. E.R. Long, D. MacDonald, and C. Cairncross, Status and Trends in Toxicants and the Potential for
                                                      Their Biological Effects in Tampa Bay, Florida, NOAA Technical Memorandum NOS OMA 58,
                                                      June 1991.
                                                  38. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                                                      Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florid,,; Tampa Bay
                                                      National Estuary Program Technical Publication #04-94, May 1994.
                                                  39. City of St. Petersburg, unpublished data, 1995.
                                                  40. Environmental Protection Commission of Hillsborough County, Surface Water Quality Report,
                                                      1992-1994,1995.
                                                  41. A. Janicki and D. Wade, Estimating Critical Nitrogen Loadsfor the Tampa Bay Estuary: An
                                                      Empirically Based Approach to Setting Management Targets, Tampa Bay National Estuary
                                                      Program Technical Publication #03-95, April 1995.


                280






                                                                                                                                    DRAFT
                 42. L.K. Dixon and J.R. Leverone, Light Requirements of Thallassia testudinum in Tampa Bay,                    Charting the Course
                     Florida, Prepared for Southwest Florida Water Management District SWIM Program, May 4 1995.
                 43. A.J. Janicki, D.L. Wade, and D.E. Robison, Habitat Protection and Restoration Targets for Tampa               for Tampa Bay
                     Bay, Tampa Bay National Estuary Program Technical Publication #07-93, June 1995.
                 44. A. Janic1d and D. Wade, Estimating Critical Nitrogen Loadsfor the Tampa Bay Estuary: An
                     Empirically Based Approach to Setting Management Targets, Tampa Bay National Estuary
                     Program Technical Publication #03-95, April 1995.
                 45. L.K. Dixon and J.R. Leverone, Light Requirements of Thal-assia testudinum in Tampa Bay, Florida,
                     Prepared for Southwest Florida Water Management District SWIM Program, May 4, 1995.
                 46. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                     Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                     National Estuary Program Technical Publication #04-94, May 1994.
                 47. Roger Johansson, City of Tampa Sanitary Sewers Department; personal communication, 1994.
                 48. Versar, Inc., and Coastal Environmental, Inc., Chemical Contaminants in the Tampa Bay Estuary: A
                     Summary of Distributions and Inputs, Tampa Bay National Estuary Program Technical Publication
                     #0 1 -95, June 1995.
                 49. E.R. Long, D. MacDonald, and C. Cairncross, Status and Trends in Toxicants and the Potentialfor
                     Their Biological Effects in Tampa Bay, Florida, NOAA Technical Memorandum NOS OMA 58,
                     June 1991.

                 50. Ibid.
                 51. E.R. Long, D.A. Wolfe, R.S. Carr, K.J. Scott, G.B. Thursby, H.L. Windom, R. Lee, F.D. Calder,
                     G.M. Sloane, and T. Seal, Magnitude and Extent of Sediment Toxicity in Tampa Bay, Florida,
                     NOAA Technical Memorandum NOS ORCA 78, June 1994.
                     (PELs are based on "effects range median" (ERM) as cited in this report.)
                 52. McCain, B.B., D.W. Brown, T. Hom, M.S. Myers, S.M. Pierce, T.K. Collier, J.E. Stein, S-L. Chan,
                     U. Varanasi, Chemical Contaminant Exposure and Effects in Four Fish Species From Tampa Bay,
                     FL, Estuaries. Journal of the Estuarine Research Federation, IN PRESS.
                 53. E.R. Long, D.A. Wolfe, R.S. Carr, K.J. Scott, G.B. Thursby, H.L. Windom, R. Lee, F.D. Calder,
                     G.M. Sloane, and T. Seal, Magnitude and Extent of Sediment Toxicity in Tampa Bay, Florida,
                     NOAA Technical Memorandum NOS ORCA 78, June 1994.
                 54. Hillsborough County, unpublished data; personal communication, Jack Merriam, 1995.
                 55. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                     Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                     National Estuary Program Technical Publication #04-94, May 1994.
                 56. Versar, Inc., and Coastal Environmental, Inc., Chemical Contaminants in the Tampa Bay Estuary: A
                     Summary of Distributions and Inputs, Tampa Bay National Estuary Program Technical Publication
                     #0 1 -95, June 1995.
                 57. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                     Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                     National Estuary Program Technical Publication #04-94, May 1994.
                 58. Ibid.

