United States
Environmental Protection
Agency
Office of
Water
December 1996
Water Quality Protection
Program For The
Florida Keys National
Marine Sanctuary
First Biennial Report to Congress
1996
Biscayne
National
Park
Gulf of Mexico
Everglades
National
Park
Florida Keys -
National
Marine
Sanctuary
John
Pennekamp
Coral Reef
State Park
/ r -jDryTortugas
National Park
Atlantic Ocean
Map of the Florida Keys National Marine Sanctuary and South Florida
Recycled/Recyclable Printed with Vegetable Based Inks on Recycled Paper (20% Postconsumer)
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THE PURPOSE OF THE WATER QUALITY PROTECTION PROGRAM:
To recommend priority corrective actions and compliance schedules addressing
point and nonpoint sources of pollution to restore and maintain the chemical,
physical, and biological integrity of the Sanctuary. This includes restoration and
maintenance of a balanced, indigenous population of corals, shellfish, fish and
wildlife, and recreational activities in and on the water.
Water Quality Protection Program Steering Committee
John H. Hankinson, Jr.
Regional Administrator
U.S. Environmental Protection Agency
Region 4
Edwin J. Conklin, Jr.
Director
Division of Marine Resources
Florida Department of Environmental Protection
JefTBenoit
Director
Ocean and Coastal Resources Management
National Oceanic and Atmospheric Administration
Richard G. Ring
Superintendent
Everglades National Park
Terry Rice
Colonel, District Engineer
Department of the Army
Jacksonville District Corps of Engineers
Sam Hamilton
Assistant Regional Director for
Ecological Services
U.S. Fish and Wildlife Service
William E. Graham
Governing BoardMember
South Florida Water Management District
James F. Murley
Secretary
Florida Department of Community Affairs
John Heber
Chief, Onsite Sewage Program
Florida Department of Health and
Rehabilitative Services
John T. Doughtry
Executive Director
Florida Keys Aqueduct Authority
Keith Douglass
Commissioner
Board of County Commissioners of
Monroe County
Bill Botten
City of Key Colony Beach
Dennis Wardlow
Mayor
City of Key West
Mike Collins
Chairman
Citizens Advisory Council
Florida Keys National Marine Sanctuary
Charles W. Causey
Florida Keys Environmental Fund
Karl Lessard
Monroe County Commercial Fishermen
Cover graphic and map of the Sanctuary provided
by the Strategic Environmental Assessments
Division, Office of Ocean Resources Conservation
and Assessment, National Oceanic and
Atmospheric Administration
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FROM THE CO-CHAIRS
WATER QUALITY PROTECTION PROGRAM
STEERING COMMITTEE
On behalf of the Water Quality Protection Program (WQPP) Steering Committee, we are
pleased to present this first Biennial Report to Congress on the WQPP for the Florida Keys
National Marine Sanctuary. As directed by Congress, the U.S. Environmental Protection Agency
(EPA) and the State of Florida, represented by the Florida Department of Environmental
Protection (FDEP), developed a comprehensive WQPP for the Sanctuary.
The WQPP document was developed in consultation with the National Oceanic and
Atmospheric Administration (NOAA) and was delivered to NOAA in May 1993 for incorporation
into the Comprehensive Management Plan for the Sanctuary. NOAA's plan was released for
public review in April 1995. Various Federal, State, and local government agencies and
representatives from the academic community, environmental groups, and the general public
participated in the development of the WQPP document. The untiring efforts of the numerous
individuals who worked on the WQPP demonstrate their commitment to the environment and the
protection of the very special Florida Keys ecosystem. The unprecedented cooperation and
coordination among the various entities which worked together resulted in a document that has
been highly praised and has already demonstrated its usefulness.
Using Federal and State funds, EPA and the State of Florida have initiated a comprehensive
water quality monitoring and research/special studies program as required by the Florida Keys
National Marine Sanctuary and Protection Act of 1990. We are committed to dedicating the
funds and other resources required to implement this critical component of the WQPP. Other
recommendations in the WQPP document are being implemented by various Federal, State, and
local government agencies.
The groundwork has been laid for the successful restoration and maintenance of the water
quality and other resources of the Sanctuary. However, the future of the Florida Keys ecosystem
depends on the will and determination of all the citizens of south Florida and the coordinated
efforts of many Federal, State, and local government agencies. Our commitment to protect and
preserve the living and other resources of the Sanctuary-must endure.
Sincerely,
John H. Hankinson, Jr.
Regional Administrator
U.S. Environmental Protection Agency
Region 4
Edwin J. Conklin, Jr.
Director
Division of Marine Resources
Florida Dept. of Environmental Protection
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TABLE OF CONTENTS
INTRODUCTION 5
BACKGROUND INFORMATION....... 6
PROGRAM DESCRIPTION..... 6
ECOLOGICAL PROBLEMS 9
POLLUTION SOURCES TARGETED FOR ACTION 10
SUMMARY OF RECOMMENDATIONS 14
MONITORING AND SPECIAL STUDIES PROGRAM 21
DATA MANAGEMENT 27
BUDGET SUMMARY .........28
SPECIAL PROJECTS 28
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INDEX TO MAPS, TABLES, AND FIGURES
Map of the Sanctuary 4
Figure 1 - Administrative Framework. 7
Table 1 Estimated Nutrient Loadings from Various Sources 11
Table 2 - Summary of Recommendations 15-17
Table 3 - Prioritization of Recommendations 18-19
Table 4 - High Priority Recommendations and Rationale 20
Table 5 - Components of the Monitoring and Research/Special Studies Programs 23-24
Table 6 - Priorities for Water Quality Monitoring and Research Programs
Based on FY 1994 Funding 25
Table 7 - Information on Cooperative Agreements 29
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83"W
26°N
25°N
82°W
Gulf of Mexico
Florida Keys
National
Marine
Sanctuary
Biscayne
National
Park
80"W
Everglades
National
Park
Dry Tortugas
National Park
John
Pennekamp
Coral Reef
State Park
Atlantic Ocean
Map of the Florida Keys National Marine Sanctuary and South Florida
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Introduction
The Florida Keys National Marine
Sanctuary (FKNMS) was created with the
signing of Public Law 101-605, Florida Keys
National Marine Sanctuary and Protection
Act, on November 16, 1990. Included in the
Sanctuary are 2,800 square nautical miles of
nearshore waters extending from just south
of Miami to the Dry Tortugas.
The Florida Keys extend approximately
220 miles southwest from the southern tip of
the Florida peninsula. Adjacent to the
Florida Keys land mass are located
spectacular, unique, and nationally significant
marine environments, including seagrass
meadows, mangrove islands, and extensive
living coral reefs. These marine
environments support rich biological
communities possessing extensive
conservation, recreational, commercial,
ecological, historical, research, educational,
and esthetic values which give this area
special national significance. These
environments are the marine equivalent of
tropical rain forests in that they support high
levels of biological diversity, are fragile and
easily susceptible to damage from human
activities, and possess high value to human
beings if properly conserved.
Recognizing the critical role of water
quality in maintaining Sanctuary resources,
Congress directed the U.S. Environmental
Protection Agency (EPA) and the State of
Florida, represented by the Florida
Department of Environmental Protection
(FDEP), to develop a Water Quality
Protection Program for the Sanctuary. This
is the first such program ever developed for
a marine sanctuary.
The purpose of the Water Quality
Protection Program is to recommend priority
corrective actions and compliance schedules
addressing point and nonpoint sources of
pollution to restore and maintain the
chemical, physical, and biological integrity of
the Sanctuary. This includes restoration and
maintenance of a balanced, indigenous
population of corals, shellfish, fish and
wildlife, and recreational activities in and on
the water.
In addition to corrective actions, the 1990
Act also requires development of a water
quality monitoring program and provision of
opportunities for public participation in all
aspects of developing and implementing the
program.
