City of Lakeland 

Public Works Department 

Lakes & Stormwater Division 

April 2005 

CITY OF LAKELAND 

STORMWATER UTILITY 

OVERVIEW AND STATUS REPORT
TABLE OF CONTENTS 

INTRODUCTION 3 

STORMWATER UTILITY PROGRAM 4 

POLLUTION CONTROL DEVICES 7 

CAPITAL IMPROVEMENT PROJECTS 9 

Lake Bonnet Diagnostic Study 9 

Lake Bonnet Drain Flood Study 10

Lake Gibson Southwest Basin Retrofit Project 11

Lake Hollingsworth Alum Treatment Project 12

Lake Hollingsworth Southern Landing Treatment Wetland Project 13

 Lake Hollingsworth Dredging Project 14

Lake Hollingsworth West Side Stormwater Treatment Project 15

 Lake John Shoreline Stabilization Project 16

 Lake Mirror Main Street Water Quality & Flood Control Project 17

 Lake Mirror Park Stormwater Master Plan Study 18

 North Lake Mirror Promenade/Main Street Re-Alignment 19

 Lake Morton Diagnostic Study 20

 Lake Morton Master Plan 21

 Lake Parker Griffin Road Stormwater Treatment Wetland 22

 North Lakeland Regional Stormwater Master Plan 23 

 Lake Parker Shoreline Erosion Control 24

 Lake Parker Shoreline Erosion Control 25

 Lake Parker Water Quality Improvement Project 26

Lake Parker Southwest Outfall Project 27

 Lake Parker Tributary Swamp Restoration 28

 Capital Improvement Projects: Drainage Projects 29

NPDES STORMWATER ACTIVITIES 30 

TOTAL MAXIMUM DAILY LOAD (TMDL) 31 

REGULATORY ACTIVITIES 33 

PUBLIC EDUCATION AND OUTREACH 34 

Adopt-A-Lake Program 34

 Educational Workshops – The Florida Yards and Neighborhoods 36

 Speaker’s Bureau 37

 Other Public Education and Outreach Projects 38

 Lakes Education and Action Drive (LE/AD) 42

LAKE MONITORING 44 

AQUATIC PLANT CONTROL 46 

APPENDIX A. COMPREHENSIVE LAKES MANAGEMENT PLAN 

EXECUTIVE SUMMARY 48
INTRODUCTION

The following report outlines the programs and activities that have been undertaken 

since the inception of the Stormwater Utility in 1999. The Utility was adopted by the City 

of Lakeland City Commission following the completion of the Comprehensive Lakes 

Management Plan (BCI, 1996). The study provided a 20-year master plan that prioritized 

sixteen of the City’s water bodies, a schedule and cost estimates for implementation, 

and options for funding the program. 

The Lake Hollingsworth sediment removal project was the impetus for developing a 

master plan. In order to fund the sediment removal project, the City Commission had to 

cut several projects and tap into reserve funds. It was apparent that the current level of 

funding for the Lakes Program would not support major watershed management 

projects. The Plan noted that the existing funding level only supported “maintaining 

existing surface water flows, repairing system problems as they develop, water quality 

monitoring, aquatic plant management, trash removal, and response to complaints”. It 

was determined that an annual budget of $4.3 million was needed to implement the 

Plan, and that a Stormwater Utility was the most equitable means of generating the 

additional revenue (Appendix A). 

Based on the report’s findings and recommendations, the City Commission adopted the 

Stormwater Utility effective April 1, 2000. A sunset provision was included in the 

ordinance that read as follows: 

“Absent the affirmative action of the City Commission by the adoption of a 

duly-enacted ordinance after public hearing, in conjunction with the public 

hearings for adoption of the Operating Budget for Fiscal Year 2005-2006, 

this ordinance shall sunset and be repealed by operation of law on 

September 30, 2005.” 

This report is intended to assist the City Commission in their deliberations on the merits 

of reauthorizing the Utility. There have been some important developments since the 

publication of the Comprehensive Lake Management Plan. Most significant is the new 

EPA/FDEP regulatory program involving the identification of impaired waters and the 

development of Total Maximum Daily Loads (TMDLs) as a means of correcting 

impairments. There is a section in this report that further explains the program and its 

potential fiscal impact on the City of Lakeland. 

The Stormwater Fund is currently set up to receive revenues from the Stormwater Utility. 

This fund is used by the Public Works Department for capital improvement projects, 

drainage projects, public education, and operations and maintenance. Two full time 

environmental specialist positions are funded through the Stormwater Fund. In addition 

to the approximately $1.3 million collected annually from Utility fees, the fund receives 

$1.2 million from the Transportation Fund along with grant funds that have averaged 

approximately $150,000 to $200,000 per year, combining for a total of approximately 

$2.65 million to $ 2.7 million of annual revenue. 

The following sections provide a brief overview of the programs operating out of the 

Stormwater Fund. 

3
STORMWATER UTILITY PROGRAM 

Introduction and Justification 

Stormwater has been identified as the number one source of pollutant loading to lakes 

and rivers. 

The City of Lakeland’s lakes are important assets to the local community. They provide 

recreational opportunities and are the natural habitat for fish, birds, and other wildlife that 

are reliant on healthy lakes for their survival. If left untreated, stormwater runoff would 

pollute the City’s lakes. Therefore, preventative stormwater treatment and watershed 

management are necessary to protect these natural resources from degradation.

In December 1999, the Lakeland City Commission adopted the Stormwater Utility to 

provide a dedicated funding source for operation and maintenance of our City 

stormwater system (to include extension and replacement), pollution abatement devices, 

and lake improvement projects. 

The Stormwater Utility is a unit within the City that provides stormwater management. 

Like water, wastewater, solid waste, recycling, and electric utilities - the Stormwater 

Utility generates its revenue through user fees. These fees are used for construction, 

maintenance and operation of stormwater management devices, for stormwater systems 

planning and for lake management. The stormwater utility fee is included as a separate 

item on the utility bill and is due each month through the monthly utility payment. 

All developed property within the City limits that receive an electric utility bill are charged 

a stormwater service fee. This includes residences, businesses, churches, and schools. 

The base fee is $2.00 per month for single-family residential customers. Mobile homes 

and attached multi-living residential units are assessed $1.34 and $1.19 per month 

respectively. The City does allow owners to apply for as much as a 75% credit if all of 

the stormwater is treated on-site prior to leaving the site, and a lesser credit based on 

the portion of stormwater that is treated. In a few instances an exclusion (100% credit) 

from the stormwater fee is granted if all of the stormwater remains on-site. 

Fees for non-residential customers are based on the amount of impervious (pavement, 

roofs, sidewalk) area on each property. Exclusive of any credit, non-residential 

customers are assessed a monthly rate of $2.00 per 5000 square feet of impervious 

area. Bills are sent to customers currently receiving a monthly electric bill. Owners of 

rental properties may arrange to have the Stormwater Utility bills sent directly to tenants.

Benefits

The benefits from the funds generated by this utility are illustrated throughout this report 

by the wide variety of various capital improvement projects and educational programs 

that have been created since the utility’s inception. 

Monies generated from the stormwater utility fee also pay the salaries for 2 full time 

environmental specialist employees. One of the positions is paid through Project 

#006576 – Stormwater Administration, which is annually allocated $50,000.00 for the 

project’s budget. The other position is paid through Project # 006144. NPDES Permit 

Administration which is annually allocated $60,000.00 for its project budget. The 

4
positions are responsible for a number of tasks that are vital to the success of the Lakes 

and Stormwater Division. Several of their major duties include: 

1) Overseeing the stormwater utility accounts (e.g. coordinating account 

administration with the Billing Office, calculating impervious areas to determine 

the billing amount, reviewing application) 

2) Assisting with the Stormwater Utility Fund CIP planning program, which 

includes identifying and prioritizing stormwater needs, project management, 

submitting applications for grant monies and administering awarded grant 

monies, and supervising contractors and consultants through the project process. 

3) NPDES administration – refer to Section 4.0 NPDES Stormwater Activities. 

4) Performing regulatory duties which includes investigating complaints, 

performing compliance inspections, specifically inspecting erosion and sediment 

control plans to be employed during construction activities. 

5) Assisting with lake and stormwater education/public relations through such 

activities as the development and implementation of public education programs, 

giving presentations about the City of Lakeland’s stormwater program, and 

assisting with Adopt-A-Lake activities. 

Revenue 

The following table illustrates the amount of funding generated since the utility’s creation. 

