Final 3/18/09

FLORIDA DEPARTMENT OF ENVIRONMENTAL PROTECTION

Division of Environmental Assessment and Restoration

CENTRAL DISTRICT • INDIAN RIVER LAGOON BASIN 

TMDL Report

Nutrient and Dissolved Oxygen TMDLs 

for the Indian River Lagoon and 

Banana River Lagoon

Xueqing Gao

March 2009
ii

Florida Department of Environmental Protection

TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Acknowledgments

This TMDL report was developed based on the Pollutant Load Reduction Goal (PLRG) for

seagrass restoration in the Indian River Lagoon (IRL) and Banana River Lagoon, created by the 

St. Johns River Water Management District (SJRWMD), and the Total Maximum Daily Loads 

(TMDLs) for the Northern and Central IRL and Banana River Lagoon, developed by the U.S.

Environmental Protection Agency (EPA). We would like to sincerely thank Joel Steward 

(SJRWMD) and Whitney Green (SJRWMD), who developed the seagrass PLRG, Dr. Margret 

Lasi, who provided great helps on the atmospheric deposition data, and Elizabeth Belk (EPA) 

and Dan Scheidt (EPA), who developed the nutrient TMDLs for some of the lagoon segments 

included in this report. They offered many valuable comments and suggestions to help in the 

understanding of these lagoon systems, explained many modeling details, and also provided a 

large amount of information and data needed to generate the TMDLs. 

We would also like to thank Dr. Margret Lasi (SJRWMD), who provided detailed analyses of the 

nutrient loadings from direct atmospheric deposition. Special thanks also go to Christianne

Ferraro from the Central District Office, Florida Department of Environment Protection

(Department), who provided assistance in developing the wasteload allocation for domestic 

wastewater facilities, helped us interpret wastewater permitting rules, and provided the history of 

the wastewater facilities located in the watersheds. We would also like to thank Marc Harris, 

Mike Hatcher, and Allen Hubbard from the Department’s Industrial Wastewater Section for their 

help in developing the wasteload allocations for industrial wastewater facilities.

Editorial assistance provided by

Jan Mandrup-Poulsen and Linda Lord

For additional information on the watershed management approach and impaired waters 

in the IRL Basin, contact

Amy Tracy

Florida Department of Environmental Protection

Bureau of Watershed Management

Watershed Planning and Coordination Section

2600 Blair Stone Road, Mail Station 3565

Tallahassee, FL 32399-2400

Email: Amy.Tracy@dep.state.fl.us

Phone: (850) 245–8506

Fax: (850) 245–8434

Access to all data used in the development of this report can be obtained by contacting

Xueqing Gao

Florida Department of Environmental Protection

Bureau of Watershed Management

Watershed Assessment Section

2600 Blair Stone Road, Mail Station 3555

Tallahassee, FL 32399-2400

Email: Xueqing.Gao@dep.state.fl.us

Phone: (850) 245–8464

Fax: (850) 245–8434
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Table of Contents 

Chapter 1: INTRODUCTION ____________________________________________ 1

1.1 Purpose of Report ____________________________________________ 1

1.2 Identification of Waterbody _____________________________________ 1

1.3 Background _________________________________________________ 3

Chapter 2: DESCRIPTION OF WATER QUALITY PROBLEM __________________ 5

2.1 Statutory Requirements and Rulemaking History___________________ 5

2.2 Information on Verified Impairment ______________________________ 5

Chapter 3. DESCRIPTION OF APPLICABLE WATER QUALITY STANDARDS 

AND TARGETS ____________________________________________ 10

3.1 Classification of the Waterbody and Criteria Applicable to the 

TMDL _____________________________________________________ 10

3.2 Applicable Water Quality Standards and Numeric Water Quality 

Target _____________________________________________________ 11

3.2.1 Interpretation of Narrative Nutrient Criterion ________________ 11

3.2.1.1 Establishing Nutrient Loading Targets for the IRL and 

Banana River Lagoon __________________________________11

3.2.2 Applicable Water Quality Standard for DO Concentration______ 17

Chapter 4: ASSESSMENT OF SOURCES ________________________________ 19

4.1 Types of Sources ____________________________________________ 19

4.2 Potential Sources of Pollutants in the IRL and Banana River 

Lagoon Watersheds _________________________________________ 19

4.2.1 Point Sources__________________________________________ 19

4.2.1.1 Wastewater Point Sources_______________________________19

4.2.1.2 Municipal Separate Storm Sewer System Permittees_________27

4.2.2 Nonpoint Sources ______________________________________ 29

4.2.2.1 Land Uses ____________________________________________31

4.2.2.2 Nonpoint Source TN and TP Loadings from the 

Watersheds Draining into the IRL and Banana River 

Lagoon ______________________________________________34

4.2.2.3 TN and TP Loadings from Atmospheric Deposition 

Directly onto the Surface of the IRL and Banana River 

Lagoon ______________________________________________40

Chapter 5: DETERMINATION OF ASSIMILATIVE CAPACITY_________________ 45

5.1 Overall Approach ____________________________________________ 45

Chapter 6: DETERMINATION OF THE TMDL______________________________ 49
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6.1 Expression and Allocation of the TMDL__________________________ 49

6.2 Load Allocation _____________________________________________ 52

6.3 Wasteload Allocation _________________________________________ 54

6.3.1 NPDES Wastewater Discharges ___________________________ 54

6.3.2 NPDES Stormwater Discharges ___________________________ 63

6.4 Margin of Safety _____________________________________________ 63

6.5 Recommendations for Further Studies __________________________ 64

Chapter 7: NEXT STEPS: IMPLEMENTATION PLAN DEVELOPMENT AND 

BEYOND__________________________________________________ 65

7.1 Basin Management Action Plan ________________________________ 65

References66

Appendices_________________________________________________________ 70

Appendix A: Background Information on Federal and State Stormwater 

Programs __________________________________________________ 70
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List of Tables 

Table 1.1. WBIDs and Parameters Addressed in This TMDL Report ___________ 3

Table 2.1. Summary of Nutrient Data in the Verified Period for WBIDs 

2963B and 2963F ____________________________________________ 8

Table 2.2. Summary of DO Monitoring Data in the Verified Period for 

WBIDs 2963D and 2963F______________________________________ 9

Table 3.1. Range of Seagrass Median Depth-Limit Targets for the Three 

Sublagoons _______________________________________________ 12

Table 3.2. Nutrient Loading Targets for Surface Water Nonpoint and Point 

Sources Lagoonwide, and for the Three Sublagoon Systems 

(Steward and Green 2006) ___________________________________ 16

Table 4.1. Point Source Facilities that Discharge into the IRL and Banana 

River Lagoon ______________________________________________ 23

Table 4.2. Long-Term Annual Average TN Loadings from NPDESPermitted Facilities (2000–05) ________________________________ 24

Table 4.3. Long-Term Annual Average TP Loadings from NPDESPermitted Facilities (2000–05) ________________________________ 24

Table 4.4. TP Concentration of the Boiler Blowdown Discharge for the 

Reliant Energy Indian River Power Plant _______________________ 26

Table 4.5. MS4 Permittees Affected by TMDLs in the IRL and Banana 

River Lagoon Watersheds ___________________________________ 28

Table 4.6. Land Use Distribution (in acres) in the IRL and Banana River 

Lagoon Watersheds ________________________________________ 32

Table 4.7. Percent Land Use Distribution in the IRL and Banana River 

Lagoon Watersheds ________________________________________ 33

Table 4.8. Annual Rainfall (inches) (2000–05) and 30-Year Long-Term 

Annual Average Rainfall (1975–2005) at Five National Weather 

Service Stations Used in the Development of This TMDL (EPA 

2007) _____________________________________________________ 39

Table 4.9. Nonpoint Source Loadings of TN and TP from the IRL and 

Banana River Lagoon Watersheds ____________________________ 40

Table 4.10.Per-Acre Nonpoint Source Loadings of TN and TP from the IRL 

and Banana River Lagoon Watersheds _________________________ 41

Table 4.11.Surface Areas of the IRL and Banana River Lagoon Segments _____ 42

Table 4.12.Atmospheric TN and TP Loadings Depositing Directly onto the 

Surface of the IRL and Banana River Lagoon Segments___________ 43

Table 4.13a. Total Nonpoint Source TN Loads (lbs/yr) to the IRL and 

Banana River Lagoon Segments ______________________________ 43

Table 4.13b. Total Nonpoint Source TP Loads (lbs/yr) to the IRL and 

Banana River Lagoon Segments ______________________________ 44
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Table 5.1. TN and TP Existing and Target Loadings and Load Reductions 

Required to Achieve the Target Loadings_______________________ 46

Table 5.2. TN and TP Existing and Target Loadings to Impaired WBIDs 

and Load Reductions Required To Achieve the Target Loadings ___ 47

Table 6.1a.TN TMDL Components for Nutrient-Impaired WBIDs of the IRL 

and Banana River Lagoon Main Stem __________________________ 50

Table 6.1b.TP TMDL Components for Nutrient-Impaired WBIDs of the IRL 

and Banana River Lagoon Main Stem __________________________ 50

Table 6.2a.TN TMDL Daily Loads for Nutrient-Impaired WBIDs of the IRL 

and Banana River Lagoon Main Stem __________________________ 51

Table 6.2b.TP TMDL Daily Loads for Nutrient-Impaired WBIDs of the IRL 

and Banana River Lagoon Main Stem __________________________ 51

Table 6.3a.Required Percent Reductions of TN and TP Loads, by WBID, To 

Achieve Restoration Targets (Excluding Atmospheric 

Deposition)________________________________________________ 53

Table 6.3b.Required Percent Reductions of TN and TP Loads, by WBID, To 

Achieve Nonpoint Source Loading Targets (Including 

Atmospheric Deposition) ____________________________________ 53

Table 6.4a.Permitted Annual TN Limits, Discharges, and WLAs for 

Facilities and TMDLs for Each Lagoon Segment _________________ 55

Table 6.4b.Permitted Annual TP Limits, Discharges, and WLAs for 

Facilities and TMDLs for Each Lagoon Segment _________________ 57
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List of Figures

Figure 1.1. Location of the IRL Basin ____________________________________ 2

Figure 2.1. Seagrass Depth Medians for Lagoon Segments Compared with 

Full-Restoration Targets: IR1–IR21 Represent IRL Segments, 

and BR1–BR7 Represent Banana River Segments. These 

Segments Were Delineated by the SJRWMD (EPA 2007). ___________ 6

Figure 3.1. Location of the North IRL, Central IRL, and Banana River 

Lagoon, and Further Segmentation of the IRL and Banana River 

Lagoon Systems (Steward and Green 2006)_____________________ 13

Figure 4.1. NPDES-Permitted Facilities Located in the IRL and Banana 

River Lagoon Watersheds ___________________________________ 22

Figure 4.2. PLSM Estimated Versus Measured Loads for Four Creeks in 

the IRL Watershed (Green and Steward 2003) ___________________ 30

Figure 4.3. Major Land Uses in the North IRL Watershed____________________ 35

Figure 4.4. Major Land Uses in the Central IRL Watershed __________________ 36

Figure 4.5. Major Land Uses in the Banana River Lagoon Watershed _________ 37

Figure 4.6. IRL and Banana River Lagoon Watershed Delineation and 

Locations of National Weather Service Stations _________________ 38

Figure 5.1. Spatial Relationship Between the Department’s WBID 

Boundaries and the SJRWMD’s Segment Boundaries ____________ 48
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Websites

Florida Department of Environmental Protection, Bureau of

Watershed Management

Total Maximum Daily Load Program

http://www.dep.state.fl.us/water/tmdl/index.htm

Identification of Impaired Surface Waters Rule

http://www.dep.state.fl.us/legal/Rules/shared/62-303/62-303.pdf

STORET Program

http://www.dep.state.fl.us/water/storet/index.htm

2008 305(b) Report

http://www.dep.state.fl.us/water/docs/2008_Integrated_Report.pdf

Criteria for Surface Water Quality Classifications

http://www.dep.state.fl.us/water/wqssp/classes.htm

Basin Status Reports and Water Quality Assessment Reports

http://www.dep.state.fl.us/water/tmdl/stat_rep.htm

U.S. Environmental Protection Agency

Region 4: Total Maximum Daily Loads in Florida

http://www.epa.gov/region4/water/tmdl/florida/

National STORET Program

http://www.epa.gov/storet/
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Chapter 1: INTRODUCTION

1.1 Purpose of Report

This report presents the nutrient and dissolved oxygen (DO) Total Maximum Daily Loads 

(TMDLs) for the Indian River Lagoon (IRL) and Banana River Lagoon, within the larger IRL

Basin. These waters were verified as impaired due to excessive amounts of phosphorus and 

nitrogen in the system, based on evidence of a decrease in seagrass distribution provided by 

the St. Johns River Water Management District (SJRWMD) and low DO, as verified through

water quality assessments. These waters were added to the Verified List of impaired waters for 

the IRL Basin by Secretarial Order on December 12, 2007. The purpose of these TMDLs is to 

establish the allowable loadings of phosphorus and nitrogen to the IRL and Banana River 

Lagoon that would restore these waterbodies such that they meet their applicable water quality 

criteria for nutrients and DO. 

1.2 Identification of Waterbody 

The IRL Basin is a 156-mile-long estuary located on Florida’s east coast. There are six coastal 

Florida counties in the natural IRL watershed: from north to south, these are Volusia, Brevard, 

Indian River, St. Lucie, Martin, and Palm Beach Counties. The IRL watershed described in this 

TMDL report includes only part of the larger IRL Basin, which starts just south of Ponce De 

Leon Inlet in the north, covers the southeastern corner of Volusia County and eastern portions 

of Brevard and Indian River Counties, and ends just north of the Fort Pierce Inlet. The majority 

of the basin area is located between Interstate Highway 95 (I-95) and the central portion of 

Florida’s Atlantic coastline (Figure 1.1). The basin is well-developed, with close to 30 percent

of the nonwater areas occupied by urban and built-up land. It contains about 20 municipalities 

and townships, including New Smyrna Beach, Titusville, Cocoa Beach, Melbourne, Palm Bay, 

and Vero Beach. 

The three interconnected lagoons in the IRL Basin are commonly referred to as Mosquito 

Lagoon, IRL, and Banana River Lagoon. Circulation in these lagoons is influenced by winds, 

freshwater inflows from tributaries, and tidal exchange via direct connections to the Atlantic 

Ocean. Other than stream inflows, freshwater inflows also come from direct overland runoff, 

drainage canals, ground water seepage, and rainfall directly on to the surface of these lagoons.

The Mosquito and Banana River Lagoon systems have relatively small stream inflows of fresh

water and poor flushing. Mosquito Lagoon has one inlet, Ponce De Leon, and the Banana River 

Lagoon has an intermittent navigational connection to the ocean via Port Canaveral. The IRL

has comparatively larger stream inflows, particularly in its central and southern regions, but it is 

also poorly flushed, especially in its northern half. There is some improvement in flushing in the 

southern half because of the presence of four oceanic inlets: Sebastian, Ft. Pierce, St. Lucie, 

and Jupiter.

 

The entire IRL system is a nationally renowned aquatic ecosystem that supports tremendous 

biodiversity and also provides recreational and commercial fishing resources. It was designated 

in the 1987 Surface Water Improvement and Management (SWIM) Act as a priority waterbody 
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Figure 1.1. Location of the IRL Basin
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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in need of restoration and special protection. Major problems included the loss of or alteration 

of 75 percent of the lagoon’s salt marsh and mangrove wetlands, excessive freshwater 

discharges into the central lagoon due to drainage improvements in coastal watersheds and the 

diversion of floodwaters from the St. Johns River floodplain, and discharges of pollutant-laden 

wastewater and stormwater into the lagoon. Excessive fresh water degraded hard clam habitat

and seagrass coverage densities. Pollutants in discharges exacerbated turbidity levels and 

promoted algal growth, contributing to the destruction of seagrass beds. 

In 1991, the IRL became a part of the National Estuary Program (NEP). Efforts under the IRL 

Program at the SJRWMD focus on improving water and sediment quality to restore or enhance 

seagrass and on rehabilitating impacted wetlands to recover as many of their natural functions 

as possible (http://www.sjrwmd.com/programs/indianriverlagoon.html).

For assessment purposes, the Department has divided the IRL Basin into water assessment 

polygons with a unique waterbody identification (WBID) number for each watershed or stream 

reach. This TMDL report addresses nutrient and DO impairments in the WBIDs that are parts of 

the main stem of the IRL and Banana River Lagoon. Table 1.1 summarizes the WBIDs covered 

in this TMDL report and the parameters of concern for each segment.

Table 1.1. WBIDs and Parameters Addressed in This TMDL Report

WBID Waterbody Name Parameters of Concern

3044A Newfound Harbor Nutrients (Seagrass)

3057A Banana River below Mathers Nutrients (Seagrass)

3057B Banana River above 520 Causeway Nutrients (Seagrass)

3057C Banana River above Barge Canal Nutrients (Seagrass)

2963A Indian River above Sebastian Inlet Nutrients (Seagrass)

2963B Indian River above Melbourne Causeway Nutrients (Seagrass), Nutrients 

(Chlorophyll a [Chla])

2963C Indian River above Melbourne Causeway Nutrients (Seagrass)

2963D Indian River above 520 Causeway Nutrients (Seagrass) and DO

2963E Indian River above NASA Causeway Nutrients (Seagrass)

2963F Indian River above M. Brewer Nutrients (Seagrass), Nutrients (Chla), 

and DO

5003 B South Indian River Nutrients (Seagrass)

5003C South Indian River Nutrients (Seagrass)

5003D South Indian River Nutrients (Seagrass)

1.3 Background

This report was developed as part of the Department’s watershed management approach for 

restoring and protecting state waters and addressing TMDL Program requirements. The 

watershed approach, which is implemented using a cyclical management process that rotates 

through the state’s 52 river basins over a 5-year cycle, provides a framework for implementing 

the TMDL Program–related requirements of the 1972 federal Clean Water Act and the Florida 

Watershed Restoration Act (FWRA).
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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A TMDL represents the maximum amount of a given pollutant that a waterbody can assimilate 

and still meet water quality standards, including its applicable water quality criteria and its 

designated uses. TMDLs are developed for waterbodies that are verified as not meeting their 

water quality standards, and provide important water quality restoration goals that will guide 

restoration activities.

The U.S. Environmental Protection Agency (EPA) finalized a nutrient and DO TMDL report for 

the IRL and Banana River Lagoon in 2007. The report addressed the lagoon segments that 

were on the EPA’s 1998 303(d) list of impaired waters, which only covers portions of the main 

stems of the IRL and Banana River Lagoon. The EPA report also covers the nutrient and DO 

impairments in several tributaries that discharge into the IRL, and was based on the nutrient 

targets developed to protect seagrass communities in the main stems of these lagoon systems.

In contrast, the nutrient and DO TMDLs in this TMDL report address only the nutrient and DO 

impairments for the main stems of the IRL and Banana River Lagoon. No tributaries are

included because the Department believes that the nutrient targets for protecting the tributaries 

may be different from those established for protecting the main stem segments. Therefore, the 

Department will publish tributary nutrient and DO TMDLs in a separate report in the near future. 

In addition, because the entire main stem of the Banana River Lagoon and all the IRL main 

stem segments north of the southern boundary of Indian River County were listed as impaired 

for nutrients on the Department’s Verified List, this TMDL report covers all these main stem 

segments, instead of just those on the EPA’s 1998 303(d) list. The implementation of the

TMDLs will apply to the watershed that drains to all these lagoon segments.

In addition to these differences, the final TMDLs in this report also include load estimations for 

direct atmospheric deposition that were not included in the EPA’s 2007 TMDL report, as well as

wasteload allocations (WLAs) for two more point source dischargers that were not in the EPA

report.

This TMDL report will be followed by the development and implementation of a Basin 

Management Action Plan, or BMAP, to reduce the amount of nutrients that caused the verified 

impairment of the IRL and Banana River Lagoon. These activities will depend heavily on the 

active participation of the SJRWMD, local governments, businesses, and other stakeholders. 

The Department will work with these organizations and individuals to undertake or continue 

reductions in the discharge of pollutants and achieve the established TMDLs for impaired 

waterbodies.
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Chapter 2: DESCRIPTION OF WATER QUALITY 

PROBLEM

2.1 Statutory Requirements and Rulemaking History

Section 303(d) of the Clean Water Act requires states to submit to the EPA a list of surface 

waters that do not meet applicable water quality standards (impaired waters) and establish a 

TMDL for each pollutant source in each of these impaired waters on a schedule. The 

Department has developed these lists, commonly referred to as 303(d) lists, since 1992. The 

list of impaired waters in each basin is also required by the Florida Watershed Restoration Act 

(FWRA, Subsection 403.067[4], Florida Statutes [F.S.]), and the list is amended annually to 

include updates for each basin statewide.