Steven Frink
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Background
The Water Quality Protection Program
was developed in two phases. During Phase
I, information was compiled and synthesized
on the status of the Sanctuary's natural
environment (EPA 1992). Priority problems
were identified through this literature review
and through discussions with scientists and
other participants in technical workshops.
The Phase I effort included assessments of
the Sanctuary's water quality, coral
community, submerged and emergent aquatic
vegetation, nearshore and confined waters,
and spills and hazardous materials.
Phase II focused on developing options
for corrective action, developing a water
quality monitoring program and associated
research/special studies program, and
developing a public education and outreach
program (EPA 1993). During the
preparation of the Phase II Report, two
EPA/FDEP workshops were held in the
Florida Keys to discuss preliminary findings
and receive input from technical experts and
the public. Following the workshops, a draft
report was prepared and reviewed by EPA,
FDEP, other federal and state government
agencies, and the general public.
The information in the Phase I and II
Reports was used to develop the
recommendations included in the Water
Quality Protection Program Document. The
Document includes an executive summary,
program description, rationale for action,
detailed action plan, and a set of initial
recommendations for corrective action,
monitoring, research/special studies, and
public education/outreach.
The Florida Keys National Marine
Sanctuary and Protection Act of 1990
requires that the National Oceanic and
Atmospheric Administration (NOAA)
develop a Comprehensive Management Plan
for the Sanctuary and implement regulations
to protect Sanctuary resources. Water
quality issues and associated problems are a
major component of the management plan.
The Water Quality Protection Program was
developed in coordination with NOAA and
the draft Water Quality Protection Program
document was submitted to NOAA in May
1993 for inclusion in the Comprehensive
Management Plan. NOAA's Plan, which was
released for public review in April 1995,
includes an environmental impact statement.
The Water Quality Protection Program is
one part of a much larger ongoing effort by
federal and non-federal agencies to restore
the South Florida ecosystem, including the
Everglades and Florida Bay. The federal
efforts are coordinated by the South Florida
Ecosystem Restoration Task Force.
Program Description
The Water Quality Protection Program
consists of an administrative framework and
a set of recommendations for corrective
action, monitoring, research/special studies,
and public education/outreach.
Administrative Framework
The Water Quality Protection program is
administered by EPA and FDEP, in
cooperation with NOAA.
The National Marine Sanctuaries
Program Amendments Act of 1992 specifies
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the establishment of a Steering Committee
(see inside front cover), Technical Advisory
Committee (see inside back cover), and an
EPA Florida Keys Liaison Office to assist
and support the implementation of the
Program.
A Management Committee has also been
established to coordinate and facilitate the
activities of the Steering Committee and
Technical Advisory Committee.
Figure 1. Administrative Framework for
the Water Quality Protection Program
WATER QUALITY
MANAGEMENT COMMITTEE
AND
EPA FLORIDA KEYS UASION OFFICE
WATER QUALITY
TECHNICAL ADVISORY COMMITTEE
Through the administrative framework,
EPA and FDEP can directly implement
recommendations for monitoring and
research/special studies, and can work with
NOAA to develop and implement public
education/outreach programs for water
quality. In addition, EPA and FDEP are
working with the larger framework of
government agencies, institutions,
organizations, and individuals responsible for
Sanctuary management to implement
recommendations for corrective actions.
EPA and FDEP are also responsible for
evaluating progress and developing new or
revised approaches as necessary.
The Water Quality Steering Committee
was established by EPA and FDEP. The
purpose of the Steering Committee is to set
guidance and policy for the development and
implementation of the WQPP. Membership
includes representatives of EPA, FDEP,
NOAA, National Park Service, U.S. Fish and
Wildlife Service, U.S. Army Corps of
Engineers, Florida Department of
Community Affairs, South Florida Water
Management District, Florida Keys
Aqueduct Authority, local government
(three), and knowledgeable citizens (three).
The Technical Advisory Committee
(TAG) was established by EPA, FDEP, and
NOAA. The purpose of the TAG is to
advise the Steering Committee and to assist
in the design and prioritization of programs
for monitoring and research/special studies.
The TAG is composed of scientists from
federal and state agencies, academic
institutions, and private nonprofit
organizations, as well as knowledgeable
citizens.
The Florida Keys Liaison Office will be
located in the State of Florida. The Liaison
Office staff is to perform the following
activities:
Assist and support the
implementation of the Program.
Assist and support local, state, and
federal agencies in developing and
implementing specific actions.
Coordinate EPA actions with other
federal, state, and local government
agencies in developing strategies to
maintain, protect, and improve water
quality in the Keys.
Provide for public review and
comment on the Program and
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implementing regulations.
Components
A Management Committee has been
established to coordinate and facilitate the
activities of the Steering Committee and
TAG. The Management Committee is a
working group with the following
responsibilities:
Plan, prepare agenda for, and
coordinate Steering Committee and
TAG meetings.
Advise the Steering Committee on all
matters for which it has direct
responsibilities, making
recommendations for approval or
disapproval.
« Plan and develop budgets and
schedules associated with overall
Program implementation.
Monitor the progress of Program
activities to ensure that schedules are
adhered to and objectives
accomplished.
The Water Quality Protection Program
consists of the following four interrelated
components.
Corrective Actions - These are
actions to reduce water pollution
directly by using engineering
methods, prohibiting or restricting
certain activities, modifying existing
regulations, and/or focusing
enforcement to meet the objectives of
the Program. Other actions are
designed to make the regulatory/
management system work more
efficiently, possibly leading indirectly
to reduced pollution.
Monitoring - A comprehensive ,
long-term water quality monitoring
program has been designed to
provide information about the status
and trends of water quality and
biological resources in the Sanctuary.
The monitoring program will also
provide information about the
effectiveness of remedial actions to
reduce pollution.
Research/Special Studies - The
purpose of the research/special
studies program is to identify and
understand cause/effect relationships
involving pollutants, transport
pathways, and biological
communities of the sanctuary.
Special studies will provide
information to address specific
management questions and concerns,
improve our general understanding of
Sanctuary ecosystems, develop
predictive models, and develop
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monitoring tools and methodologies.
Public Education/Outreach - The
purpose of this component is to
increase public awareness of the
Sanctuary, the Water Quality
Protection Program, and pollution
sources and impacts on Sanctuary
resources. This component also
involves soliciting and incorporating
public input in the design and
implementation of the Program.
Successful implementation of the
numerous corrective actions will
depend, to a large degree, on the
fulfillment of this component.
Ecological Problems
The variety and magnitude of recent
ecological problems in the Sanctuary and
adjacent areas (e.g., Florida Bay) indicate
that existing management actions are not
adequate to prevent continuing
environmental degradation.
Harold Hudson - NOAA
Although knowledge of cause/effect
relationships is incomplete, there is potential
for severe damage to Sanctuary resources if
a comprehensive program to control
pollution and improve water quality is not
implemented. The following conclusions are
based on the Phase I Report.
The Sanctuary is part of a complex
hydrologic/ecological system that
includes the Everglades, Florida Bay,
and other adjacent areas. Major
environmental problems are
occurring in Florida Bay, including
seagrass die-off, sponge die-off,
mangrove decline, and algal blooms,
and the Bay is now in a state of crisis.
Historical alterations in the quantity
and timing of freshwater flow from
the Everglades are believed to be the
major cause. Action is needed in
Florida Bay to avoid effects on
Sanctuary water quality and
resources.
Water quality in confined waters
(e.g., dead-end canals, marinas) is
deteriorating and is potentially
deteriorating in nearshore waters, and
this degradation may be affecting
biota inhabiting nearshore areas.
Septic leachate from on-site sewage
disposal systems (OSDS) is
degrading water quality in confined
waters and may be degrading water
quality in nearshore waters.
Sewage discharges from live-aboard
vessels are degrading water quality in
nearshore and confined waters.
Discharges from sewage treatment/
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package plants into nearshore waters
may be degrading nearshore water
quality.