From May 2000 through September 2004, a total of $5.588 million has been generated 

from this utility. 

Table 1. Stormwater Utility Revenue 

Fiscal Year Commercial/Municipal Residential TOTAL

2000 $ 192,963.25 $ 282,623.46 $ 475,586.71 

2001 $ 508,693.32 $ 693,226.42 $ 1,201,919.74 

2002 $ 569,726.71 $ 703,237.55 $ 1,272,964.26 

2003 $ 601,657.20 $ 709,191.80 $ 1,310,849.00 

2004 $ 606,462.20 $ 720,829.24 $ 1,327,291.44 

TOTAL $ 2,479,502.68 $ 3,109,108.47 $ 5,588,611.15 

5
The following table illustrates the breakdown of different customer categories that 

contribute to the stormwater utility fund since December 2004. 

Table 2. Customer Categories of Various Stormwater Utility Accounts. 

Industrial 34

Commercial 2,329

City 30

Total Commercial 2,393

Residential 20,139

Mobile Homes 7,469

Apartments 12,995

Total Residential 40,603

TOTAL 42,996

6
POLLUTION CONTROL DEVICES 

Introduction and Justification

Stormwater picks up chemicals, pesticides, oil, leaves, and other pollutants as it travels 

across the landscape. These materials are carried to our lakes by pipes and ditches.

Untreated stormwater can degrade a lake by filling the basin with sediments and debris, 

and by carrying dissolved chemicals into the waterbody. In an effort to reduce the

pollutant loading from stormwater, the City of Lakeland’s Lakes & Stormwater Division

has installed various pollution control devices (PCDs). These devises control pollution by 

separating and holding debris and chemicals, while still allowing water to flow through.

Currently, the City utilizes three types of PCDs, curb inlet baskets, a baffle box, and a 

continuous deflective separation (CDS) unit. 

Locations

There are currently 50 curb inlet baskets installed in

Lakeland; 49 in the Lake Hollingsworth watershed and 

one that C&M installed near Lake Mirror. The units 

were installed into existing inlets and manholes. A curb

inlet basket traps leaves, grass, sediments, paper,

bottles, and other trash while allowing water to flow 

down through the storm drains. They also ensnare 

various chemicals in a fibrous boom encircling the 

opening.

Also near Lake Mirror, the City has installed a

Continuous Deflective Separation, or CDS, unit. This 

unit, located beneath the ground, acts as a large filter by 

stopping trash, leaves, sediments and debris from 

entering the lake. Stormwater flows through the system 

where objects larger than 1/5 of an inch are trapped by a 

screen. The filtered stormwater is then discharged into

Lake Mirror. 

The City of Lakeland’s Baffle Box, 

located at Success Avenue and Lake

Hollingsworth Drive, is another PCD 

utilized to improve the quality of the 

water entering the lake. The Baffle Box

intercepts dirt, leaves and trash flowing

in the storm drain pipe that collects

water from a 25-acre sub-basin south of

McDonald Street. The deep wells in the 

Baffle Box allow heavy particles to settle 

out while the elevated baskets capture

floating debris. The annual Total 

Suspended Solids (TSS) removal is 

eighty percent (80%), based on a 50-

micron size particle.

7
Pollutant Removal Data 

PCD Pounds removed

Curb Inlet Baskets (since 2001) 36,870 lbs. 

CDS unit 

(Approximately 23 cleanings x 

502lbs/cleaning =) 

11,546 lbs. 

Baffle Box 

(Approximately 15 cleanings x 

525lbs/cleaning =) 

7,875 lbs. 

Total 56,291 lbs.

Cost Analysis 

Installation of curb inlet baskets (Hollingsworth & Mirror) $ 38,970 

Annually to maintain 50 baskets $ 6,000 

CDS install $ 22,251

Annual average to maintain CDS $ 731 

Baffle Box install $106,500 

Annual Average to maintain Baffle Box $ 1,188 

Location Map

8
CAPITAL IMPROVEMENT PROJECTS 

Lake Bonnet Diagnostic Study

August 2001-September 2002 

Introduction and Justification 

A diagnostic study of Lake Bonnet was initiated in May 2001 to evaluate current lake 

conditions and to identify sources of lake pollution. The study focused on the lake’s poor

water quality caused by over enrichment by nutrients. The study identified stormwater

runoff and in-lake sediment resuspension as the primary sources of nutrient loading.

Study recommendations included retrofitting stormwater outfalls around the lake, and a 

rough fish harvesting program to reduce resuspension of nutrients from the sediments. 

Benefits

A diagnostic study is the first step in developing a watershed management program. It 

identifies the current condition of a lake and sources of problems. Such a study is a

beneficial tool in identifying what measures need to be taken in order to reduce pollutant

loading and subsequently improve water quality and overall lake health.

Costs

Diagnostic study $ 79,920

Figure 1. Aerial view of Lake Bonnet and surrounding watershed.

9
Lake Bonnet Drain Flood Study

March 2004 – August 2004

Introduction and Justification 

Lake Bonnet Drain, serving as the outfall from Lake Bonnet, discharges to

Itchepackesassa Creek. The study was conducted to identify the source(s) of frequent

flooding in the May Manor Mobile Home Park. City of Lakeland staff have responded to 

numerous requests for service over the years from the affected homeowners. The study

included a hydrologic evaluation of the watershed, conveyance system, and related

drainage structures from the Lake Bonnet control structure at Brunnell Parkway to the 

Howard Avenue bridge crossing. 

Benefits

The purpose of the study is to identify and quantify flooding conditions that occur to

numerous properties in May Manor. The potential flood relief improvements are required 

to be consistent with FEMA regulations for floodplain management and with the

Southwest Florida Water Management District’s (SWFWMD) permit requirements for 

flood protection.

Costs

Total Study Cost $ 42,790

SWFWMD Matching Grant Funds $ 21,193 

Figure 2. Flooding at May Manor.

10
Lake Gibson Southwest Basin Retrofit Project 

September 2004 – Present 

Introduction and Justification 

Lake Gibson, a natural lake located in north Lakeland, is considered to be one of the 

healthiest lakes in the City, with excellent water quality and a well-balanced assemblage 

of aquatic organisms. Over the last decade, there has been an increase in development

activities, particularly the areas in the southwest part of the watershed. Land use in this 

230-acre basin is mixed. A regional mall, highway widening, commercial development,

and hotel/apartment construction have all occurred in recent years in this area. Surface

runoff through the sub-basin is channeled into a highly modified ditch / stream that runs 

from the upper reaches of the basin in the southwest to the discharge point at the lake.

The extensive development of land has greatly increased the peak runoff rates and 

volumes, and reduced base flow. This has resulted in erosion of the stream channel 

with the deposition of eroded sediments in Lake Gibson. A large sediment delta has 

formed at the mouth of the stream. In addition to the increase in peak flows, stormwater 

runoff quality is poor.

Benefits

The study will include an ecological and engineering analysis of the stream and the 

contributing watershed, characterization of the hydrology of the basin, modeling of the

drainage system; estimation of pollutant loadings to Lake Gibson from this basin, and 

development of a conceptual plan to address and alleviate problems that have been

identified by the City. The analysis will include stormwater runoff monitoring, flow

monitoring, and surveys of the existing baseline conditions. The conceptual design will

incorporate enhancement of existing treatment systems and will examine the feasibility

of providing additional treatment wetlands in the basin. The evaluation phase should be 

completed FY 2005. 

Costs

Management Plan (budgeted) $ 236,000 

SWFWMD Matching Grant Funds $ 124,380 

.

Figure 3. Aerial view of Lake Gibson project area.

11
Lake Hollingsworth Alum Treatment Project 

October 2003 – January 2004 

Introduction and Justification 

Lake Hollingsworth is a eutrophic water body in a highly urbanized portion of the City of 

Lakeland. Previous studies have demonstrated that lake sediments and stormwater 

runoff contributes significant nutrient loads to the lake. The City conducted a dredging

project that removed approximately 3 million cubic yards of organic sediment from the 

lake bottom, but additional watershed retrofit projects were necessary to reduce pollutant

loads and meet water quality goals. Alum treatment was identified as a cost effective

tool to clarify water, inactivate phosphorus release from lake sediments, and reduce 

algal production. It was hypothesized that improved water clarity would facilitate the

establishment of submerged aquatic vegetation, which in turn, would provide long term 

water quality and wildlife habitat improvements. The alum application was conducted in

December 2003.

