BASIN MANAGEMENT ACTION PLAN

for the Implementation of Total Daily Maximum Loads for Fecal 

Coliform Adopted by the Florida Department of Environmental 

Protection

in the

Lower St. Johns River 

Basin Tributaries

developed by the

Lower St. Johns River Tributaries Basin Working Group

in cooperation with the

Florida Department of Environmental Protection 

Division of Environmental Assessment and Restoration

Bureau of Watershed Restoration

Tallahassee, Florida 32399

December 2009
Final Lower St. Johns River Basin Management Action Plan – December 2009 

ii

ACKNOWLEDGMENTS: The Lower St. Johns River Tributaries Basin Management Action Plan 

was prepared as part of a statewide watershed management approach to restore and protect 

Florida’s water quality. It was developed by the Lower St. Johns River Tributaries Basin 

Working Group, identified below, with participation from affected local, regional, and state 

governmental interests; elected officials and citizens; and private interests. 

B AS IN WOR K ING GR OUP ME MB E R S

ORGANIZATION/

INTEREST GROUP

BASIN WORKING GROUP

REPRESENTATIVE ALTERNATE

City of Jacksonville Ebenezer Gujjarlapudi Derek Igou

Duval County Health Department Gale Tucker Disney Grazyna Pawlowicz

Florida Department of Transportation Mitch Stamitoles Pete Southall

JEA Paul Steinbrecher Ed Cordova

OTHE R P AR TICIP ANTS

Past Technical Meeting Co-Chair: Fred Calder 

Current Technical Meeting Co-Chairs: Vincent Seibold and John Abendroth

FDEP Basin Coordinator: Amy Tracy

Key Staff: 

Florida Department of Environmental Protection (FDEP) Northeast District: Melissa Long, 

Khalid Al-Nahdy, Patrick O’Connor, Jeremy Parrish, Lee Banks, Jeff Martin, and Jodi Conway

FDEP–Tallahassee: Wayne Magley, Katrina Sanders, Jessica Rich-Ziegler, John Hallas, Tricia 

McClenahan, and Linda Lord

Florida Department of Agriculture and Consumer Services (FDACS): Terry Pride and Jody Lee

Wildwood Consulting, Inc.: Tiffany Busby and Marcy Policastro

Walk the WBIDs: 

Tributary Assessment Team: 

FDEP Northeast District: Patrick O’Connor, Jeremy Parrish, and Thomas Kallemeyn

City of Jacksonville: Dana Morton, Betsy Deuerling, Barry Cotter, and Justin Levine

JEA: Ron Nelson, Garnet Odum, and Ed Cordova.

Other Technical and Walk the WBID Participants: 

FDEP Northeast District Division of Law Enforcement: Special Agent Brett Starling, 

Special Agent Darryl Jones, Officer John Brechler, and Officer Roger Hayes

Duval County Health Department: Scott Turner, David Helwig, Justin Campbell, and

Chandra Menefee

Florida Department of Transportation District 2: Alan Obaigbena, Tom Wiley, 

Karen Kohoutek-Luckin, and Hillary King

City of Jacksonville Public Works: Mark Hartley, Jason Geiger, Jerry Dorman, Artemus Holly, 

Kelly Sweat, and Brad Nolan

JEA: Jack Cullum, Kenney Crawford, Kevin Holbrooks, and Scott Anaheim
Final Lower St. Johns River Basin Management Action Plan – December 2009 

iii

For additional information on Total Maximum Daily Loads and the watershed 

management approach in the Lower St. Johns River tributaries, contact: 

Amy Tracy, Basin Coordinator

Florida Department of Environmental Protection

Bureau of Watershed Restoration, 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 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

iv

TABLE OF CONTENTS

E XE C UTIVE S UMMAR Y ............................................................................................ XVI

CHAPTE R 1 : CONTE XT, PUR POS E , AND S COPE OF THE PLAN ............................ 1

1.1 Water Quality Standards and Total Maximum Daily Loads ..................... 1

1.2 TMDL Implementation................................................................................. 2

1.3 The Lower St. Johns River Tributaries Basin Management Action 

Plan................................................................................................... 2

1.3.1 Stakeholder Involvement.............................................................................. 2

1.3.2 Plan Purpose and Approach......................................................................... 3

1.3.3 Plan Scope................................................................................................... 5

1.3.4 Sufficiency of Effort Approach and Determination of Sufficiency................... 6

1.3.5 Pollutant Reduction and Discharge Allocations ............................................ 7

1.3.6 TMDLs in the Tributaries of the LSJR Basin................................................. 8

1.4 Assumptions and Considerations Regarding TMDL 

Implementation.............................................................................. 10

1.4.1 Assumptions................................................................................................10

1.4.2 Considerations ............................................................................................11

1.5 Future Growth in the Tributaries.............................................................. 12

CHAPTE R 2 : WATE R QUALITY TR E NDS IN THE TR IB UTAR IE S ............................ 14

2.1 Water Quality Trends ................................................................................ 14

2.1.1 Newcastle Creek .........................................................................................14

2.1.2 Hogan Creek...............................................................................................14

2.1.3 Butcher Pen Creek......................................................................................15

2.1.4 Miller Creek.................................................................................................15

2.1.5 Miramar Creek ............................................................................................16

2.1.6 Big Fishweir Creek ......................................................................................16

2.1.7 Deer Creek..................................................................................................17

2.1.8 Terrapin Creek ............................................................................................17

2.1.9 Goodbys Creek ...........................................................................................18

2.1.10 Open Creek.................................................................................................18

CHAP TE R 3 : POLLUTANT S OUR CE S AND ANTICIP ATE D OUTC OME S ............... 20

3.1 Pollutant Sources Common to the Tributaries ....................................... 20

3.1.1 Sanitary Sewer Systems .............................................................................20

3.1.2 Onsite Sewage Treatment and Disposal Systems.......................................21

3.1.3 Stormwater..................................................................................................21

3.2 Anticipated Outcomes .............................................................................. 22

CHAPTE R 4 : AS S E S S ING PR OGR E S S AND MAK ING CHANGE S .......................... 23

4.1 Tracking Implementation.......................................................................... 23

4.2 Water Quality Monitoring.......................................................................... 26

4.2.1 Water Quality Monitoring Objectives............................................................26
Final Lower St. Johns River Basin Management Action Plan – December 2009 

v

4.2.2 Water Quality Indicators ..............................................................................26

4.2.3 Monitoring Network .....................................................................................27

4.2.4 Quality Assurance/Quality Control...............................................................30

4.2.5 Data Management and Assessment............................................................30

4.3 Ongoing Assessments in the Tributaries................................................ 30

4.4 Data Tracking and Reporting Systems Modifications............................ 31

4.5 Implementation Milestones ...................................................................... 32

4.6 Adaptive Management Measures............................................................. 33

C HAP TE R 5 : C OMMITME NT TO P L AN IMP L E ME NTATION .................................... 35

CHAPTE R 6 : NE WCAS TL E CR E E K (WB ID 2235)..................................................... 40

6.1 WBID Description...................................................................................... 40

6.2 Potential Sources ...................................................................................... 43

6.2.1 Point Sources..............................................................................................43

6.2.2 Illicit Discharges ..........................................................................................43

6.2.3 Centralized Sewage Infrastructure and Overflows.......................................43

6.2.4 OSTDS........................................................................................................43

6.2.5 Nonpoint Sources........................................................................................44

6.3 Projects To Reduce Fecal Coliform Loading .......................................... 44

6.3.1 JEA Activities in the Newcastle Creek Watershed .......................................44

6.3.2 DCHD Activities in the Newcastle Creek Watershed ...................................47

6.3.3 COJ Activities in the Newcastle Creek Watershed.......................................48

6.3.4 FDOT Activities in the Newcastle Creek Watershed ....................................51

6.4 Summary of Restoration Activities and Sufficiency of Efforts.............. 51

6.4.1 OSTDS........................................................................................................51

6.4.2 Sewer Infrastructure....................................................................................52

6.4.3 Stormwater..................................................................................................53

CHAPTE R 7 : HOGAN CR E E K (WB ID 2252) .............................................................. 55

7.1 WBID Description...................................................................................... 55

7.2 Potential Sources ...................................................................................... 58

7.2.1 Point Sources..............................................................................................58

7.2.2 Illicit Discharges ..........................................................................................58

7.2.3 Centralized Sewage Infrastructure and Overflows.......................................58

7.2.4 OSTDS........................................................................................................58

7.2.5 Nonpoint Sources........................................................................................58

7.3 Projects To Reduce Fecal Coliform Loading .......................................... 60

7.3.1 JEA Activities in the Hogan Creek Watershed.............................................60

7.3.2 DCHD Activities in the Hogan Creek Watershed .........................................62

7.3.3 COJ Activities in the Hogan Creek Watershed ............................................63

7.3.4 FDOT Activities in the Hogan Creek Watershed..........................................65

7.4 Summary of Restoration Activities and Sufficiency of Efforts.............. 66
Final Lower St. Johns River Basin Management Action Plan – December 2009 

vi

7.4.1 OSTDS........................................................................................................67

7.4.2 Sewer Infrastructure....................................................................................67

7.4.3 Stormwater..................................................................................................68

7.4.4 Wildlife and Other Anthropogenic Sources ..................................................68

C HAP TE R 8 : B UTC HE R P E N C R E E K (WB ID 2322).................................................. 70

8.1 WBID Description...................................................................................... 70

8.2 Potential Sources ...................................................................................... 73

8.2.1 Point Sources..............................................................................................73

8.2.2 Illicit Discharges ..........................................................................................73

8.2.3 Centralized Sewage Infrastructure and Overflows.......................................73

8.2.4 OSTDS........................................................................................................74

8.2.5 Nonpoint Sources........................................................................................74

8.3 Projects To Reduce Fecal Coliform Loading .......................................... 75

8.3.1 JEA Activities in the Butcher Pen Creek Watershed....................................75

8.3.2 DCHD Activities in the Butcher Pen Creek Watershed ................................78

8.3.3 COJ Activities in the Butcher Pen Creek Watershed ...................................79

8.3.4 FDOT Activities in the Butcher Pen Creek Watershed.................................81

8.4 Summary of Restoration Activities and Sufficiency of Efforts.............. 82

8.4.1 OSTDS........................................................................................................82

8.4.2 Sewer Infrastructure....................................................................................82

8.4.3 Stormwater..................................................................................................83

C HAP TE R 9 : MIL L E R CR E E K (WB ID 2287) .............................................................. 85

9.1 WBID Description...................................................................................... 85

9.2 Potential Sources ...................................................................................... 88

9.2.1 Point Sources..............................................................................................88

9.2.2 Illicit Discharges ..........................................................................................88

9.2.3 Centralized Sewer Infrastructure and Overflows..........................................88

9.2.4 OSTDS........................................................................................................88

9.2.5 Nonpoint Sources........................................................................................89

9.3 Projects To Address Fecal Coliform Loading......................................... 89

9.3.1 JEA Activities in the Miller Creek Watershed...............................................89

9.3.2 DCHD Activities in the Miller Creek Watershed ...........................................91

9.3.3 COJ Activities in the Miller Creek Watershed ..............................................92

9.3.4 FDOT Activities in the Miller Creek Watershed............................................94

9.4 Summary of Restoration Activities and Sufficiency of Efforts.............. 95

9.4.1 OSTDS........................................................................................................95

9.4.2 Sewer Infrastructure....................................................................................96

9.4.3 Stormwater..................................................................................................96

9.4.4 Wildlife and Other Anthropogenic Sources ..................................................97

C HAP TE R 10 : MIR AMAR CR E E K (WB ID 2304) ........................................................ 99
Final Lower St. Johns River Basin Management Action Plan – December 2009 

vii

10.1 WBID Description...................................................................................... 99

10.2 Potential Sources .................................................................................... 102

10.2.1 Point Sources............................................................................................102

10.2.2 Illicit Discharges ........................................................................................102

10.2.3 Centralized Sewer Infrastructure and Overflows........................................102

10.2.4 OSTDS......................................................................................................102

10.2.5 Nonpoint Sources......................................................................................103

10.3 Projects To Reduce Fecal Coliform Loading ........................................ 104

10.3.1 JEA Activities in the Miramar Creek Watershed ........................................104

10.3.2 DCHD Activities in the Miramar Creek Watershed.....................................106

10.3.3 COJ Activities in the Miramar Creek Watershed........................................107

10.3.4 FDOT Activities in the Miramar Creek Watershed .....................................111

10.4 Summary of Restoration Activities and Sufficiency of Efforts............ 112

10.4.1 OSTDS......................................................................................................112

10.4.2 Sewer Infrastructure..................................................................................113

10.4.3 Stormwater................................................................................................113

10.4.4 Wildlife and Other Anthropogenic Sources ................................................114

C HAP TE R 11 : B IG FIS HWE IR CR E E K (WB ID 2280)............................................... 116

11.1 WBID Description.................................................................................... 116

11.2 Potential Sources .................................................................................... 119

11.2.1 Point Sources............................................................................................119

11.2.2 Illicit Discharges ........................................................................................119

11.2.3 Centralized Sewer Infrastructure and Overflows........................................119

11.2.4 OSTDS......................................................................................................120

11.2.5 Nonpoint Sources......................................................................................120

11.3 Projects to Address Fecal Coliform Loadings...................................... 121

11.3.1 JEA Activities in the Big Fishweir Creek Watershed ..................................121

11.3.2 DCHD Activities in the Big Fishweir Creek Watershed ..............................124

11.3.3 COJ Activities in the Big Fishweir Creek Watershed..................................125

11.3.4 FDOT Activities in the Big Fishweir creek Watershed................................129

11.4 Summary of Restoration Activities and Sufficiency of Efforts............ 130

11.4.1 OSTDS......................................................................................................130

11.4.2 Sewer Infrastructure..................................................................................131

11.4.3 Stormwater Infrastructure..........................................................................131

11.4.4 Wildlife and Other Anthropogenic Sources ................................................132

CHAPTE R 12 : DE E R CR E E K (WB ID 2256) ............................................................. 134

12.1 WBID Description.................................................................................... 134

12.2 Potential Sources .................................................................................... 138

12.2.1 Point Sources............................................................................................138

12.2.2 Illicit Discharges ........................................................................................138
Final Lower St. Johns River Basin Management Action Plan – December 2009 

viii

12.2.3 Centralized Sewer Infrastructure and Overflows........................................138

12.2.4 OSTDS......................................................................................................139

12.2.5 Nonpoint Sources......................................................................................139

12.3 Projects To Reduce Fecal Coliform Loading ........................................ 140

12.3.1 JEA Activities in the Deer Creek Watershed..............................................140

12.3.2 DCHD Activities in the Deer Creek Watershed ..........................................142

12.3.3 COJ Activities in the Deer Creek Watershed .............................................142

12.3.4 FDOT Activities in the Deer Creek Watershed...........................................145

12.4 Summary of Restoration Activities and Sufficiency of Efforts............ 146

12.4.1 OSTDS......................................................................................................146

12.4.2 Sewer Infrastructure..................................................................................146

12.4.3 Stormwater................................................................................................147

12.4.4 Additional Assessments ............................................................................147

CHAPTE R 13 : TE R R APIN CR E E K (WB ID 2204) ..................................................... 149

13.1 WBID Description.................................................................................... 149

13.2 Potential Sources .................................................................................... 154

13.2.1 Point sources ............................................................................................154

13.2.2 Illicit Discharges ........................................................................................154

13.2.3 Centralized Sewer Infrastructure and Overflows........................................154

13.2.4 OSTDS......................................................................................................154

13.2.5 Nonpoint Sources......................................................................................154

13.3 Projects To Reduce Fecal Coliform Loading ........................................ 155

13.3.1 JEA Activities in the Terrapin Creek Watershed ........................................155

13.3.2 DCHD Activities in the Terrapin Creek Watershed.....................................157

13.3.3 COJ Activities in the Terrapin Creek Watershed........................................158

13.3.4 FDOT Activities in the Terrapin Creek Watershed .....................................160

13.3.5 Florida Department of Agriculture and Consumer Services Activities 

in the Terrapin Creek Watershed..............................................................161

13.4 Summary of Restoration Activities and Sufficiency of Efforts............ 161

13.4.1 OSTDS......................................................................................................161

13.4.2 Sewer Infrastructure..................................................................................161

13.4.3 Stormwater................................................................................................162

13.4.4 Agriculture................................................................................................. 162

CHAPTE R 14 : GOODB YS CR E E K (WB ID 2326) ..................................................... 164

14.1 WBID Description.................................................................................... 164

14.2 Potential Sources .................................................................................... 167

14.2.1 Point Sources............................................................................................167

14.2.2 Illicit Discharges ........................................................................................167

14.2.3 Centralized Sewer Infrastructure and Overflows........................................167

14.2.4 OSTDS......................................................................................................168

14.2.5 Nonpoint Sources......................................................................................169
Final Lower St. Johns River Basin Management Action Plan – December 2009 

ix

14.3 Projects To Reduce Fecal Coliform Loading ........................................ 169

14.3.1 JEA Activities in the Goodbys Creek Watershed .......................................169

14.3.2 DCHD Activities in the Goodbys Creek Watershed....................................171

14.3.3 COJ Activities in the Goodbys Creek Watershed.......................................172

14.3.4 FDOT Activities in the Goodbys Creek Watershed ....................................174

14.4 Summary of Restoration Activities and Sufficiency of Efforts............ 175

14.4.1 OSTDS......................................................................................................175

14.4.2 Sewer Infrastructure..................................................................................176

14.4.3 Stormwater................................................................................................176

CHAPTE R 15 : OPE N CR E E K (WB ID 2299) ............................................................. 179

15.1 WBID Description.................................................................................... 179

15.2 Potential Sources .................................................................................... 183

15.2.1 Point Sources............................................................................................183

15.2.2 Illicit Discharges ........................................................................................183

15.2.3 Centralized Sewer Infrastructure and Overflows........................................183

15.2.4 OSTDS......................................................................................................184

15.2.5 Nonpoint Sources......................................................................................184

15.3 Projects To Reduce Fecal Coliform Loading ........................................ 185

15.3.1 JEA Activities in the Open Creek Watershed.............................................185

15.3.2 DCHD Activities in the Open Creek Watershed .........................................187

15.3.3 COJ Activities in the Open Creek Watershed ............................................188

15.3.4 FDOT Activities in the Open Creek Watershed..........................................190

15.4 Summary of Restoration Activities and Sufficiency of Efforts............ 191

15.4.1 OSTDS......................................................................................................191

15.4.2 Sewer Infrastructure..................................................................................191

15.4.3 Stormwater................................................................................................192

AP PE NDICE S ............................................................................................................. 194

Appendix A: TMDL Basin Rotation Schedule................................................. 195

Appendix B: Summary of Statutory Provisions Guiding BMAP 

Development and Implementation ............................................. 196

Appendix C: Stakeholder Involvement in BMAP Development ..................... 199

Appendix D: Summary of EPA-Recommended Elements of a 

Comprehensive Watershed Plan................................................ 201

Appendix E: Programs To Achieve the TMDL................................................. 204

Appendix F: Walk the WBID Guidelines........................................................... 231

Appendix G: Glossary of Terms ....................................................................... 233

Appendix H: Bibliography of Key References and Websites......................... 238

Key References: .....................................................................................................238

Stormwater and Water Quality Protection Websites:...............................................240
Final Lower St. Johns River Basin Management Action Plan – December 2009 

x

LIST OF FIGURES

Figure 1: LSJR Basin Tributaries Included in the BMAP....................................................... 4

Figure 2: Location of the Newcastle Creek Watershed ........................................................41

Figure 3: Newcastle Creek WBID Locator Map .....................................................................42

Figure 4: Location of the Hogan Creek Watershed...............................................................56

Figure 5: Hogan Creek WBID Locator Map ...........................................................................57

Figure 6: Location of the Butcher Pen Creek Watershed.....................................................71

Figure 7: Butcher Pen Creek WBID Locator Map..................................................................72

Figure 8: Location of the Miller Creek Watershed ................................................................86

Figure 9: Miller Creek WBID Locator Map .............................................................................87

Figure 10: Location of the Miramar Creek Watershed........................................................100

Figure 11: Miramar Creek WBID Locator Map.....................................................................101

Figure 12: Location of the Big Fishweir Creek Watershed................................................117

Figure 13: Big Fishweir Creek WBID Locator Map..............................................................118

Figure 14: Location of the Deer Creek Watershed..............................................................136

Figure 15: Deer Creek WBID Locator Map...........................................................................137

Figure 16: Location of the Terrapin Creek Watershed .......................................................152

Figure 17: Terrapin Creek WBID Locator Map ....................................................................153

Figure 18: Location of the Goodbys Creek Watershed ......................................................165

Figure 19: Goodbys Creek WBID Locator Map ...................................................................166

Figure 20: Location of the Open Creek Watershed.............................................................181

Figure 21: Open Creek WBID Locator Map .........................................................................182

Figure E-1. SSO Root Cause Analysis.................................................................................206

Figure E-2. Problems Identified through the Pop-Top Program ........................................208

Figure E-3. Lift Station SSOs, FY02–FY08...........................................................................209

Figure E-4. Reportable SSOs by Third Parties, 2003–08 ....................................................210
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xi

LIST OF TABLES

Table 1: Designated Use Attainment Categories for Florida Surface Waters ...................... 1

Table 2: Phases of the Watershed Management Cycle ......................................................... 2

Table 3: TMDLs for the LSJR Tributaries ..............................................................................10

Table 4: Percent Human Land Uses by WBID.......................................................................12

Table 5: Summary of Newcastle Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................14

Table 6: Summary of Hogan Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................15

Table 7: Summary of Butcher Pen Creek Fecal Coliform Data by Year for the 

Verified Period (January 1, 1996–June 30, 2003) .................................................15

Table 8: Summary of Miller Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................16

Table 9: Summary of Miramar Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................16

Table 10: Summary of Big Fishweir Creek Fecal Coliform Data by Year for the 

Verified Period (January 1, 1996–June 30, 2003) .................................................17

Table 11: Summary of Deer Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................17

Table 12: Summary of Terrapin Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................18

Table 13: Summary of Goodbys Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................18

Table 14: Summary of Open Creek Fecal Coliform Data by Year for the Verified 

Period (January 1, 1996–June 30, 2003) ...............................................................19

Table 15: Proposed BMAP Annual Reporting Form .............................................................24

Table 16: Water Quality Indicators and Field Parameters....................................................26

Table 17: Monitoring Stations in Newcastle Creek...............................................................27

Table 18: Monitoring Stations in Hogan Creek .....................................................................27

Table 19: Monitoring Stations in Butcher Pen Creek ...........................................................28

Table 20: Monitoring Stations in Miller Creek.......................................................................28

Table 21: Monitoring Stations in Miramar Creek ..................................................................28

Table 22: Monitoring Stations in Big Fishweir Creek ...........................................................28

Table 23: Monitoring Stations in Deer Creek ........................................................................29

Table 24: Monitoring Stations in Terrapin Creek ..................................................................29

Table 25: Monitoring Stations in Goodbys Creek.................................................................29

Table 26: Monitoring Stations in Open Creek .......................................................................30

Table 27: Percent Fecal Coliform Reduction since the TMDL Verified Period....................33

Table 28: Land Uses in the Newcastle Creek Watershed.....................................................40

Table 29: SSOs Reported in the Newcastle Creek Watershed, 2001–07 .............................44

Table 30: JEA Activities in the Newcastle Creek Watershed ...............................................46

Table 31: DCHD Activities in the Newcastle Creek Watershed............................................48

Table 32: COJ Activities in the Newcastle Creek Watershed...............................................50
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xii

Table 33: FDOT Activities in the Newcastle Creek Watershed.............................................51

Table 34: Summary of Restoration Activities for the Newcastle Creek Watershed............53

Table 35: Land Uses in the Hogan Creek Watershed ...........................................................55

Table 36: SSOs reported in the Hogan Creek Watershed, 2001–07.....................................59

Table 37: JEA Activities in the Hogan Creek Watershed......................................................61

Table 38: DCHD Activities in the Hogan Creek Watershed ..................................................62

Table 39: COJ Activities in the Hogan Creek Watershed .....................................................64

Table 40: FDOT Activities in the Hogan Creek Watershed...................................................66

Table 41: Summary of Restoration Activities for the Hogan Creek Watershed..................69

Table 42: Land Uses in the Butcher Pen Creek Watershed .................................................70

Table 43: SSOs reported in the Butcher Pen Creek Watershed, 2001–07...........................74

Table 44: JEA Activities in the Butcher Pen Creek Watershed............................................76

Table 45: DCHD Activities in the Butcher Pen Creek Watershed ........................................78

Table 46: COJ Activities in the Butcher Pen Creek Watershed ...........................................80

Table 47: FDOT Activities in the Butcher Pen Creek Watershed.........................................81

Table 48: Summary of Restoration Activities for the Butcher Pen Creek Watershed ........83

Table 49: Land Uses in the Miller Creek Watershed.............................................................85

Table 50: SSOs Reported in the Miller Creek Watershed, 2001–07 .....................................88

Table 51: JEA Activities in the Miller Creek Watershed .......................................................90

Table 52: DCHD Activities in the Miller Creek Watershed....................................................91

Table 53: COJ Activities in the Miller Creek Watershed.......................................................93

Table 54: FDOT Activities in the Miller Creek Watershed.....................................................94

Table 55: Summary of Restoration Activities for the Miller Creek Watershed....................97

Table 56: Land Uses in the Miramar Creek Watershed ........................................................99

Table 57: SSOs Reported in the Miramar Creek Watershed, 2001–07...............................102

Table 58: JEA Activities in the Miramar Creek Watershed.................................................105

Table 59: DCHD Activities in the Miramar Creek Watershed .............................................106

Table 60: COJ Activities in the Miramar Creek Watershed ................................................109

Table 61: FDOT Activities in the Miramar Creek Watershed..............................................111

Table 62: Summary of Restoration Activities for the Miramar Creek Watershed .............114

Table 63: Land Uses in the Big Fishweir Creek Watershed ...............................................116

Table 64: SSOs reported in the Big Fishweir Creek Watershed, 2001–07.........................119

Table 65: JEA Activities in the Big Fishweir Creek Watershed..........................................122

Table 66: DCHD Activities in the Big Fishweir Creek Watershed ......................................124

Table 67: COJ Activities in the Big Fishweir Creek Watershed .........................................127

Table 68: FDOT Activities in the Big Fishweir Creek Watershed.......................................129

Table 69: Summary of Restoration Activities for the Big Fishweir Creek Watershed......132

Table 70: Land Uses in the Deer Creek Watershed ............................................................135

Table 71: SSOs Reported in the Deer Creek, 2001–07........................................................138

Table 72: JEA Activities in the Deer Creek Watershed.......................................................141

Table 73: DCHD Activities in the Deer Creek Watershed ...................................................142
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xiii

Table 74: COJ Activities in the Deer Creek Watershed ......................................................144

Table 75: FDOT Activities in the Deer Creek Watershed....................................................145

Table 76: Summary of Restoration Activities for the Deer Creek Watershed...................147

Table 77: Land Uses in the Terrapin Creek Watershed......................................................151

Table 78: JEA Activities in the Terrapin Creek Watershed ................................................156

Table 79: DCHD Activities in the Terrapin Creek Watershed .............................................157

Table 80: COJ Activities in the Terrapin Creek Watershed................................................159

Table 81: FDOT Activities in the Terrapin Creek Watershed..............................................160

Table 82: Summary of Restoration Activities for the Terrapin Creek Watershed.............162

Table 83: Land Uses in the Goodbys Creek Watershed.....................................................167

Table 84: SSOs reported in the Goodbys Creek Watershed, 2001–07 ..............................168

Table 85: JEA Activities in the Goodbys Creek Watershed ...............................................170

Table 86: DCHD Activities in the Goodbys Creek Watershed............................................171

Table 87: COJ Activities in the Goodbys Creek Watershed...............................................173

Table 88: FDOT Activities in the Goodbys Creek Watershed.............................................174

Table 89: Summary of Restoration Activities for the Goodbys Creek Watershed............177

Table 90: Land Uses in the Open Creek Watershed ...........................................................180

Table 91: SSOs reported in the Open Creek Watershed, 2001–07.....................................183

Table 92: JEA Activities in the Open Creek Watershed......................................................186

Table 93: DCHD Activities in the Open Creek Watershed ..................................................187

Table 94: COJ Activities in the Open Creek Watershed .....................................................189

Table 95: FDOT Activities in the Open Creek Watershed...................................................190

Table 96: Summary of Restoration Activities for the Open Creek Watershed..................192

Table A-1: Major Hydrologic Basins by Group and FDEP District Office..........................195

Table A-2: Basin Rotation Schedule For TMDL Development and Implementation.........195

Table H-1: Stormwater and Water Quality Protection Websites ........................................240
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xiv

LIST OF ACRONYMS

ARV Air Release Valve

BMAP Basin Management Action Plan

BMP Best Management Practice

BWG Basin Working Group

CAFO Concentrated Animal Feeding Operation

CARE Citizen Action Response Effort

CBP Concrete Batch Plant

CIPP Cured In Place Pipe

CDM Camp, Dresser & McKee

CIP Capital Improvement Plan

CMOM Capacity, Management, Operations, and Maintenance

COJ City of Jacksonville

CPAC Citizen Policy Advisory Committee

DCHD Duval County Health Department

DCP Drainage Connection Program

EPA U.S. Environmental Protection Agency

EPB Environmental Protection Board

EQD Environmental Quality Division

ETM England-Thims and Miller

F.A.C. Florida Administrative Code

FDACS Florida Department of Agriculture and Consumer Services 

FDEP Florida Department of Environmental Protection

FDOH Florida Department of Health

FDOT Florida Department of Transportation

FEHA Florida Environmental Health Association

FOG Fats, Oils, and Grease

FOWA Florida Onsite Wastewater Association

F.S. Florida Statutes

FSE Food Service Establishment

FWRA Florida Watershed Restoration Act

FY Fiscal Year

GIS Geographic Information System

IMZ Industrial/Manufacturing Zone

IP Industrial Pretreatment

IWR Impaired Surface Waters Rule

LF Linear Feet

LSJR Lower St. Johns River

MEP Maximum Extent Practicable

MF Membrane Filter

M/H Manhole

mL Milliliter

MPN Most Probable Number

MS4 Municipal Separate Storm Sewer System
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xv

LIST OF ACRONYMS

MSMP Master Stormwater Management Plan

MST Microbial Source Tracking

NHD National Hydrography Dataset

NOI Notice of Intent

NPDES National Pollutant Discharge Elimination System

NPS Nonpoint Source

OSTDS Onsite Sewage Treatment and Disposal System

PBS&J Post, Buckley, Schuh & Jernigan 

PBTS Performance-Based Treatment and Disposal System

PHP Preferred Hauler Program

PIC Potential Illicit Connection

PSA Public Service Announcement

PVC Polyvinyl Chloride

PWD Public Works Department

QA/QC Quality Assurance/Quality Control

R&R Repair and Replacement

SCADA Supervisory Control and Data Acquisition

SCS U.S. Soil Conservation Service

SJRWMD St. Johns River Water Management District

SOP Standard Operating Procedure

SSO Sanitary Sewer Overflow

SWIM Surface Water Improvement and Management

SWMP Stormwater Management Program

TAT Tributary Assessment Team

TMDL Total Maximum Daily Load

USF University of South Florida

UV Ultraviolet

WAV Watershed Action Volunteer

WBID Waterbody Identification

WSEA Water and Sewer Expansion Authority

WWTF Wastewater Treatment Facility
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xvi

E XE CUTIVE S UMMAR Y

TRIBUTARIES OF THE LOWER ST. JOHNS RIVER BASIN

The 10 tributaries discussed in this Basin Management Action Plan (BMAP) occupy 

approximately 6% or more than 166 square miles of the Lower St. Johns River (LSJR) Basin. 

The urban planning units are streams in the Duval County area, which include Trout River, 

Ortega River, North Mainstem, and Intracoastal Waterway. These urban streams are smaller 

and their water quality affected by urbanization. At least part of the drainage from these 

tributaries flows through urban Jacksonville and many are tidally influenced for substantial 

distances.

The area addressed by this Lower St. Johns River Tributaries BMAP comprises the following 

four planning units, which include several smaller lakes and canals: 

1. The Trout River Planning Unit, which contains the Trout River tributary 

watershed, is located west of the St. Johns River in northwestern Duval County. It 

covers approximately 94 square miles. The watershed, which joins the St. Johns 

River where it turns east toward the Atlantic Ocean, is heavily influenced by tidal 

fluctuations (Bergman, 1992). A portion of Hogan Creek is located in the planning 

unit.

2. The Ortega River Planning Unit, consisting of the Ortega River tributary 

watershed, is located west of the St. Johns River in south-central Duval County

and covers approximately 99 square miles. Cedar River, the largest tributary of 

the Ortega River, flows predominately southeast (Bergman, 1992). Tributaries of 

the Cedar River include Butcher Pen Creek and most of Big Fishweir Creek.

3. The North Mainstem Planning Unit lies almost entirely in Duval County and 

includes the main stem of the St. Johns River from the mouth to Piney Point. It 

also includes many of the urbanized streams in downtown Jacksonville, such as 

Hogan Creek, Deer Creek, Goodbys Creek, Terrapin Creek, Newcastle Creek, 

Miramar Creek, and Miller Creek (Bergman, 1992).

4. The Intracoastal Waterway Planning Unit, which is south of the St. Johns River 

near its mouth at the Atlantic Ocean, covers approximately 99 square miles, 

primarily in St. Johns County. It includes the cities of Atlantic Beach, Neptune

Beach, and Jacksonville Beach (Bergman, 1992). Open Creek is located in this 

planning unit.

 

TOTAL MAXIMUM DAILY LOADS

Total Maximum Daily Loads (TMDLs) are water quality targets for specific pollutants (such as 

fecal coliform) that are established for impaired waterbodies that do not meet their designated 

uses based on Florida water quality standards. During Cycle 1 of the watershed management 

cycle in the LSJR Basin, as required by federal law, the Florida Department of Environmental 

Protection (FDEP) identified 55 tributaries that have verified fecal coliform impairments. 

In 2006, FDEP adopted TMDLs for the following waterbodies included in the BMAP: 

• Miramar Creek

• Butcher Pen Creek

• Hogan Creek

• Goodbys Creek
Final Lower St. Johns River Basin Management Action Plan – December 2009 

i

FDEP then adopted additional TMDLs for the BMAP in 2009 for the following waterbodies:

• Miller Creek

• Big Fishweir Creek

• Newcastle Creek

• Deer Creek

• Terrapin Creek

• Open Creek

TMDLs also adopted in 2006 and 2009 for other fecal coliform impaired tributaries in the LSJR 

Basin include: 

• Williamson Creek

• Moncrief Creek

• Wills Branch

• Cedar River 

• Ribault River

• McCoy Creek

• Durbin Creek

• Deep Bottom Creek

• Blockhouse Creek

• Trout River

• Big Davis Creek

THE LOWER ST. JOHNS RIVER TRIBUTARIES BASIN MANAGEMENT ACTION PLAN 

This BMAP for the tributaries to the LSJR addresses 10 of the 55 tributaries impaired for fecal 

coliform. These initial 10 tributaries were identified as the worst-case waterbody identification 

(WBID) numbers, based on a ranking method establishing the severity of bacterial 

contamination. The projects and activities outlined in this BMAP are sufficient to address all of 

the identified sources and, with full implementation of this BMAP, the 10 WBIDs are expected to 

meet the TMDL requirements. Through ongoing studies, the five year BMAP milestone 

evaluation and the annual reviews we will be able to identify and address any additional sources 

that occur. Any future BMAPs will address additional subsets of the tributaries verified impaired 

for fecal coliform. 

BMAP BASIN WORKING GROUP MEMBERSHIP

FDEP worked with the Basin Working Group to prepare this BMAP. The BWG members 

represent the following groups and organizations:

• City of Jacksonville

• Duval County Department of Health

• Florida Department of Transportation

• JEA

BMAP APPROACH

This BMAP provides for phased implementation pursuant to Section 403.067(7)(a)1, Florida 

Statutes (F.S.). The adaptive management approach for TMDL implementation described in 

this BMAP will address fecal coliform bacteria reductions and the iterative evaluation process 

will continue until attainment of the TMDL. The phased BMAP approach allows for 

implementation of projects designed to achieve reductions while simultaneously implementing 

source assessment, monitoring, and conducting studies to better understand fecal coliform 

variability and water quality dynamics in each impaired waterbody. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xviii

A five-year milestone in this BMAP will assess and verify that adequate progress is being made 

towards achieving the TMDLs. During the fifth year following the BMAP adoption (2014), the 

water quality data will be evaluated for in-stream reductions of fecal coliform levels within each 

WBID. By this year, the median value for the fecal coliform counts in the first four years of 

BMAP implementation should be 50 percent of the median expressed in the TMDL, which was 

based on the verified period of record (January 1, 1996 to June 30, 2003) in each WBID. If this 

50 percent reduction is not achieved by the time of this year five analysis, additional efforts may 

be required. Achieving 50 percent of the required reductions will be an important milestone for 

this BMAP and will provide an opportunity to improve source assessment and management 

measures going forward. 

SUFFICIENCY OF EFFORT EVALUATION

The tributary fecal coliform TMDLs are expressed as a percent reduction based on in-stream 

fecal coliform concentrations. This method of TMDL allocation prevents detailed allocations, as 

it is complicated to equitably allocate to stakeholders based on a percent reduction of in-stream 

concentration. Fecal coliform can be highly variable and easily transported, which makes it 

difficult, in many cases, to identify the source of the bacteria. Additionally, there are nearly no 

data that show the efficiency of stormwater BMPs and management actions in removing or 

reducing fecal coliforms.

FDEP evaluated fecal coliform reduction activities using a “sufficiency of effort” approach, which 

is a WBID-specific assessment of the identified potential sources and the specific activities that 

reduce or eliminate sources of fecal coliform loading. This sufficiency of effort evaluation is not 

an assessment of each entity’s individual activities; instead, the focus is whether the submitted 

activities corresponded to the potential sources identified in the WBID and whether the total 

efforts were adequate to eliminate the known sources, assess unknown sources, and prevent 

the development of new sources. If any of the likely sources were not sufficiently addressed, 

FDEP identified the need for additional actions, which were added to the responsible entity’s 

project table for that WBID. The sum of the actions in this BMAP is sufficient to address the 

potential sources, based upon the information available. Additional actions may be necessary 

in the next cycle if reductions do not occur as expected.

KEY ELEMENTS OF THE BMAP

This BMAP addresses the key elements required by the Florida Watershed Restoration Act

(FWRA), Chapter 403.067, Florida Statutes (F.S.), including the following: 

• Document how the public and other stakeholders were encouraged to 

participate or participated in developing the BMAP (Section 1.3.1 and 

Appendix C);

• Equitably allocate pollutant reductions in the basin (Section 1.3.4);

• Identify the mechanisms by which potential future increases in pollutant 

loading will be addressed (Section 1.5); 

• Document management actions/projects to achieve the TMDLs (Chapter 6

through Chapter 15);

• Document the implementation schedule, funding, responsibilities, and 

milestones (Sections 6.3, 7.3, 8.3, 9.3, 10.3, 11.3, 12.3, 13.3, 14.3, and 15.3); 

and

• Identify monitoring, evaluation, and a reporting strategy to evaluate reasonable 

progress over time (Section 4.2).
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xix

ANTICIPATED OUTCOMES OF BMAP IMPLEMENTATION

Through the implementation of projects, activities, and additional source assessment in this 

BMAP, stakeholders expect the following outcomes:

• Improved water quality trends in the tributaries of the LSJR that will also help 

improve water quality in the main stem of the river; 

• Decreased loading (levels) of the target pollutant (fecal coliform);

• Enhanced public awareness of fecal coliform sources and impacts on water 

quality; 

• Enhanced effectiveness of corresponding corrective actions by stakeholders; 

• Enhanced understanding of basin hydrology, water quality, and pollutant 

sources; and

• The ability to evaluate management actions, estimate their benefits and 

identify additional pollutant sources. 

BMAP COST 

Costs were provided for 79% of the activities identified in the BMAP, with an estimated total cost 

of more than $31 million for capital projects and approximately $59 million for ongoing programs 

and activities. In addition, some of the activities identified in the BMAP only had countywide 

costs available, for a total of almost $5.5 million. The funding sources range from local 

contributions to legislative appropriations. Technical stakeholders and Basin Working Group

(BWG) members will continue to explore new opportunities for funding assistance to ensure that 

the activities listed in this BMAP can be maintained at the necessary level of effort. 

BMAP FOLLOW-UP

As a part of BMAP follow-up, FDEP and stakeholders will track implementation efforts and 

monitor water quality to determine additional sources and water quality trends. The sampling 

locations in the monitoring plan were selected to identify other potential sources of 

contamination through source assessment monitoring in key locations throughout the 

watersheds and to track trends in fecal coliform in the WBIDs by using existing stations with 

extensive historical data. The source assessment monitoring will follow the established 

Tributaries Assessment Team (TAT) protocol in which any observed fecal coliform colony

counts, over 5,000, will be followed-up with bracketed sampling in an effort to determine the 

source of the high fecal coliform count. FDEP and COJ are responsible for the trend and 

source assessment sampling in the monitoring plan and JEA has committed to processing up to 

32 samples each month in their laboratory for FDEP and COJ.

The results of these efforts will be used to evaluate the effectiveness of the BMAP activities in 

reducing fecal coliform loading in the tributaries. The BWG will meet at least every 12 months 

to discuss implementation issues, consider new information, and determine what other 

management strategies are needed if monitoring indicates that additional measures are 

necessary to reduce fecal coliform. 

BENEFITS OF THE BMAP PROCESS

With the implementation of activities outlined in this BMAP, in addition to the anticipated 

outcomes noted above, the following benefits are expected:
Final Lower St. Johns River Basin Management Action Plan – December 2009 

xx

• Increased coordination between state and local governments and within 

divisions of local governments in problem solving for surface water quality

restoration;

• Securing additional state and local funding for water quality restoration;

• Improved communication and cooperation among state and local agencies 

responding to restoration needs; and

• Determination of effective projects through the stakeholder decision-making

and priority-setting processes. 

COMMITMENT TO BMAP IMPLEMENTATION

The Basin Working Group members will provide endorsement of the BMAP on behalf of the 

entities they represent and are committed to ensuring the plan is implemented to achieve 

reductions of fecal coliforms in the tributaries. In addition to this endorsement, the entities will 

also provide FDEP with letters of commitment or resolutions of support to ensure that as staff 

and board members change over time, the entity has a way to ensure support for the BMAP and

the efforts included. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

1

CHAPTER 1: C ONTE XT, P UR POSE , AND S COPE OF THE P LAN

1.1 WATER QUALITY S TANDAR DS AND TOTAL MAXIMUM DAILY L OADS

Florida's water quality standards are designed to ensure that surface waters can be used for 

their designated purposes, such as drinking water, recreation, and agriculture. Currently, most 

surface waters in Florida, including those in the Lower St. Johns River (LSJR) Basin, are 

categorized as Class III waters, which means they must be suitable for recreation and must 

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

wildlife. Table 1 shows all designated use categories.

Under Section 303(d) of the federal Clean Water Act, every two years each state must identify 

its “impaired” waters, including estuaries, lakes, rivers, and streams, that do not meet their 

designated uses and are not expected to improve within the subsequent two years. The Florida 

Department of Environmental Protection (FDEP) is responsible for developing this “303(d) list”

of impaired waters.

TABLE 1: DE S IGNATE D USE ATTAINME NT C ATE GOR IE S FOR FLOR IDA S UR FACE WATERS

C ATEGOR Y DE S C R IPTION

Class I* Potable water supplies

Class II* Shellfish propagation or harvesting

Class III Recreation, propagation and maintenance of a healthy, well-balanced population 

of fish and wildlife

Class IV Agricultural water supplies

Class V Navigation, utility, and industrial use (no current Class V designations) 

* Class I and II waters include the uses of the classifications listed below them.

Florida's 303(d) list identifies hundreds of waterbody segments that fall short of water quality 

standards. The three most common water quality concerns are coliform, nutrients, and oxygendemanding substances. The listed waterbody segments are candidates for more detailed 

assessments of water quality to determine whether they are impaired according to state 

statutory and rule criteria. FDEP develops and adopts Total Maximum Daily Loads (TMDLs) for 

the waterbody segments it identifies as impaired. A TMDL is the maximum amount of a specific 

pollutant that a waterbody can assimilate while maintaining its designated uses. 

The water quality evaluation and decision-making processes for listing impaired waters and 

establishing TMDLs are authorized by Section 403.067, Florida Statutes (F.S.), known as the 

Florida Watershed Restoration Act (FWRA), and contained in Florida’s Identification of Impaired 

Surface Waters Rule (IWR), Rule 62-303, Florida Administrative Code (F.A.C.). The impaired 

waters in the tributaries of the LSJR Basin addressed in this plan are all Class III waters. 

TMDLs have been established for these waters, identifying the amount of fecal coliform and 

other pollutants they can receive and still maintain Class III designated uses. 

TMDLs are developed and implemented as part of a watershed management cycle that rotates 

through the state’s 52 river basins every 5 years (see Appendix A) to evaluate waters, 

determine impairments, and develop and implement management strategies to restore impaired 

waters to their designated uses. Table 2 summarizes the five phases of the watershed 

management cycle.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

2

TABLE 2: PHAS E S OF THE WATE R S HE D MANAGE ME NT CYCLE

Phase 1 Preliminary evaluation of water quality

Phase 2 Strategic monitoring and assessment to verify water quality impairments

Phase 3 Development and adoption of TMDLs for waters verified as impaired

Phase 4 Development of management strategies to achieve the TMDL(s)

Phase 5 Implementation of TMDL(s), including monitoring and assessment

1.2 TMDL IMPLE ME NTATION

Rule-adopted TMDLs may be implemented through Basin Management Action Plans (BMAPs), 

which contain strategies to reduce and prevent pollutant discharges through various costeffective means. During Phase 4 of the TMDL process, FDEP and the affected stakeholders in 

the various basins jointly develop BMAPs or other implementation approaches. A basin may 

have more than one BMAP, based on practical considerations. The FWRA contains provisions 

that guide the development of BMAPs and other TMDL implementation approaches. Appendix 

B summarizes the statutory provisions related to BMAP development. 

Stakeholder involvement is critical to the success of the TMDL Program, and varies with each 

phase of implementation to achieve different purposes. The BMAP development process is 

structured to achieve cooperation and consensus among a broad range of interested parties. 

Under statute, FDEP invites stakeholders to participate in the BMAP development process and 

encourages public participation to the greatest practicable extent. FDEP must hold at least one 

noticed public meeting in the basin to discuss and receive comments during the planning 

process. Stakeholder involvement is essential to develop, gain support for, and secure 

commitments to implement the BMAP.

1.3 THE LOWER S T. J OHNS R IVE R T R IB UTAR IE S B AS IN MANAGE ME NT ACTION 

P LAN

1.3.1 S TAK E HOLDE R INVOLVE ME NT

In 2005, the Tributaries Assessment Team (TAT) was formed to investigate potential sources of 

fecal coliform in the LSJR tributaries. The TAT membership comprises several agencies and 

organizations, including FDEP, City of Jacksonville (COJ) Environmental Quality Division 

(EQD), COJ Public Works Department (PWD), Duval County Health Department (DCHD), and 

JEA (the regional utility provider). The TAT has collected much of the water quality data that 

provide the basis for the analyses presented in this BMAP. 

As part of its efforts, the TAT samples a number of tributaries (10 WBIDs are included in the 

2009 sampling plan). When a sample is above a fecal coliform colony count of 5,000, the TAT 

collects additional samples upstream and downstream of the high count in an effort to bracket 

the location of the source. In addition to intensive water quality sampling, the TAT analyzes the 

water quality data in conjunction with GIS information to identify opportunities for eliminating 

sources and carrying out additional focused sampling. This effort requires interagency 

coordination and communication to effectively address a source, because the TAT member who 

identifies the source may not be associated with the appropriate entity to implement the 

corrective action. The TAT’s interagency, coordinated effort has identified and eliminated fecal 

coliform sources in the tributaries, which has helped to improve water quality in the tributaries.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

3

In July 2006, FDEP initiated BMAP technical meetings involving key stakeholders. The purpose 

of the technical meetings is for stakeholders to gather information on the impaired tributaries to 

aid in the development of the BMAP and to identify management actions to improve water 

quality. 

In addition to stakeholder input on the technical issues of BMAP development, FDEP solicited 

further input from key stakeholder groups at the management level by creating the Basin 

Working Group (BWG) in October 2007. The BWG provides recommendations to FDEP on 

issues related to BMAP development. The BWG developed the following mission statement: 

The mission of the Lower St. Johns River Tributaries Basin Working Group is to 

encourage participation of all interested parties in working to restore impaired 

waterbodies through recommendations for an equitable and cost-effective Basin 

Management Action Plan to achieve Total Maximum Daily Load reduction goals in 

the tributaries of the Lower St. Johns River.

Except as specifically noted in subsequent sections, this BMAP document reflects the input of 

the technical stakeholders and the BWG, along with public input from workshops and meetings

held to discuss key aspects of the TMDL and BMAP development. Appendix C provides 

further details.

1.3.2 P LAN P UR POSE AND APPROACH

As reflected in the BWG’s mission statement, the purpose of this BMAP is to implement load 

reductions to achieve the fecal coliform TMDLs for the LSJR Basin tributaries. The plan also 

outlines specific actions that will achieve load reductions and a schedule for implementation. In 

addition, it details a monitoring approach to identify additional sources of fecal coliform and to 

track trends in water quality. The BWG will meet at least annually to review progress made 

towards achieving the TMDLs. 

This BMAP for the LSJR tributaries addresses 10 of the 55 tributaries impaired for fecal 

coliform. Specifically, it focuses on actions that reduce fecal coliform levels, with a goal of 

meeting the associated TMDLs. Other water quality concerns will benefit from these BMAP

actions, such as issues with nutrients and low dissolved oxygen. However, it must be 

emphasized that this BMAP does not address all of the water quality issues in the basin. Future 

fecal coliform BMAPs in the LSJR tributaries will include additional subsets of the tributaries 

listed as impaired for fecal coliform. 

For assessment purposes, FDEP has divided the LSJR Basin into water assessment polygons 

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

Figure 1 shows the 10 most severely impacted WBIDs discussed in this BMAP. 

Though considerable effort was taken to understand the dynamics of the TMDL waterbodies, 

the relationship of fecal coliform water quality exceedances to pollutant sources is not well 

understood. Where specific fecal coliform sources were identified, the BWG and stakeholders

have proposed projects and activities to eliminate those sources. In areas where specific 

sources were not definitively identified, programs to prevent further fecal coliform loading, 

including assessments and sampling to identify and eliminate sources, are listed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

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F IGUR E 1: L SJR B AS IN T R IB UTAR IE S INCLUDE D IN THE B MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

5

For the projects and programs in this BMAP, quantitative values for pollutant load reduction 

activities cannot be calculated due to a lack of scientific information on the bacteria removal 

rates for best management practices (BMPs) and activities that reduce fecal coliform levels. 

While it is known that certain BMPs prevent or remove fecal coliform sources, it is not known 

exactly how much of a reduction will occur in the tributaries. As a result, the expected dates on 

which the TMDLs will be achieved are not provided; however, there is a milestone to evaluate 

progress in Year 5 of the BMAP (Section 4.5). Despite the uncertainties, stakeholders do 

expect to achieve water quality improvements by the end of the first five-year BMAP cycle

through past and future activities, projects, and programs to eliminate sources outlined in this 

BMAP.

1.3.3 P LAN S COPE

The initial subset of 10 tributaries included in this BMAP was identified as the worst-case 

WBIDs. This determination uses a ranking method that establishes the severity of water quality

impairment based on the number of exceedances of fecal coliform colony counts. The water 

quality ranking method uses the total number of fecal coliform samples in the waterbody during 

the period of record to categorize how many samples were over 800, 5,000, and 10,000 colony 

counts. A combined rank is then created based on the number of exceedances in each 

category. The WBIDs are sorted from worst to best to provide a guideline for assessment

priorities, with the worst-case waterbody ranked as number one. 

In an effort to address the known impairments in these tributaries, FDEP contracted with Post, 

Buckley, Schuh & Jernigan (PBS&J) to develop technical reports that describe and interpret the 

water quality, spatial, and geographic data from FDEP, DCHD, COJ, and JEA. The available

data are analyzed in the reports to identify the most probable sources of fecal coliform, which 

fall into five main categories (not in order of magnitude), as follows: (1) stormwater; (2) onsite 

sewage treatment and disposal systems (OSTDS); (3) sewer infrastructure; (4) nonpoint 

sources such as pet waste; and (5) natural background such as wildlife. 

These reports were peer reviewed by the technical stakeholders in the basin, who also provided 

additional input based on their knowledge of the tributaries. Each of the technical reports 

provides individual waterbody–specific information in a stand-alone document. The technical 

stakeholders used the reports to establish a baseline and to assist in identifying projects and 

additional monitoring needs, which are included in this BMAP. Chapter 6 through Chapter 15

summarize key findings from the technical reports. Additional detailed information for each 

WBID is located in the full versions of the technical reports, which are available from FDEP.

The technical reports use a “weight-of-evidence” approach to help identify likely sources of fecal 

coliform and guide follow-up reconnaissance and investigation toward corrective actions. This 

approach utilizes statistical and Geographic Information System (GIS) data analyses to focus 

watershed management efforts, classify priorities, and support decisions related to fecal 

coliform reduction efforts. These analyses are a product of the best information available at the 

time to summarize impairments and identify potential sources. The limitations of the available 

datasets were identified in the technical reports to provide context for data interpretation. The 

weight-of-evidence method, in conjunction with the best professional judgment of the 

stakeholders who have local knowledge of these WBIDs, was used to aid in source identification

to the maximum extent possible. 

At this time, water quality modeling has not been used to assess the temporal relationship 

between the source of fecal coliform and the associated impact on the waterbody. Due to the 

inherent variability of fecal coliform and the diffuse nature of nonpoint sources, modeling was 

not considered viable, and the weight-of-evidence approach was utilized to provide information 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

6

on the most likely sources. Modeling may be considered in the future to help refine the 

understanding of sources and impacts in the tributaries.

