Lake OkeechobeeWatershed

 Construction Project

Phase II

Technical Plan

February 2008 Florida Department of Agriculture

and Consumer Services
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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LAKE OKEECHOBEE WATERSHED CONSTRUCTION PROJECT – 

PHASE II TECHNICAL PLAN 

The Northern Everglades and Estuaries Protection Program requires the development of a detailed technical 

plan for Phase II of the Lake Okeechobee Watershed Construction Project by February 2008. In response, 

this preferred Plan was developed by the South Florida Water Management District in coordination with the 

Florida Department of Environmental Protection and the Florida Department of Agriculture and Consumer 

Services – and with extensive input from stakeholders throughout its development. Subject to ratification by 

the Florida Legislature, the preferred Plan builds upon and dovetails with on-going restoration activities and 

successfully consolidates many previous Lake Okeechobee restoration efforts into a broader, Northern 

Everglades-focused approach. 

Executive Summary 

Passed by the Florida Legislature and signed into law by Governor Charlie Crist in 2007, 

the landmark “Northern Everglades and Estuaries Protection Program” promotes a 

comprehensive, interconnected watershed approach to protecting Lake Okeechobee and 

the Caloosahatchee and St. Lucie rivers and estuaries. By expanding the Lake Okeechobee 

Protection Act, the Florida Legislature recognized the importance and connectivity of the 

entire ecosystem – from the Kissimmee Chain of Lakes south to Florida Bay. 

The primary goal of the legislation is to restore and protect surface water resources by 

addressing not only the water quality but also the quantity, timing and distribution of 

water to the natural system. State agencies are working in partnership with those local 

governments whose economy and quality of life depend on the health of Lake Okeechobee 

and the coastal estuaries to develop and implement comprehensive plans to restore and 

protect these water bodies. 

The preferred Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

was developed by the South Florida Water Management District (SFWMD) in 

coordination with the Florida Department of Environmental Protection (FDEP) and the 

Florida Department of Agriculture and Consumer Services (FDACS) – and with extensive 

input from stakeholders throughout its development. 

To achieve the restoration goals, the coordinating agencies evaluated various alternatives 

using best available technology and scientific information, and included significant public 

involvement and review throughout the process. The resulting preferred Plan identifies 

construction projects, along with on-site measures that prevent or reduce pollution at its 

source such as agricultural and urban best management practices (BMPs), needed to 

achieve water quality targets for the lake. In addition, it includes other projects for 

increasing water storage north of Lake Okeechobee to achieve healthier lake levels and 

reduce harmful discharges to the Caloosahatchee and St. Lucie estuaries. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Components of the multi-phase preferred Plan include: 

• Implementing agricultural management practices on more than 

1.7 million acres of farmland; 

• Adopting new regulations that will reduce the impacts of development on water 

quality and flow; 

• Building treatment wetlands to clean water flowing into the lake; 

• Using other innovative “green” nutrient control technologies to reduce 

phosphorus loads from the watershed; and 

• Creating between 900,000 and 1.3 million acre-feet of water storage north of the 

lake through a combination of above-ground reservoirs, underground storage 

and alternative water storage projects on public and private lands. 

Comprised of local and regional projects, the preferred Plan consolidates, builds upon and 

dovetails with many on-going restoration activities. In addition to augmenting and 

enhancing efforts under way in the remnant Everglades south of Lake Okeechobee, it 

builds upon environmental improvements currently being implemented north of the lake 

as a part of the state-federal Comprehensive Everglades Restoration Plan (CERP). It also 

consolidates the numerous initiatives currently under way through Florida’s Lake 

Okeechobee Protection Plan (LOPP) and Lake Okeechobee and Estuary Recovery Plan 

(LOER). 

The proposed implementation schedule calls for a phased approach – designed to provide 

progressive water quality and quantity improvements to benefit the lake and downstream 

estuaries. Initial measures outlined by the preferred Plan call for an additional investment 

of up to $320 million beyond the State’s 50 percent cost-share for land acquisition and 

construction projects as part of CERP. While the cost of non-CERP features will be 

primarily borne by the South Florida Water Management District and the State, CERP 

investments are eligible for up to a fifty percent cost share with the federal government. 