Benefits

The whole lake alum application improved water clarity and established more suitable

conditions for the growth of submerged grass beds. In the past, the lake water was so

cloudy that there was not enough light reaching the bottom to allow the plants to survive.

If enough submerged vegetation is established, these plants can compete with 

phytoplankton for nutrients, and provide a long-term, low cost method for maintaining

good water clarity in the lake. In addition, the grass beds will provide an excellent

habitat for fish and wildlife.

Since the alum treatment was completed, there has been a marked improvement in lake 

water quality. This includes significant decreases in nutrient concentrations

(phosphorus, nitrogen), algal densities, and lead and bacteria concentrations. There has 

also been a significant increase in water transparency and submerged vegetation. 

Costs

Pre-application evaluation costs $ 12,476 

Alum application costs $ 79,023 

Total Project Cost $ 91,499

SWFWMD Matching Grant Funds $ 45,749 

Figure 4. Improved water clarity as a result of the alum treatment applied to Lake Hollingsworth.

12
Lake Hollingsworth Southern Landing

Treatment Wetland Project 

September 2004 – Present 

Introduction and Justification 

Lake Hollingsworth is a eutrophic water body in a highly urbanized portion of the City of 

Lakeland. Previous studies have demonstrated that stormwater runoff contributes a

significant nutrient and sediment load to the lake. The City has completed a dredging

project and whole lake alum treatment on the lake, but stormwater retrofit projects are

necessary to further reduce pollutant loads. The 1995 Lake Hollingsworth Watershed

Management Plan identified potential locations for the creation of stormwater treatment

facilities. Southern Landing was included as a potential area for such a facility.

Benefits

The recently completed Southern Landing project is located directly across from Florida

Southern College on the shore of Lake Hollingsworth. The 1.3-acre treatment wetland

was designed to provide treatment to a 66-acre sub-basin on the northwest side of Lake

Hollingsworth. In addition to the treatment of stormwater, the wetland will serve as an 

outdoor laboratory for the college. The wetland will include boardwalks that will allow

public access through and across the facility. Upland areas, including areas along the 

shoreline will be preserved to provide continued use by the college for various activities

and recreation. A ceremony to commemorate the opening of the park took place 

November 15, 2004. 

Costs

Design and Construction Costs $535,000

SWFWMD Matching Grant Funds $147,230

Figure 5. Aerial View of Southern Landing.

13
Lake Hollingsworth Dredging Project 

September 1995 – Present (Permit Closure Activities)

Introduction and Justification 

Lake Hollingsworth, a 355-acre lake located in the heart of Lakeland, is the premier

recreational resource for the local community. For decades, City officials had

recognized that the lake had become highly degraded due to the accumulation of

organic sediment upon the lake bottom. Following a diagnostic feasibility study

completed in November 1994, it was determined the organic sediment was responsible 

for as much as 70 to 80% of the nutrient enrichment in the lake. In addition, a lake

sediment volume assessment determined that the average total depth of the lake was 10 

feet but that accumulated organic sediment occupied 6 feet (60%) of the lake volume

and resulted in a mean lake depth of 4 feet. 

Benefits

The project resulted in the removal of 2.9 million cubic yards of organic sediments.

Dredging was halted due to a record two year drought. Some targeted sediment

deposits remain in the lake, and may be recommended for removal in the future. 

Following completion of the dredging project, water quality sampling indicated significant

decreases in total nitrogen, chlorophyll a, bacteria and lead levels. 

Costs

Total Costs1 $10,949,103

EPA Federal Grant $ 3,500,000 

SWFWMD Matching Grant Funds $ 748,240

1 Stormwater Utility Fund provided $1,454,664.55 of total cost. Remaining monies provided by earlier

funding sources.

Figure 6. Lake Hollingsworth being dredged.

14
Lake Hollingsworth West Side Stormwater Treatment Project 

September 2002 - Present

Introduction and Justification 

As part of the City’s overall goal to reduce pollutant loadings into Lake Hollingsworth, the

City has developed conceptual plans to construct stormwater treatment wetlands on the

west side of the lake. The plan consists of constructing linear wetland strands along the 

lakeshore. The strands will be approximately 30’ wide and will be vegetated with

wetland plants. Lakes and Stormwater staff are currently working with engineering

consultants to develop final design plans. Subsequent tasks will include permitting, 

easement acquisition and construction.

Benefits

The strands will intercept stormwater runoff from 13 existing outfall pipes that currently

discharge untreated stormwater into the lake from a 217 acre sub-basin. Locating the 

strands near the lakeshore was necessary hydraulically, but will also serve to preserve 

the open space and recreational nature of the remaining upland areas between the lake 

and road.

Costs

Conceptual Design $ 21,710

Estimated Design/Permitting Costs $ 35,600 

Estimated Future Construction Costs$384,500 

Figure 7. Lake Hollingsworth West Side Stormwater Treatment Project.

15
Lake John Shoreline Stabilization Project 

June 2004 - Present

Introduction and Justification

Shoreline erosion of Lake John has been occurring at Peterson Park along the peninsula 

that contains the bike/foot path. The erosion is being caused by boat wakes from boaters

using the ramp at Peterson Park and by residents accessing the narrow waterways east

of the park.

Benefits

To address this issue, the Lakes and Stormwater Division developed a stabilization 

project to repair and stabilize shoreline near the bridge crossing and shoreline adjacent

to the bridge. Construction is scheduled for FY 2005. 

Costs

Estimated Design/Permitting/Construction Costs $ 24,873 

Figure 8. Bank eroding under bridge located on Lake John. 

16
Lake Mirror Main Street Water Quality & Flood Control Project 

September 2000 – August 2003

Introduction and Justification 

The City of Lakeland Public Works Department completed a project in downtown

Lakeland that was designed to reduce street flooding along Kentucky Avenue and Main 

Street. As part of the project, the City constructed a stormwater treatment pond east of

the Police Department parking lot on Pine Street.

Prior to the project, heavy rains would cause flooding on Main Street and Kentucky 

Avenue. Several persons had reported seeing the manhole lid at Main and Iowa Street 

hovering several feet above the road on a pillar of water bubbling from the manhole.

The flooding problem was the result of undersized pipes that transported the stormwater 

from the road inlets to Lake Mirror. In addition to the flood problem, the discharge of 

untreated stormwater runoff to Lake Mirror degraded the quality of the lake. Untreated

stormwater contains trash, sediments, yard debris (leaves, grass, fertilizer and

pesticides) and dissolved pollutants.

The stormwater treatment pond contains four underdrain pipes that are buried beneath a

sandy drain field. The drain field filters the stormwater before it is collected in the

underdrains and discharged from the pond. When the pond becomes full, water spills 

into the outlet structure. This prevents water from overflowing the pond banks.

Benefits

The pond receives and treats the first flush of stormwater runoff from the highly 

developed 32-acre sub-basin in the northeast downtown area, thus reducing the amount

of pollutants discharged to Lake Mirror and improving lake water quality. Also an 

inspection of the pond following a recent rainfall brought to light the amount of floatable

trash contained in urban stormwater runoff. Cups, bottles and other debris had formed a 

ring around the high water line of the pond.

Costs

Design and Construction Cost $320,541 

Figure 9. Stormwater treatment pond located near Lake Mirror.

17
Lake Mirror Park Stormwater Master Plan Study

June 2003 – June 2004

Introduction and Justification 

The purpose of the study was to analyze and identify opportunities and technologies that

could be utilized by the City to improve the overall water quality of Lake Mirror 

Benefits

The benefits of this type of study include developing a better understanding of the

stormwater drainage capacity and dynamics of the study area. With such knowledge,

managers can better determine the most appropriate BMPs for conveying stormwater to

other areas as well as reducing pollutant loadings.

Recommendations proposed in the study included the use of: 1) offline-treatment

systems (e.g. ponds and vaults) to capture the initial flush of stormwater before it enters

the lake; 2) Ultra Urban Best Management Practices (BMPs) are engineered devices 

that can be installed stormwater pipes – they have a high percentage of removal 

capabilities for oils, grease, grit, and debris; and, 3) Catch Basin Inserts, once retrofitted

into existing curb inlets, will remove some of the oil, grease, grit, and debris associated

with stormwater runoff depending on the mesh size of the filtering system.

Costs

Study Cost $22,233 

Figure 10. Aerial view of Lake Mirror Flood Control Project Area.