Florida’s 1998 303(d) list included 16 waterbodies in the IRL Basin. However, the FWRA 

(Section 403.067, F.S.) stated that all previous Florida 303(d) lists were for planning purposes 

only and directed the Department to develop, and adopt by rule, a new science-based 

methodology to identify impaired waters. After a long rulemaking process, the Environmental 

Regulation Commission adopted the new methodology as Chapter 62-303, Florida 

Administrative Code (F.A.C.) (Identification of Impaired Surface Waters Rule, or IWR), in April 

2001; the rule was modified in 2006. The list of waters for which impairments have been 

verified using the methodology in the IWR is referred to as the Verified List.

2.2 Information on Verified Impairment

As defined in the IWR, the primary assessment index for estuary nutrient condition is chla

concentration. An estuary can be listed for nutrient impairment if, during the verified period of 

an assessment (1999 through 2006 for the IRL Basin), its annual average chla concentration 

exceeds the 11 micrograms per liter (μg/L) threshold in any given year, or the 5-year rolling 

historical minimum annual average concentration by more than 50 percent in 2 consecutive 

years. Based on these thresholds, the majority of the WBIDs in the IRL and Banana River 

Lagoon were assessed as not impaired for nutrients. 

However, the IWR also allows the use of information other than chla concentrations to verify 

nutrient-based impairment, including algal blooms, excessive macrophyte growth, a decrease in 

the distribution (either in density or areal coverage) of seagrasses or other submerged aquatic 

vegetation, changes in algal species richness, and excessive diel oxygen swings. The 

verification of the nutrient impairment for the main stem segments of the IRL and Banana River 

Lagoon (Table 1.1) was primarily based on the information provided by the SJRWMD that 

seagrass coverages in these lagoon segments were depressed compared with the seagrass 

target depth limit (Figure 2.1). 

Results from several studies have indicated that phosphorus and nitrogen loadings into the IRL

system are among the major factors controlling seagrass coverage. For example, Steward and 

Green (2005) established that seagrass depth-limit depression in the IRL was mainly caused by 

elevated light attenuation. Studies by Gallegos (1994) and Steward et al. (2003) indicated that 

total suspended solids (TSS), water color, and chla concentration were the major factors 
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Figure 2.1. Seagrass Depth Medians for Lagoon Segments Compared with 

Full-Restoration Targets: IR1–IR21 Represent IRL Segments, 

and BR1–BR7 Represent Banana River Segments. These 

Segments Were Delineated by the SJRWMD (EPA 2007). 
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attenuating light in the lagoon. Hanisak (2001) showed a strong correlation between chla and 

total phosphorus (TP) concentrations in the lagoon, suggesting that phosphorus is one of the 

major causative pollutants for the elevated chla concentrations. In addition, Hanisak’s studies 

showed a strong negative correlation between nutrient concentrations in the lagoon and salinity, 

suggesting that the watershed might be the major source of nutrients in the lagoon. 

That study was followed by the work of Steward and Green (2006, 2007), which revealed

significant correlations between watershed nutrient loadings (TP and total nitrogen [TN]) and 

seagrass depth limits. Trefry and Feng (1991) and Phlips et al. (2002) conducted other studies 

that linked the imbalance of lagoon aquatic communities to watershed nutrient inputs. All these 

studies indicated that nutrients play an important role in controlling seagrass abundance and 

that the majority of these nutrients were contributed by the watershed of the lagoon system. 

Several segments of the IRL and Banana River Lagoon were also listed for nutrient impairment 

based on elevated chla concentrations and low DO. Table 2.1 lists the nutrient information for 

WBID 2963B (Indian River above Melbourne Causeway) and WBID 2963F (Indian River above 

M. Brewer). Table 2.2 lists data related to the DO impairment for WBID 2963D (Indian River 

above 520 Causeway) and WBID 2963F (Indian River above M. Brewer).

Based on Table 2.1, WBID 2963B was listed for nutrient impairment based on the observation 

that annual average chla concentrations in 2001, 2002, and 2005 exceeded the assessment 

threshold of 11 μg/L. WBID 2963F was listed for nutrient impairment because the annual 

average chla concentrations exceeded the assessment threshold of 11 μg/L from 1999 through 

2002, and in 2004 and 2005. The median TN/TP ratios for both segments fell between 10 and 

30, suggesting that the phytoplankton communities in these water segments are co-limited by 

phosphorus and nitrogen.

In addition, WBID 2963D and 2963F were verified for DO impairment based on observations 

that 770 out of 4,603 samples in WBID 2963D, and 237 out of 952 samples in WBID 2963F, 

were lower than the 5.0 milligrams per liter (mg/L) assessment threshold. TN concentrations 

higher than the 1.0 mg/L assessment threshold were observed for both WBIDs, suggesting that 

elevated nitrogen was the causative pollutant for low DO in these WBIDs (Table 2.2). 
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Table 2.1. Summary of Nutrient Data in the Verified Period for WBIDs

2963B and 2963F

WBID Parameter Summary of Observation

2963B

(Indian 

River 

above 

Melbourne 

Causeway)

Exceedance of annual chla concentration (11 μg/L) Exceeded in 2001, 2002, 

and 2005

Range of chla concentration (μg/L) 1.2–61.5

Median chla concentration (μg/L) 7.2

Range of TN concentration (mg/L) 0.53–2.70

Median TN concentration (mg/L) 1.14

Range of TP concentration (mg/L) 0.02–0.25

Median of TP concentration (mg/L) 0.058

Median TN/TP ratio 22.7

Limiting nutrient(s) Nitrogen and phosphorus

co-limited

2963F

(Indian 

River 

above M. 

Brewer)

Exceedance of annual chla concentration (11 μg/L) Exceeded in 1999–2002 

and 2004–05

Range of chla concentration (μg/L) 1.0–285.0

Median of chla concentration (μg/L) 5.4

Range of TN concentration (mg/L) 0.33–4.82

Median of TN concentration (mg/L) 1.32

Range of TP concentration (mg/L) 0.01–0.81

Median of TP concentration (mg/L) 0.04

Median TN/TP ratio 26

Limiting nutrient(s) Nitrogen and phosphorus

co-limited
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Table 2.2. Summary of DO Monitoring Data in the Verified Period for 

WBIDs 2963D and 2963F

WBID Parameter

Summary of 

Observation

2963D

(Indian River 

above 520 

Causeway)

Total number of samples 4,603

IWR-required number of exceedances for the Verified List 552

Number of observed exceedances 770

Number of observed nonexceedances 3,833

Number of seasons during which samples were collected 4

Highest DO observation (mg/L) 14.1

Lowest DO observation (mg/L) 0.0

Median DO observation (mg/L) 6.4

Mean DO observation (mg/L) 6.3

Median value for biochemical oxygen demand (BOD)

observations (mg/L)

No BOD 

measurements

Median value for 363 TN observations (mg/L) 1.40

Median value for 738 TP observations (mg/L) 0.04

Possible causative pollutant by IWR Nitrogen

FINAL ASSESSMENT Impaired

2963F

(Indian River 

above M. 

Brewer)

Total number of samples 952

IWR-required number of exceedances for the Verified List 114

Number of observed exceedances 237

Number of observed nonexceedances 715

Number of seasons during which samples were collected 4

Highest DO observation (mg/L) 11.9

Lowest DO observation (mg/L) 0.1

Median DO observation (mg/L) 5.9

Mean DO observation (mg/L) 5.6

Median value for 18 BOD observations (mg/L) 2.1

Median value for 339 TN observations (mg/L) 1.32

Median value for 343 TP observations (mg/L) 0.05

Possible causative pollutant by IWR Nitrogen

FINAL ASSESSMENT Impaired
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Chapter 3. DESCRIPTION OF APPLICABLE WATER 

QUALITY STANDARDS AND TARGETS

3.1 Classification of the Waterbody and Criteria Applicable to the TMDL

Florida’s surface waters are protected for five designated use classifications, as follows:

Class I Potable water supplies

Class II Shellfish propagation or harvesting

Class III Recreation, propagation, and maintenance of a healthy, wellbalanced population of fish and wildlife

Class IV Agricultural water supplies

Class V Navigation, utility, and industrial use (there are no state 

waters currently in this class)

The following WBIDs listed in Table 1.1 are Class II waterbodies, with a designated use of 

shellfish propagation or harvesting:

• WBID 2963A (Indian River above Sebastian Inlet); 

• WBID 2963C (Indian River above Melbourne Causeway); 

• WBID 2963F (Indian River above M. Brewer), 5003B (South Indian River); and 

• WBID 5003D (South Indian River). 

The remaining WBIDs in the table are all Class III waterbodies, with a designated use of 

recreation, propagation, and maintenance of a healthy, well-balanced population of fish 

and wildlife:

• WBID 3044A (Newfound Harbor); 

• WBID 3057A (Banana River below Mathers); 

• WBID 3057B (Banana River above 520 Causeway); 

• WBID 3057C (Banana River above Barge Canal); 

• WBID 2963B (Indian River above Melbourne Causeway); 

• WBID 2963D (Indian River above 520 Causeway); 

• WBID 2963E (Indian River above NASA Causeway); and 

• WBID 5003C (South Indian River). 

These TMDLs address both Class II and Class III water quality criteria for nutrients and 

DO, as applicable.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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3.2 Applicable Water Quality Standards and Numeric Water Quality Target

3.2.1 Interpretation of Narrative Nutrient Criterion

Florida’s nutrient criterion is narrative only—i.e., nutrient concentrations of a body of water shall 

not be altered so as to cause an imbalance in natural populations of aquatic flora or fauna. 

Accordingly, a nutrient-related target was needed to represent levels at which an imbalance in 

flora or fauna is expected to occur. A threshold commonly used for assessing the nutrient 

impairment in estuaries is the annual average chla concentration of 11 μg/L, which is defined in

the IWR (Chapter 62-303, F.A.C.). The IWR also allows the use of other information indicating 

an imbalance in flora or fauna due to nutrient enrichment, including, but not limited to, algal 

blooms, excessive macrophyte growth, a decrease in the distribution (either in density or areal 

coverage) of seagrasses or other submerged aquatic vegetation, changes in algal species 

richness, and excessive diel oxygen swings.

As discussed in Chapter 2, most segments along the main stems of the IRL and Banana River 

Lagoon were not verified for nutrient impairment using the chla threshold. The verified 

impairments were based on a comparison of the existing seagrass depth limits with the 

seagrass full-restoration targets (Steward and Green 2006). As both TP and TN are identified 

as important factors that influence seagrass distribution in these systems (Trefry and Feng 

1991, Gallegos 1994, Hanisak 2001, Phlips et al. 2002, Steward et al. 2003), this TMDL 

establishes TP and TN targets to achieve the goal of seagrass restoration.

3.2.1.1 Establishing Nutrient Loading Targets for the IRL and Banana River Lagoon

Nutrient targets for the IRL and Banana River Lagoon for this TMDL report were based on the 

pollutant load reduction goal (PLRG) developed by the SJRWMD (Steward and Green 2006). 

These nutrient targets were established through a three-step process, as follows:

1. Establishing the seagrass full-restoration target

The spatial variability of the IRL and Banana River Lagoon is well-documented. Therefore, 

different seagrass restoration targets for different parts of the lagoon systems should be 

considered. Historically, the lagoon system was divided into three sublagoons—North IRL, 

Central IRL, and Banana River Lagoon—based on the unique hydraulic characteristics of each 

part of the system. According to Christian (2004) and Steward and Green (2007), the entire 

Central IRL lies within 28 kilometers of either the Sebastian Inlet or Ft. Pierce Inlet, and is much 

closer to the inlets than the North IRL and Banana River Lagoon. Consequently, the average 

flushing rate in the Central IRL is 10 times higher than in the North IRL and 15 times higher than 

in the Banana River Lagoon. Figure 3.1 shows the location of the three sublagoons.

To appropriately address seagrass distribution in different parts of the lagoon system, the three 

sublagoons were further divided into segments (Figure 3.1). These segments were initially 

created based on the location of 13 causeway bridges that span the IRL and Banana River 

Lagoon system (Virnstein et al. 2003), resulting in 21 preliminary segments. 

A detailed principle component analysis indicated that salinity and turbidity variations explained 

most differences between these segments. Follow-up cluster and Kriging analyses regrouped 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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the segments based on similarities in salinity and turbidity and created a 15-segment delineation 

(Sigua et al. 1996). Seagrass targets and, in turn, nutrient targets were based on segmentspecific seagrass depth limits, and the relationship between seagrass depth limits and modelsimulated TN and TP loadings (Figure 3.1).

As elevated light attenuation is one of the major factors influencing the maximum water depth to 

which seagrass can grow (Steward et al. 2005), and this in turn determines the total area of 

seagrass distribution in a lagoon system, seagrass distribution depth limit was used as an index 

in assessing the extent of seagrass distribution. Seagrass depth-limit data were obtained by 

comparing historical seagrass maps with the lagoon bathymetry established by Coastal 

Planning and Engineering, Inc., in 1996. Seagrass maps from 1943, 1986, 1989, 1992, 1994, 

1996, and 1999 were used for this analysis. 

Depth measurements closest to a segment’s seagrass deep-edge boundary were selected 

using a set of rules that captured only the appropriate bathymetric data and excluded other data 

that could create erroneous depth limits (e.g., near or within dredged areas and the shallow 

edges of seagrass beds [Steward et al. 2005]). No sea-level rise correction was applied in this 

analysis because previous studies (Trefry et al. 1990, Martin et al. 2004) indicated that the 

change in bottom elevation of the lagoon system resulting from sedimentation generally 

balances out the sea-level rise. 

The seagrass depth-limit target for the lagoon was established based on the union of all the 

seagrass maps available from 1943 through 1999 (Steward et al. 2005). The deep-edge 

boundary delineating this unified coverage was considered the maximum depth limit that 

seagrass distribution can reach under the full-restoration condition. The final depth-limit targets 

were established by allowing a 10 percent departure (shallower) from the full-restoration depthlimit targets because the State Surface Water Quality Standard (Chapter 62-302, F.A.C.) allows 

a decrease of depth of the compensation point by no more than 10 percent from the natural 

background condition. The median value of the depth-limit targets for each lagoon segment 

was used for the analysis to establish the nutrient targets for the lagoon system. Table 3.1

summarizes the ranges of seagrass depth-limit targets in the three sublagoon segments. 

Table 3.1. Range of Seagrass Median Depth-Limit Targets for the Three 

Sublagoons

Sublagoon

Median Seagrass Depth Target 

(meters)

North IRL 1.5 – 1.8

Central IRL 1.2 – 1.7

Banana River Lagoon 1.4 – 1.8
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Figure 3.1. Location of the North IRL, Central IRL, and Banana River Lagoon, and 

Further Segmentation of the IRL and Banana River Lagoon Systems

(Steward and Green 2006)

Segment boundaries

Sub-basin boundaries

North IRL

(IR1-3 to IR9-11)

Central IRL

(IR12 to IR21; however, 

IR14-15 was precluded from the 

regression analyses)

Banana River Lagoon (BR1-2 to BR7)

N

Setting Segment Boundaries

Several factors were considered in setting segment boundaries. 

The primary factor is the presence of 13 causeway bridges 

crossing the Indian River/Banana River (IRBR) between Titusville 

and Vero Beach. There were apparent differences in seagrass 

coverage patterns between several segment pairs separated by 

causeways. Large island groupings, cuspate spits, and major 

tributaries were also considered in setting boundaries. Final 

segmentation was based on spatial analyses of water quality data: 

principal component analysis (PCA) and cluster and kriging 

analyses. PCA identified the principal variables—turbidity and 

salinity—responsible for intersegment variability. The grouping of 

seagrass segments with similar water quality was performed 

through cluster and kriging analyses of turbidity and salinity (Sigua 

et al. 1996). The final outcome was an IRBR system divided into 

15 segments, as shown here.

BR7 IR9-11

IR12

IR13

IR16-20

IR21

BR1-2

BR3-5

BR6 (Newfound Harbor)

IR1-3

IR4 

IR5 

IR6-7

IR8

IR14-15

Vero 

Beach

Melbourne

Palm Bay

Titusville

Cocoa Beach

Sebastian 

Inlet

Mosquito 

Lagoon

Ft. Pierce Inlet
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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(2) Establishing the relationship between seagrass depth limit and TN and TP 

loadings from point and nonpoint sources

Nutrient targets for the IRL and Banana River Lagoon systems were established based on the 

seagrass depth-limit targets and correlations between seagrass depth limits and TN and TP 

loadings from point and nonpoint sources. TN and TP loadings were the sums of nonpoint and 

point source loadings. For those segments that had no point source contributors, nonpoint 

source loadings represented the total loadings. 

The SJRWMD simulated nonpoint source loadings using the Pollutant Load Screening Model 

(PLSM) and the Hydrological Simulation Program–Fortran (HSPF) Model. For model calibration 

purposes, the HSPF Model used 1995 land use data. The calibration of the PLSM was mostly 

based on 2000 land use data, while 1990 land use data were used to calibrate the model 

against observed data collected for Turkey Creek/C-1 Canal during the same period. These 

models were built based on the SJRWMD’s 1995 land use information and calibrated against 

observed gaging data for hydrology in four IRL tributaries: Crane Creek, C-1 Canal of Turkey 

Creek, South Prong of the Sebastian River, and Briar Creek (Green and Steward 2003, CDM 

2003, Adkins et al. 2004). These tributaries were selected because they represent the variety of 

land uses in the IRL watershed. 

To simulate nonpoint source loadings for a given year, the rainfall of the year and land use 

information closest to the year under analysis were substituted into the calibrated models. For 

example, to simulate the pollutant loads for 1943, land use information for 1943 was substituted 

into the calibrated models, and pollutant loadings for the year were simulated using the 1943 

rainfall data. Before March 2000, rainfall data were taken from established National Oceanic 

and Atmospheric Administration (NOAA) National Weather Service stations and were 

supplemented with data from the SJRWMD’s hydrological/ meteorological network. After March 

2000, rainfall data were derived from Doppler radar.

During the model calibration, stormwater treatment was accounted for by applying loading 

reduction factors to developments constructed after Florida’s stormwater treatment rules went 

into effect in 1984. Aerial photo-interpreted land use maps, circa 1989, were used as a baseline 

for determining treated versus nontreated developments. Model-simulated nutrient loads were 

comparable to the measured loads for the 4 tributaries listed above, slightly overpredicting TN 

and TP loadings (by about 0.7 percent and 7 percent, respectively) (Green and Steward 2003).

1

(a) Typically, TN and TP concentrations in receiving waters are determined by the 

loading intensity (areal loading) instead of total loading from drainage basins. 

 

For lagoon segments that receive point source discharges, TN and TP loadings from point 

sources were added to the total loadings that these segments receive. This TMDL includes 16

point sources that discharge into the IRL and Banana River Lagoon. Table 4.1 lists the facilities 

and the lagoon segments into which they discharge. Annual loads from these facilities were 

calculated based on flow and concentration measurements retrieved from the Department’s 

Permit Compliance System Database. 

The following data transformations were conducted before conducting the regression analyses:

 1 Detailed descriptions of the PLSM, HSPF Model, and model calibration can be obtained from Development of a 

nonpoint source pollution load screening model (Mundy and Bergman 1998), HSPF Version 12 user manual (Bicknell 

et al. 2004), and specific model setups by Green and Steward (2003).
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Therefore, before the regression analyses were conducted, the total nutrient 

loadings from the drainage area of each lagoon segment were converted to 

areal loadings.

(b) It has been established that the relationship between nutrient loadings and 

seagrass depth is not linear (Steward and Green 2006, Davies-Colley et al. 

1993, Gallegos and Kenworthy 1996); therefore, the areal nutrient loadings were 

log-transformed before the regression analysis.

(c) Seagrass depth limits for the years used to create the regression equation were 

established as percent departures from the seagrass depth-limit target. 

To conduct the regression analysis, loading estimates for nonpoint sources and point sources, 

and the data on seagrass depth limit, should all be available within the same year. The years 

that met all these requirements were 1943, 1996, 1999, and 2001. Nutrient loading data for 

point sources were not available for 1943, but given the limited land use and population in that 

year, it was assumed that point source discharges into the IRL and Banana River Lagoon were

insignificant compared with nonpoint source loading.

According to the SJRWMD, these semi-log regression analyses utilized data from all segments 

except Sebastian Inlet (IR14-15), which was excluded because its hydraulic flushing rate 

(measured in days) far exceeds the rates of the other segments (measured in months). The 

higher flushing rate significantly reduces the impact of pollutant loads on seagrass coverage, in 

contrast to the apparent impact observed elsewhere in the IRL and Banana River Lagoon. 