Decomposition of weed wrack and
other windblown organic debris is
probably degrading water quality in
some canals.
Stormwater runoff is degrading
confined water quality and may be
degrading nearshore water quality.
Water-temperature fluctuations,
anthropogenically increased nutrient
levels, reduced transparency,
sedimentation, contamination from
spilled oil and petroleum products,
pesticides, herbicides, trace elements,
and heavy metals may be affecting
Sanctuary coral reef communities.
Degraded water quality is probably
adversely affecting submerged and
emergent aquatic vegetation in the
Sanctuary.
Taken together, these observations
indicate that action is needed to control
pollution sources and improve water
quality in the Florida Keys in order to
restore and maintain Sanctuary
resources. Actions should include
engineering and/or management
measures, as well as education/outreach
programs to reduce pollution.
Pollution Sources Targeted
for Action
The Phase I Report identified and
discussed pollution sources potentially
affecting Sanctuary water quality and
resources. The pollution sources discussed
below are targeted for corrective actions,
research/ special studies, monitoring, and
public education/outreach activities.
Florida Marine Research Institute
Florida Bav/Extcrnal Influences - Severe
water quality and ecological problems have
developed in Florida Bay in recent years,
and the Bay is now in a state of crisis.
Problems include a massive seagrass die-
off, phytoplankton blooms, sponge die-offs,
mangrove die-backs, and all of the potential
cascading effects of these phenomena.
Since 1987, much of Florida Bay has been
affected by a massive, unprecedented
seagrass die-off that has left tens of
thousands of acres of denuded sediments.
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Through the resulting sediment
resuspension and nutrient release, the
seagrass die-off may be the cause of
massive phytoplankton blooms that have
affected the Bay during recent years.
Sponge die-offs caused by phytoplankton
blooms may have serious impacts on
juvenile spiny lobsters, which reside by
day under sponges for protection from
predation.
Most scientists believe that recent
ecological problems in Florida Bay are the
result of a long-term reduction in freshwater
flow from the Everglades to the Bay. The
mechanism has not been documented, but
high salinities and a long-term change from
an estuarine to a marine system are believed
to be contributing factors.
The problems in Florida Bay must be viewed
as a potential threat to water quality and
resources in the Sanctuary. Water quality
and natural resources in the Bay are tightly
linked to those of the Sanctuary. According
to some coral experts, Florida Bay water
may be contributing to coral declines in the
Sanctuary. The need for action to deal with
water delivery problems in Florida Bay has
been strongly stressed by workshop
participants and other scientists during the
development of the Water Quality Protection
Program.
Domestic Wastewater - Domestic
wastewater discharges originating from land-
based sources account for about 70% of the
wastewater/ stormwater nutrient loadings
from within the Sanctuary. Several studies
Table 1. Estimated Nutrient Loadings
Source
Total Nitrogen
Total Phosphorus
Ib/day
Percent of
Total
Ib/day
Percent of
Total
OSDS
Cesspits
Package plants
(ground-water discharge)
Municipal wastewater treatment
plants (surface discharge, NPDES)
Live-aboards
Total
932
283
758
320
84
2377
39.2
11.9
31.9
13.5
3.5
100
226
100
152
36
30
544
41.6
18.4
27.9
6.6
5.5
100
11
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have suggested relationships between on-site
sewage disposal system (OSDS) use and
nutrient levels in nearshore and offshore
waters of the Sanctuary. Other data have
also indicated a relationship between high
OSDS densities and poor water quality
conditions in semi-confined waters such as
dead-end canals.
In the Florida Keys, domestic wastewater
facilities include about 30,000 regulated
OSDS, 10,000 unregulated cesspits, over
200 small package plants, and two municipal
wastewater treatment plants (City of Key
West and City of Key Colony Beach).
Effluent from the package plants is disposed
of via shallow injection wells. Estimated
nutrient loadings from these sources and
live-aboard boaters are summarized in Table
1, page 11. Based on these estimates, about
51% of the total wastewater nitrogen and
60% of total wastewater phosphorus
loadings come from OSDS and cesspits.
Extensive use of OSDS and cesspits,
combined with severely limited soils and
compact clustering of development, have
resulted in substantial nutrient loadings to
groundwater and surface water in the Florida
Keys. Even with the limited data available, it
is clear that continued reliance on high
densities of conventional OSDS in severely
limited substrates is not compatible with
restoring and maintaining the excellent water
quality necessary to support Sanctuary
resources.
In the short term, action is needed to
eliminate cesspits and establish an inspection
program to ensure that OSDS are operating
properly. Over the long-term a
comprehensive approach to improving
wastewater treatment in the Florida Keys
must be developed based on water quality
and environmental considerations, as well as
public health concerns.
Stormwater - Stormwater is a source of
nutrients, sediment, and toxic materials to
Sanctuary waters. Stormwater nutrient
loadings constitute about 21% and 45% of
the total nitrogen and phosphorus
wastewater/stormwater nutrient loadings to
the Sanctuary, respectively. Stormwater also
carries significant quantities of suspended
sediment to nearshore waters. In areas of
heavy vehicular traffic and in commercial
areas, the potential also exists for the
discharge of fuel, oil, metals, and other
contaminants.
These observations, coupled with the low
level of Stormwater control throughout the
Sanctuary, indicate that Stormwater is a
regionally significant source of pollution
within the Sanctuary. Action is needed to
reduce Stormwater pollutant loadings from
existing development and to ensure that new
development is constructed in accordance
with Stormwater management ordinances and
master plans.
Marinas and Live-Aboards - Disposal of
wastewater by live-aboards represents about
3% of all total Stormwater and wastewater
nutrient loadings to Sanctuary waters. For
this reason, detrimental effects of live-aboard
wastewater disposal are not likely to be
significant from a regional standpoint.
However, because of the low level of
treatment, the tendency of live-aboards to
congregate in certain marinas or anchorages,
and the potential adverse health effects of
discharging untreated wastewater into
Sanctuary waters, live-aboard wastewater
disposal is considered a significant problem.
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Methods for collecting wastewater from
live-aboards are fairly simple and
inexpensive. However, the regulatory or
management issues to be addressed in order
to implement proper collection and disposal
of live-aboard wastes are somewhat
complex. Management recommendations
include development and implementation of a
comprehensive plan for eliminating sewage
discharges from live-aboards. This plan
could include elements such as requiring all
marinas to install pump-out facilities,
establishing a mobile pump-out service, and
enforcing pump-out use.
Bill Kruczynski - EPA
Landfills - For active and recently closed
landfills in the Keys, there is no indication of
a leaching problem based on existing
monitoring data, but more information is
needed. Two investigative recommendations
have been developed and remedial actions
will be taken only if problems are found.
Hazardous Materials - Spills of toxic or
hazardous materials occur occasionally in the
Keys, but little historical information is
available on the frequency or severity of
spills. Discussions with Florida Department
of Environmental Protection personnel in the
Keys indicate that most spills are minor,
involving less than 100 gallons of material.
These spills do not appear to be regionally
significant but could create local problems.
The possibility remains that a large spill
could occur (e.g., tanker grounding) with the
potential for regional consequences.
Because of the lack of evidence indicating
significant degradation from spills and their
unpredictable nature, engineering options
addressing toxic or hazardous material spills
were not developed. However, management
recommendations were developed to
decrease the potential for spills and to
increase spill response readiness.
Mosquito Spraying - Although the amounts
of pesticides used in the Mosquito Control
Program are known, little information is
available regarding the amounts that reach
Sanctuary waters. Also, little is known
about the environmental concentrations or
effects of residual pesticides in the
Sanctuary. The use of engineering options
for mosquito control (e.g., pumped mosquito
impoundments) is being discontinued
elsewhere in Florida and would probably not
be practical or permittable in the Keys.
There is no evidence indicating regional
degradation from mosquito control
operations. However, recommendations
were developed to refine the existing aerial
spraying program and to conduct research
into pesticide impacts and alternatives.