18
North Lake Mirror Promenade/Main Street Realignment 

Anticipated start of funding 2005

Introduction and Justification 

Lake Mirror receives a large amount of untreated stormwater that drains from a 

portion of downtown Lakeland approximately 90 acres in size. The City of 

Lakeland has developed design plans to re-align Main Street away from Lake 

Mirror’s shoreline. The new design will also include the construction of an 

interceptor drainage system near Iowa Street that will re-direct stormwater to a 

basin to be constructed on the northeast side of the lake. This basin will be 

equipped to provide stormwater storage and subsequent alum treatment. 

Treated water will then be discharged back into Lake Mirror. There are also plans

to install a pump system on the northwest corner of the lake that will pump lake 

water into the interceptor system so that captured lake water will also undergo 

alum treatment prior to being re-circulated back into the lake.

Benefits

The alum treatment pond will provide treatment to the first flush of stormwater

from the 90-acre Main Street sub-basin. In addition, the alum pond system will 

treat lake water during non-storm periods. The system should reduce pollutant 

levels, thus improving water clarity and overall water quality.

Costs

Estimated Design/Permitting/Construction Costs $650,000

Figure 11. Overview of Lake Mirror Promenade/Main Street Realignment Project.

19
Lake Morton Diagnostic Study

May 2001 – January 2003

Introduction and Justification 

Lake Morton is 41-acre urban lake, located in the central downtown Lakeland area. A 

narrow park area surrounds the perimeter of Lake Morton which is used extensively for 

passive recreational activities. Water quality monitoring began in 1987 and since then

Lake Morton has been characterized as having extremely poor water quality and

elevated levels of total nitrogen, total phosphorus, and chlorophyll-a. Algal blooms have

been a constant occurrence. Sources of nutrient loading to the lake include lake

sediments, untreated stormwater runoff, and the large abundance of waterfowl that

inhabit the lake. 

A diagnostic study was initiated during April 2001 to develop water and nutrient budgets 

to Lake Morton from stormwater runoff, waterfowl, groundwater seepage, bulk

precipitation, and recycling from bottom sediments.

Benefits

This diagnostic study quantifies pollutant loads that the surrounding watershed

contributes to Lake Morton. Such a study is a beneficial tool in identifying what 

measures need to be taken in order to reduce pollutant loading and subsequently

improve water quality and overall lake health. This study will also serve as a preliminary 

step in developing a watershed management plan for Lake Morton. 

Costs

Diagnostic Study $49,500 

Figure 12. Shoreline erosion on Lake Morton.

20
Lake Morton Master Plan 

July 2003 – Present

Introduction and Justification 

The Lake Morton Master Plan was initiated by the City of Lakeland in an effort to

preserve and enhance the success and popularity of Lake Morton as a significant public

space within the city. The Plan attempts to direct future renovation and address 

continuing maintenance concerns in order to perpetuate a quality visitor experience to 

Lake Morton, representative of the City’s outstanding parks and open space system.

Phase 1 of the Master Plan addresses the shoreline erosion and lack of wildlife habitat.

Benefits

The primary benefit of Phase 1 is improved erosion control. Lake Morton receives a 

great deal of foot traffic from citizens and visitors enjoying the lake, as well as waterfowl 

grazing and nesting activities. This has resulted in extensive erosion around most of the

shoreline. The Plan will outline a combination of methods for repairing and stabilizing

the shoreline that will include the use of seawalls, rock, sloping banks and aquatic 

vegetation to reclaim lost shore, stabilize the bank and provide enhanced habitat. 

Costs

Conceptual design $ 31,200

Design/Permitting $ 31,332

Estimated Construction Costs $ 1,713,322

Total Project Costs $ 1,775,854

Figure 13. Project view of Lake Morton.

21
Lake Parker Griffin Road Stormwater Treatment Wetland 

September 2004 – Present

Introduction and Justification 

Lakes and Stormwater Division recently completed an evaluation of the cost/benefits of

stormwater treatment projects at the Lake Parker tributary swamp and at the recently 

acquired 5-acre parcel at Griffin Road/Lakeland Hills Boulevard. The evaluation 

indicated that both projects would be needed to provide significant reductions in pollution 

loading from the 2,015-acre drainage basin. The study also provided a conceptual

design for a stormwater treatment wetland system at the Griffin Road site.

The drainage basin that flows through the canal system adjacent to the project site

contributes a large pollutant load to Lake Parker. A recommendation to provide

stormwater treatment to this system was listed as the number one priority in the Lake 

Parker Diagnostic/Feasibility Study (SWFWMD, 1993). The basin includes portions of 

US 98 North and areas north of Griffin Road. Under the proposed plan, water flowing

through the canal system would be diverted into the wetland for treatment prior to

discharge back into the canal and eventual discharge into Lake Parker. 

Benefits

The construction of the Griffin Road wetland will result in the removal of approximately

11% of the total suspended solids from the basin flow. The wetland will also capture

nutrients and will provide an aesthetic amenity to the area. 

Costs

Conceptual Design $ 17,610

Design and Permitting $ 71,720 

Estimated Construction Costs $473,900

FFWCC Grant Funds $125,000 

SWFWMD Matching Grant Funds $200,000

Figure 14. Aerial view of proposed Griffin Road project area.

22
North Lakeland Regional Stormwater Master Plan

(Lake Parker Area) 

February 2003 – Present

Introduction and Justification 

Since the City annexed the Robson Street neighborhood in October 2001, the City has

been receiving numerous complaints of flooding in the streets and private properties in

this north Lakeland neighborhood. The Public Works Department’s preliminary 

evaluation of this area was insufficient. The City contracted the engineering firm of Keith

& Schnars to perform a master plan study. 

The area of study was delineated as north to Interstate-4, east to Lakeland Hills

Boulevard, south to Griffin Road, and west to U.S. 98, and located west of Lake Parker.

The purpose of the study was to assess the flooding conditions within the project

boundary.

Benefits

The master plan will be used provide potential solutions to abate existing flooding

conditions and prepare a priority capital plan for implementation.

Costs

Master Plan Study $ 118,064 

Estimated Design/Permitting/Construction Costs $1,376,559

Figure 15. Study area for North Lakeland Regional Stormwater Master Plan

23
Lake Parker Shoreline Erosion Control 

October 2000 – January 2001

Introduction and Justification 

The City of Lakeland determined that plans for shoreline stabilization were needed at

four separate locations along Lake Parker that were undergoing erosion. Those areas

included Seratoma Park west of the boat ramp, two locations south of the Lake Parker

Park boat ramp, and a fourth location northwest of a walk bridge at Lake Parker Park. 

Benefits

Erosion can lead to water quality impacts by introducing sediment loads and increased

turbidity levels, not to mention further erosion, shoreline de-stabilization, property

damage, and risks to human safety. 

Costs

Design and Construction Costs $22,355 

Figure 16. Lake Parker erosion controls put in place.

24
Lake Parker Shoreline Erosion Control

Projected Start 2005/2006 

Introduction and Justification 

Recently repaired shoreline sections as well as additional shoreline areas were heavily

eroded due to the severe summer hurricane season of 2004. These locations will be readdressed during the latter part of 2005/early part of 2006. 

Benefits

Erosion can lead to water quality impacts by introducing sediment loads and increased

turbidity levels, not to mention further erosion, shoreline de-stabilization, property

damage, and risks to human safety. 

Costs

Projected Design and Construction Costs $50,000 

Figure 17. Eroded shoreline area at Lake Parker.

25
Lake Parker Water Quality Improvement Project 

(Best Management Practice Identification) 

April 2003 – October 2004

Introduction and Justification 

The Lake Parker southwest subbasin drains approximately 575 acres of highly

developed urban land. This project will compliment the Southwest Outfall project in 

efforts to polish stormwater prior to discharge into Lake Parker. Due to a limitation of

available land, the Southwest Outfall pond project is undersized. This project will provide

stormwater attenuation and treatment in land upstream of the Outfall project.

Benefits

The project will provide stormwater treatment and peak flow attenuation to stormwater 

runoff within the southwest basin.

Costs

Conceptual Design Costs $ 69,554

Design and Permitting Services $ 89,958 

SWFWMD Matching Grant Funds $ 34,128

Figure 18. Aerial view of Lake Parker.

26
Lake Parker Southwest Outfall Project 

August 2001 – Present 

Introduction and Justification 

The southwest sub-basin at Lake Parker drains a 575 acres highly urbanized landscape.

This area has been extensively developed and includes many acres of pavement, roofs,

and roads, which results in the stormwater runoff collecting large amounts of litter that 

are ultimately carried into Lake Parker and deposited around its shoreline.