Pollutant load versus seagrass depth-limit regression equations were developed lagoonwide, as 

well as for each of the sublagoon systems. Nutrient loading estimates from both the HSPF 

Model and the PLSM were evaluated during the regression analyses. 

In most cases, loading estimates from the PLSM produced stronger correlations with the 

seagrass depth limit than the loading estimates from the HSPF Model, except for TP for the 

North IRL sublagoon segments. Therefore, the regression equation for TP for the North IRL

sublagoon was developed based on HSPF TP loading estimates, while both the lagoonwide and 

other sublagoon regression equations were developed based on loading estimates from the 

PLSM (Steward and Green 2006, 2007). 

(3) Establishing TN and TP targets based on a -10 percent deviation 

(shoreward) from the seagrass full-restoration targets and the relationship 

between seagrass depth limit and nutrient loadings.

After the nutrient loadings–seagrass depth-limit regression equations were established, target 

nutrient loadings for the entire IRL and Banana River Lagoon, and for all the sublagoon 

systems, were estimated by substituting the target seagrass depth limit (a -10 percent departure 

from the full-restoration condition) into the regression equations. To avoid underestimating the 

nutrient loadings by simply back-transforming the log-transformed loading rates, according to 

the SJRWMD (Steward and Green 2006) a nonparametric method described by Duan (1983)

was used to back-calculate the target areal loading. 

Table 3.2 shows the target nutrient loadings for nonpoint and point surface water sources for 

the entire lagoon system, as well as for the sublagoon systems. The table also shows the 

models used for estimating the nutrient loadings from nonpoint sources, the regression 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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coefficient for each regression, and the probability at which these regression models are 

statistically significant.

According to the SJRWMD (Steward and Green 2006) and based on Table 3.2, the sublagoon 

analyses generally yielded stronger correlation statistics than the lagoonwide analysis. Also, in 

contrast to a lagoonwide analysis, a sublagoon analysis should generate more realistic loading 

targets because it better reflects land use and rainfall characteristics specific to the sublagoon 

drainage areas. Consequently, is the SJRWMD recommends favoring the sublagoon loading 

limits over the lagoonwide loading limits in the establishment of loading targets or TMDLs.

Two WBIDs covered by this TMDL report—WBID 2963B (Indian River above Melbourne 

Causeway) and WBID 2963F (Indian River above Melbourne Brewer)—also had verified 

impairments for chla. The majority of the WBIDs included in this TMDL are listed for nutrient 

impairments due to seagrass growth depression even when they were not impaired for chla, 

suggesting that the nutrient targets established to address seagrass distribution are more 

stringent than the nutrient targets set up to address chla concentration. It is therefore expected 

that, once the nutrient targets established for protecting seagrass are achieved, the chla

concentration of these WBIDs should also be controlled.

Table 3.2. Nutrient Loading Targets for Surface Water Nonpoint and Point 

Sources Lagoonwide, and for the Three Sublagoon Systems

(Steward and Green 2006)

Lagoonwide

(IRL and Banana River Lagoon combined; excludes Sebastian Segment IR14-15

PLSM Regressions TN target loading (pounds per 

acre per year [lbs/ac/yr]) TP target loading (lbs/ac/yr)

Years included in the analyses: 

1943, 1996, 1999, and 2001 data

3.34

R2 = 0.49, p < 0.001

0.546

R2 = 0.53, p < 0.001

North IRL

PLSM Regressions TN target loading (lbs/ac/yr) TP target loading (lbs/ac/yr)

Years included in the analyses: 

1943, 1996, and 1999 data

2.88

R2 = 0.43, p = 0.006

HSPF Regressions

Years included in the analyses: 

1943, 1996, and 1999 data

0.368

R2 = 0.47, p = 0.003

Central IRL

(excludes Sebastian Segment IR14-15)

PLSM Regressions TN target loading (lbs/ac/yr) TP target loading (lbs/ac/yr) 

Years included in the analyses: 

1996, 1999, and 2001 data

2.90

R2 = 0.87, p<0.001

0.574

R2 = 0.65, p = 0.001

Banana River Lagoon

PLSM Regressions TN target loading (lbs/ac/yr) TP target loading (lbs/ac/yr)

Years included in the analyses: 

1943, 1996, and 1999 data

2.18

R2 = 0.74, p = 0.001

0.374

R2 = 0.72, p = 0.001
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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3.2.2 Applicable Water Quality Standard for DO Concentration 

Florida’s Surface Water Quality Standards require that the DO concentration for Class II and III 

marine waters “shall not average less than 5.0 mg/L in a 24-hour period and shall never be less 

than 4.0 mg/L. Normal daily and seasonal fluctuations above these levels shall be maintained” 

(Chapter 62-302, F.A.C.).

Multiple environmental factors control DO concentrations in the IRL. Theoretically, the DO 

concentration in a given waterbody can be influenced by temperature, salinity, flow, water 

depth, photosynthesis, respiration, sediment oxygen demand (SOD), the oxidation of organic 

carbon or inorganic reductants, and low DO ground water input. Typically, low DO 

concentrations were observed in the lagoon during the summer months (May to September). 

Occasional DO concentrations lower than 5.0 mg/L were also observed in other months, but 

with a much lower frequency. While temperature is an important factor responsible for changes 

in DO, saturation DO concentrations under the typical summer water temperature (280

C) and 

salinity (above 3 percent) should still be higher than 6.0 mg/L, as long as no other chemical and 

biochemical processes are involved (Clescerl et al. 1999). Therefore, DO concentrations lower 

than 4.0 mg/L in the IRL most likely result from factors other than temperature and salinity. 

For example, low DO ground water input can be an important cause of low DO in many 

freshwater systems. In the IRL Basin, however, ground water input may not be important in the 

total water budget because of the existence of a confining layer for the Floridan aquifer (Martin 

et al. 2004). Therefore, the low DO concentration observed in the lagoon could be caused by 

processes influenced by nutrients, such as elevated respiration due to the excessive 

populations of both primary producers and grazers at various levels of the food chain, or SOD.

Excessive amounts of nutrient loading into the lagoon can cause low DO in many different 

ways. As the chla concentrations in most WBIDs assessed by the Department did not exceed 

the 11 μg/L threshold, the excessive growth of phytoplankton may not be a major process 

through which nutrients can influence DO concentrations in the lagoon system. Based on a 

study by Hanisak (2001) in the IRL, the primary productivity of seagrass and epiphytes was 

much greater (around 15 to 30 times) than that of phytoplankton and benthic microalgae. His 

analysis showed that the mean areal productivity (grams of carbon fixed by seagrass per square 

meter per hour [g C m-2 h-1

]) was 0.76 for seagrass, 1.01 for epiphytes, 0.03 for phytoplankton, 

and 0.05 for benthic microalgae. Therefore, seagrasses and their epiphytes accounted for 96

percent of the carbon fixed (41 and 55 percent, for seagrass and epiphytes, respectively).

Nutrients in the water column can stimulate the growth of epiphytes. The excessive growth of 

epiphytic algae on the leaf surface of seagrasses can shield light and cause light limitation 

(Wetzel 2001). Studies have shown that seagrasses typically have a high respiratory demand 

to support a large nonphotosynthetic biomass (e.g., roots, rhizomes) (Fourqurean and Zieman 

1991). They must regularly oxygenate their root zones to compensate for anoxic sediment. If 

excessive epiphyton growth causes light limitation of seagrasses and therefore limits their 

photosynthetic capability, seagrasses produce less organic carbon and DO, which in turn results

in less oxygen being transported to the root tissue. Low DO availability at the root zone may 

cause seagrasses to rely more on the fermentation pathway to obtain their energy, which may 

then stimulate the accumulation of sulfate in sediment. This, in turn, will stimulate the 

respiration of seagrasses and consume more oxygen. 

The excessive growth of epiphytes may also cause the accumulation of organic materials from 

these algae. In addition, the decomposition of these algal materials will consume oxygen in the 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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water. Studies have also shown that a significant amount of dissolved organic carbon can be 

released by epiphyton, which stimulates the growth of bacteria. The respiration of these 

bacteria further decreases the oxygen concentration in the water column. Therefore, controlling 

nutrient loading from a watershed restrains excessive epiphyton growth, stimulates seagrass

growth, and improves the structure of the seagrass community, which in turn improves DO 

concentrations in the lagoon.

However, whether the control of nutrient loading from the watershed will ensure that DO 

concentrations in the lagoon never drop bellow 4.0 mg/L is uncertain. As discussed previously, 

seagrasses also respire and consume oxygen. Studies have shown that the growth of seagrass 

may produce a habitat that slows down the water flow and increases the sedimentation of 

particulate materials from the water column, trapping organic materials in the seagrass bed. 

This decreases the DO concentration by decreasing the reaeration rate, and also increases DO 

consumption in seagrass beds by stimulating the growth of bacteria using the accumulated 

organic materials. 

The net productivity of seagrass also decreases as the colonization of seagrass proceeds. 

Barron et al. (2004) showed that gross primary production from Cymodocea nodosa increased 

from 7 to 49.3 millimoles of carbon being fixed by seagrass per square meter per day (mmol C 

m-2 d-1

) during the initial stages of colonization and then decreased to 20 mmol C m-2 d-1 when 

the biomass was in excess of 6 moles (mol C m-2

). At the same time, community respiration 

increased with seagrass colonization, leading to a shift from net autotrophy in the unvegetated 

sediment community to net heterotrophy after C. nodosa colonization. The increase in net 

heterotrophy with seagrass colonization was reflected in the development of reducing conditions 

in the sediment. 

The seasonal variation of photosynthetic and nonphotosynthetic tissue may also influence 

seagrass respiration and, in turn, DO concentrations. Kennish et al. (2007) found that the mean 

above-ground biomass of Zostera marina (eelgrass) in Barnegat Bay–Little Egg Harbor peaked 

during August and September (mean = 13.77 g dry weight per square meter [wt m-2

]). In 

contrast, the mean below-ground biomass was at a maximum from June to July (51.54 g dry wt 

m-2

). The unsynchronization of the biomass of photosynthetic and nonphotosynthetic seagrass 

tissue can also lead to respiration rates that are higher than oxygen production from 

photosynthesis during certain times of the year. 

Based on the above analyses, even after nutrient loading is controlled and the seagrass 

restoration target is achieved in the lagoon, whether DO concentration will never be lower than

the 5.0 mg/L criteria cannot be determined based on the available information. More data need 

to be collected regarding the relationship between seagrass communities and DO concentration 

in the IRL to address the natural DO condition. However, it is reasonable to expect that, when

the seagrass full-restoration target is achieved, the impact of excessive nutrients from human 

sources on DO concentrations in the lagoon should be alleviated, and DO concentrations

should be those typically associated with a healthy seagrass community and provide healthy

habitat for fish and other aquatic organisms.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Chapter 4: ASSESSMENT OF SOURCES

4.1 Types of Sources

An important part of the TMDL analysis is the identification of pollutant source categories, 

source subcategories, or individual sources of the pollutant of concern in the target watershed 

and the amount of pollutant loading contributed by each of these sources. Sources are broadly 

classified as either point sources or nonpoint sources. Historically, the term “point sources” has 

meant discharges to surface waters that typically have a continuous flow via a discernable, 

confined, and discrete conveyance, such as a pipe. Domestic and industrial wastewater 

treatment facilities (WWTFs) are examples of traditional point sources. In contrast, the term 

“nonpoint sources” was used to describe intermittent, rainfall-driven, diffuse sources of pollution 

associated with everyday human activities, including runoff from urban land uses, agriculture, 

silviculture, and mining; discharges from failing septic systems; and atmospheric deposition.

However, the 1987 amendments to the Clean Water Act redefined certain nonpoint sources of 

pollution as point sources subject to regulation under the EPA’s National Pollutant Discharge 

Elimination System (NPDES) Program. These nonpoint sources included certain urban 

stormwater discharges, including those from local government master drainage systems, 

construction sites over five acres, and a wide variety of industries (see Appendix A for 

background information on the federal and state stormwater programs).

To be consistent with Clean Water Act definitions, the term “point source” is used to describe 

traditional point sources (such as domestic and industrial wastewater discharges) AND 

stormwater systems requiring an NPDES stormwater permit when allocating pollutant load 

reductions required by a TMDL (see Section 6.1 on Expression and Allocation of the TMDL). 

However, the methodologies used to estimate nonpoint source loads do not distinguish between 

NPDES and non-NPDES stormwater discharges, and as such, this source assessment section 

does not make any distinction between the two types of stormwater.

4.2 Potential Sources of Pollutants in the IRL and Banana River Lagoon 

Watersheds 

4.2.1 Point Sources

4.2.1.1 Wastewater Point Sources

Forty-one NPDES-permitted facilities were identified in the IRL Basin. Nineteen of these are 

concrete batch plants that typically receive generic permits, which require that the facilities meet 

certain treatment requirements, but have no requirements for routine monitoring. Untreated 

discharges from these facilities may be high in turbidity and may also change the pH of 

receiving waters, but they are generally not considered major sources of nutrients.

The remaining facilities, which are either industrial or domestic wastewater facilities, do not 

contribute significant amounts of nutrients to the IRL and Banana River Lagoon, even if they are 

NPDES-permitted facilities:
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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(1) Three facilities—the New Smyrna Beach Water Reclamation Facility (WRF) 

(FL0172090), Edgewater WWTF (FL0021431), and Brevard County Utilities 

Department (BCUD)/South Central Regional WWTF (FL0102679)—are 

domestic wastewater facilities. Although they are located in the IRL Basin, they 

do not discharge into the IRL and Banana River Lagoon systems. The New 

Smyrna Beach WRF and Edgewater WWTF discharge into Mosquito Lagoon. 

The BCUD/South Central Regional WWTF discharges to the St. Johns River. 

Therefore, these facilities are not considered contributors to the IRL and Banana 

River Lagoon in this TMDL.

(2) The Vero Beach Municipal Power Plant (FL0002984) is located at 100 17th

Street, Vero Beach (Latitude 270

37’52”, Longitude 80022’33”). The power plant 

has 5 power-generating units. Units #1, #2, and #3 use a total of 181 million 

gallons per day (MGD) (Maximum Daily Flow) of water from the Indian River as 

once-through cooling water, which is discharged back to the Indian River via 

outfalls D-011, D-012, and D-013. As discharges from these outfalls are 

recycling Indian River waters, the discharges are not considered an addition of 

extra nutrients to the Indian River. Cooling water for the Unit #4 cooling tower is 

treated wastewater effluent from the Vero Beach Wastewater Treatment Plant 

(WWTP). Boiler blowdown is discharged to the WWTP but not to the Indian 

River. There is no discharge from Unit #5 to the Indian River. Therefore, the 

Vero Beach Municipal Power Plant is not considered a source of nutrients in this 

TMDL.

(3) The Cape Canaveral Air Force Station (CCAFS) Regional WWTF

(FL0102920) is located at Scrub Jay Road, CCAFS (Latitude 280

29’44”, 

Longitude 800

35’3”). The facility has a 0.8-MGD annual average flow capacity. 

This discharge is completely reused, and no discharge to a water of the state is 

allowed from the facility. The facility was granted an NPDES permit because it 

accepts a small amount of treated hazardous waste, and federal regulations 

regarding hazardous wastes require a facility to hold an NPDES permit to accept 

hazardous wastes. The facility was therefore not considered a significant 

nutrient contributor in this TMDL.

(4) The Titusville Osprey WRF (FL0103268) is located at 1105 Buffalo Road, 

Titusville. The facility has a 2.75-MGD annual average daily flow (AADF) 

permitted capacity slow-rate public access, consisting of on-site irrigation at the 

plant and the irrigation of residential lawns, parks, playgrounds, cemeteries, golf 

courses, highway medians, and other landscape areas. A certain portion of the 

reclaimed water for golf course irrigation is stored in stormwater retention ponds 

located on each golf course. These ponds intermittently discharge stormwater 

to adjacent drainage features, which ultimately discharge to the Indian River. 

 However, as stated in the Department’s Program Guidance Memo (DOM-96-01, 

1996) regarding reuse activities and NPDES permitting for golf course lakes, as 

long as a given golf course lake that takes reclaimed water can still hold the first 

0.5 inch or 1.0 inch (depending on the area) of runoff from the tributary 

watershed based on Chapter 62-25, F.A.C., and the water quality condition of 

the reclaimed water meets the requirement of Chapter 62-610, F.A.C. 

(secondary treatment, high-level disinfection, and 5.0 mg/L TSS), any 

discharges from the lake to waters of the state likely will consist primarily of 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

21

stormwater. Therefore, the discharge from the facility is implicitly considered in 

this TMDL as part of the nonpoint source loadings through stormwater. No WLA

is assigned to the facility.

 In addition to the discharge to golf course lakes, the facility also has an existing 

2.75-MGD maximum monthly flow permitted wet-weather backup discharge to 

the Blue Heron Water Reclamation Facility, which has an existing 4.0-MGD 

annual average discharge flow. The reclaimed water from the Titusville WRF

will be blended with the reclaimed water from the Blue Heron WRF and 

discharged through a constructed wetland system to Addison Canal and then to 

the St. Johns River. Based on this information, the Titusville WRF is not 

considered a major nutrient contributor to the IRL system.

Table 4.1 lists all the NPDES-permitted facilities that are considered significant contributors of 

nutrients into the IRL and Banana River Lagoon, and the lagoon segments that they discharge 

into. Figure 4.1 shows the location of these facilities. Tables 4.2 and 4.3 show long-term 

average annual loads for TN and TP, respectively, from these facilities during the six-year 

period from 2000 through 2005.

The 6-year long-term annual TN loadings from these wastewater facilities ranged from none to 

more than 13,000 lbs/yr. The facilities that discharged the highest amount of TN to the IRL 

include the Cocoa Beach WRF (FL0021105), which discharged about 13,652 lbs of TN per 

year, and the Vero Beach WWTF (FL0021661), which discharged about 12,993 lbs of TN per 

year. Other significant TN dischargers include the Melbourne Reverse Osmosis (RO) WWTF

(FL0043443) and Cocoa WRF Facility (FL0021521), which discharged about 6,558 and 6148 

lbs/yr of TN, respectively, from 2000 to 2005.

The 6-year long-term annual TP loadings from these facilities follow a similar pattern to that of 

TN. TP loadings ranged from none to about 2,622 lbs/yr. The two facilities that discharged the 

highest amount of TP are, again, the Cocoa Beach WRF, which discharged about 2,622 lbs of 

TP per year, and the Vero Beach WWTF, which discharged about 1,064 lbs of TP per year. 

Other significant TP dischargers include the Cocoa WRF and Vero Beach RO WTF

(FL0042544), which discharged about 575 and 536 lbs/yr of TP, respectively, from 2001 to 

2005.

Long-term annual average nutrient loads from several facilities could not be calculated, even 

though these facilities are listed in Table 4.2. This was either because a given facility did not 

have a TN and TP monitoring requirement between 2000 and 2005, or because the facility did 

not discharge a significant quantity of TN and/or TP into the IRL during the period of calculation. 

For example, the Cape Canaveral Power Plant (FL0001472), located in the city of Cocoa, has 

several effluent points into the IRL, including two once-through cooling water (OTCW) outfalls 

and one auxiliary equipment cooling water (AECW) outfall, that use the water from the IRL. The 

IRL water is used primarily as cooling water. No significant amount of TN and TP is added to 

the water, which is discharged back to the IRL. The cooling water is therefore not considered a 

major source of TN and TP to the lagoon. 

The facility also has three stormwater outfalls from an equipment area, a fuel oil storage tank 

area, and a nonequipment area. These stormwater discharges were routed to a runoff disposal 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Figure 4.1. NPDES-Permitted Facilities Located in the IRL and Banana 

River Lagoon Watersheds
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.1. Point Source Facilities that Discharge into the IRL and Banana River 

Lagoon

NPDES 

Permit 

Number Facility Name Facility Type City, County

Impacted 

Segment

FL0021521 Cocoa/J. Sellers WWTP Domestic WWTP Cocoa, Brevard IR6-7

FL0001473

Florida Power & Light 

(FPL) Cape Canaveral 

Power Plant

Power Plant with RO Cocoa, Brevard IR6-7

FL0042005 Morton Salt Industrial Wastewater Cape Canaveral, 

Brevard BR1-2

FL0020541 City of Cape Canaveral Domestic WWTP Cape Canaveral, 

Brevard BR3-5

FL0021105 City of Cocoa Beach Domestic WWTP Cocoa Beach, Brevard BR3-5

FL0000680 Reliant Energy Indian 

River Power Plant Titusville, Brevard IR6-7

FL0021571 City of Rockledge WWTP Domestic WWTP Rockledge, Brevard IR8

FL0043443 Melbourne RO WTF RO Melbourne, Brevard IR9-11

FL0040622

Brevard County Utilities 

Department (BCUD)/

South Beaches

Domestic WWTP Melbourne, Brevard IR12

FL0041122 Melbourne/Grant St. 