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Canals - Canal water quality can be affected
by factors such as the physical structure and
orientation of the canal, as well as
wastewater and stormwater inputs of
nutrients, sediment, and toxics. Reduced
circulation in dead-end canals and basins
increases the risk of depressed dissolved
oxygen, retention of both dissolved and
particulate pollutants, and potential impacts
on benthic and pelagic environments. Winds
can blow weed wrack and other organic
debris into confined waters, with depressed
dissolved oxygen resulting from
decomposition of this organic material.
Recommendations for domestic
wastewater and stormwater should help to
reduce water quality problems in canals and
basins over the long term by reducing
nutrient inputs. However, direct actions
should be investigated to improve canal
water quality through methods such as
aeration, weed gates, and air curtains.
Florida Marine Research Institute
Summary of
Recommendations
The Water Quality Protection Program
Document presents recommendations for
corrective action, monitoring, research/
special studies, and education/outreach
developed during Phase II. The
recommendations are organized into the
following nine categories:
Florida Bay/External Influences
Domestic Wastewater
Stormwater
Marinas and Live-Aboards
Landfills
Hazardous Materials
Mosquito Spraying
* Canals
Monitoring and Research/Special
Studies
The Water Quality Protection Program
Document provides a brief description and
rationale for each recommendation. Details
of implementing agencies, cost, schedule,
etc. are included in the Water Quality Action
Plan which is attached as an appendix to the
Document. Additional pertinent information
(e.g., detailed assumptions for cost estimates
for engineering options) is presented in the
Phase II Report.
Table 2 summarizes the recommendations
presented in the Water Quality Protection
Program Document. Table 3 ranks the
recommendations as high, medium, or low in
priority. Table 4 lists only the high-priority
recommendations and provides a brief
rationale for each.
Prioritization is based on the projected
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Table 2. Summary of Recommendations
FLORIDA BAY/EXTERNAL INFLUENCES
Florida Bay Freshwater Flow
The Steering Committee for the Water Quality
Protection Program shall take a leading role in restoring
historical freshwater flow to Florida Bay, which is now
in a state of crisis. In addition, Sanctuary
representatives shall work with appropriate federal, state,
and local agencies to ensure that restoration plans and
surface water improvement and management plans for
South Florida and the Everglades are compatible with
efforts to maintain water quality within the Sanctuary.
Florida Bay Influence
Conduct research to understand the effect of water
transport from Florida Bay on water quality and
resources in the Sanctuary.
DOMESTIC WASTEWATER
Inspection/Enforcement Program
Establish authority for and implement
inspection/enforcement programs to eliminate all cesspits
and enforce existing standards for all OSDS and package
plants.
OSDS Demonstration Project
Conduct a demonstration project to evaluate alternate,
nutrient-removing OSDS.
AWT Demonstration Project
Conduct a demonstration project to evaluate installation
of a small, expandable AWT plant to serve an area of
heavy OSDS use with associated water quality problems.
Nutrient Reduction Targets
Conduct research to develop nutrient reduction targets
necessary to restore and maintain water quality and
Sanctuary resources.
Sanitary Wastewater Master Plan
Develop a Sanitary Wastewater Master Plan for the
Florida Keys. Based on results of the demonstration
projects and preliminary nutrient reduction targets, the
Master Plan would evaluate options for further
wastewater treatment (i.e., beyond eliminating cesspits
and enforcing existing standards) and specify details of
costs, schedules, service areas, etc. for implementation.
Master Plan Implementation
Implement the preferred wastewater treatment option
selected in the Sanitary Wastewater Master Plan.
City of Key West Ocean Outfall
Upgrade effluent disposal for City of Key West
wastewater treatment plant. Evaluate deep well
injection, including the possibility of effluent migrating
through the boulder zone into Sanctuary waters.
Evaluate options for reuse of effluent, including
irrigation and potable reuse. Discontinue use of the
existing ocean outfall and implement deep well injection,
aquifer storage, and/or reuse.
Water Quality Standards
Develop and implement water quality standards,
including biocriteria, appropriate to Sanctuary resources.
NPDES Program Delegation
Delegate administration of the NPDES program for
Florida Keys dischargers to the state of Florida.
Resource Monitoring of Surface Discharges
Require all NPDES-permitted surface dischargers to
develop resource monitoring programs.
Improved Interagency Coordination
Improve interagency coordination for industrial
wastewater discharge permitting.
Combined OSDS Permitting Responsibilities
Combine OSDS permitting responsibilities in one
agency for commercial establishments, institutions, and
multi-family residential establishments utilizing injection
wells.
Monitoring of Revised OSDS Rules
Monitor revised rules designed to improve the
performance of OSDS in the Florida Keys.
Laboratory Facilities
Establish an interagency laboratory capable of
processing monitoring and compliance samples.
STORMWATER
Stormwater Retrofitting
Identify and retrofit stonnwater hot spots using grass
parking, swales, exfiltration trenches, pollution control
structures, and detention/retention facilities. Control
stormwater runoff in areas handling toxic and hazardous
materials. Install swales and detention facilities along
limited sections of U.S. 1.
Stormwater Permitting
Require that no development in the Florida Keys be
exempted from the stormwater permitting process.
15
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Table 2. Summary of Recommendations (continued)
Stormwater Management
Require local governments to enact and implement
stormwater management ordinances and comprehensive
stonnwater management master plans. Petition trie EPA
to include the Florida Keys in the stormwater NPDES
program if adequate stormwater management ordinances
and administrative capability to manage such ordinances
are not in place by a certain date.
Best Management Practices
Institute a series of Best Management Practices and a
public education program to prevent pollutants from
entering stormwater runoff.
MARINAS AND LIVE-ABOARDS
No-Discharge Zones
Evaluate the need for and implement, as appropriate,
no-discharge zones in the Florida Keys, particularly in
areas where live-aboard vessels congregate and there is a
history of water quality violations.
Mooring Fields
Establish mooring fields in places having significant
concentrations of live-aboard vessels.
Pump-Out Facilities
Develop and implement a comprehensive plan for
elimination of sewage discharges from live-aboards and
other boaters. The plan could include elements such as
requiring all marinas to install pump-out facilities,
establishing a mobile pump-out service, and enforcing
pump-out use.
Containment Areas
Establish paved and curbed containment areas for boat
maintenance activities such as hull scraping and
repainting, mechanical repairs, fueling, and lubrication.
Create secondary containment, generally in the form of
curbing or synthetic liners, for areas where significant
quantities of hazardous or toxic materials are stored.
Evaluate procedures to avoid or reduce fuel spillage
during refueling operations.
Marina Permitting
Improve interagency cooperation in marina permitting.
Environmental Awareness Program
Formalize and expand the existing Florida Marine
Patrol District 9 environmental education program to
heighten awareness of how human activities contribute to
water quality problems.
LANDFILLS
Historical Landfill Search
Conduct a comprehensive search for abandoned
landfills and dumps. Evaluate each site to determine if
they contain hazardous materials or are causing
environmental problems. If problems are discovered,
evaluate and implement appropriate remedial actions such
as boring or mining, upgrading closure, collecting and
treating leachate, constructing slurry walls, or excavating
and hauling landfill contents.
Landfill Monitoring
Intensify existing monitoring programs around landfills
to ensure that no leaching is occurring into marine
waters. Identify and monitor old landfills that were
never permitted and therefore have no closure plans or
closure permits. If problems are discovered, evaluate
and implement appropriate remedial actions such as
boring or mining, upgrading closure, collecting and
treating leachate, constructing slurry walls, or excavating
and hauling landfill contents.
HAZARDOUS MATERIALS
Hazardous Materials Response
Improve and expand oil and hazardous materials
response programs throughout the Sanctuary.