A feasibility study led to the design and permitting of two stormwater treatment ponds

that are under construction near the shoreline of Lake Parker. The design included

diversion structures to route low flows from the existing drainage network to the wetland

ponds, with higher flows bypassed directly to the lake.

Benefits

Construction of wetland ponds would have severable desirable benefits including water 

quality treatment; reduction of pollutant loading to Lake Parker; general scenic 

improvements due to reduction in litter; and a reduction in potential flooding of adjacent

roadway.

Costs

Total Cost of Project to Date $ 2.3 million

SWFWMD Matching Grant Funds $ 393,860 

Figure 19. Litter carried into Lake Parker via

stormwater discharge prior to project

Figure 21. Completed project site with

Stormwater treatment ponds.

27
Lake Parker Tributary Swamp Restoration 

April 2001 – Present

Introduction and Justification 

Located in the northeastern portion of the City of Lakeland, the subject wetland is a

tributary of Lake Parker and is comprised of approximately 200 acres. As a tributary

system, the wetland site discharges to Lake Parker and is an important headwater 

component of the Peace River. One of the most important aspects of the system is its 

uniqueness as the largest undeveloped, forested wetland system remaining in the

urbanized Lake Parker drainage basin.

The subject wetland receives surface water runoff from surrounding urban areas prior to 

its discharge to Lake Parker. Historically, the wetland area attenuated stormwater flow 

volumes and provided water quality treatment functions such as sediment deposition

and nutrient removal. However, channelization within the wetland system has 

apparently reduced historic storage time characteristics and may have resulted in

significantly degrading desirable wetland attributes. A study was conducted to

determine the storage and treatment capacity of the wetland. 

Benefits

Restoration and enhancement of the wetland system would provide several desirable 

benefits: restoration of a significantly degraded, urban wetland ecosystem; water quality 

treatment; reduction of pollutant loading to Lake Parker; and, possible public ecological

education opportunities.

Costs

Study Cost $ 42,329

Figure 22. Aerial view delineating Tributary Swamp region. 

28
Capital Improvement Projects: Drainage Projects 

The following table lists the stormwater utility-funded, smaller-scale capital improvement 

projects that were specifically designed to alleviate drainage or flooding issues.

Project Name Dates Project Costs

Lake Mirror Outfall 3/01 $ 80.96

Retrofit Existing Storm Sewers 10/00 - Present $1,023,110.24

Renovation of Culvert on 10th from 14th to Valencia 10/00-8/01 $ 261,331.00

TV and Clean Storm Drain Structures 10/00-0/04 $ 170,140.17

General Lake Improvements 9/00 - Present $ 743,407.90

GIS Storm Sewer Inventory 10/00 - Present $ 298,072.12

Olney Road Storm Line Replacement 6/00 - 11/02 $ 209,233.55

Pablo Street Drainage Improvement 10/00 - 1/02 $ 144,105.30

Lake Hollingsworth/Lake Morton Outfall Pipe 

Replacement 10/00 - 9/02 $ 117,893.00

Kentucky/Bay Drainage Improvements 10/00 - 7/03 $ 274,805.04

Alamo Dr/Old 37 Drainage Improvements 10/00 - 7/04 $ 118,943.45

Brandy Place to King Ave - Pipe or Pave Open Ditch 10/00 - 7/02 $ 24,663.26

Gary Road at CSX - Drainage Study 10/00 - 11/02 $ 14,812.65

Chestnut Woods - Restructuring 10/00 - 12/02 $ 36,492.69

Edgewood Drive Widening - City share 11/04 - Present $ 336,135.48

Shotgun Ditch - between S. Lincoln and San Gully Road 12/01 - 3/02 $ 71,832.58

Drainage Study Park Drive at Atlanta Ave 7/02 - 6/04 $ 36,497.86

Warrington Ave Ditch -Drainage Study 1/03 - Present $ 119,778.60

Meadowbrook Ave - Upsize Storm Pipe 11/02 - 3/04 $ 19,137.39

Camp Fire USA Bldg - Stormwater Improvements 3/03 - 10/03 $ 48,881.90

Easton Drive - Pipe Repair or Replacement 7/04 $ 67,088.00

El Dorado - Pipe Alignment 7/04 $ 31,174.00

Lake Hunter - Pipe Replacement 5/04 - 7/04 $ 30,823.50

South Polk Ave - Drainage Project 4/04 $ 1,690.08

Swannanoa Neighborhood Drainage Improvements 1/04 - 9/04 $ 25,230.90

29
NPDES STORMWATER ACTIVITIES 

Introduction and Justification

Water pollution degrades surface waters making them unsafe for drinking, fishing, 

swimming, and other activities. As authorized by the Clean Water Act, the National 

Pollutant Discharge Elimination System (NPDES) permit program controls water 

pollution by regulating point sources that discharge pollutants into waters of the United 

States. Point sources are distinct conveyances such as pipes or man-made ditches. The 

City must maintain, and abide by, the NPDES permit administered by the FDEP in order 

to continue to discharge stormwater into “waters of the United States”. 

Activities/Programs

x Storm sewer maintenance such as pipe sealing, lining, and replacing 

x Plan review to ensure construction sites will not cause erosion or sedimentation 

off-site

x Roadway litter pickup by personnel and volunteers 

x Street sweeping 

x CIP projects 

x Programs to reduce pesticide, herbicide, and fertilizer use 

x Inspections of illicit discharges 

x Spill Prevention and Response 

x Outreach programs to encourage public reporting of suspected illicit discharges 

x Amnesty Days 

x Storm sewer plaques 

x Outreach programs to educate septic tank owners on proper maintenance of 

their system 

x High Risk Facilities Inspections 

x Construction site inspections 

x Site Operator Training (Erosion and Sedimentation Control class) 

x Presentations to educate those involved in construction activities about the 

NPDES Generic permit 

x Education Programs on water resource management and conservation for the 

community

30
TOTAL MAXIMUM DAILY LOADS (TMDLs) 

Introduction and Justification 

Section 303(d) of the Clean Water Act (CWA) requires states to submit lists of surface 

waters that do not meet their designated uses (recreation and wildlife propagation). 

Waters classified as impaired are required to have Total Maximum Daily Loads (TMDLs) 

developed for the pollutants of concern. TMDLs establish the maximum amount of a 

pollutant that a water body can assimilate without causing exceedances of water quality 

standards. As such, development of TMDLs is an important step toward restoring our 

waters to their designated uses. 

TMDL Cycle 

The TMDL Program is based on a five-phase cycle that rotates through Florida's basins 

every five years. Objectives in each phase of the cycle are as follows: 

Year 1: Initial Basin Assessment 

Objectives: Establish the general ecological health of the basin, identify waterbodies 

requiring restoration, protection, and/or TMDL development, identify sources of pollution, 

develop a coordinated monitoring plan, and develop consensus-based water resource 

protection and restoration goals. 

Year 2: Coordinated Monitoring 

Objectives: Supplement existing data to further characterize basin conditions, investigate 

areas with identified or potential water quality problems, evaluate the effectiveness of 

management actions, and collect data for TMDL development. 

Year 3: Data Analysis and TMDL Development 

Objectives: Document the water quality data collected in phase 2, noting any changes in 

the conclusions of the initial basin assessment; provide a more detailed assessment of 

major pollutant sources, including the quantification of nonpoint source loadings; and 

conduct and document TMDLs, as needed. 

Year 4: Basin Management Action Plan (B-MAP) Development 

Objectives: Work with local stakeholders to develop a Basin Management Action Plan to 

specify how established goals will be achieved by recommending management 

activities, establishing who is responsible for implementation, establishing a schedule for 

implementation, and noting how the effectiveness of the plan will be assessed. 

Year 5: Begin Implementation of Basin Management Action Plan (B-MAP) 

Objectives: Begin implementation of the B-MAP and associated water resource 

protection and restoration efforts, including development and implementation of BMPs, 

habitat protection and restoration activities, environmental infrastructure improvements, 

and issuance of permits. 

City of Lakeland TMDL Status 

Lake Hunter is the first of several impaired waterbodies in Lakeland to be selected to 

undergo TMDL development. Lake Hunter is located within the Hillsborough River 

basin, and ultimately drains to Tampa Bay via the Hillsborough River. Lake Hunter has 

been verified as an impaired waterbody based on nutrient criteria as the lake has high 

phosphorus and nitrogen levels. By examining specific criteria, a TMDL has been 

31
established that prescribes an 80% reduction in annual loadings of total nitrogen (TN) 

and total phosphorus levels (TP). 

