Northern Coastal Basin 

Surface Water Improvement and Management Plan 

Prepared by 

Paul J. Haydt 

and 

Frazel, Inc. 

St. Johns River Water Management District 

Palatka, Florida 

December 2003 
Northern Coastal Basin Surface Water Improvement and Management Plan 
Executive Summary 

iii

EXECUTIVE SUMMARY 

Overview 

The St. Johns River Water Management District (SJRWMD) initiated the Northern Coastal 

Basin (NCB) project in 1995 in response to general water quality concerns and the closure of 

historic shellfish harvesting areas. Potential negative impacts from current and anticipated 

growth on coastal resources, particularly shellfish harvesting, highlighted the need for a 

dedicated program to address surface water quality and estuary issues. In addition, a number of 

water bodies in the NCB are listed by the U.S. Environmental Protection Agency (303d list) as 

not having sufficient water quality to meet their designated uses. SJRWMD is legislatively 

mandated to assess these water bodies and determine the potential need for establishment and 

implementation of pollutant load reduction goals (PLRGs). Through a series of workshops and 

public forums, management agencies, local governments, and stakeholders were requested to 

identify issues and provide listings of reports and related studies for the portions of the NCB 

within their jurisdiction. This was used for development of an initial NCB Reconnaissance 

Report (Bonnie Holub & Associates 1998). 

The Reconnaissance Report was used as a resource guide in development of the NCB Surface 

Water Improvement and Management (SWIM) Plan by a team of SJRWMD staff members and 

Frazel, Inc. The purpose of the NCB SWIM Plan is to set forth a proactive course of action, 

identifying the projects that address both estuarine water quality and habitat protection, and the 

effort needed to accomplish them, consistent with the levels and trends of available funding. 

Input on the draft SWIM Plan was solicited for, and provided by, government and agency 

stakeholders and other interested parties, through a series of meetings held throughout the NCB. 

This document represents the culmination of that effort. 

Northern Coastal Basin Summary 

The NCB is located on the northern Atlantic coast of Florida. The NCB extends nearly 100 miles 

from lower Duval County, just south of the urban center of Jacksonville, Florida, south through 

the coastal watersheds of St. Johns, Flagler, and Volusia counties to Ponce de Leon Inlet, near 

the city of New Smyrna Beach. 

The NCB covers four “planning units,” which can be an individual, usually large, tributary basin 

or a group of small adjacent primary tributary basins with similar characteristics. The major 

planning units comprising the NCB, from north to south, are the Tolomato River (9D), the 

Matanzas River (9C), Pellicer Creek (9B), and the Halifax River (9A). For the purposes of this 

management plan, the Tolomato and Matanzas river basins are treated as one basin and are 

referred to as Tolomato/Matanzas. This combination provides general consistency with the 

federal Guana-Tolomato-Matanzas National Estuarine Research Reserve (GTMNERR) Program, 

which encompasses parts of the estuaries in both of these planning units. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

iv

• The Tolomato/Matanzas River planning unit is located within northeast Florida, in portions 

of Duval, St. Johns, and Flagler counties, and has a contributing drainage area of 

approximately 127,000 acres, within 37 basins. Portions of the Tolomato/Matanzas River 

planning unit are designated as Class II waters, which is the standard for commercial and 

recreational shellfish harvesting. In 1995, extensive shellfish harvesting areas were reclassified from “conditionally approved” to “conditionally restricted” for shellfish harvesting 

due to high coliform bacteria levels. The net result was a closure of virtually all the primary 

shellfish harvesting areas available for either commercial sale or recreational usage. 

The Tolomato River north of St. Augustine has good but degrading water quality, and urban 

runoff and other sources of sediment load impact the Tolomato/Matanzas River planning 

unit. It has a contributing drainage area of approximately 102,000 acres. The system as a 

whole has high average total suspended solids and somewhat elevated turbidity. Overall 

development in the planning unit and the corresponding increase in human-related activities 

may be the causes of increased fecal coliform bacteria levels and other water quality 

parameters in the receiving waters. 

• The Pellicer Creek planning unit is located south of St. Augustine and includes southern St. 

Johns County and northern Flagler County. Pellicer Creek, which forms the boundary 

between St. Johns and Flagler counties, is the only natural watershed drainage feature in this 

planning unit. Pellicer Creek is designated by the state of Florida as an Outstanding Florida 

Water (OFW). The Pellicer Creek planning unit consists of vast wetlands, many miles of 

which were drained for pine plantations or real estate development, and to reduce mosquito 

breeding sites. Commercial shellfishing for oysters and clams has historically occurred in the 

southern St. Johns County portion of this planning unit. 

Pellicer Creek is a 303(d) listed water body with a variety of water quality constituents 

exceeding limits, including lead, nutrients, coliform bacteria, dissolved oxygen, and iron. The 

man-made canals of Palm Coast are also collectively identified as a 303(d) listed water body. 

The water quality parameters of concern at Palm Coast are cadmium, lead, selenium, 

nutrients, coliforms, dissolved oxygen, silver, and thallium. 

• The Halifax River planning unit includes portions of Flagler and Volusia counties along the 

northeast Florida coast and encompasses an area of nearly 208,000 acres, within 33 basins. 

Major drainage into the estuary comes from Bulow Creek, the Tomoka River, and Spruce 

Creek, and their natural tributaries. Rose Bay, which is a large embayment partially isolated 

from the main part of the Halifax River by an abandoned causeway and the present U.S. 1 

causeway, also contributes drainage to the Halifax River. Both the Tomoka River and Spruce 

Creek basins are listed as OFWs. 

The Halifax River unit has several 303(d) listed water bodies, including the Halifax River for 

nutrients, coliform bacteria, copper, lead, and iron; Rose Bay for nutrients, coliform bacteria, 
Executive Summary 

v

and dissolved oxygen; the Tomoka River for lead, nutrients, and iron; the B-19 canal network 

for nutrients and dissolved oxygen; and Spruce Creek, with a variety of constituents 

exceeding state water quality criteria, including lead, nutrients, coliform bacteria, dissolved 

oxygen, and iron. 

Overall Management Strategy 

The basic strategy of restoring, protecting, and managing the surface water resources of the NCB 

is through the use of a prioritized, objective, applied, sustainable ecosystem or watershed 

approach with periodic public review and input. The NCB SWIM Plan is organized around a 

project delivery system of goals, initiatives, strategies, and action steps. 

In this system, goals are broad-based and identify objectives of SJRWMD. Initiatives are general 

categories that have been used to divide the plan into distinct subject areas developed by 

SJRWMD staff in conjunction with the NCB Advisory Group. Strategies are more-detailed 

descriptions of the underlying work proposed to achieve results. They identify the approaches 

and methods that will be used to implement the initiatives. Action steps represent specific 

activities under each strategy suggested to reach project delivery. Each action step includes a 

schedule for completion and an estimate of the funding requirements needed to accomplish the 

action step. These action steps, as well as the strategies and initiatives referenced above, are not 

mutually exclusive and may be undertaken concurrently and/or sequentially. 

The plan focuses on five primary initiatives: 

1. Water quality. This initiative consists of three distinct but interrelated strategies: water 

quality and flow monitoring; hydrodynamics, and water quality modeling, a prioritization 

process based on water quality enhancement opportunities for improving both 303(d) listed 

surface waters and degraded waters identified by SJRWMD so that they will meet and 

maintain their designated classification (i.e., OFW, Class II, Class III water quality 

standards). 

2. Watershed master planning. Watershed master planning is an evaluation of stormwater 

management in the geographic area and identification of problem areas, with detailed 

remedial actions derived using hydrologic models simulating water volumes and flows under 

a range of climatic conditions. 

3. Stormwater retrofit and master plan implementation. This initiative consists of 

development and implementation of a prioritized stormwater retrofit program focusing on 

areas built prior to 1983; support for the development of local government land acquisition 

programs for buying land to site facility construction; and evaluation of available federal and 

state funding sources and other partnering opportunities.
Northern Coastal Basin Surface Water Improvement and Management Plan 

vi

4. Compliance and rules enforcement. This initiative consists of strategies to collect and 

evaluate compliance information from existing permitted stormwater quality treatment 

systems. Information gained from a compliance monitoring program to evaluate proper 

system operation can be compared with water quality monitoring results to specify where inplace treatment devices are providing the necessary pollutant reductions, and where 

additional treatment is needed to maintain the water resource. 

5. Resource assessment, protection and restoration. This initiative consists of strategies to 

evaluate existing data on NCB habitats and implement additional data collection efforts, if 

necessary, to identify and provide habitat protection and restoration in the NCB. 

A number of strategies and associated action steps were developed to fulfill these initiatives. The 

strategies for each initiative are listed as follows: 

Water Quality Initiative 

• Examine the existing water quality monitoring network and, if necessary, design and 

implement a more integrated network. 

• Develop and assess water quality and habitat protection targets using hydrologic and 

hydrodynamic water quality models and water quality and biological indices, where 

appropriate. 

• Develop and assess water quality and habitat protection targets using hydrologic and 

hydrodynamic water quality models, where necessary. 

• Enhance, where necessary, and maintain surface waters. 

Watershed Master Planning Initiative

• Evaluate and refine existing watershed master plans. 

• Assist in the development and endorsement of local master stormwater plans and 

implementation schedules. 

Stormwater Retrofit and Master Plan Implementation Initiative

• Prioritize stormwater retrofit programs. 

• Partner with local governments to implement stormwater plans. 

Compliance and Rules Enforcement Initiative

• Implement existing compliance monitoring programs. 

• Assess and manage resources and funding to support the requirements of current and 

emerging National Pollutant Discharge Elimination System (NPDES) regulations, pollutant 

load reduction goals (PLRGs), and total maximum daily load (TMDL) regulations. 

Resource Assessment, Protection, and Restoration Initiative

• Complete habitat mapping and resource assessments. 

• Protect and manage important estuarine habitats. 
Executive Summary 

vii

• Provide habitat enhancement and restoration. 

The successful implementation of this NCB SWIM Plan will require staff resources and 

dedicated funding both from SJRWMD and, even more important, from outside sources. To 

accomplish all of the action steps in this ambitious endeavor, it is estimated that full 

implementation of the NCB SWIM Plan will cost $9.51 million over the next 5 years to 

complete. At current funding levels, SJRWMD will provide $3 million over the 5-year planning 

period. The remaining funds will have to be appropriated from other sources. In the event that 

full funding does not become available, the timeline for completion will be extended according 

to the levels of funding provided. The NCB SWIM Plan also calls for a re-evaluation every 3 

years, at which time appropriate adjustments will be made. The completion of diagnostic studies 

previously outlined and an evaluation of management options must be completed before a more 

accurate total program cost can be set. 

The following table shows funding estimates by initiative. 

Initiative Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

Water quality $295K $655K $615K $615K $615K 

Watershed master planning $90K $40K $200K $200K $200K 

Stormwater retrofit and master plan 

implementation $565K $1.115M $1.065M $1.065M $1.065M 

Compliance and rules enforcement $105K $25K $25K $25K $25K 

Resource assessment, protection, 

and restoration $215K $220K $165K $140K $565K 

 Total $1.27M $2.055M $2.07M $2.045M $2.47M 

In addition to the activities defined in this plan, local government has a role in maintaining water 

quality in the NCB, through the improvement and maintenance of projects under their 

jurisdiction. Ongoing capital improvement programs are costly, but necessary, and provide a 

good example of local governments’ commitment to good water quality. These local 

governments have identified over $77 million in their 5-year land acquisition and capital 

improvement programs that would directly benefit the NCB. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

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Contents 

ix

CONTENTS 

Executive Summary....................................................................................................................... iii 

INTRODUCTION ...........................................................................................................................1 

 Surface Water Improvement and Management Act.............................................................1 

 Northern Coastal Basin Plan Evolution ...............................................................................1 

 Acknowledgments................................................................................................................2 

SECTION A. DESCRIPTION OF THE WATER BODY SYSTEM..............................................3 

 A.1. General Overview......................................................................................................3 

 A.2. Hydrography..............................................................................................................6 

 A.2.1. Water Quality ................................................................................................7 

 A.2.2. Hydrology, Hydraulics, and Water Quality...................................................9 

 A.3. Planning Unit Descriptions .....................................................................................11 

 A.3.1. Tolomato/Matanzas River Planning Unit....................................................11 

 A.3.2. Pellicer Creek Planning Unit.......................................................................16 

 A.3.3. Halifax River Planning Unit........................................................................19 

SECTION B. LAND USES AND REGULATED ACTIVITIES WITHIN THE NORTHERN 

COASTAL BASIN ..................................................................................................................23 

 B.1. Land Use and Land Cover.......................................................................................23 

 B.2. Point Sources of Pollution.......................................................................................24 

 B.3. Nonpoint Sources of Pollution ................................................................................24 

 B.4. Permitted Discharge Facilities.................................................................................24 

 B.5. Surface Water Discharge Facilities Operating With a Permit.................................24 

 B.6. Surface Water Discharge Facilities Operating Without a Permit............................25 

 B.7. Multi-sector General Permit Facilities ....................................................................25 

 B.8. Municipal Separate Storm Sewer Systems..............................................................25 

 B.9. Compliance Schedules and Recommendations for Point and Nonpoint Sources of 

Pollution Adversely Affecting the Public Interest..............................................25 

SECTION C. GOALS, INITIATIVES, AND STRATEGIES FOR RESTORATION OR 

PROTECTION.........................................................................................................................27 

 C.1. Water Quality Initiative...........................................................................................29 

 C.1.1. Strategy: Examine the existing water quality monitoring network and, if 

necessary, design and implement a more integrated network.................29 

 C.1.2. Strategy: Develop and assess water quality and habitat protection targets 

using hydrologic and hydrodynamic water quality models, and/or water 

quality and biological indices, where appropriate ..................................31 

 C.1.3. Strategy: Enhance and maintain surface waters ..........................................32 

 C.2. Watershed Master Planning Initiative .....................................................................33 
Northern Coastal Basin Surface Water Improvement and Management Plan 

x

 C.2.1. Strategy: Evaluate and refine existing watershed master plans ..................33 

 C.2.2. Strategy: Assist in the development and endorsement of local master 

stormwater plans and implementation schedules....................................34 

 C.3. Stormwater Retrofit and Master Plan Implementation Initiative ............................34 

 C.3.1. Strategy: Prioritize stormwater retrofit programs .......................................34 

 C.3.2. Strategy: Partner with local governments to implement stormwater 

plans ........................................................................................................35 

 C.4. Compliance and Rules Enforcement Initiative........................................................35 

 C.4.1. Strategy: Implement existing compliance monitoring programs ................35 

 C.4.2. Strategy: Assess and manage resources and funding to support the 

requirements of current and emerging NPDES regulations, PLRGs, and 

TMDL regulations ..................................................................................36 

 C.5. Resource Assessment, Protection, and Restoration Initiative .................................37 

 C.5.1. Strategy: Complete habitat mapping and resource assessment ...................37 

 C.5.2. Strategy: Protect and manage important estuarine habitats.........................37 

 C.5.3. Strategy: Provide habitat enhancement and restoration ..............................38 

SECTION D. COMPLIANCE OR PENDING STUDIES AND PROGRAMS RELEVANT TO 

THE NORTHERN COASTAL BASIN...................................................................................39 

 D.1. SJRWMD Northern Coastal Basin Program ...........................................................39 

 D.2. SJRWMD Stormwater Management Cost-Share Program .....................................39 

 D.3. SJRWMD Bathymetric Survey Project...................................................................41 

 D.4. SJRWMD Tidal Model Development Projects.......................................................41 

 D.5. U.S. Geological Survey Fisheries Resources Survey..............................................42 

 D.6. Guana-Tolomato-Matanzas National Estuarine Research Reserve.........................42 

 D.7. Florida Inland Navigation District ..........................................................................42 

 D.8. Rose Bay Restoration ..............................................................................................43 

 D.9. Local Environmental programs ...............................................................................44 

 D.10. Land Acquisition and Management ........................................................................45 

 D.11. Northeast Florida Blueways ....................................................................................46 

 D.12. Public Education......................................................................................................46

 D.13. Water Supply...........................................................................................................47 

SECTION E. RESEARCH AND FEASIBILITY STUDIES NEEDED TO REACH 

RECOMMENDED STRATEGIES .........................................................................................49 

SECTION F. MEASURES NEEDED TO MANAGE AND MAINTAIN THE NORTHERN 

COASTAL BASIN ..................................................................................................................59 

 F.1. Background .............................................................................................................59

 F.2. Impaired Waters List...............................................................................................59 

 F.3. Watershed Management Program ...........................................................................60 

 F.4. SJRWMD’s Role in PLRG Development and the TMDL Verification Process ....61 
Contents 

xi

SECTION G. SCHEDULE AND FUNDING REQUIREMENTS FOR RESTORATION AND 

PROTECTION.........................................................................................................................65 

Bibliography ..................................................................................................................................73 

Appendices 

 I. Implementation Partners..........................................................................................75 

 II. Surface Water Discharge Facilities Operating With a Permit.................................77 

 III. Facilities Possessing Multi-sector General Permits ................................................79 

 IV. Local Government Capital Improvement Projects..................................................81 
Northern Coastal Basin Surface Water Improvement and Management Plan 

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Figures and Tables 

xiii

FIGURES AND TABLES 

Figures 

 1. The Northern Coastal Basin..............................................................................................4 

 2. Planning units 9A–9D, Northern Coastal Basin ...............................................................5 

 3. SJRWMD surface water quality monitoring sites ..........................................................10 

 4. Northern Coastal Basin physical monitoring sites..........................................................12 

 5. Tolomato/Matanzas River Basin.....................................................................................13 

 6. Northern Coastal Basin shellfish harvesting areas..........................................................15 

 7. Pellicer Creek Basin........................................................................................................17 

 8. Halifax River Basin.........................................................................................................20 

 9. Duration of Northern Coastal Basin total maximum daily load and pollutant load 

reduction goal components and process milestones .......................................................64 

Tables 

 1. Planning units in the Northern Coastal Basin...................................................................6 

 2. Northern Coastal Basin 303(d) listed water bodies ..........................................................8 

 3. Major categories of land use and land cover in the Northern Coastal Basin..................23 
Northern Coastal Basin Surface Water Improvement and Management Plan 

xiv
Introduction 

1 

INTRODUCTION 

Surface Water Improvement and Management Act 

In recognition of the need to place additional emphasis on the restoration, protection, and 

management of the surface water resources of the state, the Florida Legislature, through the 

Surface Water Improvement and Management (SWIM) Act of 1987, directed the state’s water 

management districts to “design and implement plans and programs for the improvement and 

management of surface water” (Section 373.451, Florida Statutes [FS]). The SWIM legislation 

requires the water management districts to protect the ecological, aesthetic, recreational, and 

economic value of the state’s surface water bodies, keeping in mind that water quality 

degradation is frequently caused by point and nonpoint source pollution and that degraded water 

quality can cause both direct and indirect losses of aquatic habitats. 

Under the SWIM Act, water management districts prioritize water bodies based on their need for 

protection and/or restoration. This prioritization process is carried out in cooperation with the 

Florida Department of Environmental Protection (FDEP), the Department of Agriculture and 

Consumer Services, the Department of Community Affairs, and local governments. The St. 

Johns River Water Management District (SJRWMD) ranked the Northern Coastal Basin (NCB) 

as the sixth priority SWIM program. Priority water bodies 1 through 5 are current SWIM 

programs. 

Following the selection of the priority water bodies, and in accordance with the SWIM Act, a 

SWIM Plan must be drafted, reviewed, and approved before state SWIM funds can be spent on 

restoration, protection, or management activities. Also, recent changes to the SWIM Act that 

occurred in the 2003 legislative session (Chapter 2003-265, Laws of Florida), mandate that plans 

“shall be updated as necessary to ensure that they effectively address the restoration and 

protection needs of the priority water bodies and that they reflect current scientific 

understandings and budgetary adjustments.” Further, while SWIM plans are still reviewed by 

FDEP, they are no longer subject to FDEP approval. Water management district governing 

boards provide the sole approval of these plans. SWIM plans must be updated at a minimum of 

once every 3 years. 