1.3.4 S UFFICIE NCY OF E FFOR T APPROACH AND DE TE R MINATION OF S UFFICIE NCY

Fecal coliform can be highly variable and easily transported, making it difficult, in many cases, 

to identify the source of the bacteria. Based on the potential sources in each WBID, the 

stakeholders were asked to identify their activities to reduce or remove bacteria sources that 

have been implemented since 1996 (the start of the TMDL verified period) and additional efforts 

that are currently under way or planned in the next five years. COJ, DCHD, Florida Department 

of Transportation (FDOT) District 2, and JEA all submitted project sheets and program 

descriptions for the prevention, reduction, and source removal activities they conduct in each of

the 10 WBIDs or on a countywide basis. FDEP then used a “sufficiency of effort” approach to 

conduct a WBID-specific assessment of the potential sources, and cumulative projects and 

activities that address or eliminate fecal coliform loading. This sufficiency of effort evaluation

was not an assessment of each agency’s individual activities; instead, it focused on whether the 

activities submitted by all the entities corresponded to the potential sources identified and 

whether the total efforts were adequate to eliminate the known sources, assess unknown 

sources, and prevent the development of new sources. 

During the sufficiency of effort evaluation, FDEP reviewed the following information about each 

WBID: 

• Documentation of the most likely sources; 

• A GIS database to determine the spatial and temporal distribution of the 

sources; 

• Permit and water quality information; 

• Relevant field information; and 

• The completed corrective actions.

As the evaluation was conducted, the agencies’ programs and activities for each type of source 

were recorded in a table summarizing restoration activities (see the sections on Summary of 

Restoration Activities in Chapter 6 through Chapter 15). Because the controllable sources 

(sewer infrastructure, septic tanks, and stormwater conveyances) vary considerably among the 

WBIDs, the actions and responsibilities of the stakeholders also vary considerably from WBID to 

WBID. To describe each WBID accurately and assess the efforts appropriately, each WBID is 

described in its own chapter and evaluated separately. 

The criterion for sufficiency for OSTDS-related efforts included the following: designation as a

septic tank (OSTDS) failure or nuisance area in accordance with COJ Ordinance Code (further 

described in Appendix E), which prioritizes these areas for transition to sewer service; status of 

OSTDS phase-out to sewer; number of complaint investigations and any resulting enforcement 

actions; and number of septic tank repair permits and proximity of the repair sites to surface 

waters or stormwater inlets. In addition, program implementation was evaluated for efforts such 

as inspections, training programs, plan reviews and site visits, and the regulation of annual 

operating permits. Local ordinances were also evaluated for their ability to proactively address 

potential OSTDS failures. 

The evaluation of efforts for sewer infrastructure included a determination of the percentage of 

the infrastructure within the waterbody boundary with recent sewer line upgrades (cured in place 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

7

pipe, pipe bursting, and open cut and removal). In addition, the number of rebuilt pump stations 

in each WBID was compared with the sanitary sewer overflow (SSO) history to determine if a 

previous problem was addressed through repairs and upgrades. Rehabilitated manholes can

also prevent overflows from occurring at the manhole and potentially into surface waters or the 

stormwater system; therefore, manhole rehabilitation and monitoring efforts were quantified. 

Additional sanitary sewer programs that occur on a systemwide or countywide basis, including 

air release valve (ARV) inspection and rehabilitation, SSO investigations, and sewer line 

inspection and cleaning, were also evaluated as measures to prevent and control sewer 

infrastructure as a potential fecal coliform source. 

The stormwater sufficiency evaluations included a review of flood control projects (which reduce 

fecal coliform loading by preventing water from inundating septic systems) and stormwater 

BMPs, such as wet/dry retention and baffle boxes (which reduce sediment buildup that can 

provide a breeding ground for fecal coliform). Consideration was also given to the maintenance 

of stormwater ditches, ponds, and closed conveyances to prevent debris, vegetation, dense tree 

canopy, and sediment from potentially providing conditions that would allow new sources of 

fecal coliform bacteria. 

Another important activity that was evaluated was the detection and removal of illicit 

connections to stormwater conveyances to eliminate illegal discharges that can contribute fecal 

coliform and other pollutants into surface waters. Stormwater-related program implementation 

also includes public education campaigns, the Adopt-A-Highway Program, street sweeping, and 

the Drainage Connection Permit Program, all of which reduce contaminants entering the 

stormwater system. Additionally, COJ is developing a pet waste public education campaign 

using public service announcements, website content, and printed handouts to raise awareness 

and promote compliance with the Pet Waste Ordinance. 

In addition to efforts specific to each source, the entities also participate in special source 

assessment activities. The activities include TAT sampling of several WBIDs and follow-up 

sampling at locations where high counts occur, in an effort to identify potential sources. A “Walk 

the WBID” exercise was completed in 2008 to gain a better understanding of the WBIDs and 

potential sources. Additional sampling and thermal imaging (see Section 4.3) are currently 

being implemented in 10 tributaries (including several that are part of this BMAP) to further 

identify sources of fecal coliform.

For each waterbody evaluation, FDEP used the technical report source summary and compared 

it with the summary of restoration activities table to ensure that appropriate programs and 

activities were being implemented for the most likely sources to either decrease or eliminate the 

known sources, or further assess fecal coliform loadings. If any of the likely sources was not 

sufficiently addressed, FDEP identified the need for additional actions. The full implementation 

of the management actions/projects identified in this BMAP is deemed sufficient to address the 

fecal coliform bacteria reductions needed to meet the TMDLs.

1.3.5 POLLUTANT R E DUCTION AND DIS CHAR GE AL LOC ATIONS

1.3.5.1 Categories for Rule Allocations

The rules adopting TMDLs must establish reasonable and equitable allocations that will alone, 

or in conjunction with other management and restoration activities, attain the TMDL. Allocations 

may be to individual sources, source categories, or basins that discharge to the impaired 

waterbody. The allocations identify either how much pollutant discharge in colonies per day 

each source designation may continue to contribute (discharge allocation), or the colonies per 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

8

day or the percent of its loading the source designation must reduce (reduction allocation). 

Currently, the TMDL allocation categories are as follows: 

• Wasteload Allocation – The allocation to point sources permitted under the 

National Pollutant Discharge Elimination System (NPDES) Program includes

the following: 

o Wastewater Allocation is the allocation to industrial and domestic wastewater 

facilities. 

 NPDES Stormwater Allocation is the allocation to NPDES stormwater 

permittees that operate municipal separate storm sewer systems (MS4s). 

These permittees are treated as point sources under the TMDL Program.

o Load Allocation is the allocation to nonpoint sources, including agricultural 

runoff and stormwater from areas that are not covered by an MS4. 

1.3.5.2 Initial and Detailed Allocations

Under the FWRA, the TMDL allocation in rule may be an “initial” allocation among point and 

nonpoint sources. In such cases, the “detailed” allocation to specific point sources and specific 

categories of nonpoint sources must be established in the BMAP. The FWRA further states that 

the BMAP may make detailed allocations to individual “basins” (i.e., sub-basins) or to all basins

as a whole, as appropriate. Both initial and detailed allocations must be determined based on a 

number of factors listed in the FWRA, including cost-benefit, technical and environmental 

feasibility, implementation time frames, and others (see Appendix B). 

Due to the nature of the fecal coliform impairment, this BMAP does not specify detailed 

allocations. It is difficult to attribute the fecal coliform loads to specific sources because bacteria 

are highly variable and can be easily transported. In addition, research is not available that 

quantifies the expected fecal coliform reduction from project implementation. Instead of 

assigning detailed allocations, a sufficiency of effort evaluation (as described in Section 1.3.4) 

was conducted to assess whether the management actions provided by the entities in the basin 

were sufficient to address the potential sources of fecal coliform identified in each WBID.

1.3.6 TMDL S IN THE T R IB UTAR IE S OF THE L SJR B AS IN

The water quality criterion for fecal coliform bacteria is detailed in Rule 62-302, F.A.C. The 

requirements for exceeding maximum fecal coliform concentrations in a Class III waterbody are 

stated as follows:

The most probable number (MPN) or membrane filter (MF) counts per 100 milliliters 

(mL) of fecal coliform bacteria shall not exceed a monthly average of 200, nor exceed 

400 in 10% of samples, nor exceed 800 on any one day.

FDEP has verified the 10 tributaries of the LSJR included in this BMAP as impaired for fecal 

coliform bacteria. The TMDLs for Hogan Creek, Butcher Pen Creek, Miramar Creek, and 

Goodbys Creek were adopted by FDEP in 2006. In July 2009, FDEP adopted the TMDLs for 

Newcastle Creek, Miller Creek, Big Fishweir Creek, Deer Creek, Terrapin Creek, and Open 

Creek.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

9

Table 3 lists the TMDLs and pollutant load allocations adopted by rule for the 10 tributaries that 

are the focus of this BMAP. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

10

TABLE 3: TMDL S FOR THE L SJR TR IB UTAR IE S

WB ID

NUMB E R WB ID NAME

WATER B ODY 

T YPE

WAS TE LOAD ALL OC ATION

L OAD 

ALL OC ATION

(%)

WASTEWATER *

(C OL ONIE S /DAY) 

NPDE S

S TOR MWATE R

(%)

2235 Newcastle Creek Stream N/A 84 84

2252 Hogan Creek Stream 200 92 92

2322 Butcher Pen Creek Stream Meet permit limits 83 83

2287 Miller Creek Stream N/A 92 92

2304 Miramar Creek Stream N/A 92 92

2280 Big Fishweir Creek Stream N/A 87 87

2256 Deer Creek Stream N/A 86 86

2204 Terrapin Creek Stream N/A 71 71

2326 Goodbys Creek Stream N/A 87 87

2299 Open Creek Stream N/A 60 60

* Cannot exceed 200 counts/100mL as a monthly average, 400 counts/100mL in more than 10% of the samples, or 800 

counts/100mL at any given time.

N/A – Not applicable

1.4 AS S UMPTIONS AND C ONS IDE R ATIONS R E GAR DING TMDL IMPLE ME NTATION

The water quality impacts of BMAP implementation are based on several fundamental 

assumptions about the pollutants targeted by the TMDLs, modeling approaches, waterbody 

response, and natural processes. In addition, there are important considerations to keep in 

mind about the nature of the BMAP and its long-term implementation.

1.4.1 AS S UMPTIONS

The following assumptions were used during the BMAP process:

• Load reductions for stormwater discharges are typically expressed as a 

percent reduction because it is very difficult to quantify the loads from MS4s 

(given the numerous discharge points) and to distinguish loads from MS4s 

from other nonpoint sources (given the nature of stormwater transport). 

• Quantified bacteria loads from specific sources are generally not known 

because they are highly variable. As the bacteria loads from individual 

sources are not well understood, it is not possible to calculate a specific load 

for a specific source. Rather, a percent reduction in load, calculated from 

stream load, not source to stream, is the best way to quantify the necessary 

reduction. 

• The technical stakeholders evaluated the known sources of bacteria

contributing to the impairment in each waterbody and where there was strong 

evidence of responsibility. The stakeholders and BWG then determined 

projects to address these problems and included these projects in the BMAP. 

• In cases where the sources were unknown, the stakeholders and BWG

determined appropriate assessment programs to investigate the sources of 

bacteria loadings. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

11

• It is difficult to determine the quantitative load reductions expected from 

management actions to decrease fecal coliform due to a lack of literature 

values and high variability; therefore, the benefits of these management 

actions were evaluated on a qualitative basis by matching elimination, 

reduction, and prevention activities to known or potential sources. 

• Flood control projects are included as activities that help achieve the TMDL 

because these projects help to reduce flooding after a storm event, which 

reduces the amount of fecal coliform loading to the nearby waterbody through 

stormwater runoff. Programs such as Adopt–A-Highway and street sweeping 

are also included because they remove trash, sediment, debris, and pollutants 

from roadways that would otherwise be transported to stormwater systems 

and surface waters. Fecal coliform can be transported in sediments and 

debris, and these materials can also create a breeding ground for bacteria. 

Therefore, flood control projects and roadway clean-up programs were given 

credit in this BMAP as actions to reduce fecal coliform.

• The penetration of ultraviolet (UV) light into waters and sediments may assist 

in aiding fecal coliform die-off and preventing bacteria regrowth.

1.4.2 CONS IDE R ATIONS

This BMAP requires all stakeholders to implement their projects and programs to achieve 

reductions as soon as practicable. However, the full implementation of this BMAP will be a 

long-term process. While some of the projects and activities contained in the BMAP were 

recently completed or are currently ongoing, several projects require more time to design, 

secure funding, and construct. While funding the projects could be an issue, funding limitations 

do not affect the requirement that every entity must implement the activities listed in the BMAP. 

Since BMAP implementation is a long-term process, the TMDL targets established for the LSJR

Basin may not be achieved in the next five years. It may take even longer for the tributaries to 

respond to reduced loadings and fully meet applicable water quality standards. Regular followup and continued coordination and communication by the BWG and stakeholders will be 

essential to ensure the implementation of management strategies and assessment of their 

incremental effects. Any additional management actions required to achieve TMDLs, if 

necessary, will be developed as part of BMAP follow-up. 

During the BMAP process, several items were identified that should be addressed in future 

watershed management cycles to ensure that future BMAPs use the most accurate information:

1. Source Identification – Sources of fecal coliform impairment are particularly 

difficult to trace. For this reason, source identification studies are included as 

management actions. The TAT is monitoring 10 WBIDs as part of its 2009 

sampling plan. In addition, FDEP has contracted with PBS&J to conduct detailed 

assessments of 11 WBIDs (several of which are included in this BMAP) through a 

combination of field reconnaissance, microbial source tracking (MST), and thermal 

imaging. These studies will provide additional information that will aid in 

identifying potential sources in the impaired tributaries.

2. Septic Tanks – FDEP is implementing a study, Evaluation of Septic Tank 

Influences on Nutrient Loading to the Lower St. Johns River Basin and Its 

Tributaries, to provide a better understanding of the nutrient and bacteria loading 

from septic tanks via ground water by monitoring conditions at representative 

sites. The study seeks to answer questions related to potential OSTDS impacts
Final Lower St. Johns River Basin Management Action Plan – December 2009 

12

and the attenuation of nitrogen, phosphorus, and bacteria (fecal coliform) by soil

type, under the range of conditions that represent typical OSTDS sites near 

impaired surface waters. This study will also document the nutrients and bacteria 

in the receiving LSJR tributaries at each site. The results will provide information 

about the relative contribution of fecal coliform from septic tanks located near the

impaired tributaries.

3. GIS information – During the BMAP process, the available GIS data, which 

provide a basis for some of the source analyses, have improved. As more 

information becomes available, the updated GIS database for the tributaries will 

be utilized to aid in source identification. This information will include determining

the locations for private wastewater systems and infrastructure, collecting

jurisdictional or systemwide programs and activities on a WBID scale for future 

reporting and assessment, and systematically updating all GIS information 

databases used to compile the BMAP.

4. BMP evaluations – During the five-year BMAP implementation cycle, studies to 

evaluate the effectiveness of BMPs to remove fecal coliform may present new 

science for consideration in the BMAP process. As more information becomes 

available, the new science will be incorporated into the annual review process. 

1.5 FUTUR E GR OWTH IN THE T R IB UTAR IE S

The FWRA (Paragraph 403.067[7][a][2], F.S.) requires that BMAPs “identify the mechanisms by 

which potential future increases in pollutant loading will be addressed.” To meet this 

requirement, fecal coliform loadings associated with future growth in the 10 tributaries were 

analyzed. Currently, human land uses predominate in the vast majority of these WBIDs (Table 

4). These uses include residential (high, medium, and low density), commercial/utility/

institutional, transportation, recreational, industrial, feeding operations, and cropland/

pastureland (Terrapin Creek only). Since these watersheds are mostly developed, any future 

growth in these areas is not expected to substantially increase fecal coliform loadings to the 

creeks.

TABLE 4: PE R CE NT HUMAN L AND USES BY WB ID

WB ID % IN HUMAN USES

Newcastle Creek 94.5

Hogan Creek 98.2

Butcher Pen Creek 94.4

Miller Creek 94.1

Miramar Creek 95.4

Big Fishweir Creek 96.9

Deer Creek 87.1

Terrapin Creek 36.2

Goodbys Creek 78.8

Open Creek 42.6

New development in these tributaries would most likely be connected to existing or future JEA 

sanitary sewer system infrastructure, as opposed to septic tanks, where the wastewater will be 

treated to high levels. Several WBIDs include failure areas and, as funding is available, sewer 

lines will be installed in these areas to remove failing septic tanks, which will reduce fecal 

coliform loading from current development. Where sewer service is not available, DCHD 

reviews septic tank plans and evaluates sites before issuing new permits, so that the new 

systems are correctly designed, placed, and operated to prevent further fecal coliform loading.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

13

In addition, ordinances, regulations, and guidelines address fecal coliform loading from new 

development and redevelopment. COJ has ordinances for pet waste management and septic 

tank phase-out that address sources of fecal coliform. COJ also participates in the Florida 

Yards and Neighborhoods Program and has ordinances for landscape irrigation and fertilization

that reduce sediment loads to waterbodies. Sediment loading may increase survival rates and 

may support the regrowth of fecal coliform bacteria. DCHD also has ordinances for repairing

faulty septic tanks and phasing out systems in septic tank nuisance areas. 

These programs and regulations, in conjunction with the COJ and FDOT stormwater and flood 

control projects described later in this BMAP, will effectively address potential fecal coliform 

loadings from any future growth in these tributaries.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

14

CHAPTER 2: WATE R QUAL ITY T R E NDS IN THE T R IB UTAR IE S

2.1 WATER QUALITY T R E NDS

2.1.1 NEWCASTLE CREEK

FDEP verified Newcastle Creek as impaired for fecal coliform using the IWR database. Table 5

summarizes the results, by year, for the verified period. There is an 88.46% overall exceedance 

rate for fecal coliform in Newcastle Creek during the verified period. There are 26 samples, 

ranging from 140 to 11,000 counts/100mL, with 23 samples exceeding the fecal coliform 

criterion. Exceedances occur in all months in which samples have been collected, except for 

March. March and April are the only months where 100% exceedance rates do not occur. 

When aggregating data by season, the summer and fall seasons demonstrate the highest 

percentages of exceedances. The yearly data show that exceedance rates started declining in 

the last 2 years of the verified period. The sample size is small, ranging from 1 to 7 samples per 

year, making it difficult to verify potential trends. From the available data, the trend shows that 

exceedances remain at 100% until 2002. In 2002, there is a 71.43% exceedance rate, and in 

2003 the exceedance is 50%. 

TABLE 5: S UMMAR Y OF NEWCASTLE CREEK F ECAL COLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR N1 MINIMUM MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 5,000 5,000 5,000 5,000 1 100

1997 1 5,000 5,000 5,000 5,000 1 100

1998 3 1,300 2,400 2,400 2,033 3 100

1999 4 800 2,400 1,400 1,500 4 100

2000 4 800 10,100 3,250 4,350 4 100

2001 4 532 7,000 2,350 3,058 4 100

2002 7 260 11,000 2,200 3,479 5 71.43

2003 2 140 800 470 470 1 50 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.2 HOGAN CREEK

Table 6 summarizes the fecal coliform data results in Hogan Creek, by year, for the verified 

period. The highest exceedances are observed during the summer (100%) and fall (83.33%). 

The yearly data show that the median fecal coliform concentration fluctuates over the verified 

period of record, with a high percentage of exceedances in most years. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

15

TABLE 6: S UMMAR Y OF HOGAN CREEK F ECAL C OLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 1,300 1,300 1,300 1,300 1 100

1997 1 800 800 800 800 1 100

1998 3 2,600 11,000 8,000 7,200 3 100

1999 4 2,600 17,000 8,500 9,150 4 100

2000 4 300 9,000 530 2,590 3 75

2001 5 100 7,100 202 2,514 2 40

2002 4 96 24,000 3,020 7,534 3 75 1

Number of samples

2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.3 B UTCHE R P E N CREEK

Table 7 summarizes the fecal coliform data results for Butcher Pen Creek, by year, for the 

verified period. There is a 95% overall exceedance rate for fecal coliform, with a 100% 

exceedance rate for all months except April, which has a 66.67% exceedance rate. In addition, 

there is a 100% exceedance rate for all years except 1999, which has a 75% exceedance rate. 

While the median concentration of fecal coliform decreases over the verified period, the levels 

remain consistently above fecal coliform standards.

TABLE 7: S UMMAR Y OF B UTCHE R PE N CREEK F ECAL COLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR* N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 % EXCEEDANCES

1996 1 800 800 800 800 1 100

1998 4 500 90,000 5,368 25,309 4 100

1999 4 270 3,000 2,350 1,993 3 75

2000 4 1,300 4,800 2,050 2,550 4 100

2001 4 500 6,000 1,263 2,256 4 100

2002 4 460 5,200 1,180 2,005 4 100

* Table represents years for which data exist. 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.4 MILLE R CREEK

Table 8 summarizes the fecal coliform data results for Miller Creek, by year, for the verified 

period. There is a 75% overall exceedance rate during the verified period. There are 20 

samples, ranging from 88 to 200,000 counts/100mL, with 15 samples exceeding the criterion for 

fecal coliform. When the data are examined by season, the summer and fall seasons 

demonstrate the highest percentages of exceedances. For the yearly data, exceedance rates 

start declining in the last 3 years of the verified period; however, sample size is small, ranging 

from 1 to 4 samples per year, making it difficult to verify potential trends. From the available 

data, the trend shows exceedances dip down to 75% in 1999, return to 100% in 2000, and then 

gradually drop to 0% by 2003. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

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TABLE 8: S UMMAR Y OF MILLE R CREEK F ECAL C OLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR* N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 5,000 5,000 5,000 5,000 1 100

1997 0 - - - - - - 

1998 3 500 30,000 16,000 15,500 3 100

1999 4 270 5,000 1,050 1,843 3 75

2000 4 800 2,400 950 1,275 4 100

2001 4 300 200,000 706 50,428 3 75

2002 3 88 6,900 280 2,423 1 33.33

2003 1 112 112 112 112 0 0 

*Table represents years for which data exist. “–“ means no data are available. 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.5 MIR AMAR CREEK

Table 9 summarizes the fecal coliform results for Miramar Creek, by year, during the verified

period. There is a 95.7% overall exceedance rate for fecal coliform. Exceedances occur in all 

seasons which, except for spring (April through June), have a 100% exceedance rate. The 

spring season has an 80% exceedance rate. The yearly data show 100% exceedances in all 

years, except 2002, which has a 90% exceedance rate. The highest counts occur in 1998, 

1999, and 2000. The fecal coliform concentration remains well above standards during the 

verified period. 

TABLE 9: S UMMAR Y OF MIR AMAR CREEK F ECAL C OLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 5,000 5,000 5,000 5,000 1 100

1998 3 8,000 16,000 9,000 11,000 3 100

1999 4 2,600 16,000 15,000 12,150 4 100

2000 4 2,000 16,000 6,700 7,850 4 100

2001 4 500 4,000 2,350 2,300 4 100

2002 10 384 7,000 1,565 2,406 9 90 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.6 B IG F IS HWE IR CREEK

Table 10 summarizes the results in Big Fishweir Creek, by year, for the verified period. There is 

an 83.7% overall exceedance rate for fecal coliform. There are 64 samples collected in the 

verified period, ranging from 10 to 160,000 counts/100mL; 53 of the 64 observations exceed the 

state criterion of 400 counts/100mL. Seasonally, exceedances occur in all seasons; 

exceedances are highest in the summer and fall, with the lowest percentage of exceedances 

occurring in the spring. When considering the data by year, all years have at least a 62% 

exceedance rate.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

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TABLE 10: S UMMAR Y OF B IG FIS HWE IR CREEK F ECAL COLIFOR M DATA BY YEAR 

FOR T HE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003) 

YEAR N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 2 1,300 2,400 1,850 1,850 2 100

1998 6 40 90,000 5,350 25,173 4 66.67

1999 8 330 5,000 3,000 3,041 7 87.5

2000 8 140 160,000 500 22,293 5 62.5

2001 12 10 160,000 2,500 16,450 10 83.33

2002 22 264 17,200 927 3,607 19 86.36

2003 6 700 5,000 3,000 3,183 6 100 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.7 DEER CREEK

Table 11 summarizes the fecal coliform results for Deer Creek, by year, during the verified 

period. There is a 71% overall exceedance rate for fecal coliform. There are 50 samples, 

ranging from 80 to 200,000 counts/100mL, with 41 samples exceeding the criterion for fecal 

coliform. Summer has the highest exceedance rate, and fall and spring have the lowest 

percentage of exceedances. Over the years, exceedance rates have generally fallen. In 1996, 

1998, and 1999, 100% exceedance rates are observed, while 2003 only has an exceedance 

rate of 20%. 

TABLE 11: S UMMAR Y OF DEER CREEK F ECAL COLIFOR M DATA BY YEAR FOR 

THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR* N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 8,000 8,000 8,000 8,000 1 100

1997 - - - - - - - 

1998 6 300 24,000 7,550 13,513 6 100

1999 8 140 16,000 7,550 13,513 8 100

2000 10 80 160,000 5,650 29,148 8 80

2001 9 300 13,000 7,100 6,711 8 88.89

2002 11 130 200,000 1,700 20,494 9 81.82

2003 5 100 830 230 334 1 20

*Table represents years for which data exist. “–“ means no data are available. 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.8 TE R R APIN CREEK

Table 12 summarizes the fecal coliform results for Terrapin Creek, by year, during the verified 

period. There is a 65.52% overall exceedance rate. There are 29 samples, ranging from 30 to 

160,000 counts/100mL, with 19 samples exceeding the criterion for fecal coliform. When 

aggregating data by season, winter, summer, and fall demonstrate the highest percentages of 

exceedances (all above 66%), and spring has the lowest (40%). Exceedance rates appear to 

be relatively uniform throughout the verified period. Sample size is small, ranging from 1 to 11

samples per year, making it difficult to verify potential trends. However, from the data that are 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

18

available, exceedances remain between 50 and 75%, except for 1996, which has an 

exceedance rate of 100%, based on only 1 sample. 

TABLE 12: S UMMARY OF TE R R APIN CREEK F ECAL COLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR* N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 1,300 1,300 1,300 1,300 1 100

1997 - - - - - - - 

1998 3 300 24,000 1,700 8,667 2 66.67

1999 4 140 16,000 1,000 4,535 3 75

2000 4 40 160,000 7,550 43,785 3 75

2001 4 30 1,000 356 436 2 50

2002 11 30 66,600 1,367 6,983 7 63.64

2003 2 70 580 325 325 1 50

*Table represents years for which data exist. “–“ means no data are available. 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.9 GOODB YS CREEK

Table 13 summarizes the fecal coliform results for Goodbys Creek, by year, during the verified 

period. Summer has the highest percent exceedance rate (60%), and fall has the lowest 

(28.57%). Exceedances occur in all years, except 1996. While a decrease in the median levels 

of fecal coliform is observed, the concentrations from 1998–2001 exceed standards, with 

maximum counts ranging from 3,000 to 35,000 counts/100mL. 

TABLE 13: S UMMAR Y OF GOODB YS CREEK F ECAL COLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 % EXCEEDANCES

1996 1 300 300 300 300 0 0 

1998 3 130 3,000 3,000 2,043 2 67

1999 8 63 35,000 470 6,900 4 50

2000 4 70 9,000 835 2,685 2 50

2001 4 170 3,000 400 993 2 50

2002 7 160 720 250 297 1 14 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 

2.1.10 OPE N CREEK

Table 14 summarizes the fecal coliform results for Open Creek, by year, during the verified 

period. There is a 57.1% overall exceedance rate for fecal coliform. There are 21 samples, 

ranging from 70 to 5,000 counts/100mL. When examining the data by season, the greatest 

percentage of exceedances occurs in the spring and winter, with the lowest percentage in the 

summer. By year, there appears to be no general trend in exceedances. However, sample size 

is very small, ranging from 1 to 5, making it difficult to identify potential trends.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

19

TABLE 14: S UMMAR Y OF OPE N CREEK F ECAL COLIFOR M DATA BY YEAR 

FOR THE VE R IFIE D PE R IOD (J ANUAR Y 1, 1996–J UNE 30, 2003)

YEAR* N1 MINIMUM2 MAXIMUM2 MEDIAN2 MEAN2 NUMBER OF EXCEEDANCES3 %EXCEEDANCES

1996 1 500 500 500 500 1 100

1998 3 230 700 500 477 2 66.7

1999 4 70 500 335 310 2 50

2000 4 1,200 5,000 1,650 2,375 4 100

2001 4 130 700 455 435 2 50

2002 5 140 688 180 274 1 20

*Table represents years for which data exist. 1

Number of samples. 2

Coliform counts are #/100mL. 3

Exceedances represent values above 400 counts/100mL. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

20

CHAPTER 3: POLLUTANT S OUR CE S AND ANTICIPATE D OUTCOME S

3.1 POLLUTANT S OUR CES C OMMON TO THE T R IB UTAR IE S

The following sections summarize the general types of sources associated with the fecal 

coliform impairments in the tributaries. Additional details on these sources, specific for each 

tributary, can be found in Chapter 6 through Chapter 15 and the supporting documents 

available from FDEP. 

3.1.1 S ANITAR Y S EWER S YSTEMS

A centralized sewer system (i.e., public and privately owned sewer infrastructure) may 

contribute fecal coliform pollution to the environment through the slow and continuous leakage 

of sanitary sewer infrastructure, treatment failure in wastewater treatment plants, and SSOs. 

Common causes of SSOs may include the following: 

1. Heavy rainfall resulting in the inflow of stormwater or infiltration of ground water 

into sewer lines; 

2. Breaks or blockages in sewer lines due to aging infrastructure or the accumulation 

of grease; and 

3. Malfunctioning equipment and pumps (possibly due to power failures). 

It is not clear how much leaking sewer infrastructure below ground may contribute to surface 

water contamination. Although there is evidence that in some soils, bacteria do not readily 

transport to nearby surface waters, there are no local data for bacterial transport in the soil 

types and ground water conditions of the LSJR Basin (PBS&J, March 2008). 

Underground sanitary sewer pipes can leak. When ground water levels are low or the pressure 

in the sanitary sewer pipes is greater than the surrounding pressure of ground water, 

wastewater in the sanitary sewer pipes can exfiltrate out through the leaks in the pipes into the 

surrounding ground water and potentially migrate to adjacent surface waters. When ground

water levels are high, ground water surrounding the pipes can infiltrate into the leaks in the 

sanitary sewer pipes. Surface water associated with flooding also can inflow into the sanitary 

sewer pipes when stormwater pipes are connected illegally to the sanitary sewer pipes. In 

addition, surface water and/or ground water can inflow into the sanitary sewer pipes when the 

caps are off sanitary sewer laterals or when there are holes in the sanitary sewer pipes. 

A study in California (Brown and Caldwell, 2005) confirmed that high water tables do not usually 

result in the exfiltration of sewage from pipes or couplings into ground water. Rather, as 

indicated above, ground water is more likely to infiltrate into the collection system. Some 

studies suggest that the transport of sewage and fecal coliform bacteria into ground water 

depends on many factors, with one of the largest being the difference in hydraulic head between 

the sewage and the ground water table. According to a recent U.S. Environmental Protection 

Agency (EPA) study, “The occurrence of exfiltration is limited to those areas where sewer 

elevations lie above the ground water table. Since ground water elevations near surface water 

bodies are typically near the ground surface, sewers near surface water bodies generally are 

below the ground water table, and infiltration (rather than exfiltration) will dominate the mode of 

sewer leakage in these areas (Amick and Burgess, 2003).” It is important to note that the 

majority of the Jacksonville area has a relatively high ground water table, and therefore 

infiltration may be the primary form of sewer leakage in many areas. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

21

The sewer system serves the majority of the watershed (more than 50%) in a number of WBIDs, 

including Newcastle Creek, Hogan Creek, Butcher Pen Creek, Miller Creek, Big Fishweir Creek, 

Deer Creek, Goodbys Creek, and Open Creek. Therefore, it is possible that the sewer system 

and the associated infrastructure contribute to the impairments in these areas, especially where 

this infrastructure crosses or is located near the creeks. A number of these tributaries have had 

SSOs with the potential to impact surface waters. They include Newcastle Creek, Hogan

Creek, Butcher Pen Creek, Big Fishweir Creek, Deer Creek, Goodbys Creek, and Open Creek. 

3.1.2 ONS ITE S EWAGE T R E ATME NT AND DIS POS AL S YS TE MS

OSTDS consist of a septic tank and a subsurface wastewater infiltration system, or drainfield, 

where most of the treatment occurs in the soil above the water table. The drainfield and 

underlying soils are the most critical components of septic systems for the treatment of 

wastewater. Under Subsection 64E-6.002(23), F.A.C., a failing septic system is one that is not 

functioning in a sanitary manner and that may result in the transport of untreated or partially 

treated wastewater to surface waters. 

OSTDS failure can be due to a number of causes, including unsuitable soil conditions, flooding, 

improper design and installation, or inadequate maintenance practices. Improperly functioning 

septic systems are recognized as a significant contributor of pollutants, including microbiological 

pathogens (Nicosia et al., 2001; McDowell et al., 2005). These failing systems may result in 

obvious sanitary hazards, such as ponding on the ground and runoff into surface waters or 

stormwater collection systems, and less conspicuous nuisances, including the leaching of 

untreated wastewater into ground water (PBS&J, March 2008). As noted above, the 

Jacksonville area has a relatively high ground water table, which could potentially transport fecal 

coliform from septic tanks through shallow ground water into the creeks. 

The majority of households in both Miramar Creek and Terrapin Creek are on septic tanks. 

OSTDS in areas near the creeks are likely contributing to the fecal coliform concentrations and 

the impairment in these waterbodies. Septic tank failure areas, as determined by DCHD, are 

located in Newcastle Creek, Butcher Pen Creek, Miller Creek, Miramar Creek, Big Fishweir 

Creek, and Goodbys Creek. DCHD has issued repair permits for septic tanks in Newcastle 

Creek, Butcher Pen Creek, Miller Creek, Miramar Creek, Big Fishweir Creek, Terrapin Creek, 

Goodbys Creek, and Open Creek. The locations of the repair permits closely correspond with 

the failure areas in Miller Creek, Miramar Creek, Big Fishweir Creek, and Goodbys Creek.

3.1.3 S TOR MWATE R

The term “nonpoint sources” is used to describe intermittent, rainfall-driven, diffuse sources of 

pollution (e.g., stormwater runoff) associated with everyday human activities, including runoff 

from urban land uses, agriculture, silviculture, and mining; discharges from failing septic 

systems; and atmospheric deposition. Additional nonpoint sources may include areas with 

concentrated wildlife (e.g., bird rookeries) or domestic animals (e.g., dog parks). Certain land 

uses are likely to contribute fecal coliform loading to surface waters, including agricultural 

activities and marinas. Runoff from agricultural areas containing animals (e.g., livestock 

grazing, dairies, cattle farms, or concentrated animal feeding operations [CAFOs]) can 

contribute a significant amount of fecal contamination to surface waters. Marinas that provide 

onsite waste disposal areas (flush-out pumps) can leak or overflow and can dump raw sewage 

directly into a waterbody. Marinas that do not provide onsite waste disposal areas can be much 

larger sources of contamination if boaters discharge their waste directly into waterbodies. 

Sediments in streambeds can allow stormwater conveyance systems, especially those 

underground, to act as reservoirs for contamination as bacteria persist and possibly regrow in 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

22

sediment environments. These sediment bacteria sources can periodically result in the influx of 

high levels of bacteria to receiving waters (Anderson et al., 2005; Brownell et al., 2007). 

Bacteria from sediments could be an issue in areas where the majority of the watershed (more 

than 50%) is served by stormwater treatment areas, such as Hogan Creek, Big Fishweir Creek, 

Deer Creek, Terrapin Creek, and Open Creek. 

Illicit connections to a stormwater system can also contribute to fecal coliform loading. COJ and 

FDOT have a program to identify potential illicit connections (PICs) to MS4 conveyances and 

tributaries. As part of this program, they have verified and removed illicit connections in all the 

WBIDs discussed in this BMAP, except for Terrapin Creek. Open PIC cases are pending in 

several WBIDs, and the results of these investigations will be reported in the first annual BMAP 

progress report. The Walk the WBIDs event also uncovered additional PICs. COJ is currently 

following up on these findings and will report the status of any identified PICs in the first annual 

BMAP progress report. 

3.2 ANTICIP ATE D OUTCOME S

Although the relationship between fecal coliform loading and sources is not fully understood for 

these WBIDs, the implementation of the projects, programs, and additional source assessments 

in this BMAP should improve water quality in the impaired tributaries. The following outcomes

are expected from BMAP implementation: 

• Improved water quality trends in the tributaries of the LSJR that will also help 

improve water quality in the main stem of the river;

• Achievement of TMDLs;

• Decreased loading of the target pollutant (fecal coliform bacteria);

• Increased coordination between state and local governments and within 

divisions of local governments in problem solving for surface water quality

restoration;

• Securing additional state and local funding for water quality restoration;

• Improved communication and cooperation among local agencies responding 

to restoration needs; 

• Determination of effective projects through the stakeholder decision-making 

and priority-setting processes;

• Enhanced public awareness of pollutant sources, pollutant impacts on water 

quality, and corresponding corrective actions; and

• Enhanced understanding of basin hydrology, water quality, and pollutant 

sources.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

23

CHAPTER 4: AS S E S S ING P R OGR E S S AND MAK ING C HANGES

Successful BMAP implementation requires commitment and follow-up. In the Commitment to 

Plan Implementation (see Chapter 5), BWG members have expressed their intention to carry 

out the plan, monitor its effect, and continue to coordinate within and across jurisdictions to 

achieve water quality targets. The FWRA requires that an assessment be conducted every five 

years to determine whether there is reasonable progress in implementing the BMAP and 

achieving pollutant load reductions. This chapter contains the water quality monitoring 

component sufficient to make this evaluation. 

4.1 T R ACK ING IMPLE ME NTATION

FDEP will work with the stakeholders to organize the monitoring data and track project 

implementation. This information will be presented to the BWG in an annual report. The BWG

has agreed to meet at least every 12 months after the adoption of the BMAP to follow up on 

plan implementation, share new information, and continue to coordinate on TMDL-related 

issues. The following types of activities may occur at annual meetings: 

• Implementation Data and Reporting

o Collect project implementation information from the stakeholders and MS4 

permit reporting and compare with the BMAP schedule. Table 15 provides a 

sample annual reporting form on BMAP project implementation (to be 

completed by the entities).

o Discuss the data collection process, including any concerns and possible 

improvements to the process.

o Review the monitoring plan implementation, as detailed in Section 4.2. 

• Sharing New Information

o Report on results from water quality monitoring and trend information.

o Provide updates on new projects and programs in the basin that will help 

reduce fecal coliform loading.

o Identify and review new scientific developments on addressing fecal coliform 

contamination and incorporate any new information into annual progress 

reports. 

o Discuss new sampling technologies that will improve source identification.

• Coordinating TMDL-Related Issues

o Provide updates from FDEP on the basin cycle and activities related to any 

impairments, TMDLs, and BMAP.

o Obtain reports from other basins where tools or other information may be 

applicable to the LSJR tributaries’ TMDLs.

Covering all of these topics is not required for the annual meetings of the BWG, but they provide 

examples of the types of information that should be considered for the agenda to assist with 

BMAP implementation and improve coordination among the agencies and stakeholders.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

24

TABLE 15: P R OPOS E D B MAP ANNUAL R E P OR TING FORM

2009 Tributaries of the LSJR BMAP

___YEAR__ ANNUAL IMPLEMENTATION REPORT

REPORTING ENTITY: ___________________________________________________ DATE: __________________

Note: Relevant MS4 activities, whether contained in the BMAP or not, may be included in this report.

IMPLEMENTATION STATUS – BMAP MANAGEMENT STRATEGIES

1 BMAP

PROJECT #

AFFECTED

AREA 

(WBID)

2 BRIEF

DESCRIPTION

3 PROJECTED

START/ 

END

4 PROJECT/ 

ACTIVITY STATUS

5 PROJECT

MONITORING RESULTS 6 COMMENTS

Shade if

also an MS4 

activity

NEW MANAGEMENT STRATEGIES

1 BMAP

PROJECT #

AFFECTED

AREA 

(WBID)

2 BRIEF

DESCRIPTION

3 PROJECTED

START/ 

END

4 PROJECT/ 

ACTIVITY STATUS

5 PROJECT

MONITORING RESULTS 6 COMMENTS

Shade if

also an MS4 

activity
Final Lower St. Johns River Basin Management Action Plan – December 2009 

25

Directions for BMAP Annual Reporting Format: 

1 BMAP Projects: This includes projects and other management strategies. Use the 

project number assigned in the BMAP Activities Tables (e.g., COJ-1). Please include all 

management strategies for which you have lead responsibility in the BMAP, regardless of 

their status. New Management Strategies: Include new projects/activities that are not 

included in the BMAP in the New Management Strategies table. Create a project number 

for new management strategies by using the prefix, then -N# (e.g., COJ-N1). If a 

management action listed in either table is part of your MS4, please shade the project 

number box in grey. 

2 Include a brief description of the management action being reported (e.g., street sweeping

removing gross debris on all streets with "L curbs" – 5 miles performed each month). 

3 If applicable, include the start and end dates for the management action. If not applicable, 

put “N/A” or, if it is a continuous activity, put “Continuous” and indicate how often the activity 

takes place (e.g., for street sweeping).

4 Clearly summarize the status of the management action, in a way that makes sense for 

the item listed. For instance, for educational activities, list pertinent publications, events, 

etc., including name and/or topic for each. Include specific or general time frames (e.g., 

two public workshops on pet waste disposal in March 2009). Also, describe any significant 

changes to the management action that have taken place. 

5 As applicable: If monitoring is required as part of a management action (e.g., in a costshare situation), or is conducted voluntarily (e.g., as part of an effort to collect information 

on BMAP effectiveness), include the monitoring results to date, as practicable.

6 Include comments on any implementation obstacles, including weather, funding, technical 

difficulties, etc. Identify needs for assistance from the BWG as a whole, or from individual 

entities represented on the BWG. Include any other comments you consider important.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

26

4.2 WATER QUALITY MONITOR ING

4.2.1 WATER QUALITY MONITOR ING OB J E CTIVE S

Focused objectives are critical for a monitoring strategy to provide the information needed to 

evaluate implementation success. The primary and secondary objectives of the monitoring 

strategy for the tributaries are described below. These objectives will be used to evaluate the 

success of the BMAP, help interpret the data collected, and provide information for potential 

future refinements of the BMAP.

Primary Objective

• Identify additional sources in the 10 tributaries to guide the implementation of 

future actions to reduce fecal coliform.

Secondary Objective

• Track trends in fecal coliform colony counts in the tributaries through ambient 

monitoring to determine if reductions are occurring with the implementation of 

BMAP actions.

4.2.2 WATER QUALITY INDIC ATOR S

The water quality indicators listed in Table 16 will be sampled to achieve the monitoring plan 

objectives. These parameters will be analyzed to determine if there is a correlation with the 

observed fecal coliform concentrations. In addition, descriptions of the field conditions are 

important because factors outside of water quality could affect the observed bacterial colony 

counts.

TABLE 16: WATER QUALITY INDICATOR S AND FIE LD P AR AME TE R S

WATER QUALITY INDIC ATOR S

Fecal coliform (colony-forming units per 100 milliliters [cfu/100mL]) 

Conductivity (micromhos per centimeter [umho/cm]) 

Dissolved Oxygen (milligrams per liter [mg/L]) 

Dissolved Oxygen Saturation (%)

pH

Salinity (parts per thousand [ppt]) 

Temperature (°C) 

Turbidity (Nephelometric Turbidity Units [NTU]) 

F IE LD C ONDITIONS

Air Temperature (°C) 

Cloud Cover

Rainfall

Tide Stage

Canopy Cover

Water Flow Condition

Wind
Final Lower St. Johns River Basin Management Action Plan – December 2009 

27

4.2.3 MONITOR ING NETWORK

The monitoring network for this plan builds on existing COJ and FDEP sampling programs and 

stations in the basin. These entities will be responsible for conducting the sampling in their 

respective WBIDs. JEA is committed to processing up to 32 samples per month through the 

JEA laboratory for COJ and FDEP. Participation by the JEA laboratory will reduce the analysis 

costs associated with the monitoring plan for the other entities. 

The specific stations in the monitoring network and responsibilities for sampling are described 

below for each WBID. Stations listed as trend stations will be sampled quarterly, and monitoring 

efforts will continue at existing locations. Stations shown as source assessment will be sampled 

monthly, with additional sampling occurring as needed to follow up on high fecal coliform 

counts. This additional sampling will follow the process outlined in the TAT Manual (PBS&J, 

2006). While some of the source assessment stations are existing sampling locations, stations 

were added to meet the objectives of the monitoring plan and to better identify potential sources 

in each WBID. The BMAP monitoring plan, as outlined below, will be initiated once the BMAP is 

adopted.

In addition to this monitoring plan, several of the entities conduct other monitoring in the basin

that will provide additional information about water quality in the tributaries. FDEP conducts an 

intensive sampling event every 5 years as part of the TMDL process. This event generally 

involves collecting at least 20 samples over 4 seasons. To include the data in the IWR run to 

assess impaired waters, the samples must be collected with at least a 200-meter separation 

between stations, with 4 days between samples collected in the same location. COJ also 

collects quarterly samples in most of the tributaries as part of its routine monitoring program. 

COJ uses this program to meet its NPDES permit requirements. 

4.2.3.1 Newcastle Creek Monitoring Network

COJ will be responsible for monitoring in Newcastle Creek. Table 17 lists the stations that will 

be sampled. 

TABLE 17: MONITOR ING S TATIONS IN NEWCASTLE C REEK

MONITOR ING S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTITY

21FLJXWQARL6 Trend Quarterly Fort Caroline Hills Drive COJ

21FLJXWQARL5A Source assessment Monthly Berrywood Lane COJ

21FLJXWQARL5B Source assessment Monthly Near mouth of creek COJ

4.2.3.2 Hogan Creek Monitoring Network

COJ will be responsible for monitoring in Hogan Creek, which is one of its WBIDs as part of the 

2009 TAT Sampling Plan. Table 18 lists the stations that will be sampled. 

TABLE 18: MONITOR ING S TATIONS IN HOGAN CREEK

MONITOR ING 

S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTITY

21FLJXWQHC3 Trend Quarterly First Street COJ

21FLJXWQHC4 Source assessment Monthly 10th Street COJ

21FLJXWQHC1A Source assessment Monthly Broad Street COJ

21FLJXWQHC2A Source assessment Monthly Hubbard Street 

(Confederate Park) COJ
Final Lower St. Johns River Basin Management Action Plan – December 2009 

28

4.2.3.3 Butcher Pen Creek Monitoring Network

FDEP will be responsible for monitoring in Butcher Pen Creek. Table 19 lists the stations that 

will be sampled. 

TABLE 19: MONITOR ING S TATIONS IN B UTCHE R PEN CREEK

MONITOR ING S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTITY

21FLA 20030082 Trend Quarterly Confederate Point Road FDEP

21FLA 20030760 Source assessment Monthly Wesconnett Boulevard FDEP

21FLA 20030955 Source assessment Monthly Ducheneau Drive FDEP

21FLA 20030829 Source assessment Monthly Jammes Road FDEP

4.2.3.4 Miller Creek Monitoring Network

COJ will be responsible for monitoring in Miller Creek, which is one of its WBIDs as part of the 

2009 TAT Sampling Plan. Table 20 lists the stations that will be sampled. 

TABLE 20: MONITOR ING S TATIONS IN MILLE R CREEK

MONITORING STATION STATION TYPE FREQUENCY LOCATION

RESPONSIBLE 

ENTITY

21FLJXWQSS1 Trend Quarterly Atlantic Boulevard COJ

21FLJXWQSS2A Source assessment Monthly Stillman Street COJ

21FLJXWQSS21 Source assessment Monthly Camden Avenue COJ

21FLJXWQSS23 Source assessment Monthly Mayfair Road COJ

4.2.3.5 Miramar Creek Monitoring Network

COJ will be responsible for monitoring in Miramar Creek, which is one of its WBIDs as part of 

the 2009 TAT Sampling Plan. Table 21 lists the stations that will be sampled. 

TABLE 21: MONITOR ING S TATIONS IN MIR AMAR CREEK

MONITORING STATION STATION TYPE FREQUENCY LOCATION

RESPONSIBLE 

ENTITY

21FLJXWQSS4 Trend Quarterly San Jose Boulevard COJ

21FLJXWQSS5A Source assessment Monthly Orlando Circle West COJ

21FLJXWQSS505 Source assessment Monthly Adjacent to JEA Lift Station 

#S505 COJ

4.2.3.6 Big Fishweir Monitoring Network

FDEP will be responsible for monitoring in Big Fishweir Creek, which is one of its WBIDs as part 

of the 2009 TAT Sampling Plan. Table 22 lists the stations that will be sampled. 

TABLE 22: MONITOR ING S TATIONS IN B IG FIS HWE IR CREEK

MONITORING STATION STATION TYPE FREQUENCY LOCATION

RESPONSIBLE 

ENTITY

21FLA 20030139 Trend Quarterly Hershel Street FDEP

21FLA 20030952 Source assessment Monthly Greenwood Avenue 

(Little Fishweir) FDEP

21FLA 20030951 Source assessment Monthly Park Street – East Crossing FDEP

21FLA 20030953 Source assessment Monthly Little Fishweir Creek at Oak FDEP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

29

4.2.3.7 Deer Creek Monitoring Network

COJ will be responsible for monitoring in Deer Creek. Table 23 lists the stations that will be 

sampled. 

TABLE 23: MONITOR ING S TATIONS IN DEER CREEK

MONITOR ING S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTIT Y

21FLJXWQDR1 Trend Quarterly Talleyrand Avenue COJ

21FLJXWQDR2 Source assessment Monthly Haines Street COJ

21FLJXWQDR3 Source assessment Monthly Midstream between DR1 

and DR2 COJ

21FLJXWQDR2S Source assessment Monthly

Southwest branch, just 

downstream of confluence of 

southwest branch and main 

channel

COJ

4.2.3.8 Terrapin Creek Monitoring Network

FDEP will be responsible for monitoring in Terrapin Creek. Table 24 lists the stations that will 

be sampled. 

TABLE 24: MONITOR ING S TATIONS IN TE R R APIN C REEK

MONITOR ING S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTITY

21FLA 20030654 Trend Quarterly Alta Drive FDEP

21FLA 20030653 Source assessment Monthly Faye Road FDEP

21FLA 20030490 Source assessment Monthly Terrapin Creek at Blasius Road FDEP

4.2.3.9 Goodbys Creek Monitoring Network

FDEP will be responsible for monitoring in Goodbys Creek. Table 25 lists the stations that will 

be sampled. 

TABLE 25: MONITOR ING S TATIONS IN GOODB YS CREEK

MONITOR ING S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTITY

21FLA 20030594 Trend Quarterly Sanchez Road FDEP

21FLA 20030518 Trend Quarterly State Road (S.R.) 13 FDEP

21FLA 20030891 Source assessment Monthly Goodbys Creek above west 

branch at San Clerc FDEP

21FLA 20030889 Source assessment Monthly Goodbys Creek at Old Kings 

Road FDEP

21FLA 20030538 Source assessment Monthly West branch Goodbys Creek at 

San Clerc Road FDEP

21FLA 20030537 Source assessment Monthly Goodbys Creek at Plaza Gate 

Road FDEP

21FLA 20030599 Source assessment Monthly West branch Goodbys Creek at 

Camp Tommyhawk FDEP

4.2.3.10 Open Creek Monitoring Network

FDEP will be responsible for monitoring in Open Creek. Table 26 lists the stations that will be 

sampled. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

30

TABLE 26: MONITOR ING S TATIONS IN OPE N CREEK

MONITOR ING S TATION S TATION T YPE F R E QUE NCY L OCATION

R E S PONS IB LE 

E NTITY

21FLA 20030695 Trend Quarterly San Pablo Road FDEP

21FLA 20030949 Source assessment Monthly Cross Water Blvd 

(northwestern branch) FDEP

21FLA 20030848 Source assessment Monthly Northwest tributary to Open 

Creek at Hodges Blvd FDEP

21FLA 20030950 Source assessment Monthly Open Creek at powerlines east 

of Danforth Drive FDEP

4.2.4 QUALITY AS S UR ANCE /QUALITY CONTR OL

Through cooperation on TMDL-related data collection, FDEP and stakeholders have 

consistently used similar standard operating procedures (SOPs) for field sampling and lab 

analyses. This consistency will continue into the future to ensure that data can be used not only 

for tracking BMAP progress but also for future TMDL evaluations and other purposes. The 

collection of water quality data will be conducted in a manner consistent with FDEP’s SOPs for 

quality assurance/quality control (QA/QC). The most current version of these procedures can 

be downloaded from www.dep.state.fl.us/labs/qa/sops.htm. All stakeholders contributing data in 

support of the BMAP agree to follow these SOPs.

4.2.5 DATA MANAGE ME NT AND AS S E S S ME NT

Data collected as part of this monitoring plan will need to be tracked, compiled, and analyzed for 

it to be useful in support of the BMAP. The Florida STORET database will serve as the primary 

resource for storing ambient data and providing access for all stakeholders, in accordance with 

Section 62-40.540, F.S. Stakeholders have agreed to upload data to STORET in a timely 

manner, after the appropriate QA/QC checks have been completed. All applicable data 

collected by the entities responsible for monitoring will be uploaded to STORET regularly, but at 

least quarterly. FDEP will be responsible for data storage and retrieval from the STORET 

database.

STORET uploads are only appropriate for data that represent ambient conditions. Data that are 

collected to follow up on fecal coliform water quality exceedances should not be uploaded to 

STORET. The sampling entities will be responsible for submitting this type of data to FDEP in 

the TAT spreadsheet each month.

Only data that are uploaded to STORET or submitted to FDEP as follow-up data will be utilized 

in the WBID ranking process and water quality analyses. It is important that each sampling 

entity follow these procedures to ensure that the most current data are available for future 

analyses of the impairments and water quality trends in the tributaries. 