91k              59. Ibid.
4W
                 60. A.S. Patwardhan and A.S. Donigian, Jr., Assessment of Nitrogen Loads to Aquatic Systems,
-W
d1L                  Prepared by Aqua Terra Consultants for the Office of Research and Development, U.S.
                     Environmental Protection Agency, 1994.
                 61. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                     Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                     National Estuary Program Technical Publication #04-94, May 1994.
                 62. Tampa Bay National Estuary Program, unpublished data based on Sept. 26, 1995 letter from
                     Hopping, Green, Sams & Smith to Buck Oven, Florida Power & Light, regarding supplemental
                     nitrogen deposition analyses and nitrogen loads from all sources estimated by TBNEP.
                 63. D. Fisher, J. Ceraso, T Mathew, and M. Openheimer, Polluted Coastal Waters: The Role ofAcid
                     Rain, Environmental Defense fund, New York, New York, 1988.



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              DRAFT
         Charting the Course                     64. L.K. Dixon, Literature Compilation and Data Synthesis for Atmospheric Deposition in the Tampa
                                                     Bay Watershed, Prepared for the Tampa Bay National Estuary Program by Mote Marine
            for Tampa Bay                            Laboratory, Technical Report #370, March 1994.
                                                 65. D. Fisher, J. Ceraso, T. Mathew, and M. Openheimer, Polluted Coastal Waters: The Role ofAcid
                                                     Rain, Environmental Defence Fund, April 1988.
                                                 66. Versar, Inc., and Coastal Environmental, Inc., Chemical Contaminants in the Tampa Bay Estuary: A
                                                     Summary of Distributions and Inputs, Tampa Bay National Estuary Program Technical Publication
                                                     #01-95, June 1995.
                                                 67. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                                                     Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                                                     National Estuary Program Technical Publication #04-94, May 1994.
                                                 68. Ibid.

                                                 69. Ibid.
                                                 70. Versar, Inc., and Coastal Environmental, Inc., Chemical Contaminants in the Tampa Bay Estuary: A
                                                     Summary of Distributions and Inputs, Tampa Bay National Estuary Program Technical Publication
                                                     #01-95, June 1995.
                                                 7 1. Owen Ayres and Associates, Inc., An Estimate of Nutrient Loadings from Wastewater Residuals
                                                     Management and Onsite Wastewater Treatment Systems in the Tampa Bay Watershed, Southwest
                                                     Florida Water Management District, April 1995,
                                                 72. Hans Zarboch, Coastal Environmental, Inc.; personal communication, 1995.
                                                 73. Tom Cardinale, Environmental Protection Commission of Hillsborough County; personal
                                                     communication, 1995.
                                                 74. G.W. Jones and S.B. Upchurch, Origins of Nutrients in Ground Water Discharging ftom Lithia and
                                                     Buchhorn Springs, Southwest Florida Water Management District, 1993.
                                                 75. H. Zarbock, A.J. Janicki, D.L. Wade, D. Heimbuch, and H. Wilson, Estimates of Total Nitrogen,
                                                     Total Phosphorus, and Total Suspended Solids Loadings to Tampa Bay, Florida, Tampa Bay
                                                     National Estuary Program Technical Publication #04-94, May 1994.
                                                 76. Greiner, Tampa Port Authority Dredged Material Management Plan, DRAFT REPORT, Tampa
                                                     Port Authority, September 1994.