Northern Coastal Basin Plan Evolution 

SJRWMD initiated the NCB project in 1995 in response to general water quality concerns and 

the closure of historic shellfish harvesting areas. Potential negative impacts from current and 

anticipated growth on coastal resources, particularly shellfish harvesting, highlighted the need 

for a dedicated program to address surface water quality and estuary issues (SJRWMD 1997). In 

addition, a number of water bodies in the NCB are listed on the U.S. Environmental Protection 

Agency (EPA) 303d list by the state of Florida as not having sufficient water quality to meet 

their designated uses. SJRWMD is legislatively mandated to assess these water bodies and 
Northern Coastal Basin Surface Water Improvement and Management Plan 

2 

determine the potential need for establishment and implementation of pollutant load reduction 

goals (PLRGs). 

As a precursor to management plan development, SJRWMD sponsored a series of estuary 

workshops to update and inform community leaders, resource managers, and technical staff on 

current management efforts and estuary issues. One of the short-term objectives identified 

through the workshops was the development of a reconnaissance report as an information source 

and guide with recommendations to aid in development of the NCB Watershed Management 

Plan. 

The Northern Coastal Basin Reconnaissance Report (Bonnie Holub & Associates 1998) is a 

compilation and summary of information provided by state, federal, and local agencies, 

universities, private institutions, and individuals within and outside the NCB. Data, reports, 

documents, and information about ongoing programs in the NCB were identified and included in 

the report. 

To develop the NCB Watershed Management Plan, the reconnaissance report was used as the 

primary resource by a team of SJRWMD staff members and Frazel, Inc., to develop a draft plan. 

Input on the draft plan was solicited for, and provided by, government and agency stakeholders 

(Appendix I) and other interested parties, through a series of three workshops held throughout 

the NCB. This document represents the culmination of that effort. 

Acknowledgments

The NCB SWIM planning project was managed and edited by Paul Haydt, NCB Interagency 

Program Manager for SJRWMD. Denis W. Frazel, Ph.D. (Frazel, Inc.), assisted with the 

development and preparation of the NCB SWIM Plan through the collaborative efforts of 

SJRWMD staff. Editing of the final document was provided by Martha Friedrich. Special thanks 

are due to the following SJRWMD staff for their individual and collective efforts: 

Jessica Babel, P.E., Supervising Professional Engineer 

Getachew Belaineh, Ph.D., Engineer Scientist 

Nancy Christman, Intergovernmental Coordinator 

Chandy John, Ph.D., Engineer Scientist 

Ken John, Assistant Department Director 

Jan Miller, Environmental Scientist III 

Fred Morris, Ph.D., Supervising Engineer Scientist (retired) 

Joel Steward, Technical Program Manager 

Chris Basci, GIS Analyst 
Section A 

3 

SECTION A 

DESCRIPTION OF THE WATER BODY SYSTEM 

A.1. General Overview 

The NCB is located on the northern Atlantic coast of Florida (Figure 1). The NCB extends nearly 

100 miles from lower Duval County, just south of the urban center of Jacksonville, Florida, south 

through St. Johns, Flagler, and Volusia counties to Ponce de Leon Inlet, near the city of New 

Smyrna Beach. 

The NCB encompasses over 680 square miles of coastal lowlands interspersed with numerous 

creeks and small rivers draining east to form a series of shallow bays and lagoons. These are 

separated from the Atlantic Ocean by a barrier island system with three inlets: St. Augustine, 

Matanzas, and Ponce de Leon. 

The NCB is composed of a variety of landscapes, with development throughout the region. 

Residential, commercial, and industrial lands occupy approximately 23% of the total NCB 

watershed. This area includes the intensively urbanized areas around St. Augustine Inlet, 

throughout the Daytona Beach area, and the urbanized area in the vicinity of Ponce de Leon 

Inlet. Interspersed between these urbanized areas are sections of public conservation and 

undeveloped lands consisting of natural communities, including uplands, floodplain and riverine 

wetlands, and tidal marshes. Wetlands, wetland forest, and open water cover more than 29% of 

the area; upland forest, agriculture, and open/range lands make up more than 41% of the area; 

and open water covers nearly 7% of the area (SJRWMD 2000). 

The natural hydrology of the NCB has been altered by a combination of water control structures, 

dikes, drainage ditches, and man-made canals. The Intracoastal Waterway (ICW) runs the entire 

length of the NCB’s coastal lagoons. 

SJRWMD is divided into 10 major basins that are subdivisions of the U.S. Geological Survey 

(USGS) defined hydrologic units. The NCB, or major basin “9,” is further subdivided into four 

planning units. A planning unit can be an individual, usually large, tributary basin or a group of 

small adjacent primary tributary basins with similar characteristics. The major planning units 

comprising the NCB, from north to south, are the Tolomato River (9D), the Matanzas River 

(9C), Pellicer Creek (9B), and the Halifax River (9A) (Figure 2). For the purposes of this 

management plan, the Tolomato and Matanzas river basins are treated as one basin and will be 

referred to as Tolomato/Matanzas. This combination provides general consistency with the 

federal Guana-Tolomato-Matanzas National Estuarine Research Reserve (GTMNERR) Program, 

which encompasses parts of the estuaries in both of these planning units. Areal details on the 

three planning units in the NCB are listed in Table 1. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

4 
Section A 

5 
Northern Coastal Basin Surface Water Improvement and Management Plan 

6 

Table 1. Planning units in the Northern Coastal Basin 

Planning 

Unit No. Planning Unit Name Area (acres) 

Area 

(square miles) 

9D/C Tolomato/Matanzas River 125,521.3 196.1 

9B Pellicer Creek 102,050.6 159.5 

9A Halifax River 208,122.0 325.2 

 Total 435,693.9 680.8 

Source: Adamus et al. 1997 

The major planning units described above contain 83 distinct watersheds described by SJRWMD 

as “7.5-minute quad basins.” A 7.5-minute quad basin is the smallest delineated area in the 

drainage basin data layer maintained by SJRWMD. Details of the naming conventions, as well as 

maps of these hydrologic areas, can be found in Adamus et al. 1997. 

The NCB contains over 87,000 acres of managed public conservation areas, ranging from the 

40,000-acre Guana River Marsh Aquatic Preserve to the 6-acre Addison Blockhouse State 

Historic Site. Approximately 55,000 acres of these lands occur within the federally designated 

GTMNERR Program. 

A.2. Hydrography 

The NCB is located within the Upper East Coast Drainage Basin (part of the Florida East Coast 

Basin as defined by FDEP), which covers 467,195 acres. The majority of the watersheds in this 

basin drain by way of small tidal creeks into shallow coastal lagoons, toward the Atlantic Ocean. 

Tidal exchange is accomplished through four ocean inlets located in or near the borders of the 

NCB. At the northern extreme of the Upper East Coast Drainage Basin, the St. Johns River flows 

to the Atlantic Ocean at Mayport. Five river miles west of the inlet, the ICW connects to the St. 

Johns River. 

Moving approximately 15 miles south of the St. Johns River, the ICW crosses into the NCB 

where it joins and becomes part of the Tolomato River. North of St. Augustine, the Tolomato 

River connects to the Guana River and flows to the Atlantic Ocean via the St. Augustine Inlet. 

South of St. Augustine, the Matanzas River is a lagoonal estuary with the flow of water 

discharging to the Atlantic Ocean by way of the Matanzas Inlet. The Matanzas River estuary 

connects to the Halifax River estuary, to the south, via an artificial channel created as an 

extension of the ICW. 

The Halifax River extends south from the artificial channel north of Daytona Beach, exiting the 

NCB at the Ponce de Leon Inlet. Tidal flow in this area also originates through the Ponce de 

Leon Inlet. Six causeways that cross the Halifax River estuary within a distance of 10.5 miles 

inhibit circulation in the area. 
Section A 

7 

A.2.1. Water Quality 

Under Section 303(d) of the Clean Water Act, each state must prepare a list of waters that are not 

of sufficient quality to meet their designated uses. These lists are required to be submitted to 

EPA for review and approval every April of even-numbered years, that is, every 2 years. It is 

those water bodies in the NCB that appear on the 303(d) list that will automatically receive the 

highest priority for establishment of PLRGs and TMDLs (total maximum daily loads) for 

restoration and protection (Table 2). Details on the PLRG and TMDL process are provided in 

Section F. 

The 303(d) list is developed from data provided from a number of sources, primarily the EPA 

STORET databases, USGS, and the Florida Department of Health. The STORET databases 

contain water quality data from a variety of sources including FDEP, the water management 

districts, local governments, and volunteer monitoring groups. EPA has requested that states 

merge their reporting requirements under the Clean Water Act for Section 305(b) surface water 

quality reports and Section 303(d) lists of impaired waters into an “Integrated Water Quality 

Monitoring and Assessment” report. Following the publication of the status reports and further 

data evaluation, FDEP will produce an assessment report integrating the 303(d) list and the 

basin-specific 305(b) report for this area. An updated 303(d) list for the NCB will be submitted 

to EPA by FDEP in 2006. 

An individual state 305(b) report, which is a biennial assessment of the water quality of a state’s 

waters, provides a summary of water quality by water body type — good, fair, or poor — 

displayed on maps organized by hydrologic units (FDEP 2000). The summary data that are 

contained in these reports are developed from comparisons of a variety of water quality indices, 

described below, known as the Water Quality Index (WQI), the Trophic State Index (TSI), and 

the Stream Condition Index (SCI). 

The WQI, developed by FDEP, represents an average of six water quality index categories 

(water clarity [turbidity, total suspended solids], dissolved oxygen, biological oxygen demand, 

nutrients [total nitrogen and total phosphorus], bacteria [fecal and total coliforms], and biological 

diversity). It is a percent value ranging from 0 to 100, with low WQI values representing the best 

quality and high WQI values having the worst quality (Hand et al. 1988). Over the years, FDEP 

has modified the WQI to accommodate blackwater streams and springs. (Note that a WQI 

presented in the 305(b) report for a water segment could represent anywhere from only one 

category to all six. Consequently, some care must be exercised if WQIs within or between 

watersheds are compared.) 
Northern Coastal Basin Surface Water Improvement and Management Plan 

8 

Table 2. Northern Coastal Basin 303(d) listed water bodies* 

Water Body Name Water 

Body ID Priority TMDL Year Impairment Parameters County 

Tolomato/Matanzas River Planning Unit

Cracker Branch 2553 Low 2011 Coliforms, dissolved oxygen, 

iron St. Johns 

Guana River 2320 Low 2011 Coliforms, dissolved oxygen St. Johns 

ICW (Matanzas River) 2205C Low 2008 Coliforms, nutrients St. Johns 

Matanzas River 2363H Low 2011 Coliforms, nutrients Flagler 

Matanzas River 2363I Low 2011 Coliforms, nutrients Flagler 

Pellicer Creek Planning Unit 

Pellicer Creek 2580B Low 2011 Lead, coliforms, nutrients, 

dissolved oxygen, iron Flagler 

Palm Coast 2363D Low 2011 

Cadmium, lead, nutrients, 

coliforms, dissolved oxygen, 

silver, selenium, thallium 

Flagler 

Halifax River Planning Unit 

Halifax River 2363A Low 2011 Nutrients, coliforms Volusia 

Halifax River 2363B Low 2011 Copper, lead, nutrients, iron Volusia 

Rose Bay 2672 Low 2011 Nutrients, coliforms, 

dissolved oxygen Volusia 

Spruce Creek 2674A High 2006 Nutrients, dissolved oxygen, 

iron Volusia 

Spruce Creek 

(OFW portion) 2674 High 2006 Nutrients, coliforms, dissolved oxygen, iron Volusia 

Tomoka River 2634A Low 2011 Lead, nutrients, iron Volusia 

Tomoka River 2634 Low 2011 Nutrients, coliforms, 

dissolved oxygen, iron, lead Volusia 

Unnamed ditch 

(B-19 Canal) 2666 Low 2011 Nutrients, dissolved oxygen Volusia 

Note: ICW = Intracoastal Waterway 

 OFW = Outstanding Florida Water 

 TMDL = total maximum daily load 

*Table 2 is provided to show the most current Northern Coastal Basin (NCB) 303(d) list, approved 11/24/98 (EPA 

1998). Although the state of Florida has submitted a year 2000 305(b), the U.S. Environmental Protection Agency has 

not yet released an updated 303(d) list for the NCB region. The only current adopted and draft 2002 303(d) lists of 

impaired waters in Florida are Group 1 watersheds. The NCB is listed as a Group 5 watershed. 
Section A 

9 

The TSI is a water quality parameter ranging from 0 to 100 on a log scale, especially developed 

for Florida lakes (Huber et al. 1982). It is also used for estuaries as a measure of the degree of 

eutrophication, or nutrient enrichment of a water body, with water bodies classified as good (0 to 

<50), fair (50 to <60), or poor (60 to 100). Historic TSI calculations use annual averages of 

either total nitrogen and phosphorus concentrations (depending on which is the limiting nutrient 

in the system), or an average of the two values, in addition to chlorophyll a. The calculation also 

included Secchi disk transparency values; the calculation method was revised by FDEP to 

provide consistent TSI values without the inclusion of a transparency value. Here again, low 

values indicate good water quality while high values indicate poor water quality. 

Finally, the SCI is an assessment tool developed by FDEP for determining the biological 

condition of a stream. The SCI is used in monitoring efforts and is an aggregation of seven 

different measures of the macroinvertebrate community structure. Sampling consists of 20 

sweeps of the most productive habitats found in a 100-meter stretch of stream, using a dip net. 

Organisms collected are brought back to the laboratory for identification. A higher diversity of 

taxa of organisms indicates better stream condition health. Although FDEP uses this index, 

SJRWMD scientists have not used this assessment tool in the NCB. 

The most current status and trends of water quality in the NCB is provided in Miller and Sigua 

(2003). This report summarizes data collected between 1997 and 2000 for the TolomatoMatanzas River estuary and the Pellicer Creek watershed and waterways in northern Flagler 

County. It also contains data collected between 1991 and 1999 in the Halifax River estuary and 

its tributaries in Volusia County. 

SJRWMD, as well as Palm Coast Community Service Corporation, Volusia County 

Environmental Management Division, and the GTMNERR, maintain sampling programs in the 

NCB that expand on the sampling conducted by FDEP. Figure 3 shows the SJRWMD and local 

agency water quality monitoring locations in the NCB. 

A.2.2. Hydrology, Hydraulics, and Water Quality 

The hydrologic boundaries of the NCB are the water divides along the boundaries of the 

watersheds that discharge to the NCB estuaries. The watersheds consist of the uplands and 

marshes to the west of the estuary and the marshes and barrier island to the east. Rainfall on the 

uplands collects in tributaries or runs off directly into the marshes and the estuary. 

The NCB is a series of tidal lagoons interconnected by narrow, maintained dredged channels (the 

ICW), with inlet connections to the sea and extensive marsh areas. Circulation and transport of 

suspended and dissolved substances in the estuaries and channels are driven primarily by tides 

and winds. The amplitudes of inlet tides range from 1.8 feet at Pablo Creek to 2.1 feet at St. 

Augustine to 1.5 feet at Ponce de Leon Inlet. Tides from adjacent inlets meet in the areas 

between inlets, causing tidal “null zones” that move back and forth in concert with the inlet tides. 

The tidal amplitude at Ormond Beach, for example, is only 0.2 feet. Flushing in these null zone 

areas 
Northern Coastal Basin Surface Water Improvement and Management Plan 

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Section A 

11 

is reduced, resulting in longer residence times for pollutants. However, models of the system 

developed so far have not been completely calibrated and therefore circulation and flushing have 

not been fully quantified. 

The northern tidal boundary of the NCB, south of Pablo Creek, receives tidal energy from 

Mayport, the inlet at the mouth of the St. Johns River. A water divide between north and south, 

defining the northern boundary of the NCB, crosses the ICW at a location west of Palm Valley. 

Measurements of water levels at Pablo Creek have established tidal characteristics at this 

location, which are used as the northern boundary of the NCB for modeling purposes even 

though it is outside the management boundary of the NCB. The southern boundary of the NCB is 

located at Ponce de Leon Inlet. Tidal characteristics one-half mile south of the inlet, at the U.S. 

Coast Guard station, have been measured for modeling purposes. 

Circulation and water quality in the NCB are driven by ocean water levels, rainfall, wind events, 

boat wakes, runoff, evaporation, groundwater seepage, and inputs of substances from the 

surrounding environment. Eventually, for a useful description of the system to be developed, all 

significant inputs need to be measured simultaneously over a suitably long period of time. 

Current NCB physical monitoring sites are shown in Figure 4. 

A.3. Planning Unit Descriptions 

A detailed description of each planning unit is provided in Sections A.3.1–A.3.3. A map of the 

planning unit accompanies each section. Note that the dimensional scales may vary from map to 

map. 

A.3.1. Tolomato/Matanzas River Planning Unit 

The Tolomato/Matanzas River planning unit — planning unit 9D/C — is located within 

northeast Florida, in portions of Duval, St. Johns, and Flagler counties (Figure 5). Local 

municipalities and residential areas in this unit include Ponte Vedra, Vilano Beach, St. 

Augustine, St. Augustine Beach, St. Augustine Shores, and Crescent Beach. The 

Tolomato/Matanzas River planning unit is composed of the Tolomato, Guana, and Matanzas 

River watersheds and has a contributing drainage area of approximately 127,000 acres, within 37 

basins. 

Within the Tolomato River watershed, major freshwater drainage from the west arrives to the 

Tolomato River through Smith Creek, Sweetwater Creek, Deep Creek, Marshall Creek, Stokes 

Creek, and Casa Cola Creek. Capo Creek, Jones Creek, and Sombrero Creek drain west from the 

Guana peninsula on the barrier island to the Tolomato River. Ximanies Creek, Pancho Creek, 

and Robinson Creek also drain into the Tolomato River. The Guana River converges with the 

Tolomato River, the Matanzas River, and Salt Run from the south before flowing into the 

Atlantic Ocean at the St. Augustine Inlet. Tidal effects are observed throughout this waterway, 

converging between the two inlets to a tidal minimum just north of Palm Valley Bridge. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

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Section A 

13 
Northern Coastal Basin Surface Water Improvement and Management Plan 

14 

Major freshwater drainage to the Matanzas River estuary comes from the San Sebastian River, 

Moultrie Creek, and Moses Creek, as well as inflow from overland urban runoff, and Pellicer 

Creek contributes with flows east to the Matanzas River lagoon. Both the St. Augustine Inlet in 

the north and the Matanzas Inlet, located 14 miles south, tidally influence the estuary. The 

Matanzas Inlet is a natural tidal inlet that, with the exception of the State Road A1A bridge over 

the inlet, has been unaltered and is not actively maintained for navigation. 

Regionally significant habitat areas include the Guana River corridor, including the Guana and 

Tolomato estuaries; the Guana Marsh watershed; the ICW, Fish Swamp, and wetlands, 

flatwoods, and hardwood forest in between. 

A.3.1.1. Historical Uses 

St. Augustine, settled in 1565, is America’s oldest continually occupied city, with more than 400 

years of continuous settlement. The last several decades have seen an increase in coastal 

residential development in Ponte Vedra, Vilano Beach, St. Augustine, and St. Augustine Beach. 

Uplands on the western edge of the Tolomato/Matanzas River planning unit have traditionally 

been used for agriculture and silviculture. 