Completion of the Lake Okeechobee Watershed Construction Project Phase II Technical 

Plan is a critical step in the state’s Northern Everglades initiative to protect and improve 

Lake Okeechobee and downstream receiving waters. The preferred Plan achieves the 

legislative requirement by outlining the steps needed to reduce pollution and improve the 

storage in the watershed north of the lake necessary to clean water flowing into Lake 

Okeechobee. 
Phase II Technical Plan Boundary and Sub-Watersheds

Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Background

Lake Okeechobee is the “liquid heart” of South Florida’s interconnected aquatic ecosystem 

and holds the distinction of being the largest freshwater body in the southeastern United 

States. The 730 square-mile lake provides a number of values and benefits to the state’s 

population, economy and environment, including environmental, public and agricultural 

water supply; flood protection; a sport and commercial fishery; navigation/recreation; and 

natural habitat for a variety of endangered and threatened animal and plant species. 

Today, the lake’s ecological health is adversely affected by three major influences: (1) 

excessive nutrient loading; (2) extreme high and low water levels in the lake; and (3) the 

proliferation of exotic species. 

In addition to direct rainfall, the massive lake receives tributary inflows from a number of 

sources. The Lake Okeechobee watershed encompasses a drainage area of over 3.5 million 

acres (5,500 square miles), spanning 10 Florida counties, and is dominated by agricultural 

land uses that account for just over 50 percent of the total area. Based on hydrologic and 

geographic boundaries, the watershed includes nine sub-watersheds. 

Over the last century, a number of factors have led to adverse changes in the hydrology 

and water quality of Lake Okeechobee – as well as to the Caloosahatchee and St. Lucie 

rivers and estuaries. These include changes in land use within the upstream Kissimmee 

River basin; the construction of the regional water management network for flood control 

(the Central and Southern Florida public works project built by the U. S. Army Corps of 

Engineers); loss of available surface water storage; and the subsequent flow of nutrientenriched local runoff into the water bodies. 

The impacts have been significant: Channelization of the Kissimmee River removed 

regional storage upstream of Lake Okeechobee while making way for growth. As nutrientenriched runoff from agricultural and urban activities within the watershed flowed into 

the lake, its water quality suffered. In recognition of increasing phosphorus impacts in the 

lake, in 2001 the State established a stringent restoration target known as a Total 

Maximum Daily Load (TMDL) for Lake Okeechobee. The TMDL establishes the maximum 

amount of phosphorus that Lake Okeechobee can assimilate without causing exceedences 

of water quality standards. The amount of phosphorus entering the lake has significantly 

exceeded the TMDL over the past three decades. 

In addition, construction of the Herbert Hoover Dike greatly reduced the extent of the 

lake’s natural littoral or shoreline marsh areas, reducing overall lake surface area by a 

third and, thereby, significantly reducing the lake’s available and historical storage 

capacity. Construction of the protective levee system along with drainage and 

development efforts to the south, reduced the natural expanse of the Florida Everglades’ 

wetland area by 50 percent, constraining flow south from Lake Okeechobee. 
Because the volume of water coming from the upstream basin has remained relatively 

constant (approximately 3.5 million acre-feet per year, on average, equivalent to about 7.5 feet over 

the lake surface area), lake inflows have often exceeded its limited present-day storage 

capacity. With discharge capacity to the southern part of the Everglades ecosystem 

reduced because of constructed changes to the natural system, along with legal and 

environmental operating constraints, the need to discharge water from the lake to the east 

(via the St. Lucie River and Estuary) and west (via the Caloosahatchee River and Estuary) has 

increased. These coastal discharges of excess lake water – driven by the need to maintain 

safe lake levels in accordance with federal regulations and the U.S. Army Corps of 

Engineers’ operating schedule for Lake Okeechobee – can cause detrimental ecological 

fluctuations for the delicate estuarine environments in the St. Lucie and Caloosahatchee 

Estuaries. 

Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Previous Restoration Efforts 

A number of lake and estuary improvement plans and actions have been developed and 

implemented over the years, primarily aimed at reducing pollution and the flow of excess 

phosphorus into the lake. Some early protection efforts began in the 1970s and, by the late 

1980s, a mandatory program to control phosphorus discharges from dairy operations 

north of Lake Okeechobee was implemented. That program resulted in the 

implementation of an initial suite of best management practices on 30 farms and the buyout of 18 dairies. 

Recognizing that construction of the federally-built water management system resulted in 

unintended consequences on the natural system, Congress authorized the Restudy of the 

Central and South Florida Project in the early 1990s to assess the measures necessary to 

restore the south Florida ecosystem. During this time, a number of “Critical Restoration 

Projects” were determined to provide immediate, substantial, and independent benefits to 

the Everglades and were specifically authorized by the 1996 Water Resources 

Development Act. These included projects to benefit the health of Lake Okeechobee. 