4.3 ONGOING AS S E S S ME NTS IN THE T R IB UTAR IE S

This BMAP provides for phased implementation under Paragraph 403.067(7)(a)1, F.S. The 

management actions and adaptive management approach described in the BMAP will address 

fecal coliform bacteria reductions, and the process will continue until the TMDL is attained. The 

phased BMAP approach allows for the implementation of projects designed to achieve

incremental reductions, while simultaneously implementing source assessment, monitoring, and

conducting studies to understand better water quality dynamics (sources and response

variables) in each impaired waterbody. During subsequent five-year management cycles, 

stakeholders will evaluate progress and make adjustments, as needed, to meet the TMDLs.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

31

Additional assessments of the tributaries are currently ongoing. FDEP has initiated a study on 

septic tanks in the Jacksonville area in an effort to assess fecal coliform and nutrient loadings 

and associated surface and ground water quality impacts from septic tanks. FDEP has also 

contracted with PBS&J to conduct detailed assessments of 11 impaired tributaries. The 

assessments include a Walk the WBIDs effort to conduct a field assessment of the tributaries, 

MST sampling of 10 tributaries, and thermal imaging for 4 WBIDs. As part of this detailed 

assessment, the University of South Florida (USF) is collecting and analyzing sediment samples 

to determine the fecal coliform concentrations in the sediments. This will help improve the 

understanding of bacterial regrowth in sediments and how this loading may contribute to the 

waterbody impairment. Of the 11 WBIDs receiving these additional assessments, this BMAP

discusses the following 4: Miller Creek, Miramar Creek, Hogan Creek, and Big Fishweir Creek. 

Subsequent BMAP updates will include the additional information obtained from these 

assessments. 

MST sampling is currently under way in Miller Creek, Miramar Creek, Big Fishweir Creek, and 

Hogan Creek. Sampling began as a part of Walk the WBIDs and will continue until July 2009. 

This sampling program utilizes fecal coliform samples and MST testing, including a quantitative 

human assay as well as animal assays, to assist in determining if the bacteria sources are 

human or animal, helping to guide corrective actions. The program is designed to have fixed 

and flexible sampling stations, with the flexible stations moved to assist in identifying sources 

associated with high in-stream concentrations. In addition, the TAT will continue to coordinate 

on implementing appropriate measures when sources are discovered.

Thermal imaging is a useful tool for identifying PICs in waterbodies. Often, unpermitted or 

unauthorized discharges come from pipes located underground and underwater, making them 

nearly impossible to locate through field identifications and intensive sampling alone. Thermal 

imagery uses the thermal portion of the light spectrum to identify inputs that are warmer than the 

surrounding water. This may indicate ground water, a stormwater outlet, a failing septic tank, or 

illicit connections as potential sources. The flyover for the thermal imaging occurred the night of 

February 6, 2009, with a presampling event earlier that day and a postsampling event the 

following morning. Of the WBIDs discussed in this BMAP, thermal imagery was completed for

Miramar Creek and Big Fishweir Creek. 

In addition to the field studies discussed above, COJ is considering a review of its septic tank 

ordinance (Chapter 751: Septic Tank Superfund) for potential modifications that could increase 

considerations for water quality impairments and cost-effective sewer expansion, in addition to 

addressing public health concerns. This review could include re-evaluating the criteria used to 

rank the septic tank failure areas to incorporate a greater focus on water quality data and 

potentially increase the sewering requirements in severely impaired watersheds. The 

modification of the ordinance would enable COJ to more accurately identify surface waters that 

are most impacted by failing septic tanks, and to focus its septic tank phase-out efforts to 

reduce fecal coliform and nutrients entering the COJ tributaries. 

4.4 DATA T R ACK ING AND R E POR TING S YS TE MS MODIFICATIONS

The management entities in the basin use multiple recording systems to track and report data 

and activities. These systems must record data generated by multiple divisions within the 

organization. Multiple datasets are managed through a defined process specific to 

the organization’s performance measures. The BMAP process requires stakeholders to provide 

information on their activities in a format that may be outside their respective systems’ current 

processes.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

32

Currently, JEA processes provide multiple data systems for reporting quantitative performance 

measures specific to the organization. Through the BMAP process, JEA is making efforts to 

report this quantitative information spatially. This implementation effort will benefit the 

tributaries by allowing JEA to analyze its system data on a waterbody scale, rather than 

exclusively by the current systemwide analysis. JEA is working towards a GIS-compatible 

electronic reporting system for construction and maintenance activities that will make the 

information more readily available than it currently is through the non-spatial reporting process. 

In addition, JEA is streamlining its database, which will include spatial information on programs 

and activities. As part of the expanded GIS data, first responders will have a more robust 

dataset to help them implement corrective actions. These improvements will aid JEA in 

identifying and correcting sewer infrastructure problems before they result in overflows, reducing

fecal coliform loading in the tributaries.

COJ EQD and PWD each have sections that are responsible for a variety of activities. COJ is 

also changing its data systems to improve the processes associated with these activities. COJ 

is working to consolidate multiple database formats and update the online countywide GIS 

database to include the WBID and other key datasets; this consolidation will provide valuable 

information from the multiple divisions in one location. 

COJ is also modifying the information included in the Citizen Action Response Effort (CARE) 

database, which will aid in reporting activities on a WBID basis. These modifications will 

improve COJ’s ability to identify the problems and activities at the waterbody scale and allow it 

to better recognize patterns and respond to issues. The enhancements to the data systems will 

assist in reducing fecal coliform loading from stormwater, private wastewater infrastructure, illicit 

connections, and failing septic tanks.

4.5 IMPLE ME NTATION MILE S TONE S

The full implementation of the management actions/projects identified in this BMAP is sufficient

to address the fecal coliform bacteria reductions needed to meet the TMDLs. However, to verify 

that adequate progress is being made, a 5-year milestone will be assessed. During the fifth 

year following the BMAP adoption (2014), the water quality data collected as part of the 

monitoring plan (see Section 4.2) and the TAT sampling plan will be evaluated for reductions in 

fecal coliform levels in each WBID, and progress towards the TMDL will be documented. By 

this year, the median value for the fecal coliform counts in the first 4 years of BMAP 

implementation should be 50% of the median in the TMDL, which was based on the verified 

period of record (January 1, 1996, to June 30, 2003) in each WBID. The median in the TMDLs 

was calculated to determine the in-stream percent reduction required from current conditions to 

achieve the fecal coliform standard of 400 counts. 

If this 50% reduction is not achieved by the time of the Year 5 analysis, additional efforts may be 

required. These efforts may include Walk the WBIDs–type assessment actions to identify and 

remove sources and/or additional projects and programs to reduce and prevent sources from 

reaching surface waters. Achieving 50% of the required reductions will be an important 

milestone for this BMAP and will provide an opportunity to improve source assessment and 

management measures going forward. As noted in Table 27, efforts implemented since the 

TMDL verified period have led to improved water quality in most of the WBIDs. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

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TABLE 27: PE R CE NT F ECAL COLIFOR M R E DUCTION S INCE THE TMDL VE R IFIE D PE R IOD 

WB ID

NUMB E R WBID NAME

TMDL ME DIAN

(1996–2003)1 ME DIAN (2004–08)

1 % R E DUC TION

2235 Newcastle Creek 2,500 1,650 34

2252 Hogan Creek 5,000 1,091 78

2322 Butcher Pen Creek 2,400 3,000 -25

2287 Miller Creek 5,000 5,000 0 

2304 Miramar Creek 7,000 3,350 52

2280 Big Fishweir Creek 3,000 1,700 43

2256 Deer Creek 2,765 652 76

2204 Terrapin Creek 1,367 860 37

2326 Goodbys Creek 3,000 600 80

2299 Open Creek 1,000 600 40

Note: The geometric mean was not used because there is not a minimum of 10 samples within a 30-day 

period, which is required under the Florida Administrative Code to calculate a geometric mean. 1

Coliform counts are #/100mL. 

Major components of this BMAP to achieve the milestones are the maintenance, inspection, 

enforcement, and public outreach programs conducted by COJ, DCHD, FDOT, and JEA. Many 

of these existing programs began during the cycle 1 verified period (1996-2004) and are 

ongoing programs. However, since many of these programs have been expanded or enhanced 

since their initiation, or targeted toward specific problems recently identified, these programs are 

expected to increase their effectiveness. Information gathered through the tributaries 

assessment activities, Walk the WBIDs exercise, source assessment sampling, intensive 

monitoring, MST, and thermal imaging have required the entities to adjust their programs to 

respond more efficiently to potential fecal coliform sources. These programs will continue over 

the next 5 years as part of BMAP implementation and continue to be refined based on new data 

and more experience with removing fecal coliform sources.

In addition to these programs, COJ has several capital improvement projects planned in the 

next 5 years including 7 projects under construction and 4 currently in the design phase. These 

11 projects will be completed by 2013. COJ has also committed to removing septic tanks in 

failure areas that are within 300 meters of surface water, as part of their responsibilities in the 

2008 LSJR Main Stem BMAP. As a more specific commitment for reducing coliform sources to 

the 10 tributaries in this BMAP, there are 1,167 septic tanks within 300 meters of surface waters 

that will be prioritized by COJ for removal. COJ must submit a plan to FDEP for removing septic 

tanks within 6 months of completion of the septic tank study (see Section 4.3), or by June 30, 

2011, whichever is earlier. At a minimum, COJ will accomplish a 50% implementation of the 

septic tank phase-out projects by July 31, 2015, with the phase-outs completed by December 

31, 2023. These COJ projects will alleviate flooding, improve drainage systems, and remove 

failing septic tanks, which will reduce the amount of fecal coliform entering the tributaries.

4.6 ADAPTIVE MANAGE ME NT ME AS UR ES

Adaptive management involves setting up a mechanism for making adjustments in the BMAP 

when circumstances change or feedback indicates the need for a more effective strategy. 

Adaptive management measures include the following: 

• Procedures to determine whether additional cooperative strategies are 

needed; 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

34

• Criteria/processes for determining whether and when plan components need 

revision due to changes in costs, environmental impacts, social effects, 

watershed conditions, or other factors; and

• Descriptions of the BWG’s role after BMAP completion.

Key components of adaptive management to share information and expertise are tracking plan 

implementation, monitoring water quality and pollutant loads, and holding periodic meetings. 

BMAP execution will be a long-term process. Some key projects with significant source

reductions will extend beyond the first five years of BMAP cycle. The BWG will track 

implementation efforts and monitor water quality to measure effectiveness and ensure BMAP 

compliance. The BWG will meet at least every 12 months to discuss implementation issues, 

consider new information, and, if the tributaries are not projected to meet the TMDLs, determine 

additional corrective actions. Project implementation as well as program and activity status will 

be collected annually from the participating entities. The BWG will review these reports to 

assess progress towards meeting the BMAP’s goals. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

35

CHAPTER 5: C OMMITME NT TO P LAN IMP L E ME NTATION

Section 403.067(7), F.S., lays out the mechanisms for BMAP implementation (see Appendix 

B). While the BMAP is linked by statute to permitting and other enforcement processes that 

target individual entities, successful implementation mandates that local stakeholders willingly 

and consistently work together to attain adopted TMDLs. This collaboration fosters the sharing 

of ideas, information, and resources. The members of the BWG have demonstrated their 

willingness to confer with and support each other in their efforts. 

The BWG members endorsed the BMAP at their July 9, 2009 meeting on behalf of the entities 

they represent, as these members been actively involved in the BMAP process. In addition to 

this endorsement, FDEP will ask for letters of commitment or resolutions of support for the 

BMAP from the entities to ensure that as staff and board members change over time, the entity 

has a way to show support for the BMAP and the efforts included. This process will occur 

concurrently with BMAP adoption, and the written statements of commitment will be added to 

this chapter of the BMAP as they are received.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

36
Final Lower St. Johns River Basin Management Action Plan – December 2009 

37
Final Lower St. Johns River Basin Management Action Plan – December 2009 

38
Final Lower St. Johns River Basin Management Action Plan – December 2009 

39
Final Lower St. Johns River Basin Management Action Plan – December 2009 

40

CHAPTER 6: NEWCASTLE CREEK (WB ID 2235)

6.1 WB ID DE S CR IPTION

Newcastle Creek, WBID 2235, is located in Duval County, southeast of the LSJR within the 

North Mainstem Planning Unit, as designated by the St. Johns River Water Management District 

(SJRWMD) (

Figure 2). The headwaters of Newcastle Creek presumably comprise stormwater runoff that

surfaces from under a large shopping center parking lot approximately 0.1 miles north of Merrill 

Road, just west of Townsend Boulevard (Figure 3). The entire creek flows northward in a

single channel, except for a branch that flows from the west and merges with the main channel 

just north of Millcrest Place, until it meets the St. Johns River north of Fort Caroline Road. The 

upper reaches of Newcastle Creek, south to Greenfern Lane, are artificially channelized; the 

lower reaches, approximately 0.18 miles north of Fort Caroline Road, are tidally influenced. The 

creek, in its entirety, is characterized by a relatively small water volume with periods of low flow 

throughout (PBS&J, November 2007).

The land use categories in the Newcastle Creek watershed were identified using 2004 land use 

coverage data from SJRWMD (Table 28). The dominant land use (74.2% of total acreage) in 

the watershed, and directly adjacent to the creek itself, is medium-density residential. The next 

2 most abundant land cover categories are (1) commercial/utility/ institutional areas, located 

along Merrill Road to the south, as well as smaller areas along Greenfern Lane and Fort 

Caroline Road, farther downstream (8.9% of total); and (2) high-density residential, found

between Greenfern Lane and Fort Caroline Road, east of Townsend Boulevard (7.2% of total). 

Upland forests and wetland habitat accounted for less than 5% of land use (PBS&J, November 

2007). 

According to the 2000 Census, there are 1,872 households in the watershed, averaging 2.75 

people per household. Areas with the highest population densities are not located directly 

adjacent to the creek (PBS&J, November 2007). In addition, assuming that 40% of households 

have 1 dog (Tyler, 2006), there are 749 dogs in the watershed.

TABLE 28: L AND US E S IN THE NEWCASTLE CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

Medium-Density Residential Total 518.3 74.2

Commercial/Utility/Institutional Total 62.0 8.9

High-Density Residential Total 50.5 7.2

Wetlands Total 25.3 3.6

Transportation Total 16.4 2.4

Low-Density Residential Total 11.9 1.7

Water Total 7.8 1.1

Upland Forest Total 5.8 0.8

TOTAL: 698.1 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

41

FIGUR E 2: LOCATION OF THE NEWCASTLE CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

42

FIGUR E 3: NEWCASTLE C REEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

43

6.2 POTE NTIAL S OUR CE S

6.2.1 POINT S OUR CES

There are no industrial or domestic wastewater facilities, CAFOs, application sites for septic 

residuals, or landfills permitted to discharge to Newcastle Creek. COJ does have an MS4

permit that includes the Newcastle Creek watershed (PBS&J, November 2007). FDOT is a copermittee of the MS4; the cities of Atlantic Beach and Neptune Beach are also co-permittees but 

are not located in the impaired tributaries discussed in this BMAP. 

6.2.2 ILLICIT DIS CHAR GE S

The contamination of the stormwater drainage system and receiving waters by illegal and/or 

improper discharges occurs in a variety of ways. Such discharges may include, but are not 

limited to, sanitary sewer flow, industrial process water, chlorinated pool water, and laundry 

releases. Sanitary sewer flow into the stormwater drainage system may result from improper 

connections to sanitary sewage pipes, leaking and broken sewage pipes, backups and 

overflows of sewage conveyance systems during localized flooding, and the direct connection of 

septic systems to stormwater conveyance systems that short-circuits treatment provided by the 

drainfield.

COJ EQD is continuing a program to identify, confirm, and respond to illicit connection issues in 

Jacksonville (see Appendix E). As part of this effort, the city has confirmed approximately 

1,100 PICs to the MS4 (as of September 2006); most were related to swimming pools and 

washing machines and have been resolved (PBS&J, November 2007). COJ responded and 

investigated 43 PICs in the Newcastle Creek watershed between 1998 and 2006. Of these, 20 

were verified as illicit connections and were removed, while the remaining 23 PICs were 

confirmed as not illicit. 

6.2.3 CE NTR ALIZE D S EWAGE INFR AS TR UCTUR E AND OVERFLOWS

An estimated 1,402 households (approximately 75% of households) are connected to the 

sanitary sewer system in the Newcastle Creek watershed. JEA has reported 9 SSOs within the 

WBID boundaries (Table 29). The estimated volume of spill associated with these overflows

ranged from 50 to 7,000 gallons and averaged 1,608 gallons; however, only 4 SSOs were 

reported to have potentially impacted surface waters (PBS&J, November 2007). 

Although the occurrences of reported SSOs have likely contributed to the overall contamination 

of the watershed, these incidents do not explain the elevated levels detected during the JEA 

Tributary Pollution Assessment Project monitoring events (PBS&J, November 2007). 

6.2.4 OS TDS

The Water and Sewer Expansion Authority (WSEA) estimates that there are approximately 155

OSTDS in the Newcastle Creek watershed. According to DCHD, 18 septic tank repair permits 

were issued in this area. The majority of the permits, and presumably failed septic systems, 

were located in the northeastern portion of the WBID adjacent to Newcastle Creek and the St. 

Johns River. However, it should be noted that Eggleston Heights, a DCHD-designated septic

tank failure area, is located along the watershed’s southern boundary. MST sampling 

performed in 2006 indicated that most of the bacteria sources in Newcastle Creek are human, 

supporting the possibility that OSTDS are contributing sources in this tributary (PBS&J, 

November 2007).
Final Lower St. Johns River Basin Management Action Plan – December 2009 

44

TABLE 29: SSOS R E POR TE D IN THE NEWCASTLE CREEK WATE R S HE D, 2001–07

WB ID NAME 

(NUMB E R ) 

DATE OF 

OVERFLOW

E S TIMATE D VOL UME

OF S PILL 

(GALLONS ) 

P OTE NTIALLY IMP AC TE D 

S UR FACE WATERS

Newcastle Creek (2235) 14-Nov-02 900 No

Newcastle Creek (2235) 25-Dec-02 200 No

Newcastle Creek (2235) 17-Apr-03 800 No

Newcastle Creek (2235) 18-Apr-03 200 No

Newcastle Creek (2235) 21-Jul-03* 7,000 Yes

Newcastle Creek (2235) 20-Nov-04* 100 Yes

Newcastle Creek (2235) 11-Jan-05 50 No

Newcastle Creek (2235) 31-May-05* 5,176 Yes

Newcastle Creek (2235) 16-Sep-06* 50 Yes

*Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters.

6.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Newcastle Creek WBID contains 10 to 25% 

impervious surface. The calculation of runoff potential based on impervious surface and other 

factors, such as soil type and rainfall, demonstrates that the majority of the WBID contains a 

moderate-to-high potential for stormwater runoff, especially near the creek. Exceptions to this 

designation include the following areas with higher probability for runoff: (1) just upstream of the 

headwaters; and (2) midstream between Green Arbor Place and Fort Caroline Road, east of the 

creek (PBS&J, November 2007).

The storm sewer network in the Newcastle Creek watershed includes 5 permitted stormwater 

treatment areas, encompassing approximately 5.64% of the WBID area. Stormwater 

infrastructure in the WBID includes 54 outfalls by receiving water (none classified by FDEP as 

major outfalls) and 357 inlets. Although closed conveyances are common throughout the 

WBID, ditch systems are primarily confined to the southern and far western portions (PBS&J, 

November 2007).

In the absence of any identified major point sources of fecal coliform bacteria, nonpoint sources

are considered potential sources of bacterial loading. Rainfall transports fecal coliform to 

waterbodies via runoff (stormwater, septic failure, and/or wastewater treatment facility [WWTF] 

failure) (Eleria and Vogel, 2005) and is therefore an important element to consider when 

identifying sources of fecal contamination. A correlation between rainfall and bacteria loads 

could not be determined (PBS&J, November 2007).

6.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

6.3.1 JEA ACTIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

6.3.1.1 Completed JEA Projects

There was a repetitive SSO at the lift station located at 3254 Townsend Boulevard caused by 

electrical issues. To address the problem, JEA installed a new electrical control panel in May 

2008. The completion of this project has eliminated the repetitive SSOs at the station and 

removed a reoccurring source of fecal coliform loading in the Newcastle Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

45

6.3.1.2 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

JEA also inspected sections of sewer infrastructure in the upstream portion of the Newcastle 

Creek watershed as part of the TAT-directed reconnaissance. Investigations included the use 

of remote camera equipment to inspect 1,108 feet of pipe as well as dye testing of a nearby 

station; however, no problems were identified. In addition, JEA, as part of the TAT, proposed 

sampling at 1 or 2 locations biweekly for 6 months, and then weekly sampling at 1 site over a 5-

month period. 

JEA reported that monthly sampling at Greenfern Lane commenced in December 2006. This 

ongoing effort yielded 6 sampling events of 26, with values exceeding the maximum criterion of 

400 cfu/100mL with a maximum value of 2,300 cfu/100mL on July 13, 2007 (PBS&J, November 

2007). 

JEA also conducts several types of activities to replace or rehabilitate failing or leaking 

infrastructure. These efforts in the Newcastle Creek watershed include the following: 

• Pipe bursting 40.47% of the watershed to increase carrying capacity; and 

• Cured in place pipe (CIPP) of 2.28% of the pipes in the watershed to install a 

new inner lining. 

JEA has also replaced or repaired components on 3 of the 5 (60%) lift stations in the WBID. In 

addition, JEA conducts activities to help prevent future infrastructure problems. In the 

Newcastle Creek watershed during fiscal year (FY) 2007, using a closed-circuit television 

system, JEA inspected 897 linear feet (LF) of pipe. It also pipe cleaned 3,601 LF of pipe in 

FY07 to avoid blockages. These activities will continue in the future to maintain the sanitary 

sewer system and prevent future problems. Table 30 provides additional information on JEA’s

activities in the Newcastle Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

46

TABLE 30: JEA AC TIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS S TAR T DATE OF P R OJECT

Sewer Line Upgrades

JEA – 1 Pipe Bursting – Increase 

Carrying Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 50,279 $3,900,153 JEA Ongoing FY00

JEA – 2 CIPP – Install New Inner Lining Rehabilitate failing/leaking 

infrastructure

Total footage of CIPP in 

watershed since 2001: 2,834 $148,554 JEA Ongoing FY00

Other Sewer Infrastructure Upgrades

JEA – 3 Manhole Linings Rehabbed Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 4 ARV Inspection and Rehab See Appendix E

0 ARVs replaced within 200 feet 

of tributary (only 1 ARV total in 

watershed)

$481,873* JEA Ongoing Ongoing

JEA – 5 Pump Station SCADA

Upgrades

Retrofit completed in 2004; all 

stations constructed since have 

SCADA installed. See 

Appendix E

Not applicable Unknown JEA Complete Complete

JEA – 6 

Inspect Force Main Discharge 

Manholes, Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 7 Pump Station Class I/II 

Rebuilding

Repair or replace components 

of existing pump stations

Projects in watershed since 

2002: 3 $238,135 JEA Ongoing

Programs To Reduce Sewer Problems

JEA – 8 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing Current FOG Program 

initiated in 2004

JEA – 9 Pipe TV Inspection

Inspect existing infrastructure 

through use of closed-circuit 

television

897 linear feet of pipe inspected

in FY07 $163,099* JEA Ongoing Carried over from city 

operation (1997)

JEA – 10 Pipe Cleaning Clean existing pipes to avoid 

blockages

3,601 linear feet of pipe cleaned

in FY07 $743,054* JEA Ongoing Carried over from city operation (1997)

JEA – 11 CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 12 Manhole Monitoring See Appendix E Not applicable $ 137,526* JEA Ongoing August 2007

JEA – 13 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 14 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 15 Non-Destructive Testing 

Program/Pipe Integrity Testing See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

JEA – 16 Lift Station @ 3254 Townsend 

Blvd.

Upgrade station to address 

multiple SSOs related to 

electrical problems

Installed new electrical control 

panel; work completed in May 

2008

$70,000 JEA Complete Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

47

6.3.2 DCHD ACTIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

6.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E includes a description of 

each of these programs.

Failure and nuisance areas were first identified in 1999–2000. As of July 28, 2008, DCHD 

updated the listing of failure and nuisance areas and corrected the accuracy of the defined 

geographic areas through the re-evaluation process. There is currently 1 designated failure 

area, Eggleston Heights, that extends slightly into the southern portion of the Newcastle Creek 

watershed (0.25% of the failure area is located in the WBID). The ranking of these areas is 

determined using an 8-point criteria system. One of these criteria, sanitary conditions, is based 

on fecal coliform concentrations and is analyzed using the TAT ranking process described in 

Section 1.3.3. Those areas scoring above a total of 56 points across all 8 criteria (a maximum 

of 80 possible points) have been identified as “nuisance areas” (PBS&J, November 2007).

DCHD has implemented the OSTDS Program to address septic tanks as a potential source in 

the watershed. As part of this effort, it has issued 5 new construction permits, 18 repair permits, 

and 1 abandonment permit in the WBID. DCHD also performs a plan review and site evaluation 

for each application received for an OSTDS, whether it is new construction or repair or 

modification to an existing system. In the watershed, DCHD has conducted 24 plan reviews 

and site evaluations. In addition, it has performed 6 investigations in response to complaints 

received. DCHD will continue these activities in the future to reduce and prevent issues related 

to OSTDS. Table 31 lists DCHD’s projects in the Newcastle Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

48

TABLE 31: DCHD ACTIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST 

(1996–2008)

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 1 OSTDS Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 5 new 

construction permits, 18 

repair permits, and 1 

abandonment permit 

issued

$9,760

Florida 

Department 

of Health 

(FDOH) 

Ongoing

DCHD – 2 

Surface Water 

Improvement and 

Management 

(SWIM) Project

Implementation of broadranging septic tank 

ordinance

Approximately 0.25% of 

Eggleston Heights Septic 

Tank Failure Area is in 

WBID

$2,000

FDOH/

LSJR 

SWIM 

Grant

Completed

DCHD – 3 DCHD-Sponsored 

Training Programs

Annual training programs 

held for septic tank 

contractors, certified 

plumbers, maintenance 

entities, and 

environmental health 

professionals

1 to 2 trainings per year 

providing up to 12 contact 

hours

$2,500

FDOH/

LSJR 

SWIM 

Grant

Ongoing

DCHD – 4 

Application/

Plan Review/

Site Evaluations

DCHD performs plan 

review and site 

evaluation for each 

application received for 

OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 24 plan 

reviews and site 

evaluations were

performed in WBID based 

on permitting history

$5,000

FDOH/

LSJR 

SWIM 

Grant

Ongoing

DCHD – 5 Septic Tank Failure 

Area Ranking

Septic tank failure area 

scored and prioritized on 

annual basis

Less than 1 year since 

previous update

Not 

applicable

Not 

applicable Ongoing

DCHD – 6 Complaint 

Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

6 complaint investigations 

were performed in WBID $2,000

FDOH/

LSJR 

SWIM 

Grant

Ongoing

6.3.3 COJ ACTIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

6.3.3.1 Completed COJ Projects

COJ has completed a wet detention pond project on Townsend Road that treats stormwater 

from an area of 151 acres. It also has completed a drainage system rehabilitation project at 

Townsend Road. These two projects have reduced flooding and provided stormwater 

treatment, both of which have helped to reduce fecal coliform loading to Newcastle Creek from 

stormwater runoff in this area.

During TAT sampling of Newcastle Creek, one particular area of the stream at Berrywood Lane 

had high levels of fecal coliform bacteria. Resampling and field reconnaissance of the area to 

identify potential sources could not isolate the source; however, it appeared that sediment 

buildup could have contributed to the high counts. EQD worked with PWD and JEA to schedule 

sediment removal in May 2008. Sediment and water samples were collected before and after 

the cleanout. Post sediment removal sampling indicates lower levels of fecal coliform bacteria 

in the stream at this location, reducing the total loading to Newcastle Creek. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

49

6.3.3.2 Ongoing COJ Programs and Projects

COJ has also established a monitoring plan to evaluate the effectiveness of the Stormwater 

Management Program (SWMP) and the associated pollutant reduction from MS4 systems to 

waters of the state to the Maximum Extent Practicable (MEP). The monitoring plan is a 

requirement of Part V.B. of the COJ/FDOT NPDES MS4 permit and supported by Title 40 of the 

Code of Federal Regulations, Part 122.26(d)(2)(iii). It is the responsibility of the MS4 copermittees (COJ, FDOT, City of Atlantic Beach, and City of Neptune Beach). In this watershed, 

1 routine monitoring station is sampled quarterly, with 42 samples taken between 1995 and 

2008. The Annual Report Form for Individual NPDES Permits for Municipal Separate Storm 

Sewer Systems (Subsection 62-624.600[2], F.A.C) provides additional information on the 

SWMP. 

In addition to the routine monitoring, COJ EQD is part of the TAT and conducts sampling to help 

identify potential sources of fecal coliform contamination. In 2005 and 2006, EQD sampled 5 

sites in Newcastle Creek, for a total of 40 samples, as part of the TAT effort.

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. From 2005 through 2008, this included 77 work orders for 

ditch and creek regrading, erosion control, and cleaning; 4 work orders for lake and pond 

maintenance; and 55 work orders for the repair/clearing of blocked structures and measures to 

prevent flooding. PWD will maintain a future level of effort for the maintenance activities based 

on information in the CARE database. 

In addition, COJ EQD is working with England-Thims and Miller (ETM) to implement the PIC 

Program. ETM is currently developing an inventory and mapping MS4s in Duval County. COJ 

EQD keeps a record of reported PICs in a database, and that information is transferred into 

GIS. This system is checked to determine where site visits are necessary. COJ inspectors 

conduct the site visits and talk to both the people who live on the site, as well as their neighbors, 

to verify the nature of the issue. If there is a known discharge, the inspector investigates in 

order to direct the resolution of the discharge to the appropriate entity (COJ, DCHD, or FDEP). 

If necessary, a sample is collected to determine the nature of the discharge. COJ may assist 

the individual in remedying the situation and return to ensure that the connection has been 

removed. Between 1998 and 2006, 43 PICs were identified in the Newcastle Creek watershed, 

of which 20 were confirmed as illicit and removed. 

Educational outreach is a vital part of the PIC Program. COJ EQD, and formerly COJ PWD, 

primarily provides this outreach by distributing materials to the public such as educational 

pamphlets and informational door hangers, and through a storm drain–stenciling program. COJ 

also collaborates with SJRWMD’s Watershed Action Volunteer (WAV) Program, which equips 

volunteers through training and education to perform a variety of tasks to improve the 

environmental quality of their local watersheds (PBS&J, November 2007).

In the Newcastle Creek watershed, inspections between 2000 and 2008 included 2 

investigations into illicit water discharges, 1 sewer line that drained into a yard or ditch, and 10 

SSOs. These inspections are initiated through information from the CARE database, and PWD 

will maintain a future level of effort for these investigations based on requests, which are logged 

and tracked through the CARE database. 

Table 32 provides additional details on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

50

TABLE 32: COJ ACTIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E F FOR T TOTAL C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS

Capital Improvement Projects

COJ – 1 Townsend Road (COJ-31) Wet detention 151 acres Unknown COJ Complete

Drainage System Rehab Projects

COJ – 2 Townsend Road Townsend Road drainage system rehab Along Townsend $173,326 COJ Complete

COJ – 3 Berrywood Lane Ditch cleanout to remove sediments and 

vegetation

Along Berrywood 

Lane Unknown COJ Complete

MS4 Maintenance Activities

COJ – 4 Ditch/Creek Regrade/Erosion/Clean All maintenance activities completed in 

response to CARE requests. Costs shown 

limited to activities completed after release 

of work order system.

77 (for 2005–08) $15,789.25 COJ Ongoing

COJ – 5 Lake or Pond Problem 4 (for 2005–08) $58.68 COJ Ongoing

COJ – 6 Structure Blocked/Repair/General Flooding 55 (for 2005–08) $3,425.92 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 7 Illicit Water Discharge CARE initiated 2 (for 2000–08) $424 COJ Ongoing

COJ – 8 Sewer Drains into Yard/Ditch CARE initiated 1 (for 2000–08) $212 COJ Ongoing

COJ – 9 Sewer Overflow CARE initiated 10 (for 2000–08) $2,120 COJ Ongoing

COJ – 10 Private Lift Station Inspection No lift stations in WBID; inspect as ID 

stations or new stations constructed Not applicable Not applicable COJ Ongoing

COJ – 11 Illicit Discharge Detection and Elimination 20 illicit, no open 43 (for 1998–2006) $9,116 COJ Ongoing

COJ – 12 Routine Surface Water Sampling NPDES permit–related quarterly water 

quality sampling – 1 station in WBID 42 (for 1995–2008) $8,904 COJ Ongoing

COJ – 13 TAT Sampling

Conducted by EQD to assess bacteria 

levels in creek and help identify potential 

fecal bacteria sources

5 sites / 40 samples

(for 2005–06) $17,880 COJ Complete

Septic Tank Phase-Out Program

COJ – 14 Eggleston Heights Failure Area – Septic

Tank Phase-Out

Phase out of septic tanks in failure areas 

(also listed as part of larger LSJR Main 

Stem BMAP project)1

10 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 15 Septic Tanks Outside Failure Area – Septic 

Tank Phase-Out

Phase-out program as provided by COJ 

ordinance

145 total tanks,

0 connected Unknown COJ Ongoing

COJ – 16 Septic Tank Maintenance Public Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 17 Pet/Animal Management Public Education Public service announcements (PSAs) Ongoing Unknown COJ Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35. 1 COJ has committed to removing septic tanks in failure areas that are within 300 meters of a surface water in the 2008 LSJR Main Stem BMAP. COJ must submit a plan to FDEP for 

removing septic tanks within 6 months of completion of the septic tank study, or by June 30, 2011, whichever is earlier. At a minimum, COJ will accomplish a 50% implementation of 

the septic tank phase-out projects by July 31, 2015, with the phase-outs completed by December 31, 2023. For the 10 tributaries addressed in this BMAP, a total of 1,167 septic tanks 

are located in failure areas, although not all of them may be located within 300 meters of a surface water. The failing tanks within 300 meters of a surface water will be included in the 

COJ plan and schedule to phase out tanks and will be identified as Tributaries BMAP-related tanks in the plan.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

51

6.3.4 FDOT ACTIVITIE S IN THE NEWCASTLE CREEK WATE R S HE D

6.3.4.1 Ongoing FDOT Programs and Activities

FDOT works with COJ on several efforts related to the MS4 permit. FDOT participates in the 

PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections and has removed 10 illicit connections to its conveyances in the 

watershed. FDOT also helps to fund one monitoring station in the Newcastle Creek watershed 

that is sampled quarterly as part of the routine monitoring program. FDOT will continue these 

activities in the future to support the maintenance of the MS4 system. Table 33 lists FDOT’s

activities in the watershed. 

TABL E 33: FDOT ACTIVITIE S IN THE NEWCASTLE C REEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T P ROJECT S TATUS

Identification and Removal of Illicit Connections

FDOT – 1 PIC Program – Search for 

Illicit Connections See Note 1

State of 

Florida 

(FDOT)/COJ

Effort is continuous in WBID Ongoing

FDOT – 2 

PIC Program – Illicit 

Connections Identified and 

Removed in WBID if Found To 

Be Truly Illicit

See Note 1

State of 

Florida 

(FDOT)/COJ

10 illicit connections removed Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 3 Routine Tributary Monitoring 

as Part of MS4 Permit See Note 2

State of 

Florida 

(FDOT)/COJ

1 station quarterly Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ.

6.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 30 through Table 33 list the projects and programs to reduce fecal coliform loading in the 

Newcastle Creek watershed. Several key efforts completed in this WBID are summarized, as 

well as activities that are expected to continue or to be implemented in future years. The efforts 

outlined in the project tables, including the activities highlighted below, will reduce fecal coliform 

loading and improve water quality in Newcastle Creek based on the best information available 

about fecal coliform sources. As water quality improves as a result of these actions and the 

bacteria source information is refined, future BMAPs may recommend different activities or 

levels of effort. For this BMAP, the full implementation of the projects and programs listed in the 

project tables for the Newcastle Creek watershed is sufficient to significantly reduce fecal 

coliform sources and make substantial progress towards meeting the TMDL.

6.4.1 OS TDS

Failure Area – Based on the GIS current database, there are approximately 155 septic tanks in 

the WBID. Ten OSTDS are eligible for sewer connection due to their inclusion located in the 

Eggleston Heights failure area. COJ committed to removing septic tanks in failure areas that 

are within 300 meters of surface waters in the 2008 LSJR Main Stem BMAP. The failing tanks 

in the Eggleston Heights failure area in the Newcastle Creek watershed that are within 300 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

52

meters of a surface water will be included in the COJ phase-out plan and schedule, as 

described in the Main Stem BMAP, and will be identified in the plan as Tributaries BMAP-related 

efforts. 

Repair Permits – Outside the Eggleston Heights failure area, there are no indications that 

additional failure areas are developing. Of the 18 repair permits filed in the WBID, the majority 

issued before 2005, are concentrated (1) in the southwest corner, which is not close to surface 

waters; and (2) in the northeast portion of the WBID that has no stormwater infrastructure. 

Therefore, the locations of these repair sites indicate that the remaining 145 OSTDS are not an 

immediate threat to surface water contamination and are not discharging to the stormwater 

system. 

Capital Improvement Projects – The COJ Townsend Boulevard flood control project will help 

to reduce OSTDS as a source by reducing flooding in the northeastern portion of the WBID, 

where there is a higher concentration of septic tanks and where flooding would greatly decrease 

the effectiveness of the OSTDS to treat waste before contact with surface waters. COJ PWD 

should continue to evaluate flooding in the Newcastle Creek WBID, and if frequent flooding is an 

issue in areas with high concentrations of OSTDS, capital improvement projects should be 

implemented, depending on available funding to address those problems.

Program Implementation – City ordinances, inspections, and program implementation, 

combined with DCHD permit review processes and inspections, proactively address potential 

sources. Program implementation ensures the proper review of new OSTDS sites and ensures 

the maintenance of existing systems. These activities need to be continued and fully enforced 

to manage potential impacts from existing systems in the nonfailure areas and to prevent the 

creation of new OSTDS sources. 

6.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – The COJ database does not indicate that there are private sewer lift 

stations in the watershed; however, the database only includes private lift stations permitted by 

COJ since 1991, or lift stations that have applied for repair permits since that time. It is likely 

that private lift stations are located in the watershed but have not been identified. As private 

stations are identified or new private lift stations are constructed, COJ will include these stations 

in the BMAP annual progress report and implement annual inspections.

Sewer Infrastructure Projects – The JEA lift station at 3254 Townsend Boulevard, located 

near surface waters, previously had repetitive SSOs; however, JEA replaced the electrical panel 

in May 2008, resulting in no subsequent SSOs, and thus removing a recurring source of fecal 

coliform loading.

Program Implementation – Since 2001, following inspections and a condition assessment of 

the sewer lines, over 40% of the sewer lines in the WBID were pipe bursted and 60% of the lift 

stations upgraded. These sewer infrastructure repairs constitute a large percentage of the total 

number of sewer lines and lift stations in the WBID, indicating that the previous system was due 

for substantial maintenance and that the repairs have likely addressed some leakage and 

potential SSO problems. Continued inspection, repair, and maintenance activities in 

conjunction with the systemwide programs are sufficient to address potential sewer sources in 

the WBID at this time. The Root Cause Program and other SSO prevention efforts, such as 

FOG and CMOM implementation, should be continued so that any additional infrastructure 

problems that develop will be identified and repaired. JEA will report its inspection, prevention, 

and maintenance efforts in the WBID as part of the annual BMAP reporting process to 

demonstrate that the system is monitored and maintained.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

53

6.4.3 S TOR MWATE R

Illicit Connection Removal – Twenty illicit connections have been removed through the PIC 

Program run by COJ and FDOT; this is a substantial number of illicit connections and potential 

sources of bacteria eliminated. COJ and FDOT have committed to continue the PIC Program, 

including identifying additional illicit connections and removing those connections in a timely 

manner.

COJ Program Implementation – According to the Newcastle Creek Technical Report (PBS&J, 

November 2007), the higher concentrations of bacteria in the more upstream portion of the 

creek may be attributed to bacteria regrowth in sediments and the persistence of bacteria 

populations due to conditions of little or no light. COJ completed a project to remove excessive 

vegetation growth in the upstream portion of the creek, increasing UV light to the waters and 

potentially increasing the die-off of sediment bacteria. COJ also removed sediments from the 

upstream portions of the creek, some of which were most likely transported through the 

underground stormwater collection system. Subsequent water sampling indicates that bacteria 

levels have decreased downstream of these locations. These actions and a continued 

commitment by COJ to prevent overgrowth along Newcastle Creek should help to control 

sediments as a source in the stormwater system.

TABLE 34: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE NEWCASTLE CREEK WATE R S HE D

SOURCE/ACTION COJ DCHD FDOT JEA 

OSTDS

Ordinances √ X X X 

Enforcement √ √ X X 

Program Implementation √ √ X X 

Permit Review (new and repair permits) X √ X X 

Failure Area Evaluation √ √ X X 

Failure Area Ranking √ √ X X

Septic Tank Inspection √ √ X X 

Septic Tank Phase-Out - - X X 

Public Education (PSA) √ X X X 

Surface Water Sampling for Conditions and Trends √ X X X 

Sewer System 

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X √

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement * X X X 

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X 

Sanitary Sewer Overflow (SSO) Investigations * X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X 

Capital Projects/Stormwater Water Quality BMPs √ X - X 

Stormwater System Ditch and Canal Maintenance √ X * X 

Stormwater Pond Maintenance √ X * X

Stormwater Pipe Cleaning and Maintenance √ X * X 

Potential Illicit Connection (PIC) Identification √ X + X 

Illicit Connection Removal √ X + X 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

54

SOURCE/ACTION COJ DCHD FDOT JEA 

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X 

Program Implementation √ X √ X

Pet Waste Management

Ordinances and Enforcement √ X X X 

Public Education and Outreach √ X X X 

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X √

Tributary Assessment Team (TAT) √ X X √

Microbial Source Tracking (MST) √ X X √

Thermal Imagery To Identify PICs - X X X

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

55

CHAPTER 7: HOGAN CREEK (WB ID 2252)

7.1 WB ID DE S CR IPTION

Hogan Creek, WBID 2252, is located in Duval County, north of the LSJR within the North 

Mainstem Planning Unit, as designated by SJRWMD (Figure 4). The headwaters of Hogan 

Creek appear to comprise stormwater runoff originating just southwest of West 15th Street

(Figure 5). The entire creek flows southward in a single channel, except for two branches 

joining Hogan Creek from the west. Segments of each branch appear to be man-made and are 

classified by COJ PWD as ditches. The more northern of the two branches extends west to 

Shands Jacksonville Medical Center and merges with the main channel just west of the 

intersection of West 12th Street and North Jefferson Street. The more southern branch extends 

west to Cleveland Street before joining the main channel south of the intersection of 8th Street 

and North Jefferson Street. In the southern portion of the WBID, approximately 400 feet of the 

creek flows into an underground water conveyance system at East State Street before 

resurfacing near the intersection at North Washington Street and Union Street Expressway. 

The waters of Hogan Creek eventually flow into the St. Johns River just south of East Bay 

Street (PBS&J, March 2008).

Hogan Creek traverses the watershed within a commercial/utility/institutional and recreational 

landscape that supports neighboring high-density residential communities. The dominant land 

use (1,082.7 acres; 49.2% of total coverage) in the watershed is high-density residential, which 

extends throughout the watershed (Table 35). The next two most abundant land cover 

categories are (1) commercial/utility/institutional areas, predominantly located in the southern 

portion of the watershed (452.4 acres; 20.6% of total coverage); and (2) recreational habitat, 

which borders the creek, providing direct access to the waterbody (384.7 acres; 17.5% of total 

coverage). Wetland habitat accounts for less than 5% of land use (PBS&J, March 2008). 

According to the 2000 Census, there are 7,109 households in the watershed, averaging 1.59 

people per household. The areas directly adjacent to the creek, especially in the midstream 

section of the watershed, consist of recreational and commercial areas bounded by high 

population densities (PBS&J, March 2008). In addition, assuming that 40% of households have 

1 dog (Tyler, 2006), there are 2,844 dogs in the watershed.

TABLE 35: L AND US E S IN THE HOGAN CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

High-Density Residential 1,082.7 49.2

Commercial/ Utility/Institutional 452.4 20.6

Recreational 384.7 17.5

Industrial 115.9 5.3

Transportation 104.5 4.7

Medium-Density Residential 20.0 0.9

Open Land 14.8 0.7

Water 12.0 0.5

Nonforested Upland 7.5 0.3

Wetlands 5.7 0.3

TOTAL: 2,200.1 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

56

FIGUR E 4: LOCATION OF THE HOGAN CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

57

FIGUR E 5: HOGAN CREEK WB ID LOCATOR MA P
Final Lower St. Johns River Basin Management Action Plan – December 2009 

58

7.2 POTE NTIAL S OUR CE S

7.2.1 POINT S OUR CES

There are no industrial or domestic wastewater facilities, CAFOs, application sites for septic 

residuals, or landfills permitted to discharge to Hogan Creek. The COJ/FDOT MS4 permit 

includes the Hogan Creek watershed (PBS&J, March 2008). 

7.2.2 ILLICIT DIS CHAR GE S

COJ EQD identified seven PICs in the Hogan Creek watershed between 2004 and 2006; five

were confirmed as illicit connections and removed. 

7.2.3 CE NTR ALIZE D S EWAGE INFR AS TR UCTUR E AND OVERFLOWS

An estimated 6,227 households (approximately 88% of households) are connected to the 

sanitary sewer system in the Hogan Creek watershed. The sanitary sewer lift stations are all

located near (within approximately 300 feet of) Hogan Creek; therefore, potential failures at

these lift stations are likely to contribute bacterial contamination to the creek’s surface waters. 

JEA has reported 36 SSOs, 11 of them potentially impacting surface waters, within the WBID 

boundaries (Table 36). The estimated volume of spill associated with these overflows ranged 

from 1 to 45,000 gallons and averaged 2,570 gallons. More recently, an SSO that occurred at 

East Bay Street on February 4, 2008, released approximately 104,000 gallons of sewage near

the creek’s surface waters; an estimated 10,000 gallons were recovered, resulting in an 

approximate net discharge of 94,000 gallons.

The number of reported SSOs in the Hogan Creek watershed has likely contributed to the 

overall contamination of the watershed, considering that 11 of the 36 (31%) reported SSOs 

occurred near the creek’s surface waters. It is possible, however, that unidentified sewer 

infrastructure leaks are contributing to this pollution, as sewer infrastructure (e.g., lift stations, 

manholes) are regularly located near the creek throughout the watershed (PBS&J, March 2008). 

The inoculation of sediments following an SSO event or unknown infrastructure leak may lead to 

the persistence and likely regrowth of indicator bacteria in sediments, thus possibly allowing an 

influx of high levels of bacteria to receiving waters for an unspecified period (Davies et al., 1995; 

Anderson et al., 2005). It is also important to note that the number of gallons of spilled sewage 

due to reported SSOs decreased from 59,230 gallons in 2003 to 270 gallons in 2006.

7.2.4 OS TDS

WSEA estimates that there are approximately 428 OSTDS in the Hogan Creek watershed. 

According to DCHD, no septic tank repair permits have been issued in the WBID. No DCHDdesignated septic tank failure area is located near the boundary of the watershed. 

7.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Hogan Creek WBID contains primarily 10 to 

25% and greater than 25% impervious surface. Furthermore, the potential for stormwater runoff 

was predicted through the calculation of runoff coefficients using the U.S. Soil Conservation 

Service (SCS) Curve Number approach (SCS, 1986). This analysis demonstrates that the 

majority of the WBID contains a moderate-to-high potential for stormwater runoff, especially 

near the creek (PBS&J, March 2008). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

59

TABLE 36: SSOS R E POR TE D IN THE HOGAN CREEK WATE R S HE D, 2001–07

WB ID NAME

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME OF 

S PILL

(GALLONS ) 

P OTE NTIALLY IMP AC TE D 

S UR FACE WATERS

Hogan Creek (2252) 21-Aug-01* 2,500 - 

Hogan Creek (2252) 21-Nov-01* 10,000 - 

Hogan Creek (2252) 15-Jan-02 50 - 

Hogan Creek (2252) 25-Jan-02 200 - 

Hogan Creek (2252) 8-Feb-02 500 - 

Hogan Creek (2252) 24-May-02 200 - 

Hogan Creek (2252) 13-Aug-02 100 - 

Hogan Creek (2252) 14-Aug-02 75 - 

Hogan Creek (2252) 2-Oct-02 500 No 

Hogan Creek (2252) 23-Oct-02 200 No 

Hogan Creek (2252) 8-Nov-02* 6,000 Yes

Hogan Creek (2252) 11-Feb-03* 45,000 Yes

Hogan Creek (2252) 10-Mar-03 30 No 

Hogan Creek (2252) 18-Mar-03* 1,560 Yes

Hogan Creek (2252) 10-Jul-03 50 No 

Hogan Creek (2252) 30-Jul-03 200 No 

Hogan Creek (2252) 15-Oct-03* 12,240 Yes

Hogan Creek (2252) 17-Oct-03* 120 Yes

Hogan Creek (2252) 20-Oct-03 30 No 

Hogan Creek (2252) 19-Feb-04* 200 Yes

Hogan Creek (2252) 17-Mar-04 200 No 

Hogan Creek (2252) 15-Apr-04* 540 Yes

Hogan Creek (2252) 26-Apr-04* 1,000 Yes 

Hogan Creek (2252) 14-May-04* 600 Yes

Hogan Creek (2252) 25-Jun-04* 1,100 Yes

Hogan Creek (2252) 1-Jul-04* 8,900 Yes

Hogan Creek (2252) 12-Oct-04 1 No

Hogan Creek (2252) 4-Jan-05 35 No

Hogan Creek (2252) 24-Mar-05 60 No

Hogan Creek (2252) 30-Mar-05 20 No

Hogan Creek (2252) 26-Oct-05 5 No

Hogan Creek (2252) 9-Dec-05 25 No

Hogan Creek (2252) 27-Dec-05 20 No

Hogan Creek (2252) 4-Jan-06 50 No

Hogan Creek (2252) 6-Feb-06 20 No

Hogan Creek (2252) 8-May-06 200 No

Note: Data on SSOs that potentially affected surface waters are unavailable before October 2002.

* Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters.

The storm sewer network in the Hogan Creek watershed includes 50 permitted stormwater 

treatment areas, encompassing approximately 64.71% of the WBID area. Stormwater 

infrastructure in the WBID includes 53 outfalls by receiving water (1 classified by FDEP as a 

major outfall) and 1,623 inlets. There is also an underground conveyance system in the 

downstream portion of the watershed. Although closed conveyances are common throughout 

the WBID, ditch systems are primarily confined to the northern portions of the WBID, except for 

one that forms the westernmost segment of the southern branch (PBS&J, March 2008). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

60

7.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

7.3.1 JEA ACTIVITIE S IN THE HOGAN CREEK WATE R S HE D

7.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

JEA has initiated infrastructure rehabilitation projects in the Hogan Creek watershed to help 

prevent and reduce future overflows (PBS&J, March 2008). As part of the infrastructure 

rehabilitation projects in the watershed, JEA conducts several types of activities to replace or 

rehabilitate failing or leaking infrastructure, including (1) pipe bursting to increase carrying 

capacity, (2) CIPP to install a new inner lining in the pipe, and (3) open cut to remove and 

replace pipe. A total of 12.46% of the sewer lines in the watershed have been pipe bursted, 

1.37% have CIPP, and 0.16% have been repaired through open cut. 

JEA has also replaced or repaired components on 1 of the 4 (25%) lift stations in the WBID. In 

addition, it conducts activities to help prevent future infrastructure problems. In the Hogan 

Creek watershed, 11,821 LF of pipe were inspected during FY07 using a closed-circuit 

television system. JEA also pipe cleaned 57,198 LF of pipe in FY07 to avoid blockages. These 

activities will continue in the future to maintain the sanitary sewer system and prevent future 

problems. Table 37 provides additional information on JEA’s activities in the Hogan Creek 

watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

61

TABLE 37: JEA AC TIVITIE S IN THE HOGAN CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

Sewer Upgrades

JEA – 17

Pipe Bursting –

Increase Carrying 

Capacity

Replace failing/leaking 

infrastructure 

Total footage of pipe burst in 

watershed since 2001: 180,230 $15,713,951 JEA Ongoing FY00

JEA – 18 CIPP – Install New 

Inner Lining

Rehabilitate failing/leaking 

infrastructure

Total footage of CIPP in 

watershed since 2001: 19,788 $1,731,285 JEA Ongoing FY00

JEA – 19 Open Cut – Removal 

and Replacement

Replace failing/leaking 

infrastructure 

Total footage of open cut 

replacement in watershed since 

2001: 2,366

$415,957 JEA Ongoing Ongoing

Other Sewer Infrastructure Upgrades

JEA – 20 Manhole Linings 

Rehabbed

Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 21 Pump Station SCADA 

Upgrades

Retrofitting completed in 2004;

all stations constructed since 

have SCADA installed. See 

Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 22

Inspect Force Main 

Discharge Manholes; 

Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 23 Pump Station Class I/II 

Rebuilding

Repair or replace components of 

existing pump stations

Projects in watershed since 

2002: 1 $75,159 JEA Ongoing Ongoing

Programs To Reduce Sewer Problems

JEA – 24 FOG Reduction 

Program See Appendix E Not applicable Unknown JEA Ongoing Current FOG Program initiated in 2004

JEA – 25 Pipe TV Inspection Inspect existing infrastructure 

through closed-circuit television

11,821 LF of pipe inspected 

(FY07) $163,099* JEA Ongoing Carried over from city operation (1997)

JEA – 26 Pipe Cleaning Clean existing pipes to avoid 

blockages

57,198 LF of pipe cleaned 

(FY07) $743,054* JEA Ongoing Carried over from city operation (1997)

JEA – 27 Implement CMOM 

Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing 

JEA – 28 Manhole Monitoring See Appendix E 1 manhole monitor installed in 

watershed as of January 2009 $ 137,526* JEA Ongoing August 2007

JEA – 29 SSO Root Cause 

Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 30 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 31

Non-Destructive 

Testing Program/

Pipe Integrity Testing

See Appendix E Not applicable $74,284* JEA Ongoing Ongoing 

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

62

7.3.2 DCHD ACTIVITIE S IN THE HOGAN CREEK WATE R S HE D

7.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these

programs.