Other water bodies located within the City of Lakeland have also been listed as 

impaired. These include: 

Lake Bentley Lake Crago Lake Hollingsworth 

Lake Bonny Lake Gibson Lake Parker 

These lakes will be required to undergo TMDL development but during a later cycle.

Benefits

The Florida legislature has passed legislation adopting the TMDL process. The TMDL 

program will be administered by FDEP and enforced through the NPDES permitting 

system. The Lakes & Stormwater Division and the FDEP have begun the preliminary 

planning for Phase 4 of the TMDL Cycle, the development of the Basin Management 

Action Plan (BMAP) for Lake Hunter. The BMAP process will be the vehicle for 

implementing the TMDL. Development of the BMAP will include participation by all 

stakeholders in allocating responsibility for pollutant reductions. The ultimate goal is to 

improve the water quality of Lake Hunter through a concerted community effort.

Costs

The costs associated with TMDL development are still relatively unknown as there are 

many different steps that can be taken to address the causes of lake impairment. The 

following table provides a rough estimate of what potential costs could be, based on a 

unit cost estimate of stormwater retrofitting (these estimates were developed in a study 

done in Tallahassee). For example, based on the table the money required to reduce 

the loading levels into Lake Hunter could total as much as $4.4 million.

Assume $7,498/acre retrofit cost; 10% area providing treatment 

Lake Drainage

Basin

(Acres)

Retrofit Cost

45%

Retrofit

Cost

90%

Retrofit

Cost

100%

Bentley 2319 7,041,760 14,083,520 15,648,326

Beulah 79 239,561 479,122 532,358

Bonnet 820 2,490,085 4,980,170 5,533,524

Bonny 1151 3,374,100 6,748,200 7,767,928

Crago 100 303,669 607,338 674,820

Hollingsworth 1647 5,000,416 10,000,832 11,112,036

Holloway 299 907,633 1,815,266 2,016,962

Horney 267 809,784 1,619,568 1,799,520

Hunter 731 2,220,157 4,440,314 4,933,684

John/Sommerset 1373 4,170,388 8,340,776 9,267,528

Mirror 314 954,870 1,909,740 2,121,934

Morton 215 651,201 1,302,402 1,447,114

Parker 3030 9,201,171 18,402,342 20,447,046

Wire 1062 3,225,640 6,451,280 7,168,088

Total 15,909 $40,590,435 $81,180,870 $90,470,869

32
REGULATORY ACTIVITIES 

Introduction and Justification 

Various regulatory activities conducted by the Lakes & Stormwater Division are funded 

by the Stormwater Utility. These activities include the permitting of docks, seawalls and 

boathouses, the site plan review process, as well as enforcement of numerous 

stormwater related ordinances. 

Permitting 

In reviewing requests for seawalls, docks, and boathouses, staff ensures that the 

shoreline and aquatic vegetation will be properly protected and maintained. 

In the site plan review process, staff inspects the sites for threatened and endangered 

species and habitat and reviews the plans for erosion and sediment control. 

Enforcement

Staff enforces City Code to prevent pollution of Lakeland’s lakes and stormwater system. 

This enforcement includes writing citations and participating in Code Board hearings 

when issues are not properly remedied. Since the initiation of our tracking log in August 

2000, 336 citations have been written for first offences, 13 for repeat violations, and 10 

cases have gone before the Code Board. 

33
PUBLIC EDUCATION AND OUTREACH 

Adopt-A-Lake Program 

Introduction and Justification 

The Adopt-A-Lake (AAL) program was started in 2001 as a way to involve the 

community in efforts to conserve and protect Lakeland’s lakes. There are several 

components of the AAL program, including lake cleanups, water quality monitoring, 

aquatic plant management and storm drain plaque installation. Volunteer groups can 

choose to embark upon one or more of these activities for a one-time community service 

project—for a Lakes Appreciation Month event, for example—or they may choose to 

perform lake protection events regularly. If a group performs activities on their “adopted 

lake” four or more times a year, they receive an AAL recognition sign posted beside the 

lake. Brief descriptions and summaries of the AAL activities are listed below. 

Activity: Volunteer Monitoring 

A volunteer monitoring program to sample 

area lakes is administered by the University 

of Florida’s Lakewatch Program. Volunteers 

are trained and equipped by Lakewatch 

staff to collect monthly water quality 

samples from their lakes. The samples are 

shipped to the University of Florida for 

analysis, and reports explaining the results 

are returned to the Adopt-A-Lake program 

volunteers. Annual meetings are held with 

Lakewatch biologists to discuss the health 

of lakes in the region. The Lakes & Stormwater Division assists this program by 

storing the supplies and samples until they are picked up by the Lakewatch 

volunteers and staff, respectively. The Division also helps recruit volunteers for 

the program. 

Benefits: The Lakewatch Volunteers collect valuable data that is readily 

available to the City. To date, seven Lakeland lakes are regularly tested by 

Lakewatch volunteers.

Activity: Lake Cleanups 

Lake and shoreline cleanups are the most 

popular AAL activity. The City of Lakeland 

provides volunteers gloves, garbage bags, 

grabbers, safety vests, buckets, etc. Lakeland 

Clean and Beautiful lends AAL volunteers poles 

and nets also.

Benefits: Seven lakes are officially adopted by 

12 volunteer groups. Since the AAL program 

started, volunteers have removed over 16 tons 

of trash from Lakeland’s lakes.

34
Activity: Storm Drain Plaque Installation 

In order to educate the community and 

minimize impacts of stormwater runoff to 

Lakeland’s lakes, volunteers apply “Dump 

No Waste: Drains to Lake” plaques on 

storm drain inlets. Volunteers also provide 

data as to where plaques are applied, 

missing, or replaced. The City supplies 

volunteers the plaques, glue, safety vests, 

and maps of inlet locations. 

Benefits: Nearly 650 plaques have been installed since the stormwater utility 

was implemented in May 2000.

Activity: Aquatic Plant Management 

Volunteers can assist in establishing 

and maintaining aquatic vegetation 

around their lakes. This vegetation is 

important in providing habitat for fish 

and wildlife, and the vegetation helps 

prevent bank erosion. Volunteers also 

assist in invasive species removal by 

manually removing air potato vines or 

other invasive plant species from the 

lake and lakeshore. 

Benefits: To date, 1500 aquatic plants and 90 wetland trees have been planted 

in our lakes by volunteers. 

Costs:

The average yearly cost is $5,900. The program-to-date costs are listed below.

Year

Activities’ Materials—

grabbers, nets, storm 

plaques, etc. 

Public Outreach—

newsletter, AAL 

signs, etc. 

Promotional

Items—AAL Tshirts, stickers, 

hats, pencils, etc. 

Total

2001 $2,400 $20 $740 $3,160

2002 $840 $5,600 $1,130 $7,570

2003 $470 $6,175 $800 $7,445

2004 ------- $4,500 $1,000 $5,500

Total $3,710 $16,295 $3,670 $23,675

35
Educational Workshops--The Florida Yards and Neighborhoods 

Introduction and Justification 

The Florida Yards & Neighborhoods Program is 

administered by the University of Florida—IFAS Extension 

Service. This program provides education and outreach 

workshops to teach homeowners how to create 

environmentally-friendly landscapes and how this helps 

protect Florida’s water resources. The Lakes and 

Stormwater Division supports this program by promoting 

events in the quarterly newsletter and by providing meeting 

space at free or reduced rates. Occasionally, the Division 

also purchases supplies for workshops. 

Benefits: Examples of workshops offered include: Rain

Barrels—participants learn about storm water runoff, water 

conservation, and receive a 50-gallon rain barrel; Water

Wise—participants learn about water conservation and 

receive a micro-irrigation kit; Florida Friendly 

Landscaping—participants learn to identify native plants 

and how to create a beautiful yard with minimum amounts 

of pesticides and fertilizers. Since May, 2000, approximately 450 people have 

participated in the Florida Yards and Neighborhood programs offered in Lakeland. At 

least 75 rain barrels were created and taken home by local residents. 

Costs: The total yearly costs for the program is $2,000. Since this program is 

administered by the University of Florida Extension System, the cost to the City of 

Lakeland is very minimal. With an average of 4 workshops a year, the cost is 

approximately $150 per workshop, which covers the cost of rental space and 

refreshments. The Lakes & Stormwater Division also provides incentives, periodically, by 

purchasing supplies for the workshop (ex. rain barrels) that are normally paid for by the 

participants. 