WWTP Domestic WWTP Melbourne, Brevard IR12

FL0042293 Barefoot Bay WWTP Domestic WWTP Barefoot Bay, Brevard IR14-15

FL0021661 City of Vero Beach 

WWTP Domestic WWTP Vero Beach, Indian River IR16-20

FL0042544 Vero Beach RO WTF RO Vero Beach, 

Indian River IR16-20

FL0166511

Indian River County

Utilities Department 

(IRCUD)/

Hobart RO WTF

RO Vero Beach, 

Indian River IR16-20

FL0041637 IRCUD/West Regional Domestic WWTP Vero Beach, 

Indian River IR16-20

FL0037940 IRCUD/South RO WTF RO Vero Beach, 

Indian River IR16-20
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.2. Long-Term Annual Average TN Loadings from NPDES-Permitted Facilities 

(2000–05)

NPDES 

Permit 

Number Facility Name

Long-Term 

Annual Mean 

TN 

(mg/L)

Long-Term Annual 

Mean Discharge 

(million 

gallons/yr)

Long-Term 

Annual Mean TN 

Loading (lbs/yr)

FL0021521 Cocoa/J. Sellers WWTP 5.78 128 6,148

FL0001473 FPL Cape Canaveral Power Plant N/A N/A N/A

FL0042005 Morton Salt 2.74 21 492

FL0020541 City of Cape Canaveral 1.05 169 1475

FL0021105 City of Cocoa Beach 6.27 238 13,652

FL0000680 Reliant Energy Indian River N/A 8 N/A

FL0021571 City of Rockledge WWTP N/A 0 N/A

FL0043443 Melbourne RO WTF 2.43 323 6,558

FL0040622 BCUD/South Beaches 8.09 6.1 415

FL0041122 Melbourne/Grant St. WWTP 10.78 0.45 44

FL0042293 Barefoot Bay WWTP 2.29 6.0 123

FL0021661 City of Vero Beach WWTP 11.85 131 12,993

FL0042544 Vero Beach RO WTF 2.39 121 2,419

FL0166511 IRCUD/Hobart RO WTF 1.90 134 2,123

FL0041637 IRCUD/West Regional 0.73 235 1,422

FL0037940 IRCUD/South RO WTF 1.51 300 3,795

N/A – Discharge data are not available or the load cannot be calculated for the reasons described in this section.

Table 4.3. Long-Term Annual Average TP Loadings from NPDES-Permitted Facilities 

(2000–05)

NPDES 

Permit 

Number Facility Name

Long-Term 

Annual Mean 

TP (mg/L)

Long-Term Annual 

Mean Discharge 

(million gallons/yr)

Long-Term 

Annual Mean TP

Loading (lbs/yr)

FL0021521 Cocoa/J. Sellers WWTP 0.54 128 575

FL0001473 FPL Cape Canaveral Power Plant N/A N/A N/A

FL0042005 Morton Salt 0.57 21 103

FL0020541 City of Cape Canaveral 0.11 169 161

FL0021105 City of Cocoa Beach 1.32 238 2,622

FL0000680 Reliant Energy Indian River 0.20* 8* 12*

FL0021571 City of Rockledge WWTP N/A 0 N/A

FL0043443 Melbourne RO WTF 0.04 323 96

FL0040622 BCUD/South Beaches 1.50 6.1 77

FL0041122 Melbourne, Grant St. WWTP 0.45 0.45 2

FL0042293 Barefoot Bay WWTP 0.35 6.0 19

FL0021661 City of Vero Beach WWTP 1.06 131 1,064

FL0042544 Vero Beach RO WTF 0.34 121 536

FL0166511 IRCUD/Hobart RO WTF 0.04 142 45

FL0041637 IRCUD/West Regional 0.04 235 84

FL0037940 IRCUD/South RO WTF 0.04 300 103

N/A – Discharge data are not available or the load cannot be calculated for the reasons described in this section.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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area. The disposal area only overflows under heavy rainfall and was therefore not considered a 

major source of TN to the lagoon. Before the facility renewed its permit in 2005, it used treated 

ground water for the boiler and blowdown. The reject from the treated ground water was 

discharged directly to the IRL. As nutrients were not considered a major issue for the reject 

discharge at the time, no TN and TP discharge limits were applied to the discharge. 

When the permit was renewed in 2005, the facility started to use treated wastewater as source 

water for the boiler and blowdown. TN and TP discharge loading limits were applied to the 

reject discharge of the treated wastewater (annual average daily loads of 7 lbs/day for TN and 

0.4 lbs/day for TP). However, as the TN and TP loading limits established for the reject 

discharge are annual loading limits, and the facility did not start to collect TN and TP samples 

until 2006, no 5-year long-term annual average TN and TP loadings could be calculated for the 

facility for the period from 2001 to 2005.

The vast majority of the discharge from the Reliant Energy Indian River Power Plant (maximum 

daily average of 820 MGD) was OTCW from the IRL. No extra TN and TP loadings were added 

to the lagoon through the cooling water. The only other surface water discharges from the plant 

are boiler blowdown (maximum monthly average 0.297 MGD) and nonindustrial stormwater 

(roof runoff), which are also directed to the discharge canal (no discharge limit). As the facility 

adds trisodium phosphate and disodium phosphate into the boiler blowdown to control pH, the 

permit requires the facility to monitor the TP concentrations of the boiler blowdown discharge on

a monthly basis. Table 4.4 shows the TP concentrations in this discharge from January 2000 

through October 2007. 

Because the facility started to use a new method to control pH in February 2003, the TP 

concentration of the boiler blowdown discharge was dramatically decreased compared with the 

TP concentration before February 2003. To represent the existing condition of the facility, a 

five-year long-term average TP loading from the facility was calculated based on data from 2003 

through 2007. No significant amount of TN was added into the discharge from the Reliant 

Energy plant.

The Rockledge WWTF (FL0021571), located in the city of Rockledge, Brevard County, has a 

permitted average daily flow (ADF) of 4.5 MGD discharged to the IRL. However, this discharge 

is limited to a period not to exceed 7 days during the Mechanical Integrity Testing of the facility’s 

underground injection well, which is conducted once every 5 years. In other times, the 4.5-MGD 

ADF is directed to a permitted underground injection well system. The facility also has a 1.6-

MGD AADF reuse system, which irrigates a reuse service area around the facility. As 

necessary, wet-weather flows from the reuse system are discharged to the underground 

injection well. From 2001 through 2005, there was no discharge from the facility.

All the above facilities discharged a total of about 48,695 lbs of TN and 4,716 lbs of TP into the 

IRL and Banana River Lagoon per year.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

26

Table 4.4. TP Concentration of the Boiler Blowdown Discharge for the 

Reliant Energy Indian River Power Plant

Date

Flow 

(MGD)

TP 

(mg/L) Date

Flow 

(MGD)

TP 

(mg/L)

1/31/2000 0.018 1.88 9/30/2003 0.058 0.311

2/29/2000 0.052 1.49 10/31/2003 0.023 0.161

3/31/2000 0.011 1.8 11/30/2003 0.01 0.098

4/30/2000 0.048 2.1 12/31/2003 0.017 0.067

5/31/2000 0.051 3 1/31/2004 0.03 0.04

6/30/2000 0.083 26.1 2/29/2004 0.021 0.03

7/31/2000 0.132 7.74 3/31/2004 0.03 0.04

8/31/2000 0.131 2.5 4/30/2004 0.029 0.045

9/30/2000 0.165 1 5/31/2004 0.03 0.04

10/31/2000 0.049 1.2 6/30/2004 0.029 0.05 

11/30/2000 0.041 0.9 7/31/2004 0.037 0.09

12/31/2000 0.048 2 8/31/2004 0.038 0.05

1/31/2001 0.033 1.3 9/30/2004 0.049 0.075

2/28/2001 0.036 1.1 10/31/2004 0.039 0.071

3/31/2001 0.039 1.1 11/30/2004 0.008 0.09

4/30/2001 0.044 1.6 12/31/2004 0.02 0.05 

5/31/2001 0.07 1.5 1/31/2005 0.014 0.085

6/30/2001 0.091 1.3 2/28/2005 0.016 0.04

7/31/2001 0.107 2.2 3/31/2005 0.02 0.028

8/31/2001 0.09 0.32 4/30/2005 0.02 0.05

9/30/2001 0.088 0.67 5/31/2005 0.024 0.07

10/31/2001 0.067 N/A 6/30/2005 0.004 0.063

11/30/2001 0.041 N/A 7/31/2005 0.016 0.05

12/31/2001 0.025 N/A 8/31/2005 0.019 0.045

1/31/2002 0.047 3.1 9/30/2005 0.068 0.085

2/28/2002 0.038 3 10/31/2005 0.001 0.05

3/31/2002 0.032 1.81 11/30/2005 0.0003 0.04

4/30/2002 0.047 1.56 12/31/2005 0.006 0.06

5/31/2002 0.031 2.66 2/28/2006 0.004 0.07

6/30/2002 0.031 2.62 3/31/2006 0.007 0.06

7/31/2002 0.014 1.9 4/30/2006 0.012 0.08

8/31/2002 0.059 1.11 5/31/2006 0.005 0.09

9/30/2002 0.028 1.11 6/30/2006 0.005 0.1

10/31/2002 0.029 1.61 7/31/2006 0.008 0.15

11/30/2002 0.023 1.29 8/31/2006 0.046 0.06

12/31/2002 0.022 3.66 9/30/2006 0.007 0.09

1/31/2003 0.027 2.77 10/31/2006 0.005 0.11

2/28/2003 0.018 0.84 11/30/2006 0.008 0.09

3/31/2003 0.051 0.89 12/31/2006 0.008 0.09

4/30/2003 0.037 0.49 1/31/2007 0.001 0.05

5/31/2003 0.027 0.053 2/28/2007 0.001 0.05
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Date

Flow 

(MGD)

TP 

(mg/L) Date

Flow 

(MGD)

TP 

(mg/L)

6/30/2003 0.032 0.082 4/30/2007 0.001 0.05

7/31/2003 0.054 0.067 9/30/2007 0.021 0.05

8/31/2003 0.077 0.088 10/31/2007 0.025 0.07

N/A – No monitoring data are available.

4.2.1.2 Municipal Separate Storm Sewer System Permittees

Like other nonpoint sources of pollution, urban stormwater discharges are associated with land 

uses and human activities, and are driven by rainfall and runoff processes leading to the 

intermittent discharge of pollutants in response to storms. The 1987 amendments to the Clean 

Water Act designated certain stormwater discharges from urbanized areas as point sources 

requiring NPDES stormwater permits. In October 2000, the EPA authorized the Department to 

implement the NPDES Stormwater Program in all areas of Florida, except for Indian tribal lands.

The Department’s authority to administer the NPDES Program is set forth in Section 403.0885, 

F.S. The three major components of the NPDES stormwater regulations are as follows:

(1) Municipal Separate Storm Sewer System (MS4) permits that are issued to 

entities that own and operate master stormwater systems, primarily local 

governments. Permittees are required to implement comprehensive stormwater 

management programs designed to reduce the discharge of pollutants from the 

MS4 to the maximum extent practicable.

(2) Stormwater Associated with Industrial Activities, which is regulated primarily 

by a multisector general permit that covers various types of industrial facilities. 

Regulated industrial facilities must obtain NPDES stormwater permit coverage 

and implement appropriate pollution prevention techniques to reduce 

contamination of stormwater.

(2) Construction Activity Generic Permits for projects that ultimately disturb one 

or more acres of land and that require the implementation of stormwater 

pollution prevention plans to provide erosion and sediment control during 

construction.

In addition to the NPDES stormwater construction permitting regulations, Florida was the first 

state in the country to require the treatment of stormwater for all new developments with the 

adoption of the state Stormwater Rule in late 1981. The Stormwater Rule is a technology-based 

program that relies on the implementation of best management practices (BMPs) designed to 

achieve a specific level of treatment (i.e., performance standards), as set forth in Chapter 62-40, 

F.A.C. In 1994, state legislation created the Environmental Resource Permitting Program to 

consolidate stormwater quantity, stormwater quality, and wetlands protection into a single 

permit. Currently, the majority of Environmental Resource Permits are issued by the state’s five 

water management districts, although the Department continues to do the permitting for 

specified projects.

The NPDES Stormwater Program was implemented in phases, with Phase I MS4 areas 

including municipalities having a population above 100,000. Because the master drainage 

systems of most local governments in Florida are interconnected, the EPA implemented Phase 

1 of the MS4 Permitting Program on a countywide basis, which brings in all cities, Chapter 298 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

28

urban water control districts, and the Florida Department of Transportation (FDOT) throughout 

the 15 counties meeting the population criteria. Phase II of the NPDES Program was expanded 

in 2003 and requires stormwater permits for construction sites between 1 and 5 acres, and for

local governments with as few as 10,000 people.

Although MS4 discharges are technically referred to as “point sources” for the purpose of

regulation, they are still diffuse sources of pollution that cannot be easily collected and treated 

by a central treatment facility. All Phase 1 MS4 permits issued in Florida include a reopener 

clause allowing permit revisions for implementing TMDLs once they are formally adopted by 

rule. Florida’s Phase II MS4 Generic Permit has a “self-implementing” requirement once 

TMDLs are adopted that requires the MS4 permittee to update its stormwater management 

program (as needed) to meet its TMDL allocations.

Table 4.5 lists the counties, cities, and townships with MS4 permits influenced by TMDLs in the 

IRL and Banana River Lagoon watersheds.

Table 4.5. MS4 Permittees Affected by TMDLs in the IRL and Banana 

River Lagoon Watersheds

MS4 Permit 

Phase Permit Name Permit Number County

II FDOT District 4 FLR04E083 None

II FDOT District 5 FLR04E024 None

II Brevard County FLR04E052 Brevard

II City of Titusville FLR04E079 Brevard

II City of Cape Canaveral FLR04E003 Brevard

II City of Cocoa FLR04E032 Brevard

II City of Cocoa Beach FLR04E062 Brevard

II Town of Rockledge FLR04E047 Brevard

II City of Satellite Beach FLR04E072 Brevard

II Patrick Air Force Base FLR04E074 Brevard

II City of Indian Harbor Beach FLR04E026 Brevard

II Town of Indialantic FLR04E030 Brevard

II City of Melbourne FLR04E027 Brevard

II Town of Melbourne Beach FLR04E041 Brevard

II City of West Melbourne FLR04E028 Brevard

II City of Palm Bay FLR04E077 Brevard

II Town of Malabar FLR04E050 Brevard

II Indian River County FLR04E068 Indian River

II City of Sebastian FLR04E124 Indian River

II Town of Indian River Shores FLR04E009 Indian River

II City of Vero Beach FLR04E010 Indian River

II St. Lucie County FLR04E029 St. Lucie

II City of Fort Pierce FLR04E065 St. Lucie
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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4.2.2 Nonpoint Sources

Other than the TN and TP loadings from NPDES-permitted point sources, the majority of the 

nutrient loadings are primarily generated from nonpoint sources in the watershed. Major 

nonpoint sources may include, but are not limited to, loadings through surface runoff, ground 

water, and atmospheric deposition directly onto the surface of the lagoon system. Based on 

stepwise regression analyses conducted by the SJRWMD, the atmospheric sources of nutrients 

do not significantly affect the relationship between watershed nutrient loadings and seagrass 

depth distributions at α = 0.15 (Steward and Green 2006). Therefore, the atmospheric nutrient 

loadings were not included in the loading versus depth-limit regression analyses. However, as 

these loadings are part of the total nutrient budgets that these lagoons receive, they were 

calculated in this TMDL report and added to both the existing total nutrient loadings and TMDLs. 

Ground water input from the Floridan aquifer does not represent a significant portion of the total 

water budget for the IRL system (Martin et al. 2004). Depending on the season, input from the 

surficial aquifer to the lagoon could be important. Nutrient contributions from the surficial aquifer 

were implicitly included in the SJRWMD’s model simulations as part of the budget for watershed 

flow and nutrient loadings.

As discussed in Chapter 3, the SJRWMD used both the PLSM and HSPF Model to simulate TN 

and TP loadings from the watershed. This TMDL is based on the watershed loadings simulated 

by these models. The PLSM, a GIS-based stormwater runoff model, was originally developed 

as a tool to assist the SJRWMD in watershed planning. The SJRWMD assessed its reliability in 

estimating annual nutrient loads to determine PLRGs for the IRL (Steward and Green 2006). 

The PLSM generates pollutant loads from multiple, spatially distributed inputs such as land use, 

soil types, hydrologic boundaries, rainfall, runoff coefficients, event mean concentrations 

(EMCs), and BMPs. In assessing the model’s reliability in predicting nutrient pollutant loads, the 

PLSM was calibrated for runoff volume, TN, TP, and TSS to flow and loading estimates based 

on measured data in four IRL drainage basins: Crane Creek, C-1 Canal of Turkey Creek, South 

Prong of Sebastian River, and Briar Creek (Green and Steward 2003). The SJRWMD study 

concluded that PLSM loads predicted reasonably well the measured flow, and the TN, TP, and 

TSS loadings derived from measured concentrations and flow. Figure 4.2 shows the combined 

runoff volume and TN, TP, and TSS loadings for the four creeks, as simulated by PLSM, versus 

measured runoff volume and TN, TP, and TSS loadings in these creeks.

For comparison purposes, the SJRWMD also developed an HSPF Model to simulate the TN 

and TP loadings from the IRL. HSPF (Bicknell et al. 2004), developed and maintained by Aqua 

Terra and the EPA, is a comprehensive package that can be used to develop a combined 

watershed and receiving water model. It can simulate various species of nitrogen and 

phosphorus, chla, BOD, coliform bacteria, metals, and DO concentrations in receiving waters. 

The model has three major modules, as follows, that simulate pollutant loadings from the 

watershed and in-water transport of the pollutants and their effects on chla and DO 

concentrations: 

• The PERLND Module performs a detailed analysis of surface and subsurface flow 

for pervious land areas based on the Stanford Watershed Model. Water quality 

calculations for sediment in pervious land runoff can include sediment detachment 

during rainfall events and reattachment during dry periods, with the potential for 

washoff during runoff events. For other water quality constituents, runoff water 

quality can be determined using buildup-washoff algorithms, “potency factor” (e.g., 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

30

factors relating constituent washoff to sediment washoff), or a combination of 

both. 

• The IMPLND Module analyzes surface processes only and uses buildup-washoff 

algorithms to determine runoff quality. 

• The RCHRES Module is used to simulate flow routing and water quality in receiving 

waters, which are assumed to be one-dimensional. Receiving water constituents 

can interact with suspended and bed sediments through soil-water partitioning. 

The HSPF Model can incorporate “special actions” that utilize user-specified 

algorithms to account for occurrences such as opening/closing of water control 

structures to maintain seasonal water stages or other processes beyond the 

normal scope of the model code.

Based on SJRWMD studies, both loading models provide comparable annual loading estimates 

for the IRL and Banana River Lagoon systems (Green and Steward 2003). The major purpose 

of watershed TN and TP simulations is to find the relationship between pollutant loadings and 

seagrass depth limit. There were differences between the PLSM and HSPF results: one or the 

other provided a stronger regression outcome for a given sublagoon or pollutant; therefore the 

stronger of the two sets of regressions, based on correlation and significance statistics (R2 and 

p values), was selected to determine the final loading. 

Figure 4.2. PLSM Estimated Versus Measured Loads for Four Creeks in 

the IRL Watershed (Green and Steward 2003)
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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In the PLRG analysis, the PLSM loads generally produced better regression statistics than the

HSPF loads. However, the HSPF-estimated loads for TP produced a better set of regression 

statistics for the North IRL and thus dictated the annual TP loading for that sublagoon (Steward 

and Green 2006, 2007).

4.2.2.1 Land Uses

No matter what model was used for watershed loading simulation, land use patterns in the IRL

and Banana River Lagoon watersheds are among the most important factors influencing 

pollutant loadings. Land use patterns influence the imperviousness of the watershed and 

determine the amount of runoff that can be produced in a given watershed area. These

patterns also determine the concentrations of pollutants in the runoff produced in a given area 

and therefore determine the amount of a given pollutant that can be produced per acre of 

drainage basin. Knowing the land use distribution in the watershed is therefore very important 

in simulating the pollutant watershed loading. 