As part of the OSTDS Program, DCHD has issued 2 new construction permits and 8 

abandonment permits in the WBID. In addition, 1 annual operating permit has been issued for a 

performance-based treatment and disposal system (PBTS) in the watershed. DCHD has also

performed 1 plan review and site evaluation and 126 investigations in response to complaints 

received. DCHD will continue these efforts in the future to reduce and prevent issues related to 

OSTDS. Table 38 lists DCHD’s projects in the Hogan Creek watershed. 

TABLE 38: DCHD ACTIVITIE S IN THE HOGAN CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST 

(1996–2008)

F UNDING 

S OUR CE

P ROJEC T 

S TATUS

DCHD – 7 OSTDS Program 

Implementation of programs to 

address septic systems as 

potential sources

Approximately 2

new construction 

permits and 8 

abandonment 

permits issued in 

WBID

$2,000 FDOH Ongoing

DCHD – 8 Annual Operating 

Permits 

Annual operating permits 

issued for PBTS, systems 

located in industrial/ 

manufacturing zones (IMZ), 

and commercial systems

One annual 

operating permit for 

PBTS/IMZ located 

in WBID

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 9 DCHD-Sponsored 

Training Programs

Annual training programs held 

for septic tank contractors, 

certified plumbers, 

maintenance entities, and 

environmental health 

professionals

One to 2 trainings 

per year providing 

up to 12 contact 

hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 10

Application/Plan 

Review/Site 

Evaluations

DCHD performs plan review 

and site evaluation for each 

application received for 

OSTDS new construction, 

repair, or modification of 

existing system

Approximately 17 

plan reviews and 

site evaluations 

have been 

performed in WBID 

based on permitting 

history

$4,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 11 Septic Tank Failure 

Area Ranking

Septic tank failure area scored 

and prioritized on annual basis

Less than 1 year 

since previous 

update

Not applicable Ongoing

DCHD – 12 Complaint 

Investigations

DCHD investigates all 

complaints received, performs 

site visit, and initiates 

enforcement action on sanitary 

nuisance violations

126 complaint 

investigations have 

been performed in 

WBID

$13,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

63

7.3.3 COJ ACTIVITIE S IN THE HOGAN CREEK WATE R S HE D

7.3.3.1 Completed COJ Projects

COJ PWD has completed 3 projects in the watershed: (1) the Hogan Creek Wet Detention 

Pond, which treats 48 acres; (2) the Durkeeville West Wet Detention Pond, which treats 106 

acres; and (3) the Edmonson West Project, a drainage improvement project that alleviated 

flooding by improving conveyances. These projects capture and treat stormwater runoff, 

helping to reduce stormwater-associated bacterial loadings to Hogan Creek. In addition, the 

Bay Street Bridge Expansion Project is under construction and is projected to replace the 

existing bridge structure, with the expectation of lowering the hydraulic grade line during larger 

rainfall events, thus helping in flood control (PBS&J, March 2008). 

7.3.3.2 COJ Projects in Design or Construction

COJ currently has one flood improvement project in the Newtown area in design. In addition, 

there are two drainage system rehabilitation projects under construction at (1) 7th and Ionia, 

which is an area that has standing water at the curb; and (2) Boulevard Railroad Crossing, 

where the headwall has failed and caused the drain pipes to break. These projects, once 

completed, will reduce stormwater runoff in their respective areas, in turn reducing fecal coliform 

loading to the creek. 

7.3.3.3 Ongoing COJ Programs and Activities

COJ has established a monitoring plan to evaluate the effectiveness of the SWMP and the 

associated pollutant reduction from MS4 systems to waters of the state. In Hogan Creek, COJ 

has 1 routine monitoring station that is sampled quarterly. A total of 43 samples were taken at 

this station between 1995 and 2008. In addition to the routine sampling, COJ EQD also 

participates in the TAT. EQD has collected 28 samples at 10 sites as part of the TAT, with an 

additional 3 samples taken at 3 sites to follow up on high fecal coliform counts in an effort to 

identify potential sources. 

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 105 work orders for ditch and 

creek regrading, erosion control, and cleaning; 10 work orders for lake and pond maintenance; 

and 264 work orders for the repair of blocked structures and measures to prevent flooding. 

These work orders were completed between 2005 and 2008. PWD will continue a level of effort 

to maintain the MS4 conveyances based on CARE requests.

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. Of the seven PICs identified by COJ in the watershed, 

five were confirmed as illicit connections and were removed. Three of these PICs were 

considered sources of bacterial contamination and may have contributed to the bacterial loading 

of Hogan Creek prior to their removal (PBS&J, March 2008). The status of one PIC is still 

pending investigation. As part of the PIC Program, COJ EQD provides public outreach through 

educational pamphlets, informational door hangers, and the storm drain–stenciling program. 

COJ PWD has also conducted inspections in the watershed, including 13 investigations into 

illicit water discharges, 12 illegal discharges, 19 sewer lines that drained into a yard or ditch, 62 

SSOs, and 1 private lift station. PWD will maintain a future level of effort for these investigations 

based on requests, which are logged and tracked through the CARE database. 

Table 39 provides additional information on COJ’s activities in the Hogan Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

64

TABLE 39: COJ ACTIVITIE S IN THE HOGAN CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T TOTAL C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS

Capital Improvement Projects

COJ – 18 Durkeeville West Wet detention 106 acres Unknown COJ Complete

COJ – 19 Newtown Area Flood improvement Newtown Area $5,375,000 COJ Design

COJ – 20 Hogan Creek Wet detention 48 acres Unknown COJ Complete

Drainage System Rehab Projects

COJ – 21 Edmonson West Alleviate flooding by improving conveyances Edmonson West Unknown COJ Complete

COJ – 22 7th & Ionia Standing water at curbing 7th and Ionia Unknown COJ Construction

COJ – 23 Boulevard RR Crossing Headwall has failed, causing dual drain pipes to break RR crossing $100,000 COJ Construction

COJ – 24 W&M-18th & Fla Drainage system rehab project W&M 18th and Fla $2,620 COJ Complete

COJ – 25 Trash Removal in Main Channel Removed trash in main channel of creek as Walk the WBID 

follow-up

Main channel Unknown COJ Complete

COJ – 26 Venus and Mars Apartment Complex Pond 

Maintenance

Conducted maintenance activities at pond at apartment 

complex as Walk the WBID follow-up

Venus and Mars 

apartment complex Unknown COJ Complete

MS4 Maintenance Activities

COJ – 27 Ditch /Creek Regrade/Erosion/Clean Completed in response to CARE requests. Costs limited to 

activities completed after release of work order system. 

105 (for 2005–08) $23,248.37 COJ Ongoing

COJ – 28 Lake or Pond Problem 10 (for 2005–08) $3,793 COJ Ongoing

COJ – 29 Structure Blocked/Repair/General Flooding 264 (for 2005–08) $112,659 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 30 Illicit Water Discharge CARE-initiated Inspection 13 (for 2000–08) $2,756 COJ Ongoing

COJ – 31 Pollution – Water – Illegal Discharge CARE-initiated Inspection 12 (for 2000–08) $2,544 COJ Ongoing

COJ – 32 Sewer Drains into Yard/Ditch CARE-initiated Inspection 19 (for 2000–08) $4,028 COJ Ongoing

COJ – 33 Sewer Overflow CARE-initiated Inspection 62 (for 2000–08) $13,144 COJ Ongoing

COJ – 34 Private Lift Station Inspection No lift stations in WBID prior to 2007; 1 annual inspection 1 (for 2007) $212 COJ Ongoing

COJ – 35 Illicit Discharge Detection and Elimination 5 illicit, 1 open 7 (for 2004–06) $1,484 COJ Ongoing

COJ – 36 Follow Up on Outstanding PIC Follow up on 1 open PIC in watershed 1 (for 2009–10) $212 COJ Planned

COJ – 37 Routine Surface Water Sampling NPDES permit-related quarterly water quality sampling –

1 sampling station in WBID 43 (for 1995–2008) $19,221 COJ Ongoing

COJ – 38 TAT Sampling Conducted by EQD to assess bacteria levels in creek and 

help identify potential fecal bacteria sources 10 sites/28 samples $12,516 COJ Ongoing

COJ – 39 Source ID Sampling Source ID sampling conducted when high levels of fecal 

coliform bacteria are noted 3 sites/3 samples $3,000 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 40 Outside Failure Areas – Septic Tank 

Phase-Out Phase out program as provided by COJ ordinance 428 total tanks, 0 connected Unknown COJ Ongoing

COJ – 41 Septic Tank Maintenance Public Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 42 Pet/Animal Management Public Education Public service announcements Ongoing Unknown COJ Ongoing

Note: Inspection unit cost = $212; sampling event unit cost =$447; and septic tank per connection = $35.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

65

7.3.4 FDOT ACTIVITIE S IN THE HOGAN CREEK WATE R S HE D

7.3.4.1 Completed FDOT Projects

FDOT has completed a wet detention pond located at S.R. 115 and 8th Street that treats 

stormwater from 31 acres. By capturing and treating stormwater in this area, the project has 

helped reduce additional fecal coliform loading to the creek from runoff.

7.3.4.2 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

Drainage Connection permit. If connecting entities fail to meet this requirement after sufficient 

warning by FDOT, they will be reported to FDEP, SJRWMD, and, if applicable, to the local 

municipality; these entities regulate stormwater quality through state rules, ordinances, and 

codes. FDOT performs periodic site inspections as part of the MS4 NPDES permit. FDOT

supports the Adopt-A-Highway Program in the watershed and collects trash from 12 acres, for 

an average annual removal of 1,101 pounds. Street sweeping also occurs monthly on 25 miles 

of roadways, reducing the amount of trash and sediment entering the stormwater conveyance 

system. As part of the maintenance program, FDOT removes sediment, trash, and debris from 

the system, as needed. This maintenance occurs in approximately 350 inlets and 12 miles of 

piping.

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances in the right of 

way. Those located outside the right of way are reported to the applicable municipality for 

further investigation and enforcement action. FDOT maintains a toll-free number to be used for 

reporting illicit connections. FDOT also helps to fund one monitoring station in the Hogan Creek 

watershed that is sampled quarterly as part of the routine monitoring program. FDOT will 

continue these activities in the future to support the maintenance of the MS4 system. Table 40

lists FDOT’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

66

TABLE 40: FDOT ACTIVITIE S IN THE HOGAN CREEK WATERS HE D

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Identification and Removal of Illicit Connections

FDOT – 4 PIC Program – Search for Illicit 

Connections See Note 1

State of 

Florida 

(FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 5 

PIC Program – Illicit Connections 

Identified and Removed in WBID 

if Found To Be Truly Illicit

See Note 1

State of 

Florida 

(FDOT)/COJ

No true illicit connection 

identified to date Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 6 Routine Tributary Monitoring as 

Part of MS4 Permit See Note 2

State of 

Florida 

(FDOT)/COJ

1 station quarterly Ongoing

Roadway Projects with Structural BMPs

FDOT – 7 S.R. 115/8th Street Project $2,941,944

State of 

Florida 

(FDOT)

31 acres, wet detention Completed

Drainage Connection Program (DCP)

FDOT – 8 

DCP – Connecting Entity Must 

Certify that All Discharges to 

FDOT MS4 Are Treated Prior to 

Connection

See Note 3

State of 

Florida 

(FDOT)

Ongoing effort Ongoing

Adopt-A-Highway Program

FDOT – 9 Adopt-A-Highway Program See Note 4 Not 

applicable

Trash collected from 12 

acres. Amount collected 

annually averages 1,101 

pounds.

Ongoing

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 10 Sediment Accumulation, Trash, 

and Debris Removed As Needed $77,148

State of 

Florida 

(FDOT)

Approximately 350 

inlets/catch basins and 

about 12 miles of piping

Ongoing

Street Sweeping Program

FDOT – 11 Street Sweeping Program $6,848

State of 

Florida 

(FDOT)

25 miles of roadway 

swept monthly Ongoing

Routine Maintenance Activities

FDOT – 12 Maintain FDOT Stormwater 

Systems See Note 5

State of 

Florida 

(FDOT)

Clean drainage 

structures, replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair 

outfall ditches, mowing,

roadside litter removal, 

respond to citizen 

complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 4 Associated cost unknown. Program is voluntary. 5 Countywide Program – Average cost is $2,750,735 per year.

7.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 37 through Table 40 show the projects and programs to reduce fecal coliform loading in 

the Hogan Creek watershed. Several key efforts completed in the WBID are summarized 

below, as well as activities that are expected to continue or to be implemented in future years. 

The efforts outlined in the project tables, including the activities highlighted below, will reduce 

fecal coliform loading and improve water quality in Hogan Creek based on the best information 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

67

available about fecal coliform sources. As water quality improves in response to these actions 

and the bacteria source information is refined, future BMAPs may recommend different activities 

or levels of effort. For this BMAP, the full implementation of the projects and programs listed in 

the project tables for the Hogan Creek watershed is sufficient to significantly reduce fecal 

coliform sources and make substantial progress towards meeting the TMDL.

7.4.1 OS TDS

OSTDS Inspection – Based on the current GIS database, there are approximately 428 septic 

tanks in the watershed. Very few are estimated to be near surface waters and therefore are not 

considered significant potential sources directly affecting surface waters. However, many are 

close to stormwater inlets and could be a source to the stormwater conveyance system. Since 

there are no designated failure areas and no plans to connect these neighborhoods to sewer, 

the continuation of the COJ CARE system to report and follow up with public complaints, as well 

as the DCHD inspections and permit programs, are vital to identifying improperly functioning 

OSTDS. COJ and DCHD have committed to continuing these programs, documenting

problems, and requiring property owners to fix them. They are also committed to the continued 

coordination of their efforts so their respective roles and legal authorities are properly used in 

these situations.

Capital Improvement Projects – Several COJ flood control projects, including two stormwater 

retention ponds, have reduced high-water conditions that can contribute to septic tank failure

from improperly treated waste. COJ PWD should continue to evaluate flooding in the Hogan 

Creek WBID, and if frequent flooding is an issue in areas with high concentrations of OSTDS, 

capital improvement projects should be implemented, depending on available funding to 

address those problems. 

Program Implementation – The Walk the WBIDs effort conducted in September 2008 did not 

reveal any additional septic tank problems. City ordinances, inspections, and program 

implementation, combined with DCHD permit review processes and inspections, proactively 

address potential sources. Program implementation ensures the proper review of new OSTDS

sites and ensures the maintenance of existing systems. These activities need to be continued 

and fully enforced to manage potential impacts from existing systems in the nonfailure areas 

and to prevent the creation of new OSTDS sources. 

7.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, there is one private lift station that 

was constructed in 2007 and inspected by COJ in 2008. In accordance with COJ’s private lift 

station inspection program, COJ is committed to the continued inspection of private lift stations 

in its jurisdiction to ensure that privately owned infrastructure is monitored and properly 

maintained by its owners. 

Sewer Infrastructure Projects – SSOs, previously a significant issue in the WBID, have 

decreased dramatically since 2003. In 2002, JEA repaired one pump station located near 

surface waters that was linked to SSO problems. In 2004, JEA removed the gravity sewer line 

at Pearl Street and installed a lift station and force main, removing the cause of the repetitive 

SSO problem in this area. JEA eliminated a reoccurring SSO on Broad Street by relining the 

force main and then placing the two manholes in the area on the Manhole Monitoring Program. 

JEA addressed the SSO at 6th Street and North Davis by removing and replacing tuberculated 

iron piping, scheduling relining, and cleaning pipes in the surrounding area. The completion of 

these projects has resulted in lower fecal coliform counts in the creek. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

68

Program Implementation – Continued program implementation and additional follow-up, as 

required by the current Walk the WBID effort, as well as the implementation of the JEA Root 

Cause Program to identify infrastructure issues, are needed. Additionally, the implementation of 

systemwide SSO prevention programs, such as FOG and CMOM, should continue. JEA will 

report its inspection, prevention, and maintenance efforts in the WBID as part of the annual 

BMAP reporting process to demonstrate that the system is monitored and maintained. 

7.4.3 S TOR MWATE R

Illicit Connection Removal – Between 2000 and 2008, COJ addressed 12 illegal discharges 

and 19 sewer lines that drained into a yard or ditch, constituting significant source eliminations. 

COJ will follow up and provide information on the status of 1 outstanding PIC investigation in the 

first annual BMAP progress report. COJ and FDOT have committed to continue the PIC 

Program, which includes identifying additional illicit connections and removing those 

connections in a timely manner.

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. The permit program will continue, 

and FDOT will periodically inspect its facilities as part of its MS4 permit to prevent unpermitted 

connections. In addition, the FDOT Adopt-A-Highway Program removes trash from roadways, 

preventing it from entering the stormwater system and providing a potential medium for bacteria 

regrowth. This effort is expected to continue if the Adopt-A-Highway volunteers continue to be 

active in the WBID.

Capital Improvement Projects – FDOT constructed a stormwater improvement project at S.R.

115 and 8th Street that treats 31 acres of roadway and urban runoff through a wet detention 

pond. COJ completed several projects that are expected to relieve flooding and provide 

additional acres of stormwater treatment. These projects have reduced the amount of 

stormwater-related fecal coliform bacteria entering the creek. 

Walk the WBID – As a follow-up to the 2008 Walk the WBID effort in Hogan Creek, COJ PWD 

removed trash from the main channel and conducted maintenance activities on the pond at the 

Venus and Mars apartment complex, which discharges to Hogan Creek. The removal of trash 

from the pond prevented trash from entering the creek and providing a potential medium for 

bacteria regrowth.

7.4.4 WILDLIFE AND OTHE R ANTHR OPOGE NIC S OUR CE S

Ducks and other waterfowl densely populate the pond at Confederate Park and are therefore a 

source of fecal coliform that is considered natural and uncontrollable unless waterfowl 

populations are unnaturally large. Some areas in the watershed, such as the bridge at Broad 

Street, appear to be inhabited by homeless populations. COJ should be aware of this 

potentially significant source and prepare recommendations on how to address the situation in 

the BMAP annual reports until it is resolved. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

69

TABLE 41: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE HOGAN CREEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X 

Enforcement √ √ X X 

Program Implementation √ √ X X 

Permit Review (new and repair permits) X √ X X 

Failure Area Evaluation √ √ X X 

Failure Area Ranking √ √ X X 

Septic Tank Inspection √ √ X X 

Septic Tank Phase-Out - - X X 

Public Education (PSA) √ X X X 

Surface Water Sampling for Conditions and Trends √ X X X 

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X √

Air Release Valve (ARV) Inspection and Rehab X X X * 

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X 

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X 

Sanitary Sewer Overflow (SSO) Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X 

Capital Projects/Stormwater Water Quality BMPs √ X √ X 

Stormwater System Ditch and Canal Maintenance √ X √ X 

Stormwater Pond Maintenance √ X √ X 

Stormwater Pipe Cleaning and Maintenance √ X √ X 

Potential Illicit Connection (PIC) Identification √ X + X 

Illicit Connection Removal √ X - X 

Public Education and Outreach √ X + X 

Surface Water Sampling for Conditions and Trends √ X + X 

Program Implementation √ X √ X 

Pet Waste Management

Ordinances and Enforcement √ X X X 

Public Education and Outreach √ X X X 

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X - 

Tributary Assessment Team (TAT) √ X X - 

Microbial Source Tracking (MST) - X X - 

Thermal Imagery To Identify PICs √ X X X 

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable to the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

70

CHAPTER 8: B UTCHER P E N C REEK (WB ID 2322)

8.1 WB ID DE S CR IPTION

Butcher Pen Creek, WBID 2322, is located in Duval County, west of the LSJR within the Ortega 

River Planning Unit, as designated by SJRWMD (Figure 6). The headwaters of Butcher Pen 

Creek appear to comprise stormwater runoff originating near the intersection of Jammes Road 

and Anvers Boulevard South (Figure 7). The entire creek flows northward in a single channel, 

except for two branches joining Butcher Pen Creek from the west. The more northern of the two 

branches extends west towards Rainer Road and merges with the main channel just east of 

Arthur Durham Drive. The more southern branch extends west towards Solandra Circle West 

and joins the main channel just northwest of Claret Drive. The waters of Butcher Pen Creek 

merge with the Cedar River at Confederate Point and eventually discharge into the Ortega River 

before reaching the St. Johns River (PBS&J, April 2008).

The spatial distribution and acreage of different land use categories in the Butcher Pen Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 42). The 

dominant land use (630 acres; 75.1% of total coverage) in the watershed, and directly adjacent 

to the creek itself, is medium-density residential, which extends throughout the watershed. The 

next 2 most abundant land cover categories are (1) commercial/utility/institutional areas, located 

predominantly along Blanding Boulevard, which bisects the watershed north to south (102.2 

acres; 12.2% of total coverage); and (2) recreational areas, which border the creek from 

Nazworth Road southward to Solandra Drive South and are also found in patchy areas in the 

southwest central portion of the WBID. Upland forests and wetland habitat accounted for less 

than 5% of land use (PBS&J, April 2008). 

According to the 2000 Census, there are 1,873 households in the watershed, averaging 2.5 

people per household. It should be noted that a high-density residential area (16 to 25 people 

per acre) is situated on the eastern side of Butcher Pen Creek between Confederate Point Road 

and its confluence with the St. Johns River (PBS&J, April 2008). In addition, assuming that 40% 

of households have 1 dog (Tyler, 2006), there are an estimated 749 dogs in the watershed.

TABLE 42: L AND US E S IN THE B UTCHE R PE N CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

Medium-Density Residential 630.0 75.1

Commercial/Utility/Institutional 102.2 12.2

Recreational 36.2 4.3

Wetlands 24.1 2.9

Transportation 17.2 2.0

Upland Forest 11.7 1.4

Water 10.7 1.3

High-Density Residential 6.8 0.8

TOTAL: 838.9 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

71

FIGUR E 6: LOCATION OF THE B UTCHE R PE N CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

72

FIGUR E 7: B UTCHE R PE N CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

73

8.2 POTE NTIAL S OUR CE S

8.2.1 POINT S OUR CES

There are no industrial or domestic wastewater facilities, CAFOs, application sites for septic 

residuals, or landfills permitted to discharge to Butcher Pen Creek. The Jacksonville Heights 

WWTF discharges UV-treated wastewater into a ditch system approximately 0.75 miles south of 

the WBID at 5957 Tampico Road. The UV light is used at the WWTF to eliminate bacterial 

contamination, and thus the WWTF should not be a source of fecal coliform as long as the 

required treatment is being performed. The ditch system runs east towards Fishing Creek and 

north into the Butcher Pen WBID, just south of the main stem near the Romilly Drive and 

Jammes Road intersection. Therefore, there is a potential for wastewater discharges from the 

facility to contribute to the bacteriological loading of Butcher Pen Creek. In addition, the 

COJ/FDOT MS4 permit includes the Butcher Pen Creek watershed (PBS&J, April 2008). 

8.2.2 ILLICIT DIS CHAR GE S

COJ EQD is continuing a program to identify, confirm, and respond to illicit connection issues in 

Jacksonville. COJ identified 27 PICs in the Butcher Pen Creek watershed between 2000 and

2005. Three of these were determined to be illicit connections and were removed. There are

14 PICs still pending investigation. 

8.2.3 CE NTR ALIZE D S EWAGE INFR AS TR UCTUR E AND OVERFLOWS

An estimated 1,894 households (approximately 100% of households) are connected to the 

sanitary sewer system in the Butcher Pen Creek watershed. From 2001 to 2007, JEA reported

a total of 16 SSOs within the Butcher Pen Creek WBID boundaries (Table 43). The estimated 

volume of spill associated with these overflows ranged from 10 to 1,200 gallons and averaged 

276 gallons (PBS&J, April 2008). 

The number of reported SSOs has likely contributed to the overall contamination of the 

watershed, considering that 5 of the 16 (31%) reported events were observed to potentially 

impact the associated surface waters. The watershed includes abundant sewer infrastructure 

(e.g., lift station, sewer mains, manholes) near to and crossing either above or below the creek; 

therefore, continual inputs from unidentified sewer infrastructure leaks (e.g., from underground 

sewer mains) may be contributing to the overall bacterial contamination (PBS&J, April 2008). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

74

TABLE 43: SSOS REPOR TE D IN THE B UTCHE R PE N CREEK WATE R S HE D, 2001–07

WB ID NAME

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME 

OF S PILL

(GALLONS ) 

P OTE NTIALLY 

IMPACTE D S UR FACE 

WATERS

Butcher Pen Creek (2322) 19-Apr-02 150 No

Butcher Pen Creek (2322) 6-May-02 20 No

Butcher Pen Creek (2322) 28-May-02 200 No

Butcher Pen Creek (2322) 19-Aug-02* 300 Yes

Butcher Pen Creek (2322) 17-Sep-02 10 No

Butcher Pen Creek (2322) 23-Sep-02* 1,200 Yes

Butcher Pen Creek (2322) 25-Sep-02 10 No

Butcher Pen Creek (2322) 8-Jul-03 200 No

Butcher Pen Creek (2322) 22-Oct-03 50 No

Butcher Pen Creek (2322) 17-Oct-04 500 No

Butcher Pen Creek (2322) 2-Nov-04* 800 Yes

Butcher Pen Creek (2322) 1-Dec-04 20 No

Butcher Pen Creek (2322) 9-Dec-05 100 No

Butcher Pen Creek (2322) 14-Feb-06 30 No

Butcher Pen Creek (2322) 10-Oct-07* 770 Yes

Butcher Pen Creek (2322) 8-Mar-08* 50 Yes

Note: The October 2007 and March 2008 SSOs occurred after the reporting period. 

*Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters.

8.2.4 OS TDS

WSEA estimates that there are a total of 108 septic tanks in the WBID. According to DCHD, 13 

septic tank repair permits were issued in the area. The majority of the permits, and presumably 

failed septic systems, were located in the northeast corner of the WBID. 

There is one DCHD-designated septic-tank failure area, Cedar River, located in the watershed. 

Approximately 15% of the failure area is within the WBID. Since the majority of homes are 

connected to sanitary sewer in the Butcher Pen Creek watershed, it is unlikely that septic tanks 

are responsible for the high levels of fecal coliform that have been observed (PBS&J, April 

2008). 

8.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Butcher Pen WBID contains predominantly 

10 to 25% impervious surface; however, the majority of land close to the creek has greater than 

25% impervious surface. It should be noted that although more elevated levels of fecal coliform 

contamination appear to be associated with areas of higher percent impervious surface, the 

high density of wastewater infrastructure in these portions of the watershed should also be 

considered as a likely source. Furthermore, the calculation of runoff coefficients demonstrates 

that the majority of the WBID contains a moderate-to-high potential for stormwater runoff, 

especially near the creek (PBS&J, April 2008). 

The storm sewer network in the Butcher Pen Creek watershed includes a total of 8 permitted 

stormwater treatment areas, encompassing approximately 25.82% of the WBID area. 

Stormwater infrastructure in the WBID includes 72 outfalls by receiving water (none classified by 

FDEP as a major outfall) and 411 inlets. Although closed conveyances are common throughout 

the WBID, ditch systems are primarily confined to the western and southern portions (PBS&J, 

April 2008). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

75

Higher concentrations of fecal coliform were identified in the “wet” season (June through 

October), suggesting that the majority of bacterial loading was delivered to Butcher Pen Creek 

through nonpoint source discharges, failing wastewater conveyance systems, or septic systems 

during high rainfall. Elevated levels of fecal coliform following rainfall may be an indication that 

pollution from unidentified sources (e.g., leaking wastewater conveyance systems) is being 

transported by stormwater into Butcher Pen Creek.

8.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

8.3.1 JEA ACTIVITIE S IN THE B UTCHE R P E N CREEK WATE R S HE D

8.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

JEA inspected sections of sewer infrastructure in the midstream portion of Butcher Pen Creek 

as part of the TAT-directed reconnaissance. Investigations included surcharged dye testing that 

did not identify any leaks into the creek; however, a manhole located at 4557 Arthur Durham 

Drive did show evidence of a recent overflow. JEA reported that additional investigations of the 

line were being conducted. A cave-in on a gravity line was also identified at a pump station at 

4807 Ducheneau Drive and was given a priority status for repair. There was no evidence of 

overflow at that location (PBS&J, April 2008). 

JEA conducts several types of activities to replace or rehabilitate failing or leaking infrastructure, 

including pipe bursting, CIPP, and open cut. A total of 15.75% of the sewer lines in the WBID

have been pipe bursted, 0.89% have CIPP, and 0.39% have been repaired through open cut. 

JEA has also replaced or repaired components on 3 of the 8 (37.5%) lift stations in the WBID. 

In addition, JEA conducts activities to help prevent future infrastructure problems. In FY07, JEA 

inspected 1,594 LF of pipe and cleaned 6,467 LF of pipe. These activities will continue in the 

future to maintain the sanitary sewer system and prevent future problems. 

Table 44 provides additional information on JEA’s activities in the Butcher Pen Creek 

watershed. 

 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

76

TABLE 44: JEA AC TIVITIE S IN THE B UTCHE R PE N CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

Sewer Upgrades

JEA – 32 Pipe Bursting – Increase Carrying 

Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 71,072 $5,440,212 JEA Ongoing FY00

JEA – 33 CIPP – Install New Inner Lining Rehabilitate failing/leaking 

infrastructure

Total footage of CIPP in watershed 

since 2001: 4,030 $741,836 JEA Ongoing FY00

JEA – 34 Open Cut – Removal and 

Replacement

Replace failing/leaking 

infrastructure 

Total footage of open cut 

replacement in watershed since 

2001: 1,770

$442,500 JEA Ongoing Ongoing

Other Sewer Infrastructure Upgrades

JEA – 35 Manhole Linings Rehabbed Repair deteriorating 

manhole linings Not applicable $330,469* JEA Ongoing FY01

JEA – 36 Line Inspection of Manhole at 4557 

Arthur Drive

Report on results of 

manhole line inspection Inspect one manhole Unknown JEA Planned 2009

JEA – 37 ARV Inspection and Rehab See Appendix E

2 ARVs replaced within 200 feet of 

tributary (only 3 ARVs total in 

watershed)

$481,873* JEA Ongoing Ongoing

JEA – 38 Pump Station SCADA Upgrades

Retrofitting completed in 

2004; all stations 

constructed since have 

SCADA installed. See 

Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 39

Inspect Force Main Discharge 

Manholes, Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 40 Pump Station Class I/II Rebuilding

Repair or replace 

components of existing 

pump stations

Projects in watershed since 2002: 3 $195,163 JEA Ongoing Ongoing

JEA – 41 Pump Station Repair at 4807 

Ducheneau Drive

Report on status of pump 

station repair in first annual 

progress report

Repair one pump station Unknown JEA Planned 2009

Programs To Reduce Sewer Problems

JEA – 42 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

program initiated in 

2004

JEA – 43 Pipe TV Inspection

Inspect existing 

infrastructure through use of 

closed-circuit TV system

1,594 LF of pipe inspected (FY07) $163,099* JEA Ongoing Carried over from 

city operation (1997)

JEA – 44 Pipe Cleaning Clean existing pipes to

avoid blockages 6,467 LF of pipe cleaned (FY07) $743,054* JEA Ongoing Carried over from city operation (1997)

JEA – 45 Implement CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

77

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

JEA – 46 Manhole Monitoring See Appendix E Not applicable $ 137,526* JEA Ongoing August 2007

JEA – 47 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 48 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 49 Non-Destructive Testing 

Program/Pipe Integrity Testing See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

78

8.3.2 DCHD ACTIVITIE S IN THE B UTCHE R P E N CREE K WATE R S HE D

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer (Appendix E). As of July 28, 2008, 

DCHD updated the listing of failure and nuisance areas. There is currently 1 designated failure 

area, Cedar River, in the Butcher Pen Creek watershed. Approximately 15% of this area is 

located in the WBID.

As part of the OSTDS Program, DCHD has issued 4 new construction permits, 13 repair 

permits, and 5 abandonment permits in the WBID. In addition, 1 annual operating permit has 

been issued for a PBTS in the watershed. DCHD has also performed 22 plan reviews and 13 

complaint investigations. It will continue these activities in the future to reduce and prevent 

issues related to OSTDS. Table 45 shows the DCHD project table for Butcher Pen Creek.

TABLE 45: DCHD ACTIVITIE S IN THE B UTCHE R PE N CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST 

(1996–2008)

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 13 OSTDS Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 4 

new construction 

permits, 13 repair 

permits, and 5 

abandonment 

permits issued

$8,000 FDOH Ongoing

DCHD – 14 Annual Operating 

Permits 

Annual operating 

permits issued for 

PBTS, systems 

located in IMZ, and 

commercial systems

1 annual operating 

permit issued for 

PBTS/IMZ in 

WBID

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 15 SWIM Project 

Implementation of 

broad-ranging septic 

tank ordinance

Approximately 

15% of Cedar 

River Septic Tank 

Failure Area is in 

WBID

$48,750

FDOH/ 

LSJR 

SWIM 

Grant

Completed

DCHD – 16 DCHD-Sponsored 

Training Programs

Annual training 

programs held for 

septic tank 

contractors, certified 

plumbers, 

maintenance entities, 

and environmental 

health professionals

1 to 2 trainings per 

year providing up 

to 12 contact 

hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 17

Application/ 

Plan Review/ 

Site Evaluations

DCHD performs plan 

review and site 

evaluation for each 

application received 

for OSTDS new 

construction, repair, 

or modification of 

existing system

Approximately 22 

plan reviews and 

site evaluations 

have been 

performed in 

WBID based on 

permitting history

$5,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 18 Septic Tank Failure 

Area Ranking

Septic tank failure 

area scored and 

prioritized on annual 

basis

Less than 1 year 

since previous 

update

Not 

applicable Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

79

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST 

(1996–2008)

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 19 Complaint 

Investigations

DCHD investigates

all complaints 

received, performs 

site visit, and initiates 

enforcement action 

on sanitary nuisance 

violations

13 complaint 

investigations 

have been 

performed in 

WBID

$1,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

8.3.3 COJ ACTIVITIE S IN THE B UTCHE R P E N CREEK WATE R S HE D

8.3.3.1 Completed COJ Projects

COJ PWD has completed 2 wet detention projects in the watershed to capture and treat 

stormwater runoff: the Wesconnett Boulevard and La Moya Roadway projects treat 396 acres 

and 17 acres, respectively. These projects help to reduce stormwater-associated bacterial 

loadings to Butcher Pen Creek. 

8.3.3.2 Ongoing COJ Programs and Activities

COJ has also established a monitoring plan to evaluate the effectiveness of the SWMP and the 

associated pollutant reduction from MS4 systems to waters of the state. As part of this plan, 

COJ has 1 routine monitoring station in the watershed that is sampled quarterly. A total of 46 

samples were taken at this station between 1995 and 2008. In addition to the routine sampling, 

COJ EQD also participates in the TAT and has collected 12 samples at 8 sites as part of this 

effort. 

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 115 work orders for ditch and 

creek regrading, erosion control, and cleaning; 2 work orders for lake and pond maintenance; 

and 76 work orders for the repair of blocked structures and measures to prevent flooding. 

These work orders were completed between 2005 and 2008. PWD will continue a level of effort 

to maintain the MS4 conveyances based on CARE requests.

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. A total of 27 PICs were identified, with 3 confirmed as 

illicit and removed, and 14 still pending investigation. As part of the PIC Program, COJ EQD 

provides public outreach through educational pamphlets, informational door hangers, and the 

storm drain–stenciling program. 

COJ PWD also conducts inspections in the watershed that are initiated through the CARE 

database. Between 2000 and 2008, PWD conducted two investigations into illicit water 

discharges, four illegal discharges, two sewer lines that drained into a yard or ditch, and nine 

SSOs. PWD will maintain a future level of effort for these investigations based on requests, 

which are logged and tracked through the CARE database. 

Table 46 provides additional details on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

80

TABLE 46: COJ ACTIVITIE S IN THE B UTCHE R PE N CREE K WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

TOTAL 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

Capital Improvement Projects

COJ – 43 Wesconnett Blvd (Blanding to Blanding) Wet detention 396 acres Unknown COJ Complete

COJ – 44 La Moya Roadway Project Wet detention 17 acres Unknown COJ Complete

MS4 Maintenance Activities

COJ – 45 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE requests. Costs 

limited to activities completed after release of work 

order system. 

115 (for 2005–08) $7,000 COJ Ongoing

COJ – 46 Lake or Pond Problem 2 (for 2005–08) Unknown COJ Ongoing

COJ – 47 Structure Blocked/Repair/General 

Flooding 76 (for 2005–08) $38,484 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 48 Illicit Water Discharge CARE-initiated Inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 49 Pollution – Water – Illegal Discharge CARE-initiated Inspection 4 (for 2000–08) $848 COJ Ongoing

COJ – 50 Sewer Drains into Yard/Ditch CARE-initiated Inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 51 Sewer Overflow CARE-initiated Inspection 9 (for 2000–08) $1,908 COJ Ongoing

COJ – 52 Private Lift Station Inspection No lift stations in WBID; inspect as ID stations or 

new stations constructed Not applicable Not applicable COJ Ongoing

COJ – 53 Illicit Discharge Detection and Elimination 3 illicit, 14 open 27 (for 2000–05) $5,724 COJ Ongoing

COJ – 54 Follow Up on Outstanding PICs Follow up on 14 open PICs in watershed 14 (for 2009–10) $2,968 COJ Planned

COJ – 55 Routine Surface Water Sampling NPDES permit-related quarterly water quality 

sampling – 1 sampling station in WBID 46 (for 1995–2008) $20,562 COJ Ongoing

COJ – 56 TAT Sampling Conducted by EQD to assess bacteria levels in 

creek and identify potential fecal bacteria sources 8 sites/12 samples $5,364 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 57 Cedar River Failure Area – Septic Tank 

Phase-Out

Phase-out of septic tanks in failure areas (also 

listed as part of larger LSJR Main Stem BMAP 

project)1 69 total tanks, 0 connected Unknown COJ Ongoing

COJ – 58 Outside Failure Areas – Septic Tank 

Phase-Out Phase out program as provided by COJ ordinance 39 total tanks, 0 connected Unknown COJ Ongoing

COJ – 59 Septic Tank Maintenance Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 60 Pet/Animal Management Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35. 1 COJ has committed to removing septic tanks in failure areas that are within 300 meters of a surface water in the 2008 LSJR Main Stem BMAP. COJ must submit a plan to FDEP for 

removing septic tanks within 6 months of completion of the septic tank study, or by June 30, 2011, whichever is earlier. At a minimum, COJ will accomplish a 50% implementation of 

the septic tank phase-out projects by July 31, 2015, with the phase-outs completed by December 31, 2023. For the 10 tributaries addressed in this BMAP, a total of 1,167 septic tanks 

are located in failure areas, although not all of them may be located within 300 meters of a surface waterbody. The failing tanks within 300 meters of a surface waterbody will be 

included in the COJ plan and schedule to phase out tanks and will be identified as Tributaries BMAP-related tanks in the plan.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

81

8.3.4 FDOT ACTIVITIE S IN THE B UTCHE R P E N CREEK WATE R S HE D

8.3.4.1 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

Drainage Connection permit. If connecting entities fail to meet this requirement after sufficient 

warning by FDOT, they will be reported to FDEP, SJRWMD, and, if applicable, to the local 

municipality; these entities regulate stormwater quality through state rules, ordinances, and 

codes. FDOT performs periodic site inspections as part of the MS4 NPDES permit. FDOT also 

sweeps 12 miles of roadways in the watershed monthly, reducing the amount of trash and 

sediment entering the stormwater conveyance system.

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for one monitoring station in the 

Butcher Pen Creek watershed that is sampled quarterly as part of the routine monitoring 

program. FDOT will continue these activities in the future to support the maintenance of the 

MS4 system. Table 47 lists FDOT’s activities in the watershed. 

TABLE 47: FDOT ACTIVITIE S IN THE B UTCHE R PE N CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Identification and Removal of Illicit Connections

FDOT – 13 PIC Program – Search for 

Illicit Connections See Note 1 State of Florida (FDOT)/COJ Effort is continuous in WBID Ongoing

FDOT – 14 

PIC Program - Illicit 

Connections Identified and 

Removed in WBID if Found 

To Be Truly Illicit

See Note 1 State of Florida 

(FDOT)/COJ

No illicit connection found to 

date Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 15 

Routine Tributary 

Monitoring as Part of MS4 

Permit

See Note 2 State of Florida 

(FDOT)/COJ 1 station quarterly Ongoing

Drainage Connection Program (DCP)

FDOT – 16 

DCP – Connecting Entity 

Must Certify that All 

Discharges to FDOT MS4 

Are Treated Prior to 

Connection

See Note 3 State of Florida 

(FDOT) Ongoing effort Ongoing

Street Sweeping Program

FDOT – 17 Street Sweeping Program $3,287 State of Florida 

(FDOT)

12 miles of roadway swept

monthly Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

82

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Routine Maintenance Activities

FDOT – 18 Maintain FDOT Stormwater 

Systems See Note 5 State of Florida 

(FDOT)

Clean drainage structures, 

replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair outfall 

ditches, mowing, roadside 

litter removal, respond to 

citizen complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 5 Countywide Program – Average cost is $2,750,735 per year.

8.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 44 through Table 47 list the projects and programs to reduce fecal coliform loading in the 

Butcher Pen Creek watershed. Several key efforts completed in the WBID are summarized 

below, as well as activities that are expected to continue or to be implemented in future years. 

The efforts outlined in the project tables, including the activities highlighted below, will reduce 

fecal coliform loading and improve water quality in Butcher Pen Creek based on the best 

information available about fecal coliform sources. As water quality improves in response to 

these actions and the bacteria source information is refined, future BMAPs may recommend 

different activities or levels of effort. For this BMAP, the full implementation of the projects and 

programs listed in the project tables for the Butcher Pen Creek watershed is sufficient to 

significantly reduce fecal coliform sources and make substantial progress towards meeting the 

TMDL.

8.4.1 OS TDS

Failure Area – Of approximately 108 septic tanks within the WBID boundary, 69 systems are 

located in the Cedar River failure area and are eligible to receive sewer connection. The 

majority of the 13 OSTDS repair permits issued since 1996 are located in the northeastern 

corner of the watershed, in the septic tank failure area. COJ committed to removing septic 

tanks in failure areas that are within 300 meters of surface waters in the 2008 LSJR Main Stem 

BMAP. The failing tanks in the Cedar River failure area in the Butcher Pen Creek watershed 

within 300 meters of surface waters will be included in the COJ phase-out plan and schedule, as 

described in the Main Stem BMAP, and will be identified in the plan as Tributaries BMAP-related 

efforts. 

Program Implementation – Septic tanks do not appear to be a major contributor to fecal 

coliform loading in the WBID. DCHD will continue its programs, inspections, and enforcement

efforts, which will be sufficient to address the remaining OSTDS at this time. 

8.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – The COJ database does not indicate that there are private sewer lift 

stations in the watershed; however, the database only includes private lift stations permitted by 

COJ since 1991, or lift stations that have applied for repair permits since that time. It is likely 

that private lift stations are located in the watershed but have not been identified. As private 

stations are identified or new private lift stations are constructed, COJ will include these stations 

in the BMAP annual progress report and implement annual inspections.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

83

Sewer Infrastructure Projects – Since 2002, the frequency and severity of SSOs has been 

decreasing. JEA replaced 2 ARVs within 200 feet of surface waters, preventing line failure from 

corrosive gases. Three lift stations were rebuilt in the watershed: 1 at the site of a repetitive 

SSO and the others near surface waters. A manhole at 4557 Arthur Durham Drive is scheduled 

for line inspection, and JEA will provide the results of this inspection for the first BMAP annual 

progress report. Additionally, JEA will provide information on the status of the pump station 

repair at 4807 Ducheneau Drive that has a cave-in of the gravity line. JEA will continue these 

efforts and its systemwide programs, and this will be sufficient to address potential sewer 

sources in the WBID at this time. 

Program Implementation – Program implementation, including inspections and line cleaning 

coupled with the Root Cause Program, are proactive activities preventing fecal coliform loading. 

Systemwide SSO prevention programs, such as FOG and CMOM implementation, should be 

continued. JEA will be expected to report its inspection, prevention, and maintenance efforts in 

the WBID as part of the annual BMAP reporting process to ensure that the system is being 

monitored and maintained. 

8.4.3 S TOR MWATE R

Illicit Connection Removal – The PIC Program has removed 3 illicit discharges; however, 14 

inspections are currently still pending. COJ must complete the PIC investigations and either 

execute enforcements or close the cases within a year of BMAP adoption and report the results 

in the annual BMAP progress report. 

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue, 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit to prevent 

unpermitted connections. In addition, FDOT sweeps 12 miles of roadway monthly, preventing 

sediments from entering the stormwater conveyance system, and funds public education 

campaigns addressing nonpoint pollution and preventative measures. FDOT will continue 

stormwater infrastructure maintenance, as these efforts prevent potential regrowth in the MS4 

conveyances. 

COJ Program Implementation – COJ continues to maintain ditches, ponds, and stormwater 

infrastructure to prevent problems and fecal coliform loading from the MS4 system. Since 2005, 

it has completed 76 repairs to the stormwater system in the watershed. Additionally, 2 wet 

detention projects treat over 300 acres, reducing the stormwater-associated fecal coliform 

loading to Butcher Pen Creek. 

TABLE 48: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE B UTCHE R PE N C REEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X

Enforcement √ √ X X

Program Implementation √ √ X X

Permit Review (new and repair permits) X √ X X

Failure Area Evaluation √ √ X X

Failure Area Ranking √ √ X X

Septic Tank Inspection √ √ X X

Septic Tank Phase-Out - - X X

Public Education (PSA) √ X X X

Surface Water Sampling for Conditions and Trends √ X X X
Final Lower St. Johns River Basin Management Action Plan – December 2009 

84

S OUR CE /AC TION COJ DCHD FDOT JEA

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X √

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement - X X X

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X

Sanitary Sewer Overflow (SSO) Investigations - X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects - X - X

Capital Projects/Stormwater Water Quality BMPs √ X - X

Stormwater System Ditch and Canal Maintenance √ X √ X

Stormwater Pond Maintenance √ X * X

Stormwater Pipe Cleaning and Maintenance √ X * X

Potential Illicit Connection (PIC) Identification √ X + X

Illicit Connection Removal √ X X

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X

Program Implementation √ X √ X

Pet Waste Management

Ordinances and Enforcement √ X X X

Public Education and Outreach √ X X X

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X -

Tributary Assessment Team (TAT) √ X X √

Microbial Source Tracking (MST) √ X X √

Thermal Imagery To Identify PICs - X X X

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

85

CHAPTER 9: MILLE R CREEK (WB ID 2287)

9.1 WB ID DE S CR IPTION

Miller Creek, WBID 2287, is located in Duval County, south of the LSJR within the North 

Mainstem Planning Unit, as designated by SJRWMD (Figure 8). The headwaters of Miller 

Creek appear to comprise stormwater runoff originating at West Seville Street (Figure 9). The 

entire creek flows northward in a single channel, except for two branches that join Miller Creek 

from the east (more northern branch) and west (more southern branch). Segments of each 

branch appear to be man-made and are classified by COJ PWD as ditches. The more northern 

of the two branches extends east towards the Hart Bridge Expressway and merges with the 

main channel just east of Luce Street. The more southern branch extends northwest to just 

south of South Street and joins the main channel east of the intersection of Drexel Street and 

Schumacher Avenue. The main channel widens just downstream of Atlantic Boulevard and 

merges with the St. Johns River north of Morier Street (PBS&J, May 2008). 

The spatial distribution and acreage of different land use categories in the Miller Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 49). Miller 

Creek traverses the watershed within a commercial/utility/institutional landscape that supports 

neighboring high-, medium-, and low-density residential communities. The dominant land use 

(212.8 acres; 33.8% of total coverage) in the Miller Creek watershed, and found adjacent to the 

lower reaches of the creek and in patches throughout the watershed, is medium-density 

residential. The next two most abundant land cover categories are (1) commercial/utility/

institutional areas (169.7 acres; 27% of total coverage), and (2) high-density residential (103.6 

acres; 16.5% of total coverage). Upland forests and wetland habitat accounted for less than 5% 

of land use (PBS&J, May 2008). 

According to the 2000 Census, there are 1,618 households in the watershed, averaging 1.93 

people per household. Areas with the highest population densities are not located directly 

adjacent to the creek, except for one area (population density 16 to 25 people per acre) 

adjacent to the east side of the creek, between Beach and Atlantic Boulevards (PBS&J, May 

2008). In addition, assuming that 40% of households have 1 dog (Tyler, 2006), there are an 

estimated 647 dogs in the watershed.

TABLE 49: L AND US E S IN THE MILLE R CREEK WATE R S HE D

2004 L AND US E ACRES % OF TOTAL

Medium-Density Residential Total 212.8 33.8

Commercial/ Utility/Institutional Total 169.7 27.0

High-Density Residential Total 103.6 16.5

Low-Density Residential Total 61.8 9.8

Transportation Total 36.9 5.9

Wetlands Total 13.8 2.2

Water Total 12.8 2.0

Upland Forest Total 7.2 1.1

Recreational Total 6.9 1.1

Open Land Total 3.8 0.6

TOTAL: 629.3 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

86

FIGUR E 8: LOCATION OF THE MILLE R CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

87

F IGUR E 9: MILLE R CREEK WB ID LOCATOR MA P
Final Lower St. Johns River Basin Management Action Plan – December 2009 

88

9.2 POTE NTIAL S OUR CE S

9.2.1 POINT S OUR CES

There are no industrial or domestic wastewater facilities, CAFOs, application sites for septic 

residuals, or landfills permitted to discharge to Miller Creek. The COJ/FDOT MS4 permit 

includes the Miller Creek watershed (PBS&J, May 2008). 

9.2.2 ILLICIT DIS CHAR GE S

COJ EQD is continuing a program to identify, confirm and respond to illicit connection issues in 

Jacksonville. A total of 13 PICs were identified in the Miller Creek watershed between 1998 and 

2004. Of these, 1 connection was determined to be illicit and was removed from the system. 

The program did not include the inspection of closed conveyance systems; therefore, 

unidentified illicit connections may be present within this watershed.

9.2.3 CE NTR ALIZE D S EWER INFR AS TR UCTUR E AND OVERFLOWS

An estimated 986 households (approximately 61% of households) are connected to the sanitary 

sewer system in the Miller Creek watershed. The associated sewer lines, sanitary sewer lift 

stations, and other infrastructure (e.g., manholes) have the potential to contribute fecal 

contamination to surface waters. JEA has reported a total of 4 SSOs within the WBID 

boundaries (Table 50). The estimated volume of spill associated with these overflows ranged 

from 30 to 540 gallons and averaged 180 gallons; however, all SSOs were contained at spill 

sites and did not have any potential to impact surface waters. 

As such, it is unlikely that the occurrences of reported SSOs in the Miller Creek watershed have 

contributed to the overall contamination of the watershed; moreover, these incidents do not 

explain the persistently elevated levels of fecal coliform detected at water quality monitoring 

stations. It is possible, however, that unidentified sewer infrastructure leaks and SSOs from 

privately owned infrastructure in the area are contributing to this pollution. For example, signs 

of prior sewer overflows were observed (e.g., soil erosion from a wet well and an associated

manhole approximately 200 feet to the west, both leading in the direction of Miller Creek) by 

COJ EQD (January 31, 2008) during an investigation of a privately owned and operated lift 

station (PBS&J, May 2008). 

TABLE 50: S S OS R E POR TE D IN THE MILLE R CREEK WATE R S HE D, 2001–07

WB ID NAME 

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME OF 

S PILL 

(GALLONS ) 

Miller Creek (2287) 22-Jan-02 540

Miller Creek (2287) 16-Apr-02 100

Miller Creek (2287) 10-Mar-03 30

Miller Creek (2287) 8-Nov-05 50

9.2.4 OS TDS

WSEA estimates that there are approximately 386 OSTDS in the Miller Creek watershed. 

According to DCHD, 37 septic tank repair permits were issued in this area. All of the repair 

permits, and presumably failed septic systems, were located east of Miller Creek’s main channel 

in the northern corner and central portion of the WBID. Parcels with prior septic tank repair

permits are closest to the surface waters (within approximately 275 feet or less) of Miller Creek 

north of Atlantic Boulevard, and are approximately 700 feet from surface waters in the segment 

of the creek extending from Atlantic Boulevard south to Beach Boulevard (PBS&J, May 2008). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

89

Approximately 38% of the DCHD-designated St. Nicholas Septic Tank Failure Area is located in 

the Miller Creek watershed. 

9.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Miller Creek WBID contains predominately 

10 to 25% and greater than 25% impervious surface. Areas with greater than 25% impervious 

surface are primarily located along Atlantic and Beach Boulevards and in the eastern corners of 

the WBID. Furthermore, the potential for stormwater runoff analysis demonstrates that the 

majority of the WBID contains a moderate-to-high potential for runoff, especially near the creek. 

Areas with the highest stormwater runoff coefficients correspond to regions with greater than

25% impervious surface and are located along Beach and Atlantic Boulevards and in the 

easternmost corner of the WBID (PBS&J, May 2008). 

The storm sewer network in the Miller Creek watershed includes a total of 10 permitted 

stormwater treatment areas, encompassing approximately 8.1% of the WBID area. Stormwater 

infrastructure in the WBID includes 20 outfalls by receiving waters (none classified by FDEP as 

a major outfall) and 309 inlets. Although closed conveyances are common throughout the 

WBID, there are few ditch systems, including 2 that form segments of the southern and northern 

branches (PBS&J, May 2008). 

Fecal coliform concentrations were not found differ significantly between seasons, suggesting a 

constant source of fecal coliform bacteria to Miller Creek through nonpoint source discharges, 

failing wastewater conveyance systems, or septic systems independent of rainfall. It is possible 

that higher loadings occur in the “wet” (June through October) season (e.g., from nonpoint 

sources) and are diluted by increased volumes of water, resulting in fecal coliform 

concentrations that appear to be independent of rainfall (PBS&J, May 2008). 