The waterways within this unit have been altered, beginning with the digging of a series of 

canals connecting the Matanzas and Halifax rivers in 1881. The canal system was eventually 

continued north through the Tolomato River to provide a safe inland channel for small vessels. 

These canals now comprise portions of the ICW. 

Commercial shellfishing for oysters and clams has historically occurred in the northern St. Johns 

County portion of the planning unit (Figure 6). 

A.3.1.2. Current Uses 

The expansion of urban areas into former agricultural and silvicultural lands in the northern and 

western Tolomato/Matanzas River watersheds is occurring at an increasing pace, although the 

watersheds are currently still only moderately developed. Residential and commercial uses are 

clustered predominantly in the Ponte Vedra area, Vilano Beach, and along U.S. 1 and SR A1A 

near St. Augustine. 

According to the 2000 census, St. Johns County is the second-fastest growing county in the state 

of Florida. Much of the new development will increase stormwater discharges into the ICW. 

There are a number of domestic and industrial wastewater facilities with National Pollutant 

Discharge Elimination System (NPDES) permits to discharge to surface waters. Most of the 

facilities are domestic wastewater treatment plants. 
Section A 

15 
Northern Coastal Basin Surface Water Improvement and Management Plan 

16 

A.3.1.3. Conditions Leading to the Need for Restoration and Protection 

Portions of the Tolomato/Matanzas River planning unit are designated as Class II waters, which 

is the standard for commercial and recreational shellfish harvesting. In 1995, extensive shellfish 

harvesting areas were re-classified from “conditionally approved” to “conditionally restricted” 

for shellfish harvesting due to elevated coliform bacteria levels. The net result was a closure of 

virtually all the primary shellfish harvesting areas north of St. Augustine. 

The Tolomato River north of St. Augustine has good but degrading water quality (FDEP 1998). 

The Matanzas River has degraded water quality. 

Urban runoff and other sources of sediment load impact the Tolomato/Matanzas River planning 

unit. The system as a whole has high average total suspended solids and somewhat elevated 

turbidity. This likely reflects both natural and man-made tributary loading and/or scouring and 

resuspension due to strong tidal current velocities, wind-generated waves, and boat wakes. 

Overall development in the planning unit and the corresponding increase in human-related 

activities may be the causes of increased fecal coliform bacteria levels and other water quality 

parameters in the receiving waters. An increased density of septic systems associated with 

continued development may also have an impact on water quality. 

A.3.2. Pellicer Creek Planning Unit 

The Pellicer Creek planning unit — planning unit 9B — is located south of St. Augustine and 

includes southern St. Johns County and northern Flagler County (Figure 7). Pellicer Creek, 

which forms the boundary between St. Johns and Flagler counties, is the only natural watershed 

drainage feature in this planning unit. It cuts through the marine terraces and ridges as it flows 

east into the Matanzas River. Local municipalities and residential areas in this unit include the 

towns of Marineland and Beverly Beach, the city of Palm Coast, and the northern portions of 

Flagler Beach. The Pellicer Creek planning unit has a contributing drainage area of 

approximately 102,000 acres, within 13 basins. Connection to the Halifax River to the south and 

to the Matanzas River estuary to the north is through the ICW. 

Major freshwater drainage to the Pellicer Creek planning unit comes from Pellicer Creek, inflow 

from overland urban runoff, and drainage from the network of man-made stormwater drainage 

canals in the Palm Coast area. The natural streams and creeks include Long Creek, Hulett 

Branch, Mulberry Branch, Hominy Branch, Black Branch, and the Iroquois Waterway. The manmade drainage canals include the Lehigh Canal, Ditch 10, and the St. Joe Canal. 

Pellicer Creek is designated by the state of Florida as an Outstanding Florida Water (OFW). At a 

program level, an OFW designation is applied to waters that are deemed worthy of a special 

protection because of their natural attributes. While nearly 90% of OFWs are within state or 

federally managed areas such as parks, national seashores, national wildlife refuges, marine 
Section A 

17 
Northern Coastal Basin Surface Water Improvement and Management Plan 

18 

sanctuaries, wild and scenic rivers, or aquatic preserves, water not under state or federal 

management may also be designated as an OFW. These are called “Special Water” OFWs. 

For a water to be designated as a Special Water OFW, the Environmental Regulation 

Commission (ERC) must make two “findings.” The ERC must find “that the waters are of 

exceptional recreational or ecological significance and that the environmental, social, and 

economic benefits of the designation outweigh the environmental, social, and economic costs” 

(Section 62-302.700(5), Florida Administrative Code [F.A.C.]). The ERC concurred that Pellicer 

Creek met the findings necessary for a Special Water OFW designation, which then became 

effective June 18, 1992. 

Other regionally significant habitat areas in this planning unit include the Graham Swamp 

corridor: Matanzas River estuary marshes, wetlands, flatwoods, and hardwood forest west of the 

Matanzas River; Hulett Branch and Swamp; and silviculture and wetlands west of U.S. 1, 

including the Pringle Branch and Swamp. 

A.3.2.1. Historical Uses 

The Pellicer Creek unit consists of vast wetlands, many miles of which were drained for pine 

plantations and real estate development and to reduce mosquito breeding sites. Pellicer Creek 

itself is maintained as a preserve and has been left largely undisturbed. 

Commercial shellfishing for oysters and clams has historically occurred in the southern St. Johns 

County portion of this planning unit (see Figure 6). 

A.3.2.2. Current Uses 

Commercial and residential uses currently take up only about 7% of the Pellicer Unit, with Palm 

Coast being the major residential development. Based on current growth and the future land use 

plan for Pellicer Creek, residential areas could potentially increase to 22% of the total area by the 

year 2020. Most of the western portions of the unit remain under silvicultural use. 

A.3.2.3. Conditions Leading to the Need for Restoration and Protection 

Pellicer Creek is a 303(d) listed water body with a variety of water quality constituents 

exceeding limits, including lead, nutrients, coliform bacteria, dissolved oxygen, and iron. Recent 

analyses by SJRWMD showed high coliform counts, well above both the Class II shellfish 

harvesting criteria and the Class III marine recreational criteria. The source of these bacteria is 

not yet clear (Miller and Sigua 2003). 

The man-made canals of Palm Coast are also collectively identified as a potential 303(d) 

impaired water body. The water quality parameters of concern at Palm Coast are cadmium, lead, 

selenium, nutrients, coliforms, dissolved oxygen, silver, and thallium. 
Section A 

19 

High densities of onsite sewage treatment and disposal systems (OSTDS) along the barrier island 

in north Flagler County may contribute bacteria and nutrient input to the water of the Pellicer 

Creek planning unit. 

Shoreline erosion is a significant concern in the narrow, channelized (ICW) portion of the 

southern Pellicer Creek unit. Wave energy due to boat traffic causes continuous resuspension of 

sediments and resulting increases in total suspended solids. 

A.3.3. Halifax River Planning Unit 

The Halifax River planning unit — planning unit 9A — includes portions of Flagler and Volusia 

counties along the northeast Florida coast (Figure 8). Local municipalities and residential areas 

in this unit include southern portions of Flagler Beach, Holly Hill, Ormond Beach, Port Orange, 

Daytona Beach, South Daytona, and Ponce Inlet. The Halifax River drainage basin encompasses 

an area of nearly 208,000 acres, within 33 basins. 

Major drainage into the estuary comes from Bulow Creek, the Tomoka River, Spruce Creek, and 

their natural tributaries. Rose Bay, which is a large embayment partially isolated from the main 

part of the Halifax River by an abandoned causeway and the present U.S. 1 causeway, also 

contributes drainage to the Halifax River. Tidal flow primarily originates through the Ponce de 

Leon Inlet to the south. There is also tidal exchange of water through the ICW to the north, 

connecting with the Matanzas Inlet through the Matanzas River. 

Important habitat areas include the Spruce Creek and Tomoka River/Bulow Creek corridors, 

including the estuarine marshes around Ponce Inlet; Tiger Bay, and Bennett Swamp; silviculture, 

wetlands, and flatwoods west of Interstate 95; and wetlands, flatwoods, and hardwood forest 

north of the Tomoka and Halifax rivers. 

Both the Tomoka River and Spruce Creek basins are listed as OFWs and fall under morestringent SJRWMD surface water and environmental resource permitting rules. The rules were 

promulgated in 1998. 

A.3.3.1. Historical Uses 

Mosquito impoundments, residential development, or silviculture has altered a majority of the 

estuary’s historic watershed drainage. A 1,100-acre mosquito impoundment is still located west 

of the ICW and north of the Tomoka River Basin, though the dike wall has been breached in 

several places and active management of the impoundment ended in the early 1980s. 

A.3.3.2. Current Uses 

Ormond Beach, Holly Hill, Daytona Beach, and Bethune Point are all relatively densely 

populated residential areas. All of these municipalities discharge treated wastewater effluent into 
Northern Coastal Basin Surface Water Improvement and Management Plan 

20 
Section A 

21 

the Halifax River; however, discharge volumes have been, and continue to be, reduced due to 

local water conservation and wastewater effluent reuse and diversion programs. 

A.3.3.3. Conditions Leading to the Need for Restoration and Protection 

The Halifax River unit has several 303(d) listed water bodies. These include the Halifax River 

for nutrients, coliform bacteria, copper, lead, and iron; Rose Bay for nutrients, coliform bacteria, 

and dissolved oxygen; the Tomoka River for nutrients and iron; the B-19 Canal network for 

nutrients and dissolved oxygen; and Spruce Creek, with a variety of constituents exceeding 

limits, including lead, nutrients, coliform bacteria, dissolved oxygen, and iron. 

SJRWMD sampling found varying degrees of coliform bacteria concentration at Halifax River 

sites, generally well within Class III standards, whereas samples from sites within the tributaries 

often failed to meet Class III standards. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

22 
Section B 

23 

SECTION B 

LAND USES AND REGULATED ACTIVITIES 

WITHIN THE NORTHERN COASTAL BASIN 

B.1. Land Use and Land Cover 

Current 

Based on 1995 land use data, the predominant land uses in the NCB are silviculture and 

agriculture, comprising 41% of the basin. Wetlands and wetland forests comprise 29% of the 

basin. Urban and suburban land uses have become more predominant, with continued expansion 

along both the ICW and coastal areas at 23% of the land area. Table 3 shows the percentages of 

land use and land cover, based on 1995 land use data. Detailed geographic information system 

(GIS) overlay maps of land cover, wetland vegetation cover, future land uses in the 100-year 

floodplain, and others are found in the NCB Reconnaissance Report (Bonnie Holub & 

Associates, Inc. 1998). 

Future 

Urban development is expected to continue expanding westward from the coast. Sizeable areas 

designated for silviculture, agriculture, and conservation remain in each of the three counties in 

the basin but may be subject to development pressure. Currently, nearly 29% of the NCB is 

wetlands. Under the future land use plans for the overall NCB, only 18% of the wetlands would 

be preserved in conservation or recreation/open space. 

Table 3. Major categories of land use and land cover in the Northern 

Coastal Basin 

Land Use/Land Cover 1995 Estimates 

Category Acreage Percentage 

Urban and suburban 90,760 20.8 

Public facilities/industrial 9,130 2.1 

Agriculture 8,710 2.0 

Barren land 2,380 0.5 

Rangeland 18,240 4.2 

Upland forest 151,410 34.8 

Wetland forest 82,560 19.0 

Other wetlands 42,560 9.8 

Open water 29,830 6.8 

 Total 435,580 100 
Northern Coastal Basin Surface Water Improvement and Management Plan 

24 

B.2. Point Sources of Pollution 

Prior to 1983, the major point sources of pollution in the NCB were from sewage treatment 

plants. Currently, point-source dischargers include domestic and industrial wastewater facilities 

that are regulated through the NPDES program described in Section B.5. 

B.3. Nonpoint Sources of Pollution 

Nonpoint sources of pollution in the basin, which can degrade ground as well as surface water 

quality, include stormwater runoff or leaching of pollutants into groundwater from agriculture, 

silviculture, and urban/suburban land uses; atmospheric deposition; sediment loading and 

turbidity from shoreline erosion; and septic tanks. Septic tanks (OSTDS) are prevalent in some 

areas of the basin and have been identified as a potential source of nutrients (nitrogen and 

phosphorus), pathogens, and other pollutants that can pose a threat to public health. Surface 

waters can be adversely affected directly by system drainfields washed away by floodwaters or 

via runoff from areas where system failures result in ponding of untreated or inadequately treated 

wastewater on the ground. Surface waters can be adversely affected indirectly through seepage 

of groundwater contaminated by system discharges. 

There are known septic tank problems in the Ponte Vedra area, on Anastasia Island, on the 

barrier island east of Palm Coast. Areas in the Halifax River watershed that have been identified 

by the Volusia County Health Department as having potential septic tank problems include the 

barrier island Ormond by the Sea, neighborhoods around Ormond Beach along the Tomoka 

River, Port Orange, Rose Bay, and along Spruce Creek. OSTDS failure rates in Flagler, St. 

Johns, and Volusia counties exceed state failure rates (SJRWMD 2000). 

B.4. Permitted Discharge Facilities 

There are a number of domestic and industrial wastewater facilities in the NCB with NPDES 

permits to discharge to surface waters. The volume of discharges to surface waters from these 

facilities compared to their permitted capacities varies, with some facilities discharging to 

surface water only during wet weather conditions and others discharging to surface waters 

exclusively (SJRWMD 2000). 

B.5. Surface Water Discharge Facilities Operating With a Permit 

The Clean Water Act requires wastewater dischargers to have a permit establishing pollution 

limits and specifying monitoring and reporting requirements. Appendix II lists surface water 

discharge facilities currently operating with a permit. There are 20 domestic and eight industrial 

wastewater facilities within the NCB that are permitted through the NPDES program that 

discharge into the surface waters of the state. The industrial discharges consist of five concrete 

batch plants, two unspecified industrial wastewater producers, and one petroleum cleanup 

discharge. 
Section B 

25 

The NPDES program for wastewater discharges has been in existence at EPA since the 1970s 

and was delegated to Florida in 1995. Phase I of the NPDES stormwater permitting program 

began at EPA in 1990 and was delegated to the state of Florida in October 2000. The 

pretreatment program governs industrial wastewater discharges to municipal wastewater plants. 

Industrial facilities may also qualify for NPDES permits for discharge to surface waters. 

B.6. Surface Water Discharge Facilities Operating Without a Permit 

According to information provided by FDEP, no point-source surface water discharge facilities 

in the NCB are currently operating without a permit. 

B.7. Multi-sector General Permit Facilities 

Industrial facilities not covered by an NPDES permit are currently covered under the federal 

multi-sector general permit (MSGP) for stormwater discharge associated with industrial activity. 

The MSGP divides the regulated industrial activities into 30 sectors of related activity and 

specifies both general and sector-specific requirements for each. The permit, developed by EPA 

and then adopted and renamed by FDEP in October 2000, consists of the original 1995 issuance 

and the subsequent modifications and corrections. There are currently 72 MSGP permittees in 

the NCB (Appendix III). 

B.8. Municipal Separate Storm Sewer Systems 

The NPDES stormwater program regulates point-source discharges of storm water from certain 

municipal and industrial sources, including certain construction activities. Designated large and 

medium municipal separate storm sewer systems, or MS4s, are a publicly owned conveyance or 

system of conveyances (e.g., ditches, curbs, catch basins, underground pipes) that are designed 

for the discharge of storm water to surface waters of the state. An MS4 can drain, and be 

operated by, municipalities, counties, drainage districts, colleges, military bases, or prisons, to 

name a few examples. These facilities were previously required by EPA to obtain NPDES 

permits. In the state of Florida, Phase II permitting must be completed in 2003 and the permitted 

program should be implemented by 2008. According to FDEP (Fred Noble, pers. comm.), there 

are currently no municipalities within the NCB that are listed as Phase II permitting candidates. 

B.9. Compliance Schedules and Recommendations for Point and Nonpoint 

Sources of Pollution Adversely Affecting the Public Interest 

FDEP takes short-term enforcement actions against facilities when necessary and reports these 

actions on a monthly basis to EPA. Currently, none of the facilities within the NCB is under any 

ongoing enforcement action for which a compliance schedule has been established. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

26 
Section C 

27 

SECTION C 

GOALS, INITIATIVES, AND STRATEGIES FOR 

RESTORATION OR PROTECTION 

The Water Resource Implementation Rule (Chapter 62-40, F.A.C.) calls for SJRWMD to play a 

major role in the development of watershed-specific water quality targets and PLRGs. 

Specifically, Section 62-40.432, F.A.C. (Surface Water Protection and Management), states: 

(2) Watershed management goals shall be developed by the District for all 

watersheds within the boundaries of each District and shall be consistent with the 

Surface Water Improvement and Management (SWIM) program and the EPA 

National Pollutant Discharge Elimination System (NPDES) program. Watershed 

management goals shall be included in the District Water Management Plans. 

And further: 

1. Each District shall develop water body specific pollutant load reduction goals 

for non-SWIM water bodies on a priority basis according to a schedule 

provided in the District Water Management Plan. 

2. The list of water bodies and the schedule shall be developed by each District, 

giving priority consideration to water bodies that receive discharges from 

stormwater management systems that are required to obtain a NPDES 

municipal stormwater discharge permit. 

3. The Districts shall consider economic, environmental, and technical factors 

in implementing programs to achieve pollutant load reduction goals. These 

goals shall be considered in local comprehensive plans submitted or updated 

in accordance with Section 403.0891(3)(a), F.S. 

Specific Authority 373.026, 373.043, 373.418, 403.061, 403.087, F.S. 

Surface water management goals of SJRWMD that apply to the NCB SWIM Plan include the 

following: 

• To preserve natural and functional components of the ecosystem while restoring, where 

feasible, those conditions and components of the degraded portions of the system 

• To preserve or restore the quantity and quality of water necessary to support thriving 

biological communities containing appropriate diversities of native species within the 

estuarine systems of the NCB 

• To pursue the development and implementation of stormwater management plans for each of 

the tributaries within the NCB (SJRWMD 2000) 

The mission of the NCB SWIM Plan is thus to preserve and protect the estuarine ecosystems in 

the NCB consistent with the goals of SJRWMD. The mission will be accomplished through the 
Northern Coastal Basin Surface Water Improvement and Management Plan 

28 

use of a prioritized, objective, sustainable ecosystem or watershed approach with periodic public 

review and input. Through prioritization, projects will be chosen which are most in need of 

protection and/or restoration. Sustainable restoration and enhancement techniques alone or in 

combination will minimize the public’s financial and material liability toward the management 

and operation of these systems. An ecosystem-watershed approach will take into consideration 

the cause and effect of the problem within its land-based context and establish successful 

applications for enhancement or restoration. 

The NCB SWIM Plan is organized around a project delivery system of goals, initiatives, 

strategies, and action steps. In this system, goals are broad-based and identify objectives of 

SJRWMD. Initiatives are general categories that have been used to divide the plan into distinct 

subject areas developed by SJRWMD staff in conjunction with the NCB Advisory Group. 

Strategies are more-detailed descriptions of the underlying work proposed to achieve results. 

They identify the approaches and methods that will be used to implement the initiatives. Action 

steps represent specific activities under each strategy suggested to reach project delivery. Each 

action step includes a schedule for completion and an estimate of the funding requirements 

needed to accomplish the action step. These action steps, as well as the strategies and initiatives 

referenced above, are not mutually exclusive and may be undertaken concurrently and/or 

sequentially. 

The consensus of the NCB SWIM Plan team is that the plan should focus on the following five 

primary initiatives: 

Initiative 1 — Water Quality 

This initiative consists of three distinct but interrelated strategies: water quality and 

flow monitoring; hydrodynamics and water quality modeling; and a prioritization 

process based on water quality enhancement opportunities for improving both 

303(d) listed surface waters and degraded waters identified by SJRWMD so that 

they will meet and maintain their designated classification (e.g., OFW; Class II, 

Class III water quality standards). 