Table 4.6 summarizes the land use patterns in the watersheds that drain into each lagoon 

segment in all the three sublagoon areas: North IRL, Central Central IRL, and Banana River 

Lagoon. The land use summary was conducted based on Level 1 land use in the Florida Land

Use, Cover, and Forms Classification System (FLUCCS 1984). This analysis used the 

SJRWMD’s 2000 land use GIS coverage. It should be noted that the surface areas of lagoons 

are not considered part of the watersheds and therefore are not included in the water land use 

areas in Table 4.6. Table 4.7 shows the percent distribution of each land use in each 

watershed. 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.6. Land Use Distribution (in acres) in the IRL and Banana River Lagoon Watersheds

Sublagoon

Lagoon 

Segment

Urban 

and 

BuiltUp

LowDensity 

Residential

MediumDensity 

Residential

HighDensity 

Residential Agriculture Rangeland

Upland 

Forest Water Wetland

Barren 

Land

Transportation, 

Communication, 

and Utilities Subtotal

North IRL

IR1-3 247 1,894 570 137 7,129 6,120 6,533 494 27,776 545 564 52,009

IR4 351 264 66 384 274 68 199 5 334 36 246 2,227

IR5 2,312 150 479 1,115 662 6,621 2,024 349 18,428 465 749 33,353

IR6-7 1,297 1,679 1,862 982 3,407 1,666 1,240 830 7,928 90 911 21,892

IR8 550 505 694 238 88 178 185 50 132 15 109 2,744

IR9-11 4,028 1,106 4,667 3,593 175 1,178 1,624 848 1,477 84 1,131 19,910

Subtotal 8,784 5,597 8,338 6,449 11,735 15,831 11,805 2,576 56,074 1,234 3,710 132,135

Central IRL

IR12 14,466 3,899 23,071 2,730 8,461 6,799 7,102 1,641 4,626 932 2,394 76,121

IR13A 37 248 126 78 5 549 565 19 142 2 48 1,820

IR13B 561 1,941 820 113 808 3,455 4,832 530 3,413 69 298 16,840

IR14 5,046 5,261 5,508 1,383 41,810 18,161 19,289 2,357 16,024 1,032 1,294 117,156

IR15 559 128 419 192 606 151 542 122 728 44 43 3,533

IR16-20 6,540 4,383 9,155 3,160 24,439 3,963 6,084 1,393 3,833 682 2,140 65,773

IR21 145 84 527 241 28 106 378 65 737 8 37 2,358

Subtotal 27,355 15,944 39,626 7,897 76,157 33,184 38,793 6,127 29,503 2,768 6,255 283,609

Banana 

River 

Lagoon

BR1-2 3,880 139 0.0 0.1 105 9,148 9,281 2,036 7,846 188 473 33,095

BR3-5 2,633 102 1,182 1,433 8 356 278 217 1,047 38 300 7,593

BR6 720 110 802 1,244 108 156 186 1,153 1,602 39 194 6,314

BR7 592 88 2,433 601 11 262 73 243 13 34 71 4,420

Subtotal 7,825 439 4,416 3,278 231 9,921 9,818 3,649 10,507 299 1,038 51,423

Total 43,965 21,980 52,380 17,624 88,124 58,936 60,416 12,352 96,085 4,301 11,003 467,167
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.7. Percent Land Use Distribution in the IRL and Banana River Lagoon Watersheds

Sublagoon

Lagoon 

Segment

Urban 

and 

BuiltUp

LowDensity 

Residential

MediumDensity 

Residential

HighDensity 

Residential Agriculture Rangeland

Upland 

Forest Water Wetland

Barren 

Land

Transportation, 

Communication, 

and Utilities Subtotal

North IRL

IR1-3 0.5% 3.6% 1.1% 0.3% 13.7% 11.8% 12.6% 0.9% 53.4% 1.0% 1.1% 100.0%

IR4 15.7% 11.9% 3.0% 17.3% 12.3% 3.0% 8.9% 0.2% 15.0% 1.6% 11.0% 100.0%

IR5 6.9% 0.4% 1.4% 3.3% 2.0% 19.9% 6.1% 1.0% 55.3% 1.4% 2.2% 100.0%

IR6-7 5.9% 7.7% 8.5% 4.5% 15.6% 7.6% 5.7% 3.8% 36.2% 0.4% 4.2% 100.0%

IR8 20.0% 18.4% 25.3% 8.7% 3.2% 6.5% 6.7% 1.8% 4.8% 0.6% 4.0% 100.0%

IR9-11 20.2% 5.6% 23.4% 18.0% 0.9% 5.9% 8.2% 4.3% 7.4% 0.4% 5.7% 100.0%

Subtotal 6.6% 4.2% 6.3% 4.9% 8.9% 12.0% 8.9% 1.9% 42.4% 0.9% 2.8% 100.0%

Central IRL

IR12 19.0% 5.1% 30.3% 3.6% 11.1% 8.9% 9.3% 2.2% 6.1% 1.2% 3.1% 100.0%

IR13A 2.1% 13.6% 6.9% 4.3% 0.3% 30.2% 31.0% 1.1% 7.8% 0.1% 2.6% 100.0%

IR13B 3.3% 11.5% 4.9% 0.7% 4.8% 20.5% 28.7% 3.1% 20.3% 0.4% 1.8% 100.0%

IR14 4.3% 4.5% 4.7% 1.2% 35.7% 15.5% 16.5% 2.0% 13.7% 0.9% 1.1% 100.0%

IR15 15.8% 3.6% 11.9% 5.4% 17.1% 4.3% 15.3% 3.4% 20.6% 1.2% 1.2% 100.0%

IR16-20 9.9% 6.7% 13.9% 4.8% 37.2% 6.0% 9.3% 2.1% 5.8% 1.0% 3.3% 100.0%

IR21 6.2% 3.5% 22.4% 10.2% 1.2% 4.5% 16.1% 2.8% 31.3% 0.3% 1.6% 100.0%

Subtotal 9.6% 5.6% 14.0% 2.8% 26.9% 11.7% 13.7% 2.2% 10.4% 1.0% 2.2% 100.0%

Banana 

River 

Lagoon

BR1-2 12.4% 0.4% 0.0% 0.0% 0.3% 29.2% 29.6% 0.9% 25.0% 0.6% 1.5% 100.0%

BR3-5 34.9% 1.4% 15.7% 19.0% 0.1% 4.7% 3.7% 2.1% 13.9% 0.5% 4.0% 100.0%

BR6 12.1% 1.9% 13.4% 20.9% 1.8% 2.6% 3.1% 13.5% 26.8% 0.6% 3.3% 100.0%

BR7 13.4% 2.0% 55.0% 13.6% 0.2% 5.9% 1.7% 5.5% 0.3% 0.8% 1.6% 100.0%

Subtotal 15.9% 0.9% 9.0% 6.7% 0.5% 20.1% 19.9% 3.0% 21.3% 0.6% 2.1% 100.0%

Total 9.5% 4.7% 11.3% 3.8% 19.0% 12.7% 13.0% 2.2% 20.7% 0.9% 2.4% 100.0%
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Based on Table 4.6, the IRL and Banana River Lagoon watersheds cover a total of about 

467,167 acres (not including lagoon surface areas). There are about 132,135 acres, 283,609 

acres, and 51,423 acres in the watersheds of the North IRL, Central IRL, and Banana River 

Lagoon, respectively. At the lagoonwide scale, urban areas—including low-, medium-, and 

high-density residential; transportation, communication, and utilities; and other urban and builtup land uses—comprise about 146,953 acres, or about 31 percent of the total drainage area. 

These areas account for 25, 34, and 35 percent of the drainage areas in the North IRL, Central 

IRL, and Banana River Lagoon, respectively. In addition to these human land use areas, 

agricultural lands are important in the Central IRL, accounting for about 27 percent of its 

watershed area. Agricultural lands account for about 9 percent and 0.4 percent of the total 

drainage areas in the North IRL and Banana River Lagoon watersheds, respectively.

The dominant natural land use in the watersheds of these sublagoons is wetlands, which total 

about 96,085 acres and account for about 21 percent of the total drainage area. Upland forest 

and rangeland each account for about 13 percent of the total drainage areas to these lagoons. 

Percent drainage basin dominated by wetlands is highest in the North IRL watershed, at about 

42 percent, followed by the Banana River Lagoon watershed, at about 21 percent. The highest 

percent drainage areas dominated by upland forests, about 20 percent, are observed in the 

Banana River Lagoon watershed. This is followed by 14 percent of upland forest areas in the 

Central IRL watershed and 9 percent in the North IRL watershed. 

Percent drainage basin occupied by rangelands accounts for about 12, 12, and 20 percent, in 

the North IRL, Central IRL, and Banana River Lagoon watersheds, respectively. Water surface 

areas other than the lagoon surface areas are relatively insignificant, occupying only 2 to 3 

percent of the drainage areas in all three watersheds. 

The highest percent human land use dominance appears in the Central IRL watershed, 

accounting for 61 percent of the drainage area. Human land uses occupy 34 to 35 percent of 

the North IRL and Banana River Lagoon watersheds, respectively. Figures 4.3, 4.4, and 4.5

show the spatial distribution of Level 1 land uses in the IRL and Banana River Lagoon 

watersheds.

4.2.2.2 Nonpoint Source TN and TP Loadings from the Watersheds

Draining into the IRL and Banana River Lagoon

Existing nonpoint source TN and TP loadings from most watersheds that drain into the IRL and 

Banana River Lagoon were simulated using the PLSM and were mostly based on 2000 land use 

and 30-year mean annual rainfall. Level 3 land use classification was used in conducting the 

actual PLSM simulation. TP loadings into North IRL segments were simulated using the HSPF

Model because there was a better correlation between watershed HSPF TP loading simulates 

and seagrass depth limits than between PLSM TP loading simulates and seagrass depth limits. 

As the HSPF Model was used to simulate continuous watershed loading on a daily basis, daily 

rainfall data for the 9 years between 1995 and 2003 were used in place of long-term annual 

average rainfall. 

Other than land use information, other model inputs required by the PLSM to simulate 

watershed TN and TP loadings include drainage basin boundary, hydrologic soil groups, annual 

rainfall, land use and hydrologic soil specific runoff coefficients, and the EMCs of TN and TP 

associated with different land uses. Figure 4.6 shows the drainage basin delineation provided 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Figure 4.3. Major Land Uses in the North IRL Watershed
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

36

Figure 4.4. Major Land Uses in the Central IRL Watershed
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

37

Figure 4.5. Major Land Uses in the Banana River Lagoon Watershed
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Figure 4.6. IRL and Banana River Lagoon Watershed Delineation and Locations of 

National Weather Service Stations
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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by the SJRWMD. Detailed runoff coefficients for different land use–hydrologic soil combinations 

and the EMCs of TN and TP associated with different land use categories used in the PLSM 

simulation can be found in Appendix A of the EPA’s seagrass nutrient and DO TMDL report 

(2007).

The 30-year long-term annual rainfall from five National Weather Service rain gages in the 

watershed (Daytona Beach International Airport, Titusville, Melbourne International Airport, Vero 

Beach Airport, and Fort Pierce) were used in simulating TN and TP watershed loadings for the 

existing condition. Figure 4.6 shows the locations of these weather stations. 

Table 4.8 lists the long-term annual average rainfall and the annual rainfall for each individual 

year from 2000 through 2005 at each of the five weather stations. The actual rainfall amounts 

used for simulating the TN and TP loadings from the drainage area discharge into a specific 

lagoon segment were calculated as the average annual rainfall of the nearby weather stations 

using the Thiessen Polygon method. As shown in the table, the annual rainfall from these 

stations from 2000 through 2005 ranged from 34.8 to 69.9 inches. The average 30-year longterm annual average from 1975 to 2005 was about 53.1 inches. The period used to develop the 

nonpoint load and derive the WLA for the NPDES facilities includes a reasonable range of dry 

and wet years.

Table 4.8. Annual Rainfall (inches) (2000–05) and 30-Year Long-Term 

Annual Average Rainfall (1975–2005) at Five National Weather 

Service Stations Used in the Development of This TMDL (EPA 

2007)

Year

Daytona Beach 

International 

Airport Titusville

Melbourne 

International 

Airport

Vero Beach 

Airport Fort Pierce

2000 49.6 56.85 61.66 58.73 63.11

2001 40.47 34.76 43.25 46.14 39.42

2002 53.31 59.32 65.92 50.6 60.62

2003 69.91 58.57 56.94 54.88 44.19

2004 47.87 47.72 40.54 46.07 53.26

2005 65.51 61.65 61.6 61.22 58.06

30-Year Mean 51.18 53.84 50.73 55.79 54.04

Note: Rainfall totals were calculated from April to the following March to correspond with the modeling and seagrass 

mapping year used by the SJRWMD.

Table 4.9 lists the nonpoint source loadings of TN and TP from the IRL and Banana River 

Lagoon watersheds estimated using the above information and models. Per-acre pollutant 

loading represents the intensity at which a given pollutant is discharged from a given land use 

area. Table 4.10 provides per-acre nonpoint source TN and TP loadings in the watersheds 

discharging to different IRL and Banana River Lagoon segments. 

Total nonpoint source TN and TP loadings are 2,661,593 and 457,495 lbs/yr, respectively, 

which translate into about 5.7 lbs/ac/yr of TN and 1.0 lbs/ac/yr of TP. Sublagoonwide per-acre 

TN loadings are 4.4, 6.3, and 5.6 lbs/ac/yr for the North IRL, Central IRL, and Banana River 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.9. Nonpoint Source Loadings of TN and TP from the IRL and 

Banana River Lagoon Watersheds

Sublagoon Lagoon Segment

TN

(lbs/yr)

TP

(lbs/yr)

North IRL

IR1-3 134,968 13,901

IR4 20,743 4,435

IR5 125,855 20,377

IR6-7 115,901 18,618

IR8 24,288 4,418

IR9-11 154,658 31,758

Subtotal 576,413 93,507

Central IRL

IR12 508,473 81,661

IR13 62,789 7,743

IR14-15 728,453 121,192

IR16-20 484,025 96,052

IR21 12,323 2,359

Subtotal 1,796,063 309,007

Banana River 

Lagoon

BR1-2 127,782 20,660

BR3-5 73,704 17,044

BR6 46,213 9,724

BR7 41,418 7,553

Subtotal 289,117 54,981

Total Loading 2,661,593 457,495

Lagoon, respectively, and lagoonwide per-acre TP loadings are 0.7, 1.1, and 1.0 lbs/ac/yr, 

respectively.

In addition, of the total TN loadings (including point sources and nonpoint sources) into the 3 

sublagoons, point source TN loadings account for 2.2, 1.3, and 5.1 percent in the North IRL, 

Central IRL, and Banana River Lagoon, respectively. Point source TP loadings account for 

about 0.7, 0.6, and 5.0 percent of total TP loadings (including point sources and nonpoint 

sources) into the North IRL, Central IRL, and Banana River Lagoon, respectively. Nonpoint 

sources are the dominant source of TN and TP loadings in the IRL and Banana River Lagoon.

4.2.2.3 TN and TP Loadings from Atmospheric Deposition Directly onto the 

Surface of the IRL and Banana River Lagoon

As discussed in Section 4.2.2, although no significant correlation was observed between 

seagrass depth limit and nutrient loads through atmospheric deposition directly onto the lagoon 

surface, atmospheric deposition does contribute to the nutrient loadings to the IRL and Banana 

River Lagoon. Therefore, nutrient loadings through atmospheric deposition are calculated in 

this TMDL report and added to the existing loadings and TMDLs.

Table 4.11 lists the surface areas and watershed areas of all the lagoon segments (Steward et 

al. 2005). Of the total areas of these lagoon segments, from 8 to 73 percent are lagoon surface 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.10. Per-Acre Nonpoint Source Loadings of TN and TP from the IRL

and Banana River Lagoon Watersheds

Sublagoons

Lagoon 

Segment

TN

(lbs/yr)

TP

(lbs/yr)

Basin Area

(acres)

Per-Acre

TN Load

(lbs/ac/yr)

Per-Acre

TP Load

(lbs/ac/yr)

North IRL

IR1-3 134,968 13,901 52,009 2.6 0.3

IR4 20,743 4,435 2,227 9.3 2.0

IR5 125,855 20,377 33,353 3.8 0.6

IR6-7 115,901 18,618 21,892 5.3 0.9

IR8 24,288 4,418 2,744 8.9 1.6

IR9-11 154,658 31,758 19,910 7.8 1.6

Subtotal 576,413 93,507 132,135 4.4 0.7

Central IRL

IR12 508,473 81,661 76,121 6.7 1.1

IR13 62,789 7,743 18,661 3.4 0.4

IR14-15 728,453 121,192 120,698 6.0 1.0

IR16-20 484,025 96,052 65,773 7.4 1.5

IR21 12,323 2,359 2,358 5.2 1.0

Subtotal 1,796,063 309,007 283,609 6.3 1.1

Banana 

River 

Lagoon

BR1-2 127,782 20,660 33,095 3.9 0.6

BR3-5 73,704 17,044 7,593 9.7 2.2

BR6 46,213 9,724 6,314 7.3 1.5

BR7 41,418 7,553 4,420 9.4 1.7

Subtotal 288,625 54,878 51,423 5.6 1.1

Total 2,661,593 457,495 467,167 5.7 1.0

areas. Overall, the surface areas of the IRL and Banana River Lagoon account for about 25 

percent of the lagoon and watershed areas.

The SJRWMD provided the bulk TN and TP atmospheric deposition rates used in this TMDL 

report (J.W. Steward, M. Lasi, and W.C. Green, personal communication). These rates were 

estimated based on data collected from an atmospheric deposition site (IRL 141) located at 

Sebastian Inlet between 2001 through 2006. Site IRL 141 belongs to the Clear Air Status and 

Trends Network (CASTNET), which has been sponsored by the EPA since 2006. Between 

2001 and 2006, the SJRWMD maintained the site (Rogers 2007). 

Typically, CASTNET sites only collect dry deposition data. However, at Site IRL 141, the 

SJRWMD maintains a wet deposition collector, which collects the wet deposition data using a 

protocol similar to that used by the National Atmospheric Deposition Program (NADP). The bulk 

deposition rates for TN and TP used in this TMDL were the sum of the CASTNET dry deposition 

rate and the NADP-style wet deposition rate. Because the CASTNET sites typically do not 

measure ammonia gas and organic nitrogen, the dry deposition data were adjusted for 

ammonia and organic nitrogen with a multiplication factor of 1.25, based on published literature 

(Poor et al. 2001, Russel et al. 2003, Barna et al. 2008). Areal wet deposition rate is related to 

rainfall. 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.11. Surface Areas of the IRL and Banana River Lagoon Segments

Sublagoon

Lagoon 

Segment

Lagoon 

Surface 

(Acres)

Segment 

Drainage 

Area 

(Acres)

Total 

Segment 

Area 

(Acres)

% Lagoon Surface 

Area in Total 

Segment Area

North IRL

IR1-3 21,763 52,009 73,772 29%

IR4 2,367 2,227 4,594 51%

IR5 16,556 33,353 49,909 32%

IR6-7 16,042 21,892 37,934 42%

IR8 3,803 2,744 6,547 58%

IR9-11 12,209 19,910 32,119 38%

Central IRL

IR12 8,566 76,121 84,687 10%

IR13 3,645 18,660 22,305 16%

IR14-15 13,865 120,689 134,554 10%

IR16-20 6,010 65,773 71,783 8%

IR21 2,545 2,358 4,903 52%

Banana River 

Lagoon

BR1-2 18,755 33,095 51,850 36%

BR3-5 21,338 7,593 28.931 73%

BR6 3,872 6,314 10,186 40%

BR7 1,905 4,420 6,325 31%

Total 153,241 467,158 620,399 25%

 

Because the SJRWMD used long-term average annual rainfall for the period from 1975 to 2005 

to simulate long-term average annual TN and TP loadings from the watershed, the average 

annual areal wet deposition rates estimated based on 2001 through 2006 data were adjusted 

with the long-term average annual rainfall (1975 to 2005). The long-term average annual 

rainfall values applied to the North IRL, Central IRL, and Banana River Lagoon are 53.2, 53.3, 

and 50.6 inches per year, respectively (J.W. Steward, M. Lasi, and W.C. Green, personal 

communication). 

Total atmospheric TN and TP loadings depositing directly onto the lagoon surface were

calculated by multiplying the areal atmospheric deposition rates by the surface area of each 

lagoon segment. Table 4.12 lists the total TN and TP atmospheric loads to the IRL and Banana 

River Lagoon segments. Tables 4.13a and 4.13b show the total nonpoint source TN and TP 

loadings from both watershed runoff and atmospheric direct deposition. 