9.3 P ROJECTS TO ADDR E S S F ECAL C OLIFOR M LOADING

9.3.1 JEA ACTIVITIE S IN THE MILLE R CREEK WATE R S HE D

9.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

JEA has conducted maintenance activities in the watershed that have resulted in pipe bursting 

of 66.17% of the sewer lines and CIPP of 1.14% of the lines. In addition, it inspected 1,642 LF 

of pipe and cleaned 11,106 LF of pipe in FY07. These activities will continue in the future to 

maintain the sanitary sewer system and prevent future problems. Table 51 provides additional 

information on JEA’s activities in the Miller Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

90

TABLE 51: JEA AC TIVITIE S IN THE MILLE R CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P R OJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

Sewer Upgrades

JEA – 50 Pipe Bursting – Increase 

Carrying Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 49,689 $3,764,798 JEA Ongoing FY00

JEA – 51 CIPP – Install New Inner 

Lining

Rehabilitate failing/leaking 

infrastructure

Total footage of CIPP in

watershed since 2001: 832 $34,780 JEA Ongoing FY00

Other Sewer Infrastructure Upgrades

JEA – 52 Manhole Linings 

Rehabbed

Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 53 ARV Inspection and 

Rehab See Appendix E

1 ARVs replaced within 200 feet 

of tributary (1 ARV total in 

watershed)

$481,873* JEA Ongoing Ongoing 

JEA – 54 Pump Station SCADA 

Upgrades

Retrofitting completed in 

2004; all stations constructed 

since have SCADA installed. 

See Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 55

Inspect Force Main 

Discharge Manholes, 

Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

Programs To Reduce Sewer Problems

JEA – 56 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

Program initiated 

in 2004

JEA – 57 Pipe TV Inspection

Inspect existing infrastructure 

through use of closed-circuit 

television

1,642 LF of pipe inspected (FY07) $163,099* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 58 Pipe Cleaning Clean existing pipes to avoid 

blockages 11,106 LF of pipe cleaned (FY07) $743,054* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 59 Implement CMOM 

Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 60 Manhole Monitoring See Appendix E 1 manhole monitor installed in 

watershed as of January 2009 $ 137,526* JEA Ongoing August 2007

JEA – 61 SSO Root Cause 

Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 62 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 63

Non-Destructive Testing 

Program/Pipe Integrity 

Testing

See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

91

9.3.2 DCHD ACTIVITIE S IN THE MILLE R CREEK WATE R S HE D

9.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs.

Failure and nuisance areas were first identified in 1999–2000, and, as of July 28, 2008, DCHD 

updated the listing of failure and nuisance areas. There is currently one designated failure area, 

St. Nicholas, in the Miller Creek watershed. Approximately 38% of the failure area is located in 

the WBID.

As part of the OSTDS Program, DCHD has issued 34 new construction permits, 37 repair 

permits, and 12 abandonment permits in the watershed. In addition, 5 annual operating permits 

have been issued for PBTS in the watershed. DCHD has also performed 84 plan reviews and 

22 complaint investigations. It will continue these efforts in the future to reduce and prevent 

issues related to OSTDS. Table 52 lists DCHD’s projects in the Miller Creek watershed. 

TABLE 52: DCHD ACTIVITIE S IN THE MIL L E R CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 20 OSTDS Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 34 

new construction 

permits, 37 repair 

permits, and 12 

abandonment 

permits issued

$31,000 FDOH Ongoing

DCHD – 21 Annual Operating 

Permits 

Annual operating permits 

issued for PBTS, 

systems located in IMZ, 

and commercial systems

5 operating permits 

issued for PBTS/IMZ 

in WBID

$12,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 22 SWIM Project 

Implementation of broadranging septic tank 

ordinance

Approximately 38% 

of St. Nicholas Septic 

Tank Failure Area is 

in WBID

$6,000

FDOH/ 

LSJR 

SWIM 

Grant

Completed

DCHD – 23 DCHD-Sponsored 

Training Programs

Annual training programs 

held for septic tank 

contractors, certified 

plumbers, maintenance 

entities, and 

environmental health 

professionals

1 to 2 trainings per 

year providing up to 

12 contact hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 24 Application/Plan Review/ 

Site Evaluations

DCHD performs plan 

review and site 

evaluation for each 

application received for 

OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 84 

plan reviews and site 

evaluations have 

been performed in 

WBID based on 

permitting history

$18,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 25 Septic Tank Failure Area 

Ranking

Septic tank failure area 

scored and prioritized on 

an annual basis

Less than 1 year 

since previous 

update

Not 

applicable Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

92

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 26 Complaint Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

22 complaint 

investigations have 

been performed in 

WBID

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 27 Intensive Inspection 

Program 

Intensive geospecific 

inspections in selected 

WBIDs based on repair 

permit applications, 

water quality information,

and site conditions; 

additional WBIDs may be 

identified in future based 

on assessment efforts

Approximately 60 

OSTDS located 

south of Interstate 

10, between Mayfair 

Village Road and 

Executive Center 

Drive

$9,300 Unknown

Planned – 

pending 

funding

9.3.3 COJ ACTIVITIE S IN THE MILLE R CREEK WATE R S HE D

9.3.3.1 Completed COJ Projects

COJ EQD discovered an intermittent but persistent overflow of a private lift station manhole at 

an apartment complex directly adjacent to Miller Creek. The lift station and manhole were not 

up to code; thus enforcement action was initiated to ensure that corrective actions were 

performed to bring the facility into compliance. Correcting the problems at this private lift station 

has reduced the number of SSOs and decreased fecal coliform loading to the creek.

9.3.3.2 Ongoing COJ Programs and Activities

COJ has also established a monitoring plan to evaluate the effectiveness of the SWMP and the 

associated pollutant reduction from MS4 systems to waters of the state. In Miller Creek, COJ 

has 1 routine monitoring station that is sampled quarterly. A total of 42 samples were collected 

at this station between 1995 and 2008. In addition to the routine sampling, COJ EQD has also 

collected 15 samples at 8 sites as part of the TAT effort.

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 45 work orders for ditch and 

creek regrading, erosion control, and cleaning; and 77 work orders for the repair of blocked 

structures and measures to prevent flooding. These work orders were completed between 2005 

and 2008. PWD will continue a level of effort to maintain the MS4 conveyances based on 

CARE requests.

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. Thirteen PICs have been identified in the Miller Creek 

watershed, with 1 PIC confirmed as illicit and removed. As part of the PIC Program, COJ EQD 

provides public outreach through educational pamphlets, informational door hangers, and the 

storm drain–stenciling program. 

COJ PWD also conducts inspections that are initiated through the CARE database. In the Miller 

Creek watershed, between 2000 and 2008, these included two investigations into illicit water 

discharges, three illegal discharges, two sewer lines that drained into a yard or ditch, nine 

SSOs, and five private lift stations. PWD will maintain a future level of effort for these 

investigations based on requests, which are logged and tracked through the CARE database. 

Table 53 provides additional details on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

93

TABLE 53: COJ ACTIVITIE S IN THE MILLE R CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

MS4 Maintenance Activities

COJ – 61 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE requests. Costs 

limited to activities completed after release of work 

order system. 

45 (for 2005–08) $1,830.65 COJ Ongoing

COJ – 62 Structure Blocked/Repair/General 

Flooding 77 (for 2005–08) $7,569.21 COJ Ongoing

COJ – 63 Thin Vegetation at Mayfair Road and 

Bridgewater Road

Thin vegetation at Mayfair Road and Bridgewater 

Road

Clear vegetation (for 

2009–10) Unknown COJ Planned

Inspection, Enforcement, and Sampling

COJ – 64 Illicit Water Discharge CARE-initiated Inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 65 Pollution – Water – Illegal Discharge CARE-initiated Inspection 3 (for 2000–08) $636 COJ Ongoing

COJ – 66 Sewer Drains into Yard/Ditch CARE-initiated Inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 67 Sewer Overflow CARE-initiated Inspection 9 (for 2000–08) $1,908 COJ Ongoing

COJ – 68 Private Lift Station Inspection First lift station installed in 1992 with 71 total annual 

inspections 5 (for 1992–2008) $1,060 COJ Ongoing

COJ – 69 Enforcement at The Preserve at St. 

Nicholas Apartments

Provide status of enforcement for annual progress 

report

Status of 

enforcement (for 

2009–10)

$3,000 COJ Ongoing

COJ – 70 Illicit Discharge Detection and 

Elimination 1 illicit, no open 13 (for 1998–2004) $2,756 COJ Ongoing

COJ – 71 Routine Surface Water Sampling NPDES permit-related quarterly water quality 

sampling – 1 sampling station in WBID 42 (for 1995–2008) $18,774 COJ Ongoing

COJ – 72 TAT Sampling Conducted by EQD to assess bacteria levels in creek

and identify potential fecal bacteria sources 8 sites/15 samples $6,705 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 73 Saint Nicholas Failure Area – Septic 

Tank Phase-Out

Phase-out of septic tanks in failure areas (also listed 

as part of larger LSJR Main Stem BMAP project)1 359 total tanks, 0 connected Unknown COJ Ongoing

COJ – 74 Outside Failure Areas – Septic Tank 

Phase-Out Phase out program as provided by COJ ordinance 27 total tanks, 0 connected Unknown COJ Ongoing

COJ – 75 Septic Tank Maintenance Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 76 Pet/Animal Management Public 

Education Public service announcements Ongoing Unknown COJ Ongoing 

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35. 1 COJ has committed to removing septic tanks in failure areas that are within 300 meters of a surface waterbody in the 2008 LSJR Main Stem BMAP. COJ must submit a plan to FDEP for 

removing septic tanks within 6 months of completion of the septic tank study, or by June 30, 2011, whichever is earlier. At a minimum, COJ will accomplish a 50% implementation of the septic 

tank phase-out projects by July 31, 2015, with the phase-outs completed by December 31, 2023. For the 10 tributaries addressed in this BMAP, a total of 1,167 septic tanks are located in 

failure areas, although not all of them may be located within 300 meters of a surface waterbody. The failing tanks within 300 meters of a surface waterbody will be included in the COJ plan 

and schedule to phase out tanks and will be identified as Tributaries BMAP-related tanks in the plan.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

94

9.3.4 FDOT ACTIVITIE S IN THE MILLE R CREEK WATE R S HE D

9.3.4.1 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

will be reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities

regulate stormwater quality through state rules, ordinances, and codes. FDOT performs 

periodic site inspections as part of the MS4 NPDES permit. FDOT supports the Adopt-AHighway Program in the watershed, in which trash is collected from 23 acres for an average 

annual removal of 1,225 pounds. Street sweeping also occurs monthly on 28 miles of 

roadways, reducing the amount of trash and sediment entering the stormwater conveyance 

system. As part of the maintenance program, FDOT removes sediment, trash, and debris from 

the system, as needed. This maintenance occurs in 130 inlets and 5 miles of piping in the 

WBID.

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for one monitoring station in the 

Miller Creek watershed that is sampled quarterly as part of the routine monitoring program. 

FDOT will continue these activities in the future to support the maintenance of the MS4 system. 

Table 54 lists FDOT’s activities in the watershed. 

TABLE 54: FDOT ACTIVITIE S IN THE MILLE R CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Identification and Removal of Illicit Connections

FDOT – 19 PIC Program – Search for Illicit 

Connections See Note 1

State of 

Florida 

(FDOT)/COJ

Effort is continuous in WBID Ongoing

FDOT – 20 

PIC Program – Illicit Connections 

Identified and Removed in WBID if 

Found To Be Truly Illicit

See Note 1

State of 

Florida 

(FDOT)/COJ

No illicit connection found to 

date Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 21 Routine Tributary Monitoring as Part 

of MS4 Permit See Note 2

State of 

Florida 

(FDOT)/COJ

1 station quarterly Ongoing

Drainage Connection Program (DCP)

FDOT – 22 

DCP – Connecting Entity Must Certify 

that All Discharges to FDOT MS4 Are 

Treated Prior to Connection

See Note 3

State of 

Florida 

(FDOT)

Ongoing effort Ongoing

Adopt-A-Highway Program

FDOT – 23 Adopt-A-Highway Program See Note 4 Not applicable

Trash collected from 23 acres. 

Trash collected annually 

averages 1,225 pounds.

Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

95

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 24 Sediment Accumulation, Trash, and 

Debris Removed as Needed $25,982

State of 

Florida 

(FDOT)

Approximately 130 

inlets/catch basins and about 

5 miles of piping

Ongoing

Street Sweeping Program

FDOT – 25 Street Sweeping Program $7,670

State of 

Florida 

(FDOT)

28 miles of roadway swept

monthly Ongoing

Routine Maintenance Activities

FDOT – 26 Maintain FDOT Stormwater Systems See Note 5

State of 

Florida 

(FDOT)

Clean drainage structures, 

replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair outfall 

ditches, mowing, roadside 

litter removal, respond to 

citizen complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 4 Associated cost unknown. Program is voluntary.

5 Countywide Program – Average cost is $2,750,735 per year.

9.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 51 through Table 54 list the projects and programs to reduce fecal coliform loading in the 

Miller Creek watershed. Several key efforts completed in the WBID are summarized below, as 

well as activities that are expected to continue or to be implemented in future years. The efforts 

outlined in the project tables, including the activities highlighted below, will reduce fecal coliform 

loading and improve water quality in Miller Creek based on the best information available about 

fecal coliform sources. As water quality improves in response to these actions and the bacteria 

source information is refined, future BMAPs may recommend different activities or levels of 

effort. For this BMAP, the full implementation of the projects and programs listed in the project 

tables for the Miller Creek watershed is sufficient to significantly reduce fecal coliform sources 

and make substantial progress towards meeting the TMDL.

9.4.1 OS TDS

Failure Area – WSEA estimates that there are approximately 386 OSTDS in the watershed, 

with 359 of these systems are located in the St. Nicholas failure area. According to DCHD, 37 

septic tank repair permits were issued in the watershed, all located in the failure area. Many of 

these parcels are close to either surface waters or stormwater inlets. COJ has committed to 

removing septic tanks in failure areas that are within 300 meters of surface waters in the 2008 

LSJR Main Stem BMAP. The failing tanks in the St. Nicholas failure area that are in the Miller 

Creek watershed within 300 meters of surface waters will be included in the COJ phase-out plan 

and schedule, as described in the Main Stem BMAP, and will be identified in the plan as 

Tributaries BMAP-related efforts. 

Program Implementation – Twelve abandonment permits issued since 1996, 5 annual 

operating permits, and ongoing plan reviews indicate continuous activity in the watershed. As 

DCHD has performed 84 site evaluations and 22 complaint investigations, inspectors are in the 

watershed relatively frequently, which assists in the proactive identification of potentially failing 

systems. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

96

However, a discrete portion of the WBID has a higher probability of OSTDS-related problems 

based on the number of repair permits issued, water quality data, and site conditions. DCHD 

will seek to secure funding for a new program to intensively inspect a specific geographic area 

within the WBID boundary and, upon obtaining funding, will report the results of the inspection in 

an annual BMAP progress report. 

Additional areas may be identified for intensive inspections based on the assessment efforts 

discussed in the BMAP. If additional areas are designated in the future for inclusion in the 

program, these areas will also be inspected as funding becomes available. Currently, COJ

ordinances, the septic tank failure program in partnership with WSEA, and DCHD program 

implementation address OSTDS as a source of fecal coliform loading. Inspections need to be 

continued and fully enforced to manage potential impacts from existing systems in the 

nonfailure areas and to prevent new sources from reaching surface waters. 

9.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, there are 5 private lift stations within 

the WBID boundaries and 3 situated on the boundary line in the northeastern portion of the 

WBID. COJ EQD has performed 71 annual inspections on private lift stations since 1992 and 

will continue to inspect these stations annually. 

Currently, COJ has one lift station and one manhole at The Preserve at St. Nicholas Apartments 

under enforcement. COJ TAT sampling in this area has continued to show high fecal coliform 

counts, and MST sampling confirmed a human source. EQD will work with the apartment 

complex to address any identified structural problems and will provide information on 

enforcement status in the annual BMAP progress report. 

Sewer Infrastructure Projects – The watershed has had few JEA SSOs and none that 

reached surface waters. JEA pipe bursted over 60% of the infrastructure and has replaced the 

1 ARV in the watershed. JEA has 1 lift station near surface waters and, during the Walk the 

WBIDs exercise in September 2008, there were no observed problems at this station. The 

continuation of these maintenance activities and program implementation is sufficient to address 

sewer infrastructure as a source of fecal coliform at this time.

Program Implementation – Program implementation, including inspections and line cleaning 

coupled with the Root Cause Program, are proactive measures preventing fecal coliform 

loading. In addition, the implementation of systemwide SSO prevention programs, such as 

FOG and CMOM, should be continued. JEA will report its inspection, prevention, and 

maintenance efforts in the WBID as part of the annual BMAP reporting process to demonstrate 

that the system is monitored and maintained. 

9.4.3 S TOR MWATE R

Illicit Connection Removal – COJ, as part of its efforts with the PIC Program, identified and 

removed one illicit connection. COJ and FDOT have committed to continue the PIC Program, 

including identifying additional illicit connections and removing those connections in a timely 

manner. 

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue, 

and FDOT will continue to periodically inspect its conveyances to prevent unpermitted 

connections. There is a significant amount of stormwater infrastructure in the watershed, and 

FDOT will continue stormwater infrastructure maintenance, as these efforts prevent potential 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

97

regrowth in the MS4 conveyances. Additionally, 28 miles of roads are swept monthly and over 

1,200 pounds of trash are collected annually through the Adopt-A-Highway Program, proactively 

preventing fecal coliform loading to the stormwater system. This effort is expected to continue if 

the Adopt-A-Highway volunteers continue to be active in the WBID.

COJ Program Implementation – COJ PWD conducts activities to maintain the MS4 system. In 

the last 4 years, COJ completed 45 work orders for ditch maintenance and cleaning, and 

performed 77 infrastructure repairs on closed conveyances. It will continue its maintenance 

activities in the watershed to prevent future problems and fecal coliform loadings. 

Walk the WBID – The Walk the WBID exercise in Miller Creek identified an open conveyance at 

Mayfair Road and Bridgewater Road that is very heavily vegetated. COJ PWD will schedule 

maintenance to thin the vegetation within one year of BMAP adoption and report on activities in 

the first annual BMAP progress report. This activity will allow UV light to penetrate the creek, 

which should reduce fecal coliform in the area, since it is suspected that bacteria grow and 

persist in low-light conditions.

9.4.4 WILDLIFE AND OTHE R ANTHR OPOGE NIC S OUR CE S

During the Walk the WBID exercise, there was evidence of dog feces and cat litter in the 

northern fork of the waterbody, indicating fecal coliform sources that could be addressed 

through public education activities. Additionally, there is evidence of homeless populations on 

the main channel of the creek, and it is suspected that the southern fork of the creek 

occasionally has homeless camps. COJ should be aware of this potentially significant source 

and prepare some recommendations on how to address the situation in the annual reports until 

it is resolved.

TABLE 55: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE MILLE R CREEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X

Enforcement √ √ X X

Program Implementation √ √ X X

Permit Review (new and repair permits) X √ X X

Failure Area Evaluation √ √ X X

Failure Area Ranking √ √ X X

Septic Tank Inspection √ √ X X

Septic Tank Phase-Out - - X X

Public Education (PSA) √ X X X

Surface Water Sampling for Conditions and Trends √ X X X

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X -

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X

Sanitary Sewer Overflow (SSO) Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects - X - X

Capital Projects/Stormwater Water Quality BMPs - X - X

Stormwater System Ditch and Canal Maintenance √ X √ X
Final Lower St. Johns River Basin Management Action Plan – December 2009 

98

S OUR CE /AC TION COJ DCHD FDOT JEA

Stormwater Pond Maintenance * X * X

Stormwater Pipe Cleaning and Maintenance √ X √ X

Potential Illicit Connection (PIC) Identification √ X + X

Illicit Connection Removal √ X X

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X

Program Implementation √ X √ X

Pet Waste Management

Ordinances and Enforcement √ X X X

Public Education and Outreach √ X X X

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X

Tributary Assessment Team (TAT) √ X X √

Microbial Source Tracking (MST) √ X X √

Thermal Imagery To Identify PICs X X X

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

99

CHAPTE R 10: MIR AMAR CREEK (WB ID 2304)

10.1 WB ID DE S CR IPTION

Miramar Creek, WBID 2304, is located in Duval County, east of the LSJR within the North 

Mainstem Planning Unit, as designated by SJRWMD (Figure 10). The headwaters of Miramar 

Creek presumably comprise stormwater runoff originating just north of Thomas Court (Figure 

11). The entire creek flows north and then westward in a single channel, except for three 

branches joining Miramar Creek from the north and south. The southern branch is located just 

east of San Jose Boulevard and extends south to Eutaw Place. The northern branch, located 

just east of Gadsden Road, originates at Colonial Pond, a waterbody situated between 

Mapleton and Northwood Road, and merges with the main channel just north of Woodward 

Avenue. The branch located farthest east (“eastern branch”) extends west from Miramar Creek 

just south of Emerson Street and takes a sharp bend to the northeast, extending towards 

Parkwood Street. The waters of Miramar Creek eventually flow into the St Johns River just west 

of Rio Lindo Drive (PBS&J, June 2008a). 

The spatial distribution and acreage of different land use categories in the Miramar Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 56). The 

dominant land use (648.6 acres; 66.7% of total coverage) in the watershed, and directly 

adjacent to the creek itself, is high-density residential, which extends throughout the watershed. 

The next two most abundant land cover categories are (1) medium-density residential areas 

(64.9 acres; 12.4% of total coverage), primarily located in the northwestern corner of the 

watershed; and (2) commercial/utility/institutional areas (47.7 acres; 9.1% of total coverage), 

located predominantly along Emerson Street and Hendricks Avenue. Upland forests and 

wetland habitat accounted for less than 5% of land use (PBS&J, June 2008a). 

According to the 2000 Census, there are 1,246 households in the watershed, averaging 2.2 

people per household. It should be noted that there are high-density residential areas (16 to 25 

people per acre) that extend along nearly the entire southern portion of the watershed, as well 

as parts of the northeastern section (PBS&J, June 2008a). In addition, assuming that 40% of 

households have 1 dog (Tyler, 2006), there are an estimated 498 dogs in the watershed.

TABLE 56: L AND US E S IN THE MIR AMAR CREEK WATE R S HE D

2004 LAND USE ACRES % OF TOTAL

Commercial/Utility/Institutional 47.7 9.1

High-Density Residential 348.6 66.7

Medium-Density Residential 64.9 12.4

Open Land 0.0000010 0.0000002

Recreational 16.7 3.2

Transportation 20.7 4.0

Upland Forest 10.0 1.9

Water 12.1 2.3

Wetlands 1.7 0.3

TOTAL: 522.3 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

100

F IGUR E 10: LOCATION OF THE MIR AMAR CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

101

F IGUR E 11: MIR AMAR CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

102

10.2 POTE NTIAL S OUR CE S

10.2.1 POINT S OUR CES

There are no industrial or domestic wastewater facilities, CAFOs, application sites for septic 

residuals, or landfills permitted to discharge to Miramar Creek. The COJ/FDOT MS4 includes 

the Miramar Creek watershed (PBS&J, June 2008a). 

10.2.2 ILLICIT DIS CHAR GE S

COJ EQD is continuing a program to identify, confirm, and respond to illicit connection issues in 

Jacksonville. A total of 28 PICs were identified in the Miramar Creek watershed through this 

effort from 1998 to 2003. Of these, 6 connections were determined to be illicit and were 

removed. In addition, during the October 31, 2005, JEA MST project sampling event, a black 

discharge flowing from an illicit OSTDS pipe was observed. The elevated levels of fecal 

coliform observed at several monitoring stations indicate that the OSTDS was contributing to the 

bacteriological loading of Miramar Creek. COJ and DCHD took enforcement action, and the 

illicit OSTDS pipe and associated sewage discharge were removed in late 2005 (PBS&J, June 

2008a). 

10.2.3 CE NTR ALIZE D S EWER INFR AS TR UCTUR E AND OVERFLOWS

An estimated 376 households (approximately 30% of households) are connected to the sanitary 

sewer system in the Miramar Creek watershed. Sewer infrastructure (e.g., sewer mains, lift 

stations, manholes) is primarily located in downstream areas of the watershed from Hendricks 

Avenue (including the northern branch) extending west to the confluence of Miramar Creek and 

the St. Johns River. Sewer mains run parallel to and span the width of the creek either above or 

below surface waters in these segments, as well as upstream between St. Augustine Road and 

Freeman Road, increasing the likelihood that possible spills and/or unidentified sewer 

infrastructure leaks will impact surface waters. 

JEA has reported a total of two SSOs within the Miramar Creek WBID boundaries (Table 57). 

Both SSOs were contained at the spill sites and did not have any potential to impact surface 

waters; therefore, it is unlikely that these SSOs, which occurred over a span of seven years, 

were responsible for the extreme levels of fecal coliform bacteria observed at Miramar Creek. 

Other sources, such as unidentified sewer infrastructure leaks and/or faulty OSTDS, may be 

contributing to the overall pollution of the Miramar Creek watershed (PBS&J, June 2008a). 

TABLE 57: S S OS R E POR TE D IN THE MIR AMAR CREEK WATE R S HE D, 2001–07

WB ID NAME 

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME OF S PIL L

(GALLONS ) 

P OTE NTIALLY IMP AC TE D 

S UR FACE WATERS

Miramar Creek (2304) 5-Nov-01 30 No

Miramar Creek (2304) 11-Jul-05* 15,000 No

*Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters.

10.2.4 OS TDS

WSEA estimates that there are approximately 659 OSTDS in the Miramar Creek watershed. 

According to DCHD, 68 septic tank repair permits were issued in this area. The majority of the 

permits, and presumably failed septic systems, were located in (1) the southwestern corner of 

the WBID between San Jose Boulevard and London Road, extending north to Eutaw Place; (2) 

the center of the WBID from Hendricks Avenue east to St. Augustine Road; and (3) the eastern 

portion of the WBID from Inwood Terrace south to Sessions Lane. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

103

In addition, four DCHD-designated septic tank failure areas (Emerson, Point La Vista, Freeman, 

and Inwood Terrace) are located in the central, southwestern, and eastern portions of the 

watershed. Miramar Creek’s surface waters are located within or near to the Point La Vista 

Septic Tank Failure Area from midstream at Hendricks Avenue to the confluence of Miramar 

Creek and the St. Johns River. The Inwood Terrace and Freeman Septic Tank Failure Areas 

are located just west of Drew Road and extend south from Inwood Terrace to Sessions Lane. 

The surface waters of Miramar Creek run adjacent to this area from the intersection of Freeman 

Road and Cato Road south to Sessions Lane (PBS&J, June 2008a). 

Considering the estimated number of OSTDS and the four DCHD-designated septic tank failure 

areas within the WBID boundaries, in addition to the number of repair permits that have been 

filed by property owners throughout the watershed, it is likely that OSTDS contribute to the 

overall bacterial loading of Miramar Creek. This is especially true in the midstream section of 

the watershed, as the potential for failing septic systems was observed in this area (e.g., old 

residential neighborhood; unmounded OSTDS; trees growing in mounded drainfields). 

Moreover, fecal coliform results from the JEA Tributary Pollution Assessment Project (the 

October 31, 2005 sampling event) confirmed that an illicit OSTDS pipe was discharging 

sewage-contaminated water in this area. Leaky sewer infrastructure (e.g., from underground 

sewer mains) may also contribute to fecal pollution in the upstream segments of Miramar Creek 

between St. Augustine Road and Freeman Road, and downstream between Hendricks Avenue 

and the confluence of Miramar Creek and the St. Johns River (PBS&J, June 2008a). 

10.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Miramar Creek WBID contains 

predominantly 10 to 25% impervious surface. The watershed also contains land with greater 

than 25% impervious surface that corresponds to commercial/utility/institutional land uses 

located along Hendricks Avenue, St. Augustine Road, and Emerson Street. An analysis was 

also conducted demonstrating that the majority of the WBID contains a moderate-to-high 

potential for stormwater runoff, including areas near the creek. The highest runoff coefficients 

correspond to areas with greater than 25% impervious surface located on either side of 

Hendricks Avenue and Emerson Street, and in areas along St. Augustine Road (PBS&J, June 

2008a). 

The storm sewer network in the Miramar Creek watershed includes 9 permitted stormwater 

treatment areas, encompassing approximately 8.29% of the WBID area. Stormwater 

infrastructure in the WBID includes 25 outfalls by receiving water (1 classified by FDEP as a 

major outfall) and 213 inlets. Although closed conveyances are common throughout the WBID, 

ditch systems primarily run parallel to and form segments of Miramar Creek extending west from 

San Jose Boulevard to St. Augustine Road (including the eastern branch), and south from 

Emerson Street to Caljon Road (PBS&J, June 2008a). 

Higher concentrations of fecal coliform were identified in the “wet” season (June through 

October), suggesting that the majority of bacterial loading was delivered to Miramar Creek 

through nonpoint source discharges, failing wastewater conveyance systems, or septic systems

during high rainfall. Considering the possibility for dilution during the “wet” season, it is possible 

that loadings observed during this time of the year were even higher than they appeared to be

(PBS&J, June 2008a). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

104

10.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

10.3.1 JEA ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

10.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

As of June 7, 2007, JEA has completed sewer infrastructure rehabilitation and provided new 

regional service for existing developed areas in the Miramar Creek watershed. JEA also 

conducted pipe bursting in the watershed in (1) the eastern portion of the WBID, west of the 

intersection of Hendricks Avenue and Orlando Circle south to the confluence of Miramar Creek 

and the St. Johns River, north to the WBID boundaries; and (2) the north-central portion of the 

WBID, east of the Hendricks Avenue and Lakewood Road intersection to St. Augustine Road, 

north to the limits of the WBID boundary (PBS&J, June 2008a). A total of 4.10% of the sewer 

lines in the watershed have been pipe bursted. 

JEA has also replaced or repaired components on 1 of the 3 (33%) lift stations in the WBID. In 

addition, it has cleaned 2,542 LF of pipe in the watershed to help prevent future infrastructure 

problems. These activities will continue in the future to maintain the sanitary sewer system and 

prevent future problems. Table 58 provides additional information on JEA’s activities in the 

Miramar Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

105

TABLE 58: JEA AC TIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT

ESTIMATED 

COST

FUNDING 

SOURCE

PROJECT 

STATUS

START DATE OF 

PROJECT

Sewer Upgrades

JEA – 64 Pipe Bursting – Increase 

Carrying Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 5,497 $844,984 JEA Ongoing FY00

Other Sewer Infrastructure Upgrades

JEA – 65 Manhole Linings Rehabbed Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 66 ARV Inspection and Rehab See Appendix E

0 ARVs replaced within 200 feet 

of tributary (only 2 ARVs total in 

watershed)

$481,873* JEA Ongoing Ongoing

JEA – 67 Pump Station SCADA 

Upgrades

Retrofitting completed in 2004; 

all stations constructed since 

have SCADA installed. See 

Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 68

Inspect Force Main 

Discharge Manholes; 

Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 69 Pump Station Class I/II 

Rebuilding

Repair or replace components 

of existing pump stations

Projects in watershed since 

2002: 1 $18,503 JEA Ongoing Ongoing

JRA – 70 Confirm Locations of Lift 

Stations on Boundary

Confirm locations of lift stations 

on boundary for first annual 

progress report

2 lift stations on boundary Unknown JEA Planned 2009

JEA – 71

Follow Up on Seep under 

Sewer Line on Northern 

Branch

Follow up on seep under sewer 

line on northern branch as part 

of Walk the WBID

Follow up on seep Unknown JEA Planned 2009

Programs To Reduce Sewer Problems

JEA – 72 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

Program initiated 

in 2004

JEA – 73 Pipe Cleaning Clean existing pipes to avoid 

blockages 2,542 LF of pipe cleaned (FY07) $743,054* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 74 Implement CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 75 Manhole Monitoring See Appendix E Not applicable $ 137,526* JEA Ongoing August 2007

JEA – 76 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 77 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 78

Non-Destructive Testing 

Program/Pipe Integrity 

Testing

See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

106

10.3.2 DCHD ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

10.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs. 

As of July 28, 2008, DCHD updated the listing of failure and nuisance areas. There are 

currently 4 designated failure areas (Emerson, Point La Vista, Freeman, and Inwood Terrace) in 

the Miramar Creek watershed (PBS&J, June 2008a). Fifty-nine percent of the Emerson failure 

area, 25% of the Point La Vista area, and 77.2% of the Freeman and Inwood Terrace areas are

located in the WBID.

As part of the OSTDS Program, DCHD has issued 35 new construction permits, 68 repair 

permits, and 44 abandonment permits in the watershed. In addition, 7 annual operating permits 

have been issued for PBTS. DCHD has also performed 148 plan reviews and site evaluations 

and 106 investigations in response to complaints received. It will continue these efforts in the 

future to reduce and prevent issues related to OSTDS. Table 59 list DCHD’s projects in the 

Miramar Creek watershed. 

TABLE 59: DCHD ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 28 OSTDS

Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 35 new 

construction permits, 68 

repair permits, and 44 

abandonment permits 

issued

$47,500 FDOH Ongoing

DCHD – 29 

Annual 

Operating 

Permits 

Annual operating permits 

issued for PBTS, systems 

located in IMZ, and 

commercial systems

7 annual operating 

permits issued for 

PBTS/IMZ in WBID

$17,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 30 SWIM Project 

Implementation of broadranging septic tank 

ordinance

59% of Emerson, 77.2% 

of Freeman/Inwood 

Terrace, and 24.7% of 

Point La Vista Septic 

Tank Failure Areas are 

located in WBID

$235,000

FDOH/ 

LSJR 

SWIM 

Grant

Completed

DCHD – 31 

DCHDSponsored 

Training 

Programs

Annual training programs 

held for septic tank 

contractors, certified 

plumbers, maintenance 

entities, and 

environmental health 

professionals

1 to 2 trainings per year 

providing up to 12 

contact hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 32 

Application/ 

Plan Review/ 

Site 

Evaluations

DCHD performs plan 

review and site evaluation 

for each application

received for OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 148 plan 

reviews and site 

evaluations have been 

performed in WBID 

based on permitting 

history

$32,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

107

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 33 

Septic Tank 

Failure Area 

Ranking

Septic tank failure area 

scored and prioritized on 

annual basis

Less than 1 year since 

previous update

Not 

applicable Ongoing

DCHD – 34 Complaint 

Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

106 complaint 

investigations have 

been performed in 

WBID

$10,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 35 OSTDS on 

Brooker Road

Investigate home on 

Brooker Road with 

potential OSTDS issues

Inspect and report 

findings in annual 

progress report

Planned

DCHD – 36

Intensive 

Inspection 

Program 

Intensive geospecific 

inspections in selected 

BMAP WBIDs based on 

repair permit applications, 

water quality information,

and site conditions; 

additional WBIDs may be 

identified in future based 

on ongoing assessment 

efforts

Approximately 150 

OSTDS located south of 

Davidson Street to 

Orlando Terrace, east 

of Hendricks Avenue 

and west of Fleet Street

$23,250 Unknown

Planned – 

pending 

funding

10.3.3 COJ ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

10.3.3.1 Completed COJ Projects

COJ has completed three projects to capture and store stormwater in the Miramar Creek 

watershed: (1) the Inwood Terrace area, which treats 5 acres; (2) Miramar Tributary 

Improvements, a flood improvement project that encompasses 23 acres; and (3) a regional 

pond at St. Augustine Road from Emerson to U.S. Highway 1, which treats 167 acres. These 

projects are helping to reduce stormwater-associated fecal coliform loading to Miramar Creek. 

In addition, in the Pine Forest/Larson Acres area, COJ is building a wet detention pond for flood

improvement on 22 acres. Once completed, the project will also reduce bacterial loading to the 

creek.

10.3.3.2 Ongoing COJ Programs and Activities

COJ has also established a monitoring plan to evaluate the effectiveness of the SWMP and the 

associated pollutant reduction from MS4 systems to waters of the state. In Miramar Creek, COJ 

has 1 routine monitoring station that is sampled quarterly; a total of 53 samples were collected

at this station between 1995 and 2008. In addition to the routine sampling, COJ EQD has 

collected 70 samples at 12 sites as part of the TAT.

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 57 work orders for ditch and 

creek regrading, erosion control, and cleaning; 15 work orders for lake and pond maintenance; 

and 31 work orders for the repair of blocked structures and measures to prevent flooding. 

These work orders were completed between 2005 and 2008. PWD will continue a level of effort 

to maintain the MS4 conveyances based on CARE requests. 

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. There were 28 PICs identified in Miramar Creek, of 

which 6 were confirmed as illicit and removed. As part of the PIC Program, COJ EQD provides 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

108

public outreach through educational pamphlets, informational door hangers, and the storm 

drain–stenciling program. 

In the Miramar Creek watershed, COJ PWD conducted inspections between 2000 and 2008

that included two investigations into illicit water discharges, three illegal discharges, two sewer 

lines that drained into a yard or ditch, four SSOs, and two private lift stations. PWD will maintain 

a future level of effort for these investigations based on requests, which are logged and tracked 

through the CARE database. 

Table 60 provides additional detail on COJ’s activities in the Miramar Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

109

TABLE 60: COJ ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT TOTAL COST

FUNDING 

SOURCE

PROJECT 

STATUS

Capital Improvement Projects

COJ – 77 Inwood Terrace Area Relieve flooding by improving conveyances 5 acres $572,000 COJ Complete

COJ – 78 Miramar Tributary Improvements Flood improvement 23 acres $1,200,000 COJ Complete

COJ – 79 Pine Forest/Larson Acres Area Flood improvement, wet detention 22 acres $5,015,000 COJ Construction

COJ – 80 St Augustine Rd (Emerson to U.S.

1) Regional pond 167 acres Unknown COJ Complete

MS4 Maintenance Activities

COJ – 81 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE requests. 

Costs limited to activities completed after release 

of work order system.

57 (for 2005–08) $9,057 COJ Ongoing

COJ – 82 Lake or Pond Problem 15 (for 2005–08) $1,516 COJ Ongoing

COJ – 83 Structure Blocked/Repair/

General Flooding 31 (for 2005–08) $2,510 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 84 Illicit Water Discharge CARE-initiated inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 85 Pollution – Water – Illegal Discharge CARE-initiated inspection 3 (for 2000–08) $636 COJ Ongoing

COJ – 86 Sewer Drains into Yard/Ditch CARE-initiated inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 87 Sewer Overflow CARE-initiated inspection 4 (for 2000–08) $848 COJ Ongoing

COJ – 88 Private Lift Station Inspection No lift stations prior to 2007 with 2 total annual 

inspections 2 (for 2007) $424 COJ Ongoing

COJ – 89 Illicit Discharge Detection and 

Elimination 6 illicit, no open 28 (for 1998–2003) $5,936 COJ Ongoing

COJ – 90 Routine Surface Water Sampling NPDES permit-related quarterly water quality 

sampling – 1 sampling station in WBID 53 (for 1995–2008) $23,691 COJ Ongoing

COJ – 91 TAT Sampling

Conducted by EQD to assess bacteria levels in 

creek and identify potential fecal bacteria 

sources

12 sites/70 samples $31,290 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 92 Point La Vista Failure Area – 

Septic Tank Phase-Out

Phase out septic tanks in failure areas 

(also listed as part of larger LSJR 

Main Stem BMAP project)1

134 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 93 Freeman Road Failure Area – 

Septic Tank Phase-Out

Phase out septic tanks in failure areas 

(also listed as part of larger LSJR 

Main Stem BMAP project)1

83 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 94 Inwood Terrace Failure Area – 

Septic Tank Phase-Out

Phase out septic tanks in failure areas 

(also listed as part of larger LSJR 

Main Stem BMAP project)1

10 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 95 Emerson Failure Area – 

Septic Tank Phase-Out

Phase out septic tanks in failure areas 

(also listed as part of larger LSJR 

Main Stem BMAP project)1

418 total tanks, 

0 connected Unknown COJ Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

110

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT TOTAL COST

FUNDING 

SOURCE

PROJECT 

STATUS

COJ – 96 Outside Failure Areas –

Septic Tank Phase-Out

Phase out program as provided by COJ 

ordinance

14 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 97 Septic Tank Maintenance Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 98 Pet/Animal Management Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35. 1 COJ has committed to removing septic tanks in failure areas that are within 300 meters of a surface water in the 2008 LSJR Main Stem BMAP. COJ must submit a plan to FDEP for 

removing septic tanks within 6 months of completion of the septic tank study, or by June 30, 2011, whichever is earlier. At a minimum, COJ will accomplish a 50% implementation of the 

septic tank phase-out projects by July 31, 2015, with the phase-outs completed by December 31, 2023. For the 10 tributaries addressed in this BMAP, a total of 1,167 septic tanks are 

located in failure areas, although not all of them may be located within 300 meters of a surface water. The failing tanks within 300 meters of a surface water will be included in the COJ 

plan and schedule to phase out tanks and will be identified as Tributaries BMAP-related tanks in the plan.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

111

10.3.4 FDOT ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

10.3.4.1 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

will be reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities

regulate stormwater quality through state rules, ordinances, and codes. FDOT performs 

periodic site inspections as part of the MS4 NPDES permit. FDOT also supports the Adopt-AHighway program in the watershed, in which trash is collected from 29 acres, for an average 

annual removal of 2,515 pounds. Street sweeping occurs monthly on 10 miles of roadways, 

reducing the amount of trash and sediment entering the stormwater conveyance system. As 

part of the maintenance program, FDOT removes sediment, trash, and debris from the system 

as needed. This maintenance occurs in 178 inlets and 7 miles of piping in the WBID.

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ; five illicit connections to FDOT conveyances have 

been removed. FDOT has instructed staff to be alert for illicit connections during routine 

maintenance activities, and investigates observances found in the right of way. Those located 

outside the right of way are reported to the applicable municipality for further investigation and 

enforcement action. FDOT maintains a toll-free number to be used for reporting illicit 

connections. FDOT also contributes funding for one monitoring station in the Miramar Creek 

watershed that is sampled quarterly as part of the routine monitoring program. FDOT will 

continue these activities in the future to support the maintenance of the MS4 system. Table 61

lists FDOT’s activities in the watershed. 

TABLE 61: FDOT ACTIVITIE S IN THE MIR AMAR CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME

ESTIMATED 

COST

FUNDING 

SOURCE LEVEL OF EFFORT

PROJECT 

STATUS

Identification and Removal of Illicit Connections

FDOT – 27 PIC Program – Search for Illicit 

Connections See Note 1

State of 

Florida 

(FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 28

PIC Program - Illicit 

Connections Identified and 

Removed in WBID if Found To 

Be Truly Illicit 

See Note 1

State of 

Florida 

(FDOT)/COJ

5 illicit connections 

removed Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 29 Routine Tributary Monitoring as 

Part of MS4 Permit See Note 2

State of 

Florida 

(FDOT)/COJ

1 station quarterly Ongoing

Drainage Connection Program (DCP)

FDOT – 30 

DCP – Connecting Entity Must 

Certify that All Discharges to 

FDOT MS4 Are Treated Prior to 

Connection

See Note 3

State of 

Florida 

(FDOT) 

Ongoing effort Ongoing

Adopt-A-Highway Program

FDOT – 31 Adopt-A-Highway Program See Note 4 Not applicable

Trash collected from 29 

acres. Trash collected 

annually averages 2,515 

pounds.

Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

112

PROJECT 

NUMBER PROJECT NAME

ESTIMATED 

COST

FUNDING 

SOURCE LEVEL OF EFFORT

PROJECT 

STATUS

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 32 

Sediment Accumulation, Trash,

and Debris Removed as 

Needed 

$44,482

State of 

Florida 

(FDOT)

Approx 178 inlets/catch 

basins and about 7 miles 

of piping

Ongoing

Street Sweeping Program

FDOT – 33 Street Sweeping Program $2,739

State of 

Florida 

(FDOT)

10 miles of roadway 

swept monthly Ongoing

Routine Maintenance Activities

FDOT – 34 Maintain FDOT Stormwater 

Systems See Note 5

State of 

Florida 

(FDOT)

Clean drainage 

structures, replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair 

outfall ditches, mowing,

roadside litter removal, 

respond to citizen 

complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 4 Associated cost unknown. Program is voluntary.

5 Countywide Program – Average cost is $2,750,735 per year.

10.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 58 through Table 61 list the projects and programs to reduce fecal coliform loading in the 

Miramar Creek watershed. Several key efforts completed in the WBID are summarized below, 

as well as activities that are expected to continue or to be implemented in future years. The 

efforts outlined in the project tables, including the activities highlighted below, will reduce fecal 

coliform loading and improve water quality in Miramar Creek based on the best information 

available about fecal coliform sources. As water quality improves in response to these actions 

and the bacteria source information is refined, future BMAPs may recommend different activities 

or levels of effort. For this BMAP, the full implementation of the projects and programs listed in 

the project tables for the Miramar Creek watershed is sufficient to significantly reduce fecal 

coliform sources and make substantial progress towards meeting the TMDL.

10.4.1 OS TDS

Failure Areas – OSTDS are a significant source of loading in the Miramar Creek WBID. Many 

of the estimated 659 septic tanks in the watershed are located near surface waters or inlets to 

the stormwater conveyance system. The majority of the OSTDS and repair permits are located 

in the 4 failure areas. COJ has committed to removing septic tanks in failure areas that are 

within 300 meters of surface waters in the 2008 LSJR Main Stem BMAP. The failing tanks in 

the 4 failure areas in the Miramar Creek watershed within 300 meters of surface waters will be 

included in the COJ phase-out plan and schedule, as described in the Main Stem BMAP, and 

will be identified as Tributaries BMAP-related efforts.

Program Implementation – DCHD has issued 68 repair permits and 44 abandonment permits, 

conducted 148 site evaluations and 106 complaint investigations, and issued 7 annual operating 

permits in the watershed. This level of activity indicates that DCHD inspectors perform 

investigations regularly in the watershed. However, a discrete portion of the WBID has a higher 

probability of OSTDS-related problems based on the number of repair permits issued, water 

quality data, and site conditions. DCHD will seek to secure funding for a new program to 

intensively inspect a specific geographic area within the WBID boundary and, upon obtaining 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

113

funding, will report the results of the inspection in an annual BMAP progress report. Additional 

areas may be identified for intensive inspections based on the assessment efforts discussed in 

the BMAP. If additional areas are designated in the future for inclusion in the program, these 

areas will also be inspected as funding becomes available. Inspections need to be continued 

and fully enforced to manage potential impacts from existing systems and to prevent new 

sources from reaching surface waters. 

Walk the WBID – During the Walk the WBID effort in Miramar Creek, a black corrugated pipe 

located on Orlando Avenue, and potentially discharging into the creek, was found to have high 

fecal coliform values. COJ is investigating this pipe. Additionally, DCHD is investigating a 

home on Brooker Road with potential OSTDS-related problems. These investigations must be 

completed within one year of BMAP implementation and their status reported in the BMAP 

annual progress report. Additionally, any issues identified during the remaining Walk the WBID 

efforts must be investigated and rectified where appropriate. All activities should be complete 

and their status reported in the first annual BMAP progress report.

10.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, there are two private lift stations in the 

watershed that were inspected by EQD in 2008. COJ will continue to inspect the private lift 

stations annually to ensure they are operating properly and should take enforcement action 

when necessary. 

Sewer Infrastructure Projects – JEA has rebuilt 1 pump station, near surface waters, in the 

watershed and cleaned 2,542 LF of pipe in FY07. These efforts rehabilitated older 

infrastructure, helping to prevent future problems. During the Walk the WBID, the field team 

identified a bowed sewer line crossing the northern branch. JEA inspected and dye tested the 

line and did not find any leaks; therefore, a repair was unnecessary. Clay sewer lines near 

Greenridge Avenue were replaced with polyvinyl chloride (PVC) piping, which will prevent 

potential failures and problems associated with older, porous clay piping. Two lift stations are 

located on the WBID boundary: (1) north of Emerson and west of Basil; and (2) Grant and 

Gattis Lane. JEA will confirm if these stations are reported in Miramar Creek or if they are 

reported in Craig Creek and New Rose Creek, respectively, in the first annual BMAP progress 

report. The continuation of maintenance activities, program implementation, and the 

confirmation of reporting boundaries is sufficient to address private lift stations in the watershed 

at this time.

Walk the WBID – JEA is currently investigating a seep under a sewer line on the northern 

branch of Miramar Creek, identified during the Walk the WBID. The dye test and inspection 

revealed no leaks, yet water quality samples indicate high counts. JEA will continue to 

investigate this area and provide information on its status in the first annual BMAP progress 

report. The seep follow-up, combined with program implementation, previous source removal, 

and continued TAT sampling, is addressing known sources of fecal coliform loading and 

attempting to locate unidentified sources.

10.4.3 S TOR MWATE R

Illicit Connection Removal – The PIC Program has resulted in the removal of six illicit 

connections by COJ and FDOT. Both entities have committed to continue the program, which 

includes identifying additional illicit connections and removing those connections in a timely 

manner. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

114

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue, 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit to prevent 

unpermitted connections. The FDOT Adopt-A-Highway Program removes over 2,500 pounds of 

trash annually from the WBID, and street sweeping is performed monthly on 10 miles of 

roadway. FDOT also maintains 178 inlets and 7 miles of piping. These activities constitute a 

significant proactive effort to prevent sources of fecal coliform from entering the conveyance 

system. FDOT will continue stormwater infrastructure maintenance to help prevent potential 

regrowth in the MS4 conveyances. The trash removal efforts are expected to continue if the 

Adopt-A-Highway volunteers continue to be active in the WBID.

COJ Program Implementation – COJ has completed 15 work orders to repair stormwater 

pond problems, in addition to 88 work orders for other MS4 maintenance activities. The 

stormwater outfall behind the JEA lift station is no longer active, preventing fecal coliform 

loadings from any incidents at the lift station from entering the creek. As part of the Walk the 

WBID follow-up, COJ PWD determined that the outfall at the Better Jacksonville Plan Pond is 

situated at Orlando Terrace and Gila Lane. Additional assessment activities are under way, and 

any stormwater issues identified as a part of these efforts should be investigated, rectified 

where appropriate, and reported in the annual BMAP progress report. The continuation of 

maintenance activities and Walk the WBID follow-up are sufficient to address stormwater in the 

watershed at this time.

10.4.4 WILDLIFE AND OTHE R ANTHR OPOGE NIC S OUR CE S

The Colonial Park pond on the northern branch is home to numerous ducks and waterfowl, 

which may be contributing to the fecal coliform loading in the northern branch. A weir is in place 

to allow water to discharge in high-water conditions but other, alternative corrective actions to 

address wildlife sources are extremely limited. During the Walk the WBID, JEA lift station S505 

had evidence of homeless populations. COJ should be aware of this potentially significant 

human source and prepare recommendations on how to address the situation in the annual 

reports until it is resolved. 

TABLE 62: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE MIR AMAR CREEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X 

Enforcement √ √ X X 

Program Implementation √ √ X X 

Permit Review (new and repair permits) X √ X X 

Failure Area Evaluation √ √ X X 

Failure Area Ranking √ √ X X 

Septic Tank Inspection √ √ X X 

Septic Tank Phase-Out - - X X 

Public Education (PSA) √ X X X 

Surface Water Sampling for Conditions and Trends √ X X X 

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X √

Air Release Valve (ARV) Inspection and Rehab X X X √
Final Lower St. Johns River Basin Management Action Plan – December 2009 

115

S OUR CE /AC TION COJ DCHD FDOT JEA

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X 

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X

Sanitary Sewer Overflow (SSO) Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X

Capital Projects/Stormwater Water Quality BMPs √ X - X 

Stormwater System Ditch and Canal Maintenance √ X √ X 

Stormwater Pond Maintenance √ X * X 

Stormwater Pipe Cleaning and Maintenance √ X √ X

Potential Illicit Connection (PIC) Identification √ X + X 

Illicit Connection Removal √ X + X

Public Education and Outreach √ X + X 

Surface Water Sampling for Conditions and Trends √ X + X 

Program Implementation √ X √ X 

Pet Waste Management

Ordinances and Enforcement √ X X X 

Public Education and Outreach √ X X X 

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X X

Tributary Assessment Team (TAT) √ X X √

Microbial Source Tracking (MST) √ X X √

Thermal Imagery To Identify PICs √ X X X 

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

116

CHAPTE R 11: B IG F IS HWE IR C REEK (WB ID 2280)

11.1 WB ID DE S CR IPTION

Big Fishweir Creek, WBID 2280, is located in Duval County, west of the LSJR within the Ortega 

River Planning Unit, as designated by SJRWMD (Figure 12). The headwaters of Big Fishweir 

Creek presumably comprise stormwater that originates at the upper reaches of its three 

branches and Little Fishweir Creek (Figure 13). Big Fishweir Creek splits into two major 

branches, the southern and northern forks. The southern fork extends west to Neva Street and 

merges with the main channel at Roosevelt Boulevard. The northern fork stretches northwest to 

the intersection of Cassat Avenue and Kingsbury Street and joins the main channel just west of 

Roosevelt Boulevard. A third branch (“middle branch”) diverges from the southern fork at 

Glenwood Avenue and continues north to Ulmer Street. Little Fishweir Creek, a minor tributary 

located north of Big Fishweir Creek, extends northwest to Bethwood Circle and flows into Big 

Fishweir Creek’s main channel south of Greenwood Avenue. Little Fishweir Creek also 

branches slightly at Herschel Street and continues northeast to Dancy Street. The waters of Big 

Fishweir Creek eventually flow into the St. Johns River just east of Woodmere Drive (PBS&J, 

June 2008b).

The spatial distribution and acreage of different land use categories in the Big Fishweir Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 63). The 

dominant land use (1,376.8 acres; 58.7% of total coverage) in the Big Fishweir Creek 

watershed, and directly adjacent to the majority of the creek itself, is high-density residential, 

which extends throughout the watershed. The next 2 most abundant land cover categories are 

(1) medium-density residential areas (353 acres; 15.1% of total coverage), primarily located in 

the central portion and in patches in the western corner of the watershed; and (2) 

commercial/utility/institutional areas (307.2 acres; 13.1% of total coverage), located 

predominantly along Cassat Avenue and in the northern corner of the watershed. Upland 

forests and wetland habitat accounted for less than 5% of land use (PBS&J, June 2008b).

According to the 2000 Census, there are 6,757 households in the watershed, averaging 2.07 

people per household. It should be noted that there are high-density residential areas (16 to 25 

people per acre) located adjacent to surface waters at the upper reaches of the northern fork

(PBS&J, June 2008b). In addition, assuming that 40% of households have 1 dog (Tyler, 2006), 

there are an estimated 2,703 dogs in the watershed.