Spill Reporting
Establish a reporting system to ensure that all spills in
and near the Sanctuary are reported to Sanctuary
managers and managers of impacted areas within the
Sanctuary. Establish a geo-referenced Sanctuary spills
database.
Hazardous Materials Handling
Conduct an assessment and inventory of hazardous
materials handling and use in the Florida Keys including
facilities, types and quantities of materials, and
transport/movement. Add information to the
FDER/EPA/Monroe County GIS database.
Environmental Crimes Category
Change the environmental crimes category associated
with small spills from a felony to a civil offense, thereby
removing the need to prove criminal intent.
16
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Table 2. Summary of Recommendations (continued)
MOSQUITO SPRAYING
Mosquito Spraying
Refine the aerial spraying program to further reduce
aerial spraying over marine areas. This could include a
review of threshold levels used to initiate aerial spraying,
development of a more refined plan for flight lines, and '
use of improved equipment. Reconsider the use of
mosquito larvicides in breeding areas, including those in
currently restricted areas, to reduce the need for aerial
spraying of adult mosquito populations. Evaluate the
elimination of thermal fogs and replacement with
ultra-low volume spraying methods.
Pesticide Research
Develop and implement an independent research
program to assess and investigate the impacts of, and
alternatives to, current pesticide practices. Modify the
Mosquito Control Program as necessary on the basis of
research findings.
CANALS
Canal Water Quality
Inventory and characterize dead-end canals/basins and
investigate alternative management strategies to improve
their water quality. Implement improvements (consistent
with the strategies developed for wastewater and
storm water) in known hot spots.
MONITORING/RESEARCH
Water Quality Monitoring Program
Conduct a long-term, comprehensive water quality
monitoring program as described in the EPA Water
Quality Protection Program, Phase n report.
Predictive Models
Develop phased hydrodynamic/water quality models
and coupled, landscape-level ecological models to predict
and evaluate the outcome of in-place and proposed water
quality management strategies.
Pollutant Assessment
Develop a segmentation framework to identify surface
water areas sharing common hydrographic properties
affecting water quality. Determine the susceptibility of
each segment to pollutant inputs based upon all loadings
(i.e., land and water based) and segment specific
hydrographic properties affecting their retention.
Groundwater Leachate Transport
Conduct a hydrologic/geologic assessment of leachate
transport (e.g., from injection wells, landfills, storage
tanks, etc.) into nearshore waters. Determine whether
and in what quantities groundwater nutrients are reaching
Sanctuary waters, including the Florida Reef Tract.
Florida Bay Influence
Conduct research to understand the effect of water
transport from Florida Bay on water quality and
resources in the Sanctuary.
Water Quality Impact Research
Conduct research to identify and document causal
linkages between water quality (e.g., levels of pollutants,
nutrients, salinity, temperature, etc.) and ecological
problems in each major ecosystem.
Indicators
Develop diagnostic indicators of water quality
problems (e.g., tissue C:N:P ratios, alkaline phosphate
activity, and shifts in community structure by habitat).
Conduct research to identify and evaluate indicators
(biochemical and ecological measures to provide early
warning of widespread ecological problems) in each type
of ecosystem.
Other Monitoring Tools
Conduct research to identify and evaluate innovative
monitoring tools and methodologies to detect pollutants
and identify cause/effect relationships involving water
quality and biological resources.
Regional Database
Establish a regional database and data management
system for recording research results and biological,
physical and chemical parameters from monitoring.
Dissemination of Research Findings
Develop a program to disseminate scientific research
results, including an information exchange network,
conferences, and support for the publication of research
findings in peer-reviewed scientific journals.
Global Change
Examine the effects of global climate change on the
organisms and ecosystems of the Keys.
Technical Advisory Committee
Establish a technical advisory committee for
coordinating and guiding research and monitoring
activities.
Ecological Monitoring Program
Develop and implement a sanctuary-wide,
comprehensive ecosystem monitoring program. The
objective of the program will be to monitor the status of
various biological and ecological indicators of system
components throughout the Sanctuary and adjacent areas
to discern the local and system-wide effects of human
and natural disturbances and assess the overall health of
the Sanctuary.
17
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Table 3. Prioritization of Recommendations
Recommendation
Florida Bay/External Influences
Florida Bay Freshwater Flow
Florida Bay Influence
Domestic Wastewater
Inspection/Enforcement Program
OSDS Demonstration Project
AWT Demonstration Project
Nutrient Reduction Targets
Sanitary Wastewater Master Plan
Master Plan Implementation
City of Key West Ocean Outfall
Water Quality Standards
NPDES Program Delegation
Resource Monitoring of Surface
Discharges
Improved Interagency Coordination
Combined OSDS Permitting
Responsibilities
Monitoring of Revised OSDS Rules
Laboratory Facilities
Stormwater
Stormwater Retrofitting
Stormwater Permitting
Stormwater Management
Best Management Practices
Marinas/Live- Aboards
No-Discharge Zones
Mooring Fields
Pump-Out Facilities
Containment Areas
Marina Permitting
Environmental Awareness Program
Priority
High
«
Medium
Low
»
18
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Table 3. Prioritization of Recommendations (continued)
Recommendation
Landfills
Historical Landfill Search
Landfill Monitoring
Hazardous Materials
Hazardous Materials Response
Spill Reporting
Hazardous Materials Handling
Environmental Crimes Category
Mosquito Spraying
Mosquito Spraying
Pesticide Research
Canals
Canal Water Quality
Research/Monitoring
Water Quality Monitoring Program
Predictive Models
Pollutant Assessment
Groundwater Leachate Transport
Water Quality Impact Research
Indicators
Other Monitoring Tools
Regional Database
Dissemination of Research Findings
Global Change
Technical Advisory Committee
Ecological Monitoring Program
Priority
High
Medium
Low
19
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Table 4. High Priority Recommendations and Rationale
Recommendation
Rationale
FLORIDA BAY/EXTERNAL
INFLUENCES
Florida Bay Freshwater Flow
Florida Bay Influence
DOMESTIC WASTEWATER
Inspection/Enforcement Program
OSDS Demonstration Project
AWT Demonstration Project
Nutrient Reduction Targets
Sanitary Wastewater Master Plan
Master Plan Implementation
City of Key West Ocean Outfall
MARINAS AND LIVE-ABOARDS
Pump-Out Facilities
MOSQUITO SPRAYING
Mosquito Spraying
Pesticide Research
CANALS
Canal Water Quality
RESEARCH/MONITORING
Water Quality Monitoring Program
Predictive Models
Pollutant Assessment
Groundwater Leachate Transport
Water Quality Impact Research
Regional Database
Technical Advisory Committee
Ecological Monitoring Program
Addresses a potentially major, external influence on water quality in the Sanctuary. The
Sanctuary must be involved in decisions affecting its jurisdiction.
Helps to understand a potentially major, external influence on water quality in the
Sanctuary. Provides stronger scientific basis for action to restore historical freshwater flow
to Florida Bay.
Cesspits and OSDS are major anthropogenic nutrient sources; compliance/ enforcement
program will yield some nutrient reduction regardless of the ultimate decisions about
wastewater treatment options.
Provides critical information for decisions regarding wastewater treatment.
Provides critical information for decisions regarding wastewater treatment.
Provides critical information for decisions regarding wastewater treatment.
Develops a comprehensive approach to wastewater treatment based on all available data,
including nutrient reduction targets and performance of alternate OSDS.
Directly reduces nutrient loadings to Sanctuary waters.
Directly reduces nutrient loadings to Sanctuary waters.
Develops a coordinated plan to directly reduce nutrient loadings from live-aboards and
other boaters, which can contribute to water quality degradation in confined waters.
Reduces aerial spraying of pesticides, leading to reduced inputs of pesticides and diesel oil
to the marine environment.
Evaluates alternatives to minimize impacts of current pesticide practices.
Addresses documented water quality degradation in canals, especially problems related to
structure and orientation of canals rather than primarily to wastewater and/or stormwater
pollutants.