The broader-scope Comprehensive Everglades Restoration Plan (CERP) was proposed in 

1999 and was authorized in the Water Resources Development Act of 2000. The joint statefederal partnership of CERP provides a framework and guide to restore, protect and 

preserve the water resources of central and southern Florida, including the Everglades. 

The overarching goal of CERP is to capture fresh water that now flows unused to the 

ocean and the gulf and redirect it to areas that need it most. The majority of the water will 

be devoted to environmental restoration. The remaining water will enhance urban and 

agricultural water supplies. 

To better manage Lake Okeechobee and the coastal estuaries, CERP included a series of 

storage and water quality treatment facilities north of the lake, as well as Aquifer Storage 

and Recovery (ASR) in the vicinity of Lake Okeechobee. In addition, to improve flows to 

the Caloosahatchee and St. Lucie River watersheds, CERP includes water storage and 

water quality improvement projects such as the C-43 Reservoir, Indian River Lagoon 

South projects and the Everglades Agricultural Area Reservoir. 

Also in 2000, Florida passed the Lake Okeechobee Protection Act establishing a phased, 

watershed-based protection program to restore the lake and its tributaries. As required by 

the Lake Okeechobee Protection Act, the South Florida Water Management District, the 

Florida Department of Agriculture and Consumer Services and the Florida Department of 

Environmental Protection developed the Lake Okeechobee Protection Plan, which details a 

suite of activities necessary for reducing pollutant loads in the watershed and achieving 

the established TMDL. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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That Lake Okeechobee Protection Plan included Phase I of the Lake Okeechobee 

Watershed Construction Project (as described in the original Lake Okeechobee Protection Act), 

which identified a series of project features designed to obtain phosphorus load reductions 

through the construction of stormwater treatment facilities and isolated wetland 

restoration projects. 

Through the implementation of the Lake Okeechobee Protection Plan, the State has 

achieved some notable accomplishments: 

• Adopting a Lake Okeechobee TMDL for phosphorus of 140 metric tons to achieve an 

in-lake target phosphorus concentration of 40 parts per billion; 

• Constructing the Taylor Creek and Nubbin Slough Stormwater Treatment Areas (a 

Congressionally-approved Critical Restoration Project) in partnership with the federal 

government; 

• Completing conservation and nutrient-management plans on individual farms 

covering 550,000 acres to reduce phosphorus loads from agricultural land in the 

watershed; 

• Completing a suite of individual projects to reduce phosphorus from dairy farms, 

restore isolated wetlands, treat urban stormwater run-off and enhance water storage 

and habitat on ranchlands; 

• Implementing a comprehensive research and water quality monitoring program for the 

lake and watershed; and 

• Treating more than 32,000 acres of exotic and invasive vegetation. 

To help further accelerate progress, the $200 million Lake Okeechobee and Estuary 

Recovery (LOER) plan was launched in 2005 – a combination of capital projects and 

numerous interagency initiatives to increase water storage, expand and construct 

treatment marshes and expedite environmental management initiatives. In addition to 

expediting construction of a series of Lake Okeechobee Fast-Track projects, other 

components of the LOER plan include alternative water storage, revisions to permit 

criteria, changes in fertilizer practices, revisions to the Lake Okeechobee regulation 

schedule and continued implementation of the Lake Okeechobee Protection Plan 

components. 

To restore the health of the ecosystem upstream of Lake Okeechobee, portions of the 

channelized Kissimmee River are being backfilled in an effort to reestablish the lost 

floodplain. The $578 million Kissimmee River Restoration Project is among the largest 

ecosystem restoration projects in the world and is well under way. In 2006, the South 

Florida Water Management District completed acquisition of the 102,061 acres needed for 

construction of the project. The backfilling of 9.5 miles of flood control canal by the U.S. 

Army Corps of Engineers has already restored close to 20 miles of historic river channel 

and 6,500 acres of associated floodplain. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Preferred Technical Plan Key Objectives / Findings

To develop the preferred Lake Okeechobee Watershed Construction Project Phase II 

Technical Plan, the best available land use information, flow data and water quality data 

were used to identify existing flows and phosphorus loads from each sub-basin within the 

lake’s watershed. An evaluation of current programs and projects was also conducted. 

Following these analyses, alternatives were identified to reduce harmful flows and 

phosphorus loads. Potential constraints were also identified to ensure compatibility with 

all ongoing or planned initiatives and legal mandates. 

A set of four restoration alternatives were developed and reviewed, using established 

performance measures to assess how well each proposed alternative achieved the 

identified water quality and water quantity/storage objectives. 