The total nonpoint source TN annual load to the IRL and Banana River Lagoon is about 

3,280,163 lbs/yr. Total TN annual load to each lagoon segment ranges from 22,738 to 785,187

lbs/yr (Table 4.13a). The overall percent TN annual load resulting from direct atmospheric 

deposition to the surface of the lagoon system is about 19 percent. Depending on the percent 

lagoon surface area in the total area and the land use patterns of each lagoon segment, the 

percent TN load from direct atmospheric deposition ranges from 5 percent (IR16-20) to 53 

percent (BR3-5). TN loadings through direct atmospheric deposition represent a significant 

portion of the TN loadings received by the IRL and Banana River Lagoon.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.12. Atmospheric TN and TP Loadings Depositing Directly onto the 

Surface of the IRL and Banana River Lagoon Segments

Sublagoon

Lagoon 

Segment

Lagoon 

Surface 

(acres)

TN Areal 

Deposition 

Rate

(lbs/ac/yr)

TP Areal 

Deposition 

Rate

(lbs/ac/yr)

Annual TN 

Atmospheric 

Load

(lbs/yr)

Annual TP 

Atmospheric 

Load

(lbs/yr)

North IRL

IR1-3 21,763 4.09 0.093 88,898 2,013

IR4 2.367 4.09 0.093 9,670 219

IR5 16,556 4.09 0.093 67,630 1,532

IR6-7 16,042 4.09 0.093 65,531 1,484

IR8 3,803 4.09 0.093 15,535 352

IR9-11 12,209 4.09 0.093 49,875 1,129

Central IRL

IR12 8,566 4.09 0.093 35,051 794

IR13 3,645 4.09 0.093 14,915 338

IR14-15 13,865 4.09 0.093 56,734 1,285

IR16-20 6,010 4.09 0.093 24,591 557

IR21 2,545 4.09 0.093 10,415 236

Banana River 

Lagoon

BR1-2 18,755 3.92 0.093 73,486 1,649

BR3-5 21,338 3.92 0.088 83,604 1,876

BR6 3,872 3.92 0.088 15,172 340

BR7 1,905 3.92 0.088 7,465 168

Total 153,241 618,570 13,972

Table 4.13a. Total Nonpoint Source TN Loads (lbs/yr) to the IRL and 

Banana River Lagoon Segments

Sublagoon

Lagoon 

Segment

Atmospheric 

Deposition Load

Drainage 

Basin Load

Total Nonpoint 

Source Load

% Atmospheric Loads in 

the Total Nonpoint 

Source Load

North IRL

IR1-3 88,898 134,968 223,866 40%

IR4 9,670 20,743 30,413 32%

IR5 67,630 125,855 193,485 35%

IR6-7 65,531 115,901 181,432 36%

IR8 15,535 24,288 39,823 39%

IR9-11 49,875 154,658 204,533 24%

Central IRL

IR12 35,051 508,473 543,524 6%

IR13 14,915 62,789 77,704 19%

IR14-15 56,734 728,453 785,187 7%

IR16-20 24,591 484,025 508,616 5%

IR21 10,415 12,323 22,738 46%

Banana River 

Lagoon

BR1-2 73,486 127,782 201,268 37%

BR3-5 83,604 73,704 157,308 53%

BR6 15,172 46,213 61,385 25%

BR7 7,465 41,418 48,883 15%

Total 618,570 2,661,593 3,280,163 19%
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 4.13b. Total Nonpoint Source TP Loads (lbs/yr) to the IRL and 

Banana River Lagoon Segments

Sublagoon

Lagoon 

Segment

Atmospheric 

Deposition Load

Drainage 

Basin Load

Total Nonpoint 

Source Load

% Atmospheric 

Loads in the Total 

Nonpoint Source 

Load

North IRL

IR1-3 2,013 13,901 15,914 13%

IR4 219 4,435 4,654 5%

IR5 1,532 20,377 21,909 7%

IR6-7 1,484 18,618 20,102 7%

IR8 352 4,418 4,770 7%

IR9-11 1,129 31,758 32,887 3%

Central IRL

IR12 794 81,661 82,455 1%

IR13 338 7,743 8,081 4%

IR14-15 1,285 121,192 122,477 1%

IR16-20 557 96,052 96,609 1%

IR21 236 2,359 2,595 9%

Banana River 

Lagoon

BR1-2 1,649 20,660 22,309 7%

BR3-5 1,876 17,044 18,920 10%

BR6 340 9,724 10,064 3%

BR7 168 7,553 7,721 2%

Total 13,972 457,495 471,467 3%

The total nonpoint source TP annual load to the IRL and Banana River Lagoon is about 471,467

lbs/yr. The total TP annual load to each lagoon segment ranges from 2,595 to 122,477 lbs/yr 

(Table 4.13b). The overall percent TP annual load from direct atmospheric deposition to the 

surface of the lagoon system is about 3 percent, which is lower than the percent TN contributed 

by atmospheric direct deposition (19 percent). 

Depending on the percent lagoon surface area in the total area and the land use patterns of 

each lagoon segment, the percent TP load from direct atmospheric deposition ranges from 1 

percent (IR12, IR14-15, and IR16-20) to 13 percent (IR1-3). Compared with the total nonpoint 

source TP loading into the IRL and Banana River Lagoon, TP loading through direct 

atmospheric deposition represent a relatively small portion of the total load.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Chapter 5: DETERMINATION OF ASSIMILATIVE 

CAPACITY

5.1 Overall Approach 

As discussed in Chapter 3, once the target seagrass depth limit was established, the loading 

targets for TN and TP, or the TN and TP assimilative capacity of the IRL and Banana River 

Lagoon, were established through the following steps:

(1) Nonpoint source TN and TP loadings were estimated using the PLSM (TP for the 

North IRL was based on the HSPF Model) for 1943, 1996, 1999, and 2001 

based on land use distribution and rainfall corresponding to these years. Total 

loadings from each segment for each year were calculated as the sum of point 

source and nonpoint source loadings. There were no 1942–43 point source 

data, and so only runoff load estimates were used for that year. The SJRWMD 

believed that any point source loading from 1942 to 1943 should be relatively 

negligible and would have no significant bearing on the regression results.

(2) Total TN and TP loadings were converted to per-acre loading for each lagoon 

segment and these loadings were log-transformed.

(3) Log-transformed TN and TP loadings were regressed against the percent 

deviation of seagrass depth limits in1943, 1996, 1999, and 2001; and target log 

TN and TP loadings were established at -10 percent deviation (shallower) of the 

seagrass depth limit from the full-restoration target.

(4) The target log TN and TP loadings were then back-transformed to a target peracre TN and TP loading using the nonparametric method described by Duan 

(1983).

Table 3.2 lists the areal loading for TN and TP for the three sublagoons. Based on the per-acre 

TN and TP loading targets and the acreages of the drainage areas discharging to different 

lagoon segments, total drainage area TN and TP loading targets (lbs/yr) were developed for 

different segments. It should be noted that the TN and TP loadings from point sources were

included in the total drainage area loadings when conducting the seagrass depth limit versus

loading regression analysis. Therefore, the target allowable loads derived for the drainage 

basin based on the regression also include point source contributions. It is important to note 

that the TMDLs presented in this report focus on reducing the TN and TP loadings from the 

drainage basins, and that loadings from atmospheric deposition are considered part of the 

allowable loads that will not be changed from the existing condition. The final allowable loads 

(TMDL) are calculated as the sum of the allowable drainage basin loads (including point source

loads, surface runoff load, and ground water loads), and the direct atmospheric loads. 

Table 5.1 lists the final allowable loads. It also includes the existing total TN and TP loadings

for these segments, which include the drainage basin loadings, point source loadings, loadings 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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from direct atmospheric deposition and loadings from ground water, and the percent reductions 

of TN and TP loadings required to achieve the target loadings. 

The total TN and TP loadings discharged into impaired WBIDs were also calculated, based on 

the corresponding spatial relationship between the SJRWMD’s IRL and Banana River Lagoon 

segmentation and the Department’s WBID delineation. Table 5.2 lists the impaired WBIDs and 

their corresponding IRL and Banana River Lagoon segments. Because segment boundaries do 

not always match up with WBID boundaries, the aggregation of WBIDs and segments was 

conducted to capture comparable watersheds. Table 5.2 also shows the existing TN and TP 

loadings and target TN and TP loadings into the impaired WBIDs, and the required TN and TP 

load reductions to achieve the target loads. Figure 5.1 shows the spatial relationship between 

WBID boundaries and the SJRWMD’s segment boundaries.

Table 5.1. TN and TP Existing and Target Loadings and Load Reductions

Required to Achieve the Target Loadings

TN TP

Existing 

Loading 

(lbs/yr)

Target 

Loading 

(lbs/yr)

Required 

Reduction

(lbs/yr; %)

Existing 

Loading 

(lbs/yr)

Target 

Loading 

(lbs/yr)

Required 

Reduction

(lbs/yr; %)

North IRL

North IRL

(total) 886,257 687,044 199,213 (22%) 100,919 56,550 44,369 (44%)

IR1-3 223,866 177,220 46,646 (21%) 15,914 9,320 6,594 (41%)

IR4 30,413 23,244 7,169 (24%) 4,654 2,550 2,104 (45%)

IR5 193,485 149,988 43,497 (22%) 21,909 12,243 9,666 (44%)

IR6-7 187,580 147,524 40,056 (21%) 20,689 11,845 8,844 (43%)

IR8 39,823 31,429 8,394 (21%) 4,770 2,674 2,096 (44%)

IR9-11 211,091 157,640 53,451 (25%) 32,983 17,918 15,065 (46%)

Central IRL

Central IRL 

(total) 1,961,103 962,988 998,115 (51%) 314,148 165,193 148,955 (47%)

IR12 543,983 261,412 282,571 (52%) 82534 43,170 39,364 (48%)

IR13 77,704 42,811 34,893 (45%) 8,081 4,348 3,733 (46%)

IR14-15 785,310 380,491 404,819 (52%) 122,496 64,076 58,420 (48%)

IR16-20 531,368 262,384 268,984 (51%) 98,442 52,141 46,301 (47%)

IR21 22,738 15,890 6,848 (30%) 2,595 1,458 1,137 (44%)

Banana River Lagoon

Banana River

Lagoon 

(total)

484,462 291,755 192,707 (40%) 61,900 23,253 38,647 (62%)

BR1-2 201,760 116,314 85,446 (42%) 22,412 7,825 14,587 (65%)

BR3-5 172,435 123,434 49,001 (28%) 21,703 9,755 11,948 (55%)

BR6 61,385 30,661 30,724 (50%) 10,064 3,247 6,817 (68%)

BR7 48,883 21,347 27,536 (56%) 7,721 2,426 5,295 (69%)
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Table 5.2. TN and TP Existing and Target Loadings to Impaired WBIDs and 

Load Reductions Required To Achieve the Target Loadings

WBID Segment

TN TP

Existing 

Loading 

(lbs/yr)

Target 

Loading 

(lbs/yr)

Required 

Reduction 

(lbs/yr; %)

Existing 

Loading 

(lbs/yr)

Target 

Loading 

(lbs/yr)

Required 

Reduction

(lbs/yr; %)

North IRL

North IRL (total) 886,257 687,044 199,213 (22%) 100,919 56,550 44,369 (44%)

2963F IR1-3 223,866 177,220 46,646 (21%) 15,914 9,320 6,594 (41%)

2963E IR4+IR5 223,898 173,232 50,666 (23%) 26,563 14,793 11,770 (44%)

2963D IR6-7 187,580 147,524 40,056 (21%) 20,689 11,845 8,844 (43%)

2963B+2963C IR8+IR9-11 250,913 189,068 61,845 (25%) 37,753 20,592 17,161 (45%)

Central IRL

Central IRL (total) 1,961,103 962,988 998,115 (51%) 314,148 165,193 148, 955 (47%)

5003D+2963A IR12+IR13+

IR14-15 1,406,998 684,715 722,283 (51%) 213,111 111,594 101,517 (48%)

5003B+5003C IR16-20+

IR21 554,105 278,273 275,832 (50%) 101,037 53,599 47,438 (47%)

Banana River Lagoon

Banana River Lagoon (total) 484,462 291,755 192,707 (40%) 61,900 23,253 38,647 (62%)

3057C BR1-2 201,760 116,314 85,446 (42%) 22,412 7,825 14,587 (65%)

3057A+3057B BR3-5+BR 7 221,317 144,780 76,537 (35%) 29,424 12,181 17,243 (59%)

3044A BR6 61,385 30,661 30,724 (50%) 10,064 3,247 6,817 (68%)
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Figure 5.1. Spatial Relationship Between the Department’s WBID 

Boundaries and the SJRWMD’s Segment Boundaries
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Chapter 6: DETERMINATION OF THE TMDL

6.1 Expression and Allocation of the TMDL 

The objective of a TMDL is to provide a basis for allocating acceptable loads among all of the 

known pollutant sources in a watershed so that appropriate control measures can be 

implemented and water quality standards achieved. A TMDL is expressed as the sum of all 

point source loads (wasteload allocations, or WLAs), nonpoint source loads (load allocations, or 

LAs), and an appropriate margin of safety (MOS), which takes into account any uncertainty 

concerning the relationship between effluent limitations and water quality:

TMDL = ∑ WLAs + ∑ LAs + MOS

As discussed earlier, the WLA is broken out into separate subcategories for wastewater 

discharges and stormwater discharges regulated under the NPDES Program:

TMDL ≅ ∑ WLAswastewater + ∑ WLAsNPDES Stormwater + ∑ LAs + MOS

It should be noted that the various components of the revised TMDL equation may not sum up 

to the value of the TMDL because (1) the WLA for NPDES stormwater is typically based on the 

percent reduction needed for nonpoint sources and is also accounted for within the LA, and (2) 

TMDL components can be expressed in different terms (for example, the WLA for stormwater is 

typically expressed as a percent reduction, and the WLA for wastewater is typically expressed 

as mass per day).

WLAs for stormwater discharges are typically expressed as percent reduction because it is very 

difficult to quantify the loads from MS4s (given the numerous discharge points) and to 

distinguish the loads from MS4s from other nonpoint sources (given the nature of stormwater 

transport). The permitting of stormwater discharges also differs from the permitting of most 

wastewater point sources. Because stormwater discharges cannot be centrally collected, 

monitored, and treated, they are not subject to the same types of effluent limitations as 

wastewater facilities, and instead are required to meet a performance standard of providing 

treatment to the “maximum extent practical” through the implementation of BMPs.

This approach is consistent with federal regulations (40 CFR § 130.2[I]), which state that TMDLs 

can be expressed in terms of mass per time (e.g., pounds per day), toxicity, or other appropriate 

measure. TMDLs for the main stem segments of the IRL and Banana River Lagoon are 

expressed in terms of lbs/yr, lbs/day, and percent reduction of TN and TP, and represent the 

long-term average TN and TP loadings that these IRL and Banana River Lagoon segments can 

assimilate and maintain balanced aquatic flora and fauna (Tables 6.1a and 6.1b). It should be 

noted that the expression of the TMDL on a mass-per-day basis is for informational purposes 

only. The implementation of these TMDLs should be carried out using an annual time scale.

Based on a recent EPA memorandum (2006), daily loads of TN and TP from point and nonpoint 

sources were also calculated (Tables 6.2a and 6.2b). These daily loads were calculated by 

dividing the annual loads by 365 days/yr and are only provided in this report for informational 

purposes. The implementation of the TMDLs covered in this TMDL report should be carried out 

using an annual time scale.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Table 6.1a. TN TMDL Components for Nutrient-Impaired WBIDs of the IRL 

and Banana River Lagoon Main Stem

WBID Parameter

TMDL

(lbs/yr)

WLANPDES 

wastewater

(lbs/yr)

WLANPDES 

Stormwater *

LA

(lbs/yr) MOS

2963F TN 177,220 N/A 35% 177,220 Implicit

2963E TN 173,232 N/A 35% 173,232 Implicit

2963D TN 147,524 8,111 36% 139,413 Implicit

2963B+2963C TN 189,068 9,200 36% 179,868 Implicit

5003D+2963A TN 684,715 831 56% 683,884 Implicit

5003B+5003C TN 278,273 25,391 56% 252,882 Implicit

3057C TN 116,314 1,214 67% 115,100 Implicit

3057A+3057B TN 144,780 6,173 59% 138,607 Implicit

3044A TN 30,661 N/A 66% 30,661 Implicit

N/A – Not applicable.

* The required percent reduction for WLANPDES Stormwater was considered the same as the required percent reduction for nonpoint 

source loading (Table 6.3). Refer to the discussion in Section 6.3.2 for details.

Table 6.1b. TP TMDL Components for Nutrient-Impaired WBIDs of the IRL

and Banana River Lagoon Main Stem

WBID Parameter

TMDL

(lbs/yr)

WLANPDES 

wastewater

(lbs/yr)

WLANPDES 

Stormwater

LA

(lbs/yr) MOS

2963F TP 9,320 N/A 47% 9,320 Implicit

2963E TP 14,793 N/A 47% 14,793 Implicit

2963D TP 11,845 1,609 53% 10,236 Implicit

2963B+2963C TP 20,592 225 48% 20,367 Implicit

5003D+2963A TP 111,594 122 48% 111,472 Implicit

5003B+5003C TP 53,599 1,949 48% 51,650 Implicit

3057C TP 7,825 302 72% 7,523 Implicit

3057A+3057B TP 12,181 1221 64% 10,960 Implicit

3044A TP 3,247 N/A 70% 3,247 Implicit

N/A – Not applicable.

* The required percent reduction for WLANPDES Stormwater was considered the same as the required percent reduction for nonpoint 

source loading (Table 6.3). Refer to the discussion in Section 6.3.2 for details.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Table 6.2a. TN TMDL Daily Loads for Nutrient-Impaired WBIDs of the IRL

and Banana River Lagoon Main Stem

WBID Parameter

TMDL

(lbs/day)

WLANPDES 

wastewater

(lbs/day)

WLANPDES 

Stormwater

LA

(lbs/day) MOS

2963F TN 486 N/A 35% 486 Implicit

2963E TN 475 N/A 35% 475 Implicit

2963D TN 404 22** 36% 382 Implicit

2963B+2963C TN 518 25** 36% 493 Implicit

5003D+2963A TN 1,876 2** 56% 1,874 Implicit

5003B+5003C TN 762 70** 56% 692 Implicit

3057C TN 319 3** 67% 316 Implicit

3057A+3057B TN 397 17** 59% 380 Implicit

3044A TN 84 N/A 66% 84 Implicit

N/A – Not applicable.

** Daily WLAs were calculated by dividing the annual loads by 365 days. In reality, daily WLAs for different facilities have different 

applicable time scales. The daily WLAs at different time scales are not directly addable. The daily WLAs in this table are only for 

informational purposes. Section 6.3.1 contains a detailed WLA for each facility and the applicable time scale.

Table 6.2b. TP TMDL Daily Loads for Nutrient-Impaired WBIDs of the IRL

and Banana River Lagoon Main Stem

WBID Parameter

TMDL

(lbs/day)

WLANPDES 

wastewater

(lbs/day)

WLANPDES 

Stormwater

LA

(lbs/day) MOS

2963F TP 26 N/A 47% 26 Implicit

2963E TP 41 N/A 47% 41 Implicit

2963D TP 32 4.4** 53% 28 Implicit

2963B+2963C TP 56 0.6** 48% 56 Implicit

5003D+2963A TP 306 0.3** 48% 305 Implicit

5003B+5003C TP 147 5.3** 48% 142 Implicit

3057C TP 21 0.8** 72% 21 Implicit

3057A+3057B TP 33 3.3** 64% 30 Implicit

3044A TP 9 N/A 70% 9 Implicit

N/A in this table means not applicable.

** Daily WLAs were calculated by dividing the annual loads by 365 days. In reality, daily WLAs for different facilities have different 

applicable time scales. Daily WLAs at different time scales are not directly addable. The daily WLAs in this table are only for 

informational purposes. Section 6.3.1 contains a detailed WLA for each facility and the applicable time scale.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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6.2 Load Allocation

As discussed in Chapter 4, the vast majority of TN and TP loadings in the IRL and Banana River 

Lagoon watersheds come from nonpoint sources. Point source discharges typically account for 

less than 5 percent of the total watershed load. Major sources of nonpoint nutrient loadings 

include watershed runoff, ground water input, and direct atmospheric deposition onto the lagoon 

surface.

Based on Tables 6.1a and 6.1b, the total allowable LAs for TN for the impaired WBIDs range 

from 30,661 lbs/yr for WBID 3044A (Newfound Harbor), to 683,884 lbs/yr for WBIDs 5003D and 

2963A (South Indian River and Indian River above Sebastian Inlet, respectively). For TP, the 

LAs range from 3,247 lbs/yr for WBID 3044A (Newfound Harbor), to about 111,472 lbs/yr for 

WBIDs 5003D and 2963A (South Indian River and Indian River above Sebastian Inlet, 

respectively). 