Initiative 2 — Watershed Master Planning 

Watershed master planning is an evaluation of stormwater management in the 

geographic area and identification of problem areas, with detailed remedial actions 

derived using hydrologic models simulating water volumes and flows under a range 

of climatic conditions. For SJRWMD, implementation often includes assisting local 

governments in coordinating their plan implementation through buying the land and 

providing funds for constructing the project. (Details of the land acquisition 

program are described separately in Section D.) 

Initiative 3 — Stormwater Retrofit and Master Plan Implementation 

This initiative consists of development and implementation of a prioritized 

stormwater retrofit program focusing on areas built prior to 1983; support for the 

development of local government land acquisition programs for buying land to site 
Section C 

29 

facility construction; and evaluation of available federal and state funding sources 

and other partnering opportunities. 

Initiative 4 — Compliance and Rules Enforcement 

This initiative consists of strategies to collect and evaluate compliance information 

from existing permitted stormwater quality treatment systems. Information gained 

from a compliance monitoring program to evaluate proper system operation can be 

compared with water quality monitoring results to specify where in-place treatment 

devices are providing the necessary pollutant reductions and where additional 

treatment is needed to maintain the water resource. 

Initiative 5 — Resource Assessment, Protection, and Restoration 

This initiative consists of strategies to evaluate existing data on NCB habitats and 

implement additional data collection efforts, if necessary, to identify and provide 

habitat protection and restoration in the NCB. 

In its mandate to address broad ecosystem needs, the NCB SWIM Plan attempts to accomplish 

comprehensive protection strategies in the less-developed portions of the NCB and to accomplish 

sustainable restoration strategies for resources or resource areas that are proven to be degraded. 

The intent is to also provide cooperative funding for projects addressing long-term water body 

protection and restoration. 

C.1. Water Quality Initiative 

C.1.1. Strategy: Examine the existing water quality monitoring network and, if necessary, 

design and implement a more integrated network 

The purpose of this strategy is to examine the existing water quality monitoring program within 

the NCB and determine whether gaps in data collection and synthesis exist. The aim is to ensure 

the provision of useful information for assessing water quality relative to state water quality 

standards and shellfish consumer health standards, developing water quality objectives, 

documenting resource problems and problem areas such as bacterial contamination in shellfish 

harvesting areas, and verifying remedial actions. 

The existing water quality monitoring program consists of two tiers, ambient monitoring and 

event-specific monitoring. The purpose of the ambient monitoring is to generally characterize 

water quality in the NCB and identify water quality problems and trends. The event-specific 

monitoring, in conjunction with the ambient monitoring, is aimed at pollution source 

identification and the development of PLRGs and, if necessary, other resource-based water 

quality targets. 

Implementation of this strategy will include the participation of and input from a variety of 

stakeholders and agencies that have water quality responsibilities in the basin. In particular, both 

the Jacksonville and the Orlando FDEP district offices will be providing input to this process as 
Northern Coastal Basin Surface Water Improvement and Management Plan 

30 

they complete monitoring associated with Phase II of the watershed cycle during calendar year 

2005. 

C.1.1.1. Action Steps 

1. Assemble and evaluate existing water quality data pertaining to the NCB, including shellfish 

harvesting areas. Query federal, state, and local agencies for all available data. 

a. Using the data, determine water quality trends in the NCB and document trends to 

provide a quantitative basis for recommendations on continuation or termination of 

specific monitoring stations. Recommendations should be based on the health of each 

specific area, the directions of trends in specific parameters, and the likelihood that water 

quality can be improved. 

b. Review current water quality collection efforts by these agencies. 

2. Based on the analysis and synthesis of existing data and current sampling programs by the 

queried agencies, establish a long-term collaborative water quality monitoring effort. The 

program will be capable of providing the data needed to support analyses of spatial and 

temporal trends, calibration of water quality models, and characterization of potential or 

current water quality problems. Care will be taken to ensure that water quality sampling will 

not be duplicative of existing efforts by other agencies and that the monitoring program will 

be compatible with existing sampling networks of other agencies. 

Special consideration will be given to the collection of event-specific monitoring data, as 

necessary to calibrate water quality models. Specific bacteria event sampling will be 

considered in shellfish harvesting areas since the highest concentrations of bacteria occur in 

association with high runoff and stream flows caused by rainfall. Also as part of cooperative 

sampling efforts, consideration will be given to common field and laboratory analytical 

methods, split sampling, etc., so that there is a high degree of confidence in the combined 

dataset. Information that is collected will be entered into the STORET database in a timely 

manner to allow access by other agencies and programs. 

Part of the planning for the monitoring network will be the identification of water quality 

targets needed to meet project goals. This will include a clear statement of the monitoring 

network objectives (the multiple uses of the data), the costs for establishing and operating the 

network, and a methodology for justifying and scheduling periodic modifications to 

procedures (e.g., station locations and termination of activities). 

3. Once the monitoring plan is finalized and coordinated with other agencies, implement water 

quality sampling according to the plan design. Coordinate sampling among responsible 

agencies, as appropriate. Coordinate resources and include a volunteer component, where 

applicable. 
Section C 

31 

The data derived from the water quality monitoring network will be used to monitor trends in 

water quality and to develop statistical or mechanistic models used to assess pollutant levels 

and sources and the effectiveness of remediation strategies. These data and models will also 

be useful in helping to determine PLRGs. In particular, a plan with goals and PLRGs for 

improving water quality in shellfish harvesting areas will be developed. 

4. Assemble and assess existing data on tributaries, determine further data needs, and develop a 

monitoring plan to determine tributary loadings. Prioritize the tributaries and establish a 

monitoring schedule, coordinating with management initiatives to maximize data value and 

usefulness for trend analyses and water quality modeling purposes. 

C.1.2. Strategy: Develop and assess water quality and habitat protection targets using 

hydrologic and hydrodynamic water quality models and/or water quality and biological 

indices, where appropriate 

The purpose of this strategy is to develop a basinwide set of water quality and habitat protection 

targets that utilize land use, water quality, water quantity, and other data to estimate, quantify, 

and compare sources of pollution in the basin and their impact on the estuary. 

Used together, these models and other indices will be capable of characterizing pollution 

nonpoint loads from the tributary basins discharging to the NCB and their transport and fate in 

the estuarine system. The magnitudes of point-source discharges from tributary pollution sources 

will also be estimated. Output from these analyses will assist in describing interrelationships 

between physical, chemical, and biological processes in the estuary; determining the nutrient and 

pollutant assimilative capacity of the estuary; prioritizing areas for water quality remediation; 

verifying impairments of waters; testing PLRGs; and predicting the effects of various 

management and conservation protection strategies. 

Model development should be carefully scheduled with long-term and short-term data collection 

so that all of the necessary data are available when needed for the models. In addition, basic 

models (rainfall/runoff and hydrodynamics) need to be completed before advanced models 

(water quality). This NCB SWIM Plan envisions at least 8 years of closely coordinated work to 

complete the development of water quality (e.g., eutrophication and bacteria) models for use in 

analyzing cause-and-effect relationships on watersheds and in the estuary. 

C.1.2.1. Action Steps 

1. Review the objectives of proposed modeling and the applicability of existing and proposed 

support data and prepare a planning document for chartering under the SJRWMD Project 

Delivery Initiative. This document and the chartering effort should clarify the purpose of 

various modeling components (watershed and hydrodynamic; physical, chemical, and 

biological), the deliverables, time schedules, and budgets. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

32 

2. Next, select the most appropriate modeling package and environmental indicators. Include a 

review of the hydrologic, hydrodynamic, and water quality models partially completed in 

2002 and 2003. The acquisition and/or review of other water quality/quantity modeling 

efforts and water quality and biological indicators may be included. 

3. Once the appropriate models and tools have been selected for SJRWMD application, identify 

data that are not currently available and develop a plan for the acquisition of the data, 

including the associated costs. This further data collection and monitoring will be in addition 

to current ongoing monitoring activities. 

4. Following acquisition of a suitable database, calibrate and validate the models and tools. 

Once confidence has been established, review output results and use the results to describe 

the operating characteristics of the water body, such as changes in water levels and flows, 

salinity, local flushing, nitrogen and phosphorus cycles, algal bloom development and dieoff, the effects of null zones on flushing, wave-induced erosion (boat wakes), bacteria 

distribution in shellfish harvesting areas, and other features necessary to understand problems 

and alternative solutions. 

5. Finally, use models and tools to run various scenarios. Review output results and quantify 

both point and nonpoint pollution sources (e.g., wastewater effluent, septic leachate) and 

effects in particular areas of the NCB, such as shellfish harvesting areas. Update the 

management plan with recommendations for specific actions to solve problems and meet 

basin goals. Identify areas of good-to-excellent water quality and recommend for 

conservation purposes, as appropriate. 

C.1.3. Strategy: Enhance and maintain surface waters 

Many areas in the NCB require protection and/or enhancement. These include water bodies 

designated as impaired by FDEP, Class II shellfish waters, and Outstanding Florida Waters. 

Some are recognized for possible TMDL allocations. Still others are identified to be in decline 

based on SJRWMD or FDEP water quality data but are not yet “listed” by FDEP. Those water 

bodies will qualify for special consideration and evaluation. Where appropriate, enhancements 

will be encouraged and projects will be proposed to avoid the necessity of the TMDL process. 

As a result of the modeling process and subsequent evaluations (described in Section C.1.2), 

pollution sources will be reviewed and prioritized from a basinwide perspective to identify areas 

for remediation or restoration to improve water quality. PLRGs will be estimated for highest 

priority basins according to a schedule developed along with the modeling, with emphasis on 

stormwater management and shellfish harvesting areas. 

Maintenance of the many drainage canals and tributaries in the NCB is generally focused more 

on flood protection than on water quality. As a result, the continual erosion of the sidebanks of 

these canals is a likely source of turbidity and suspended solids delivered to the major surface 

waters of the basin. Following best management practices (BMPs) and carefully regulated 
Section C 

33 

maintenance schedules and procedures is a cost-effective way for municipalities to reduce 

sediment scour and transport and to minimize water quality impacts to receiving water bodies. 

C.1.3.1. Action Steps 

1. Develop criteria for assigning relative priorities to surface water bodies. 

2. Use a decision-making, matrix approach to assign priorities to surface water bodies.

3. Develop adaptive management projects, using the most current methods to create 

interventions, enhancements, and restoration projects. 

4. Coordinate with appropriate agencies to investigate Class II designated waters and problems 

with septic tank leachate, sewage treatment effluent, fertilizer reduction, and other nonpoint 

pollution sources associated with urbanization. 

5. Coordinate with appropriate agencies to develop and implement BMPs for water bodies 

identified to be in steady decline. 

6. Facilitate development of a BMP manual or guidelines for regional drainage network 

maintenance programs. Focus drainage network maintenance documents on resolving 

downstream impacts to water quality and reducing sediment loading. 

7. Encourage the maintenance of drainage conveyances consistent with BMPs that maximize 

water quality benefits to receiving waters. This can be accomplished through technical 

assistance and cost-sharing with appropriate entities. 

C.2. Watershed Master Planning Initiative 

C.2.1. Strategy: Evaluate and refine existing watershed master plans 

This strategy is essentially the evaluation of stormwater management of local watershed master 

planning initiatives. Stormwater master planning is primarily a local government responsibility, 

yet many local governments have neither the manpower nor the funding mechanisms available to 

adequately update, develop, or implement the water quality aspects of these master plans. By 

assuming a watershed approach to master planning, a more comprehensive hydrological rather 

than political boundary assessment can be accomplished. This work falls within the regional 

purview of SJRWMD. It is thus appropriate for SJRWMD to provide for independent reviews of 

existing plans and identify areas for improvement. 

C.2.1.1. Action Steps 

1. Examine coverage of stormwater plans. Prepare a comprehensive listing of completed and 

pending watershed master plans, along with the status of completion or implementation of 
Northern Coastal Basin Surface Water Improvement and Management Plan 

34 

each study. Identify capital improvement plans and existing stormwater network maintenance 

programs. 

2. Evaluate and refine existing stormwater plans for flood abatement, water quality 

improvement, and regional adequacy. 

3. Develop a standardized master plan outline as an aid for local government use in subsequent 

planning efforts. 

C.2.2. Strategy: Assist in the development and endorsement of local master stormwater 

plans and implementation schedules 

Local plans will serve as the implementation schedule for retrofit and maintenance initiatives. 

SJRWMD models may be used to assess and predict the effects of proposed management 

strategies. 

C.2.2.1. Action Step 

1. Assist local governments in the development of master plans that will address water quality 

improvements. This assistance may include activities such as facilitation, planning, costsharing, and technical design or review. 

C.3. Stormwater Retrofit and Master Plan Implementation Initiative 

C.3.1. Strategy: Prioritize stormwater retrofit programs 

The purpose of this strategy is to design and implement a Northern Coastal Basin-wide 

stormwater retrofit plan focusing on pre-1983 development, prior to stormwater regulations. 

Evaluation of existing stormwater coverages and management plans will be used to establish 

clear targets for stormwater treatment in developed watersheds. A ranking matrix based on these 

targets will be utilized to prioritize the areas for retrofitting. The variables in the matrix will 

include, but not be limited to, existing nutrient loading; expected retrofit system removal 

efficiency; design, construction, and operation and maintenance costs; and receiving water body 

priority ranking (such as PLRGs, shellfish harvesting areas, and TMDLs/303d list). Due to the 

fast-paced development occurring within most of the NCB area, a supporting land acquisition 

program and assessment of available federal and state funding sources will be developed. 

C.3.1.1. Action Steps 

1. Develop a ranking matrix to assist in prioritizing areas for optimal retrofit potential using 

existing maps of developed watershed areas that receive some level of stormwater treatment. 

2. Coordinate with local government land acquisition plans for stormwater retrofit opportunities 

that encourage recharge and reuse of stormwater runoff, where appropriate. 
Section C 

35 

3. Assist local governments seeking federal and state funding for land acquisition, design, and 

construction of regional stormwater retrofit projects. 

4. Where feasible, encourage and cost-share with local governments to proactively install 

alternative stormwater treatment mechanisms, especially where land availability is limited. 

Give priority to local governments that consider broad-based, rather than individual, retrofit 

opportunities. 

C.3.2. Strategy: Partner with local governments to implement stormwater plans 

The purpose of this strategy is to provide assistance and incentives to local governments 

to implement stormwater plans through such means as cost-share funding, technical 

assistance, legislative initiatives, mapping, and other services provided directly by or 

contracted through SJRWMD. 

C.3.2.1. Action Steps 

1. Establish and coordinate an interagency NCB Stormwater Management Group. 

2. Provide assistance to local governments based on a prioritized schedule developed by the 

NCB Stormwater Management Group. 

C.4. Compliance and Rules Enforcement Initiative 

C.4.1. Strategy: Implement existing compliance monitoring programs 

The purpose of this strategy is to collect compliance monitoring information for permitted 

stormwater management systems with regard to flood protection and water quality controls to 

ensure they are operating properly. The effectiveness of the regulatory programs is measured, in 

part, through a compliance monitoring program. Compliance monitoring to verify the proper 

construction of new systems and the appropriate maintenance of established systems is necessary 

to ensure that the systems are constructed and maintained to allow for their proper function. 

Enforcement action may be necessary to require responsible parties to bring noncompliant 

systems into conformance. 

C.4.1.1. Action Steps 

1. Assess existing permitted nonpoint sources of water pollution (e.g., stormwater ponds) and 

provide compliance or additional treatment alternatives to reduce the impact from these 

sources, where warranted. Give priority to stormwater treatment systems in OFWs. 

2. In order to develop a streamlined system and prioritize the activities in compliance and 

enforcement for permitted stormwater management systems, establish a protocol based upon 
Northern Coastal Basin Surface Water Improvement and Management Plan 

36 

system size and type, watershed land use and density, and proximity and degree of 

impairment of the receiving surface water. Implement programs using information from all 

available sources, monitor the programs, and adjust the programs to develop an efficient 

system for compliance monitoring. 

C.4.2. Strategy: Assess and manage resources and funding to support the requirements of 

current and emerging NPDES regulations, PLRGs, and TMDL regulations 

The NCB Impaired Water Bodies candidates have been identified, per the FDEP 303(d) list, 

which must be verified before proceeding with the development of TMDLs. Chapter 99-223, 

Laws of Florida (the Florida Watershed Restoration Act), provides FDEP with the authority to 

develop and implement TMDLs. The process (methodology) for determining impairments is set 

out in Chapter 62-303, F.A.C. (Identification of Impaired Surface Waters). 

Water management districts are responsible for nonagricultural storm water (unless FDEP 

maintains that responsibility), and the Department of Agriculture and Consumer Affairs is 

responsible for working with farm interests and managing agricultural stormwater runoff. Of 

particular importance in the watershed management plan will be the focus on innovative and 

incentive-based voluntary approaches to address nonpoint sources. 

The identification of management activities being implemented or scheduled that would address 

the parameters of concern is part of the process in the FDEP Integrated Water Resource 

Management Program. If there is reasonable assurance that water quality standards would be 

attained following implementation of the management activities, the water is not placed on the 

verified list. 

FDEP uses the Watershed Management Program, an iterative five-phase cycle, to develop and 

implement TMDLs. The 5-year cycle provides the structure for focusing resources on specific 

basins, verifying impaired waters, conducting targeted monitoring that will provide the data 

needed for model calibration and verification, and developing TMDLs for impaired waters. 

Basin management plans are a critical product of the Watershed Management Program because 

they provide the roadmap for implementation of the TMDLs and will serve as the basin-specific, 

consensus-driven implementation plan. 

C.4.2.1. Action Steps 

1. Investigate the need for a re-evaluation of SJRWMD rules to increase the protection of 

watersheds potentially targeted for drinking water supply, areas surrounding receiving waters 

that are designated as impaired waters, and high recharge areas. 

Water resource restoration efforts, including development and implementation of BMPs, 

retrofitting, habitat protection and restoration activities, environmental infrastructure 

improvements, and issuance of permits, provide increased protection. Specific rule revisions 

may not be required. However, more-stringent criteria reflective of waters not meeting 
Section C 

37 

specific standards may be necessary. SJRWMD may recommend appropriate BMPs for 

agriculture and storm water. 

2. Coordinate with FDEP to define the role of each agency in the TMDL, Watershed 

Management Program process. Details of this coordination effort are discussed in Section F 

of this document. 

C.5. Resource Assessment, Protection, and Restoration Initiative 

C.5.1. Strategy: Complete habitat mapping and resource assessment 

To protect and preserve unique or significant habitats and resources, it is essential to first 

inventory both natural and disturbed habitats in the watershed. Once a baseline assessment has 

been made, impacts to the system will be quantified and specific biological targets will be set. 

C.5.1.1. Action Steps 

1. Establish a habitat mapping and classification program for the NCB which includes 

shorelines, marshes, intertidal and submerged/benthic areas, and disturbed habitats. 

Coordinate this step with the GTMNERR and other management agencies, using analytical 

methods and innovative technologies, including remote sensing, to assess conditions of these 

habitats. 

2. Evaluate sediment deposition and quality and implement sediment management plans, as 

required. Place particular emphasis on shellfish harvesting areas since sediment resuspension and sediment transport can smother shellfish beds. 

3. Describe and assess floral and faunal species of concern, including fisheries resources. The 

aim is to link the locations of species of concern to habitat maps and water quality patterns. 

4. Establish functional habitat and biological targets for estuarine ecosystems. 

C.5.2. Strategy: Protect and manage important estuarine habitats 

The purpose of this strategy is to protect important estuarine habitats within the NCB. 

Coordinated and sustained acquisition efforts are the key to protecting these sensitive 

watersheds. 