TABLE 63: L AND US E S IN THE B IG FIS HWE IR CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

High-Density Residential 1,376.8 58.7

Medium-Density Residential 353.0 15.1

Commercial/ Utility/Institutional 307.2 13.1

Recreational 129.4 5.5

Transportation 97.8 4.2

Water 33.0 1.4

Wetlands 20.1 0.9

Upland Forest 15.7 0.7

Industrial 6.1 0.3

Nonforested Upland 4.4 0.2

TOTAL: 2,343.5 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

117

FIGUR E 12: LOCATION OF THE B IG FIS HWE IR CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

118

F IGUR E 13: B IG FIS HWE IR CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

119

11.2 POTE NTIAL S OUR CE S

11.2.1 POINT S OUR CES

There is one industrial wastewater facility located in the Big Fishweir Creek watershed, 

Riverside Plaza, which is permitted to discharge industrial wastewater to Little Fishweir Creek 

near the intersection of Montgomery Place and St. Johns Avenue. The COJ/FDOT MS4 permit 

includes the Big Fishweir Creek watershed (PBS&J, June 2008b). 

11.2.2 ILLICIT DIS CHAR GE S

A total of 61 PICs were identified in the Big Fishweir Creek watershed between 2000 and 2006, 

primarily in the southwest corner of the WBID. Of these, 6 were determined to be illicit and 

were removed. The status of 6 of the PICs is still pending investigation. 

11.2.3 CE NTR ALIZE D S EWE R INFR AS TR UCTUR E AND OVERFLOWS

The role of collection system influences on bacterial abundance in Big Fishweir Creek was 

assessed by reviewing the amount of sewer infrastructure in the watershed and the information 

provided by JEA on recent SSOs in COJ. The Big Fishweir Creek watershed is situated in the 

Buckman WWTF service area. 

An estimated 5,307 households (approximately 79% of households) are connected to the 

sanitary sewer system in the Big Fishweir Creek watershed. Sewer infrastructure (e.g., sewer 

mains, lift stations, manholes) is located throughout the watershed and near the surface waters 

of Big Fishweir and Little Fishweir Creeks, increasing the likelihood that possible spills and/or 

unidentified sewer infrastructure leaks will impact surface waters. JEA has reported a total of 20 

SSOs within the Big Fishweir Creek WBID boundaries (Table 64). The estimated volume of 

spill associated with these overflows ranged from 2 to 15,000 gallons and averaged 1,094 

gallons; however, only 4 SSOs were reported to have potentially impacted surface waters 

(PBS&J, June 2008b).

TABLE 64: SSOS R E POR TE D IN THE B IG FIS HWE IR CREEK WATE R S HE D, 2001–07

WB ID NAME 

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME 

OF S PILL

(GALLONS ) 

P OTENTIALLY IMP AC TE D 

S UR FACE WATERS

Big Fishweir Creek (2280) 16-Jan-02 100 N 

Big Fishweir Creek (2280) 2-Feb-02 100 N 

Big Fishweir Creek (2280) 6-Feb-02 400 N 

Big Fishweir Creek (2280) 21-May-02* 1,000 Y 

Big Fishweir Creek (2280) 20-Mar-03 2 N 

Big Fishweir Creek (2280) 14-May-04* 15,000 Y 

Big Fishweir Creek (2280) 19-Oct-04 50 N 

Big Fishweir Creek (2280) 11-Apr-05 50 N 

Big Fishweir Creek (2280) 14-May-05 200 N 

Big Fishweir Creek (2280) 18-May-05 30 N 

Big Fishweir Creek (2280) 6-Jul-05 400 N 

Big Fishweir Creek (2280) 11-Jul-05 20 N 

Big Fishweir Creek (2280) 18-Jul-05 200 N 

Big Fishweir Creek (2280) 23-Jul-05 200 N 

Big Fishweir Creek (2280) 28-Jul-05 100 N 

Big Fishweir Creek (2280) 8-Aug-05 200 N 

Big Fishweir Creek (2280) 10-Dec-05 50 N 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

120

WB ID NAME 

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME 

OF S PILL

(GALLONS ) 

P OTENTIALLY IMP AC TE D 

S UR FACE WATERS

Big Fishweir Creek (2280) 10-Jan-06 25 N 

Big Fishweir Creek (2280) 13-Mar-06* 3,750 Y 

Big Fishweir Creek (2280) 10-Jul-06* 50 Y 

*Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters.

11.2.4 OS TDS

WSEA estimates that there are approximately 1,416 OSTDS in the Big Fishweir Creek 

watershed. According to DCHD, 87 septic tank repair permits were issued in this area. The 

majority of the permits, and presumably failed septic systems, were located in the center of the 

WBID between Hamilton Street and Cassat Avenue and from Melrose Avenue north to 

Kingsbury Street. Septic systems in this area are located near the surface waters of both the 

southern and northern forks of Big Fishweir Creek, increasing the likelihood that OSTDS failure 

may be contributing to the fecal pollution observed in these areas. In addition, two previously 

DCHD-designated septic tank failure areas (Murray Hill A and Murray Hill B) are located within 

the watershed. Only the western edge of Murray Hill A, situated at the far northeast corner of 

the WBID at the Lennox Avenue and Interstate 10 intersection, is within the WBID boundaries. 

The vast majority of septic tank repair permits were filed in the Murray Hill B septic tank failure 

area, located in the center of the watershed from Hamilton Street east to Cassat Avenue, and 

from Melrose Avenue north to Post Street (PBS&J, June 2008b). Both areas have been 

sewered and are no longer listed as failure areas. 

Considering that an estimated 22% of households utilize OSTDS and that a previous DCHDdesignated septic tank failure area is near surface waters, in addition to the extensive number of 

repair permits that have been filed by property owners throughout the watershed, it is likely that 

OSTDS contribute to the overall bacterial loading of Big Fishweir Creek. This is especially true 

in the center of the watershed, in the Murray Hill B area, where the majority of parcels were 

issued septic tank repair permits. Due to the prevalence of sewer infrastructure (e.g., sewer 

mains, lift stations, manholes) located throughout the watershed, there is also a potential for 

leaky sewer infrastructure (e.g., from underground sewer mains) to contribute to fecal pollution 

in this portion of the WBID. Of course, it is also possible that failing septic systems that have 

not been issued repair permits are located near Big Fishweir and Little Fishweir Creeks and 

may contribute to bacterial contamination in the receiving waters in other areas of the watershed

as well (PBS&J, June 2008b). 

11.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Big Fishweir Creek WBID contains 

predominantly 10 to 25% impervious surface. The watershed also contains land with greater 

than 25% impervious surface. These areas generally correspond to commercial/utility/

institutional land use classifications located along Cassat Avenue, in the northern corner of the 

watershed, and in areas along the main channel between the confluence of the north and south 

forks and the junction with Little Fishweir Creek. An analysis was also conducted that 

demonstrates that the majority of the WBID contains a moderate-to-high potential for 

stormwater runoff, including areas near the creek. The highest runoff coefficients are located on 

either side of Cassat Avenue, Blanding Boulevard, and Emerson Boulevard Road; and in the 

north corner of the watershed (PBS&J, June 2008b).

The storm sewer network in the Big Fishweir Creek watershed includes a total of 32 permitted 

stormwater treatment areas, encompassing approximately 70.23% of the WBID area. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

121

Stormwater infrastructure in the WBID includes 97 outfalls by receiving water (1 classified by 

FDEP as a major outfall) and 1,161 inlets. Although closed conveyances are common 

throughout the WBID, ditch systems primarily form segments of Big Fishweir Creek at (1) the 

southern fork from Placid Place extending west to Neva Street, and (2) the northern fork from 

Merson Lane north to Cassat Avenue (PBS&J, June 2008b).

Fecal coliform concentrations did not differ during the “wet” and “dry” season near Hershel 

Street and Greenwood Avenue, suggesting a constant source of fecal coliform bacteria to Big 

Fishweir Creek through nonpoint source discharges, failing wastewater conveyance systems, or 

septic systems independent of rainfall. Higher loadings were identified in the “wet” season near 

North Park Street, suggesting that the majority of bacterial loading was delivered to Little 

Fishweir Creek through nonpoint source discharges, failing wastewater conveyance systems, or 

septic systems during high rainfall (PBS&J, June 2008b). 

11.3 P ROJECTS TO ADDR E S S F ECAL C OLIFOR M LOADINGS

11.3.1 JEA ACTIVITIE S IN THE B IG F IS HWE IR CREEK WATE R S HE D

11.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

As part of the TAT, JEA proposed monthly or bimonthly intensive localized sampling of 4 

locations for 6 months in the Big Fishweir WBID. To date, these efforts have included the 

collection of 180 samples from 5 different locations throughout the watershed, with nearly all 

values (83%) exceeding the 400 cfu/100mL criterion (PBS&J, June 2008b). 

JEA conducts activities to maintain the sanitary sewer infrastructure in the watershed, including 

pipe bursting 7.89% of the sewer lines, CIPP on 0.86%, and open cut repair of 0.20%. In 

addition, JEA conducts activities to help prevent future infrastructure problems. In the Big 

Fishweir Creek watershed, 7,257 LF of pipe were inspected and 23,980 LF of pipe were 

cleaned in FY07. These activities will continue in the future to maintain the sanitary sewer 

system and prevent future problems. Table 65 contains additional information on JEA’s

activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

122

TABLE 65: JEA AC TIVITIE S IN THE B IG FIS HWE IR CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

Sewer Upgrades

JEA – 79 Pipe Bursting – Increase 

Carrying Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 104,277 $13,791,000 JEA Ongoing FY00

JEA – 80 CIPP – Install New Inner 

Lining

Rehabilitate failing/leaking 

infrastructure

Total footage of CIPP in watershed 

since 2001: 11,378 $592,517 JEA Ongoing FY00

JEA – 81 Open Cut - Removal and 

Replacement

Replace failing/leaking 

infrastructure

Total footage of open cut replacement 

in watershed since 2001: 222 $55,500 JEA Ongoing Ongoing

Other Sewer Infrastructure Upgrades

JEA – 82 Manhole Linings Rehabbed Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 83 ARV Inspection and Rehab See Appendix E

2 ARVs replaced within 200 feet of 

tributary (21 ARVs total in Big Fishweir 

Creek watershed)

$481,873* JEA Ongoing Ongoing

JEA – 84 ARV Inspection Inspect all ARVs in watershed to 

ensure integrity

21 ARVs in watershed – report status 

in annual progress report (within 5 

years)

Unknown JEA Planned 2009

JEA – 85 Pump Station SCADA 

Upgrades

Retrofitting completed in 2004; all 

stations constructed since have 

SCADA installed. See Appendix 

E.

Not applicable Unknown JEA Complete Complete

JEA – 86

Inspect Force Main Discharge 

Manholes, Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 87 Lift Station Inspection Inspect lift stations near surface 

waters

6 stations near surface waters – 

report status in annual progress report 

(within 5 years)

Unknown JEA Planned 2009

JEA – 88 Merimac Avenue Lift Station 

Repair

Repaired lift station at Merimac 

Avenue as part of Walk the WBID 

follow-up

1 station Unknown JEA Complete 2009

Programs To Reduce Sewer Problems

JEA – 89 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

Program initiated 

in 2004

JEA – 90 Pipe TV Inspection

Inspect existing infrastructure 

through use of closed-circuit TV 

system

7,257 LF of pipe inspected (FY07) $163,099* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 91 Pipe Cleaning Clean existing pipes to avoid 

blockages 23,980 LF of pipe cleaned (FY07) $743,054* JEA Ongoing

Carried over from 

city operation 

(1997)
Final Lower St. Johns River Basin Management Action Plan – December 2009 

123

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

JEA – 92 Implement CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 93 Manhole Monitoring See Appendix E Not applicable $ 137,526* JEA Ongoing August 2007

JEA – 94 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 95 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 96 Non-Destructive Testing 

Program/Pipe Integrity Testing See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

124

11.3.2 DCHD ACTIVITIE S IN THE B IG F IS HWE IR CREEK WATE R S HE D

11.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs.

As of July 28, 2008, DCHD updated the listing of failure and nuisance areas. There are 

currently no designated septic tank failure areas in the Big Fishweir Creek watershed; however, 

two previous failure areas (Murray Hill A and Murray Hill B) have since been sewered. 

As part of the OSTDS Program, DCHD has issued 80 new construction permits, 87 repair 

permits, and 741 abandonment permits in the WBID. In addition, 16 annual operating permits 

have been issued for PBTS in the watershed. DCHD has also performed 916 plan reviews and 

151 investigations in response to complaints received. It will continue these efforts in the future 

to reduce and prevent issues related to OSTDS. Table 66 lists DCHD’s projects in the Big 

Fishweir Creek watershed. 

TABLE 66: DCHD ACTIVITIE S IN THE B IG FIS HWE IR CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT

ESTIMATED 

COST

FUNDING 

SOURCE

PROJECT 

STATUS

DCHD – 37 OSTDS

Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 80 new 

construction permits, 

87 repair permits, and 

741 abandonment 

permit issued

$138,000 FDOH Ongoing

DCHD – 38 

Annual 

Operating 

Permits 

Annual operating permits 

issued for PBTS, 

systems located in IMZ, 

and commercial systems

16 annual operating 

permits issued for 

PBTS/IMZ in WBID

$45,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 39 SWIM Project 

Implementation of broadranging septic tank 

ordinance

100% of Murray Hill B 

Septic Tank Failure 

Area is located in 

WBID

$155,000

FDOH/ 

LSJR 

SWIM 

Grant

Completed

DCHD – 40

DCHDSponsored 

Training 

Programs

Annual training programs 

held for septic tank 

contractors, certified 

plumbers, maintenance 

entities, and 

environmental health 

professionals

1 to 2 trainings per 

year providing up to 

12 contact hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 41

Application/ 

Plan Review/ 

Site 

Evaluations

DCHD performs plan 

review and site 

evaluation for each 

application received for 

OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 916 

plan reviews and site 

evaluations have been 

performed in WBID 

based on permitting 

history

$197,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 42 

Septic Tank 

Failure Area 

Ranking

Septic tank failure area 

scored and prioritized on 

annual basis

Less than 1 year since 

previous update N/A Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

125

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT

ESTIMATED 

COST

FUNDING 

SOURCE

PROJECT 

STATUS

DCHD – 43 Complaint 

Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

151 complaint 

investigations have 

been performed in 

WBID

$15,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 44

Intensive 

Inspection 

Program 

Intensive geospecific 

inspections in selected 

BMAP WBIDs based on 

repair permit 

applications, water 

quality information, and 

site conditions; additional 

WBIDs may be identified 

in future based on 

ongoing assessment 

efforts

Approximately 70 

OSTDS located south 

of Big Fishweir Creek, 

east of Blanding Blvd, 

west of U.S. 17, and 

north of Melrose 

Avenue

$10,850 Unknown

Planned – 

pending 

funding

11.3.3 COJ ACTIVITIE S IN THE B IG F IS HWE IR CREEK WATE R S HE D

11.3.3.1 Completed COJ Projects

COJ has completed 3 projects to capture and/or treat stormwater in the Big Fishweir Creek 

watershed: (1) Lakeshore Woodcrest Drainage project, which includes a wet detention pond 

that treats 296 acres; (2) Murray Hill Phase 1, which is also a wet detention pond that treats 219 

acres; and (3) a second-generation baffle box on Riverside Avenue that treats 70 acres. These 

projects reduce stormwater-associated fecal coliform loading to the creek.

In addition, COJ has worked with WSEA to extend sewer lines to remove 781 septic tanks in the 

watershed, helping to reduce fecal coliform loading from septic tanks along the creek. WSEA

uses the septic tank failure and nuisance areas ranking information for justification when 

seeking funding for phasing out septic tanks and transferring homes to central sewer (PBS&J, 

June 2008b). The WBID contains the Murray Hill B failure area, which has since been removed 

from the ranking list due to the sewering efforts. JEA takes these lines over once they have

been installed. 

11.3.3.2 COJ Projects in Design or Construction

COJ also currently has three projects under construction in the WBID: (1) drainage 

improvements on Arden Street to reduce flooding in the area; (2) Jersey Street Drainage project 

to pipe the roadside ditch; and (3) Fairfax Manor Creek project to regrade the ditch in this area. 

COJ is also designing a project to improve the outfall on Hamilton at Jersey Street to relieve 

flooding in the area. These projects, once completed, will help control flooding in the project 

areas, reducing the amount of fecal coliform loading that goes into the creek from stormwater.

11.3.3.3 Ongoing COJ Programs and Activities

COJ has also established a monitoring plan to evaluate the effectiveness of the SWMP and the 

associated pollutant reduction from MS4 systems to waters of the state. As part of this 

monitoring plan, COJ has 3 sampling stations in the Big Fishweir Creek watershed and 

collected 118 samples from these sites between 1995 and 2008. In addition to the routine 

sampling, COJ EQD collected 4 samples from 4 sites as part of the TAT effort and also 

collected 1 sample as a follow up on a high fecal coliform count to help with source 

identification. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

126

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 308 work orders for ditch and 

creek regrading, erosion control, and cleaning; 6 work orders for lake and pond maintenance; 

and 246 work orders for the repair of blocked structures and measures to prevent flooding. 

These work orders were completed between 2005 and 2008. PWD will continue a level of effort 

to maintain the MS4 conveyances based on CARE requests. 

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. Of the 61 PICs identified by the COJ in the Big Fishweir 

Creek watershed, 6 were confirmed as illicit connections and were removed by March 2006; the 

status of 6 of the PICs is currently pending. There were no PICs identified as potential sources 

of bacterial contamination (PBS&J, June 2008b).

COJ PWD also conducts inspections, which are initiated through the CARE database. In the 

Big Fishweir Creek watershed, these inspections between 2000 and 2008 included 16 

investigations into illicit water discharges, 20 illegal discharges, 22 sewer lines that drained into 

a yard or ditch, 522 SSOs, 244 septic tanks, and 5 private lift stations. PWD will maintain a 

future level of effort for these investigations based on requests, which are logged and tracked 

through the CARE database. 

Table 67 provides additional detail on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

127

TABLE 67: COJ ACTIVITIE S IN THE B IG FIS HWE IR CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

TOTAL 

C OST

F UNDING 

S OUR CE

E S TIMATE D 

C OMPLE TION

P ROJECT

S TATUS

Capital Improvement Projects

COJ – 99 Hamilton at Jersey Outfall Improve outfall to relieve 

flooding Improve outfall $2,900,000 COJ 2012 Design

COJ – 100 Lakeshore Woodcrest Wet detention 296 acres Unknown COJ Complete Complete

COJ – 101 Murray Hill Phase 1 Wet detention 219 acres Unknown COJ Complete Complete

COJ – 102 Riverside Avenue Second-generation baffle box 70 acres Unknown COJ Complete Complete

Drainage System Rehab Projects

COJ – 103 Drainage Improvements to Arden 

Street 

Arden Street floods private 

property Arden Street Unknown COJ Construction Construction

COJ – 104 Jersey St Drainage Pipe roadside ditch Jersey Street $75,000 COJ Construction Construction

COJ – 105 Fairfax Manor Creek Regrade ditch Fairfax Manor 

Creek $65,000 COJ Construction Construction

MS4 Maintenance Activities

COJ – 106 Ditch/Creek Regrade/Erosion/Clean Completed in response to 

CARE requests. Costs limited 

to activities completed after 

release of work order system. 

308 (for 2005–08) $37,454 COJ Ongoing Ongoing

COJ – 107 Lake or Pond Problem 6 (for 2005–08) $543 COJ Ongoing Ongoing

COJ – 108 Structure Blocked/Repair/General 

Flooding 246 (for 2005–08) $48,646 COJ Ongoing Ongoing

Inspection, Enforcement, and Sampling

COJ – 109 Illicit Water Discharge CARE-initiated inspection 16 (for 2000–08) $3,392 COJ Ongoing Ongoing

COJ – 110 Pollution – Water – Illegal Discharge CARE-initiated inspection 20 (for 2000–08) $4,240 COJ Ongoing Ongoing

COJ – 111 Sewer Drains into Yard/Ditch CARE-initiated inspection 22 (for 2000–08) $4,664 COJ Ongoing Ongoing

COJ – 112 Sewer Overflow CARE-initiated inspection 52 (for 2000–08) $11,024 COJ Ongoing Ongoing

COJ – 113 Sewer Repairs at The Loop 

Restaurant

Follow-up and enforcement of 

sewer repairs at restaurant

Follow-up on 

repairs $1,500 COJ Complete Complete

COJ – 114 Septic Tank Inspection CARE initiated. Enforcement 

action if required by DCHD. 244 (for 2005–08) $51,728 COJ Ongoing Ongoing

COJ – 115 Private Lift Station Inspection First lift station installed in 1991 

with 42 total annual inspections 5 (for 1991–2008) $1,060 COJ Ongoing Ongoing

COJ – 116 Verify Location of Private Lift Stations

Verify that stations on boundary 

are reported in associated 

WBIDs (Cedar River and 

McCoy Creek)

5 (for 2009–10) $1,060 COJ 2010 Planned

COJ – 117 Illicit Discharge Detection and 

Elimination 6 illicit, 6 open 61 (for 2000–06) $12,932 COJ Ongoing Ongoing

COJ – 118 Follow Up on Outstanding PICs Follow up on 6 open PIC in 

watershed 6 (for 2009–10) $1,270 COJ 2010 Planned
Final Lower St. Johns River Basin Management Action Plan – December 2009 

128

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

TOTAL 

C OST

F UNDING 

S OUR CE

E S TIMATE D 

C OMPLE TION

P ROJECT

S TATUS

COJ – 119 Walk the WBID PIC Investigations

Inspect 5 PICs between Cassat 

and Plymouth Avenue and 

black corrugated pipe on central 

branch

6 (for 2009–10) $1,272 COJ Ongoing Ongoing

COJ – 120 Routine Surface Water Sampling

NPDES permit-related quarterly 

water quality sampling – 3 

sampling stations in WBID

118 (for 1995–

2008) $52,746 COJ Ongoing Ongoing

COJ – 121 TAT Sampling

Conducted by EQD to assess 

bacteria levels in creek and 

identify potential fecal bacteria 

sources

4 sites/4 samples $1,788 COJ Ongoing Ongoing

COJ – 122 Source ID Sampling Conducted when high levels of 

fecal coliform bacteria are noted 1 $1,000 COJ Ongoing Ongoing

Septic Tank Phase-Out Program

COJ – 123 Outside Failure Areas – Septic Tank 

Phase-Out

Phase-out program as provided 

by COJ ordinance

1,416 total tanks, 

781 connected (for 

2004–08)

$27,335 COJ Ongoing Ongoing

COJ – 124 Septic Tank Maintenance Public 

Education Public service announcements Ongoing Unknown COJ Ongoing Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 125 Pet/Animal Management Public 

Education Public service announcements Ongoing Unknown COJ Ongoing Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

129

11.3.4 FDOT ACTIVITIE S IN THE B IG F IS HWE IR CR EEK WATE R S HE D

11.3.4.1 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

are reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities 

regulate stormwater quality through state rules, ordinances, and codes. FDOT periodically 

performs site inspections as part of the MS4 NPDES permit. FDOT sweeps 21 miles of 

roadways in the watershed monthly, reducing the amount of trash and sediment entering the 

stormwater conveyance system. As part of the maintenance program, FDOT removes 

sediment, trash, and debris from the system as needed. This maintenance occurs in 305 inlets 

and 14 miles of piping. 

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT It participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for one monitoring station in the 

Big Fishweir Creek watershed that is sampled quarterly as part of the routine monitoring 

program. FDOT will continue these activities in the future to support the maintenance of the 

MS4 system. Table 68 lists FDOT’s activities in the watershed. 

TABLE 68: FDOT ACTIVITIE S IN THE B IG FIS HWE IR CREEK WATE R S HE D

P ROJECT 

NUMB E R P R OJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T P ROJECT S TATUS

Identification and Removal of Illicit Connections

FDOT – 35 PIC Program – Search for Illicit 

Connections See Note 1 State of Florida (FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 36 

PIC Program – Illicit 

Connections Identified and 

Removed in WBID if Found To 

Be Truly Illicit

See Note 1 State of Florida 

(FDOT)/COJ

2 illicit connections 

removed Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 37 Routine Tributary Monitoring as 

Part of MS4 Permit See Note 2 State of Florida 

(FDOT)/ COJ 1 station quarterly Ongoing

Drainage Connection Program (DCP)

FDOT – 38

DCP – Connecting Entity Must 

Certify that All Discharges to 

FDOT MS4 Are Treated Prior to 

Connection

See Note 3 State of Florida 

(FDOT) Ongoing effort Ongoing

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 39

Sediment Accumulation, Trash,

and Debris Removed as 

Needed 

$87,947 State of Florida 

(FDOT)

Approximately 305 

inlets/catch basins 

and 14 miles of piping

Ongoing

Street Sweeping Program

FDOT – 40 Street Sweeping Program $5,752 State of Florida 

(FDOT)

21 miles of roadway 

swept monthly Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

130

P ROJECT 

NUMB E R P R OJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T P ROJECT S TATUS

Routine Maintenance Activities

FDOT – 41 Maintain FDOT Stormwater 

Systems See Note 5 State of Florida 

(FDOT)

Clean drainage 

structures, 

replace/repair 

storm/cross/side 

drains, clean/reshape 

roadside ditches, 

clear/repair outfall 

ditches, mowing,

roadside litter 

removal, respond to 

citizen complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 5 Countywide Program – Average cost is $2,750,735 per year.

11.4 S UMMAR Y OF R ESTORATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 65 through Table 68 list the projects and programs to reduce fecal coliform loading in the 

Big Fishweir Creek watershed. Several key efforts completed in this WBID are summarized 

below, as well as activities that are expected to continue or to be implemented in future years. 

The efforts outlined in the project tables, including the activities highlighted below, will reduce 

fecal coliform loading and improve water quality in Big Fishweir Creek based on the best 

information available about fecal coliform sources. As water quality improves in response to 

these actions and the bacteria source information is refined, future BMAPs may recommend 

different activities or levels of effort. For this BMAP, the full implementation of the projects and 

programs listed in the project tables for the Big Fishweir Creek watershed is sufficient to 

significantly reduce fecal coliform sources and make substantial progress towards meeting the 

TMDL.

11.4.1 OS TDS

Failure Area – The Murray Hill B Septic Tank Failure Area is situated entirely in the Big 

Fishweir WBID. This area encompasses the vast majority of septic tank repair permits issued in 

the watershed. Since 2001, 781 septic systems have been converted to sewer, and DCHD has 

issued 741 abandonment permits. In addition, 1,416 septic tanks remain within the WBID 

boundaries. Some are near surface waters, especially in the southeastern portion of the WBID. 

DCHD should continue its inspection efforts to ensure that the OSTDS outside the failure area 

do not become a problem. The continuation of the COJ CARE system to report and follow up 

with public complaints, as well as the inspections and permit programs at DCHD, are vital to 

identifying improperly functioning OSTDS. COJ and DCHD have committed to continuing these 

programs, documenting problems, and requiring property owners to fix them. COJ and DCHD 

are also committed to the continued coordination of their efforts so their respective roles and 

legal authorities are used properly in these situations.

Program Implementation – The recent connection of so many septic tanks to the sewer 

system should help to improve water quality in the watershed, especially since these systems 

were located near surface waters and stormwater conveyance inlets. However, a discrete 

portion of the WBID has a higher probability of OSTDS-related problems based on the number 

of repair permits issued, water quality data, and site conditions. DCHD will seek to secure 

funding for a new program to intensively inspect a specific geographic area within the WBID 

boundary and, upon obtaining funding, will report the results of the inspection in an annual 

BMAP progress report. Additional areas may be identified for intensive inspections based on 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

131

the assessment efforts discussed in the BMAP. If additional areas are designated in the future 

for inclusion in the program, these areas will also be inspected as funding becomes available. 

Walk the WBID – On the western fork of Big Fishweir Creek, the Walk the WBID effort identified 

a recent septic tank failure at Park Street. DCHD investigated but did not find a repair permit on 

file. It is unknown if this was a failing system; however, it appears that the issue has been 

resolved. DCHD also investigated a system on Eloise Street in a very low-lying area and 

determined that there was no sanitary nuisance. Any additional issues identified during the 

remaining Walk the WBID efforts must be investigated and rectified where appropriate. All 

activities should be completed and their status reported in the first annual BMAP progress 

report.

11.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, there are 5 private lift stations in the 

watershed and 5 stations on the WBID boundary along Lenox Avenue, located in the 

northeastern corner of the WBID. COJ EQD performed 42 annual lift station inspections in the 

watershed and will continue inspections annually. To ensure that the 5 private lift stations on 

the WBID boundary are reported correctly, COJ EQD needs to confirm if these stations are 

included in the neighboring WBIDs (Cedar River and McCoy Creek), or if they should be 

included in future Big Fishweir Creek annual BMAP progress reports. The Loop Restaurant, 

located at 4000 St. Johns Avenue, is the site of repetitive sewer repairs, with the most recent 

reported by FDEP on January 27, 2009. COJ followed up and confirmed the repair, and any 

future incidents will be reported to the Department of Business and Professional Regulation. 

COJ will report any additional incidents occurring at this location in future annual BMAP 

progress reports. COJ’s inspections and confirmation of reporting boundaries are sufficient to 

address private infrastructure in the watershed at this time.

Sewer Infrastructure Projects – SSOs have decreased dramatically since 2005 due to JEA’s

efforts in the watershed. JEA has replaced 1 ARV within 200 feet of surface waters and 

cleaned 23,980 LF of pipe. There are 6 lift stations near surface waters and 21 ARVs in the 

watershed. JEA should inspect these stations and confirm ARV integrity over the course of the 

5-year BMAP cycle to ensure there are no problems. The schedule will be set by JEA, in 

accordance with its other planned inspection activities, and the status of this sewer 

infrastructure will be provided in the annual BMAP progress reports. JEA will continue these 

efforts and its systemwide programs, and this will be sufficient to address potential sewer 

sources in the WBID at this time. 

Walk the WBID – During the Walk the WBID exercise, the lift station at Merrimac Avenue had 

severe soil erosion due to stormwater runoff. JEA has since completed the repair of the lift 

station. Any issues identified during the remaining Walk the WBID efforts must be investigated 

and rectified where appropriate. All activities should be completed and their status reported in 

the first annual BMAP progress report.

11.4.3 S TOR MWATE R INFR AS TR UCTUR E

Illicit Connection Removal – COJ and FDOT have removed six illicit connections in the Big 

Fishweir Creek watershed. They have committed to continue the PIC Program, which includes 

identifying additional illicit connections and removing those connections in a timely manner. In

addition, as part of the Walk the WBID follow-up, COJ inspected five PICs between Cassat and 

Plymouth Avenue and found that those pipes were dry; therefore, these continue to be under 

investigation. COJ also investigated a black corrugated pipe on the central branch and 

determined the pipe was a swimming pool discharge. However, the PIC Program currently has 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

132

six open investigations. For stormwater efforts in the watershed to be sufficient, COJ must 

complete these investigations, remove any illicit discharges, and report the actions in the annual 

BMAP progress report.

FDOT Project Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit to prevent 

unpermitted connections. 

COJ Project Implementation – Since 1996, COJ has added 515 acres of wet detention 

treatment in the watershed and 70 acres of treatment from a second-generation baffle box. In 

addition, COJ PWD has worked extensively in the watershed, completing 308 work orders for 

ditch maintenance, repairing 6 stormwater pond problems, and addressing 246 work orders for 

improperly operating stormwater infrastructure. This reflects a significant amount of effort in the 

watershed that should result in water quality improvements in the creek. 

11.4.4 WILDLIFE AND OTHE R ANTHR OPOGE NIC S OUR CE S

In the western fork of Big Fishweir Creek and in Boone Park, there is evidence of dog feces that 

can contribute to fecal coliform nonpoint pollution, indicating fecal coliform sources that could be 

addressed through public education activities. The headwaters of Big Fishweir Creek comprise 

very densely forested areas, which could contain wildlife populations that also contribute to the 

fecal coliform loading into the creek. 

TABLE 69: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE B IG FIS HWE IR CREEK WATE R S HE D

SOURCE/ACTION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X 

Enforcement √ √ X X

Program Implementation √ √ X X

Permit Review (new and repair permits) X √ X X

Failure Area Evaluation √ √ X X

Failure Area Ranking √ √ X X

Septic Tank Inspection √ √ X X

Septic Tank Phase-Out √ √ X X

Public Education (PSA) √ X X X

Surface Water Sampling for Conditions and Trends √ X X X

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X -

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X

Sanitary Sewer Overflow (SSO) Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X

Capital Projects/Stormwater Water Quality BMPs √ X - X

Stormwater System Ditch and Canal Maintenance √ X √ X

Stormwater Pond Maintenance √ X * X

Stormwater Pipe Cleaning and Maintenance √ X √ X
Final Lower St. Johns River Basin Management Action Plan – December 2009 

133

SOURCE/ACTION COJ DCHD FDOT JEA

Potential Illicit Connection (PIC) Identification √ X + X

Illicit Connection Removal √ X + X

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X

Program Implementation √ X √ X

Pet Waste Management

Ordinances and Enforcement √ X X X

Public Education and Outreach √ X X X

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X X

Tributary Assessment Team (TAT) √ X X √

Microbial Source Tracking (MST) √ X X √

Thermal Imagery To Identify PICs √ X X X

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

134

CHAPTE R 12: DEER CREEK (WB ID 2256)

12.1 WB ID DE S CR IPTION

Deer Creek, WBID 2256, is located in Duval County, west of the LSJR within the North 

Mainstem Planning Unit, as designated by SJRWMD (Figure 14). The headwaters of Deer 

Creek appear to comprise stormwater runoff originating at the northern branch, just east of 

Haines Street and the adjacent Martin Luther King (MLK) Jr. Expressway (Figure 15). The 

mainstem of the creek flows southeast in a single channel, with four branches that join Deer 

Creek from the west, north, south, and southwest. The southwest branch diverges from the 

main channel at Talleyrand Avenue and stretches approximately 0.3 miles southwest. The 

northern, southern, and western branches are located at the most upstream extent of the main 

channel, just east of Haines Street and immediately south of Tilden Street. 

The northern branch parallels the MLK Jr. Expressway and extends approximately 200 yards 

north from the main channel. The southern branch is located immediately south of the northern 

branch and main channel confluence and is primarily responsible for draining surface flow from

the expressway into the Upper Deer Creek Wet Detention Pond through several roadway inlets. 

The western branch stretches from Haines Street west to the East 7th and Franklin Street 

intersection. Flood control boxes, located at the MLK Jr. Expressway, divert the waters of the 

southern and western branches directly into the Upper Deer Creek Wet Detention Pond, 

primarily through an underground conveyance system that runs approximately 550 feet to the 

southeast. According to COJ EQD, stormwater from the flood control box, located at the DR2 

South Box COJ TAT supplemental station, occasionally spills over into Deer Creek after 

significant rainfall events. Under normal circumstances, the water level in the pond is 

maintained via a control structure that diverts flow away from Deer Creek and into the St. Johns 

River (PBS&J, July 2008). 

The Upper Deer Creek Wet Detention Pond, situated east of Haines Street and west of railroad 

lines that traverse the WBID, covers 8 acres and serves approximately 537 acres of the 

watershed (Camp Dresser & McKee [CDM], 2006). The waters of Deer Creek eventually flow 

into the St. Johns River, approximately 0.3 miles east of Talleyrand Avenue. 

The spatial distribution and acreage of different land use categories in the Deer Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 70). The 

dominant land use (226 acres; 33.4% of total coverage) in the Deer Creek watershed, 

predominantly located west of Haines Street and north of East 8th Street, is high-density 

residential. The next two most abundant land cover categories are (1) transportation areas 

(101.4 acres; 15.0% of total coverage), primarily located in the east corner of the WBID and 

along Haines Street and nearby railroad tracks that traverse the southeast corner of the 

watershed; and (2) industrial areas (99.3 acres; 14.7% of total coverage), situated 

predominantly northwest of the Haines Street and East 8th Street intersection and in the 

southeast portion of the watershed. 

In 2004, upland forest and wetland habitat accounted for over 10% of total land use; however, 

much of the wetland area, specifically just east of Haines Street and south of Deer Creek, was 

recently replaced by the Upper Deer Creek Wet Detention Pond (October 2006). Wetlands form 

a boundary around the main channel and southern branch, and in areas south of the Upper 

Deer Creek Wet Detention Pond. As wetlands serve as habitat for various species of wildlife 

and are near surface waters, there is a potential for wildlife to contribute to the fecal pollution of 

Deer Creek (PBS&J, July 2008). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

135

According to the 2000 Census, there are 1,005 households in the watershed, averaging 1.90 

people per household (PBS&J, July 2008). In addition, assuming that 40% of households have 

1 dog (Tyler, 2006), there are an estimated 402 dogs in the watershed.

TABLE 70: L AND US E S IN THE DEER CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

High-Density Residential 226.0 33.4

Transportation 101.4 15.0

Industrial 99.3 14.7

Commercial/Utility/Institutional 89.9 13.3

Recreational 68.4 10.1

Wetlands 66.2 9.8

Open Land 16.4 2.4

Medium-Density Residential 4.1 0.6

Nonforested Upland 2.5 0.4

Upland Forest 2.4 0.4

Water 0.3 0.05

TOTAL: 676.9 100

Note: Wetland and water land use classifications do not reflect current 

values due to the recent construction of the Upper Deer Creek Wet

Detention Pond (October 2006).
Final Lower St. Johns River Basin Management Action Plan – December 2009 

136

FIGUR E 14: LOCATION OF THE DEER CREEK WATE R S HE D
Final Lower St. Johns River Basin Management Action Plan – December 2009 

137

FIGUR E 15: DEER CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

138

12.2 POTE NTIAL S OUR CE S

12.2.1 POINT S OUR CES

There are two industrial wastewater facilities located in the Deer Creek watershed: (1) Aramark 

Uniform Services Inc., which is permitted to discharge industrial wastewater in the northwest 

corner of the WBID at East 11th Street; and (2) Crowley Liner Services, which has an 

underground injection well. There are no domestic wastewater facilities, CAFOs, application 

sites for septic residuals, or landfills permitted to discharge to the Deer Creek watershed. The 

COJ/FDOT MS4 permit includes the Deer Creek watershed (PBS&J, July 2008). 

12.2.2 ILLICIT DIS CHAR GE S

COJ EQD identified five PICs in the Deer Creek watershed between 1998 and 2006. Two of 

these were considered potential sources of bacterial contamination and were confirmed by COJ 

PWD as wastewater discharges. One illicit connection was identified as a septic tank 

discharge, while the nature of the wastewater effluent at the second illicit connection was not 

determined. It is unlikely that the septic tank discharge impacted water quality in Deer Creek 

due to its distance from surface waters, while discharges from the unknown source likely had a 

direct impact on surface waters of the southwest branch near Talleyrand Avenue. Both illicit 

connections were ultimately removed from the watershed (PBS&J, July 2008). 

12.2.3 CE NTR ALIZE D S EWE R INFR AS TR UCTUR E AND OVERFLOWS

The Deer Creek watershed is located in the Buckman WWTF Service Area. An estimated 1,110 

households (approximately 100% of households) are connected to the sanitary sewer system in 

the watershed. Sewer infrastructure (e.g., sewer mains, lift stations, manholes) is primarily 

located west of Haines Street and north of East 8th Street and, to a lesser extent, along Jessie 

Street and Talleyrand Avenue. There is an increased likelihood of possible spills and/or 

unidentified sewer infrastructure leaks that could impact surface waters in areas west of the 

junction of Deer Creek and Haines Street, and along Talleyrand Avenue; sewer infrastructure is 

located near surface waters in these areas. JEA has reported a total of 7 SSOs within the Deer 

Creek WBID boundaries (Table 71). The estimated volume of spill associated with these 

overflows ranged from 25 to 468,750 gallons and averaged 69,196 gallons; however, only 4 

SSOs were reported to have potentially impacted surface waters (PBS&J, July 2008). 

TABLE 71: SSOS R E POR TE D IN THE DEER CREEK , 2001–07

WB ID NAME 

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME 

OF S PILL

(GALLONS )

P OTE NTIALLY 

IMPACTE D S UR FACE 

WATERS

Deer Creek (2256) 29-Apr-02* 10,000 Y 

Deer Creek (2256) 12-May-02* 468,750 Y

Deer Creek (2256) 16-Sep-02 50 N 

Deer Creek (2256) 8-Feb-03* 500 Y

Deer Creek (2256) 1-Dec-03* 5,000 Y 

Deer Creek (2256) 19-Dec-05 25 N

Deer Creek (2256) 22-Mar-06 50 N 

*Reportable SSOs that spilled >1,000 gallons of sewage and/or affected surface waters.

Sampling data did not correspond with SSO events, and therefore associated impacts on 

surface waters could not be determined. Sediments provide UV radiation protection and key 

nutrient sources (e.g., carbon, nitrogen, and phosphorus) that allow bacteria to grow and 

survive, thus facilitating the development of reservoirs for fecal bacteria (Mallin et al., 2007). 

The inoculation of sediments following an SSO event or unknown infrastructure leak may lead to 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

139

the persistence and likely regrowth of indicator bacteria in sediments, possibly allowing an influx 

of high levels of bacteria to receiving waters for an unspecified period (Davies et al., 1995; 

Anderson et al., 2005; Mallin et al., 2007). However, it is more likely that other sources, such as 

unidentified sewer infrastructure leaks (e.g., from underground sewer mains), are responsible 

for the more recent pollution of the Deer Creek watershed, as no reported SSOs have reached

surface waters in the watershed since 2003 (PBS&J, July 2008). 

12.2.4 OS TDS

As noted above, almost all the homes in the Deer Creek watershed are connected to the 

sanitary sewer system; therefore, few (about 38) septic tanks are located in the watershed. 

According to DCHD, no septic system repair permits were issued in this area. Considering that 

few households utilize OSTDS, it is unlikely that OSTDS play a major role in the fecal loading of 

Deer Creek (PBS&J, July 2008). 

12.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Deer Creek WBID contains predominantly 

greater than 25% impervious surface. These areas generally correspond to commercial/utility 

and institutional; industrial; and transportation land uses, which are primarily located in the 

northwest and southeast corners of the watershed. Impervious surface areas of greater than 

25% are also located near surface waters extending from the headwaters of the main channel 

east to Talleyrand Avenue and along areas of the southwest branch. In addition, large areas 

with 10 to 25% impervious surface, mainly associated with high-density residential communities, 

are situated in the southwestern and northeastern portions of the watershed. 

Additionally, an analysis was conducted demonstrating that the majority of the WBID contains a 

moderate-to-high potential for stormwater runoff, including areas near the creek. Land surfaces 

with the lowest stormwater runoff coefficients were also located near the surface waters of Deer 

Creek and correlated with wetland areas. As stated previously, the wetland land use 

classifications have changed due to the recent completion of the Upper Deer Creek Wet

Detention Pond, likely altering the stormwater runoff coefficients in this area as well (PBS&J, 

July 2008). 

The storm sewer network in the Deer Creek watershed includes 12 permitted stormwater 

treatment areas, encompassing approximately 100% of the WBID area. Stormwater 

infrastructure in the WBID includes 4 outfalls by receiving water and 390 inlets. Although closed 

conveyances are common throughout the developed portion of the WBID, ditch systems 

primarily form segments of Deer Creek (1) at the headwaters from the intersection of East 7th

Street and Harrison Street, east to Haines Street; and (2) extending approximately 275 feet 

west from the Talleyrand Avenue and Deer Creek juncture (PBS&J, July 2008). 

Higher fecal coliform loadings were identified in the “wet” season (June through October) closer 

to the creek, suggesting that the majority of bacterial loading was delivered to Deer Creek 

through nonpoint source discharges, failing wastewater conveyance systems, or septic systems 

during high rainfall at this location. Fecal coliform concentrations did not differ during the “wet” 

and “dry” seasons near Talleyrand Avenue, suggesting a constant source of fecal coliform 

bacteria to Deer Creek through nonpoint source discharges, failing wastewater conveyance 

systems, or septic systems independent of rainfall. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

140

12.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

12.3.1 JEA ACTIVITIE S IN THE DEER CREEK WATE R S HE D

12.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

In the Deer Creek watershed, JEA has pipe bursted 18.43% of the sewer lines, repaired the 

inner lining through CIPP for 1.54% of the lines, and repaired 1.22% through open cut. In 

addition, it inspected 2,602 LF of pipe and cleaned 14,764 LF of pipe in FY07 to help prevent 

future infrastructure problems. These activities will continue in the future to maintain the 

sanitary sewer system and prevent future problems. 

Table 72 contains additional information on JEA’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

141

TABLE 72: JEA AC TIVITIE S IN THE DEER CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT

ESTIMATED 

COST

FUNDING 

SOURCE

PROJECT 

STATUS

START DATE OF 

PROJECT

Sewer Upgrades

JEA – 97 Pipe Bursting – Increase Carrying 

Capacity

Replace failing/leaking 

infrastructure 

Total footage of pipe burst in 

watershed since 2001: 

66,493

$6,009,870 JEA Ongoing FY00

JEA – 98 CIPP – Install New Inner Lining Rehabilitate failing/leaking 

infrastructure

Total footage of CIPP in

watershed since 2001: 5,550 $115,928 JEA Ongoing FY00

JEA – 99 Open Cut – Removal and Replacement Replace failing/leaking 

infrastructure 

Total footage of open cut 

replacement in watershed 

since 2001: 4,412

$281,581 JEA Ongoing Ongoing

Other Sewer Infrastructure Upgrades

JEA – 100 Manhole Linings Rehabbed Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 101 Pump Station SCADA Upgrades

Retrofitting completed in 

2004; all stations constructed 

since have SCADA installed. 

See Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 102 Inspect Force Main Discharge 

Manholes, Repair/Rehab as Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 103 Inspect Lift Station on Jesse Street Inspect lift station and report 

in first annual BMAP report 1 station Unknown JEA Planned 2009

Programs To Reduce Sewer Problems

JEA – 104 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

Program initiated 

in 2004

JEA – 105 Pipe TV Inspection

Inspect existing infrastructure 

through use of closed-circuit 

TV system

2,602 LF of pipe inspected 

(FY07) $163,099* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 106 Pipe Cleaning Clean existing pipes to avoid 

blockages

14,764 LF of pipe cleaned 

(FY07) $743,054* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 107 Implement CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 108 Manhole Monitoring See Appendix E Not applicable $ 137,526* JEA Ongoing August 2007

JEA – 109 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 110 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 111 Non-Destructive Testing Program/

Pipe Integrity Testing See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

142

12.3.2 DCHD ACTIVITIE S IN THE DEER CREEK WATE R S HE D

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs. 

As part of the OSTDS Program, DCHD has issued 1 new construction permit, 1 abandonment 

permit, 3 plan reviews, and 20 complaint investigations in the WBID. It will continue these 

efforts in the future to reduce and prevent issues related to OSTDS. Table 73 lists DCHD’s

projects in the Deer Creek watershed. 

TABLE 73: DCHD ACTIVITIE S IN THE DEER CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 45 OSTDS

Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 1 new 

construction permit and 1 

abandonment permit 

issued

Not 

applicable FDOH Ongoing

DCHD – 46 

DCHDSponsored 

Training 

Programs

Annual training programs 

held for septic tank 

contractors, certified 

plumbers, maintenance 

entities, and 

environmental health 

professionals

1 to 2 trainings per year 

providing up to 12 

contact hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 47

Application/ 

Plan Review/ 

Site 

Evaluations

DCHD performs plan 

review and site evaluation 

for each application 

received for OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 3 plan 

reviews and site 

evaluations have been 

performed in WBID 

based on permitting 

history

$1,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 48

Septic Tank 

Failure Area 

Ranking

Septic tank failure area 

scored and prioritized on 

annual basis

Less than 1 year since 

previous update

Not 

applicable Ongoing

DCHD – 49 Complaint 

Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

20 complaint 

investigations have been 

performed in WBID

$2,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

12.3.3 COJ ACTIVITIE S IN THE DEER CREEK WATE R S HE D

12.3.3.1 Completed COJ Projects

COJ has completed the Upper Deer Creek Regional Project in the watershed. The project, a 

wet detention pond that treats 537 acres, has helped to reduce the amount of stormwaterassociated bacterial loading to Deer Creek. 

12.3.3.2 COJ Projects in Design

In addition, COJ has two projects in the watershed under design: (1) the Lower Eastside 

Drainage Improvements – Phase 3, which will eliminate flooding in the area bordered by 7th

Street, the MLK Jr. Expressway, 1st Street, and Spearing Street; and (2) the Lower Eastside 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

143

Pond Expansion, which will provide compensating treatment for the Jacksonville library, 

courthouse, and other downtown improvements. Once these projects are completed, additional 

stormwater will be captured and treated, reducing fecal coliform loading to the creek from 

stormwater runoff. 

12.3.3.3 Ongoing COJ Programs and Activities

COJ has also established a monitoring plan to evaluate the effectiveness of the SWMP and the 

associated pollutant reduction from MS4 systems to waters of the state. As part of this 

monitoring plan, COJ has established 2 monitoring sites in the watershed and collected 92 

samples between 1995 and 2008. In addition, COJ EQD collected 21 samples as part of the 

TAT and an additional 9 samples at 3 sites to aid in source identification. 

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 18 work orders for ditch and 

creek regrading, erosion control, and cleaning; and 42 work orders for the repair of blocked 

structures and measures to prevent flooding. These work orders were completed between 2005 

and 2008. PWD will continue a level of effort to maintain the MS4 conveyances based on 

CARE requests. 

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. Of the five PICs identified by COJ in the Deer Creek 

watershed, two were confirmed as illicit connections and were recognized as potential sources 

of bacterial contamination. These two were ultimately removed from the watershed in July 2005 

and October 2006 (PBS&J, July 2008). 

Between 2000 and 2008, COJ PWD conducted inspections that included four investigations into 

illicit water discharges, one illegal discharge, four sewer lines that drained into a yard or ditch, 

and seven SSOs. PWD will maintain a future level of effort for these investigations based on 

requests, which are logged and tracked through the CARE database. 

Table 74 provides additional details on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

144

TABLE 74: COJ ACTIVITIE S IN THE DEER CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

TOTAL 

C OST

F UNDING 

S OUR CE

E S TIMATE D 

C OMPLE TION

P ROJECT 

S TATUS

Capital Improvement Projects

COJ – 126 Lower Eastside Drainage 

Improvements – Phase 3

Eliminate flooding area bordered by 7th Street, 

MLK Jr. Expressway, 1st Street, Spearing Street Lower Eastside $6,500,000 COJ 2013 Design

COJ – 127 Lower Eastside Pond Expansion

Pond expansion to provide compensating 

treatment for library, courthouse, and other 

downtown improvements

Lower Eastside $4,250,000 COJ 2012 Design

COJ – 128 Upper Deer Creek Regional BMP Wet detention 537 acres Unknown COJ Complete Complete

MS4 Maintenance Activities

COJ – 129 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE requests. Costs 

limited to activities completed after release of work 

order system.

18 (for 2005–08) $7,699 COJ Ongoing Ongoing

COJ – 130 Structure Blocked/Repair/

General Flooding 42 (for 2005–08) $3,327 COJ Ongoing Ongoing

Inspection, Enforcement, and Sampling

COJ – 131 Illicit Water Discharge CARE-initiated inspection 4 (for 2000–08) $848 COJ Ongoing Ongoing

COJ – 132 Pollution – Water – Illegal Discharge CARE-initiated inspection 1 (for 2000–08) $212 COJ Ongoing Ongoing

COJ – 133 Sewer Drains into Yard/Ditch CARE-initiated inspection 4 (for 2000–08) $848 COJ Ongoing Ongoing

COJ – 134 Sewer Overflow CARE-initiated inspection 7 (for 2000–08) $1,484 COJ Ongoing Ongoing

COJ – 135 Private Lift Station Inspection No lift stations in WBID; inspect as ID stations or 

new stations constructed Not applicable Not applicable COJ Ongoing Ongoing

COJ – 136 Illicit Discharge Detection and 

Elimination 2 illicit, no open 5 (for 1998–2006) $1,060 COJ Ongoing Ongoing

COJ – 137 Routine Surface Water Sampling NPDES permit-related quarterly water quality 

sampling – 2 sampling stations in WBID 92 (for 1995–2008) $41,124 COJ Ongoing Ongoing

COJ – 138 TAT Sampling Conducted by EQD to assess bacteria levels in 

creek and identify potential fecal bacteria sources 3 sites/21 samples $9,387 COJ Ongoing Ongoing

COJ – 139 Source ID Sampling Source ID sampling conducted when high levels 

of fecal coliform are noted 3 sites/9 samples $9,000 COJ Ongoing Ongoing

COJ – 140

Investigate High Fecal Coliform 

Counts in Downstream Portion of 

Watershed

Investigate and report results in first annual BMAP 

report; Walk the WBID may be needed

Investigate high 

counts 

(for 2009–10)

Unknown COJ Ongoing Ongoing

Septic Tank Phase-Out Program

COJ – 141 Outside Failure Areas – Septic Tank 

Phase-Out Phase out program as provided by COJ ordinance 38 total tanks, 0 connected Unknown COJ Ongoing Ongoing

COJ – 142 Septic Tank Maintenance Public 

Education Public service announcements Ongoing Unknown COJ Ongoing Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 143 Pet/Animal Management Public 

Education Public service announcements Ongoing Unknown COJ Ongoing Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

145

12.3.4 FDOT ACTIVITIE S IN THE DEER CREEK WATE R S HE D

12.3.4.1 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

will be reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities

regulate stormwater quality through state rules, ordinances, and codes. FDOT performs 

periodic site inspections as part of the MS4 NPDES permit. FDOT also sweeps eight miles of 

roadways monthly, reducing the amount of trash and sediment entering the stormwater 

conveyance system. As part of the maintenance program, FDOT removes sediment, trash, and 

debris from the system as needed. This maintenance occurs in 42 inlets and 4 miles of piping 

in the watershed. 

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for two monitoring stations in the 

Deer Creek watershed that are sampled quarterly as part of the routine monitoring program. 

FDOT will continue these activities in the future to support the maintenance of the MS4 system. 

Table 75 lists FDOT’s activities in the watershed. 