Water Quality: Meet the Lake Okeechobee Phosphorus TMDL 

In 2001, the Florida Department of Environmental Protection established a TMDL of 140 

metric tons per year of total phosphorus for Lake Okeechobee. This has been determined 

as the amount of total phosphorus that the lake can assimilate without causing significant 

ecological impacts within the lake. Of that limit, 35 metric tons per year are estimated to 

naturally reach the lake directly through atmospheric deposition; therefore, no more than 

105 metric tons per year of total phosphorus loading should enter the lake from the 

watershed. 

Based on the initial 1991 to 2000 period of record, the average total phosphorus loading to 

the lake was reported to be 433 metric tons per year from the watershed. Projects and 

strategies were identified as part of the Lake Okeechobee Protection Plan (including Phase I 

of the Lake Okeechobee Construction Project) to meet the target load. It is important to note 

that the TMDL is based on a five-year rolling average and the load reduction required to 

achieve it will vary annually. 

For development of the preferred Lake Okeechobee Watershed Construction Project Phase 

II Technical Plan, the period of record for inflow to Lake Okeechobee was updated 

through 2005 – which included the hurricane-driven extreme rainfall events in 2004 and 

2005. This expanded period (1991-2005) raised the annual total phosphorus load to 514 

metric tons per year, necessitating additional phosphorus reduction measures to meet the 

total maximum daily load target. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Significant conclusions from the water quality analyses are: 

• Existing water quality in the Lake Okeechobee watershed is significantly influenced by 

the various land use and land management practices within the individual subwatersheds and drainage basins. 

• In the future, implementation of Lake Okeechobee Protection Plan recommended best 

management practices (BMPs) and other total phosphorus reduction measures are 

expected to significantly reduce phosphorus loading. However, measured phosphorus 

reductions in the lake waters are likely to be substantially delayed because of the 

residual phosphorus in soils within the watershed (legacy phosphorus) and lake 

sediments. 

• Implementation of BMPs in areas that contribute flows to Lake Istokpoga and Lakes 

Kissimmee, Cypress and Hatchineha are expected to reduce phosphorus loading to 

these lakes. While the load reductions to these upstream lakes are not expected to 

provide an immediate benefit to Lake Okeechobee, implementation of BMPs in these 

sub-watersheds is necessary to protect water quality in the lakes themselves and to 

ensure the long-term ability to assimilate phosphorus and protect Lake Okeechobee. 

• The Indian Prairie, Taylor Creek/Nubbin Slough and Fisheating Creek sub-watersheds 

contribute disproportionately high phosphorus loads to Lake Okeechobee relative to 

their flow contributions. Therefore, these sub-watersheds were targeted for additional 

water quality measures. 

Water Quantity/Storage: Manage Lake Okeechobee water levels within an ecologicallydesirable range and manage flows to meet desirable salinity ranges for the St. Lucie and 

Caloosahatchee estuaries while meeting other water–related needs of the region, 

including water supply and flood protection. 

The 2007 legislation also recognized the importance of managing the quantity, timing, and 

distribution of water from the watershed north of the lake to achieve integrated and 

comprehensive environmental restoration of Lake Okeechobee and the Caloosahatchee 

and St. Lucie estuaries. An analysis was conducted to determine the amount of water 

needed to be stored in the watershed to better manage water levels in Lake Okeechobee 

and reduce excess damaging freshwater releases to the estuaries. This analysis included 

an evaluation to ensure that the identified water quantity storage goal would not impact 

the ability to maintain existing water supply for Lake Okeechobee water users. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Key findings from the water quantity data analysis are: 

• There is a breakpoint between 900,000 and 1.3 million acre-ft of storage above which 

additional increases in storage capacity would provide relatively small improvements 

in damaging releases to estuaries. 

• Because a large portion of the inflows come from large rainfall events, it will be 

necessary to size, locate and design features with the operational flexibility to capture 

significant amounts of water during these large events. 

• The Upper and Lower Kissimmee and Istokpoga sub-watersheds contribute close to 

three-quarters of the total average annual inflow to Lake Okeechobee. The Lower 

Kissimmee and Istokpoga sub-watersheds were targeted for storage projects. 

• Although there is a large volume of flow to Lake Okeechobee from the Upper 

Kissimmee sub-watershed, further evaluation through the Upper Kissimmee Regional 

Water Supply Feasibility Study will determine if a portion of storage capacity currently 

identified for the Lower Kissimmee sub-watershed could be located in the Upper 

Kissimmee sub-watershed. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Alternatives Evaluation

The coordinating agencies evaluated four restoration alternatives as part of the 

development of the preferred Lake Okeechobee Watershed Construction Project Phase II 

Technical Plan. Extensive emphasis was also placed on providing opportunities for public 

comment and review through meetings, web postings and community briefings. 