C.5.2.1. Action Steps 

1. Identify land protection and acquisition needs.

2. Coordinate and support land acquisition initiatives both within SJRWMD and in 

collaboration with outside agencies.
Northern Coastal Basin Surface Water Improvement and Management Plan 

38 

3. Support the coordination of land management initiatives with appropriate land managers, 

agencies, or stakeholders. 

C.5.3. Strategy: Provide habitat enhancement and restoration 

Coastal estuarine habitats have been impacted through such anthropogenic activities as dredge 

and fill for development; dredging of boat basins, inlets, and navigation channels; mosquito 

control; and recreational boating activities. The purpose of this strategy is to enhance or restore 

the function of the degraded areas through selective habitat enhancement programs and projects. 

C.5.3.1. Action Steps 

1. In coordination with the GTMNERR and other management agencies, support efforts to 

develop effective strategies with clear targets for habitat protection and, where appropriate, 

enhancement and restoration. 

2. Facilitate habitat restoration initiatives in cooperation with and through cost-sharing with 

local governments and other agencies. Projects may include disturbed habitat enhancement, 

exotic vegetation control, shoreline revegetation and stabilization, and salt marsh and benthic 

habitat restoration and enhancement. 

In particular, coordinate with the Florida Inland Navigation District on the management of 

the many dredge spoil areas located throughout the ICW portions of the Northern Coastal 

Basin to maximize cooperative management goals. 

3. Coordinate with mosquito control authorities to implement source reduction programs that 

maximize natural resource functions. 

4. Develop and implement programs to restore natural hydrologic patterns. 
Section D 

39 

SECTION D 

COMPLETED OR PENDING STUDIES AND PROGRAMS 

RELEVANT TO THE NORTHERN COASTAL BASIN 

D.1. SJRWMD Northern Coastal Basin Program 

The current NCB Program operated by SJRWMD coordinates with 15 local governments and 

several regional, state, and federal management agencies to monitor and assess estuary health, 

respond to current issues, and address future management needs. Since fiscal year (FY) 2001, 

SJRWMD has provided either material or technical assistance to a number of active management 

plans and projects throughout the NCB. The projects are listed below. 

• Graham Swamp Reconnection 

• Flagler Beach Master Stormwater Plan 

• Bulow Creek/Korona Canal Stabilization 

Project 

• Tomoka Salt Marsh Restoration Project 

• Riviera Oaks Stormwater Project 

• Downtown Daytona Beach Stormwater 

Management Plan 

• 11th Street Stormwater Park 

• Colonial Lakes Stormceptor 

• South Street Watershed Project 

• B5/B6 Stormwater Park 

• Reed Canal Watershed Project 

• Southwind Stormwater Park 

• Memorial Stormwater Park 

• Rose Bay Sewer/Septic Removal 

Program 

• Buschman Stormwater Park 

• Halifax Canal Stormwater Project 

• Rose Bay Watershed Restoration Project 

• Harbour Oaks Canal Stormwater Project 

• Marineland Acres Stormwater 

Improvements 

• Daytona Beach B3 Stormwater Park 

• Ken Burns Stormwater Park 

• Daytona Beach Bay Street Stormwater 

Improvements 

• Port Orange Depot Stormwater Park 

• Port Orange Reuse Augmentation 

Project 

• Matanzas Marsh Acquisition Project 

D.2. SJRWMD Stormwater Management Cost-Share Program 

Since the initiation of the Stormwater Management Projects Cooperative Cost-Share Program in 

FY 1995–96, SJRWMD has provided $2.8 million to cost-share 126 stormwater management 

projects with local governments. Local governments and other nonprofit organizations may 

apply for assistance to promote flood control, demonstrate BMPs, or implement stormwater 

utilities. Applications are ranked according to a list of criteria which includes support of 

SJRWMD’s mission, cost-sharing ability, financial need, severity of the problem, ecosystem 

impacts, availability of a dedicated funding source, regulatory impacts, and community benefit. 

Following are details of current cost-share projects for municipalities within the NCB. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

40 

City of Flagler Beach Water Quantity and Quality Abatement Program 

Funding amount: $35,000 

Projected completion date: October 2003 

Description: This water quality and quantity program will involve the design of BMP 

measures to abate the flooding problem at localized areas of the city (Mirror Lake 

watershed), as well as to increase stormwater storage and improve treatment of 

stormwater prior to its entering the ICW. 

Maria Sanchez Stormwater Conveyance System (City of St. Augustine) 

Funding amount: $50,000 

Projected completion date: October 2003 

Description: The project includes upgrading the existing eight outfall pipes that empty 

into Maria Sanchez Lake. This lake has served as a stormwater treatment facility for the 

surrounding 82 acres. This improvement will ultimately reduce pollutants present in the 

surface water that flows into the Matanzas River. 

Marineland Acres Stormwater Management Program (Flagler County) 

Funding amount: $50,000 

Projected completion date: October 2003 

Description: Phase I includes pretreatment of nuisance storm water into a multilevel 

system that includes collection of rainwater in a system of retention ponds. The collected 

storm water will then be transmitted to an existing drainage ditch north of Washington 

State Park to an outfall to the ICW. 

West St. Augustine Drainage Improvements System (St. Johns County) 

Funding amount: $50,000 

Projected completion date: September 2003 

Description: This project is to provide flood relief and water quality improvements to 

West St. Augustine and the Oyster Creek drainage basin. Oyster Creek is a tributary of 

the San Sebastian River and the Matanzas River. 

Wild Olive Stormwater Improvements (City of Daytona)

Funding amount: $50,000 

Projected completion date: October 2004 

Description: This project consists of roadway improvements to an existing public street, 

Wild Olive Avenue. The project will provide drainage, flood prevention, treatment, and 

recharge. Currently, the storm water flows untreated into the Halifax River. 

Holly Hill SRF Stormwater Improvements — Phase II 

Funding amount: $50,000 

Projected completion date: October 2004 

Description: This project is the second phase of a two-phase program that will help in 

solving several flooding problems in the city. Phase II will provide drainage 

improvements and/or stormwater quality improvements to eight separate areas of the city. 
Section D 

41 

Standish Drive and Royal Palm Avenue Baffle Boxes (Ormond Beach)

Funding amount: $40,000 

Projected completion date: October 2004 

Description: The project is part of a 10-year program of drainage and infrastructure 

upgrades and retrofit. Specifically, solids separators will be installed just upstream of 

major outfalls to the Halifax River. 

D.3. SJRWMD Bathymetric Survey Project 

A bathymetric survey of the NCB was performed to meet the hydrodynamic and water quality 

model requirements of the NCB program (John and Morris 2003). The survey was conducted 

between July 20, 1999, and October 20, 2001. The survey area extended from the SR 202 bridge 

(Oak Landing) in the north to the SR 44 causeway in New Smyrna Beach in the south, near 

Ponce de Leon Inlet. The survey also included the Guana River to the Guana Dam, the tidal part 

of Deep Creek, San Sebastian Creek upstream to the narrows north of the SR 16 bridge, Pellicer 

Creek to Faver-Dykes Park, the Tomoka River to Priest Bridge, Rose Bay, Strickland Bay, and 

Spruce Creek. 

D.4. SJRWMD Tidal Model Development Projects 

The NCB is a complex water body with inlet connections to the sea, extensive wetting and 

drying areas (marshes), and a narrow maintained channel (the ICW) running along its entire 

length. Ultimately, a numerical model of salinity, water quality, bacteria, eutrophication, and 

sediment for the entire NCB will be needed to assist in answering management questions. 

As a first step in the process, a two-dimensional finite element model (RMA-2) (John and Morris 

1999) was developed to improve understanding estuarywide water movement and the impact of 

pollution load sources in response to concerns about the adverse effects of 

stormwater/wastewater discharges on coastal water resources, particularly shellfish harvesting 

areas. This initial modeling revealed that tide- and wind-driven flows are the predominant 

transport mechanism in the Tolomato and Guana rivers. In addition, model tracer studies 

confirmed the suspected presence of a tidal null zone located between Oak Landing and Palm 

Valley Bridge. 

In 2002, an orthogonal curvilinear finite-difference computational grid was developed for the 

entire area of the NCB for the purpose of accurately describing the geometry while minimizing 

the number of cells required for model testing (Driscoll et al. 2002). This tidal model was tested 

with respect to accurate propagation of tidal harmonics through the system, using the curvilinear 

hydrodynamic model MIKE 21C. Tidal calibration comparisons versus targets were found to be 

satisfactory. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

42 

D.5. U.S. Geological Survey Fisheries Resources Survey 

This cooperative project being conducted by USGS will establish baseline fish occurrence and 

distribution estimates for the NCB. Seasonal variation in fish occurrence will be estimated from 

samples collected monthly over several years. Habitat will be assessed at sampling stations, and 

an attempt will be made to relate these results to the entire study area. 

The project study area includes the estuaries from Ponte Vedra south to Ponce Inlet. The project 

will occur during fiscal years 2001–2006. Required tasks for this project include a literature 

review of comparable work conducted in other estuaries; monthly collection, identification, and 

measurement of fish using standardized techniques developed by the Florida Marine Research 

Institute habitat characterization at fish sampling locations; analysis of resulting data using 

multivariate statistical techniques; development of a reference collection of NCB fish species; 

and preparation of semi-annual progress reports, journal articles, and a USGS final report. 

D.6. Guana-Tolomato-Matanzas National Estuarine Research Reserve 

The GTMNERR was established on August 19, 1999, under Section 315 of the Coastal Zone 

Management Act. This act established the National Estuarine Research Reserve System, where 

healthy estuarine ecosystems that typify different regions of the United States can be designated 

and managed as sites for long-term research and used as a base for estuarine education and 

interpretation programs. The GTMNERR is the 25th National Estuarine Research Reserve in the 

country and the third in Florida. 

Within the reserve area are two aquatic preserves, two state parks, a state garden, and two water 

management preserves. Waters within the Guana portion are designated as Class III recreational 

waters and within the Matanzas portion as Class II shellfish waters. Additionally, waters within 

the two aquatic preserves are designated as OFWs. The following are priority resource 

management issues within the GTMNERR: 

• Increased scientific understanding of natural systems and human interactions 

• Lack of public understanding of estuarine ecosystems and values 

• Altered land use within the watershed 

• Degradation of water quality and system health 

• Increased and conflicting uses of estuarine resources 

D.7. Florida Inland Navigation District 

The Florida Inland Navigation District (FIND) performs the functions of the “local sponsor” of 

the ICW project in Florida, a state/federal navigation project. In this capacity, FIND provides all 

lands required for the navigation project, including rights-of-way and lands for the management 

of dredged materials removed from the waterway channel during dredging activities. 
Section D 

43 

Funding assistance is provided to other governments within FIND through the Waterways 

Assistance Program. The purpose of the Waterways Assistance Program is to develop waterway 

improvement projects, including navigation channel dredging, channel markers, navigation signs 

or buoys, boat ramps, docking facilities, fishing and viewing piers, waterfront boardwalks, inlet 

management, environmental education, law enforcement equipment, boating safety programs, 

beach re-nourishment, dredge material management, environmental mitigation, and shoreline 

stabilization. 

FIND also provides dredged material management to control sediment inflow into the 

waterways. Each long-range dredged-material management plan includes a general identification 

of the source of the sediments entering the waterway channel. This sediment inflow is being 

addressed by FIND and other government agencies through cooperative projects involving inlet 

management, stormwater control, and shoreline stabilization. If successful, sediment inflow 

reductions will save local and federal maintenance dredging funds, increase the length of time to 

fill the upland sites to capacity, reduce the impact of suspended sediments on the environment of 

Florida’s waterways, and increase retainage of these sediments in beach and upland systems. 

In the past, dredged material was deposited on spoil islands located all along the ICW. Many of 

those spoil islands have now become ecologically important habitats, and FIND has a role in 

how the spoil islands will be managed. 

D.8. Rose Bay Restoration 

SJRWMD has worked with the local citizens and governments to form a coalition of agencies to 

seek solutions to pollution problems and to restore Rose Bay. The coalition has developed a fivepoint restoration plan that is currently being implemented. The five strategies, and the activities 

accomplished to date for each strategy are as follows: 

1. Control stormwater runoff pollution 

Working with SJRWMD, Volusia County, and the Florida Department of Transportation 

(FDOT), the city of Port Orange has addressed stormwater discharges into Rose Bay. By 

combining projects with road improvements and sewer installation, the city has provided 

stormwater treatment throughout the bay’s watershed. 

Projects to retrofit (upgrade) stormwater swales (also known as shallow ditches) in the 

communities of Harbour Oaks and Allendale have provided the neighborhoods with improved 

drainage and water quality treatment. Port Orange, Volusia County, and SJRWMD have 

formed partnerships to buy and develop land where storm water is being stored and treated 

before it is discharged into Rose Bay. 

The city of Port Orange, with SJRWMD assistance, has completed a project that allows water 

from four stormwater ponds to be diverted to the city’s reuse irrigation program. The project 

reduces the volume of storm water going into Rose Bay by up to 1.2 million gallons of storm 
Northern Coastal Basin Surface Water Improvement and Management Plan 

44 

water per day, increases the city’s reuse water supply, and provides additional floodwater 

storage capacity. 

2. Eliminate leaking septic systems from discharging into Rose Bay

The communities of Harbour Oaks and Allendale have been annexed into the city of Port 

Orange. Through the Port Orange Water Utilities and with state legislative assistance, citysupplied sewer service will be provided to residences and businesses in the Rose Bay region. 

Sewage treatment service access to all residents was completed in 2002. 

3. Replace the existing U.S. 1 bridge and remove the current causeway to re-establish 

natural water exchange 

FDOT completed construction of the Rose Bay bridge replacement in March 2001. SJRWMD 

coordinated with FDOT to design the removal of a causeway and a replacement bridge span to 

maximize restoration of water flow and circulation in the bay. Construction of a causeway 

replacement bridge began in May 2001 and was completed in 2002. 

4. Remove accumulated sediment to restore estuary habitat 

SJRWMD is coordinating with USACE and Volusia County to develop and implement a 

dredging and habitat restoration plan that accomplishes regional resource management goals. 

USACE is developing a Section 206 environmental restoration project to restore estuary 

habitat by removing accumulated sediments in Rose Bay. Construction is scheduled to begin 

in the summer of 2004. 

5. Remove the old causeway that is east of U.S. 1 

SJRWMD and USACE are coordinating with the Halifax/Indian River Task Force to remove 

an abandoned causeway that currently restricts water circulation and flow in the bay. 

Removing the old remnant causeway is the final component of the Rose Bay Restoration Plan, 

and construction is scheduled to be completed in 2005. 

D.9. Local Environmental Programs 

Guana-Tolomato-Matanzas Shellfish and Water Quality Task Force 

The mission of the Guana-Tolomato-Matanzas (GTM) Shellfish and Water Quality Task Force is 

to restore and maintain water quality in the GTM rivers for safe harvesting of shellfish in 

compliance with FDA requirements and state of Florida Class II water standards (NOAA 1998). 

The GTM Task Force has developed a three-phase action plan outline to address shellfish and 

water quality issues. The three phases are immediate response, comprehensive analysis, and 

remediation and implementation. In 1997, the task force presented the results of Phase I and 

suggested initial directions for Phases II and III (SJRWMD 1997). 
Section D 

45 

Volusia County Conservation Programs 

In 2000, Volusia County established, by a voter referendum, a conservation lands acquisition 

program entitled Volusia Forever. This is a 20-year, ad valorem tax-based program the mission 

of which is to finance the acquisition and improvement of environmentally sensitive, water 

resource-protected, and outdoor recreation lands, and to manage those lands as conservation 

stewards in perpetuity. The program is expected to generate $99 million over its lifetime. 

The county, in partnership with SJRWMD, identified an area of roughly 55,000 acres that 

became the county’s overriding conservation land acquisition priority. The Volusia Conservation 

Corridor, as it has been named, sits essentially in the middle of the county and connects lands 

north of the city of Deltona and east to the city of Edgewater. These lands include habitat needed 

for federal- and state-listed endangered and threatened species. Preliminary groundwater 

modeling and natural resource assessments have indicated the potential for additional water 

supply development; thus, it provides for water resource development. The land is also critical in 

providing flood protection for existing and future populations, protecting surface and 

groundwater quality, and providing resource-based recreation for both residents and visitors. 

A subprogram of the Volusia Forever Program is the Small Lot Acquisition Program. This longterm program acquires parcels in old, platted subdivisions, sometimes called “ghost 

subdivisions,” that have ecological value. The program was initiated several years ago to utilize 

funds received from developers who negatively impacted wetlands to acquire lands that provided 

wetlands enhancement, floodplain restoration, and habitat preservation. Volusia Forever monies 

now supplement the existing monies received from developers.

The Halifax River Task Force is an advisory board to the Volusia County Council and has 

existed for 14 years. Members of the task force collaborate on an annual river cleanup 

subcommittee, a stormwater subcommittee, and a restoration subcommittee. 

D.10. Land Acquisition and Management 

The acquisition of environmentally sensitive land to preserve and protect water resources is an 

important ongoing initiative of SJRWMD. The development of land management practices that 

maximize multiple uses in order to provide the greatest public benefit is undertaken at 

appropriate sites. Some urban lands have been acquired for water resource protection and 

enhancement purposes. 

The NCB is a physically and biologically diverse region. However, rapid urbanization continues 

to threaten the natural ecosystem and to increase the extent of habitat fragmentation. SJRWMD 

strives to improve and protect wetlands and estuarine areas by preserving habitats needed by 

wetland- and estuarine-dependent species and protecting recharge and runoff areas. This is 

accomplished by identifying environmentally sensitive areas, then submitting them for review to 

the state’s Conservation and Recreation Lands (CARL) Program, the Florida Fish and Wildlife 

Conservation Commission, and other appropriate entities. These areas are prioritized according 
Northern Coastal Basin Surface Water Improvement and Management Plan 

46 

to their ecological importance and availability for purchase or the development of other types of 

protection, such as conservation easements. Any of the identified areas in need of restoration will 

be reviewed at this time. Finally, SJRWMD supports ongoing acquisition programs in the 

purchase of identified lands and, where appropriate, adds these identified areas to the Florida 

Forever Work Plan (SJRWMD 2001). 

SJRWMD’s ongoing development of land management practices to maximize multiple uses is 

provided where recreation, education, water quality improvement, and preservation are all 

important land uses that are not necessarily mutually exclusive. SJRWMD reviews the land uses 

on existing public land and makes recommendations to public agencies concerning appropriate 

land management practices to maximize public use without causing environmental damage. 

SJRWMD also supports public agencies in their efforts to provide appropriate public access to 

the lakes, wetlands, and streams in the NCB. 

D.11. Northeast Florida Blueways (Duval, St. Johns, and Flagler Counties) 

The Blueways project consists of two phases that, combined, represent the Northeast Florida 

Blueway. The intent of the Blueway is to bridge the protection gaps to help secure the ecological 

character of the region and ensure recreation opportunities for both residents and visitors. 

The initial phase of the Northeast Florida Blueway, Phase I — Pablo Creek, was approved by the 

Acquisition and Restoration Council in 2000. The Phase II proposal, which is within the 

boundaries of the NCB, includes the undeveloped lands on the east and west sides of the ICW in 

St. Johns County. The Tolomato and Matanzas rivers make up the majority of this stretch. The 

proposal includes about 18,170 acres of private lands and 9,985 acres in public ownership in St. 

Johns County. A significant part of this area, the 8,500-acre Matanzas Marsh, was purchased by 

SJRWMD in 2003. 

A proposal for extending the Blueway through Flagler County is currently being actively 

pursued by SJRWMD, the GTMNERR, and Flagler County. 