                                                 77. Ibid.

                                                 78. Ibid.
                                                 79. Tampa Port Authority, 1994 Fiscal Year Annual Cargo Report, 1994.
                                                 80. Trustee Council, Natural Resource Damage Assessment Strategy, Tampa Bay, Florida for the
                                                     Bouchard BARGE 155, Maritrans BArge OCEAN 255, and MVBALSA 37 Collission and Spill, 10
                                                     August 1993, 1994.                                                                                                               40
                                                 81. Jane Urquhart-Donnelly, Florida Department of Environmental Protection, Division of Law                                          0
                                                     Enforcement, Bureau of Emergency Response; personal communication, March 1994.                                                   is
                                                 82. United States Coast Guard, Marine Safety Office, Tampa, Florida, unpublished data; personnel
                                                     communication, 1994.
                                                 83. Chapter 376, Florida Statutes, Pollutant Discharge Prevention and Control Act (as amended, 1992).
                                                 94. U.S. Public Law 101-380, Oil Pollution Act of 1990 (OPA 1990).
                                                 85. Chris Rossbach, Florida Department of Environmental Protection, Division of Law Enforcement,
                                                     Bureau of Emergency Response; personal communication, September 1995.




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                                                                                                                       DRAFT
                GLoSSARY                                                                                           Charting the Course
                                                                                                                      for Tampa Bay

                ALGAE - simple plants that grow in aquatic environments. Excess nutrients may
                accelerate the growth of algae, resulting in an algal bloom.

                ATMOSPHERIC DEPOSITION - refers to materials discharged to the atmosphere
                from natural sources and anthropogenic (manmade) sources, such as automobiles,
                power plants and industries that fall on the surface of water or land in rainfall or as
                dry particles.

                BENTHOS - the community of animals living in and on the bottom sediments of a
                body of water.

                CRUSTACEANS - a group of mostly aquatic invertebrates with a hard, jointed shell
                (exoskeleton); examples include crabs, lobsters and shrimp.

                DETRITUS - small particles of organic matter, largely derived from the decomposi-
                tion of vegetation; an important food source for many small marine animals.

                DREDGE-AND-FILL - commonly refers to the removal of bottom sediments (dredg-
                ing) to construct and maintain canals and ship lanes, and the use of dredged material
                (spoil) as fill for development.

                ECOSYSTEM - the system of ecological relationships between organisms (plants
                and animals) and their physical and chemical environment; a functional unit that
                includes both the organisms and their nonliving surroundings.

                ESTUARY - a partially enclosed body of water where fresh water from rivers and
                streams mixes with salt water from the sea.

                EUTROPHIC - refers to water that is rich in nutrients such as nitrogen and phospho-
                rous, but often deficient in dissolved oxygen. Excess nutrients promote the growth of
                algae; as the algae dies and decomposes, it depletes the water of oxygen.
                Eutrophication occurs naturally in many bodies of water, but can be accelerated by
                pollution.

                EXOTIC - refers to non-native plants and animals that have been introduced (acci-
                dentally or intentionally) to a region. Some exotic species establish and grow quickly,
                crowding out native species.

                HABITAT - the sum of environmental conditions in a place where a plant or animal
                lives.

                INVERTEBRATES - animals without backbones; examples include insects, worms,
                crustaceans, mollusks and sponges.

                MANGROVES - a salt-tolerant tropical or subtropical tree that grows near the shore-
                line. Mangroves provide food and habitat for many types of wildlife, stabilize shore-
                lines and filter pollutants that run off the land.

                MARSH - a wetland where the dominant plants are grasses and sedges, as opposed to
                a swamp, where woody plants like shrubs and trees are the dominant vegetation.

                MOLLUSKS - a group of invertebrates including clams, snails, oysters, conchs and
                other soft-bodied animals. Most mollusks have a thick, hard outer shell; squid and
                octopus are exceptions.

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       Charting the Course            NON-POINT SOURCE POLLUTION - refers to pollution that comes from many
          for Tampa Bay               sources and cannot be traced to one specific point, such as pollution from stormwater
                                      runoff and the atmosphere.