TABLE 75: FDOT ACTIVITIE S IN THE DEER CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME

ESTIMATED 

COST FUNDING SOURCE LEVEL OF EFFORT

PROJECT 

STATUS

Identification and Removal of Illicit Connections

FDOT – 42 PIC Program – Search for Illicit 

Connections See Note 1 State of Florida(FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 43 

PIC Program – Illicit Connections 

Identified and Removed in WBID if 

Truly Illicit

See Note 1 State of Florida

(FDOT)/COJ

No true illicit connection 

identified to date Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 44 

Routine Tributary Monitoring and 

BMP Effectiveness Project as Part 

of MS4 Permit

See Note 2 State of Florida 

(FDOT)/COJ

2 stations quarterly. 

BMP wet detention 

pond effectiveness

Ongoing

Drainage Connection Program (DCP)

FDOT – 45 

DCP – Connecting Entity Must 

Certify that All Discharges to FDOT 

MS4 Are Treated Prior to 

Connection

See Note 3 State of Florida 

(FDOT) Ongoing effort Ongoing

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 46 Sediment Accumulation, Trash, and 

Debris Removed as Needed $24,228 State of Florida 

(FDOT)

Approximately 42 

inlets/catch basins and

4 miles of piping

Ongoing

Street Sweeping Program

FDOT – 47 Street Sweeping Program $2,191 State of Florida 

(FDOT)

8 miles of roadway 

swept monthly Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

146

PROJECT 

NUMBER PROJECT NAME

ESTIMATED 

COST FUNDING SOURCE LEVEL OF EFFORT

PROJECT 

STATUS

Routine Maintenance Activities

FDOT – 48 Maintain FDOT Stormwater 

Systems See Note 5 State of Florida 

(FDOT)

Clean drainage 

structures, 

replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair 

outfall ditches, mowing,

roadside litter removal, 

respond to citizen 

complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 5 Countywide Program – Average cost is $2,750,735 per year.

12.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 72 through Table 75 list the projects and programs to reduce fecal coliform loading in the 

Deer Creek watershed. Several key efforts completed in the WBID are summarized below, as 

well as activities that are expected to continue or to be implemented in future years. The efforts 

outlined in the project tables, including the activities highlighted below, will reduce fecal coliform 

loading and improve water quality in Deer Creek based on the best information available about 

fecal coliform sources. As water quality improves in response to these actions and the bacteria 

source information is refined, future BMAPs may recommend different activities or levels of 

effort. For this BMAP, the full implementation of the projects and programs listed in the project 

tables for the Deer Creek watershed is sufficient to significantly reduce fecal coliform sources 

and make substantial progress towards meeting the TMDL.

12.4.1 OS TDS

Program Implementation – Almost all of the homes in the Deer Creek watershed are 

connected to the sanitary sewer system and, according to DCHD, no septic system repair 

permits were issued in this area. Considering that few households utilize OSTDS, it is unlikely 

that OSTDS contribute a significant amount of fecal loading to Deer Creek. DCHD will continue 

its inspection and program implementation efforts to ensure that the 38 septic tanks in the 

watershed are operating properly.

12.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – The COJ database does not indicate that there are private sewer lift 

stations in the watershed; however, the database only includes private lift stations permitted by 

COJ since 1991 or lift stations with repair permit applications filed since that time. It is likely that 

private lift stations are located in the watershed but have not been identified. As private stations 

are identified or new private lift stations are constructed, COJ will include these stations in the 

BMAP annual progress report and implement annual inspections. 

Sewer Infrastructure Projects – The number of SSOs has declined since 2002 due to JEA 

activities in the watershed. Of the three JEA lift stations in the watershed, one is located close 

to surface waters and one is near stormwater inlets. During the five-year BMAP cycle, JEA will 

inspect the lift station on Jesse Street to ensure that the station is operating properly due to its 

close proximity to surface waters. JEA will schedule the inspection in accordance with other 

system activities and report the investigation status in the first annual BMAP progress report. It 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

147

will continue maintenance efforts and systemwide programs, and this will be sufficient to 

address potential sewer sources in the WBID at this time. 

12.4.3 S TOR MWATE R

Illicit Connection Removal – The PIC Program removed two illicit connections in the 

watershed. COJ and FDOT have committed to continue the PIC Program, which includes 

identifying additional illicit connections and removing those connections in a timely manner. 

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit to prevent

unpermitted connections. In addition, FDOT maintains 4 miles of piping and 42 inlets, 

preventing materials from entering the stormwater system that could promote bacteria growth. 

FDOT will continue stormwater infrastructure maintenance, as these efforts prevent potential 

regrowth in the MS4 conveyances. 

COJ Capital Improvement Projects – COJ constructed a regional wet detention pond to treat 

537 acres that only discharges into the creek during extreme rain events. The pond eliminated 

fecal coliform loading by preventing a significant amount of stormwater runoff from flushing into 

the creek during storm events, and provided treatment to reduce the amount of sediments 

discharging into the creek. Currently, construction is planned for two additional stormwater 

improvement projects in the watershed during the BMAP five-year cycle. This construction 

depends on funding; however, COJ will provide updates on the projects’ status in the annual 

BMAP progress reports.

12.4.4 ADDITIONAL AS S E S S ME NTS

COJ EQD is following up on high fecal coliform counts in the downstream portion of the 

watershed in partnership with TAT entities. It will report the results of the current investigations 

in the first annual BMAP progress report. If no sources are identified and coliform counts 

continue to be high, FDEP will require a Walk the WBID in the second year of the BMAP (see

Appendix F for guidelines on conducting a Walk the WBID exercise). At that time, the BWG 

will agree on the lead entity and implementation time frame. The exercise must be completed 

within the specified BMAP year, and all problems identified from this effort must be resolved or 

under investigation within the following BMAP year. The results of the Walk the WBID will be 

reported in the annual BMAP progress report. 

TABLE 76: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE DEER CREEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X 

Enforcement √ √ X X 

Program Implementation √ √ X X 

Permit Review (new and repair permits) X √ X X 

Failure Area Evaluation √ √ X X 

Failure Area Ranking √ √ X X 

Septic Tank Inspection √ √ X X 

Septic Tank Phase-Out - - X X 

Public Education (PSA) √ X X X 

Surface Water Sampling for Conditions and Trends √ X X X 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

148

S OUR CE /AC TION COJ DCHD FDOT JEA

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X - 

Air Release Valve (ARV) Inspection and Rehab X X X * 

Program Implementation X X X √

Private Lift Station Inspections and Enforcement * X X X 

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X

Sanitary Sewer Overflow (SSO) Investigations - X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X

Capital Projects/Stormwater Water Quality BMPs √ X - X 

Stormwater System Ditch and Canal Maintenance √ X √ X 

Stormwater Pond Maintenance * X * X 

Stormwater Pipe Cleaning and Maintenance √ X √ X

Potential Illicit Connection (PIC) Identification √ X + X 

Illicit Connection Removal √ X - X

Public Education and Outreach √ X + X 

Surface Water Sampling for Conditions and Trends √ X + X 

Program Implementation √ X √ X 

Pet Waste Management

Ordinances and Enforcement √ X X X 

Public Education and Outreach √ X X X 

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources √ X X -

Tributary Assessment Team (TAT) √ X X - 

Microbial Source Tracking (MST) - X X - 

Thermal Imagery To Identify PICs - X X X 

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

149

CHAPTE R 13: TE R R APIN CREEK (WB ID 2204)

13.1 WB ID DE S CR IPTION

Terrapin Creek, WBID 2204, is located in Duval County, north of the LSJR within the North 

Mainstem Planning Unit, as designated by SJRWMD (Figure 16). The headwaters of Terrapin 

Creek presumably comprise stormwater that originates on the south side of Port Jacksonville 

Parkway just west of New Berlin Road (Figure 17). Prior to the development of a new office 

park and the associated Port Jacksonville Parkway in 2005, Terrapin Creek continued farther 

north. Development in this area resulted in major transitions to the landscape that ultimately 

severed the most northern section of Terrapin Creek from the section below Port Jacksonville 

Parkway. This portion of the WBID included a small branch that once connected a pond serving 

M&M Dairy Inc. from the west (approximately 575 feet north of Port Jacksonville Parkway) to the 

main channel of Terrapin Creek. M&M Dairy Inc. has since closed, though breeding bulls and

other cattle remain on the property. Currently, the entire creek flows southward in a single 

channel, merges with Dunn Creek nearly 1,000 feet east of Alta Drive, and eventually joins the 

St. Johns River at Heckscher Drive (PBS&J, August 2008a). 

The spatial distribution and acreage of different land use categories in the Terrapin Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (
Final Lower St. Johns River Basin Management Action Plan – December 2009 

150

Table 77). The dominant land use (427.4 acres; 35.7% of total coverage) in the watershed, and 

directly adjacent to the majority of the creek itself, is upland forest, which extends throughout 

the watershed. The next two most abundant land cover categories are (1) wetland areas (169.3 

acres; 14.2% of total coverage), which form a boundary around the entire length of the creek; 

and (2) commercial/utility and institutional areas (154.1 acres; 12.9% of total coverage), located 

predominantly along the eastern portion of the WBID at Faye Road, on either side of Highway 

9A, and at a narrow power line utility strip that traverses the watershed south of Port 

Jacksonville Parkway. 

As upland forests and wetlands serve as habitat for various species of wildlife and are located 

near surface waters, there is a potential for wildlife to contribute to the fecal pollution of Terrapin 

Creek. A dairy farm (M&M Dairy Inc.) situated in the upper reaches of Terrapin Creek, in the 

vicinity of the New Berlin Road and Port Jacksonville Parkway intersection, has closed. 

Although pasturelands located in the upstream portion of the watershed still support cattle, it 

appears that this source is now separated from receiving waters (PBS&J, August 2008a). 

According to the 2000 Census, there are 39 households in the watershed, averaging 1.05 

people per household (PBS&J, August 2008a). In addition, assuming that 40% of households 

have 1 dog (Tyler, 2006), there are an estimated 16 dogs in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

151

TABLE 77: L AND US E S IN THE TE R R APIN C REEK WATE R S HE D

LAND USE ACRES % OF TOTAL

Upland Forest Total 427.4 35.7

Wetlands Total 169.3 14.2

Commercial/Utility/Institutional Total 154.1 12.9

Industrial Total 86.4 7.2

Water Total 64.6 5.4

Nonforested Upland Total 60.6 5.1

Feeding Operations Total 50.6 4.2

Low-Density Residential Total 49.5 4.1

Cropland and Pastureland Total 35.4 3.0

Transportation Total 32.2 2.7

Open Land Total 24.5 2.0

Disturbed Land Total 17.5 1.5

Recreational Total 15.4 1.3

Extractive Total 9.2 0.8

TOTAL: 1,196.6 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

152

F IGUR E 16: LOCATION OF THE TE R R APIN C REEK WATE R S HE D 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

153

F IGUR E 17: TE R R APIN CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

154

13.2 POTE NTIAL S OUR CE S

13.2.1 POINT S OUR CE S

Florida Rock-New Berlin Road Concrete Batch Plant (CBP) (FLG110329), the only industrial 

wastewater facility located in the Terrapin Creek watershed, is permitted to discharge 

wastewater in the southeastern portion of the WBID. In addition, the COJ/FDOT MS4 permit 

includes the Terrapin Creek watershed. There were feeding operations at a dairy farm, M&M 

Dairy Inc., which has since closed, though cattle remain in the area (PBS&J, August 2008a). 

13.2.2 ILLICIT DIS CHAR GE S

COJ EQD identified nine PICs in the Terrapin Creek watershed in 2007. Their status is pending 

investigation. One of the PICs, an unverified illicit discharge identified on private property, was 

found during the JEA Tributary Pollution Assessment Project (January 2006). The program did 

not include the inspection of closed conveyance systems; therefore, additional illicit connections 

may be present in the watershed (PBS&J, August 2008a). 

13.2.3 CE NTR ALIZE D S EWE R INFR AS TR UCTUR E AND OVERFLOWS

The Terrapin Creek watershed is located in the District II WWTF Service Area. An estimated 7 

households (approximately 18% of households) are connected to the sanitary sewer system in 

the watershed. Available GIS data indicate that sewer infrastructure (e.g., sewer mains, lift 

stations, manholes) is only found in one location in the watershed, parallel to Faye Road. A 

sewer main spans the width of the creek, either above or below surface waters, at Faye Road, 

increasing the likelihood that possible spills and/or unidentified sewer infrastructure leaks will 

impact surface waters at this location. Although not confirmed, sewer infrastructure may have 

been installed in the upstream segment of Terrapin Creek to accommodate the newly 

constructed office park in 2005. JEA has not reported any sanitary sewer overflows within the 

Terrapin Creek WBID boundaries (PBS&J, August 2008a). 

13.2.4 OS TDS

WSEA estimates that approximately 57 OSTDS are located in the Terrapin Creek watershed. 

According to DCHD, 6 septic system repair permits were issued in this area. The majority of the 

permits, and presumably failed septic systems, were located in the southwest corner of the 

WBID west of Alta Drive in a low-density residential area, supporting the contention that failing 

OSTDS may contribute to the fecal pollution in this area. No DCHD-designated septic system 

failure areas are located near the boundary of the watershed (PBS&J, August 2008a). 

13.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Terrapin Creek WBID contains 

predominantly less than 10% impervious surface corresponding to the upland forest and 

wetland land use classifications. The watershed also contains land with 10% to greater than 

25% impervious surface. Areas with greater than 25% impervious surface generally correspond 

to industrial, commercial/utility, and institutional land uses located along Faye Road, and south 

of Faye Road at the eastern extent of the WBID boundaries. 

An analysis was also conducted demonstrating that the majority of the WBID contains a 

moderate-to-high potential for stormwater runoff, including areas near the creek. Low 

stormwater runoff coefficients are primarily located in the southwest corner of the WBID. The 

highest runoff coefficients are found along Highway 9A, at the power line utility strip that 

transverses the watershed south of the Port Jacksonville Parkway, just south of the Blasius 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

155

Road and Faye Road intersection, and west of the Faye Road station location (PBS&J, August

2008a). 

The storm sewer network in the Terrapin Creek watershed includes 21 permitted stormwater 

treatment areas, encompassing approximately 65.88% of the WBID area. Stormwater 

infrastructure in the WBID includes 6 outfalls by receiving water (none classified by FDEP as a 

major outfall) and 16 inlets. Closed conveyances and ditch systems are primarily located in the 

southeast corner of the WBID near Alta Drive. One ditch system extends south from a 

stormwater control structure at a pond situated at the Alta Drive and Highway 9A feeder road 

intersection, and merges with Terrapin Creek at Alta Drive (PBS&J, August 2008a). 

Fecal coliform concentrations did not differ during the “wet” and “dry” seasons at the Faye Road 

monitoring station, suggesting a constant source of fecal coliform bacteria to Terrapin Creek 

through nonpoint source discharges, failing wastewater conveyance systems, or septic systems 

independent of rainfall. It is possible that higher loadings occur in the “wet” season and are 

diluted by increased volumes of water, resulting in fecal coliform concentrations that appear to 

be independent of rainfall. Higher loadings were identified in the “wet” season at the Alta Drive 

station, suggesting that the majority of bacterial loading was delivered to Terrapin Creek through 

nonpoint source discharges, failing wastewater conveyance systems, or septic systems during 

high rainfall (PBS&J, August 2008a). 

13.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

13.3.1 JEA ACTIVITIE S IN THE TE R R APIN CREEK WATE R S HE D

13.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

Table 78 lists JEA’s projects in the Terrapin Creek watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

156

TABLE 78: JEA AC TIVITIE S IN THE TE R R APIN CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT

ESTIMATED 

COST

FUNDING 

SOURCE

PROJECT 

STATUS

START DATE OF 

PROJECT

Other Sewer Infrastructure Upgrades

JEA – 112 Manhole Linings Rehabbed Repair deteriorating 

manhole linings Not applicable $330,469* JEA Ongoing FY01

JEA – 113 ARV Inspection and Rehab See Appendix E

0 ARVs replaced within 

200 feet of tributary (1 

ARV total in watershed)

$481,873* JEA Ongoing Ongoing

JEA – 114 ARV Inspection

Inspect 1 ARV in 

watershed and report in 

annual progress report

1 ARV Unknown JEA Planned 2009

JEA – 115 Pump Station SCADA 

Upgrades

Retrofitting completed 

in 2004; all stations 

constructed since have 

SCADA installed. See 

Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 116

Inspect Force Main 

Discharge Manholes, 

Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing Ongoing

Programs To Reduce Sewer Problems

JEA – 117 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

Program initiated in 

2004

JEA – 118 Implement CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 119 Manhole Monitoring See Appendix E Not applicable $ 137,526* JEA Ongoing August 2007

JEA – 120 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 121 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 122 Non-Destructive Testing 

Program See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

157

13.3.2 DCHD ACTIVITIE S IN THE TE R R APIN C REEK WATE R S HE D

13.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs. 

As part of the OSTDS Program, DCHD has issued 44 new construction permits, 6 repair 

permits, and 3 abandonment permits in the WBID. In addition, 15 annual operating permits 

have been issued for PBTS in the watershed. DCHD has also performed 56 plan reviews and 

15 complaint investigations. It will continue these efforts in the future to reduce and prevent 

issues related to OSTDS. Table 79 lists DCHD’s projects in the Terrapin Creek watershed. 

TABLE 79: DCHD ACTIVITIE S IN THE TE R R APIN CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 50 OSTDS

Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 44 new 

construction permits, 6 

repair permits, and 3 

abandonment permit

issued

$44,500 FDOH Ongoing

DCHD – 51 

Annual 

Operating 

Permits 

Annual operating 

permits issued for 

PBTS, systems located 

in IMZ, and commercial 

systems

15 annual operating 

permits for PBTS/IMZ 

located in WBID

$37,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 52 

DCHDSponsored 

Training 

Programs

Annual training 

programs held for septic 

tank contractors, 

certified plumbers, 

maintenance entities, 

and environmental 

health professionals

1 to 2 trainings per year 

providing up to 12 

contact hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 53 

Application/ 

Plan Review/ 

Site 

Evaluations

DCHD performs plan 

review and site 

evaluation for each 

application received for 

OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 56 plan 

reviews and site

evaluations have been 

performed in WBID 

based on permitting 

history

$12,000

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 54 

Septic Tank 

Failure Area 

Ranking

Septic tank failure area 

scored and prioritized 

on annual basis

Less than 1 year since 

previous update

Not 

applicable Ongoing

DCHD – 55 Complaint 

Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

15 complaint 

investigations have been 

performed in WBID

$1,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

158

13.3.3 COJ ACTIVITIE S IN THE TE R R APIN CREEK WATE R S HE D

13.3.3.1 Completed COJ Projects

COJ has completed a flood control project along Faye Road that has helped reduce flooding in 

the area and, in turn, the amount of fecal coliform loading to the creek from stormwater runoff.

13.3.3.2 Ongoing COJ Programs and Activities

The COJ MS4 permit requires COJ and its co-permittees to implement a Stormwater Monitoring 

Plan. As part of this plan, COJ has 2 monitoring stations in the watershed and collected 66 

samples between 1995 and 2008.

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes one work order for ditch and 

creek regrading, erosion control, and cleaning; and three work orders for the repair of blocked 

structures and measures to prevent flooding. These work orders were completed between 2005 

and 2008. PWD will continue a level of effort to maintain the MS4 conveyances based on 

CARE requests. 

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. COJ identified nine PICs in the Terrapin Creek 

watershed in 2007; their status is currently pending. 

COJ PWD also conducts inspections in the watershed that are initiated through the CARE 

database. In the Terrapin Creek watershed, these inspections between 2000 and 2008 

included one investigation into an illicit water discharge, one illegal discharge, and six private lift 

stations. PWD will maintain a future level of effort for these investigations based on requests, 

which are logged and tracked through the CARE database. 

Table 80 provides additional details on COJ’s activities in the watershed.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

159

TABLE 80: COJ ACTIVITIE S IN THE TE R R APIN CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

TOTAL 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

Drainage System Rehab Project

COJ – 144 Faye Road – Area Floods Faye Road drainage system rehab Faye Road $40,000 COJ Complete

MS4 Maintenance Activities

COJ – 145 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE requests. 

Costs limited to activities completed after 

release of work order system.

1 (for 2005–08) Unknown COJ Ongoing

COJ – 146 Structure Blocked/Repair/General Flooding 3 (for 2005–08) $790 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 147 Illicit Water Discharge CARE-initiated Inspection 1 (for 2000–08) $212 COJ Ongoing

COJ – 148 Pollution – Water – Illegal Discharge CARE-initiated Inspection 1 (for 2000–08) $212 COJ Ongoing

COJ – 149 Private Lift Station Inspection No lift stations in WBID prior to 2006 17 

total annual inspections 6 (for 2006–08) $1,272 COJ Ongoing

COJ – 150 Determine Lift Station Location

1 lift station is located on boundary, verify 

that it is reported in Browns Creek for first 

annual report

1 (for 2009–10) $212 COJ Planned

COJ – 151 Illicit Discharge Detection and Elimination 0 illicit, 9 open 9 (for 2007) $1,908 COJ Ongoing

COJ – 152 Follow Up on Outstanding PICs Follow up on 9 open PICs in watershed 9 (for 2009–10) $1,908 COJ Planned

COJ – 153 Routine Surface Water Sampling

NPDES permit-related quarterly water 

quality sampling – 2 sampling stations in 

WBID

66 (for 1995–

2008) $29,502 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 154 Outside Failure Areas – Septic Tank Phase-Out Phase out program as provided by COJ 

ordinance

57 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 155 Septic Tank Maintenance Public Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 156 Pet/Animal Management Public Education Public service announcements Ongoing Unknown COJ Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

160

13.3.4 FDOT ACTIVITIE S IN THE TE R R APIN C REEK WATE R S HE D

13.3.4.1 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

will be reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities

regulate stormwater quality through state rules, ordinances, and codes. FDOT performs 

periodic site inspections as part of the MS4 NPDES permit. 

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for one monitoring station in the 

Terrapin Creek watershed that is sampled quarterly as part of the routine monitoring program. 

FDOT will continue these activities in the future to support the maintenance of the MS4 system. 

Table 81 lists FDOT activities in the watershed. 

TABLE 81: FDOT ACTIVITIE S IN THE TE R R APIN CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME

ESTIMATED 

COST

FUNDING 

SOURCE LEVEL OF EFFORT

PROJECT 

STATUS

Identification and Removal of Illicit Connections

FDOT – 49 PIC Program – Search for Illicit 

Connections See Note 1

State of 

Florida 

(FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 50 

PIC Program – Illicit Connections 

Identified and Removed in WBID if 

Truly Illicit

See Note 1

State of 

Florida 

(FDOT)/COJ

No truly illicit connection 

identified to date Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 51 Routine Tributary Monitoring as Part of 

MS4 Permit See Note 2

State of 

Florida 

(FDOT)/COJ

1 station quarterly Ongoing

Drainage Connection Program (DCP)

FDOT – 52 

DCP – Connecting Entity Must Certify 

that All Discharges to FDOT MS4 are 

Treated Prior to Connection

See Note 3

State of 

Florida 

(FDOT)

Ongoing effort Ongoing

Routine Maintenance Activities

FDOT – 53 Maintain FDOT Stormwater Systems See Note 5

State of 

Florida 

(FDOT)

Clean drainage 

structures, replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair 

outfall ditches, mowing,

roadside litter removal, 

respond to citizen 

complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 5 Countywide Program – Average cost is $2,750,735 per year.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

161

13.3.5 F LOR IDA DE P AR TME NT OF AGR ICULTUR E AND C ONS UME R S E R VICE S AC TIVITIE S IN 

THE TE R R APIN CREEK WATE R S HE D

A dairy facility in the Terrapin Creek watershed, M&M Dairy, Inc., closed three years ago, and 

some of the pastureland was sold for development. The construction changed the pond from 

the dairy to a closed wetland system that no longer flows to the creek. While the pond is no 

longer a source of fecal coliform, the remaining 200 acres are now a cow/calf operation with 

approximately 80 head of cattle. The Florida Department of Agriculture and Consumer Services 

(FDACS) visited this operation in 2008 because it will be subject to the FDACS Cow/Calf BMP

Manual, once adopted. The property owner has committed to signing a Notice of Intent (NOI) to 

implement the applicable BMPs once the manual is adopted. FDACS will follow up with the 

owner to obtain the NOI and to assist in implementing the BMPs. 

13.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 78 through Table 81 list the projects and programs to reduce fecal coliform loading in the 

Terrapin Creek watershed. Several key efforts completed in the WBID are summarized below, 

as well as activities that are expected to continue or be implemented in future years. The efforts 

outlined in the project tables, including the activities highlighted below, will reduce fecal coliform 

loading and improve water quality in Terrapin Creek based on the best information available 

about fecal coliform sources. As water quality improves in response to these actions and the 

bacteria source information is refined, future BMAPs may recommend different activities or 

levels of effort. For this BMAP, the full implementation of the projects and programs listed in the 

project tables for the Terrapin Creek watershed is sufficient to significantly reduce fecal coliform 

sources and make substantial progress towards meeting the TMDL.

13.4.1 OS TDS

Program Implementation – Out of approximately 57 septic systems in the Terrapin Creek 

watershed, only a few are located near surface waters. DCHD has performed 15 complaint 

investigations and 56 plan reviews, and issued 6 repair permits, 3 abandonment permits, and 44 

new construction permits in the watershed. Continued program implementation will adequately 

address OSTDS in the watershed. 

13.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, there are 6 private lift stations in the 

watershed. COJ EQD has performed 17 inspections of these stations and will continue to 

inspect annually. One private lift station, located at 11400 New Berlin Road, is situated on the 

WBID boundary. COJ will confirm that this station is included in the Browns Creek WBID to 

ensure that potential overflows are reported in the correct WBID. The continuation of the 

inspection program and the confirmation of reporting boundaries are sufficient to address 

private infrastructure in the watershed at this time. 

Sewer Infrastructure Projects – There is one ARV in Terrapin Creek that JEA will inspect

within the first year after BMAP adoption. This inspection will ensure that corrosive gases have 

not compromised the integrity of the pipe, leading to potential SSOs, and proactively prevents 

fecal coliform loading. JEA will schedule the inspection in accordance with its operations and 

maintenance schedule, and the results will be reported in the first annual BMAP progress report. 

JEA will continue its maintenance efforts and systemwide programs, and this will be sufficient to 

address potential sewer sources in the WBID at this time.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

162

13.4.3 S TOR MWATE R

Illicit Connection Removal – There is very little stormwater infrastructure in the WBID. The 

PIC Program currently has nine open cases, and in order for the stormwater efforts to be 

sufficient, these PICs must be investigated and the connections eliminated or the cases closed. 

COJ will provide information on their status, including why a particular PIC may still be open, in 

the first annual BMAP progress report. 

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. The permit program will continue, 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit to prevent 

unpermitted connections.

COJ Program Implementation – COJ has completed one drainage system rehabilitation 

project, on Faye Road, that has reduced flooding in an area with private and JEA lift stations, 

thus preventing stormwater-related fecal coliform loading to Terrapin Creek. In addition, since 

2005, COJ PWD has cleaned one ditch and repaired three stormwater inlets. COJ will continue 

maintenance activities in the watershed to prevent additional fecal coliform loading to the creek. 

13.4.4 AGR ICULTUR E

The cow/calf operation located in the watershed could be a potential source of fecal coliform 

loading to the creek during wet-weather conditions due to stormwater runoff. FDACS will meet 

with the property owner once the Cow/Calf BMP Manual has been adopted to obtain a NOI to 

implement the applicable BMPs. FDACS will also visit the property to ensure that BMPs are 

properly implemented and to provide assistance with the BMPs, if needed. 

TABLE 82: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE TE R R APIN C REEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X 

Enforcement √ √ X X

Program Implementation √ √ X X 

Permit Review (new and repair permits) X √ X X

Failure Area Evaluation √ √ X X 

Failure Area Ranking √ √ X X

Septic Tank Inspection √ √ X X 

Septic Tank Phase-Out - - X X

Public Education (PSA) √ X X X 

Surface Water Sampling for Conditions and Trends √ X X X

Sewer System

Sewer Line Upgrades X X X -

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X - 

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X 

Sanitary Sewer Overflow (SSO) Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √
Final Lower St. Johns River Basin Management Action Plan – December 2009 

163

S OUR CE /AC TION COJ DCHD FDOT JEA

Stormwater

Flood Control Capital Projects √ X - X 

Capital Projects/Stormwater Water Quality BMPs - X - X

Stormwater System Ditch and Canal Maintenance √ X √ X 

Stormwater Pond Maintenance * X * X 

Stormwater Pipe Cleaning and Maintenance √ X * X 

Potential Illicit Connection (PIC) Identification √ X + X

Illicit Connection Removal √ X - X 

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X 

Program Implementation √ X √ X 

Pet Waste Management

Ordinances and Enforcement √ X X X

Public Education and Outreach √ X X X 

Special Source Assessment Activities

Intensive Water Quality Sampling to Track Sources - X X - 

Tributary Assessment Team (TAT) √ X X √

Microbial Source Tracking (MST) √ X X √

Thermal Imagery to Identify PICs - X X X 

Note: Shaded cells (marked with X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

164

CHAPTE R 14: GOODB YS CREEK (WB ID 2326)

14.1 WB ID DE S CR IPTION

Goodbys Creek, WBID 2326, is located in Duval County, east of the LSJR within the North 

Mainstem Planning Unit, as designated by SJRWMD (Figure 18). The “headwaters” of 

Goodbys Creek presumably comprise stormwater that originates at the northernmost terminus 

of the WBID just north of Toledo Road (Figure 19). The entire creek flows southwest in a single 

channel, except for four branches that join the main portion of Goodbys Creek. The most 

northern branch (“northern branch”) flows from the west into Goodbys Creek from north of the 

WBID boundary. According to COJ EQD, this small, unnamed, first-order stream leads into 

Goodbys Creek and is not hydraulically connected to Christopher Branch to the north. The 

unnamed stream appears to merge with Goodbys Creek just south of Hernando Road. 

Two additional branches join the main channel from the east (“northeastern branch” and 

“southeastern branch”) and one from the west (“western branch”). The northeastern branch 

extends just south from Oxford Forest Drive northeast to South Old Kings Road. The 

southeastern branch is a very small tributary that merges with the main channel approximately 

50 meters (164 feet) north of San Clerc Road. The western branch appears to originate at a 

pond just east of La Vista Circle and merges with the main channel just south of San Clerc 

Road. 

The creek enters a wetland area south of Baymeadows Road that extends from just east of San 

Jose Boulevard west to Barrington Oaks Drive. Upon entering the wetland, the creek bends to 

the west and flows westward until it eventually reaches the St. Johns River, just west of Holly 

Grove Avenue. An artificial channel just south of the wetland area continues southeast through 

residential communities and appears to terminate near a closed landfill. This channel may 

transport water into Goodbys Creek (PBS&J, August 2008b). 

The spatial distribution and acreage of different land use categories in the Goodbys Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 83). The 

dominant land use (1,179.2 acres; 36.2% of total coverage) in the watershed, and directly 

adjacent to the majority of the creek itself, is medium-density residential, which extends 

throughout the watershed. The next two most abundant land cover categories are (1) highdensity residential areas (706 acres; 21.7% of total coverage), located adjacent to surface 

waters (i) at the northernmost corner of the WBID, (ii) from Lake Woodbourne Drive north to 

Praver Drive South, (iii) between Baymeadows Road and San Clerc Road, and (iv) just east of 

Phillips Highway at the Beauclerc Bay Apartments; and (2) commercial/utility and institutional 

areas (382.7 acres; 11.7% of total coverage), located predominantly east of Phillips Highway in 

the eastern corner of the WBID and in patchy areas in the southeastern and northernmost

portions of the watershed. 

Upland forests and wetland habitat accounted for 11% of land use in the watershed. The 

largest wetland area forms a portion of Goodbys Creek and is located south of Baymeadows 

Road, extending from San Jose Boulevard east to Barrington Oaks Drive. As wetlands serve as 

habitat for various species of wildlife and are located near surface waters, there is a potential for

wildlife to contribute to the fecal pollution of Goodbys Creek. It is worth mentioning that a 

marina is located on the north side of the creek, immediately west of San Jose Boulevard 

(PBS&J, August 2008b). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

165

F IGUR E 18: LOCATION OF THE GOODB YS CREEK WATE R S HE D 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

166

FIGUR E 19: GOODB YS CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

167

According to the 2000 Census, there are 8,392 households in the watershed, averaging 2.12 

people per household. High-density residential areas (16 to 25 people per acre) are located 

adjacent to surface waters throughout the watershed, especially in the center and northeast 

corner of the WBID (PBS&J, August 2008b). In addition, assuming that 40% of households 

have 1 dog (Tyler, 2006), there are an estimated 3,357 dogs in the watershed.

TABLE 83: L AND US E S IN THE GOODB YS CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

Medium-Density Residential 1,179.2 36.2

High-Density Residential 706.0 21.7

Commercial/Utility/Institutional 382.7 11.7

Wetlands 225.5 6.9

Upland Forest 167.2 5.1

Industrial 161.6 5.0

Recreational 145.2 4.5

Transportation 113.1 3.5

Water 111.5 3.4

Low-Density Residential 37.1 1.1

Nonforested Upland 15.3 0.5

Open Land 14.9 0.5

TOTAL: 3,259.2 100

14.2 POTE NTIAL S OUR CE S

14.2.1 POINT S OUR CES

Rinker Materials and Duval Asphalt Products Inc. are the only facilities permitted to discharge 

industrial wastewater and stormwater associated with industrial activity, respectively, in the 

Goodbys Creek watershed. Both facilities are located just west of Phillips Highway in the 

eastern portion of the WBID. In addition, the COJ/FDOT MS4 permit includes the Goodbys 

Creek watershed. A closed landfill that is no longer in use is situated outside the WBID 

boundaries south of the Sunbeam Road and Craven Road intersection. There is a potential for 

stormwater from the landfill to flow into an artificial channel that merges into Goodbys Creek 

(PBS&J, August 2008b). 

14.2.2 ILLICIT DIS CHAR GE S

COJ EQD is continuing a program to identify, confirm, and respond to illicit connection issues in 

Jacksonville. A total of 94 PICs were identified in the Goodbys Creek watershed between 1999 

and 2006. Of these, 13 connections were confirmed to be illicit and were removed. There are

16 PICs currently pending investigation. 

14.2.3 CE NTR ALIZE D S EWE R INFR AS TR UCTUR E AND OVERFLOWS

The Goodbys Creek watershed is predominantly located in the Mandarin WWTF Service Area, 

with smaller portions of the watershed extending into the Buckman and Arlington East WWTF 

service areas. An estimated 4,547 households (approximately 54% of households) are 

connected to the sanitary sewer system in the watershed. Sewer infrastructure is located 

throughout the watershed and near the surface waters of Goodbys Creek, increasing the 

likelihood that possible spills and/or unidentified sewer infrastructure leaks will impact surface 

waters. JEA has reported a total of 18 SSOs within the WBID boundaries (Table 84). The 

estimated volume of spill associated with these overflows ranged from 10 to 36,000 gallons and 

averaged 3,752 gallons; however, only 8 SSOs were reported to have potentially impacted 

surface waters. More recently, on July 22, 2008, a SSO from a lift station at 8938 San Jose 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

168

Boulevard resulted in an estimated 1,000-gallon discharge of raw sewage to the adjacent 

ground and into the surface waters of Goodbys Creek. Also, according to FDEP, alleged illegal 

discharges of untreated/improperly treated wastewater were suspected at a WWTF for an 

apartment complex at Goodbys Creek near San Jose Boulevard (PBS&J, August 2008b).

Monitoring results demonstrate the consistency of elevated levels of fecal coliform bacteria 

throughout the period of record (April 1984–May 2007). As such, it is unlikely that the eight 

reported SSOs that potentially affected surface waters were responsible for the consistent fecal 

coliform exceedances observed throughout the Goodbys Creek watershed. Additionally, the 

highest levels of fecal coliform observed at all IWR stations did not correspond with the reported 

SSO incidents. This demonstrates that other sources, such as unidentified sewer infrastructure 

leaks and/or failing OSTDS, may be contributing to the overall pollution of the Goodbys Creek 

watershed (PBS&J, August 2008b).

TABLE 84: SSOS R E POR TE D IN THE GOODB YS CREEK WATE R S HE D, 2001–07

WB ID NAME

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME 

OF S PILL

(GALLONS ) 

P OTENTIALLY 

IMPACTE D S UR FACE 

WATERS

Goodbys Creek (2326) 24-Jan-02 10 N 

Goodbys Creek (2326) 20-Apr-02 900 N

Goodbys Creek (2326) 19-Sep-02 20 N 

Goodbys Creek (2326) 14-Nov-02* 2,000 Y 

Goodbys Creek (2326) 23-Nov-02 300 N 

Goodbys Creek (2326) 17-Dec-02 100 N 

Goodbys Creek (2326) 30-Dec-02* 2,500 Y 

Goodbys Creek (2326) 12-Feb-03* 15,000 Y

Goodbys Creek (2326) 14-Feb-03* 36,000 Y 

Goodbys Creek (2326) 11-Apr-03* 2,000 Y 

Goodbys Creek (2326) 18-Apr-03 300 N 

Goodbys Creek (2326) 23-Oct-03 100 N

Goodbys Creek (2326) 26-Feb-04* 4,500 Y 

Goodbys Creek (2326) 23-Nov-04 50 N

Goodbys Creek (2326) 14-Dec-04* 3,600 Y 

Goodbys Creek (2326) 18-Dec-04 50 N 

Goodbys Creek (2326) 9-Mar-05 50 N 

Goodbys Creek (2326) 3-Oct-05* 50 Y

*Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters.

14.2.4 OS TDS

WSEA estimates that there are approximately 349 OSTDS in the Goodbys Creek watershed. 

According to DCHD, 46 septic system repair permits were issued in this area. The majority of 

the permits, and presumably failed septic systems, were located (1) from Regina Road 

southeast to the Craven Road West and Craven Road intersection, and (2) in the southwestern 

corner of the WBID, west of San Jose Boulevard, between Cardinal Point Drive and Goodbys 

Creek. Parcels with septic system repair permits in these areas are located near the surface 

waters of Goodbys Creek, increasing the likelihood that OSTDS failure may be contributing to 

the fecal pollution observed in these locations. In addition, one DCHD-designated septic 

system failure area (Beauclerc Gardens) is located in the watershed. This failure area was 

placed on the WSEA planning list, and the transition from septic to sewer has since been 

completed. The vast majority of septic system repair permits for the watershed were filed in this 

septic system failure area in the southwestern corner of the WBID, west of San Jose Boulevard 

between Cardinal Point Drive and Goodbys Creek (PBS&J, August 2008b). 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

169

14.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Goodbys Creek WBID contains 

predominantly 10 to 25% impervious surface. The watershed also contains land with greater 

than 25% impervious surface. These areas generally correspond to commercial/utility and 

institutional and industrial land use classifications, and are located primarily east of railroad lines 

that parallel Phillips Highway and in the southwest corner of the WBID. Furthermore, the 

potential for stormwater runoff was analyzed and demonstrates that the majority of the WBID 

contains a moderate-to-high potential for stormwater runoff, including areas near the creek. The 

highest runoff coefficients are located primarily (1) in the northernmost corner of the WBID, (2) 

on either side of Phillips Highway in the eastern corner of the WBID, (3) in areas surrounding 

the Baymeadows and San Jose Boulevard intersection, and (4) in the south corner of the WBID 

at the Old St. Augustine Road and San Jose Boulevard intersection (PBS&J, August 2008b).

The storm sewer network in the Goodbys Creek watershed includes 55 permitted stormwater 

treatment areas, encompassing approximately 21.8% of the WBID area. Stormwater 

infrastructure in the WBID includes 141 outfalls by receiving water (1 classified by FDEP as a 

major outfall) and 1,258 inlets. Although closed conveyances are common throughout the 

WBID, ditch systems primarily form segments of Goodbys Creek (1) throughout the northern 

portion of the watershed, north of Naranja Drive South; and (2) from just north of Philrose Drive 

south to Latimer Road East (PBS&J, August 2008b).

Higher fecal coliform concentrations were identified in the “wet” season at the Sanchez Road 

station, suggesting that the majority of bacterial loading was delivered to this area of Goodbys 

Creek through nonpoint source discharges, failing wastewater conveyance systems, or septic 

systems during high rainfall. In contrast, concentrations did not differ at the stations near the 

confluence, indicating that a constant source (or sources) of fecal coliform bacteria, apparently 

independent of rainfall, is contributing to the creek in this area. Considering the possibility for 

dilution during the “wet” season, it is possible that loadings observed during this time of the year 

were even higher than they appeared to be (PBS&J, August 2008b). 

14.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

14.3.1 JEA ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

14.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

JEA has pipe bursted 0.16% of the sewer lines in the watershed and open cut 0.14%. It has 

also replaced or repaired components on 3 of the 53 (5.7%) lift stations in the WBID. In the 

Goodbys Creek watershed, JEA inspected 3,455 LF of pipe and cleaned 16,686 LF of pipe in 

FY07. These activities will continue in the future to maintain the sanitary sewer system and 

prevent future problems. 

Table 85 contains additional information on JEA’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

170

TABLE 85: JEA AC TIVITIE S IN THE GOODB YS CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

S TAR T DATE OF 

P ROJECT

Sewer Upgrades

JEA – 123 Pipe Bursting – Increase 

Carrying Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 2,364 $246,276 JEA Ongoing FY00

JEA – 124 Open Cut – Removal and 

Replacement

Replace failing/leaking 

infrastructure 

Total footage of open cut 

replacement in watershed since 

2001: 2,016

$24,427 JEA Ongoing Ongoing

Other Sewer Infrastructure Upgrades

JEA – 125 Manhole Linings Rehabbed Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 126 ARV Inspection and Rehab See Appendix E 2 ARVs replaced within 200 feet 

of tributary $481,873* JEA Ongoing Ongoing

JEA – 127 Pump Station SCADA 

Upgrades

Retrofitting completed in 2004;

all stations constructed since 

have SCADA installed. See 

Appendix E.

Not applicable Unknown JEA Complete Complete

JEA – 128

Inspect Force Main Discharge 

Manholes, Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 129 Pump Station Class I/II 

Rebuilding

Repair or replace components 

of existing pump stations

Projects in watershed since 

2002: 3 $236,805 JEA Ongoing Ongoing

Programs To Reduce Sewer Problems

JEA – 130 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing

Current FOG 

Program initiated 

in 2004

JEA – 131 Pipe TV Inspection

Inspect existing infrastructure 

through use of closed-circuit 

TV system

3,455 LF of pipe inspected 

(FY07) $163,099* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 132 Pipe Cleaning Clean existing pipes to avoid 

blockages

16,686 LF of pipe cleaned 

(FY07) $743,054* JEA Ongoing

Carried over from 

city operation 

(1997)

JEA – 133 Implement CMOM Program See Appendix E Not applicable $163,269* JEA Ongoing Ongoing 

JEA – 134 Manhole Monitoring See Appendix E Not applicable $137,526* JEA Ongoing August 2007

JEA – 135 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 136 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 137 Non-Destructive Testing 

Program/Pipe Integrity Testing See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

171

14.3.2 DCHD ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

14.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs.

As of July 28, 2008, DCHD updated the listing of failure and nuisance areas. There is currently 

1 designated septic system failure area, Beauclerc Gardens, in the Goodbys Creek watershed. 

Approximately 16.3% of the failure area is located in the watershed. 

As part of the OSTDS Program, DCHD has issued 26 new construction permits, 46 repair 

permits, and 23 abandonment permits in the WBID. In addition, 13 annual operating permits 

have been issued for PBTS in the watershed. DCHD has also performed 102 plan reviews and 

133 complaint investigations. It will continue these efforts in the future to reduce and prevent 

issues related to OSTDS. Table 86 lists DCHD’s projects in the Goodbys Creek watershed. 

TABLE 86: DCHD ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 56 OSTDS Program 

Implementation of programs to 

address septic systems as 

potential sources

Approximately 26 

new construction 

permits, 46 repair 

permits, and 23 

abandonment 

permits issued

$32,500 FDOH Ongoing

DCHD – 57 Annual Operating 

Permits 

Annual operating permits 

issued for PBTS, systems 

located in IMZ, and 

commercial systems

13 annual operating 

permits for 

PBTS/IMZ located in 

WBID

$32,500

FDOH/ 

LJSR 

SWIM 

Grant

Ongoing

DCHD – 58 SWIM Project Implementation of broadranging septic tank ordinance

16.3% of Beauclerc 

Gardens Septic 

Tank Failure Area 

located in WBID

$34,000

FDOH/ 

LJSR 

SWIM 

Grant

Completed

DCHD – 59 DCHD-Sponsored 

Training Programs

Annual training programs held 

for septic tank contractors, 

certified plumbers, 

maintenance entities, and 

environmental health 

professionals

1 to 2 trainings per 

year providing up to 

12 contact hours

Not 

applicable

Not 

applicable Ongoing

DCHD – 60 

Application/Plan 

Review/Site 

Evaluations

DCHD performs plan review 

and site evaluation for each 

application received for 

OSTDS new construction, 

repair, or modification of 

existing system

Approximately 102 

plan reviews and 

site evaluations 

have been 

performed in WBID 

based on permitting 

history

$22,000

FDOH/ 

LJSR 

SWIM 

Grant

Ongoing

DCHD – 61 Septic Tank Failure 

Area Ranking

Septic tank failure area scored 

and prioritized on annual basis

Less than 1 year 

since previous 

update

Not 

applicable

Not 

applicable Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

172

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 62 Complaint 

Investigations

DCHD investigates all 

complaints received, performs 

site visit, and initiates 

enforcement action on sanitary 

nuisance violations

13 complaint 

investigations have 

been performed in 

WBID

$1,500

FDOH/ 

LJSR 

SWIM 

Grant

Ongoing

DCHD – 63 Walk the WBID 

Effort 

Conduct Walk the WBID in 

central portion of watershed to 

identify sources

Walk the WBID Unknown DCHD/ 

COJ Planned

DCHD – 64 Intensive Inspection 

Program 

Intensive geospecific 

inspections in selected BMAP 

WBIDs based on repair permit 

applications, water quality 

information, and site 

conditions; additional WBIDs 

may be identified in future 

based on ongoing assessment 

efforts

Approximately 50 

OSTDS located near 

San Servera Drive, 

Sanchez Road, 

Baymeadows Road, 

Craven Road, and 

San Rae Road

$7,750 Unknown

Planned – 

pending 

funding

14.3.3 COJ ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

14.3.3.1 Completed COJ Projects

COJ has completed two projects in the watershed: (1) a regional wet detention pond at Powers 

Avenue and Old Kings Road, which treats 520 acres; and (2) a project at Sierra Madre Drive to 

prevent erosion and flooding. The projects have treated stormwater runoff and controlled 

flooding in these two areas, reducing the amount of stormwater-associated fecal coliform 

loading to Goodbys Creek.

14.3.3.2 Ongoing COJ Programs and Activities

The COJ MS4 permit requires COJ and its copermittees to implement a Stormwater Monitoring 

Plan. As part of this plan, COJ has 1 routine monitoring station in the watershed that is sampled 

quarterly. A total of 38 samples were taken at this station between 1995 and 2008. 

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance includes 241 work orders for ditch and 

creek regrading, erosion control, and cleaning; 11 work orders for lake and pond maintenance; 

and 145 work orders for the repair of blocked structures and measures to prevent flooding. 

These work orders were completed between 2005 and 2008. PWD will continue a level of effort 

to maintain the MS4 conveyances based on CARE requests. 

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. Of the 94 PICs identified by the COJ in the Goodbys 

Creek watershed, 13 were confirmed as illicit connections and were removed; the status of 16 

PICs is currently pending investigation (PBS&J, August 2008b). Also as part of the PIC 

Program, COJ EQD provides public outreach through educational pamphlets, informational door 

hangers, and the storm drain–stenciling program.

COJ PWD also conducts inspections, which included 11 investigations into illicit water 

discharges, 7 illegal discharges, 3 sewer lines that drained into a yard or ditch, 19 SSOs, and 20 

private lift stations in the watershed. PWD will maintain a future level of effort for these 

investigations based on requests, which are logged and tracked through the CARE database. 

Table 87 provides additional detail on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

173

TABLE 87: COJ ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T TOTAL C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS

Capital Improvement Projects

COJ – 157 Powers Avenue at Old Kings Road Regional pond 520 acres Unknown COJ Complete

Drainage System Rehab Projects

COJ – 158 Repair Erosion at Sierra Madre Drive Bank repairs failed to prevent erosion Sierra Madre Drive $ 106,262 COJ Complete

MS4 Maintenance Activities

COJ – 159 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE requests. Costs 

limited to activities completed after release of work 

order system. 

241 (for 2005–08) $18,300 COJ Ongoing

COJ – 160 Lake or Pond Problem 11 (for 2005–08) $374 COJ Ongoing

COJ – 161 Structure Blocked/Repair/General Flooding 145 (for 2005–08) $20,284 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 162 Illicit Water Discharge CARE-initiated Inspection 11 (for 2000–08) $2,332 COJ Ongoing

COJ – 163 Pollution – Water – Illegal Discharge CARE-initiated Inspection 7 (for 2000–08) $1,484 COJ Ongoing

COJ – 164 Sewer Drains into Yard/Ditch CARE-initiated Inspection 3 (for 2000–08) $636 COJ Ongoing

COJ – 165 Sewer Overflow CARE-initiated Inspection 19 (for 2000–08) $4,028 COJ Ongoing

COJ – 166 Private Lift Station Inspection First lift station installed in 1993 with 233 annual 

inspections 20 (for 1993–2008) $4,240 COJ Ongoing

COJ – 167 Verify Locations of Private Lift Stations on 

Boundary

Verify location of 3 stations on boundary and report in 

first annual progress report 3 (for 2009–10) $636 COJ Planned

COJ – 168 Illicit Discharge Detection and Elimination 13 illicit, 16 open 94 (for 1999–2006) $19,928 COJ Ongoing

COJ – 169 Follow Up on Outstanding PICs Follow up on 16 open PICs in watershed 16 (for 2009–10) $3,392 COJ Planned

COJ – 170 Routine Surface Water Sampling NPDES permit-related quarterly water quality 

sampling – 1 sampling station in WBID 38 (for 1995–2008) $16,986 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 171 Beauclerc Gardens Failure Area – Septic 

Tank Phase-Out

Phase-out of septic tanks in failure areas (also listed 

as part of larger LSJR Main Stem BMAP project)1 84 total tanks, 0 connected Unknown COJ Ongoing

COJ – 172 Outside Failure Areas – Septic Tank PhaseOut Phase out program as provided by COJ ordinance 265 total tanks, 

0 connected Unknown COJ Ongoing

COJ – 173 Walk the WBID Effort Conduct Walk the WBID in central portion of 

watershed to identify sources Walk the WBID Unknown COJ/DCHD Planned

COJ – 174 Septic Tank Maintenance Public Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 175 Pet/Animal Management Public Education Public service announcements Ongoing Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35. 1 COJ has committed to removing septic tanks in failure areas that are within 300 meters of a surface water in the 2008 LSJR Main Stem BMAP. COJ must submit a plan to FDEP for removing 

septic tanks within 6 months of completion of the septic tank study, or by June 30, 2011, whichever is earlier. At a minimum, COJ will accomplish a 50% implementation of the septic tank phaseout projects by July 31, 2015, with the phase-outs completed by December 31, 2023. For the 10 tributaries addressed in this BMAP, a total of 1,167 septic tanks are located in failure areas, 

although not all of them may be located within 300 meters of a surface water. The failing tanks within 300 meters of a surface water will be included in the COJ plan and schedule to phase out 

tanks and will be identified as Tributaries BMAP-related tanks in the plan.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

174

14.3.4 FDOT ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

14.3.4.1 Completed FDOT Projects

FDOT has completed the Baymeadows Project in the watershed; this wet detention pond treats 

35 acres from east of U.S. 1 to Baymeadows Road. The project has helped to reduce fecal 

coliform loading to the creek by capturing and treating stormwater runoff.

14.3.4.2 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

will be reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities

regulate stormwater quality through state rules, ordinances, and codes. FDOT performs 

periodic site inspections as part of the MS4 NPDES permit. FDOT supports the Adopt-AHighway program in the watershed, in which trash is collected from 80 acres, for an average 

annual removal of 6,706 pounds. Street sweeping also occurs monthly on 36 miles of 

roadways, reducing the amount of trash and sediment entering the stormwater conveyance 

system. As part of the maintenance program, FDOT removes sediment, trash, and debris from 

the system as needed. This maintenance occurs in 195 inlets and 8 miles of piping.

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for one monitoring station in the 

Goodbys Creek watershed that is sampled quarterly as part of the routine monitoring program. 

FDOT will continue these activities in the future to support the maintenance of the MS4 system. 

Table 88 lists FDOT’s activities in the watershed. 

TABLE 88: FDOT ACTIVITIE S IN THE GOODB YS CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Identification and Removal of Illicit Connections

FDOT – 54 PIC Program – Search for Illicit 

Connections See Note 1 State of Florida(FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 55 

PIC Program – Illicit 

Connections Identified and 

Removed in WBID if Found To 

Be Truly Illicit

See Note 1 State of Florida

(FDOT)/COJ

5 illicit connections 

removed Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 56 Routine Tributary Monitoring as 

Part of MS4 Permit See Note 2 State of Florida (FDOT)/COJ 1 station quarterly Ongoing

Roadway Projects with Structural BMPs

FDOT – 57 Baymeadows Project from East 

of U.S. 1 to Baymeadows Rd $1,496,472 State of Florida (FDOT) 35 acres, wet detention Completed
Final Lower St. Johns River Basin Management Action Plan – December 2009 

175

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Drainage Connection Program (DCP)

FDOT – 58

DCP – Connecting Entity Must 

Certify that All Discharges to 

FDOT MS4 Are Treated Prior to 

Connection

See Note 3 State of Florida 

(FDOT) Ongoing effort Ongoing

Adopt-A-Highway Program

FDOT – 59 Adopt-A-Highway Program See Note 4 Not applicable

Trash collected from 80 

acres annually averages 

6,706 lbs

Ongoing

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 60 

Sediment Accumulation, Trash, 

and Debris Removed As 

Needed 

$48,375 State of Florida 

(FDOT)

Approximately 195 

inlets/catch basins and 

about 8 miles of piping

Ongoing

Street Sweeping Program

FDOT – 61 Street Sweeping Program $9,861 State of Florida 

(FDOT)

36 miles of roadway 

swept monthly Ongoing

Routine Maintenance Activities

FDOT – 62 Maintain FDOT Stormwater 

Systems See Note 5 State of Florida 

(FDOT)

Clean drainage 

structures, replace/repair 

storm/cross/side drains, 

clean/reshape roadside 

ditches, clear/repair 

outfall ditches, mowing,

roadside litter removal, 

respond to citizen 

complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 4 Associated cost unknown. Program is voluntary. 5 Countywide Program – Average cost is $2,750,735 per year.