D.12. Public Education 

The SJRWMD Office of Communications and Governmental Affairs provides education to the 

public through the following: 

1. Support of Florida Yards, Neighborhoods and Ponds activities 

2. Brochures and fact sheets provided in coordination with utilities 

3. Storm drain marking and educational presentations 

4. Stormwater pond education 

5. Environmental Landscaping distance learning classes (community colleges) 

6. Green Building seminars and CEU programs for contractors, builders, and home buyers 

7. The Watershed Action Volunteer program 
Section D 

47 

8. Community water festivals coordinated with interested organizations 

9. Support of youth education programs 

10. Support of the University of Florida Sea Grant extension program in Flagler and St. Johns 

counties 

In addition to these activities, SJRWMD, in coordination with the GTMNERR, is constantly 

seeking to improve public awareness by initiating and expanding communication opportunities, 

including working groups and outreach programs. SJRWMD also develops and maintains 

intergovernmental partnerships through the stormwater cost-share program, the WaterWatch

government monthly mailer, coordination with legislative delegations and local elected officials. 

D.13. Water Supply 

Water supply is generally outside the scope of the NCB Program; however, there are concerns 

about the cumulative impacts of groundwater withdrawals on the western borders of the NCB. 

Other opportunities to resolve water supply issues involve coordination of efforts to greatly 

reduce or eliminate treated freshwater effluent from being discharged to, and adversely 

impacting, the more brackish estuaries. In the event of water use issues in the NCB, the program 

manager will coordinate with SJRWMD’s Department of Resource Management, which is 

responsible for consumptive use permitting and water use regulation. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

48 
Section E 

49 

SECTION E 

RESEARCH AND FEASIBILITY STUDIES NEEDED 

TO REACH RECOMMENDED STRATEGIES 

Contained within the action steps listed below are the research and feasibility studies that are 

needed to reach the recommended strategies outlined in Section C. The action steps briefly 

describe the research and feasibility studies and associated tasks to reach the targeted strategy. 

Water Quality Initiative 

Strategy: Examine the existing water quality monitoring network and, if necessary, design 

and implement a more integrated network (C.1.1) 

The purpose of this strategy is to examine the existing water quality monitoring program within 

the NCB and determine whether gaps in data collection and synthesis exist. The aim is to ensure 

the provision of useful information for assessing water quality relative to state water quality 

standards and shellfish consumer health standards, developing water quality objectives, 

documenting resource problems and problem areas such as bacterial contamination in shellfish 

harvesting areas, and verifying remedial actions. 

The existing water quality monitoring program consists of two tiers, ambient monitoring and 

event-specific monitoring. The purpose of the ambient monitoring is to generally characterize 

water quality in the NCB and identify water quality problems and trends. The event-specific 

monitoring, in conjunction with the ambient monitoring, is aimed at pollution source 

identification and the development of PLRGs and, if necessary, other resource-based water 

quality targets. 

Implementation of this strategy will include the participation of and input from a variety of 

stakeholders and agencies that have water quality responsibilities in the basin. 

Action Steps (C.1.1.1) 

1. Assemble and evaluate existing water quality data pertaining to the NCB, including shellfish 

harvesting areas. Query federal, state, and local agencies for availability of data. 

a. Using the data, determine water quality trends in the NCB and document trends to 

provide a quantitative basis for recommendations on continuation or termination of 

specific monitoring stations. Recommendations should be based on the health of each 

specific area, the directions of trends in specific parameters, and the likelihood that water 

quality can be improved. 

b. Review current water quality collection efforts by these agencies. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

50 

2. Based on the analysis and synthesis of existing data and current sampling programs by the 

queried agencies, establish a long-term collaborative water quality monitoring effort. The 

program will be capable of providing the data needed to support analyses of spatial and 

temporal trends, calibration of water quality models, and characterization of potential or 

current water quality problems. Care will be taken to ensure that water quality sampling will 

not be duplicative of existing efforts by agencies and that the monitoring program will be 

compatible with existing sampling networks of other agencies. 

Special consideration will be given to the collection of event-specific monitoring data, as 

necessary to calibrate water quality models. Specific bacteria event sampling will be 

considered in shellfish harvesting areas since the highest concentrations of bacteria occur in 

association with high runoff and stream flows caused by rainfall. Also as part of cooperative 

sampling efforts, consideration will be given to common field and laboratory analytical 

methods, split sampling, etc., so that there is a high degree of confidence in the combined 

dataset. Information that is collected will be entered into the STORET database in a timely 

manner to allow access by other agencies and programs. 

Part of the planning for the monitoring network will be the identification of water quality 

targets needed to meet project goals. This will include a clear statement of the monitoring 

network objectives (the multiple uses of the data), the costs for establishing and operating the 

network, and a methodology for justifying and scheduling periodic modifications to 

procedures(e.g., station locations and termination of activities). 

3. Once the monitoring plan is finalized and coordinated with other agencies, implement water 

quality sampling according to the plan design. Coordinate sampling among responsible 

agencies, as appropriate. Coordinate resources and include a volunteer component, where 

applicable. 

The data derived from the water quality monitoring network will be used to monitor trends in 

water quality and to develop statistical or mechanistic models used to assess pollutant levels 

and sources and the effectiveness of remediation strategies. These data and models will also 

be useful in helping to determine PLRGs. In particular, a plan with goals and PLRGs for 

improving water quality in shellfish harvesting areas will be developed. 

4. Assemble and assess existing data on tributaries, determine further data needs, and develop a 

monitoring plan to determine tributary loadings. Prioritize the tributaries and establish a 

monitoring schedule, coordinating with management initiatives to maximize data value and 

usefulness for trend analyses and water quality modeling purposes. 

Strategy: Develop and assess water quality and habitat protection targets using hydrologic 

and hydrodynamic water quality models and/or water quality and biological indices, 

where appropriate (C.1.2) 
Section E 

51 

The purpose of this strategy is to develop a basinwide set of water quality and habitat protection 

targets that utilize land use, water quality, water quantity, and other data to estimate, quantify, 

and compare sources of pollution in the basin and their impact on the estuary. 

Used together, these models and other indices will be capable of characterizing pollution 

nonpoint loads from the tributary basins discharging to the NCB and their transport and fate in 

the estuarine system. The magnitudes of point-source discharges from tributary pollution sources 

will also be estimated. Output from these analyses will assist in describing interrelationships 

between physical, chemical, and biological processes in the estuary; determining the nutrient and 

pollutant assimilative capacity of the estuary; prioritizing areas for water quality remediation; 

verifying impairments of waters; testing PLRGs; and predicting the effects of various 

management and conservation protection strategies. 

Model development should be carefully scheduled with long-term and short-term data collection 

so that all of the necessary data are available when needed for the models. In addition, basic 

models (rainfall/runoff and hydrodynamics) need to be completed before advanced models 

(water quality). This NCB SWIM Plan envisions at least 8 years of closely coordinated work to 

complete the development of water quality (e.g., eutrophication and bacteria) models for use in 

analyzing cause-and-effect relationships on watersheds and in the estuary. 

Action Steps (C.1.2.1) 

1. Review the objectives of proposed modeling and the applicability of existing and proposed 

support data and prepare a planning document for chartering under the SJRWMD Project 

Delivery Initiative. This document and the chartering effort should clarify the purpose of 

various modeling components (watershed and hydrodynamic; physical, chemical, and 

biological), the deliverables, time schedules, and budgets. 

2. Next, select the most appropriate modeling package and environmental indicators. Include a 

review of the hydrologic, hydrodynamic, and water quality models partially completed in 

2002 and 2003. The acquisition and/or review of other water quality/quantity modeling 

efforts, and water quality and biological indicators may be included. 

3. Once the appropriate models and tools have been selected for SJRWMD application, identify 

data that are not currently available and develop a plan for the acquisition of the data, 

including the associated costs. This further data collection and monitoring will be in addition 

to current ongoing monitoring activities. 

4. Following acquisition of a suitable database, calibrate and validate the models and tools. 

Once confidence has been established, review output results and use the results to describe 

the operating characteristics of the water body, such as changes in water levels and flows, 

salinity, local flushing, nitrogen and phosphorus cycles, algal bloom development and dieoff, the effects of null zones on flushing, wave-induced erosion (boat wakes), bacteria 
Northern Coastal Basin Surface Water Improvement and Management Plan 

52 

distribution in shellfish harvesting areas, and other features necessary to understand problems 

and alternative solutions. 

5. Finally, use models and tools to run various scenarios. Review output results and quantify 

both point and nonpoint pollution sources (e.g., wastewater effluent, septic leachate) and 

effects in particular areas of the NCB, such as shellfish harvesting areas. Update the 

management plan with recommendations for specific actions to solve problems and meet 

basin goals. Identify areas of good-to-excellent water quality and recommend for 

conservation purposes, as appropriate. 

Strategy: Enhance and maintain surface waters (C.1.3) 

Many areas in the NCB require protection and/or enhancement. These include water bodies 

designated as impaired by FDEP, Class II shellfish waters, and Outstanding Florida Waters. 

Some are recognized for possible TMDL allocations. Still others are identified to be in decline 

based on SJRWMD or FDEP water quality data but are not yet “listed” by FDEP. Those water 

bodies will qualify for special consideration and evaluation. Where appropriate, enhancements 

will be encouraged and projects will be proposed to avoid the necessity of the TMDL process. 

As a result of the modeling process and subsequent evaluations (described in Section C.1.2), 

pollution sources will be reviewed and prioritized from a basinwide perspective to identify areas 

for remediation or restoration to improve water quality. PLRGs will be estimated for highest 

priority basins according to a schedule developed along with the modeling, with emphasis on 

stormwater management and shellfish harvesting areas. 

Maintenance of the many drainage canals and tributaries in the NCB is generally focused more 

on flood protection than on water quality. As a result, the continual erosion of the sidebanks of 

these canals is a likely source of turbidity and suspended solids delivered to the major surface 

waters of the basin. Following BMPs and carefully regulated maintenance schedules and 

procedures is a cost-effective way for municipalities to reduce sediment scour and transport and 

to minimize water quality impacts to receiving water bodies. 

Action Steps (C.1.3.1) 

1. Develop criteria for assigning relative priorities to surface water bodies. 

2. Use a decision-making, matrix approach to assign priorities to surface water bodies.

3. Develop adaptive management projects, using the most current methods to create 

interventions, enhancements, and restoration projects. 

4. Coordinate with appropriate agencies to investigate Class II designated waters and problems 

with septic tank leachate, sewage treatment effluent, fertilizer reduction, and other nonpoint 

sources associated with urbanization. 
Section E 

53 

5. Coordinate with appropriate agencies to develop and implement BMPs for water bodies 

identified to be in steady decline. 

6. Facilitate development of a BMP manual or guidelines for regional drainage network 

maintenance programs. Focus drainage network maintenance documents on resolving 

downstream impacts to water quality and reducing sediment loading. 

7. Encourage the maintenance of drainage conveyances consistent with BMPs that maximize 

water quality benefits to receiving waters. This can be accomplished through technical 

assistance and cost-sharing with appropriate entities. 

Watershed Master Planning Initiative 

Strategy: Evaluate and refine existing watershed master plans (C.2.1) 

This strategy is essentially the evaluation of stormwater management of local watershed master 

planning initiatives. Stormwater master planning is primarily a local government responsibility, 

yet many local governments have neither the manpower nor the funding mechanisms available to 

adequately update, develop, or implement the water quality aspects of these master plans. By 

assuming a watershed approach to master planning, a more comprehensive hydrological rather 

than political boundary assessment can be accomplished. This work falls within the regional 

purview of SJRWMD. It is thus appropriate for SJRWMD to provide for independent reviews of 

existing plans and identify areas for improvement. 

Action Steps (C.2.1.1) 

1. Examine coverage of stormwater plans. Prepare a comprehensive listing of completed and 

pending watershed master plans, along with the status of completion or implementation of 

each study. Identify capital improvement plans and existing stormwater network maintenance 

programs. 

2. Evaluate and refine existing stormwater plans for flood abatement, water quality 

improvement, and regional adequacy. 

3. Develop a standardized master plan outline as an aid for local government use in subsequent 

planning efforts. 

Strategy: Assist in the development and endorsement of local master stormwater plans and 

implementation schedules (C.2.2) 

Local plans will serve as the implementation schedule for retrofit and maintenance initiatives. 

SJRWMD models may be used to assess and predict the effects of proposed management 

strategies. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

54 

Action Step (C.2.2.1) 

1. Assist local governments in the development of master plans that will address water quality 

improvements. This assistance may include activities such as facilitation, planning, costsharing, and technical design or review. 

Stormwater Retrofit and Master Plan Implementation Initiative 

Strategy: Prioritize stormwater retrofit programs (C.3.1) 

The purpose of this strategy is to design and implement a Northern Coastal Basin-wide 

stormwater retrofit plan focusing on pre-1983 development, prior to stormwater regulations. 

Evaluation of existing stormwater coverages and management plans will be used to establish 

clear targets for stormwater treatment in developed watersheds. A ranking matrix based on these 

targets will be utilized to prioritize the areas for retrofitting. The variables in the matrix will 

include, but not be limited to, existing nutrient loading; expected retrofit system removal 

efficiency; design, construction, and operation and maintenance costs; and receiving water body 

priority ranking (such as PLRGs, shellfish harvesting areas, and TMDLs/303d list). Due to the 

fast-paced development occurring within most of the NCB area, a supporting land acquisition 

program and assessment of available federal and state funding sources will be developed. 

Action Steps (C.3.1.1) 

1. Develop a ranking matrix to assist in prioritizing areas for optimal retrofit potential using 

existing maps of developed watershed areas that receive some level of stormwater treatment. 

2. Coordinate with local government land acquisition plans for stormwater retrofit opportunities 

that encourage recharge and reuse of stormwater runoff, where appropriate. 

3. Assist local governments seeking federal and state funding for land acquisition, design, and 

construction of regional stormwater retrofit projects. 

4. Where feasible, encourage and cost-share with local governments to proactively install 

alternative stormwater treatment mechanisms, especially where land availability is limited. 

Give priority to local governments that consider broad-based, rather than individual, retrofit 

opportunities. 

Strategy: Partner with local governments to implement stormwater plans (C.3.2) 

The purpose of this strategy is to provide assistance and incentives to local governments 

to implement stormwater plans through such means as cost-share funding, technical 

assistance, legislative initiatives, mapping, and other services provided directly by or 

contracted through SJRWMD. 
Section E 

55 

Action Steps (C.3.2.1) 

1. Establish and coordinate an interagency NCB Stormwater Management Group. 

2. Provide assistance to local governments based on a prioritized schedule developed by the 

NCB Stormwater Management Group. 

Compliance and Rules Enforcement Initiative 

Strategy: Implement existing compliance monitoring programs (C.4.1) 

The purpose of this strategy is to collect compliance monitoring information for permitted 

stormwater management systems with regard to flood protection and water quality controls to 

ensure that they are operating properly. The effectiveness of the regulatory programs is 

measured, in part, through a compliance monitoring program. Compliance monitoring to verify 

the proper construction of new systems and the appropriate maintenance of established systems 

is necessary to ensure that the systems are constructed and maintained to allow for their proper 

function. Enforcement action may be necessary to require responsible parties to bring 

noncompliant systems into conformance. 

Action Steps (C.4.1.1) 

1. Assess existing permitted nonpoint sources of water pollution (e.g., stormwater ponds) and 

provide compliance or additional treatment alternatives to reduce the impact from these 

sources, where warranted. Give priority to stormwater treatment systems in OFWs. 

2. In order to develop a streamlined system and prioritize the activities in compliance and 

enforcement for permitted stormwater management systems, establish a protocol based upon 

system size and type, watershed land use and density, and proximity and degree of 

impairment of the receiving surface water. Implement programs using information from all 

available sources, monitor the programs, and adjust the programs to develop an efficient 

system for compliance monitoring. 

Strategy: Assess and manage resources and funding to support the requirements of current 

and emerging National Pollutant Discharge Elimination System regulations, pollutant 

load reduction goals, and total maximum daily load regulations (C.4.2) 

The NCB Impaired Water Bodies candidates have been identified, per the FDEP 303(d) list, 

which must be verified before proceeding with the development of TMDLs. Chapter 99-223, 

Laws of Florida (the Florida Watershed Restoration Act), provides FDEP with the authority to 

develop and implement TMDLs. The process (methodology) for determining impairments is set 

out in Chapter 62-303, F.A.C. (Identification of Impaired Surface Waters). 
Northern Coastal Basin Surface Water Improvement and Management Plan 

56 

Water management districts are responsible for nonagricultural storm water (unless FDEP 

maintains that responsibility), and the Department of Agriculture and Consumer Affairs is 

responsible for working with farm interests and managing agricultural stormwater runoff. Of 

particular importance in the watershed management plan will be the focus on innovative and 

incentive-based voluntary approaches to address nonpoint sources. 

The identification of management activities being implemented or scheduled that would address 

the parameters of concern is part of the process in the FDEP Integrated Water Resource 

Management Program. If there is reasonable assurance that water quality standards would be 

attained following implementation of the management activities, the water is not placed on the 

verified list. 

FDEP uses the Watershed Management Program, an iterative five-phase cycle, to develop and 

implement TMDLs. The 5-year cycle provides the structure for focusing resources on specific 

basins, verifying impaired waters, conducting targeted monitoring that will provide the data 

needed for model calibration and verification, and developing TMDLs for impaired waters. 

Basin management plans are a critical product of the Watershed Management Program because 

they provide the roadmap for implementation of the TMDLs and will serve as the basin-specific, 

consensus-driven implementation plan. 

Action Steps (C.4.2.1) 

1. Investigate the need for a re-evaluation of SJRWMD rules to increase the protection of 

watersheds potentially targeted for drinking water supply, areas surrounding receiving waters 

that are designated as impaired waters, and high recharge areas. 

Water resource restoration efforts, including development and implementation of BMPs, 

retrofitting, habitat protection and restoration activities, environmental infrastructure 

improvements, and issuance of permits, provide increased protection. Specific rule revisions 

may not be required. However, more-stringent criteria reflective of waters not meeting 

specific standards may be invoked as necessary. SJRWMD may recommend appropriate 

BMPs for agriculture and storm water. 

2. Coordinate with FDEP to define the role of each agency in the TMDL, Watershed 

Management Program process. Details of this proposed coordination effort are discussed in 

Section F of this document. 

Resource Assessment, Protection, and Restoration Initiative 

Strategy: Complete habitat mapping and resource assessments (C.5.1) 

To protect and preserve unique or significant habitats and resources, it is essential to first 

inventory both natural and disturbed habitats in the watershed. Once a baseline assessment has 

been made, impacts to the system will be quantified and specific biological targets will be set. 
Section E 

57 

Action Steps (C.5.1.1) 

1. Establish a habitat mapping and classification program for the NCB which includes 

shorelines, marshes, intertidal and submerged/benthic areas, and disturbed habitats. 

Coordinate this step with the GTMNERR and other management agencies, using analytical 

methods and innovative technologies, including remote sensing, to assess conditions of these 

habitats. 

2. Evaluate sediment deposition and quality and implement sediment management plans, as 

required. Place particular emphasis on shellfish harvesting areas since sediment 

re-suspension and sediment transport can smother shellfish beds. 

3. Describe and assess floral and faunal species of concern, including fisheries resources. The 

aim is to link the locations of species of concern to habitat maps and water quality patterns. 

4. Establish functional habitat and biological targets for estuarine ecosystems. 

Strategy: Protect and manage important estuarine habitats (C.5.2) 

The purpose of this strategy is to protect important estuarine habitats within the NCB. 

Coordinated and sustained acquisition efforts are the key to protecting these sensitive 

watersheds. 

Action Steps (C.5.2.1) 

1. Identify land protection and acquisition needs.

2. Coordinate and support land acquisition initiatives both within SJRWMD and in 

collaboration with outside agencies. 