Assuming that atmospheric direct deposition will remain the same for the existing and target 

conditions, to achieve the allowable LAs listed in Tables 6.1a and 6.1b, TN and TP loadings

from watershed nonpoint sources need to be reduced as follows:

(1) The required percent reductions for WBIDs located in the North IRL—WBID 

2963F (Indian River above Melbourne Brewer), WBID 2963E (Indian River 

above NASA Causeway), WBID 2963D (Indian River above 520 Causeway), 

WBID 2963B (Indian River above Melbourne Causeway), and WBID 2963C 

(Indian River above Melbourne Causeway)—range from 35 to 36 percent for TN 

and 47 to 53 percent for TP loadings. 

(2) For the WBIDs located in the Central IRL—which include several South IRL

segments (WBIDs 5003B, 5003D, and 5003E) and WBID 2963A (Indian River 

above Sebastian Inlet)—the required percent load reductions are 56 percent for 

TN and about 48 percent for TP. 

(3) For the WBIDs located in the Banana River Lagoon—WBID 3057C (Banana

River above Barge Canal), WBID 3057A (Banana River below Mathers), WBID 

3057B (Banana River above 520 Causeway), and WBID 3044A (Newfound 

Harbor)—the required percent reductions range from 56 to 67 percent for TN,

and 64 to 72 percent for TP. 

As the focus of this TMDL is to reduce the nutrient loadings from the lagoon watershed, and the 

seagrass depth-limit and nutrient load relationship was derived only based on the watershed 

loading, the percent load reductions needed to achieve the restoration target (Tables 6.1a and

6.1b) were calculated only based on the nonpoint source loading from the watershed. Table 

6.3a lists the existing and total allowable nonpoint source TN and TP loadings from the 

watershed without including the loadings from direct atmospheric deposition in the calculation. 

The table also shows the percent reductions that need to be applied to the nonpoint drainage 

basin load to achieve the restoration target. 

On the other hand, the needed percent reductions can also be calculated based on the total 

nonpoint source loadings, which include loading from atmospheric direct deposition. Table 6.3b 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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lists the existing nonpoint source TN and TP loadings, the nonpoint source TMDLs for TN and 

TP, and the percent reduction required to achieve the TMDL targets when atmospheric direct 

deposition onto the lagoon surface is considered. As Table 6.3b shows, calculating the needed 

percent reduction by including direct atmospheric deposition results in lower needed percent 

reductions. In this TMDL, the percent reduction focuses on the watershed load reduction, which 

requires a higher percent nutrient reduction. This approach adds to the MOS.

Table 6.3a. Required Percent Reductions of TN and TP Loads, by WBID, To 

Achieve Restoration Targets (Excluding Atmospheric 

Deposition)

WBID

TN TP

Existing Nonpoint 

Load

(lbs/yr)

LA

(lbs/yr)

%

Reduction

Existing 

Nonpoint Load

(lbs/yr)

LA

(lbs/yr)

%

Reduction

2963F 134,968 88,322 35% 13,901 7,307 47%

2963E 146,598 95,932 35% 24,812 13,042 47%

2963D 115,901 73,882 36% 18,618 8,752 53%

2963B+2963C 178,946 114,459 36% 36,176 18,886 48%

5003D+2963A 1299,715 577,183 56% 210,596 109,055 48%

5003B+5003C 496,348 217,877 56% 98,411 50,857 48%

3057C 127,782 41,614 67% 20,660 5,874 72%

3057A+3057B 115,122 47,539 59% 24,597 8,916 64%

3044A 46,213 15,489 66% 9,724 2,907 70%

Table 6.3b. Required Percent Reductions of TN and TP Loads, by WBID, To 

Achieve Nonpoint Source Loading Targets (Including 

Atmospheric Deposition)

WBID

TN TP

Existing Nonpoint 

Load

(lbs/yr)

LA

(lbs/yr)

%

Reduction

Existing 

Nonpoint Load

(lbs/yr)

LA

(lbs/yr)

%

Reduction

2963F 223,866 177,220 21% 15,914 9,320 41%

2963E 223,898 173,232 23% 26,563 14,793 44%

2963D 181,432 139,413 23% 20,102 10,236 49%

2963B+2963C 244,355 179,868 26% 37,657 20,367 46%

5003D+2963A 1,406,416 683,884 51% 213,013 111,472 48%

5003B+5003C 531,353 252,882 52% 99,204 51,650 48%

3057C 201,268 115,100 43% 22,309 7,523 66%

3057A+3057B 206,190 138,607 33% 26,641 10,960 59%

3044A 61,385 30,661 50% 10,064 3,247 68%
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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6.3 Wasteload Allocation

6.3.1 NPDES Wastewater Discharges

As discussed in Chapter 4, 16 NPDES-permitted wastewater facilities are considered significant 

TN and TP contributors to the IRL and Banana River Lagoon watersheds (Table 4.1). WLAs for 

each facility were developed considering their current permit limits, the quality and frequency of 

their actual discharge, and the assimilative capacity of the receiving waters. For each NPDES 

facility, monthly discharge volume and TN and TP concentration data were retrieved directly 

from the Discharge Monitoring Reports submitted to the Department. Annual TN and TP loads 

were calculated for 2001 through 2005. The arithmetic mean and the 95th percentile of these

annual loads were also calculated. 

Tables 6.4a and 6.4b provide TN and TP values, respectively, for these facilities. These 

average annual loads and the 95th percentile of the annual loads were compared with permitted 

loads and discharge concentrations for each facility. Those facilities that already achieve 

advanced wastewater treatment (AWT) nutrient concentrations (3 mg/L for TN and 1 mg/L for 

TP) and/or discharge infrequently were allocated annual TN and TP loads equivalent to the 95th

percentile of their discharged nutrient loads for 2001 to 2005. For facilities that do not meet the 

AWT concentration requirements and discharge a relatively large quantity of nutrients into the 

lagoon system, the long-term average annual TN and/or TP loads are assigned as the facilities’ 

WLA. 

Based on a recent EPA memorandum (2006), daily loads of TN and TP from point sources 

should be calculated. In this TMDL report, daily WLAs for facilities that have whole-year daily

discharge are calculated as annual loads divided by 365 days. The daily WLAs for facilities that 

are only allowed to discharge over limited periods less than 365 days are calculated as annual 

loads divided by the allowable numbers of discharge days. These daily loads are only 

applicable to those allowable discharge days. It should be noted that the daily loads presented 

in this report are for informational purposes only. The implementation of these TMDLs and 

WLAs will be based on an annual time scale. The WLAs are assigned to the identified facilities 

as follows:

(1) Cocoa/J. Sellers WRF (FL0021521): The facility has a 4.5-MGD average daily 

flow permitted discharge to the IRL at Segment IR6-7. The permit allows a 

surface discharge from the facility for no more than 91 days (or the equivalent of 

2,184 hours) per year. The rest of the time, the treated wastewater is directed to 

a 4.5-MGD AADF permitted capacity slow-rate public access system consisting 

of on-site irrigation and decorative ponds, irrigation of residential lawns, parks, 

playgrounds, cemeteries, golf driving ranges, highway medians, and other 

landscape areas within the Reuse Service Area. The anticipated reuse demand 

from these areas is about 5.98-MGD AADF. 

 Through the years, the facility has made great efforts to reduce its nutrient 

loadings into the IRL. Other than the land application of treated wastewater, it

also has taken steps to decrease discharge nutrient concentrations. The 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Table 6.4a. Permitted Annual TN Limits, Discharges, and WLAs for Facilities and TMDLs for Each Lagoon Segment

Lagoon 

Segment NPDES Facility

2000–05 Flow 

Weighted 

Concentration TN 

(mg/L)1

Annual 

Average Load 

2001–05 TN 

(lbs/yr)2

95th Percentile 

Annual Load TN 

(lbs/yr)3

Permit 

Concentration TN 

(mg/L)4

Permit 

Flow 

Equiv. 

(MGD)5

Permit 

Annual 

Load TN 

(lbs/yr)6

TMDL TN 

(lbs/yr)7

WLA TN 

(lbs/yr)8

North IRL

IRL1-3 N/A 177,220

IR4 N/A 23,244

IR5 N/A 149,988

IR6-7 FL0021521 Cocoa/

J. Sellers 5.78 5,556 8,932 12 1.125 41,007

147,524

5,556

IR6-7 FL0001473 Cape 

Canaveral PP N/A N/A N/A N/A N/A 2,555 2,555

IR6-7 FL0000680 Reliant 

Energy Indian River N/A N/A N/A N/A 0.297 N/A N/A

IR8 FL0021571 

Rockledge N/A 0 0 12 0.062 2,253 31,429 30

IR9-11 FL0043443 

Melbourne RO 2.43 6,585 9,170 3 1.250 11,422 157,640 9,170

Central IRL

IR12

FL0040622 

BCUD/South 

Beaches

8.09 62 173 12 0.123 4,506

261,412

173

IR12

FL0041122 

Melbourne/Grant 

Street

10.78 53 182 20 0.068 2,503 182

IR13 N/A 42,811

IR14-15 FL0042293 Barefoot 

Bay 2.29 148 476 3 0.188 1,709 380,491 476

IR16-20 FL0021661 Vero 

Beach 11.85 12,173 24,794 20 0.740 45,063

262,384

12,173

IR16-20 FL0042544 Vero 

Beach RO 2.39 2,438 2,985 4 0.5 6,092 2,985

IR16-20 FL0166511 

IRCUD/Hobart RO 1.90 2,221 2,759 3 0.750 6,853 2,759

IR16-20 FL0041637 IRCUD/

West Regional 0.73 1,397 2,838 1 4.0 12,184 2,838

IR16-20 FL0037940 IRCUD/

South County RO 1.51 3,752 4,636 3 1.5 13,707 4,636

IR21 N/A 15,890
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

Florida Department of Environmental Protection

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Lagoon 

Segment NPDES Facility

2000–05 Flow 

Weighted 

Concentration TN 

(mg/L)1

Annual 

Average Load 

2001–05 TN 

(lbs/yr)2

95th Percentile 

Annual Load TN 

(lbs/yr)3

Permit 

Concentration TN 

(mg/L)4

Permit 

Flow 

Equiv. 

(MGD)5

Permit 

Annual 

Load TN 

(lbs/yr)6

TMDL TN 

(lbs/yr)7

WLA TN 

(lbs/yr)8

Banana River Lagoon

BR1-2 FL0042005 Morton 

Salt 2.74 571 1214 N/A 0.084 N/A 116,314 1,214

BR3-5 FL0020541 Cape 

Canaveral 1.05 1,342 2,151 3 1.8 16,448

123,434

2,151

BR3-5 FL0021105 Cocoa 

Beach 6.27 12,476 18,446 12 1.5 54,676 4,022

BR6 N/A 30,661

BR7 N/A 21,347

Notes:

1. Average flow-weighted nutrient concentration in the discharge summarized from monthly data reported to the Department by the facility. The 2000–05 period corresponds to 

the modeling period used by the SJRWMD for TMDL development.

2. Average annual nutrient load discharged by the facility from 2001–05. Loads are calculated from monthly discharge and monthly effluent nutrient concentration, as reported by 

the facility to the Department, with unit conversion factors. Annual loads are calculated from April to the following March to correspond with the modeling year used by the 

SJRWMD. The average annual load is the average of the five annual loads. The five-year period corresponds to the five-year cycle of an NPDES permit.

3. The calculated 95th percentile of the discharge's 5 annual nutrient loads.

4. The effluent nutrient concentration limit in the facility's NPDES permit. Provided for reference only; not used in WLA calculations.

5. The permitted annual flow equivalent in the NPDES permit issued by the Department. Some facilities are permitted to discharge only 60 or 91 days during the rainy season. 

The flow and number of discharge days allowed in the permit are multiplied along with conversion factors to calculate an annual flow equivalent. Provided so intermittent 

discharge facility flow can be compared with continuous discharge facilities. Provided for reference only; not used in WLA calculations.

6. The annual load allowed by the facility's NPDES permit calculated by multiplying the permit discharge flow, the permit effluent nutrient concentration, and conversion factors. 

Provided for reference only; not used in WLA calculations.

7. The proposed TMDL (all point and nonpoint sources) for that lagoon segment calculated by the SJRWMD modeling approach (Steward and Green 2006), plus direct 

atmospheric deposition.

8. Proposed WLA for all point sources in that lagoon segment. Section 6.3.1 describes the basis for specific allocations in more detail.

9. N/A represents the condition that a given lagoon segment does not have a point source discharger or, for a given facility, no permit limit for TN, TP, and/or flow.
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Table 6.4b. Permitted Annual TP Limits, Discharges, and WLAs for Facilities and TMDLs for Each Lagoon Segment

Lagoon 

Segment NPDES Facility

2000-2005 Flow 

Weighted 

Concentration TP 

(mg/L)1

Annual 

Average 

Load

2001–05 

TP 

(lbs/yr)2 

95th

Percentile 

Annual Load 

TP 

(lbs/yr)3 

Permit 

Concentration 

TP (mg/L)4 

Permit 

Flow 

Equiv. 

(MGD)5 

Permit 

Annual 

Load TP 

(lbs/yr)6 TMDL TP (lbs/yr)7 WLA TP (lbs/yr)8 

North IRL

IRL1-3 N/A 9,320

IR4 N/A 2,550

IR5 N/A 12,243

IR6-7 FL0021521 

Cocoa/J. Sellers

0.54 578 1,423 4.0 1.125 13,669

11,845

1,423

IR6-7 FL0001473 Cape 

Canaveral PP N/A 146 146

IR6-7 

FL0000680 

Reliant Energy 

Indian River

0.20 12 40 N/A 0.297 N/A 40

IR8 FL0021571 

Rockledge N/A 0 0 4.0 0.062 751 2,674 30

IR9-11 FL0043443 

Melbourne RO 0.04 101 195 1.0 1.25 3,807 17,918 195

Central IRL

IR12

FL0040622 

BCUD/ 

South Beaches

1.50 13 36 4.0 0.123 1,502

43,170

36

IR12

FL0041122 

Melbourne//

Grant Street

0.45 2 8 1.0 0.068 125 8 

IR13 N/A 4,348

IR14-15 FL0042293 

Barefoot Bay 0.35 22 78 1.0 0.188 570 64,076 78

IR16-20 FL0021661 Vero 

Beach 1.06 916 1,411 6.0 0.740 13,518

52,141

916

IR16-20 FL0042544 Vero 

Beach RO 0.34 340 487 4.0 0.5 6,092 487

IR16-20 FL0166511 

IRCUD/Hobart RO 0.04 45 96 1.0 0.750 2,284 96

IR16-20 FL0041637 0.04 81 159 0.1 4.0 1,218 159
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Lagoon 

Segment NPDES Facility

2000-2005 Flow 

Weighted 

Concentration TP 

(mg/L)1

Annual 

Average 

Load

2001–05 

TP 

(lbs/yr)2

95th

Percentile 

Annual Load 

TP 

(lbs/yr)3

Permit 

Concentration 

TP (mg/L)4

Permit 

Flow 

Equiv. 

(MGD)5

Permit 

Annual 

Load TP 

(lbs/yr)6 TMDL TP (lbs/yr)7 WLA TP (lbs/yr)8

IRCUD/West

Regional 

IR16-20

FL0037940 

IRCUD/South 

County RO

0.04 112 291 1.0 1.5 4,569 291

IR21 N/A 1,458

Banana River Lagoon

BR1-2 FL0042005 

Morton Salt 0.57 103 302 N/A 0.084 N/A 7,825 302

BR3-5 FL0020541 Cape 

Canaveral 0.11 112 158 0.5 1.8 2,741

9,755

158

BR3-5 FL0021105 Cocoa 

Beach 1.32 2,291 3,599 4.0 1.5 18,226 1,063

BR6 N/A 3,247

BR7 N/A 2,426

1. Average flow-weighted nutrient concentration in the discharge summarized from monthly data reported to the Department by the facility. The 2000–05 period corresponds to 

the modeling period used by the SJRWMD for TMDL development.

2. Average annual nutrient load discharged by the facility, 2001–05. Loads are calculated from monthly discharge and monthly effluent nutrient concentration as reported by the 

facility to the Department, with unit conversion factors. Annual loads are calculated from April to the following March to correspond with the modeling year used by the 

SJRWMD. The average annual load is the average of the five annual loads. The five-year period corresponds to the five-year cycle of an NPDES permit.

3. The calculated 95th percentile of the discharge's five annual nutrient loads.

4. The effluent nutrient concentration limit in the facility's NPDES permit. Provided for reference only; not used in WLA calculations.

5. The permitted annual flow equivalent in the NPDES permit issued by the Department. Some facilities are permitted to discharge only 60 or 91 days during the rainy season. 

The flow and number of discharge days allowed in the permit are multiplied along with conversion factors to calculate an annual flow equivalent. Provided so intermittent 

discharge facility flow can be compared with continuous discharge facilities. Provided for reference only; not used in WLA calculations.

6. The annual load allowed by the facility's NPDES permit calculated by multiplying the permit discharge flow, the permit effluent nutrient concentration, and conversion factors. 

Provided for reference only; not used in WLA calculations.

7. The proposed TMDL (all point and nonpoint sources) for that lagoon segment calculated by the SJRWMD modeling approach (Steward and Green 2006), plus direct 

atmospheric deposition.

8. Proposed WLA for all point sources in that lagoon segment. Section 6.3.1 describes the basis for specific allocations in more detail.

9. N/A in the table represents the condition that a given lagoon segment does not have a point source discharger or, for a given facility, no permit limit for TN, TP, and/or flow.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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 existing long-term average TP concentration of the surface discharge is about 

0.57 mg/L, which is significantly lower than the concentration observed before 

the 1990s and meets the AWT requirement. Therefore, the 95th percentile TP 

annual discharge load for 2001 through 2005, which is 1,423 lbs/yr, is assigned 

to the facility as its annual TP WLA.

 The long-term TN concentration of the discharge is 5.78 mg/L, which is also 

significantly lower than the historical discharge concentration, but does not meet 

the AWT concentration requirement. Considering that the 95th percentile of the 

annual TN discharge rate from the facility is about 8,932 lbs/yr for the period 

from 2001 through 2005 (more than 10 percent of the total allowable TN load for 

Segment IR6-7 [81,993 lbs/yr]), assigning the 95th percentile annual TN load to 

the facility for its WLA was not considered sufficiently protective for the IRL.

Therefore, the long-term average annual TN load for 2001 through 2005, which 

is 5,556 lbs/yr, is assigned to the facility as its annual TN WLA. The

corresponding daily WLAs for TP and TN are 15.6 and 61.1 lbs/day, 

respectively, applicable to no more than 91 days in a given year.

(2) Reliant Energy Indian River Power Plant (FL0000680): The vast majority of 

the discharge from the facility (maximum daily average of 820 MGD) into 

Segment IR6-7 is OTCW from the IRL. No extra TN and TP loadings are added 

through the recycled lagoon water. The only other surface water discharge from 

the plant is boiler blowdown, which has a maximum monthly average limit of 

0.297 MGD. The facility adds trisodium phosphate and disodium phosphate into 

the boiler blowdown to control pH. Therefore, a WLA of TP loading to the facility 

is needed. 

 For the past 5 years, the long-term average TP concentration from the facility’s 

surface discharge has been about 0.20 mg/L, which meets the AWT 

concentration requirement. Therefore, the 95th percentile of the existing TP 

discharge load, which is 40 lbs/yr, is assigned to the facility as its annual WLA. 

The corresponding daily TP WLA is 0.1 lbs/day. As the facility does not 

discharge extra TN loading into the IRL, no WLA for TN is assigned to the 

facility.

(3) Melbourne RO WWTF (FL0043443): The facility provides potable water to the 

city of Melbourne. It has a 1.25-MGD permitted design flow discharged to the 

Eau Gallie River, which in turn discharges into IRL Segment IR9-11. The 

surface discharge contains concentrated ground water constituents (brine) and 

TN and TP. The facility’s existing long-term discharge TN and TP

concentrations are 2.43 and 0.04 mg/L, respectively, which meet the AWT 

requirements for both TN and TP. Therefore, the 95th percentile TN and TP 

annual discharge loads for 2001 through 2005, which are 9,170 lbs/yr for TN 

and 195 lbs/yr for TP, are assigned to the facility as its annual WLAs. The 

corresponding daily WLAs for TN and TP are 25.1 and 0.5 lbs/day, respectively.