Provides critical data on long-term status and trends in water quality and biological
resources for management decisions. The monitoring program is required by the Florida
Keys National Marine Sanctuary and Protection Act.
Predictive models can be useful tools for management decisions about pollution control
actions.
Information on unquantified nutrient loadings is critical for setting nutrient reduction targets
for wastewater treatment. Some other pollutant loadings are poorly documented in the
Florida Keys.
Provides critical information for decisions regarding wastewater treatment. Need to know
if all wastewater nutrients discharged to groundwater subsequently enter coastal waters, and
if they are reaching the reef tract.
Provides critical information about cause/effect relationships linking pollutants and
Sanctuary resources.
Data management is an integral part of all research and monitoring efforts; must be
developed before field/lab work begins.
Establishes technical (scientific and resource management) oversight for all research and
monitoring efforts.
Provides critical information on the health of living resources and the ecosystem, causal
relationships related to management decisions, and the effectiveness of management
actions. The ecological monitoring program is required by the Florida Keys National
Marine Sanctuary and Protection Act.
20
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effectiveness of the recommendations in
reducing water quality problems in the
Sanctuary. Recommendations that will
reduce pollution directly, provide
information needed for critrical decisions, or
allow another high-priority recommendation
to be implemented are generally assigned a
high priority. Recommendations that might
directly reduce pollution by making the
management/regulatory system work more
efficiently are generally assigned a lower
priority.
It should be noted that some high-priority
recommendations involve significant
prerequisites to be implemented.
Conversely, some low-priority
recommendations might be implemented
early if they involve simple, inexpensive
measures.
Recommendations for monitoring and
research/special studies are being
implemented directly by EPA and FDEP
under the administrative framework for
the Water Quality Protection Program.
For educational activities, EPA and FDEP
are assisting NOAA, which is responsible
for educational programs in the
Sanctuary.
In contrast, most recommendations for
corrective action will require coordinated
activities by numerous federal, state, and
local government agencies. There will be
ample opportunities for public review and
comment before any such measures are
implemented. Environmental and
socioeconomic impacts of
recommendations that are incorporated
into NOAA's management plan have been
evaluated in an Environmental Impact
Statement. NOAA's draft Comprehensive
Management Plan and Environmental
Impact Statement were released to the
public on April 4,1995.
Steven Frink
Monitoring and Special
Studies Program
The Florida Keys National Marine
Sanctuary and Protection Act of 1990
requires that a comprehensive water quality
monitoring program be established, with the
following goals:
To determine the sources of pollution
causing or contributing to existing or
anticipated pollution problems in the
Sanctuary.
To evaluate the effectiveness of
efforts to reduce or eliminate those
sources of pollution.
21
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To evaluate the progress toward
achieving and maintaining water
quality standards and toward
protecting and restoring the coral refs
and other living marine resources of
the Sanctuary.
To meet these goals, EPA developed
both a monitoring program and a
research/special studies program. Together,
these programs will provide information
needed by Sanctuary managers to accomplish
the goals of the Water Quality Protection
Program.
Monitoring involves systematic, long-
term data collection and analysis to measure
the status of water quality and biological
resources and to detect change over time.
Detecting such changes can focus special
studies on determining the cause, can prompt
management decisions for corrective action,
and can be used to evaluate the success of
corrective action.
Steven Frink
Special studies involve short- and long-
term data collection to understand causal
linkages between pollution sources and
ecological problems. This understanding can
be used to develop predictive models, devise
corrective actions, and improve the
monitoring program.
Initially, the monitoring and special
studies programs were developed during
Phase II with guidance from technical
experts (EPA Phase II Report 1993). The
programs were developed without cost
constraints, and some aspects of design and
all details of implementation were left to be
worked out. Therefore, EPA also developed
an Implementation Plan which includes the
following:
Recommendations for prioritizing the
monitoring and special studies
programs to coincide with expected
available funding and existing
management priorities.
Specific steps to be taken in
implementing the monitoring and
special studies programs.
Discussion of concepts for the role of
predictive modeling in the Water
Quality Protection Program.
Management priorities, available funds,
and estimated costs were considered in
developing recommendations for the
monitoring and special studies programs.
Each program was divided into components,
and priorities were assigned based on the
Water Quality Protection Program
Document. Table 5 summarizes program
components according to three categories:
monitoring, research/special studies, and
22
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Table 5. Components of the Monitoring and Research/Special Studies Programs
Component
MONITORING PROGRAM
Water Quality Monitoring
Regular monitoring
Continuous monitoring
Sediment quality
Biological body burdens
Coral Reef/Hard Bottom
Monitoring
Seagrass Monitoring
Mangrove Monitoring
RESEARCH PROGRAM
Wastewater Pollutants
Wastewater detection
Pollutant load reduction goals
(PLRGs)
Florida Bay Influence
Description
During regular surveys, water samples will be collected and water
quality parameters measured at stations throughout the Sanctuary.
Measurements include physico-chemical parameters, nutrient
concentrations, and biological parameters.
Physico-chemical parameters will be measured by continuous recording
instrumentation at selected water quality stations and/or biological
monitoring stations.
A one-time survey of toxic pollutants in sediments will be conducted at
water quality stations throughout the Sanctuary. Samples will be
analyzed for standard bulk sediment parameters and selected pollutants.
Representative organisms will be collected during at least one survey to
estimate body burdens of toxic pollutants. Samples will be collected at
biological monitoring stations and analyzed for selected pollutants.
Coral reefs, patch reefs, and nearshore hard bottom communities will
be monitored during regular surveys.
Seagrass communities will be monitored during regular surveys.
Mangrove communities will be monitored through remote sensing
(Advanced Inventory of Wetlands project repeated every 5-7 years).
Studies to detect and document the presence and ecological impacts of
wastewater pollutants in Sanctuary waters.
Studies to develop a strategy to estimate the reduction in wastewater
pollutant loading necessary to restore and/or maintain Sanctuary
resources.
Studies to understand the effect of recent water quality and ecological
problems in Florida Bay on water quality and resources in the
Sanctuary.
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Table 5. Components of the Monitoring and Research/Special
Studies Programs (continued)
Component
Description
PROGRAM SUPPORT
Quality Assurance/Quality
Control (QA/QC)
The monitoring and research programs will adhere to QA/QC
procedures described in EPA guidance documents. An EPA QA/QC
Officer has been designated. Each principal investigator will submit a
Work/Quality Assurance Project Plan before work can begin.
Data Management
FMRI is developing a data management plan and data management
system for the Sanctuary. The plan will address all aspects of data
management for research and monitoring, including information
distribution, storage, archiving, and QA/QC of data input.
Synthesis/Reporting
The National Marine Sanctuaries Program Amendments Act of 1992
requires that the Steering Committee submit a Biennial Report to
Congress that summarizes progress, modifications to the program, and
recommendations concerning implementation. In addition, it will be
necessary to synthesize principal investigator reports periodically to
evaluate progress in relation to management goals.
Dissemination of Information
Investigators are expected to publish in the open scientific literature.
The Sanctuary will help disseminate monitoring and research results by
developing an information exchange network, holding conferences, and
supporting publication of findings in peer-reviewed journals.