A set of restoration alternatives that addressed project objectives were formulated and 

evaluated by the coordinating agencies planning team. Below are brief descriptions of the 

alternatives and a comparison of their load reduction and storage capacities. 

Alternative 

No. 

Alternative Characterization Projected 

Average Load 

Reduction* 

(metric tons 

per year) 

*target reduction 

is 409 mt/yr 

Shortfall in 

achieving 

goal (metric tons 

per year) 

 

Projected 

Storage 

Capacity 

(acre-feet) 

1 Current, ongoing, and planned projects 301 108 265,000 

2 Maximizes storage capacity 316 93 1,300,000 

3 Maximizes phosphorus load reduction 364 45 330,000 

4 Integrates the most efficient and effective 

combination of storage capacity and 

phosphorus load reduction 

360 49 900,000 

Each alternative was evaluated for its performance at reducing phosphorus, improving 

Lake Okeechobee water levels, reducing damaging discharges to estuaries and 

maintaining water supply. It was clear that Alternative 1 on its own would not meet the 

water quality and water quantity objectives. Alternative 2 performed best at improving 

Lake Okeechobee water levels and reducing damaging discharges to the estuaries. 

Alternative 3 performed best at reducing phosphorus inputs to Lake Okeechobee. 

Alternative 4 performed the best when balancing the achievement of both water quality 

and water quantity objectives. It falls short, however, of meeting the TMDL by 49 metric 

tons per year. It also provides slightly lower water quantity benefits for Lake Okeechobee 

and the estuaries than Alternative 2, which had a larger storage capacity. 

Therefore, a modified version of Alternative 4 became the basis for the preferred Plan. 

Additional features were added to address the phosphorus reduction shortfall and to 

provide a storage range from 900,000 to 1.3 million acre feet for optimum water quantity 

performance. The development and comparisons of the four alternative restoration plans, 

with input from the public, ultimately identified the best science-based and 

technologically feasible options for improving lake and estuary health. 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Preferred Technical Plan Features

An important aspect of the 2007 legislation that sets it apart from previous actions is the 

requirement to identify both the water quality treatment and water quantity storage 

needed to improve the health of Lake Okeechobee and the St. Lucie and Caloosahatchee 

estuaries. The preferred Lake Okeechobee Watershed Construction Project Phase II 

Technical Plan represents the best blueprint that current technology allows for achieving 

water quality standards while better managing lake levels. 

To meet the water quality targets established for the lake, the preferred Plan includes local 

and regional treatment projects, along with ongoing and expanded implementation of onsite agricultural and urban best management practices. Based on a water budget analysis 

of the major sub-watersheds flowing into Lake Okeechobee, the preferred Plan also 

includes other projects and initiatives for increasing water storage north of Lake 

Okeechobee that will help achieve healthier lake levels and reduce harmful discharges to 

the Caloosahatchee and St. Lucie Estuaries. 

It comprises local and regional project features that include both structural and nonstructural components, and builds upon ongoing treatment and restoration projects that 

are in the planning, design or construction phases. Through interaction between the 

coordinating agencies and the public, the preferred Plan also promotes involvement of 

private landowners, local governments and other stakeholders as restoration partners. 

Water Quality – The following types of water quality measures are designed to meet the 

105 metric ton total phosphorus limit: 

• Source control – Best Management Practices (BMPs) and changes in regulatory 

requirements 

• Stormwater Treatment Areas (STAs) 

• Deep injection wells 

• Innovative nutrient control technologies 

Cumulatively, the preferred Plan’s construction projects and other measures are predicted 

to reduce total phosphorus loads to Lake Okeechobee by approximately 409 metric tons 

per year – the amount needed to meet the total maximum daily load based on the 1991-

2005 period of record. In addition, implementation of the preferred Plan provides the 

capability to reduce in-lake total phosphorus loads by approximately 75 metric tons per 

year. 
Executive Summary February 2008 

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Water Storage – The following types of water quantity measures are designed to meet the 

900,000 - 1,300,000 acre-feet of needed storage: 

• Alternative water storage on public and private lands 

• Above-ground reservoirs 

• Aquifer Storage and Recovery (ASR) facilities 

It is important to note that the water quantity storage goal of 900,000 to 1.3 million acrefeet is not in addition to existing or planned projects. It is an overall goal that may be met 

through a combination of existing or future projects and through a combination of storage 

methods such as alternative water storage on public and private lands, large aboveground reservoirs or aquifer storage and recovery facilities. Information from the Lake 

Okeechobee aquifer storage and recovery pilot projects and other regional pilot projects 

will help determine the best mix of surface and underground storage needed to achieve 

the overall goal. 