Living by the Lake workshop—Fall 2003 

36
Speaker’s Bureau

Introduction and Justification 

Public education and outreach is a major component of meeting 

NPDES permit requirements. The Lakes & Stormwater Division 

staff is available to speak to school groups, civic clubs, and other 

Lakeland-area groups who are interested in learning about lakes 

education and protection, ongoing stormwater projects and more. 

The staff is also available to present at technical conferences. 

Presentations can be targeted to individual needs. 

Benefits

Examples of Speaker’s Bureau topics include: Lake Ecology: 

Living Lakes—discusses how lakes are formed; wildlife and 

aquatic vegetation associated with the lake, etc. 

Stormwater Runoff: When it Rains, it Pollutes—discusses the 

basic concept of rain water and how it can potentially pollute our 

water bodies. It also points out ways individuals can eliminate 

stormwater pollution; Lakes & Stormwater Projects: Lake 

Restoration and Stormwater Pollution Prevention Projects in 

Lakeland—explains what the Stormwater utility fee pays for. The 

presentation informs participants about current and future lake 

management and stormwater pollution prevention projects. 

Since May, 2000, nearly 1700 children in grades K-12 have 

benefited from Speaker’s Bureau presentations. Talks at 

conferences, churches, homeowners’ associations and other civic 

organizations addressed at least another 450 people. 

Costs

The cost to develop the Speakers Bureau brochure was $2194. There are no 

additional costs associated with implementing this program.

Students looking at bugs during a 

Lakes Ecology presentation. 

37
Other Public Education and Outreach Projects

Introduction and Justification 

Stormwater runoff is now 

considered the State’s 

largest water pollution 

source for our lakes, 

streams and rivers. 

Since this nonpoint 

source of pollution 

originates from ordinary 

people doing ordinary 

things, it is difficult to 

control and monitor. 

Therefore, it is 

extremely important to 

educate the public 

about ways individuals 

can prevent polluted 

runoff. The Lakes and Stormwater Division has embarked upon several projects aimed 

at making the citizens of Lakeland more aware of how they affect their water resources. 

Brief summaries and project descriptions are listed below. 

Project: Water Quality Brochures 

Two types of water quality brochures—Water Quality & Our Lakes and Protect 

Our Water—were developed to educate the residents of Lakeland about 

stormwater and water quality issues. The brochures also explain how to 

participate in city activities associated with lakes and stormwater. 

Benefits: The brochures provide pictures and easy to follow descriptions of 

water quality issues. They also include tips on what individuals can do to help 

reduce their contribution to water pollution. We have several kiosks and other 

public areas where the brochures are available for pickup. We also mailed the 

brochures to people in our database and other targeted groups or individuals. 

Finally, the brochures are an integral part of our Adopt-A-Lake and Lakes & 

Stormwater displays used at community events. 

Cost: The total cost of the brochures was $5770. A SWFWMD Community 

Education grant totaling $2100 was awarded to offset the cost of publication. 

Brochure: Agency Services: Layout & 

Design, copywriting, art 

production, etc. 

Printing costs Total

Water Quality & 

Our Lakes $1,950 $1,210 $3,160

Protect Our 

Water

$1,462 $1,148 $2,610

Total: $3,412 $2,358 $5,770

38
Project: Mall Display 

A mall display informing visitors about the 

Lakes and Stormwater Division is located 

in the Lakeland Square Mall. The display 

contains pictures of lake improvement 

activities on local lakes. It also has a 

brochure holder attached so that 

newsletters and brochures can be 

disseminated. 

Benefits: Unfortunately, many citizens of 

Lakeland are unaware that the City has a 

Lakes and Stormwater Division, or are 

unfamiliar with what the Division does. 

With an estimated 11 million visitors per 

year, the Lakeland Square Mall is a highly 

visible location for a public awareness 

display of this nature. Shoppers not only 

become aware of the Lakes and 

Stormwater Division’s responsibilities, but 

they also have the opportunity to learn 

more by picking up literature, or calling 

the Stormwater Hotline number. 

Cost: The initial cost of creating the display was $942.50. The annual fee for 

having it displayed at the mall is $2820.00 a year. 

Project: Theater Slide 

Periodically, the Lakes & Stormwater Division contracts to do a thirty-second 

digital advertising display at the Merchant Walk and Lakeland Square Mall movie 

theaters. These contracts usually correspond with high movie-going seasons. 

Benefits: The theater slide is another way to raise awareness about stormwater 

pollution prevention. Although the lawn clippings ordinance has been in place for 

some time, many people still do not know it exists. This is an ongoing challenge 

that continues to warrant attention. 

Cost: It costs $150/week for the theater slide. A contract of at least twelve weeks 

is required with a total cost of $1800/per contract. 

39
Project: Lakes and Stormwater/Adopt-A-Lake Display Boards 

The Lakes and Stormwater 

Division has two display boards 

used for various events, such as 

Public Works Week, Lakes 

Appreciation Month, etc. The 

display boards contain a general 

overview of the Lakes and 

Stormwater Division’s Adopt-ALake programs. 

Benefits: Setting up display 

boards at public events allows the 

Lakes and Stormwater staff to be 

visible and available for questions 

and comments. It is also good for recruiting volunteers for the Adopt-A-Lake 

program and other Division projects. Finally, it is another tool to raise awareness 

about how to keep Lakeland’s lakes clean. 

Costs: Besides the initial cost of purchasing the display boards, there is not a 

yearly cost associated with this activity. 

Students looking at Lakes and Stormwater display board. 

40
Project: Lakes and Stormwater Division Website 

http://www.lakelandgov.net/publicworks/lakes/

The Lakes and Stormwater Division maintains a website within the City’s website 

network. The website contains numerous links informing visitors of Lakes & 

Stormwater Division projects, current events calendar, water quality data, contact 

information, etc.

Benefits: It is advantageous to have Lakes and Stormwater information readily 

available to people via the internet. This allows for exchange of information with 

very little turn-around time and minimal amount of effort from the staff. 

Cost: Since the website is hosted by the City of Lakeland, there is no additional 

cost to the Lakes and Stormwater Division. 

41
Lakes Education and Action Drive (LE/AD) 

Introduction and Justification 

In 1985 the City of Lakeland provided the funding for the creation of the Lakes 

Education/Action Drive. The City issued a request for proposals for establishing a public 

lakes education program in Lakeland. This resulted in a grassroots, volunteer, non-profit 

organization with the mission of providing lakes education through a variety of programs 

and activities. Through the years, LE/AD has grown and evolved into a countywide 

group that receives annual funding from several local governmental agencies. The City 

of Lakeland has supported and continues to support this growth. The need for 

community education and activism in the management of our water resources is as 

important today as it was in 1985. LE/AD sponsors, or partners with the City, on several 

educational and outreach activities in Lakeland throughout the year. Brief descriptions 

and summaries of some LE/AD activities are listed below. 

Activity: Lakes Appreciation Month 

Lakes Appreciation Month is a national event coordinated by the North American 

Lake Managers Society (NALMS). It is a way to promote volunteer participation 

in lake restoration activities such as habitat restoration, invasive plant 

identification and removal, and litter pick-up and removal. The event usually 

includes a volunteer appreciation dinner, or picnic, and some form of 

entertainment.

Benefits: Lakes Appreciation Month is a terrific way to motivate the regular 

program volunteers to engage in lake activities, as well as recruit new 

participants. It is also a way to recognize the volunteers for their efforts 

throughout the year. Finally, a large amount of debris is collected from in and 

around the lakes during this month. 

Activity: Youth Day 

42
Youth Day is an annual family event held in Lakeland. Youth Day involves handsBenefits: Youth Day provides a 

tivity: Lake Signage

urrently, the City of Lakeland has several sets of signs along Lakes Bonny, 

enefits: The interpretive 

ssive learning to those who are not necessarily 

Costs

 of Lakeland provides LE/AD with continued funding at the level of 

on activities which stress lake 

environments and their care or other 

water resource and environmental 

issues. Past activities include 

Enviroscape© presentations, walking tours of the lake’s littoral area, 

species collection and identification, 

pontoon boat tours, and various craft 

activities.

variety of environmental science 

experiences for children of all ages. 

Participants, in turn, learn more 

about their environment and why 

they should protect it. On average, 

Youth Day attracts around 300 participants.

Ac

C

Morton, and Hollingsworth. 

Signs will be installed at Lake 

Parker in 2005. These signs 

vary in content, but generally 

discuss stormwater pollution 

prevention and stormwater 

treatment topics. Other issues 

discussed include native 

aquatic vegetation and wildlife. 