24
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Table 6. Priorities for Water Quality Monitoring and Research/Special Studies
Programs Based on FY 1994 and FY 1995 Funding
Component Description
MONITORING PROGRAM
Water Quality Status and Trends Monitoring
* Regular water quality monitoring
Continuous water quality monitoring
Sediment quality
Tissue body burdens
Biological Resource Status and Trends
Monitoring
Coral reef/hard bottom monitoring
Seagrass monitoring
Mangrove monitoring
Corrective Action Monitoring
Monitoring of pilot projects or other actions
RESEARCH/SPECIAL STUDIES PROGRAM
Wastewater Pollutants
Detecting wastewater pollutants and
documenting ecological impacts
Developing pollutant load reduction goals
Florida Bay influence
Circulation studies
Ecological studies
Other pollutants/water quality problems
PROGRAM SUPPORT
Quality assurance/quality control
Data management
Synthesis/reporting
» Dissemination of findings
Time
Frame
long term
unknown
1 time
1 time
long term
long term
every
5-7 yr
unknown
2-3 yr
2-3 yr
2-3 yr
2-3 yr
unknown
long term
long term
long term
long term
Estimated
Annual
At least
$1,400,000"
$700,000
$400,000
$200,000
unknown
$350,000
$350,000
unknown
unknown
$750,000
$300,000
$300,000
$150,000
unknown
$100,000
$0"
$50,000
$50,000
$0°
Note: All funds, except $250,000 from the South At 'east
Allocation of
Actual FY
1994 Funding^
$700,000
$400,000
$0
$0
$0
$200,000"
$100,000"
$0°
$0'
$240,000
$190,000"
$50,000"
$0"
$0
$75,000
$0"
$50,000
$25,000
$0°
Allocation of
Actual FY
1995 Funding
$1,000,000
$400,000
$0
$0
$0
$400,000
$200,000
$0
$0
$381,200
$269,596
$21,029
$90,575
$0
$77,480
$0
$60,000
$17,480
$0
$1,015,000 $1,458,680
1 Estimated cost including only the basic components of the monitoring program (regular water quality monitoring, coral reef/hard
bottom monitoring, and seagrass monitoring). Additional components will be funded as money becomes available. Total costs will
be higher depending on which additional components are funded.
" Priorities for additional funds. These components are supported at less than minimal levels.
° No activity (and therefore no funding) is needed in FY 1994.
a No funding is needed to support the EPA Quality Assurance/Quality Control Officer.
25
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program support. Costs to implement all
components were developed. Then, as
information about actual funding (FY 1994)
became available, the monitoring and special
studies programs were scaled back and
recommendations were developed as to
which components could be funded initially
and at what level. Table 6 summarizes
recommendations for monitoring and
research/special studies based on the FY
1994 and FY 1995 funding available.
Monitoring Program
The recommended monitoring program
consists of regular water quality monitoring,
coral reef/hard bottom monitoring, and
seagrass monitoring (Table 6). Options for
continuous water quality monitoring,
sediment sampling, tissue body burdens,
mangrove monitoring, and/or corrective
action monitoring cannot be included in the
first year but could be added in the future
depending on available funding and
management priorities. Unlike the basic
status and trends monitoring which is
repeated, the optional components would be
done only once (sediment sampling, tissue
body burdens), once every 5-7 years
(mangrove monitoring), or on a case-by-
case basis (corrective action monitoring).
The FY 1995 monitoring effort (funded
with FY 1994 dollars) was budgeted for
$700,000 (Table 6). This compares with an
estimated annual cost of $1,400,000 to
$1,800,000 to implement a comprehensive
monitoring program. Costs were reduced to
match available funds by delaying optional
components, reducing the sampling
frequency and number of stations for water
quality monitoring, and developing minimal
coral reef/ hard bottom and seagrass
monitoring efforts for FY 1995. The FY
1996 monitoring effort is being funded with
FY 1995 dollars as per Table 6.
Recommended priorities for additional
funds in future years would be to upgrade
the seagrass and coral reef/hard bottom
monitoring efforts, then seek to add
components such as continuous monitoring,
sediment sampling, and tissue body burdens.
Steven Frink
Research/Special Studies
The recommended reserach/special
studies program topics for FY 1995 were
wastewater pollutants and Florida Bay
influence (Table 5). Studies on other water
quality problems are being deferred until
later. A total of $621,200 (includes
$240,000 of FY 1994 funds) was available
for the research/special studies program in
FY 1995. Table 6 shows how the FY 1994
and FY 1995 funds were divided among the
special study topics. Specific decisions on
26
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funding were made based on an extensive
review, evaluation, and ranking by a
scientific panel.
The $621,200 figure mentioned above
was not based on a fixed scope (unlike the
monitoring program). Experience suggests
that the amounts proposed to study
wastewater pollutants and Florida Bay may
not be sufficient. To a much greater extent
than the monitoring program, future funding
needs for the research program will be
determined by study findings.
Pollutant Load Reduction Goals
The Phase II Report described a range of
engineering and management options to
{educe pollutant loadings from wastewater
and stormwater. In order to evaluate the
options, it is necessary to determine what
reduction (if any) in wastewater and
stormwater pollutant loadings would be
sufficient to restore and /or maintain
Sanctuary resources.
The term pollutant load reduction goal
(PLRG) refers to "estimated reductions in
pollutant loadings needed to preserve or
restore beneficial uses of receiving waters"
(FDEP 1993). PLRGs provide targets or
benchmarks toward which specific strategies
are directed. Development of PLRGs can be
a long-term, iterative process involving
establishment of interim goals,
implementation of strategies, and continuing
evaluation to assess the results (FDEP
1993).
EPA, FDEP, and NOAA are working
with an EPA contractor to identify and
evaluate alternative strategies for developing
PLRGs for wastewater and stormwater in
the Sanctuary (including the option of not
developing PLRGs). This work includes an
inventory and assessment of previous and
ongoing efforts to develop PLRGs in other
waterbodies and watersheds in Florida and
around the country. This information is
needed within the next few years to decide
among options for wastewater and
stormwater treatment in the Florida Keys.
"^ i..
Florida Marine Research Institute
Data Management
The principal investigators for each
component (water quality, coral reef/ hard
bottom, and seagrass) of the monitoring
program will develop and maintain protocols
and procedures under a data management
program to ensure that the data generated
are accessible to potential users in a timely
manner. All original and ancillary data
27
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produced under the Water Quality Protection
Program will be generated, processed,
stored, and archived in a manner that
provides detailed documentation of the
procedures used at all stages of data
collection, reduction, processing, analysis,
and storage.
Under a cooperative agreement with
EPA, the Florida Marine Research Institute
(FMRI) has developed a data management
plan and prototype data management system
for the monitoring and reserach/special
studies programs. The principal
investigators will work with FMRI to
identify data needs, define data entry formats
and quality assurance/quality control
protocols, and resolve data management
conventions and issues.
The principal investigators will design and
develop a computerized database under a
commercially/commonly available personal-
computer-based database program with
guidance from EPA and FMRI. The
database will be designed to contain the
original data generated by the project and
any ancillary information necessary for
interpretation of the data. The database will
be in a format that will allow the database to
be directly imported into the data
management system.
Budget Summary
sources include EPA Region 4 program
specific funds, EPA Headquarter's funds
(Office of Water), Congressional add-ons,
and EPA's Gulf of Mexico Program.
Through March 20, 1995, total EPA
funds dedicated to the Water Quality
Protection Program were $4,188,200. In
addition, the South Florida Water
Management District has dedicated $250,000
of FY 1995 dollars to fund specific projects
associated with the monitoring and
research/special studies programs.
In addition to the cooperative agreement
for data management with FMRI (discussed
in the data management section), EPA has
entered into cooperative agreements with
various institutions and agencies to conduct
the work associated with the monitoring
program. Information regarding these
cooperative agreements is summarized in
Table 7 To assist with long-term planning,
EPA prepared a five-year budget which lists
the prioritized funding needs for monitoring,
research/special studies, and Program
support.
Special Projects
During the development of the Water
Quality Protection Program EPA funded
many special presets. Some of these
projects are discussed below.
Since the Water Quality Protection
Program project began in 1991, EPA has
used dollars from many different sources to
fund the development and now the
implementation of the Water Quality
Protection Program Document. These
Stormwater Demonstration Project at
Bahia Honda State Park - EPA provided
approximately 53% ($50,000) of the funding
necessary for the construction of a
Stormwater demonstration project at Bahia
28
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Table 7. Information on Cooperative Agreements
Water Quality Monitoring - EPA has entered into a cooperative agreement with Florida
International University to perform the water quality monitoring component of the status
and trends monitoring program. The total amount of the award is $800,000 over a two-
year period. Dr. Ronald Jones of Florida International University is the project leader.