3. Support the coordination of land management initiatives with appropriate land managers, 

agencies, or stakeholders. 

Strategy: Provide habitat enhancement and restoration (C.5.3) 

Coastal estuarine habitats have been impacted through such anthropogenic activities as dredge 

and fill for development; dredging of boat basins, inlets, and navigation channels; mosquito 

control; and recreational boating activities. The purpose of this strategy is to enhance or restore 

the function of the degraded areas through selective habitat enhancement programs and projects. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

58 

Action Steps (C.5.3.1) 

1. In coordination with the GTMNERR and other management agencies, support efforts to 

develop effective strategies with clear targets for habitat protection and, where appropriate, 

enhancement and restoration. 

2. Facilitate habitat restoration initiatives in cooperation with and through cost-sharing with 

local governments and other agencies. Projects may include disturbed habitat enhancement, 

exotic vegetation control, shoreline revegetation and stabilization, and salt marsh and benthic 

habitat restoration and enhancement. 

In particular, coordinate with FIND on the management of the many dredge spoil areas 

located throughout the ICW portions of the Northern Coastal Basin to maximize cooperative 

management goals. 

3. Coordinate with mosquito control authorities to implement source reduction programs that 

maximize natural resource functions. 

4. Develop and implement programs to restore natural hydrologic patterns. 
Section F 

59 

SECTION F 

MEASURES NEEDED TO MANAGE AND MAINTAIN 

THE NORTHERN COASTAL BASIN 

This section describes the process by which SJRWMD will support FDEP in the establishment of 

TMDLs in the NCB by establishing PLRGs as required by Chapter 62-40.432, F.A.C.

F.1. Background 

The NCB spans parts of three counties (St. Johns, Flagler, and Volusia; see Figure 1) and 

contains some relatively densely populated areas. 

Section 303(d) of the Clean Water Act requires states to develop a list of waters not meeting 

water quality standards or not supporting their designated uses. Chapter 62-303, F.A.C., sets 

forth the process for verifying impairments and developing the list of impaired waters. The state 

submits these impaired waters as its 303(d) list to EPA. Verified impaired waters will only be 

kept off the 303(d) list if “reasonable assurance” can be provided to demonstrate that existing 

and proposed management actions and/or regulatory requirements can be expected to attain 

designated uses. Both FDEP and EPA must approve the documentation of reasonable assurance. 

EPA guidelines specify that waters need not be included, or listed as verified impaired, if other 

federal, state, or local requirements have or are expected to result in the attainment and 

maintenance of applicable water quality standards. 

The 15 water bodies referenced in this section are on the state’s current 303(d) list as impaired 

waters (see Table 2, Section A). As part of the watershed cycle, these waters will be assessed by 

FDEP through the methodology established in Chapter 62-303, F.A.C. If these waters are 

verified as impaired through this process, or if there are insufficient data to fully assess these 

waters, FDEP will maintain them on the updated 303(d) list that will be submitted to EPA. 

If the assessment results indicate that any of these previously listed waters meet designated uses, 

then FDEP will delist those waters. Any waters that are verified as impaired but for which FDEP 

cannot identify the pollutant source will be moved to the planning list until additional data can be 

collected in the next cycle. 

F.2. Impaired Waters List 

As required by the 1999 Florida Watershed Restoration Act, the planning list will be submitted 

to EPA for informational purposes only and will not be used in the administration or 

implementation of any regulatory program. The list is extremely important, however, as it drives 

monitoring in the watershed and is the precursor to the verified list. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

60 

The planning list is the first step of a two-step process to develop the state’s 303(d) list of 

impaired waters. As part of the watershed management approach, these potentially impaired 

waters will be further assessed to verify whether they are impaired. This verification process will 

involve FDEP with local stakeholders to collect additional data as needed to complete the 

assessment. Initially, monitoring will be focused on verification of any impairment. 

Once the additional monitoring is completed, the data will be assessed and FDEP will develop a 

verified list of impaired waters. This list of waters for which FDEP will develop TMDLs will be 

adopted by Secretarial Order. Once adopted, the list will be submitted to EPA as the state’s 

303(d) list for the basin. 

F.3. Watershed Management Program 

The Watershed Management Program (WMP), within the context of Chapter 99-223, Laws of 

Florida, is based on a five-phase cycle that rotates through the state’s basins every 5 years. The 

WMP is the vehicle by which FDEP is organizing the task of administering the TMDL process 

statewide. The five phases of the WMP cycle are as follows: 

Phase 1 — Initial basin assessment 

Phase 2 — Coordinated monitoring 

Phase 3 — Data analysis and TMDL development 

Phase 4 — Basin management plan development 

Phase 5 — Initiation of implementation of plan 

All of the NCB is within the WMP’s fifth rotational grouping. The fifth rotation of the WMP 

begins in the state’s FY 2004 and continues until the end of FY 2008. 

FDEP is the lead agency responsible for the establishment of TMDLs and has organized the 

process into 12 steps: 

1. Develop a planning list of surface waters or segments for which TMDL assessments will be 

calculated. 

2. Develop a priority ranking and schedule for analyzing the list. 

3. Adopt by rule a methodology for determining impaired water bodies based upon objective, 

quantitative, and credible data, studies, and reports, including water management districts. 

4. Develop a list of those water bodies or segments for which TMDLs will be calculated and 

submit the list to EPA. 

5. Conduct a TMDL assessment using verified criteria in coordination with the water 

management districts and other agencies. 

6. Develop TMDL calculations after first coordinating with applicable local governments and 

water management districts. Some TMDLs may be based on PLRGs. 

7. Develop allocations based on TMDL calculations (the maximum amount of water pollutant 

from a given source or category that may be discharged in combination with other 

discharges). 
Section F 

61 

8. Adopt TMDLs by rule and submit to EPA. 

9. Serve as the lead agency in coordinating the implementation of the TMDLs. 

10. In cooperation with the water management districts and other interested parties, develop 

BMPs to reduce pollutant loads from nonpoint sources into the affected water body and adopt 

by rule. The Department of Agriculture and Consumer Services will develop BMPs for 

agricultural nonpoint sources. (This effort will include routine tracking of the effectiveness of 

the BMPs, record keeping, and water quality monitoring.) 

11. Re-evaluate established TMDLs and implementation plans on subsequent cycles of the 

rotating basin program and revise as needed. 

12. Report to the Governor and the Legislature and make recommendations for statutory changes 

to implement the TMDLs more effectively, if needed. 

Some of the above steps have been completed. Throughout the process, FDEP recognizes the 

need to coordinate with local governments, water management districts, the Department of 

Agriculture and Consumer Services, and other interested parties. 

F.4. SJRWMD’s Role in PLRG Development and the TMDL Verification 

Process 

Based on EPA guidelines, certain waters may not be included, or listed as verified impaired, if 

regional or local remedial or restorative programs have or are expected to result in the attainment 

and maintenance of applicable water quality standards. In accordance with the Florida Watershed 

Restoration Act, FDEP will not place waters on the verified list if proposed or existing pollution 

control mechanisms are expected to result in the attainment of water quality standards. 

SJRWMD has the primary role of developing PLRGs, presumably providing the technical basis 

for the state’s development of TMDLs for constituents of concern. The data and information 

obtained on completion of the action steps described in Section C will form the basis for 

SJRWMD’s development of PLRGs. 

Figure 9 is provided to show SJRWMD’s commitment to assist FDEP with upholding any 

applicable legislative, administrative, and court-decreed time frames. 

Strategy. SJRWMD’s primary strategy for meeting the goals of the TMDL and the WMP is to 

initiate new and/or continue existing programs aimed at reducing the discharge of stormwater 

pollutants to potentially impaired surface waters. 

SJRWMD is conducting a stormwater treatment assessment in developed watersheds, and in 

select subbasins will prepare descriptions of retrofit opportunities and other potential 

enhancement activities. This work will be completed the in first year of the NCB SWIM Plan 

implementation. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

62 

Priorities for remediation will be set based on the highest pollutant-contributing basins, or basins 

having no stormwater treatment. Once these remedial programs are in place (over the span of 

several years), monitoring will be continued to measure the effect of the pollutant load reduction 

strategy. 

If planning and feasibility of retrofit systems for a particular listed water body result in low 

expectations for the success of the retrofit project, SJRWMD will report these findings to FDEP 

so that the process for the calculation of the TMDL can commence. 

GIS-based models will be used as appropriate to identify source basins and to prioritize remedial 

treatment schedules. 

Monitoring. SJRWMD will review the planning list of potentially impaired water bodies in the 

NCB, review the data used to produce the list, and add new data into STORET or provide it to 

FDEP so that this new information can be used in the full assessment in the verification process. 

If FDEP needs additional data and/or additional sites to be monitored (over and above those 

SJRWMD is currently monitoring) for its verification process, it can enter into a contractual 

agreement with SJRWMD to provide those data. Prior to implementing such a monitoring effort, 

SJRWMD will coordinate sampling strategies of FDEP and other agencies to ensure that the 

information and approach are consistent with existing requirements or policies regarding the 

verification of BMPs. 

SJRWMD will encourage local governments and other stakeholders through its existing outreach 

programs to participate in the strategic monitoring, including the development of the strategic 

monitoring plan, and to conduct some of the monitoring as well. SJRWMD is aware that 

monitoring will be long term in the verification process and accepts the responsibility to continue 

monitoring water quality in the NCB. 

SJRWMD will monitor sites that have received stormwater retrofits by SJRWMD to determine 

the effectiveness of the BMP, or pollution control strategy, employed. SJRWMD understands 

that long-term remedial action verification is a part of the WMP and will maintain and monitor 

its own projects. 

Land purchase. SJRWMD will expand its urban land acquisition activities to correspond to the 

needs of the listed water bodies, as possible, by purchasing lands for stormwater retrofit systems. 

Innovative treatment systems and in-line treatment devices will be encouraged if no lands are 

available or land costs are prohibitive. Funding for land acquisition will be pursued through the 

Florida Forever program and appropriate state and federal agencies. 

Retrofitting. Projects within the NCB will be prioritized as described above for candidacy for 

retrofit where no treatment exists. Stormwater retrofits will rely on standard BMPs as standalone or in treatment-train configurations. Innovative stormwater treatment devices or strategies 

will be considered and encouraged, where appropriate. 
Section F 

63 

Local government assistance and partnering. Local governments have completed 

comprehensive stormwater master plans in many basins. SJRWMD will continue to assist these 

efforts to develop, refine, and implement the plans through cooperative funding and legislative 

initiatives. 

SJRWMD has already embarked on many cooperative agreements to implement water quality 

projects in the NCB, as listed in Section D. 

Funding. SJRWMD will continue its existing funding strategy, which involves obtaining 

assistance through the following sources: 

• Legislative initiatives 

• Ad valorem 

• Grants 

• Federal funding 

• SWIM funding 

• Partnerships
Northern Coastal Basin Surface Water Improvement and Management Plan 

64 

Fiscal Year 2004 2005 2006 2007 2008 2009 2010 2011 

FDEP’s Watershed Management 

Program (WMP) Activities 

 

Phase I — Basin Assessment 

 

Phase II — Monitoring 

 

Phase III — Data Analysis 

 

 TMDL Development 

 

Phase IV — Basin 

Management Plan 

 

Phase V — Plan 

Implementation 

 

Planning list verification process 

 

Long-term monitoring 

 

Begin second round of WMP 

 

SJRWMD Activities

 

Strategic modeling, priorities 

 

Land acquisition 

 

Remedial interventions 

Setting PLRGs for the NCB 

 

Figure 9. Total maximum daily load and pollutant load reduction goal components and 

process milestones 
Section G 

65 

SECTION G 

SCHEDULE AND FUNDING REQUIREMENTS 

FOR RESTORATION AND PROTECTION 

Using the research and feasibility studies from Section E to accomplish the initiatives and 

strategies set forth in Section C, the following schedule and funding requirements have been 

devised. At current funding levels, SJRWMD will provide $3 million over the 5-year planning 

period. The remaining funds to complete the proposed implementation schedule will have to be 

appropriated from other sources. In the event that full funding does not become available, the 

timeline for completion will be extended according to the levels of funding provided. 

The NCB SWIM Plan also calls for a re-evaluation every 3 years, at which time appropriate 

adjustments will be made to both the budget and the schedule. The diagnostic studies previously 

outlined and an evaluation of management options must be completed before a more accurate 

total program cost can be set. 

In addition to this schedule and the re-evaluation, a yearly work plan will be developed and 

refined according to the final SJRWMD budget and approved funding from project partners. The 

yearly work plan will also include an evaluation of the outcome of ongoing and completed 

projects and action steps within each initiative. 

Water Quality Initiative (C.1) 

Strategy: Examine the existing water quality monitoring network and, if necessary, design 

and implement a more integrated network (C.1.1) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Assemble and evaluate 

existing water quality data 6 $30K $50K 

2 — Set watershed water quality 

targets and design enhanced 

monitoring program 

6 $15K 

3 — Implement new sampling plan 24–60 $125K $175K $175K $175K

4 — Assemble and assess 

existing data on tributaries 12 $50K 

 Total $45K $225K $175K $175K $175K
Northern Coastal Basin Surface Water Improvement and Management Plan 

66 

Strategy: Develop and assess water quality and habitat protection targets using hydrologic 

and hydrodynamic water quality models and/or water quality and biological indices, 

where appropriate (C.1.2) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Develop planning document 

for proposed modeling 6 $30K 

2 — Select appropriate modeling 

package 4 $30K 

3 — Identify unavailable data and 

develop an acquisition plan 60 $120K $200K $200K $200K $200K

4 — Calibrate and validate models 36 $100K $100K $100K $100K

5 — Review model output; 

quantify pollution sources 36 $30K 30K $30K 

 Total $180K $300K $330K $330K $330K

Strategy: Enhance and maintain surface waters (C.1.3) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Develop prioritization criteria 4 $25K 

2 — Prioritize surface water 

bodies 1 

3 — Develop adaptive 

management projects 12 $20K 

4 — Coordinate with FDEP to 

evaluate Class II waters 8 $25K 

5 — Implement BMPs for “at risk” 

water bodies 60 $100K $100K $100K $100K

6 — Facilitate development of 

BMP manual for drainage network 

maintenance 

8 $30K 

7 — Encourage maintenance of 

drainage conveyances 36 $10K $10K $10K 

 Total $70K $130K $110K $110K $110K
Section G 

67 

Watershed Master Planning Initiative (C.2) 

Strategy: Evaluate and refine existing watershed master plans (C.2.1) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Examine coverage of 

stormwater plans 6 $30K 

2 — Evaluate and refine existing 

plans for flood abatement and 

water quality improvement 

12 $60K 

3 — Develop a standardized 

master plan outline 6 $40K 

 Total $90K $40K 

Strategy: Assist in the development and endorsement of local master stormwater plans and 

implementation schedules (C.2.2) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Assist in the development of 

master plans 36 $200K $200K $200K

 Total $200K $200K $200K
Northern Coastal Basin Surface Water Improvement and Management Plan 

68 

Stormwater Retrofit and Master Plan Implementation Initiative (C.3) 

Strategy: Prioritize stormwater retrofit programs (C.3.1) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Set retrofit targets and 

prioritize areas for retrofit 6 $50K 

2 — Provide land acquisition 

assistance 12 $50K 

3 — Assist local governments 

seeking funding 48 $50K $50K $50K $50K 

4 — Encourage cost-sharing 60 $500K $500K $500K $500K $500K

 Total $550K $600K $550K $550K $550K

Strategy: Partner with local governments to implement stormwater plans (C.3.2) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Establish and coordinate an 

NCB stormwater management 

group 

60 $15K $15K $15K $15K $15K 

2 — Assist in the implementation 

of master plans 48 $500K $500K $500K $500K

 Total $15K $515K $515K $515K $515K
Section G 

69 

Compliance and Rules Enforcement Initiative (C.4) 

Strategy: Implement existing compliance monitoring programs (C.4.1) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Assess existing permitted 

nonpoint sources 6 $30K 

2 — Establish compliance protocol 

for priority watersheds 12 $50K 

 Total $80K 

Strategy: Assess and manage resources and funding to support the requirements of current 

and emerging National Pollutant Discharge Elimination System regulations, pollutant 

load reduction goals, and total maximum daily load regulations (C.4.2) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Review SJRWMD rules to 

ensure protection of watersheds 6 $25K 

2 — Implement special agreement 

with FDEP 36 $25K $25K $25K $25K 

 Total $25K $25K $25K $25K $25K 
Northern Coastal Basin Surface Water Improvement and Management Plan 

70 

Resource Assessment, Protection, and Restoration Initiative (C.5) 

Strategy: Complete habitat mapping and resource assessment (C.5.1) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Establish a habitat mapping 

and classification program 60 $50K $50K $50K $50K $50K 

2 — Implement a sediment 

assessment plan 60 $20K $50K $50K $50K $50K 

3 — Describe and assess species 

of concern 24 $100K $100K 

4 — Establish functional biological 

targets for estuarine ecosystems 36 $20K $20K $20K 

 Total $170K $200K $120K $120K $120K

Strategy: Protect and manage important estuarine habitats (C.5.2) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Identify land acquisition 

needs 60 $25K $25K $25K 

2 — Coordinate and support land 

acquisition initiatives 60 $10K $10K $10K $10K $10K 

3 — Coordinate land management 

initiatives 60 $10K $10K $10K $10K $10K 

 Total $45K $20K $45K $20K $45K 
Section G 

71 

Strategy: Provide habitat enhancement and restoration (C.5.3) 

Schedule and Funding 

Action Step 

Time 

Frame 

(months) 

Yr 1 Yr 2 Yr 3 Yr 4 Yr 5 

1 — Support local habitat 

protection programs 60 $25K $25K $25K $25K $25K 

2 — Conduct habitat restoration 

projects 60 $50K $100K $100K $100K $100K

3 — Coordinate source reduction 

programs with mosquito control 60 $25K $25K $25K $25K $25K 

4 — Develop and implement 

programs to restore natural 

hydrologic patterns 

60 $20K $20K $20K $250K $250K

 Total $120K $170K $170K $400K $400K
Northern Coastal Basin Surface Water Improvement and Management Plan 

72 
Bibliography 

73 

BIBLIOGRAPHY 

The following bibliography lists all references specifically cited in the preceding text. An 

extensive listing of reference sources for the NCB can be found in Bonnie Holub & Associates 

(1998). A separate technical reference document is currently in preparation by SJRWMD. 

Adamus, C., D. Clapp, and S. Brown. 1997. Surface water drainage basin boundaries: 

SJRWMD: A reference guide. Technical Publication SJ97-1. Palatka, Fla.: St. Johns River 

Water Management District. 

Bonnie Holub & Associates, Inc. 1998. Northern Coastal Basin reconnaissance report. Panacea, 

Fla. 

Driscoll, A., C. John, F. Morris, and P. Victor. 2002. 2-D curvilinear tidal model for the Northern 

Coastal Basin, northeast Florida. AWRA Spring Specialty Conference — Coastal Water 

Resources, New Orleans, La., May 13–15, 2002. 

[EPA] U.S. Environmental Protection Agency. 1998. 1998 303(d) list. Web site: 

http://oaspub.epa.gov/waters/state. 

[FDEP] Florida Department of Environmental Protection. 1998. 1998 Florida water quality 

assessment: 305(b) report. Tallahassee, Fla. 

———. 2000. 2000 Florida water quality assessment: 305(b) report. Tallahassee, Fla. 

Hand, J., V. Tauxe, and M. Friedemann. 1988. Water quality assessment for the state of Florida.

Tallahassee, Fla.: Florida Department of Environmental Protection. 

Huber, W.C., P.L. Brezonik, J.P. Heaney, R.E. Dickinson, S.D. Preston, D.S. Swornik, and M.A. 