                                      OLIGOHALINE - refers to water with a very low salinity (salt content), ranging
                                      from 0.5 to 10 parts per thousand (ppt). Freshwater is characterized by salinity of less
                                      than 0.5 ppt; seawater contains about 35 ppt.

                                      PHYTOPLANKTON - free-floating aquatic plants and plant-like organisms, usually
                                      algae; an important food source for many animals.

                                      POINT-SOURCE POLLUTION - refers to pollution that comes from a specific
                                      source or point of origin, such as a discharge pipe or outfall.

                                      RUNOFF. - water from rain or irrigation that flows over land. Runoff often carries
                                      pollutants such as oils, fertilizers and pesticides and is frequently a major component
                                      of non-point-source pollution.

                                      SALT MARSH - a marsh growing in the intertidal and upper coastal zone, where salt
                                      water from the sea has a strong influence on the types of plant life. Salt marshes are
                                      important wetland habitats for many kinds of fish and wildlife.

                                      SEAGRASSES - true flowering plants (not grasses) that grow underwater in shallow
                                      bays and estuaries. Seagrass meadows provide food and refuge for many marine ani-
                                      mals.

                                      SHELLFISH - a generic term that includes both crustaceans and mollusks, especially
                                      those used for food. The term finfish, by contrast, refers to true fishes.

                                      SPOIL - sediments removed during dredging. Spoil may be deposited underwater or
                                      on islands created specifically for spoil disposal.

                                      TOXIC - poisonous or directly harmful.
                                      TURBIDITY - cloudiness of water from suspended material or particles. As the
                                      cloudiness increases, so does the turbidity; low turbidity indicates clear water and may
                                      be associated with good water quality.

                                      WASTEWATER TREATMENT - processes that help remove solids, nutrients and
                                      other pollutants from water before it is discharged or reused.

                                      WATER COLUMN - an inclusive term, covering the area that extends from the bot-
                                      tom sediments to the surface, for the water in a lake, estuary or ocean.

                                      WATERSHED - the geographic region that drains into a particular stream, river or
                                      body of water. The Tampa Bay watershed covers more than 2,200 square miles in six
                                      counties.

                                      WEILAND - land where the water table is usually at or near the surface. Some wet-
                                      lands contain water year-round; others may remain relatively dry for months, becom-
                                      ing moist only during periods of heavy rain. Wetlands are vital habitats for many
                                      species of plants and animals-, they are protected by local, state and federal regula-                 40
                                      tions.

                                      ZOOPLANKTON - free-floating aquatic animals ranging in size from microscopic,
                                      single-celled organisms to large jellyfish. Zooplankton are an important source of food
                                      for many types of fish and animals.