B

signs are a useful tool for 

those wanting to learn more 

about the natural environment 

of the City’s lakes. With simple 

wording and illustrations, the 

interpretive signs also provide pa

interested in learning about stormwater or lakes ecology, but visit lakes for other 

reasons such as exercise or relaxation.

The City

$25,000 per year. 

43
LAKE MONITORING 

There are thirty-eight named lakes in the City of Lakeland ranging in size from 2.5 acres 

in Lake Blanton and 2,272 acres in Lake Parker. There are numerous other surface 

waters that include both natural and man-made lakes, ponds and streams. Water enters 

our lakes from rainfall, underground seepage and runoffs from streets bringing with it 

pollutants that are harmful to lakes ecology. Our lakes discharge through pipes, ditches, 

canals and creeks which flow into three major river basins: Peace, Hillsborough and 

Alafia. Lakes provide opportunities for recreation activities, sanctuaries for wildlife and 

their natural beauty. Lakes have an economic value and contribute to a community’s 

quality of life. 

City staff has monitored water quality in seventeen lakes on a quarterly basis since 

1988. Lake Hollingsworth has been monitored monthly since January 1996 to document 

the effects of the dredging and whole lake alum treatment projects. Physical parameters 

include temperature, pH, dissolved oxygen, conductivity, and turbidity are taken at site 

using a portable YSI or Hydrolab water monitoring equipment at various depth intervals. 

Other parameters include physical (color, total dissolved and suspended solids), 

chemical (nutrients - phosphorous and nitrogen, and metals), and biological (chlorophyll, 

total and fecal bacteria). The Glendale Wastewater laboratory facility analyzes the 

collected lake water samples to determine these parameter levels. The water quality 

data are then used to determine trends in the lakes, and to evaluate lake health. Annual 

cost for monitoring the seventeen lakes is $ 9,540. 

The following graph is an example of how the water quality data can be used to track 

trends over time. The graph illustrates the reduction of lead (Pb) levels over time. 

Important benchmarks are also noted on the graph (e.g. when the alum treatment took 

place).

Figure 1. Lake Hollingsworth Lead Levels Start of Dredging

End of DredgingRefill

Alum Treatment

0.00

5.00

10.00

15.00

20.00

Jun-95 Jun-97 Jun-99 Jun-01 Jun-03

Pb (ug/L)

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The following table lists the seventeen lakes that are monitored by the Lakes and 

Stormwater Division. All lakes are monitored on a quarterly basis (March, June, 

September, and December), with the exception of Lake Hollingsworth is monitored on a 

monthly basis. The Parameters Measured column depicts the different suite of 

parameters that are measured on each lake. 

Table 1. Monitored lakes, monitoring frequency, and parameters measured. 

Lake Name Frequency Parameters Measured

Bentley Quarterly 

Beulah Quarterly 

Bonnet Quarterly 

Bonny Quarterly 

Crago Quarterly 

Gibson Quarterly 

Hollingsworth Monthly, Quarterly 

Holloway Quarterly 

Horney Quarterly 

Hunter Quarterly 

John Quarterly 

Meadowview Quarterly 

Mirror Quarterly 

Morton Quarterly 

Parker Quarterly 

Somerset Quarterly 

Wire Quarterly 

FIELD DATA: Temperature, pH, 

Dissolved Oxygen, Conductivity, 

Secchi, Turbidity, OxidationReduction Potential (ORP) 

PHYSICAL PROPERTIES: Total 

Dissolved Solids, Suspended Solids, 

Color

BIOLOGICAL: Chlorophyll a, Total 

E. coli and Fecal E. coli (Bacteria) 

INORGANIC NUTRIENTSNUTRIENTS: Alkalinity, Nitrogen, 

Phosphorus, Ammonia 

METALS: Calcium, Magnesium, 

Iron, Zinc, Chromium, Lead, 

Cadmium, Aluminum, Copper

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AQUATIC PLANT MANAGEMENT 

Aquatic plants play an important role in lake management. Fish and wildlife populations 

depend on aquatic plants in lakes and other water bodies for survival. It has been 

reported that lakes with healthy native plant assemblages support healthy and diverse 

wildlife communities. 

In 1987 the Lakes and Stormwater Division began an extensive aquatic plant 

management program to establish sustainable native plant communities in our lakes. By 

utilizing the three basic methods of control - Mechanical, Chemical and Biological 

treatments, the City was successful in controlling nuisance and/or exotic plants. 

Desirable plants play an important role in the uptake and storage of nutrients, prevent 

shoreline erosion by binding soils and buffering suspension of sediments from wind and 

wave activity, and provide habitat for fish and wildlife. Aquatic Plant Management 

activities have been conducted in eleven of our lakes between March 2000 and present. 

These activities are listed below: 

Lake Bonnet 

Hydrilla treatment in Lake Bonnet Canal downstream to prevent flooding at May Manor 

MHP, Sterling MHP and Lone Palm Golf course community. 

Project Cost: $3,075 

Lake Bentley 

After receiving complaints from lakefront homeowners concerning shoreline erosion, City 

personnel installed fifteen buoys at various distances apart and 150 ft away from the 

shoreline in the lake. These marker buoys provide boaters with operational boundaries. 

The City has replaced buoys that have been vandalized. 

Project Cost: $3,480 

Lake Beulah 

A total of fifty-six wetland trees were planted along the slope of the bank. An acre of 

American lotus was eradicated. Wetlands trees included Cypress, red maple, bays, 

holly, and gums.

Project Cost: $5,500 

Lake Bonny 

The Lakes & Stormwater Division contracted Aquatic Weed Control of Orlando to plant 

thirty-one wetland trees along the Main Street Park area. The City staff harvested six 

acres of smartweed in 2003 and controls three acres of American lotus annually. Riprap 

material was placed on both sides of the Public boat ramp to prevent further shoreline 

erosion. Project Cost: $ 20,500

Canyon Lake 

City crews control water lettuce, water hyacinth and grasses three times per year. 

Project Cost: $ 2,500 

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Lake Hollingsworth 

A total of 442 wetland trees were planted in and around the shoreline of Lake 

Hollingsworth. Another fifty-nine were planted in and around the Camp Fire Girls 

retention pond at Buckingham Avenue and Easton Drive. A total of 94,700 roots or 

clusters of submerged, emerged and floating aquatic plant species were planted in the 

lake. Species include pickerelweed, arrowhead, knotgrass, bulrush, spike rush, 

eleocharis, eel grass, pondweed, fragrant water lilies, and nuphar. Some 20,000 roots of 

giant bulrush will be transplanted to other sections of the lake by the end of December. 

All planting activities were conducted by contractors, PPM workers and City staff. 

Project Cost: $75,000 

Lake Horney 

Selective harvesting and herbicide applications are being conducted in the lake to 

control the spreading of hydrilla, water hyacinth, water lettuce and nuphar. The lake is 

also used a donor site for fragrant water lilies and nuphar. 

Project Cost: $8,500 

Lake Hunter 

Twenty-two wetland trees were planted along the west shoreline. This lake also serves 

as a donor site for certain aquatic plants.

Project Cost: $1,500 

Lake John 

The entire shoreline of Lake John from Warrington Ave to Martin’s Landing was 

revegetated with aquatic vegetation to establish a littoral zone community. Also sixty-one 

wetland trees were planted along the shoreline. 

Project Cost: $12,650 

Lake Mirror 

Eighty-five sterilized grass carp were introduced in the lake to control hydrilla. Nuphar 

(water lilies) were also planted in an effort to control hydrilla. This biological method 

proved successful (both of these projects were completed more than twelve years ago).

Lake Parker 

Twenty-three wetland trees were planted along the Sertoma Park area. Mechanical 

harvesting is being used to remove floating tussocks in the lake during high water 

elevation. A bulrush transplant project is underway at Sertoma Park A shoreline 

stabilization project study is currently underway to stabilize shoreline erosion at Sertoma 

Park, the main park at the boatramp area and at the bridge area at the canal. 

Project Cost: $ 35,500 

Lake Wire 

The City harvests hydrilla annually using mechanical harvesters. The permit requires 

that no more than eight acres be harvested between the months of October and 

December. Annual cost varies depending on the number of acres harvested. 

Project Cost (2003): $5,593 Project Cost (2004): $5,516

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APPENDIX A 

COMPREHENSIVE LAKES MANAGEMENT PLAN 

EXECUTIVE SUMMARY 

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