Coral Reef/Hard Bottom Monitoring EPA has entered into a cooperative agreement
with the Florida Department of Environmental Protection/Florida Marine Research
Institute to perform the coral reef/hard bottom monitoring component of the status and
trends monitoring program. The amount of the award is $600,000 over a two-year
period. Ms. Jennifer Wheaton of the Florida Marine Research Institute is the project
leader.
Seagrass Monitoring - EPA has entered into a cooperative agreement with Florida
International University to perform the seagrass monitoring component of the status and
trends monitoring program. The amount of the award is $300,000 over a two-year
period. Dr. Jim Fourqurean of Florida International University is the project leader.
Data Management - Under a cooperative agreement with EPA, the Florida Department
of Environmental Protection/Florida Marine Research Institute developed a data
management plan and prototype data management system for the monitoring and research/
special studies program. The amount of this award was $50,000. Chris Friel with the
Florida Marine Institute is the project leader. In addition, EPA has entered into a
subsequent cooperative agreement with the Florida Marine Research Institute to
implement the data management system. This separate agreement is in the amount of
$160,000 and covers a two-year period.
Note: Monitoring involves systematic, long-term data collection and analysis to measure the
status of water quality and biological resources and to detect change over time. The
comprehensive monitoring program is expected to last at .least five years and some level of
monitoring may be necessary for as long as the Florida Keys National Marine Sanctuary exists.
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Honda State Park on Big Pine Key. Water
quality at the point of discharge into
Sanctuary waters was improved by means of
retention and sediment filtration systems.
This included removal of ±14,000 square
feet of impervious pavement and the
construction of shallow retention areas
(grass swales).
Study of the Key West Sewage
Treatment Plant Ocean Outfall - Region 4
is conducting an intensive study of the Key
West sewage treatment plant ocean outfall to
evaluate its impacts to the local marine
environment. The study is a cooperative
effort between EPA, NOAA, and the City of
Key West. Reef Relief, a non-profit
conservation organization, provided boats
and other assistance during the field work
phase of this study. Ecological impacts are
being investigated through the use of sewage
tracers and assessment of benthic
communities in potentially affected areas. If
EPA determines that an ocean outfall is
resulting in unreasonable adverse impacts to
the marine environment, it has the regulatory
authority to place additional limitations on
the discharge.
Interagency Agreement with the National
Park Service EPA entered into an
interagency agreement with Everglades
National Park to support water quality
monitoring and nutrient studies on the
southwest Florida coast and western Florida
Bay. EPA supported this project with funds
in the amount of $100,000.
Florida Bay Watch Program - EPA joined
the South Florida Water Management
District and other government agencies in
support of The Nature Conservancy's Florida
Bay Watch Program. EPA Region 4 made a
grant to The Nature Conservancy in the
amount of $29,682. This project has trained
and empowered volunteers to monitor water
quality and water quality related phenomena
in Florida Bay and adjacent waters.
The Nature Conservancy has designed
and is implementing this volunteer program
to collect observational data such as visibility
and water clarity and anecdotal information
including the location and extent offish kills,
sponge die-offs, and the location of algal
blooms. This program was designed and
coordinated to augment ongoing and planned
water quality studies.
Interagency Agreement with the U.S.
Geological Survey - EPA entered into an
interagency agreement with the U.S.
Geological Survey to support a ground-
water study in the Florida Keys. The title of
the study is, "Fate and Pathways of
Injection-Well Effluent in the Florida Keys."
EPA supported this project with funds in the
amount of $65,000.
Interagency Agreements with NOAA -
EPA has entered into an interagency with
NOAA to support public education and
outreach in the Florida Keys. EPA has
provided funds in the amount of $35,000 to
support the Sanctuary's television program,
"Water Ways", and many other public
education activities. Other activities include
the "Coral Reef Classroom" which informs
students about water quality and other
environmental issues in the Florida Keys.
EPA also has an interagency agreement
with NOAA in the amount of $3,500 to
support EPA's office in the Florida Keys.
This office, staffed by EPA's Florida Keys
Program scientist, is located at NOAA's
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Sanctuary Program Office in Marathon,
Florida.
Coral Reef Awareness Campaign - EPA
provided 25% of the funding ($20,000) for a
Coral Reef Awareness Campaign which
focused on water quality improvements in
the Florida Keys. The project included
intensive environmental education designed
to increase community support for water
quality improvements recommended in the
Water Quality Protection Program
Document. As a part of this project, the
grantee, Reef Relief (environmental group
focused on the Florida Keys coral reef
ecosystem) developed a brochure designed
to foster understanding of the sources of
water quality decline in the Florida Keys and
build support for the Water Quality
Protection Program. The brochure was
mailed to every property owner in the
Florida Keys.
Wastewater Demonstration Project - A
congressional add-on of $500,000 was
included in EPA's FY 1993 budget to fund
innovative and alternative wastewater
demonstration projects in the Florida Keys.
EPA transmitted, via a grant, the $500,000
to the Florida Department of Health and
Rehabilitative Services (FDHRS). FDHRS
has entered into a contract which will
provide numerous services for the evaluation
of several types of on-site wastewater
nutrient reduction systems. The different
system technologies will be tested at a
central facility and at individual homesites.
This project was supported with funds from
NOAA's Coastal Zone Management
Program in the amount of $195,000.
Florida Marine Research Institute
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Water Quality Protection Program Management Committee
Fred McManus Bill Kruczynski
U.S. Environmental Protection Agency U.S. Environmental Protection Agency
Region 4 Region 4
Billy Causey George Garrett
NOAA Monroe County
Florida Keys National Marine Sanctuary
George Schmahl
Florida Department of Environmental Protection
Florida Keys National Marine Sanctuary
Ken Haddad
Florida Department of Environmental Protection
Florida Marine Research Institute
For More Information on the Water Quality Protection Program ,Contact:
Fred McManus
Florida Keys Coordinator
U.S. Environmental Protection Agency
Region 4
100 Alabama Street, S.W.
Atlanta, Georgia 30303
(404) 562-9385
Bill Kruczynski
Florida Keys Program Scientist
U.S. Environmental Protection Agency
C/O Florida Keys National Marine Sanctuary
P.O. Box 500368
Marathon, Florida 33050
(305) 743-0537
For More Information on the Florida Keys National Marine Sanctuary, Contact:
Billy Causey, Superintendent
Florida Keys National Marine Sanctuary
P.O. Box 500368
Marathon, Florida 33050
(305) 743-2437
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Water Quality Protection Program Technical Advisory Committee
Richard Alleman
South Florida Water Management District
Don Axelrad
Florida Dept. of Environmental Protection
Thomas Bancroft
Archbold Biological Survey
Robert Brock
Everglades National Park
Michael Dupes
U.S. Army Corps of Engineers
Roland Ferry
U.S. EPA, Region 4
Rod Fujita
Environmental Defense Fund
George Garrett
Monroe County
John Hunt
Florida Dept. of Environmental Protection
Walt Jaap
Florida Dept. of Environmental Protection
Ron Jones
Florida International University
Curtis Kruer
Citizen
Brian LaPointe
Harbor Branch Oceanographic Institute
Michael Marshall
Mote Marine Laboratory
Steven L. Miller
NOAA/National Undersea Research Center
Joyce Newman
Citizen
Jim Reynolds
Florida Keys Aqueduct Authority
Chris Schrader
Citizen
Kevin Sherman
Florida Dept. of Health and Rehabilitative Services
Eugene A. Shinn
U.S. Geological Survey
Kathleen Sullivan
University of Miami
Alina Szmant
University of Miami
Jay Zieman
University of Virginia
John C. Ogden
Florida Institute of Oceanography
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