NOTE: An overview of features, by project type, is included at the end of this executive 

summary. For more detailed information and descriptions, please refer to the entire 

preferred Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

(CD copy included with this summary or available on-line at 

https://my.sfwmd.gov/northerneverglades). 

 
Executive Summary February 2008 

Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

 

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Phased Implementation 

The preferred Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

calls for an iterative, adaptive and phased implementation process, including an Initial 

Implementation Stage, Mid-Term Implementation Stage and Long-Term Implementation 

Stage. The first phase includes existing projects already under way and/or new features 

that will be initiated between 2008 and 2010. 

Initial Implementation Measures 

Water Quality Water Quantity 

Agricultural and Urban BMPs and Regulatory Programs 9 9 

LOPP Phosphorus Source Control Projects 9 9 

Local Government Initiatives 9 9 

Florida Ranchlands and Environmental Services Projects 9 9 

LOER Alternative Water Storage Projects 

(Alternative water storage facilities, Paradise Run 10 Well 

ASR System, Seminole Brighton ASR Pilot, and Taylor 

Creek ASR Reactivation) 9 9 

LOER Stormwater Treatment Areas 

(Brady Ranch STA, Lemkin Creek Water Quality 

Treatment Facility) 9 9 

CERP ASR Pilots 9 9 

Features 

CERP Lake Okeechobee Watershed Project 

(Istokpoga STA, Lakeside Ranch STA, Taylor Creek 

Reservoir, Paradise Run Wetland Restoration) 9 9 

BMP Research and Refinement 9 9 

Chemical Treatment Feasibility Study 9 9 

Water Quality Model Development 9 9 

ASR Feasibility- Pilot Cycle Testing, ASR Regional Study, 

ASR Optimization Analysis 9 9 

Technology and 

Model 

Refinement 

Hydrologic Model Refinement 9 9 

9= Primary benefit 9 = Ancillary benefit
Executive Summary February 2008 

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Key expectations of the initial implementation stage include: 

• Implementing Best Management Practices on 1.3 million acres of agricultural lands; 

• Completing Environmental Resource Permit and Works of the District rule revisions; 

• Initiating/completing implementation of approximately 100,000 acre-feet of long-term 

alternative water storage; 

• Completing design and initiating construction of more than 2,600 acres of Stormwater 

Treatment Areas; 

• Completing the initial suite of Lake Okeechobee Protection Plan phosphorus source 

control projects; 

• Implementing eight Florida Ranchlands Environmental Services Projects; 

• Completing cycle testing of CERP Aquifer Storage and Recovery pilot projects, the 

interim report, optimization analysis and Floridan Aquifer groundwater model; 

• Implementing 65 million gallons per day of Aquifer Storage and Recovery storage; 

• Restoring 4,470 acres of wetlands within the Lake Okeechobee watershed; and 

• Reducing phosphorus loads to Lake Okeechobee by approximately 150 metric tons. 

Information from pilot projects and studies conducted during the initial stage will be used 

to determine the types of projects to be implemented in future stages. 

Mid-term Implementation Measures 

Water Quality Water Quantity 

Continued Implementation of Previous Measures 9 9 

Implementation of Additional Water Quality Measures as Features optimized by Technology and Model Refinement Studies 9 9 

Initiate Implementation of Appropriate Combination of 

Storage Methods based upon CERP ASR Feasibility Studies 9 9 

BMP Research and Refinement 9 9 

STA Integration and Refinement 9 9 Technology 

and Model 

Refinement ASR Feasibility- Final Results of ASR Regional Study, Data 

from LOER ASR and Pilot Projects 9 9 

Long-term Implementation Measures 

Water 

Quality 

Water 

Quantity 

Continued Implementation of Previous Measures 9 9 Features Continue Implementation of Storage (ASR/Surface 

Storage) 9 9 

Technology 

and Model 

Refinement 

Process Development and Engineering 9 9 

9= Primary benefit 9 = Ancillary benefit
Executive Summary February 2008 

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Preliminary Cost Estimates 

To provide a source of State funding for the continued restoration of the South Florida 

ecosystem, the 2007 Florida Legislature expanded the use of the Save Our Everglades 

Trust Fund to include Northern Everglades restoration and extended the State of Florida’s 

commitment to Everglades restoration through the year 2020. 