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                                                                                                                                     DRAFT
                   AcRoNyms                                                                                                      Charting the Course
                                                                                                                                   for Tampa Bay
                   ACOE        ARMY CORP OF ENGINEERS
                   ACP         AREA CONTINGENCY PLAN
                   AWT         ADVANCED WASTEWATER TREATMENT
                   BEIVIR      BIENNIAL ENVIRONMENTAL MONITORING REPORT
                   BMP         BEST MANAGEMENT PRACTICE
                   CARL        CONSERVATION AND RECREATION LANDS
                   CCMP        COMPREHENSIVE CONSERVATION & MANAGEMENT PLAN
                   CERCLIS     COMPREHENSIVE ENVIRONMENTAL RESPONSE, COMPENSATION AND LIABILITY INFORMATION
                   CFMP        CRITICAL FISHERIES MONITORING PROGRAM
                   CIP         CAPITAL IMPROVEMENT PROGRAM
                   DDT         DICHLORODIPHENYL-TRICHLOROETHYLENE
                   DGPS        DIFFERENTIAL GLOBAL POSITIONING SYSTEM
                   DHRS        (Florida) DEPT. OF HEALTH AND REHABILITATIVE SERVICES
                   ELM         ENVIRONMENTAL LANDSCAPE MAINTENANCE
                   EPA         ENVIRONMENTAL PROTECTION AGENCY
                   EPC         ENVIRONMENTAL PROTECTION COMMISSION (HILLSBOROUGH COUNTY)
                   ERP         ENVIRONMENTAL RESOURCE PERMIT
                   FAG         FLORIDA ADMINISTRATIVE CODE
                   FADS        FLORIDA ATMOSPHERIC DEPOSITION SYSTEM
                   FCES        FLORIDA COOPERATIVE EXTENSION SERVICE
                   FDEP        FLORIDA DEPARTMENT OF ENVIRONMENTAL PROTECTION
                   FDOT        FLORIDA DEPARTMENT OF TRANSPORTATION
                   FERC        FEDERAL ENERGY REGULATORY COMMISSION
                   FGFWFC      FLORIDA GAME AND FRESH WATER FISH COMMISSION
                   FMRJ        FLORIDA MARINE RESEARCH INSTITUTE
                   FPC         FLORIDA POWER CORPORATION
                   FPL         FLORIDA POWER & LIGHT
                   FWPCA       FEDERAL WATER POLLUTION CONTROL ACT
                   FY          FISCAL YEAR
                   FY&N        FLORIDA YARDS AND NEIGHBORHOODS
                   GPS         GLOBAL POSITIONING SYSTEM
                   IMC         IMC-AGRICO
                   LTMS        LONG-TERM MANAGEMENT STRATEGY
                   MGD         MILLION GALLONS PER DAY
                   MSSw        MANAGEMENT AND STORAGE OF SURFACE WATERS
                   NOAA        NATIONAL OCEANIC & ATMOSPHERIC ADMINISTRATION
                   NOEL        NO OBSERVABLE EFFECTS LEVEL
                   NOx         NITROGEN OXIDES
                   NPDES       NATIONAL POLLUTION DISCHARGE ELIMINATION SYSTEM
                   NPIL        NATIONAL PRIORITIES LIST
                   0 & M       OPERATING AND MAINTENANCE (BUDGET)
                   OSDS        ON-SITE DISPOSAL SYSTEMS
                   PAH         POLYNUCLEAR AROMATIC HYDROCARBONS
                   PCB         POLYCHLORINATED BIPHENYLS
                   PEL         PROBABLE EFFECTS LEVEL
                   PORTS       PHYSICAL OCEANOGRAPHIC REAL-TIME SYSTEM
                   PRTF        POLLUTION RECOVERY TRUST FUND
                   RCRA        RESOURCE CONSERVATION & RECOVERY ACT
                   SWFWMD      SOUTHWEST FLORIDA WATER MANAGEMENT DISTRICT
Ah                 swim        SURFACE WATER IMPROVEMENT AND MANAGEMENT PROGRAM (SWFWMD)
w
                   TBNEP       TAMPA BAY NATIONAL ESTUARY PROGRAM
Mw                 TBRPC       TAMPA BAY REGIONAL PLANNING COUNCIL
Ask
w                  TECO        TAMPA ELECTRIC COMPANY
AL                 TKN         TOTAL KELDAHL NITROGEN
1w                 TN          TOTAL NITROGEN
AL                 TPA         TAMPA PORT AUTHORITY
Mw
Ink                TSS         TOTAL SUSPENDED SOLIDS
                   USACOE      UNITED STATES ARMY CORPS OF ENGINEERS
                   USDOT       UNITED STATES DEPARTMENT OF TRANSPORTATION
                   USEPA       UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
                   USF         UNIVERSITY OF SOUTH FLORIDA
                   UST         UNDERGROUND STORAGE TANKS
                   VTS         VESSEL TRACKING SYSTEM
                   WAFR        WASTEWATER FACILITY REGULATION DATABASE
                   WCRWSA      WEST COAST REGIONAL WATER SUPPLY AUTHORITY
                   WWTP        WASTEWATER TREATMENT PLANT
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