(4) BCUD/South Beaches WWTF (FL0040622): The facility has an 8.0-MGD ADF

discharge permit. Treated wastewater is injected into an underground injection 

well system most of the time. The facility’s wastewater permit only allows 

surface discharges of the same ADF discharge limit for 5 days in a 5-year permit 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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cycle when the mechanical integrity test is conducted for the underground 

injection well system. From 2001 through 2005, the 95th percentile TN and TP 

discharge rates were about 173 and 36 lbs/yr, respectively. Compared with the 

total allowable TN load of 226,361 lbs/yr and TP load of 42,376 lbs/yr for the 

segment, the TN and TP loads from the facility are considered insignificant. 

Therefore, even though the long-term discharge TN and TP concentrations of 

the facility are 8.09 and 1.50 mg/L, respectively, which are higher than the AWT 

levels, the 95th percentile TN and TP discharges for the 2001–05 period, which 

are 173 and 36 lbs/yr, respectively, are assigned to the facility as its TN and TP 

annual WLAs. The corresponding daily WLAs for TN and TP are 34.6 and 7.2 

lbs/day, respectively, applicable only to the 5-day mechanical integrity test in a 

given permit cycle. 

(5) Melbourne/Grant Street WWTF (FL0041122): The 5.5-MGD AADF permitted 

capacity for treated wastewater is either disposed of in a Class I underground 

injection well or directed to a public access reuse system. The surface 

discharge to Crane Creek, which in turn discharges into IRL Segment IR12, is 

only allowed for a 5-day period in a 5-year permit cycle during the mechanical 

integrity test of the underground injection well. The long-term average TN and 

TP concentrations for the surface discharge from the facility are 10.78 and 0.45 

mg/L, respectively. Although the TN discharge concentration does not meet the 

AWT concentration requirement, the 95th percentile of the annual TN discharge 

rate is about 182 lbs/yr for 2001 through 2005, which is considered insignificant 

compared with the segment’s total allowable TN load (226,361 lbs/yr). 

Therefore, the 95th percentile TN and TP annual discharge loads for the period 

from 2001 through 2005, which are 182 lbs/yr for TN and 8 lbs/yr for TP, are 

assigned to the facility as its annual WLAs. The corresponding daily WLAs for 

TN and TP are 36.4 and 1.6 lbs/day, respectively, applicable only to the 5-day 

mechanical integrity test in a given permit cycle.

(6) Barefoot Bay Advanced WWTF (FL0042293): The majority of treated 

wastewater from the facility is used for irrigating golf courses, sod farms, and

citrus groves at or near the Barefoot Bay Mobile Home Community. The 

intermittent wet-weather discharge is only allowed for less than 91 days (or the 

equivalent of 2,184 hours) per year, and the average daily discharge rate during 

that period should not exceed 0.75 MGD. The long-term average TN and TP 

discharge concentrations for the facility are 2.29 and 0.35 mg/L, respectively, 

which both meet the AWT concentration requirements. Therefore, the 95th

percentile TN and TP annual discharge loads for 2001 through 2005, which are 

476 lbs/yr for TN and 78 lbs/yr for TP, are assigned to the facility as its annual 

WLAs. The corresponding daily WLAs for TN and TP are 5.2 and 0.9 lbs/day, 

respectively, applicable to no more than 91 days for each year.

(7) Vero Beach WWTF (FL0021661): The majority of the treated wastewater from 

the facility is directed to a slow-rate public access reuse system that is used to 

irrigate recreation areas, residential lawns, golf courses, urban landscapes, and 

road medians in the Reuse Service Area. The wet-weather intermittent 

discharge to the IRL at Segment IR16-20 is only allowed for no more than 60 

days (or the equivalent 1,440 hours) per year, and the average daily discharge 

during the period should not exceed 0.740 MGD. The long-term average TN 

and TP concentrations for the discharge are 11.85 and 1.06 mg/L, respectively, 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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which exceed the AWT concentration requirements. Considering that the 95th

percentile TN and TP loadings for the facility from 2001 through 2005 are 24,794 

and 1,411 lbs/yr, respectively, which are significant, the long-term average 

annual discharge loads of TN and TP from 2001 through 2005, which are 12,173 

lbs/yr for TN and 916 lbs/yr for TP, are assigned to the facility as its annual 

WLAs. The corresponding daily WLAs for TN and TP are 202.9 and 15.3 

lbs/day, respectively, applicable to no more than 60 days in each year.

(8) Vero Beach RO–Potable Water Treatment Plant (FL0042544): The facility

has a 0.5-MGD permitted surface water discharge for its ground water 

concentrate (brine) to the Indian River Farm Control District Main Canal, which 

in turn discharges to the IRL at Segment IR16-20. The long-term average TN 

and TP discharge concentrations for the facility are 2.39 and 0.34 mg/L, 

respectively, which meet both the TN and TP AWT concentration requirements. 

Therefore, the 95th percentile TN and TP annual discharge loads for 2001 

through 2005, which are 2,985 lbs/yr for TN and 487 lbs/yr for TP, are assigned 

to the facility as its annual WLAs. The corresponding daily WLAs for TN and TP 

are 8.2 and 1.3 lbs/day, respectively, applicable for the entire year.

(9) IRCUD/Hobart Park Demineralization Concentration Discharge

(FL0166511): The facility has a 0.75-MGD permitted capacity discharge to the 

IRL at Segment IR16-20 for its ground water concentration (brine). The longterm average TN and TP discharge concentrations for the facility are 1.90 and 

0.04 mg/L, respectively, which meet both the TN and TP AWT concentration 

requirements. Therefore, the 95th percentile TN and TP annual discharge loads 

for 2001 through 2005, which are 2,759 lbs/yr for TN and 96 lbs/yr for TP, are 

assigned to the facility as its annual WLAs. The corresponding daily WLAs for 

TN and TP are 7.6 and 0.3 lbs/day, respectively, applicable for the entire year.

(10) IRCUD/West Regional WWTF (FL0041637): The facility has a 4.0-MGD 

permitted discharge capacity to the Vero Beach Main Canal, which in turn 

discharges to the IRL at Segment IR16-20. The long-term average TN and TP 

discharge concentrations are 0.73 and 0.04 mg/L, respectively, which meet both 

the TN and TP AWT concentration requirements. Therefore, the 95th percentile 

TN and TP annual discharge loads for 2001 through 2005, which are 2,838 

lbs/yr for TN and 159 lbs/yr for TP, are assigned to the facility as its annual 

WLAs. The corresponding daily WLAs for TN and TP are 7.8 and 0.4 lbs/day, 

respectively, applicable for the entire year.

(11) IRCUD/South County RO–Potable Water Treatment Plant (FL0037940): The 

facility has a 1.2-MGD permitted average daily discharge capacity to the Indian 

River County South Relief Canal, which in turn discharges to the IRL at 

Segment IR16-20. The long-term average TN and TP discharge concentrations 

are 1.51 and 0.04 mg/L, respectively, which meet both the TN and TP AWT 

concentration requirements. Therefore, the 95th percentile TN and TP annual 

discharge loads for 2001 through 2005, which are 4,636 lbs/yr for TN and 291 

lbs/yr for TP, are assigned to the facility as its annual WLAs. The corresponding 

daily WLAs for TN and TP are 12.7 and 0.8 lbs/day, respectively, applicable for 

the entire year.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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(12) Morton Salt Industrial Wastewater Treatment and Disposal System 

(FL0042005): The facility, located in Port Canaveral, has a 0.084-MGD average 

daily flow process wastewater discharge to a turning basin, which is connected 

to the Banana River Lagoon at Segment BR1-2 through a boat lock. The longterm average TN and TP discharge concentrations for the facility are 2.74 and 

0.57 mg/L, respectively, which meet both the TN and TP AWT concentration 

requirement. Therefore, the 95th percentile TN and TP annual discharge loads 

for 2001 through 2005, which are 1,214 lbs/yr for TN and 302 lbs/yr for TP, are 

assigned to the facility as its annual WLAs. The corresponding daily WLAs of 

TN and TP are 3.3 and 0.8 lbs/day, respectively, applicable for the entire year.

(13) Cape Canaveral WRF (FL0020541): The facility has a 1.80-MGD AADF 

permitted discharge to the Banana River at Segment BR3-5. The long-term 

average TN and TP discharge concentrations are 1.05 and 0.11 mg/L, 

respectively, which meet both the TN and TP AWT concentration requirements. 

Therefore, the 95th percentile TN and TP annual discharge loads for 2001 

through 2005, which are 2,151 lbs/yr for TN and 158 lbs/yr for TP, are assigned 

to the facility as its annual WLAs. The corresponding daily WLAs of TN and TP 

are 5.9 and 0.4 lbs/day, respectively, applicable for the entire year.

WLAs are assigned to the following facilities using methods that are different from the one 

described above:

(1) The Rockledge WWTP (FL0021571) is known to discharge a very small load of 

TN and TP (about 10 lbs/yr of TN and TP) only when it performs mechanical 

integrity testing. The last time Rockledge had a discharge during this testing 

was in 1996–97. The facility is allocated limits of 30 lbs/yr for both TN and TP

as its annual WLAs, an amount sufficient for this purpose. The corresponding 

daily WLAs for TN and TP are both 6.0 lbs/day, applicable to the 5-day 

mechanical integrity test in any given permit cycle.

(2) The Cape Canaveral Power Plant (FL0001473) is allocated its currently 

permitted loads for TN and TP (146 lbs/yr TP and 2555 lbs/yr TN); as no TN and 

TP permit limits were applied to the surface discharge of the facility before 2005,

no monitoring data can be used to calculate long-term statistics for TN and TP 

discharge loadings from the facility. The current permit limits for the facility are 

annual average daily loads of 7 lbs/day for TN and 0.4 lbs/day for TP, which 

corresponds to 2,555 lbs/yr for TN and 146 lbs/yr for TP. As the percentages of 

TN and TP contributions from the facility are fairly low in the total TN and TP 

loadings to the lagoon segment, even when the facility discharges at its current 

permit level (3 percent for TN and 1 percent for TP), the facility’s permit TN and 

TP loadings are used as the WLAs in this TMDL.

(3) As discussed above, the Cape Canaveral WWTP (FL0020541) is allocated the 

95th percentile of its annual load as a maximum limit because it has low effluent 

concentrations and loads (0.11 mg/L and 161 lbs/yr for TP, and 1.05 mg/L and 

1475 lbs/yr for TN). However, the Cocoa Beach WWTP (FL00211005), which 

discharges to the same lagoon segment as the Cape Canaveral WWTP, has 

much higher effluent concentrations (6.3 mg/L TN and 1.3 mg/L TP) and much 

higher loads (13,652 lbs/yr of TN and 2,622 lbs/yr of TP). After reserving the 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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allocation for Cape Canaveral, Cocoa Beach was allocated annual load limits for 

TN and TP that result in 15 percent of the TMDL for Segment BR3-5 being

allocated for point sources, with the other 85 percent allocated for nonpoint 

sources.

Tables 6.3a and 6.3b summarize the WLAs of TN and TP, respectively, assigned to each 

facility. Although the loads currently contributed by NPDES-permitted facilities are generally a 

small fraction of the total annual external load of nutrients to the lagoon, most facilities have 

permit limits that are much higher than their current discharges. In some cases, the difference 

is tenfold, twentyfold, or even a hundredfold. If all of these facilities were to discharge at their 

present permit limits, their contribution would become much more significant and could offset 

gains made by reducing nonpoint sources. This is especially true of Segment BR3-5. In fact, 

the present permits for the two facilities in BR3-5 exceed the entire TMDL, including the 

nonpoint source allocation for this lagoon segment.

It should be noted that, for those domestic wastewater facilities whose discharges are 

influenced by the rainfall condition—for example, inflow and infiltration (I&I) issues for a 

domestic wastewater treatment plant, and reduced irrigation demand for a public access reuse 

system—wastewater permitting is primarily based on the long-term average rainfall condition. 

In implementing these TMDLs, the Department will take into consideration rainfall conditions

that are above the long-term average.

6.3.2 NPDES Stormwater Discharges

Because no information was available to the Department at the time this analysis was 

conducted regarding the boundaries and locations of all the NPDES stormwater dischargers, 

the exact stormwater TN and TP loadings from MS4 areas were not explicitly estimated. The 

wasteload allocations for each of the MS4s are the same percent TN and TP reductions

required for the LA assigned to the nonpoint sources in the river segments that belong to each 

county and municipality. Table 4.5 lists the MS4 permits that will be influenced by the TMDLs 

covered in this report. It should be noted that any MS4 permittee is only responsible for 

reducing the loads associated with stormwater outfalls that it owns or otherwise has responsible 

control over, and it is not responsible for reducing other nonpoint source loads in its jurisdiction.

6.4 Margin of Safety

Consistent with the recommendations of the Allocation Technical Advisory Committee 

(Department, 2001), an implicit MOS was used in the development of this TMDL. An implicit 

MOS was provided by the conservative decisions associated with a number of modeling 

assumptions, the development of site-specific alternative water quality targets, and the 

development of assimilative capacity. 

The IRL TMDLs were developed using an implicit MOS. The sublagoon targets for TN and TP 

are set to achieve within -10 percent of the maximum seagrass depths documented in each 

segment of the IRL between 1943 and 1999. Except for TN in the Central IRL, these TMDLs 

are similar to the loading estimates for 1943, when human alteration of the watershed was fairly 

minimal. The estimated TP load for the Central IRL in 1943 is higher than its target. However,

an implicit MOS is provided by the presence of Sebastian Inlet, which did not exist in 1943, but 
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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today provides flushing to the Central IRL sublagoon, lessening the impact of pollutant loads. In 

addition, estimating the needed percent reduction by focusing on the loadings from the 

watershed resulted in a higher needed percent reduction than including the atmospheric 

deposition into the calculation, which also adds to the MOS. 

6.5 Recommendations for Further Studies

TMDLs for the IRL and Banana River Lagoon segments covered in this report are developed 

based on the correlation between watershed loading and seagrass depth limit. Nutrient targets 

are developed as loading targets. No nutrient concentration targets are explicitly developed in 

this TMDL, although the per-acre nutrient loadings from the watershed imply the nutrient 

concentrations from the watershed. The SJRWMD is currently working on defining 

concentration targets for the estuarine segments of the IRL. These targets include TN and TP, 

as well as other parameters, and are being developed from the median concentrations observed 

where seagrass depth limits are within the -10 percent departure (shoreward) from their fullrestoration levels. 

The project is still in progress, but it suggests TN concentrations of 0.98 mg/L based on 12-

month medians, or 1.0 mg/L based on 18-month medians. For TP, the 12-month median is 0.05 

mg/L, and the 18-month median is 0.06 mg/L (Steward and Green 2006). Having target nutrient 

concentrations for these waters can facilitate evaluating the effectiveness of nutrient removal in 

the watershed, because it is easier to measure nutrient concentrations than to directly measure 

the nutrient loadings from the watershed. 

In addition to directly measuring the TN and TP concentrations in the lagoon segments that 

have already achieved seagrass depth limits, studies on the processes that influence nutrient 

dynamics in these lagoon segments will be instrumental in interpreting nutrient concentrations in 

these waters. For example, if a low nutrient concentration is observed, it is important to 

understand whether it means a high uptake rate from periphyton or low nutrient watershed 

loading.

Another issue that deserves further study is the dynamics of DO concentrations in the lagoon. 

For now, how the recovery of seagrasses will influence DO concentrations in the lagoon is not 

completely understood. Studies have shown that certain developmental stages of seagrass 

communities and at certain seasons, seagrasses may show net DO consumption instead of DO 

enrichment. That is why this TMDL only addresses the DO depression resulting from human 

activities that are pollutant related, but it is not feasible to identify the expected DO target after 

the full restoration of seagrass targets is achieved in these waters. An improved understanding 

of how seagrass influences DO concentrations in these lagoon waters will help to answer this 

question.

Understanding how pollutant sources other than human land uses influence nutrient loadings 

into the lagoon system will facilitate the implementation of these TMDLs. The TN and TP 

loadings from the IRL and Banana River Lagoon watersheds were estimated primarily based on 

land use and soil type. Especially for urban areas, watershed loadings estimated using this 

method are lumped loadings that may include many potential sources, such as septic tanks, 

sewer line leakage, residential fertilization, the reuse of treated wastewater, etc. Contributions

from these sources were not quantified explicitly in this TMDL report due to the lack of local 

data. However, during the TMDL implementation stage, information regarding the load 

contribution from each individual source will be evaluated.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Chapter 7: NEXT STEPS: IMPLEMENTATION PLAN 

DEVELOPMENT AND BEYOND

7.1 Basin Management Action Plan

Following the adoption of this TMDL by rule, the next step in the TMDL process is to develop an 

implementation plan for the TMDL, referred to as the BMAP. This document will be developed 

over the next two years in cooperation with local stakeholders, who will attempt to reach 

consensus on detailed allocations and on how load reductions will be accomplished. The 

BMAP will include, among other things:

• Appropriate load reduction allocations among the affected parties;

• A description of the load reduction activities to be undertaken, including structural 

projects, nonstructural BMPs, and public education and outreach;

• A description of further research, data collection, or source identification needed in 

order to achieve the TMDL;

• Timetables for implementation;

• Confirmed and potential funding mechanisms;

• Any applicable signed agreement(s);

• Local ordinances defining actions to be taken or prohibited;

• Any applicable local water quality standards, permits, or load limitation agreements;

• Milestones for implementation and water quality improvement; and

• Implementation tracking, water quality monitoring, and follow-up measures.

An assessment of progress toward the BMAP milestones will be conducted every five years, 

and revisions to the plan will be made as appropriate, in cooperation with basin stakeholders.
TMDL Report: Indian River Lagoon and Banana River Lagoon, Nutrients and DO, March 2009

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Appendices

Appendix A: Background Information on Federal and State Stormwater Programs

In 1982, Florida became the first state in the country to implement statewide regulations to 

address the issue of nonpoint source pollution by requiring new development and 

redevelopment to treat stormwater before it is discharged. The Stormwater Rule, as authorized 

in Chapter 403, F.S., was established as a technology-based program that relies on the 

implementation of BMPs that are designed to achieve a specific level of treatment (i.e., 

performance standards) as set forth in Chapter 62-40, F.A.C. In 1994, the Department’s 

stormwater treatment requirements were integrated with the stormwater flood control 

requirements of the state’s water management districts, along with wetland protection 

requirements, into the Environmental Resource Permit regulations.

Chapter 62-40, F.A.C., also requires the water management districts to establish stormwater 

pollutant load reduction goals (PLRGs) and adopt them as part of a Surface Water Improvement 

and Management (SWIM) plan, other watershed plan, or rule. Stormwater PLRGs are a major 

component of the load allocation part of a TMDL. To date, stormwater PLRGs have been 

established for Tampa Bay, Lake Thonotosassa, the Winter Haven Chain of Lakes, the 

Everglades, Lake Okeechobee, and Lake Apopka. No PLRG had been developed for Newnans 

Lake when this report was published. 

In 1987, the U.S. Congress established Section 402(p) as part of the federal Clean Water Act 

Reauthorization. This section of the law amended the scope of the federal NPDES permitting 

program to designate certain stormwater discharges as “point sources” of pollution. The EPA 

promulgated regulations and began implementing the Phase I NPDES Stormwater Program in 

1990. These stormwater discharges include certain discharges that are associated with 

industrial activities designated by specific standard industrial classification (SIC) codes, 

construction sites disturbing 5 or more acres of land, and the master drainage systems of local 

governments with a population above 100,000, which are better known as MS4s. However, 

because the master drainage systems of most local governments in Florida are interconnected, 

the EPA implemented Phase I of the MS4 permitting program on a countywide basis, which 

brought in all cities (incorporated areas), Chapter 298 urban water control districts, and the 

Florida Department of Transportation throughout the 15 counties meeting the population criteria. 

EPA authorized the Department to implement the NPDES Stormwater Program (with the 

exception of Indian lands) in October 2000. 

An important difference between the federal NPDES and the state’s stormwater/environmental 

resource permitting programs is that the NPDES Program covers both new and existing 

discharges, while the state’s program focuses on new discharges only. Additionally, Phase II of 

the NPDES Program, implemented in 2003, expands the need for these permits to construction 

sites between 1 and 5 acres, and to local governments with as few as 1,000 people. These 

revised rules require that these additional activities obtain permits by 2003.

While these urban stormwater discharges are now technically referred to as “point sources” for 

the purpose of regulation, they are still diffuse sources of pollution that cannot be easily 

collected and treated by a central treatment facility, as are other point sources of pollution such 

as domestic and industrial wastewater discharges. It should be noted that all MS4 permits 
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issued in Florida include a reopener clause that allows permit revisions to implement TMDLs 

when the implementation plan is formally adopted.
Florida Department of Environmental Protection 

Division of Water Resource Management

Bureau of Watershed Management

2600 Blair Stone Road, Mail Station 3565

Tallahassee, Florida 32399-2400

www2.dep.state.fl.us/water/