Cost estimates for the initial implementation stage of the preferred Lake Okeechobee 

Watershed Construction Project Phase II Technical Plan were broken out into two 

categories: Comprehensive Everglades Restoration Plan (CERP) features and non-CERP 

features. 

• Estimate for Non-CERP features: $260-$320 million 

• Estimate for CERP features: $1-$1.4 billion 

The costs for non-CERP features will be primarily borne by the South Florida Water 

Management District and the State, while CERP costs are eligible for up to a fifty percent 

cost share with the federal government. It is anticipated that once the Lake Okeechobee 

Watershed Project – a component of the CERP state-federal partnership effort – is formally 

authorized by Congress, the federal government will provide its fifty percent cost sharing 

commitment on a series of reservoirs and stormwater treatment areas in the Lake 

Okeechobee watershed. It is important to note that a portion of the estimated CERP cost is 

for projects that the South Florida Water Management District is expediting ahead of 

authorization to achieve environmental benefits earlier. Completion of these Lake 

Okeechobee Fast-Track projects, however, is dependent on continued State and SFWMD 

funding in advance of federal appropriation. 

Costs for each subsequent stage of implementation will be developed as information from 

various pilot projects and studies are gathered. This information will be incorporated into 

more detailed planning design in the future. Cost estimates for mid-term measures will be 

provided in the 2010 Lake Okeechobee Protection Plan update submitted to the Florida 

Legislature. 

Preferred Technical Plan Refinements and Revisions

The preferred Plan provides a framework and road map for progressive water quality and 

quantity improvements to benefit the lake and downstream estuaries. 

Throughout implementation, it is fully expected that hydrologic and water quality 

conditions in the watershed will continue to change as land uses in the watershed are 

modified, and as restoration projects become operational. Performance will be 

periodically assessed and revisions made as necessary. In addition, the legislation requires 

annual reports and plan updates every three years. 
Executive Summary February 2008 

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For more details...

The preferred Lake Okeechobee Watershed Construction Project Phase II Technical Plan is 

designed to reduce phosphorus loadings to the lake and to identify additional storage 

capacity within the watershed. It builds on and consolidates numerous restoration actions 

into a more cohesive and comprehensive approach. 

For your convenience, a compact disc copy of the entire preferred Lake Okeechobee 

Watershed Construction Project Phase II Technical Plan is attached to the inside back 

cover of this publication. Please refer to that document for more details on the highlights 

included in the executive summary. A copy may also be obtained on-line at 

https://my.sfwmd.gov/northerneverglades. 
Preferred Lake Okeechobee Watershed Construction Project Phase II Technical Pl

Overview of LOCAL FEATURES

Project 

Type 

Project Name Project Description 

Source Control Programs SFWMD’s Environmental 

Resource Permit Program (ERP) 

Existing regulatory program which ensures that alterations in stormwatdegrade surface water quality, flood protection or the function of existiSFWMD has initiated rule development for an ERP basin rule for the LLucie and Caloosahatchee Watersheds that will be based on a performadevelopment discharge volumes not exceeding pre-development dischaintent of this rule is to ensure that new development is not increasing thstormwater discharging downstream. 

SFWMD’s Works of the District Regulatory Phosphorus Source Control Program 

Existing regulatory program which governs Best Management Practice implementation on agricultural and non-agricultural lands through issuSFWMD is updating the rule criteria to be compatible with current initamendments to the statute. Proposed updates to the rule could include expansion of program to entire Lake Okeechobee watershed, establish performance measures for the combined BMP source control programs watershed and timeline for BMP implementation; and establish a moninecessary to ensure compliance. 

FDACS Agricultural BMP 

Programs 

On-going program under which FDACS and Natural Resources Conser(NRCS) cooperate with local landowners to develop farm-specific conscow/calf, citrus, row crop and other agricultural operations. 

Supplementary NonAgricultural BMP Programs On-going programs under which FDEP regulates measures implemente

phosphorus loads from non-agricultural sources. Includes implementatBMPs, master planning for stormwater and wastewater, implementing designing larger urban stormwater projects and public education. FDEP is also expected to propose a Unified Statewide Stormwater Rulincrease the level of treatment required for nutrients in stormwater from FDACS recently adopted the Urban Turf Fertilizer Rule to limit phosphcontent in fertilizers used for urban turf and lawns. 