DeMaio. 1982. A classification of Florida lakes. Water Resources Research Center 

Publication 72. Gainesville: University of Florida. 

John, C., and F. Morris. 1999. 2-D finite element hydrodynamic and transport model application 

to Tolomato and Guana rivers. Second Northern Coastal Basin Estuary workshop. October 

7–8, 1999. 

———. 2003 (draft). Northern Coastal Basin bathymetric survey — Oak Landing to Ponce de 

Leon Inlet. Technical memorandum. St. Johns River Water Management District, Palatka, 

Fla. 

Miller, J.D., and G.C. Sigua. 2003 (draft). Status and trends of water quality in the Northern 

Coastal Basins. Technical memorandum. St. Johns River Water Management District, 

Palatka, Fla. 
Northern Coastal Basin Surface Water Improvement and Management Plan 

74 

[NOAA] National Oceanic and Atmospheric Administration. 1998. GTMNERR final 

environmental impact statement and management plan. Silver Spring, Md. 

[SJRWMD] St. Johns River Water Management District. 1997. Guana-Tolomato-Matanzas 

Shellfish and Water Quality Task Force progress report. Palatka, Fla. 

———. 2000. District water management plan. Palatka, Fla. 

——— 2001. Florida Forever work plan. Palatka, Fla. 
Appendix I 

75 

APPENDIX I 

IMPLEMENTATION PARTNERS 

The St. Johns River Water Management District recognizes the importance of coordination with 

the many government agencies and other stakeholders that may be affected by, or have some 

jurisdiction over, resources within the Northern Coastal Basin Surface Water Improvement and 

Management planning area. A list of those entities is provided below. A description of the 

responsibilities for these governmental units is given in Chapter 8 of the Year 2000 District Water 

Management Plan (SJRWMD 2000). 

Agencies 

Federal 

U.S. Army Corps of Engineers U.S. Fish and Wildlife Service 

U.S. Environmental Protection Agency U.S. Forestry Service 

U.S. Geological Survey Guana-Tolomato-Matanzas National Estuarine 

Research Reserve 

National Oceanic and Atmospheric Administration 

State 

Department of Environmental Protection Department of Community Affairs 

Public Service Commission Department of Health 

Department of Transportation Department of Agriculture and Consumer Affairs 

Fish and Wildlife Conservation Commission 

Regional 

St. Johns River Water Management District East Central Florida Regional Planning Council 

Northeast Florida Regional Planning Council Florida Inland Navigation District 

Counties 

St. Johns County Volusia County 

Flagler County 

Cities and Towns 

Beverly Beach Palm Coast 

Daytona Beach Ponce Inlet 

Daytona Beach Shores Port Orange 

Flagler Beach South Daytona 

Holly Hill St. Augustine 

Marineland St. Augustine Beach 

Ormond Beach 

Unincorporated Communities 

Crescent Beach St. Augustine Shores 

Ponte Vedra Beach Vilano Beach 

Ponte Vedra 

Stakeholders 

Guana, Tolomato, Matanzas Shellfish and Water 

Quality Task Force Palm Coast Community Service Corporation 

Special taxing districts Mosquito control districts 

University of Florida Whitney Laboratory Florida Audubon Society 

Sierra Club Halifax and Indian River Task Force 
Northern Coastal Basin Surface Water Improvement and Management Plan 

76 
Appendix II 

77 

APPENDIX II 

SURFACE WATER DISCHARGE FACILITIES 

OPERATING WITH A PERMIT 

Name City County Planning Unit 

Domestic Wastewater 

Beverly Beach WWTF Beverly Beach Flagler Pellicer Creek 

Flagler Beach WWTF Flagler Beach Flagler Pellicer Creek 

Palm Coast WWTF Palm Coast Flagler Pellicer Creek 

Inlet Beach WWTF Inlet Beach St. Johns Tolomato/Matanzas 

Marsh Landing WWTF Ponte Vedra St. Johns Tolomato/Matanzas 

Players Club WWTF Ponte Vedra Beach St. Johns Tolomato/Matanzas 

Ponte Vedra WWTF Ponte Vedra Beach St. Johns Tolomato/Matanzas 

Sawgrass WWTF Ponte Vedra Beach St. Johns Tolomato/Matanzas 

Blacks Ford WWTF St. Augustine St. Johns Tolomato/Matanzas 

Frog Hollow Mobile Home Park and 

Campground WWTF St. Augustine St. Johns Tolomato/Matanzas 

St. Augustine WWTF St. Augustine St. Johns Tolomato/Matanzas 

State Road 16 WWTF St. Augustine St. Johns Tolomato/Matanzas 

Anastasia Island WWTF St. Augustine St. Johns Tolomato/Matanzas 

Mill Creek Elementary School WWTF St. Augustine St. Johns Tolomato/Matanzas 

St. Augustine Island WWTF St. Augustine St. Johns Tolomato/Matanzas 

Daytona Beach/Bethune Point Daytona Beach Volusia Halifax River 

City of Holly Hill Holly Hill Volusia Halifax River 

City of Ormond Beach Ormond Beach Volusia Halifax River 

City of Port Orange Port Orange Volusia Halifax River 

Industrial Wastewater

Concrete Batch (CB) Plants

Florida Rock Industries, St. Augustine St. Augustine St. Johns Tolomato/Matanzas 

Rinker Materials, North St. Augustine 

Facility St. Augustine St. Johns Tolomato/Matanzas 

Tarmac, St. Augustine St. Augustine St. Johns Tolomato/Matanzas 

Cemex/Daytona Beach CB plant Holly Hill Volusia Halifax River 

Rinker Materials/Ormond Beach CB plant Ormond Beach Volusia Halifax River 

Other Industrial

Palm Coast Membrane Softening Facility Palm Coast Flagler Pellicer Creek 

VCDSWM/Tomoka Farms Road landfill Daytona Beach Volusia Halifax River 

Petroleum Cleanup

BP station 24650 Ormond Beach Volusia Halifax River 

Note: WWTF = wastewater treatment facility 
Northern Coastal Basin Surface Water Improvement and Management Plan 

78 
Appendix III 

79 

APPENDIX III 

FACILITIES POSSESSING 

MULTI-SECTOR GENERAL PERMITS 

Facility Name City County Planning Unit 

Kanthal Palm Coast Palm Coast Flagler Pellicer Creek 

Sea Ray Boats Inc. Palm Coast Flagler Pellicer Creek 

Sunbelt Chemicals Palm Coast Flagler Pellicer Creek 

Treworgy Yachts Inc. Palm Coast Flagler Pellicer Creek 

Anastasia Island Wastewater Treatment Plant St. Augustine St. Johns Tolomato/Matanzas 

Apac-Florida Inc., Jacksonville Division St. Augustine St. Johns Tolomato/Matanzas 

BFI Waste Systems St. Augustine St. Johns Tolomato/Matanzas 

BFI Waste Systems St. Augustine St. Johns Tolomato/Matanzas 

Camachee Cove Yacht Harbor Inc. St. Augustine St. Johns Tolomato/Matanzas 

Domestic Wastewater Treatment Facility St. Augustine St. Johns Tolomato/Matanzas 

Luhrs Corp. St. Augustine St. Johns Tolomato/Matanzas 

Nine Mile Road Inc. St. Augustine St. Johns Tolomato/Matanzas 

Nine Mile Road Inc. St. Augustine St. Johns Tolomato/Matanzas 

Northrop Grumman Corp. St. Augustine St. Johns Tolomato/Matanzas 

Potomac German Auto South St. Augustine St. Johns Tolomato/Matanzas 

Sawgrass Wastewater Treatment Facility Ponte Vedra Beach St. Johns Tolomato/Matanzas 

St. Augustine Marine St. Augustine St. Johns Tolomato/Matanzas 

St. Augustine Ready-Mix Plant St. Augustine St. Johns Tolomato/Matanzas 

St. Augustine-St. Johns County A/P St. Augustine St. Johns Tolomato/Matanzas 

State Road 16 Wastewater Treatment Plant St. Augustine St. Johns Tolomato/Matanzas 

VAW of America Inc. St. Augustine St. Johns Tolomato/Matanzas 

Xynides Boatyard Inc. St. Augustine St. Johns Tolomato/Matanzas 

Airborne Express Daytona Beach Volusia Halifax River 

Classic Painting Ormond Beach Volusia Halifax River 

Crane Cams Inc. Daytona Beach Volusia Halifax River 

Daytona Beach International Airport Daytona Beach Volusia Halifax River 

Daytona Beach International Airport Daytona Beach Volusia Halifax River 

Daytona Beach Jet Center Daytona Beach Volusia Halifax River 

Daytona Beach Public Works Daytona Beach Volusia Halifax River 

Daytona Beach Vmf Daytona Beach Volusia Halifax River 

Daytona Ready-Mix Plant Daytona Beach Volusia Halifax River 

Federal Express Corp. Daytona Beach Volusia Halifax River 

Federal Sign Daytona Beach Volusia Halifax River 

FRS Daytona Beach Daytona Beach Volusia Halifax River 

Holly Hill Salvage & Junk Holly Hill Volusia Halifax River 

Nascar Aviation Department Daytona Beach Volusia Halifax River 

Ormond Aviation Inc. Ormond Beach Volusia Halifax River 

Ormond Beach Airport Ormond Beach Volusia Halifax River 
Northern Coastal Basin Surface Water Improvement and Management Plan 

80 

Facility Name City County Planning Unit 

Ormond Beach Municipal Airport Ormond Beach Volusia Halifax River 

Rams Aviation/Ormond Beach Inc. Ormond Beach Volusia Halifax River 

River Bend Investment Group Ormond Beach Volusia Halifax River 

Roadway Express Inc. (T710) Daytona Beach Volusia Halifax River 

Seven Seas marina and boatyard Daytona Beach Volusia Halifax River 

Southside Auto Parts South Daytona Volusia Halifax River 

Speedway Auto Parts Daytona Beach Volusia Halifax River 

Sunrise Aviation/Mac Charter Ormond Beach Volusia Halifax River 

Tanning Research Laboratories Ormond Beach Volusia Halifax River 

Tomoka Farms Road landfill Daytona Beach Volusia Halifax River 

United Parcel Service Inc. Daytona Beach Volusia Halifax River 

Volusia County sheriff’s aviation hangar Daytona Beach Volusia Halifax River 

Waste Management Inc. of Florida Ormond Beach Volusia Halifax River 
Appendix IV 

81 

APPENDIX IV 

LOCAL GOVERNMENT CAPITAL 

IMPROVEMENT PROJECTS 

One of the important roles that local government plays in maintaining water quality in the Northern Coastal Basin (NCB) is through the improvement and maintenance of stormwater water facilities, drainage easements, catch basins, and other facilities under their 

jurisdiction. Ongoing capital improvement programs are costly, but necessary, and provide a good example of local governments’ commitment to good water quality. Listed below, by SWIM Plan Initiative and responsible entity (in alphabetical order), are thetentative 5-year capital improvement projects of local governments in the NCB. Projects listed include those that have been identified 

as well as those that are actually scheduled to begin. The cost estimates for each project are a cumulative total for the 5 years, 

beginning with FY 2004. Projects preceded by an asterisk indicate priority projects within the Halifax River planning unit. 

Project Entity Cost Estimate 

Water Quality Initiative Projects

Establish the present hydrodynamic station on the lower Tomoka River-USGS 02247598, as a permanent, real-time tidal monitoring station for use by the public (boating, recreational fishing, etc.) and park management (dragline ditch restoration, marsh-grass planting, etc.) 

Tomoka Park $50,000 

Re-install a water level recorder on the Korona Canal at Old Kings Highway to monitor water stage and tributary discharge to Bulow Creek Tomoka Park $10,000 Increase water quality sampling to 12 events for six of the 34 sample locations in the Halifax River Volusia County $15,000 (annually)

Watershed Master Planning Initiative Projects 

Stormwater Master Plan update Ormond Beach $100,000 Develop Stormwater Master Plan Palm Coast $100,000 Stormwater Master Plan update Port Orange $100,000 Stormwater Master Plan update South Daytona $100,000 

Stormwater Retrofit and Master Plan Implementation Initiative Projects 

*B-3 Pond and Wilder Boulevard outfall drainage improvements Daytona Beach $3,344,000 *Madison Avenue stormwater improvements Daytona Beach $2,495,000 *Stormwater Master Plan projects for downtown redevelopment Daytona Beach $1,931,300 
Northern Coastal Basin Surface Water Improvement and Management Plan 

82 

Project Entity Cost Estimate 

Bay Street/Palmetto Avenue/Charles Street drainage improvements Daytona Beach $8,198,000 Lenox/Grandview drainage and outfall improvements Daytona Beach 4,799,423 Bel Aire/Waverly drainage improvements Daytona Beach 1,635,100 Oleander/Riverview/Glenview drainage improvements Daytona Beach 1,145,000 Hartford Avenue drainage and outfall improvements Daytona Beach 1,550,000 Kennedy Street stormwater (4th and Flagg Street pond) Daytona Beach 91,000 Fairview Avenue Stormwater Management Plan Daytona Beach 655,300 Ocean Dunes drainage improvements Daytona Beach 1,700,000 Fourth Street drainage improvements Daytona Beach 1,800,000 Mirror Lake Flagler Beach 235,000 South Flagler Avenue Flagler Beach 177,000 Venice Park Flagler Beach 185,000 Palm Circle Flagler Beach 130,000 Joyce and Connecticut swale construction Flagler Beach 75,000 11th Street swale construction Flagler Beach 60,000 Marineland Acres stormwater improvements Flagler County 2,000,000 Nova Canal watershed improvements Holly Hill 350,000 *Lisa Lake sediment dredging Ormond Beach 500,000 *John Anderson drainage improvements Ormond Beach 2,000,000 *Rockefeller Drive outfall water quality structure Ormond Beach 150,000 *Sanchez Avenue ditch piping and outfall improvement and Sanchez Park boat ramp parking grading and stormwater runoff control Ormond Beach 360,000 South Ridgewood drainage improvements Ormond Beach 800,000 Live Oak Avenue outfall water quality structure Ormond Beach 100,000 Rockefeller Gardens drainage and outfall improvement Ormond Beach 800,000 Melrose Avenue water quality structure Ormond Beach 100,000 New Britain water quality structure Ormond Beach 100,000 Alanwood, Ridgewood, and Sanchez drainage improvements Ormond Beach 700,000 Alcazar, Buena Vista, and Seville drainage improvements Ormond Beach 850,000 Roadside swale rehabilitation Palm Coast 1,564,000 Aerial Photography/Lidar with contours Palm Coast 350,000 
Appendix IV 

83 

Project Entity Cost Estimate 

Drainage pipe replacement Palm Coast $750,000 Benchmark and Vertical Datum Project Palm Coast 300,000 Drainage system inventory Palm Coast 300,000 Street Valley gutter drainage improvements Palm Coast 770,000 Culvert and mitered end rehabilitation 

Palm Coast and Palm 

Coast Community 

Service Corp. 

1,430,000 

Canal control structure access and rehabilitation Palm Coast Community Service Corp. 253,000 Lehigh Canal rehabilitation Palm Coast Community Service Corp. 1,450,000 *Cambridge Canal, Rose Bay drainage basin Port Orange *B-19 retention basin Port Orange 750,000 *The Cove/White Acres regional retention Port Orange 750,000 Land acquisitions Port Orange 250,000 Storm sewer reconstruction Port Orange 200,000 Installation of drainage pipe Port Orange 16,827 Storm drainpipe lining Port Orange 990,350 Drainage cost participation Port Orange 250,000 Area A outfall, U.S. 1 baffle boxes Port Orange 500,000 *Reed Canal stormwater management facility South Daytona 150,000 *Boston Avenue stormwater improvements South Daytona 200,000 *48” Palmetto Avenue (2283) South Daytona 150,000 Sauls Road deep ditch piping South Daytona 300,000 Palmetto improvements “F” and “E” South Daytona 395,000 Violet “A” South Daytona 420,000 Steele “A” South Daytona 500,000 Anastasia “B” South Daytona 660,000 Myrtle “A” South Daytona 600,000 Greenacres/Palm View/Sheri storm water South Daytona 600,000 Segrave Street 1600 and 1700 blocks South Daytona 200,000 
Northern Coastal Basin Surface Water Improvement and Management Plan 

84 

Project Entity Cost Estimate 

36” Halifax Center South Daytona $100,000 36” Palmetto extension 2400 block South Daytona 100,000 15” Sandusky Circle South Daytona 30,000 24” Palmetto Avenue (2185) South Daytona 80,000 18” Palmetto Avenue (2003) South Daytona 60,000 Reef Road drainage outfall South Daytona 10,440 North Vilano Beach stormwater drainage improvements St. Johns County 500,000 St. Johns County stormwater retrofit improvements St. Johns County 5,000,000 *North Peninsula swale project and stormwater improvement, Phase I Volusia County 500,000 *Raleigh Drive, Atlanta Drive, Culverhouse Drive, Derbyshire Road, and Carmen Avenue flooding Volusia County 310,000 *Reed Canal spoil disposal/sedimentation basin Volusia County 225,000 *Tomoka Farms at Old Daytona Road culvert replacement Volusia County 200,000 Airport Road retention area Volusia County 225,000 Daytona High Ridge Estates Volusia County 225,000 Village of Pine Run — Oak Lane box culvert/Pine Tree Drive culvert Volusia County 330,000 Korona Canal, Phase II Volusia County 200,000 

Compliance and Rules Enforcement Initiative Projects 

Storm system cleaner vac truck Ormond Beach $200,000 Street sweeper vacuum system South Daytona 180,000 Walking excavator and dump truck Daytona Beach 330,000 Excavator and dump trucks Palm Coast 274,000 Small vac truck Palm Coast 142,000 

Resource Assessment, Protection, and Restoration Initiative Projects

*Saltmarsh habitat restoration Tomoka Park $600,000 *Inventory the flora and fauna of the estuarine marshes of Tomoka River and Bulow Creek Tomoka Park 30,000 *Determine the taxonomic status (morphological and genetic analysis) and population distribution of the Atlantic saltmarsh snake in the estuarine marshes of the Tomoka River and Bulow Creek Tomoka Park 30,000 *Restore the natural hydrology of Bulow Creek by the removal of the large sandbar obstruction in the channel at the mouth of the Korona Canal. Project includes installation of sediment control structures in the Korona Canal to prevent future sediment deposition 

East Volusia Mosquito 

Control District 100,000 
Appendix IV 

85 

Project Entity Cost Estimate 

*Shoreline stabilization within county parks along the Halifax River and exotic plant removal and native plant re-nourishment within county parks along the Halifax River Volusia County $40,000 Acquire the 1,100-acre impoundment and other wetlands and upland tracts identified for the optimum boundary of Bulow Creek State Park and Tomoka State Park in the Multi-Park Unit Management Plan Tomoka Park 2,000,000 Spruce Creek Basin acquisition (10 parcels) Volusia County 3,168,792 Tomoka River acquisition (1 parcel) Volusia County 1,808,606 Halifax River Basin acquisition (4 parcels) Volusia County 1,950,000 Central Park land acquisition Ormond Beach 100,000 Habitat preservation of the Russell property Ormond Beach 1,300,000 Habitat preservation of Alligator Island Ormond Beach — Habitat preservation of Dodson Creek Ormond Beach 320,000 Habitat preservation of parcel 4238-01-31-0010 Ormond Beach 500,000 Habitat preservation of the Goldy parcel Ormond Beach 90,000 Habitat preservation of Sun Country Ormond Beach 365,000 Habitat preservation of the Wolcott property Ormond Beach 190,000 Moultrie Creek shoreline stabilization St. Johns County 250,000 Summerhaven shoreline revegetation St. Johns County 110,000 Fort Mose land acquisition St. Johns County 407,000  Total $77,121,138 

Note: — = no information supplied