(Overview of LOCAL FEATURES continues on next page) 

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Lake Okeechobee Watershed Construction Project Phase II Technical Plan 

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Project 

Type 

Project Name Project Description 

Land Management Programs Comprehensive 

Planning/Land Development Regulations 

On-going Florida Department of Community Affairs program under whcomprehensive plans are reviewed for consistency with the State’s growpolicies. 

Farm and Ranchland Protection Program Partnership 

On-going, voluntary NRCS program under which matching funds are pTribal or local governments and non-governmental organizations to pueasements. Such easements typically remain agricultural and provide storage benefits. 

Florida Ranchlands Environmental Services Project 

Recently launched pilot program under development. If successful, locenvironmental services related to water retention, phosphorus load reduhabitat expansion to state agencies and other willing buyers. 

Alternative Water Storage Facilities 

-- Stormwater runoff is held on-site on designated private and state lands 

and discharge of nutrients to the regional drainage systems. These faciminimal engineering, construction, and operation and maintenance and privately-owned agricultural lands in cooperation with the landowners lands. 

Local Initiatives Taylor Creek Canals 

Sediment Removal 

Removal of sediment and vegetation from canals and tributaries that drfrom the Treasure Island and Taylor Creek Isles residential areas. 

Okeechobee City Sediment Trap Installation 

Installation of two sediment traps within the city of Okeechobee for the phosphorus-laden particulates that might otherwise enter Lake Okeecho

Nubbin Slough East Flow Diversion 

Diverting Nubbin Slough flows to restore the east main tributary of the 

Executive Summary - Overview of Plan Features 
Preferred Lake Okeechobee Watershed Construction Project Phase II Technical Pl

Overview of REGIONAL FEATURES

Project Type Project Name Project Description 

Surface Storage Facilities 

Storage Reservoirs A reservoir that is operated with changing water level for the purpose of storing and releas

Underground Storage Facilities 

Aquifer Storage and Recovery 

The injection of fresh water into a confined saline aquifer during times when supply exceeseason), and recovering it via the same well during times when there is a supply deficit (dr

Underground Surface Disposal 

Deep Injection Well The practice of water and wastewater disposal into the deep Floridan Aquifer “Boulder Zo

high capacity well. 

Nutrient Load Reduction Facilities 

Stormwater Treatment Areas 

Large, constructed wetlands designed to remove pollutants, particularly nutrients, from stonatural processes. 

ReservoirAssisted Stormwater Treatment Areas (RASTAs) 

Reservoir-Assisted Stormwater Treatment Areas (RASTAs) 

Feature comprised of a reservoir and a stormwater treatment area. The reservoir functions 

water directly to the STA in order to optimize STA performance. 

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Preferred Lake Okeechobee Watershed Construction Project Phase II Technical Pl

Overview of OTHER FEATURES

Project Type Project Name Description 

In-Lake Treatment Muck Sediment Removal Scraping the lake bed as it is exposed due to falling water levels and tr

nutrient-laden muck off-site. 

Dredging Use of innovative dredging techniques to remove phosphorus-laden se

bottom. 

Recirculating Stormwater Treatment Areas 

Stormwater Treatment Areas located along the Lake Okeechobee shorprimarily intended to treat nutrient-rich flows from the watershed; howperiods when there is little or no flow from the watershed, lake waters these systems for treatment. 

Disking or Plowing Disking and plowing are two alternatives to scraping the lake bottom 

removing the organic sediments. Disking is an action in which the sursediments are mixed with underlying mineral or sand sediments. Plowmore deeply into the soil and attempting to invert a portion of the undorganic sediments. The turbidity-producing organic sediment and photypically suppressed by the sandy soil. 

Innovative Nutrient Control Technologies 

Taylor Creek Algal Turf Scrubber® 

Engineered systems in which attached algae are cultured and the algal 

harvested to facilitate recovery of pollutants from impaired waters. 

Hybrid Wetland Treatment Technology 

Wetland treatment combined with chemical injection technologies. 

Chemical Treatment Selective application of chemical treatment to achieve phosphorus loa

Locations (in association with reservoir/STA, throughout watershed, eeffectiveness of chemical treatment technology will be evaluated throu

Wetland Restoration Wetland Restoration An activity that re-establishes the habitats and functions of a former oMiscellaneous Projects Florida Power and Light 

Martin Cooling Pond 

This feature will expand currently available storage capacity at an exisimpoundment located at FP&L’s Martin County facility. 

S-133 Water Quality Treatment Facility 

Exact nature of this feature (Stormwater Treatment Area, deep well, eexisting Lemkin Creek Urban Stormwater Treatment Area, or a comb

be determined during the implementation stage through a feasibility st

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