14.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E FFORTS

Table 85 through Table 88 list the projects and programs to reduce fecal coliform loading in the 

Goodbys Creek watershed. Several key efforts completed in the WBID are summarized below, 

as well as activities that are expected to continue or to be implemented in future years. The 

efforts outlined in the project tables, including the activities highlighted below, will reduce fecal 

coliform loading and improve water quality in Goodbys Creek based on the best information 

available about fecal coliform sources. As water quality improves in response to these actions 

and the bacteria source information is refined, future BMAPs may recommend different activities 

or levels of effort. For this BMAP, the full implementation of the projects and programs listed in 

the project tables for the Goodbys Creek watershed is sufficient to significantly reduce fecal 

coliform sources and make substantial progress towards meeting the TMDL.

14.4.1 OS TDS

Failure Area – The completed sewer installation in the Beauclerc Gardens failure area should 

eliminate fecal coliform loading into the creek from septic systems, because repair permits were 

heavily concentrated in this area. Eighty-four septic tanks are eligible for sewering due to their 

inclusion in the failure area. COJ has committed to removing septic tanks in failure areas that 

are within 300 meters of surface waters in the 2008 LSJR Main Stem BMAP. The failing tanks 

in the Beauclerc Gardens failure area in the Goodbys Creek watershed within 300 meters of 

surface waters will be included in the COJ phase-out plan and schedule, as described in the 

Main Stem BMAP, and will be identified in the plan as Tributaries BMAP-related efforts. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

176

Repair Permits – There are an additional 265 systems outside the failure area; many of these 

OSTDS are in the central portion of the waterbody and located near surface waters or 

stormwater inlets. DCHD issued repair permits for the systems in this area mostly between 

1998 and 2005. To sufficiently address these systems in the central portion of the WBID, a 

Walk the WBID event should occur in the 5-year BMAP cycle (see Appendix F). COJ should 

lead the event in partnership with DCHD to inspect parcels with OSTDS near surface waters. In 

addition, DCHD will seek to secure funding for a new program to intensively inspect a specific 

geographic area within the WBID boundary and, upon obtaining funding, will report the results of 

the inspection in an annual BMAP progress report. Additional areas may be identified for 

intensive inspections based on the assessment efforts discussed in the BMAP. If additional 

areas are designated in the future for inclusion in the program, these areas will also be 

inspected as funding becomes available.

Program Implementation – City ordinances, inspections, and program implementation 

combined with DCHD permit review processes and inspections proactively address potential 

sources. Program implementation ensures the proper review of new OSTDS sites and ensures 

the maintenance of existing systems. These activities need to be continued and fully enforced 

to manage potential impacts from existing systems in the nonfailure areas and to prevent the 

creation of new OSTDS sources. 

14.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, COJ inspects 20 private lift stations in 

the watershed annually. An additional 3 stations are located along the WBID boundary. COJ 

should verify that (1) the station located at U.S. 1, north of Cypress Plaza Drive, is reported in 

Pottsburg Creek; (2) the station on Sunbeam Road, west of Craven, is reported in Julington 

Creek; and (3) the station on Baymeadows Way, north of Baypine Road, is reported in 

Pottsburg Creek. If any of these stations are not reported in those WBIDs, they should be 

assigned to Goodbys Creek. The first annual BMAP progress report will include confirmation of 

the locations. 

Sewer Infrastructure Projects – There have been significant reductions in SSOs since 2004. 

One lift station located at 8520 San Jose Blvd is on the Goodbys Creek boundary, and JEA 

must confirm if this lift station is reported in the adjacent WBID. 

Program Implementation – Continued inspection, repair, and maintenance activities in 

conjunction with the systemwide programs are sufficient to address potential sewer sources in 

the WBID at this time. The Root Cause Program and other SSO prevention efforts, such as 

FOG and CMOM implementation, should be continued so that any additional infrastructure 

problems that develop will be identified and repaired. JEA will be expected to report its

inspection, prevention, and maintenance efforts in the WBID as part of the annual BMAP 

reporting process to ensure that the system is being monitored and maintained. 

14.4.3 S TOR MWATE R

Illicit Connection Removal – The PIC Program, implemented by COJ and FDOT, has 

removed 13 illicit connections. Both entities have committed to continue the PIC Program, 

which includes identifying additional illicit connections and removing those connections in a 

timely manner. For the stormwater activities to be sufficient, COJ must resolve the 16 open PIC 

investigations. COJ will provide information on the confirmed illicit discharges and their 

resolution or confirm that the cases were closed for the annual BMAP progress report. COJ will 

provide information on any cases that are still open. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

177

Capital Improvement Projects – FDOT constructed a wet detention pond that treats 35 acres 

between Baymeadows Road and U.S. 1, and COJ has a regional pond that treats 520 acres at 

Powers Avenue and Old Kings Road. These projects capture and treat stormwater runoff, 

reducing fecal coliform loading to Goodbys Creek from stormwater in these areas. COJ also 

repaired erosion in the ditch at Sierra Madre Drive, preventing sediment loading into the creek. 

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue, 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit to prevent 

unpermitted connections. The FDOT Adopt-A-Highway Program prevents over 6,700 pounds of

trash every year from entering the tributary. This effort is expected to continue if the Adopt-AHighway volunteers continue to be active in the WBID. FDOT will continue stormwater 

infrastructure maintenance, as these efforts prevent potential bacteria regrowth in the MS4 

conveyances. In addition, FDOT sweeps 36 miles of roadway every month, helping to reduce

sediments entering the stormwater conveyance systems. 

COJ Program Implementation – COJ PWD has invested an immense amount of time in work 

orders since 2005 to clean ditches, rectify stormwater pond problems, and repair blocked 

structures. Program implementation, including TAT sampling, is addressing stormwater sources 

at this time.

TABLE 89: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE GOODB YS CREEK WATE R S HE D

S OUR CE /AC TION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X

Enforcement √ √ X X

Program Implementation √ √ X X

Permit Review (new and repair permits) X √ X X

Failure Area Evaluation √ √ X X

Failure Area Ranking √ √ X X

Septic Tank Inspection √ √ X X

Septic Tank Phase-Out - - X X

Public Education (PSA) √ X X X

Surface Water Sampling for Conditions and Trends √ X X X

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X √

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X

Sanitary Sewer Overflow (SSO Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X

Capital Projects/Stormwater Water Quality BMPs √ X √ X

Stormwater System Ditch and Canal Maintenance √ X √ X

Stormwater Pond Maintenance √ X √ X

Stormwater Pipe Cleaning and Maintenance √ X √ X

Potential Illicit Connection (PIC) Identification √ X + X

Illicit Connection Removal √ X + X
Final Lower St. Johns River Basin Management Action Plan – December 2009 

178

S OUR CE /AC TION COJ DCHD FDOT JEA

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X

Program Implementation √ X √ X

Pet Waste Management

Ordinances and Enforcement √ X X X

Public Education and Outreach √ X X X

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources - X X -

Tributary Assessment Team (TAT) - X X -

Microbial Source Tracking (MST) - X X -

Thermal Imagery To Identify PICs - X X X

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable to the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

179

CHAPTE R 15: OPE N C REEK (WB ID 2299)

15.1 WB ID DE S CR IPTION

Open Creek, WBID 2299, is primarily located in Duval County (a very small portion of the 

southeast corner of the WBID is in St. Johns County), southeast of the LSJR within the 

Intracoastal Waterway Planning Unit, as designated by SJRWMD (Figure 20). The 

“headwaters” of Open Creek presumably comprise stormwater runoff that originates in the 

northern reaches of the watershed at Beach Boulevard (Figure 21). A total of six branches join 

Open Creek from the east (“eastern branch”), south (“southwestern branch,” “south central 

branch,” and “southeastern branch”) and north (“northwestern branch” and “northeastern 

branch”). The most upstream branch, eastern branch, begins just south of Beach Boulevard 

and flows southwest into the main channel at Wexford Hollow Road East. Farther downstream, 

the southwestern branch, an artificial channel, extends from John Turner Butler Boulevard and 

courses north through the Windsor Parke Golf Club to the main channel just east of Richmond 

Park Drive North. A pond at Middleton Park Circle appears to be the origin of the south-central 

branch, which flows north to join the main channel north of East Windsor Park Drive. The 

northwestern branch flows south from Beach Boulevard and reaches the main channel at Deer 

Chase Place; a fork in the branch, just west of Bentwood Avenue, extends northwest 

immediately south of Beach Boulevard. A closed conveyance system forms the majority of the 

northeastern branch, which originates at a pond east of Washburn Road and flows due south 

into the main channel just west of Stacey Road. The most downstream branch, southeastern 

branch, extends from John Turner Butler Boulevard north to the confluence with the main 

channel at Tradewinds Drive. 

The creek is joined from the north by five artificial channels that run through residential areas 

between Cordgrass Inlet Drive and Seabreeze Drive. Open Creek flows into the ICWW just 

east of Seabreeze Drive; the ICWW eventually merges with the St. Johns River in Chicopit Bay

(PBS&J, September 2008). 

The spatial distribution and acreage of different land use categories in the Open Creek 

watershed were identified using 2004 land use coverage data from SJRWMD (Table 90). The 

dominant land use (1,343.2 acres; 32.2% of total coverage) in the Open Creek watershed, and 

directly adjacent to the majority of the creek itself, is upland forest, which extends throughout 

the watershed. The next two most abundant land cover categories are (1) wetlands (700.8 

acres; 16.8% of total coverage), which form a boundary around the majority of surface waters of 

the main channel and associated branches; and (2) medium-density residential areas (610.9 

acres; 14.7% of total coverage), located (i) west of Hodges Boulevard at the Jacksonville Golf 

and Country Club, (ii) east of Hodges Boulevard at the Windsor Parke Golf Club, (iii) east of the 

utility strip that traverses the watershed south of Beach Boulevard, and (iv) in the far eastern 

corner of the WBID. High-density residential areas are located adjacent to the surface waters of 

Open Creek’s main channel and southwestern branch, just east of Hodges Boulevard at the 

Windsor Parke Golf Club, and adjacent to the south-central branch at Corton Courts. 

Upland forest and wetlands, which form the majority of land use (49%) in the Open Creek 

WBID, serve as habitat for various species of wildlife and are located near surface waters. As a 

result, although there are no known areas of concentrated wildlife (e.g., bird rookeries) in the 

watershed, there is considerable potential for wildlife to contribute to the fecal pollution of Open 

Creek. Recent development, most notably in the northwestern portion of the watershed along 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

180

Beach Boulevard and Hodges Boulevard, has altered the landscape and possibly the hydrology 

of Open Creek since 2004 (PBS&J, September 2008). 

According to the 2000 Census, there are 3,333 households in the watershed, averaging 2.05 

people per household (PBS&J, September 2008). In addition, assuming that 40% of 

households have 1 dog (Tyler 2006), there are an estimated 1,333 dogs in the watershed.

TABLE 90: L AND USES IN THE OPE N CREEK WATE R S HE D

L AND US E ACRES % OF TOTAL

Upland Forest 1,343.2 32.2

Wetlands 700.8 16.8

Medium-Density Residential 610.9 14.7

Recreational 411.3 9.9

High-Density Residential 310.5 7.5

Transportation 236.3 5.7

Water 236.0 5.7

Commercial/Utility/Institutional 187.1 4.5

Nonforested Upland 94.1 2.3

Open Land 20.2 0.5

Low-Density Residential 13.0 0.3

Disturbed Land 2.8 0.1

TOTAL: 4,166.3 100
Final Lower St. Johns River Basin Management Action Plan – December 2009 

181

F IGUR E 20: LOCATION OF THE OPE N CREEK WATE R S HE D 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

182

F IGUR E 21: OPE N CREEK WB ID LOCATOR MAP
Final Lower St. Johns River Basin Management Action Plan – December 2009 

183

15.2 POTE NTIAL S OUR CE S

15.2.1 POINT S OUR CES

There are no industrial or domestic wastewater facilities, CAFOs, application sites for septic 

residuals, or landfills permitted to discharge to Open Creek. The COJ/FDOT MS4 permit 

includes the Open Creek watershed. A very small area of the southeastern portion of the WBID 

is located in the St. Johns County urban non-MS4 area (PBS&J, September 2008). 

15.2.2 ILLICIT DIS CHAR GE S

The COJ EQD PIC Program has identified seven PICs in the Open Creek watershed, one of 

which was confirmed to be illicit and was removed. The status of five of the PICs is currently 

pending investigation. Despite an effort to identify all PICs connected to MS4 ditches, it is not 

guaranteed that all PICs were found. In addition, the program did not include the inspection of 

closed conveyance systems, and additional illicit connections may be present in the watershed

(PBS&J, September 2008). 

15.2.3 CE NTR ALIZE D S EWE R INFR AS TR UCTUR E AND OVERFLOWS

The Open Creek watershed is located in the Arlington East WWTF Service Area. An estimated 

3,400 households (approximately 100% of households) are connected to the sanitary sewer 

system in the watershed. The WBID supports 220 kilometers (137 miles) of sewer line and 19 

sanitary sewer lift stations, as well as associated infrastructure (e.g., manholes) that comprise 

the central sanitary sewer system and have the potential to contribute fecal contamination to 

surface waters. Sewer infrastructure (e.g., sewer mains, lift stations, manholes) is generally 

located north of John Turner Butler Boulevard, concentrated on the southwestern and eastern 

sides of Hodges Boulevard and to the east of San Pablo Road. In many cases, the sewer 

infrastructure is near the surface waters of Open Creek, increasing the likelihood that possible 

spills and/or unidentified sewer infrastructure leaks will impact surface waters. 

JEA has reported a total of 5 SSOs within the Open Creek WBID boundaries (Table 91). The 

estimated volume of spills associated with these overflows ranged from 20 to 7,200 gallons and 

averaged 1,794 gallons; however, only 3 SSOs were reported to have potentially impacted 

surface waters (PBS&J, September 2008). 

TABLE 91: SSOS R E POR TE D IN THE OPE N CREEK WATE R S HE D, 2001–07

WB ID NAME 

(NUMB E R ) DATE OF OVERFLOW

E S TIMATE D VOL UME 

OF S PILL

(GALLONS ) 

P OTE NTIALLY 

IMPACTE D S UR FACE 

WATERS

Open Creek (2299) 26-Dec-01* 100 Yes

Open Creek (2299) 19-Nov-02* 7,200 Yes

Open Creek (2299) 19-Oct-03 20 No 

Open Creek (2299) 27-Jan-05 50 No 

Open Creek (2299) 14-Feb-06* 1,600 Yes

*Reportable SSOs that spilled > 1,000 gallons of sewage and/or affected surface waters. 

Monitoring results demonstrate the consistency of elevated levels of fecal coliform bacteria 

throughout the period of record (March 1985–May 2007) at the San Pablo Road station. As 

such, it is unlikely that the three reported SSOs that potentially affected surface waters were 

responsible for the consistent fecal coliform exceedances observed. Additionally, the highest 

levels of fecal coliform at all IWR stations did not correspond with the SSO incidents reported 

from 2001 through 2007. This demonstrates that other sources, such as unidentified sewer 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

184

infrastructure leaks and/or failing OSTDS or wildlife sources, may be contributing to the overall 

pollution of the Open Creek watershed (PBS&J, September 2008). 

15.2.4 OS TDS

WSEA estimates that there are 260 septic systems in the Open Creek watershed. According to 

DCHD, only 4 septic system repair permits were issued in this area. The proximity of parcels 

with repair permits to surface waters suggests that septic systems potentially affect the water 

quality of Open Creek in these areas. No DCHD-designated septic system failure areas are 

located near the boundary of the watershed. Considering that few households utilize OSTDS, it 

is unlikely that OSTDS play a major role in the fecal loading of Open Creek. However, it is also 

possible that failing septic systems that have not been issued repair permits are located near

surface waters and may contribute to the bacterial contamination of Open Creek (PBS&J, 

September 2008). 

15.2.5 NONPOINT S OUR CES

An analysis of impervious surface indicates that the Open Creek WBID contains predominantly 

less than 10% impervious surface. This correlates with the prevalent land use classifications of 

upland forests and wetlands in the watershed. The watershed also contains land with 10 to 

25% and greater than 25% impervious surface. Land areas of greater than 25% impervious 

surface generally correspond to commercial/utility and institutional land uses and are located (1) 

at the southwest corner of the WBID adjacent to the southwestern branch, (2) at the northeast 

corner of the WBID near the “headwaters” of the northeastern branch, (3) just south of the San 

Pablo Road and WM Davis Parkway West intersection at the Mayo Clinic, and (4) just south of 

the San Pablo Road and John Turner Butler Boulevard interchange. 

Furthermore, the potential for stormwater runoff analysis demonstrates that the majority of the 

WBID contains a low-to-moderate potential for stormwater runoff, including areas near the 

creek. The highest runoff coefficients are located primarily (1) along Hodges Boulevard in the 

southwestern corner of the WBID, (2) in the northeast corner of the WBID, (3) at the San Pablo 

Road and WM Davis Parkway West intersection, and (4) at the San Pablo Road and John 

Turner Butler Boulevard interchange. As stated previously, land use classifications have 

recently changed due to the recent development along Beach Boulevard, likely altering the 

stormwater runoff coefficients in this area as well (PBS&J, September 2008). 

The storm sewer network in the Open Creek watershed includes 44 permitted stormwater 

treatment areas, encompassing approximately 79.2% of the WBID area. Stormwater 

infrastructure in the WBID includes 61 outfalls by receiving water (1 classified by FDEP as a 

major outfall) and 704 inlets. Although closed conveyances are common throughout the WBID, 

ditch systems are primarily located at Beach Boulevard along the most northern extent of the 

WBID boundaries. According to COJ EQD, an open stormwater ditch that parallels WM Davis 

Parkway appears to service a portion of the road as it passes the Mayo Clinic. The ditch flows 

east along the parkway and turns north at San Pablo Road, underneath WM Davis Parkway, 

into a stormwater pond located immediately northwest of the San Pablo Road and WM Davis 

Parkway intersection. The pond has an overflow structure that discharges to the east, 

underneath San Pablo Road, into a marshy area that merges with the main channel of Open 

Creek (PBS&J, September 2008). 

In the watershed, fecal coliform concentrations did not differ during the “wet” and “dry” seasons 

at the San Pablo Road station, suggesting a constant source of fecal coliform bacteria to Open 

Creek through nonpoint source discharges, failing wastewater conveyance systems, or septic 

systems independent of rainfall. It is possible that higher loadings occur in the “wet” season and 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

185

are diluted by increased volumes of water, resulting in fecal coliform concentrations that appear 

to be independent of rainfall (PBS&J, September 2008). 

15.3 P ROJECTS TO R E DUCE F ECAL C OL IFOR M LOADING

15.3.1 JEA ACTIVITIE S IN THE OPE N CREEK WATERSHED

15.3.1.1 Ongoing JEA Programs and Activities

JEA is currently implementing a number of countywide specific improvement programs, as 

follows, to address the sanitary sewer system as a source of fecal coliform contamination: (1) 

FOG Reduction Program; (2) SSO Root Cause Program; (3) Pop-Top Program; (4) NonDestructive Testing and ARV Programs; (5) SCADA; (6) Third Party Education and Enforcement 

Program; (7) Manhole Monitoring; (8) Force Main Discharge Manholes; and (9) CMOM 

Program. Appendix E describes each of these programs. 

JEA conducts maintenance activities to replace or rehabilitate failing or leaking infrastructure. In 

the Open Creek watershed, JEA has pipe bursted 0.13% of the sewer lines and open cut 

1.57%. In addition, JEA conducts activities to help prevent future infrastructure problems and, 

as part of this effort, inspected 882 LF of pipe and cleaned 2,670 LF of pipe in FY07. These 

activities will continue in the future to maintain the sanitary sewer system and prevent future 

problems. Table 92 provides additional information on JEA’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

186

TABLE 92: JEA AC TIVITIE S IN THE OPE N CREEK WATE R S HE D

PROJECT 

NUMBER PROJECT NAME PROJECT DESCRIPTION LEVEL OF EFFORT

ESTIMATED 

COST

FUNDING 

SOURCE

PROJECT 

STATUS

START DATE OF 

PROJECT

Sewer Upgrades

JEA – 138 Pipe Bursting – Increase 

Carrying Capacity

Replace failing/leaking 

infrastructure

Total footage of pipe burst in 

watershed since 2001: 933 $116,473 JEA Ongoing FY00

JEA – 139 Open Cut – Removal and 

Replacement

Replace failing/leaking 

infrastructure 

Total footage of open cut 

replacement in watershed since 

2001: 11,354

$980,000 JEA Ongoing Ongoing

Other Sewer Infrastructure Upgrades

JEA – 140 Manhole Linings Rehabbed Repair deteriorating manhole 

linings Not applicable $330,469* JEA Ongoing FY01

JEA – 141 ARV Inspection and Rehab See Appendix E

2 ARVs replaced within 200 feet of 

tributary (15 ARVs total in 

watershed)

$481,873* JEA Ongoing Ongoing

JEA – 142 Pump Station SCADA Upgrades

Retrofitting completed in 2004; all 

stations constructed since have 

SCADA installed. See Appendix 

E.

Not applicable Unknown JEA Complete Complete

JEA – 143 

Inspect Force Main Discharge 

Manholes, Repair/Rehab as 

Necessary

See Appendix E Not applicable $466,576* JEA Ongoing FY07

JEA – 144 Verify Lift Station Location on 

Boundary

Verify which WBID Marsh Island 

station is reported in for first 

annual progress report

1 station on boundary Unknown JEA Planned 2209

JEA – 145 Inspect Lift Stations near 

Surface Waters

Inspect 11 stations near surface 

waters and report in annual 

progress reports

11 stations near surface waters Unknown JEA Planned 2009

Programs To Reduce Sewer Problems

JEA – 146 FOG Reduction Program See Appendix E Not applicable Unknown JEA Ongoing Current FOG Program 

initiated in 2004

JEA – 147 Pipe TV Inspection

Inspect existing infrastructure 

through use of closed-circuit 

television

882 LF of pipe inspected (FY07) $163,099* JEA Ongoing Carried over from city 

operation (1997)

JEA – 148 Pipe Cleaning Clean existing pipes to avoid 

blockages 2,670 LF of pipe cleaned (FY07) $743,054* JEA Ongoing Carried over from city operation (1997)

JEA – 149 Implement CMOM Program See Appendix E Not applicable $ 163,269* JEA Ongoing Ongoing

JEA – 150 Manhole Monitoring See Appendix E 1 manhole monitor installed in 

watershed as of January 2009 $ 137,526* JEA Ongoing August 2007

JEA – 151 SSO Root Cause Program See Appendix E Not applicable Unknown JEA Ongoing February 2007

JEA – 152 Pop-Top Program See Appendix E Not applicable $64,324* JEA Ongoing February 2007

JEA – 153 Non-Destructive Testing 

Program/Pipe Integrity Testing See Appendix E Not applicable $74,284* JEA Ongoing Ongoing

* Costs provided are total systemwide costs for the program because WBID-specific costs are currently unavailable. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

187

15.3.2 DCHD ACTIVITIE S IN THE OPE N CREEK WATE R S HE D

15.3.2.1 Ongoing DCHD Programs and Activities

Currently, DCHD is implementing a variety of countywide specific improvement programs and 

restoration activities to address OSTDS as sources of fecal coliform contamination. These 

include (1) the OSTDS Program, (2) training programs, and (3) the designation of septic tank 

failure and nuisance areas for transfer to central sewer. Appendix E describes each of these 

programs.

As part of the OSTDS Program, DCHD has issued 23 new construction permits, 4 repair 

permits, and 4 abandonment permits in the WBID. In addition, 1 annual operating permit has 

been issued for a PBTS. DCHD has also performed 49 plan reviews and 4 complaint 

investigations. It will continue these efforts in the future to reduce and prevent issues related to 

OSTDS. Table 93 lists DCHD’s projects in the Open Creek watershed. 

TABLE 93: DCHD ACTIVITIE S IN THE OPE N CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T

E S TIMATE D 

C OST

F UNDING 

S OUR CE

P ROJECT 

S TATUS

DCHD – 65 OSTDS Program 

Implementation of 

programs to address 

septic systems as 

potential sources

Approximately 23 

new construction 

permits, 4 repair 

permits, and 4 

abandonment 

permits issued

$12,000 FDOH Ongoing

DCHD – 66 Annual Operating 

Permits 

Annual operating 

permits issued for 

PBTS, systems 

located in IMZ, and 

commercial systems

1 annual 

operating permit 

for PBTS/IMZ 

located in WBID

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 67 DCHD-Sponsored 

Training Programs

Annual training 

programs held for 

septic tank 

contractors, certified 

plumbers, 

maintenance entities, 

and environmental 

health professionals

1 to 2 trainings 

per year 

providing up to 

12 contact hours

$2,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 68

Application/ Plan 

Review/ Site 

Evaluations

DCHD performs plan 

review and site 

evaluation for each 

application received 

for OSTDS new 

construction, repair, or 

modification of existing 

system

Approximately 49 

plan reviews and 

site evaluations 

have been 

performed in 

WBID based on 

permitting history

$10,500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing

DCHD – 69 Septic Tank Failure 

Area Ranking 

Septic tank failure 

area scored and 

prioritized on annual 

basis

Less than 2 

years since 

previous update

Not 

applicable Ongoing

DCHD – 70 Complaint 

Investigations

DCHD investigates all 

complaints received, 

performs site visit, and 

initiates enforcement 

action on sanitary 

nuisance violations

4 complaint 

investigations 

have been 

performed in 

WBID

$500

FDOH/ 

LSJR 

SWIM 

Grant

Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

188

15.3.3 COJ ACTIVITIE S IN THE OPE N CREEK WATERSHED

15.3.3.1 COJ Projects under Construction

COJ currently has one project under construction in the watershed, to improve drainage along 

Pine Tree Road. Once completed, the project will reduce flooding in this area, which will, in 

turn, reduce the amount of fecal coliform entering the creek through stormwater runoff.

15.3.3.2 Ongoing COJ Programs and Activities

The COJ MS4 permit requires COJ and its co-permittees to implement a Stormwater Monitoring 

Plan. As part of this plan, COJ has 1 routine monitoring station that is sampled quarterly in the 

Open Creek watershed. A total of 43 samples were collected at this station between 1995 and 

2008. 

COJ PWD’s Streets and Drainage Division is responsible for maintaining its stormwater 

conveyance systems in Jacksonville. This maintenance included 12 work orders for ditch and 

creek regrading, erosion control, and cleaning; 1 work order for lake and pond maintenance; 

and 34 work orders for the repair of blocked structures and measures to prevent flooding. 

These work orders were completed between 2005 and 2008. PWD will continue a level of effort 

to maintain the MS4 conveyances based on CARE requests. As part of the PIC Program, COJ 

EQD provides public outreach through educational pamphlets, informational door hangers, and 

the storm drain–stenciling program. 

In addition, COJ has implemented the PIC Program, which keeps track of reported PICs in a 

database for COJ inspector follow-up. Seven PICs were identified in the Open Creek 

watershed; one was determined to be illicit and removed, and the status of five PICs is still 

pending. 

COJ PWD also conducts inspections in the watershed, including two investigations into illicit 

water discharges, two sewer lines that drained into a yard or ditch, four SSOs, and eight private 

lift stations. PWD will maintain a future level of effort for these investigations based on 

requests, which are logged and tracked through the CARE database. 

Table 94 provides additional details on COJ’s activities in the watershed. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

189

TABLE 94: COJ ACTIVITIE S IN THE OPE N CREEK WATERS HE D

P ROJECT 

NUMB E R P ROJECT NAME P ROJECT DE S C R IP TION L EVEL OF E FFOR T TOTAL C OS T

F UNDING 

S OUR CE

P ROJECT 

S TATUS

Drainage System Rehab Projects

COJ – 176 Improve Drainage Pine Tree Road Road does not drain adequately Pine Tree Road $20,142 COJ Construction

MS4 Maintenance Activities

COJ – 177 Ditch/Creek Regrade/Erosion/Clean Completed in response to CARE 

requests. Costs limited to activities 

completed after release of work 

order system. 

12 (for 2005–08) $2,731 COJ Ongoing

COJ – 178 Lake or Pond Problem 1 (for 2005–08) $5,752 COJ Ongoing

COJ – 179 Structure Blocked/Repair/General 

Flooding 34 (for 2005–08) $4,162 COJ Ongoing

Inspection, Enforcement, and Sampling

COJ – 180 Illicit Water Discharge CARE-initiated Inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 181 Sewer Drains into Yard/Ditch CARE-initiated Inspection 2 (for 2000–08) $424 COJ Ongoing

COJ – 182 Sewer Overflow CARE-initiated Inspection 4 (for 2000–08) $848 COJ Ongoing

COJ – 183 Private Lift Station Inspection First lift station installed in 1991 with 

68 total annual inspections 8 (for 1991–2008) $1,696 COJ Ongoing

COJ – 184 Verify Location of Lift Stations on 

Boundary

Verify that 2 stations on boundary 

are reported in Hogpen Creek 2 (for 2009–10) $424 COJ Planned

COJ – 185 Illicit Discharge Detection and 

Elimination 1 illicit, 5 open 7 (for 2004) $1,484 COJ Ongoing

COJ – 186 Follow Up on Outstanding PICs Follow up on 5 open PICs in 

watershed 5 (for 2009–10) $1,060 COJ Planned

COJ – 187 Routine Surface Water Sampling

NPDES permit-related quarterly 

water quality sampling – 1 sampling 

station in WBID

43 (for 1995–2008) $19,221 COJ Ongoing

Septic Tank Phase-Out Program

COJ – 188 Outside Failure Areas Phase out program as provided by 

COJ ordinance

260 total tanks,

0 connected Unknown COJ Ongoing

COJ – 189 Septic Tank Maintenance Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Management and Reduction of Pet and Animal Waste

COJ – 190 Pet/Animal Management Public 

Education Public service announcements Ongoing Unknown COJ Ongoing

Note: Inspection unit cost = $212; sampling event unit cost = $447; and septic tank per connection = $35.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

190

15.3.4 FDOT ACTIVITIE S IN THE OPE N CREEK WATE R S HE D

15.3.4.1 Completed FDOT Projects

FDOT has completed 1 roadway project in the watershed, Beach Boulevard Widening, which 

includes a wet detention pond that treats 39 acres. The project captures and treats stormwater 

runoff from the roadway and surrounding area, helping to reduce the amount of fecal coliform 

loading to Open Creek.

15.3.4.2 Ongoing FDOT Programs and Activities

Under Subsection 334.044(15), F.S., and Rule 14-86, F.A.C., FDOT implements a Drainage 

Connection Program. The program does not issue water quality permits but requires the 

connecting entity to certify that the discharge is of acceptable water quality. Connecting entities 

are required to maintain the discharge of acceptable water quality for the duration of the FDOT 

permit. If connecting entities fail to meet this requirement after sufficient warning by FDOT, they 

will be reported to FDEP, SJRWMD, and, if applicable, to the local municipality; these entities

regulate stormwater quality through state rules, ordinances, and codes. FDOT performs 

periodic site inspections as part of the MS4 NPDES permit. 

FDOT also works with COJ on several efforts related to the MS4 permit. FDOT participates in 

the PIC Program in conjunction with COJ. FDOT has instructed staff to be alert for illicit 

connections during routine maintenance activities, and investigates observances found in the 

right of way. Those located outside the right of way are reported to the applicable municipality 

for further investigation and enforcement action. FDOT maintains a toll-free number to be used 

for reporting illicit connections. FDOT also contributes funding for one monitoring station in the 

Open Creek watershed that is sampled quarterly as part of the routine monitoring program. 

FDOT will continue these activities in the future to support the maintenance of the MS4 system. 

Table 95 lists FDOT’s activities in the watershed. 

TABLE 95: FDOT ACTIVITIE S IN THE OPE N CREEK WATE R S HE D

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Identification and Removal of Illicit Connections

FDOT – 63 PIC Program – Search for Illicit 

Connections See Note 1

State of 

Florida 

(FDOT)/COJ

Effort is continuous in 

WBID Ongoing

FDOT – 64 

PIC Program – Illicit Connections

Identified and Removed in WBID if 

Found To Be Truly Illicit

See Note 1

State of 

Florida 

(FDOT)/COJ

No true illicit 

connection identified 

to date

Ongoing

Surface Water Sampling To Assess Conditions and Identify Sources

FDOT – 65 Routine Tributary Monitoring as Part 

of MS4 Permit See Note 2

State of 

Florida 

(FDOT)/COJ

1 station quarterly Ongoing

Roadway Projects with Structural BMPs

FDOT – 66 

Beach Boulevard Widening from 

Intracoastal Waterway to East of 

Penman

$230,910

State of 

Florida 

(FDOT)

39 acres, wet 

detention Completed

Drainage Connection Program (DCP)

FDOT – 67 

DCP– Connecting Entity Must Certify 

that All Discharges to FDOT MS4 are 

Treated Prior to Connection

See Note 3 State of 

Florida Ongoing effort Ongoing
Final Lower St. Johns River Basin Management Action Plan – December 2009 

191

P ROJECT 

NUMB E R P ROJECT NAME

E S TIMATE D 

C OST

F UNDING 

S OUR CE L EVEL OF E FFOR T

P ROJECT 

S TATUS

Catch Basin/Inlet and Closed Loop MS4 Cleaning

FDOT – 68

Sediment Accumulation, Trash, and 

Debris Removed on As-Needed 

Basis

$17,782 State of 

Florida

Approximately 12 

inlets/catch basins 

and 2.7 miles of 

piping

Ongoing

Routine Maintenance Activities

FDOT – 69 Maintain FDOT Stormwater Systems See Note 5

State of 

Florida 

(FDOT)

Clean drainage 

structures, 

replace/repair 

storm/cross/side 

drains, clean/reshape 

roadside ditches, 

clear/repair outfall 

ditches, mowing,

roadside litter 

removal, respond to 

citizen complaints

Ongoing

1 Countywide Program – Average cost is $37,605 per year contribution to COJ. 2 Countywide Program – Average cost is $22,546 per year contribution to COJ. 3 Countywide Program – Average cost is $27,151 per year. 5 Countywide Program – Average cost is $2,750,735 per year.

15.4 S UMMAR Y OF R E S TOR ATION ACTIVITIE S AND S UFFICIE NCY OF E F FORTS

Table 92 through Table 95 list the projects and programs to reduce fecal coliform loading in the 

Open Creek watershed. Several key efforts completed in this WBID are summarized below, as 

well as activities that are expected to continue or to be implemented in future years. The efforts 

outlined in the project tables, including the activities highlighted below, will reduce fecal coliform 

loading and improve water quality in Open Creek based on the best information available about 

fecal coliform sources. As water quality improves in response to these actions and the bacteria 

source information is refined, future BMAPs may recommend different activities or levels of 

effort. For this BMAP, the full implementation of the projects and programs listed in the project 

tables for the Open Creek watershed is sufficient to significantly reduce fecal coliform sources 

and make substantial progress towards meeting the TMDL.

15.4.1 OS TDS

Program Implementation – There are approximately 260 septic tanks in the watershed. Four 

repair permits have been issued; 2 of these permits were located on parcels near surface 

waters and could therefore have impacted the creek. DCHD will continue its programs, 

inspections, and enforcement efforts, which will be sufficient to address OSTDS as a source in 

the watershed at this time.

15.4.2 S EWER INFR AS TR UCTUR E

Private Infrastructure – According to the COJ database, COJ inspects eight private lift stations 

in the watershed annually. There are two additional stations located along the boundary of

Hogpen Creek, and COJ will verify that these stations are located in the Hogpen Creek

watershed. The continuation of the inspection program and confirmation of reporting 

boundaries are sufficient to address private lift stations in the watershed at this time. 

Sewer Infrastructure Projects – JEA has 19 lift stations in the watershed, 11 of which are 

located near surface waters. There is 1 lift station, Marsh Island, located at 14463 Stacy Road, 

which is near the WBID boundary. JEA must verify the WBID in which this station is reported. 

During the 5-year BMAP cycle, JEA will inspect all 11 lift stations near surface waters to ensure 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

192

they are operating properly and report on the status of the investigations in the annual BMAP 

progress report. JEA placed a manhole in the watershed on the Manhole-Monitoring Program 

in January 2007 to help reduce fecal coliform loading: an alarm is sent if the levels in the 

manhole are rising, so JEA can respond before an overflow occurs. JEA will continue these 

efforts and its systemwide programs, and this will be sufficient to address potential sewer 

sources in the WBID at this time.

Program Implementation – Continued inspection, repair, and maintenance activities in 

conjunction with the systemwide programs are sufficient to address potential sewer sources in 

the WBID at this time. The Root Cause Program and other SSO prevention efforts, such as 

FOG and CMOM, should be continued so that any additional infrastructure problems that 

develop will be identified and repaired. JEA will be expected to report its inspection, prevention, 

and maintenance efforts in the WBID as part of the annual BMAP reporting process to ensure 

that the system is being monitored and maintained. 

15.4.3 S TOR MWATE R

Illicit Connection Removal – COJ has confirmed and removed one illicit connection to the 

MS4; however, there are five outstanding PIC investigations. COJ will investigate these PICs 

and remove any connections that are confirmed illicit or close the case during the first year after 

BMAP adoption. The results of these investigations will be reported in the annual BMAP 

progress report. The removal of confirmed illicit connections removes sources of fecal coliform 

to the MS4 conveyance system and, in turn, the creek. COJ and FDOT have committed to 

continue the PIC Program, including identifying additional illicit connections and removing those 

connections in a timely manner. 

Capital Improvement Projects – COJ has one project under construction in the watershed, to 

improve drainage along Pine Tree Road, which is an area concentrated with OSTDS. This 

project will help reduce flooding in the area and reduce fecal coliform loading to the creek. In 

addition, FDOT has completed the Beach Boulevard Widening project, which includes a wet 

detention pond that treats 39 acres and helps reduce fecal coliform loading to Open Creek. 

FDOT Program Implementation – In accordance with Rule 14-86, F.A.C., FDOT requires any 

new connections to its MS4 stormwater conveyance systems to be evaluated and permitted to 

prevent the introduction of new sources to its conveyances. This permit program will continue, 

and FDOT will continue to periodically inspect its facilities as part of its MS4 permit. 

COJ Program Implementation – COJ completed 12 work orders for ditch maintenance, 1 work 

order for pond problems, and 34 repairs of closed conveyance systems. The continuation of 

current programs and maintenance activities in the watershed will help reduce and eliminate 

potential sources of fecal coliform loading.

TABLE 96: S UMMAR Y OF R E S TOR ATION ACTIVITIE S FOR THE OPE N CREEK WATE R S HE D

SOURCE/ACTION COJ DCHD FDOT JEA

OSTDS

Ordinances √ X X X

Enforcement √ √ X X 

Program Implementation √ √ X X 

Permit Review (new and repair permits) X √ X X 

Failure Area Evaluation √ √ X X 

Failure Area Ranking √ √ X X 

Septic Tank Inspection √ √ X X
Final Lower St. Johns River Basin Management Action Plan – December 2009 

193

SOURCE/ACTION COJ DCHD FDOT JEA 

Septic Tank Phase-Out - - X X

Public Education (PSA) √ X X X 

Surface Water Sampling for Conditions and Trends √ X X X

Sewer System

Sewer Line Upgrades X X X √

Manhole Inspection and Rehab X X X √

Pump Station Inspection and Maintenance X X X √

Pump Station Rebuild X X X - 

Air Release Valve (ARV) Inspection and Rehab X X X √

Program Implementation X X X √

Private Lift Station Inspections and Enforcement √ X X X

Private Non-NPDES Wastewater Facility Inspections and Enforcement * X X X 

Sanitary Sewer Overflow (SSO) Investigations √ X X √

Surface Water Sampling for Conditions and Trends X X X √

Stormwater

Flood Control Capital Projects √ X - X 

Capital Projects/Stormwater Water Quality BMPs - X √ X

Stormwater System Ditch and Canal Maintenance √ X √ X 

Stormwater Pond Maintenance √ X √ X 

Stormwater Pipe Cleaning and Maintenance √ X √ X 

Potential Illicit Connection (PIC) Identification √ X + X

Illicit Connection Removal √ X - X 

Public Education and Outreach √ X + X

Surface Water Sampling for Conditions and Trends √ X + X 

Program Implementation √ X √ X 

Pet Waste Management

Ordinances and Enforcement √ X X X

Public Education and Outreach √ X X X 

Special Source Assessment Activities

Intensive Water Quality Sampling To Track Sources - X X - 

Tributary Assessment Team (TAT) - X X -

Microbial Source Tracking (MST) - X X - 

Thermal Imagery To Identify PICs - X X X 

Note: Shaded cells (marked with an X) represent activities that do not apply to the associated entity.

* Activity is not applicable for the waterbody due to a lack of infrastructure.

+ FDOT participation in these activities is provided by funding in the NPDES MS4 agreements with COJ.

 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

194

AP PE NDICE S
Final Lower St. Johns River Basin Management Action Plan – December 2009 

195

Appendix A: T MDL B as in R otation S c hedule

TMDLs are developed, allocated, and implemented through a watershed management 

approach (managing water resources within their natural boundaries) that addresses the state’s 

52 major hydrologic basins in five groups, on a rotating schedule. Table A-1 shows the 

hydrologic basins within each of the five groups, with the FDEP District office of jurisdiction. 

Table A-2 illustrates the repeating five-year basin rotation schedule.

TABLE A-1: MAJ OR HYDR OLOGIC B AS INS B Y GR OUP AND FDE P DIS TR ICT OFFICE

FDEP

DISTRICT

GROUP 1 

BASINS

GROUP 2 

BASINS

GROUP 3 

BASINS

GROUP 4 

BASINS

GROUP 5 

BASINS

NW Ochlockonee– 

St. Marks

Apalachicola– 

Chipola

Choctawhatchee– 

St. Andrews Bay Pensacola Bay Perdido Bay

NE Suwannee Lower St. Johns Not applicable Nassau–St. Marys Upper East 

Coast

Central Ocklawaha Middle St. Johns Upper St. Johns Kissimmee Indian River

Lagoon

SW Tampa Bay Tampa Bay

Tributaries

Sarasota Bay–

Peace–Myakka Withlacoochee Springs Coast

S Everglades

West Coast Charlotte Harbor Caloosahatchee Fisheating Creek Florida Keys

SE Lake

Okeechobee

St. Lucie– 

Loxahatchee

Lake Worth 

Lagoon– 

Palm Beach Coast

Southeast Coast–

Biscayne Bay Everglades

Each group will undergo a cycle of five phases on a rotating schedule:

Phase 1: Preliminary evaluation of water quality

Phase 2: Strategic monitoring and assessment to verify water quality impairments

Phase 3: Development and adoption of TMDLs for waters verified as impaired

Phase 4: Development of basin management action plan (BMAP) to achieve the TMDL

Phase 5: Implementation of the BMAP and monitoring of results

TABLE A-2: B AS IN R OTATION S CHE DULE FOR TMDL DE VE LOPME NT AND IMPLE ME NTATION

Year 00/01 01/02 02/03 03/04 04/05 05/06 06/07 07/08 08/09 09/10 10/11 11/12 12/13 13/14 14/15

Phases of the Cycle Phases of the Cycle Phases of the Cycle

Group 1 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5

Group 2 - 1 2 3 4 5 1 2 3 4 5 1 2 3 4

Group 3 - - 1 2 3 4 5 1 2 3 4 5 1 2 3

Group 4 - - - 1 2 3 4 5 1 2 3 4 5 1 2

Group 5 - - - - 1 2 3 4 5 1 2 3 4 5 1

1st 5-year Cycle – High-priority Waters 2nd 5-year Cycle – Medium-Priority Waters 3rd 5-year Cycle – Low-Priority Waters

* Projected years for Phases 3, 4, and 5 may change due to accelerated local activities, length of plan development, legal 

challenges, etc. 

TMDL development and implementation are ongoing, cyclical processes, as illustrated in Table 

A-2. FDEP will re-evaluate impaired waters every five years to determine whether 

improvements are being achieved, and to refine loading estimates and TMDL allocations using 

new data. If any changes in a TMDL are required, the applicable TMDL rule will be revised, 

thereby providing a point of legal entry for interested parties. Changes to a TMDL would prompt 

revisions to the applicable BMAP, which will be revisited at least every five years and modified 

as necessary.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

196

Appendix B : S ummary of S tatutory P rovis ions G uiding B MAP 

Development and Implementation 

S E CTIONS 403.067(6) AND (7), F LOR IDA S TATUTES - Summary of Excerpts

ALLOCATIONS

• The TMDL shall include reasonable and equitable allocations of the TMDL between or among 

point and nonpoint sources that will alone, or in conjunction with other management and 

restoration activities, provide for the attainment of pollutant reductions established pursuant to 

paragraph (a) to achieve applicable water quality standards. 

• The allocations may establish the maximum amount of the pollutant that may be discharged or 

released in combination with other discharges or releases.

• Allocations may also be made to individual basins and sources or as a whole to all basins and 

sources or categories of sources of inflow to the water body or water body segments. 

• An initial allocation of allowable pollutant loads may be developed as part of the TMDL; in such 

cases detailed allocations to specific point sources and categories of nonpoint sources shall be 

established in the basin management action plan.

• The initial and detailed allocations shall be designed to attain pollutant reductions established 

pursuant to paragraph (a) and shall be based on consideration of: 

1. Existing treatment levels and management practices; 

2. Best management practices established and implemented pursuant to paragraph

(7)(c);

3. Enforceable treatment levels established pursuant to state or local law or

permit;

4. Differing impacts pollutant sources may have on water quality; 

5. The availability of treatment technologies, management practices, or other pollutant 

reduction measures; 

6. Environmental, economic, and technological feasibility of achieving the allocation; 

7. The cost benefit associated with achieving the allocation; 

8. Reasonable timeframes for implementation; 

9. Potential applicability of any moderating provisions such as variances, exemptions, 

and mixing zones; and 

10. The extent to which non-attainment of water quality standards is caused by pollution 

sources outside of Florida, discharges that have ceased, or alterations to water bodies 

prior to the date of this act. 

GE NE R AL IMPLE ME NTATION

 DEP is the lead agency in coordinating TMDL implementation, through existing water quality 

protection programs.

 Application of a TMDL by a water management district does not require WMD 

adoption of the TMDL.

 TMDL implementation may include, but is not limited to:

o Permitting and other existing regulatory programs

o Non-regulatory and incentive-based programs

o Other water quality management and restoration activities, such as Surface Water 

Improvement and Management (SWIM) plans or basin management action 

plans

o Pollutant trading or other equitable economically based agreements

o Public works

o Land acquisition
Final Lower St. Johns River Basin Management Action Plan – December 2009 

197

B AS IN MANAGE ME NT ACTION PLAN DE VE LOPME NT

 DEP may develop a basin management action plan that addresses some or all of the 

watersheds and basins tributary to a TMDL waterbody. 

 A basin management action plan shall: 

o Integrate appropriate management strategies available to the state through 

existing water quality protection programs.

o Equitably allocate pollutant reductions to individual basins, all basins, each 

identified point source, or category of nonpoint sources, as appropriate.

o Identify the mechanisms by which potential future increases in pollutant loading will 

be addressed.

o Specify that for nonpoint sources for which BMPs have been adopted, the initial 

requirement shall be BMPs developed pursuant to paragraph (c).

o Establish an implementation schedule.

o Establish a basis for evaluating plan effectiveness.

o Identify feasible funding strategies.

o Identify milestones for implementation and water quality improvement, and an 

associated water quality monitoring component to evaluate reasonable progress 

over time.

o Be adopted in whole or in part by DEP Secretarial Order, subject to chapter 120.

 A basin management action plan may: 

o Give load reduction credits to dischargers that have implemented load reduction 

strategies (including BMPs) prior to the development of the BMAP. (Note: this 

assumes the related reductions were not factored into the applicable TMDL.)

o Include regional treatment systems or other public works as management 

strategies.

o Provide for phased implementation to promote timely, cost-effective actions.

 An assessment of progress in achieving milestones shall be conducted every 5 years 

and the basin management action plan revised, as appropriate, in cooperation with basin 

stakeholders, and adopted by secretarial order.

 DEP shall assure that key stakeholders are invited to participate in the basin 

management action plan development process, holding at least one noticed public 

meeting in the basin to receive comments, and otherwise encouraging public 

participation to the greatest practicable extent. 

 A basin management action plan shall not supplant or alter any water quality 

assessment, TMDL calculation, or initial allocation.

B AS IN MANAGE ME NT ACTION PLAN IMPLE ME NTATION

 NPDES Permits

o Management strategies related to a discharger subject to NPDES permitting shall 

be included in subsequent applicable NPDES permits or permit modifications when 

the permit expires (is renewed), the discharge is modified (revised), or the permit is 

reopened pursuant to an adopted BMAP.

o Absent a detailed allocation, TMDLs shall be implemented through NPDES permit 

conditions that include a compliance schedule. The permit shall allow for issuance 

of an order adopting the BMAP within five years. (Note: Intended to apply to 

individual wastewater permits – not MS4s) 

o Once the BMAP is adopted, the permit shall be reopened, as necessary, and 

permit conditions consistent with the BMAP shall be established.

o Upon request by a NPDES permittee, DEP may establish individual allocations 

prior to the adoption of a BMAP, as part of a permit issuance, renewal, or 

modification (revision).

o To the maximum extent practicable, MS4s shall implement a TMDL or BMAP 

through the use of BMPs or other management measures.

o A BMAP does not take the place of NPDES permits or permit requirements.

o Management strategies to be implemented by a DEP permittee shall be completed 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

198

according to the BMAP schedule, which may extend beyond the 5-year term of an 

NPDES permit.

o Management strategies are not subject to challenge under chapter 120 when they 

are incorporated in identical form into a NPDES permit or permit modification 

(revision).

 Management strategies assigned to nonagricultural, non-NPDES permittees (state, 

regional, or local) shall be implemented as part of the applicable permitting programs. 

 Nonpoint source dischargers (e.g., agriculture) included in a BMAP shall demonstrate 

compliance with the applicable TMDLs by either implementing appropriate BMPs 

established under paragraph 7(c), or conducting water quality monitoring prescribed by 

DEP or a WMD. (Note: this is not applicable to MS4s, as they are considered point 

sources under the federal Clean Water Act and TMDL Program.)

o Failure to implement BMPs or prescribed water quality monitoring may be subject 

to DEP or WMD enforcement action.

 Responsible parties who are implementing applicable BMAP strategies shall not be 

required to implement additional pollutant load reduction strategies, and shall be deemed 

in compliance with this section. However, this does not limit DEP’s authority to amend a 

BMAP.

B EST MANAGE ME NT P R ACTICE S

 DEP, in cooperation with WMDs and other interested parties, may develop interim 

measures, BMPs, or other measures for non-agricultural nonpoint sources to achieve 

their load reduction allocations. 

o These measures may be adopted by DEP or WMD rule. If adopted, they shall be 

implemented by those responsible for non-agricultural nonpoint source pollution.

 DACS may develop and adopt by rule interim measure, BMPs, or other measures necessary 

for agricultural pollutant sources to achieve their load reduction allocations. 

o These measures may be implemented by those responsible for agricultural pollutant 

sources. DEP, the WMDs, and DACS shall assist with implementation.

o In developing and adopting these measures, DACS shall consult with DEP, DOH, the 

WMDs, representatives of affected farming groups, and environmental group 

representatives.

o The rules shall provide for a notice of intent to implement the practices and a system to 

ensure implementation, including recordkeeping.

 Verification of Effectiveness and Presumption of Compliance - 

o DEP shall, at representative sites, verify the effectiveness of BMPs and other measures 

adopted by rule in achieving load reduction allocations.

o DEP shall use best professional judgment in making the initial verification of 

effectiveness, and shall notify DACS and the appropriate WMD of the initial verification 

prior to the adoption of a rule proposed pursuant to this paragraph.

o Implementation of rule-adopted BMPs or other measures initially verified by DEP to be 

effective, or verified to be effective by monitoring at representative sites, provides a 

presumption of compliance with state water quality standards for those pollutants 

addressed by the practices. 

 Reevaluation – 

o Where water quality problems are demonstrated despite implementation, 

operation, and maintenance of rule-adopted BMPs and other measures, DEP, a 

WMD, or DACS, in consultation with DEP, shall reevaluate the measures. If the 

practices require modification, the revised rule shall specify a reasonable time 

period for implementation.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

199

Appendix C: S takeholder Involvement in B MAP Development

LOWER ST. JOHNS RIVER TRIBUTARIES BASIN WORKING GROUP

The LSJR Tributaries Basin Working Group (BWG) is made up of responsible stakeholders in 

the tributaries. The BWG was formed in October 2007 and has advised FDEP on issues related 

to the BMAP process. The BWG played a critical role in the development of the BMAP to 

implement the tributaries TMDLs. 

The BWG’s mission statement is as follows: “The mission of the Lower St. Johns River 

Tributaries Basin Working Group is to encourage participation of all interested parties in working 

to restore impaired waterbodies through recommendations for an equitable and cost-effective 

Basin Management Action Plan to achieve Total Maximum Daily Load reduction goals in the 

tributaries of the Lower St. Johns River.” 

During BMAP development, the BWG met in Jacksonville on the following dates:

• December 18, 2008; 

• May 7, 2009; and

• July 9, 2009. 

In addition to the input from the BWG, the stakeholders involved in the technical meetings 

provided valuable information during the BMAP process. The technical meetings began in July 

2006 to organize and review the technical information that is the basis of the BMAP. The 

technical stakeholders also identified management actions to improve water quality in the 

tributaries. The technical meetings were held regularly throughout the BMAP development 

process. 

The Tributaries Assessment Team (TAT) was formed in 2005 to investigate potential sources of 

fecal coliform in the LSJR tributaries. The TAT membership comprises several agencies and 

organizations, including FDEP, COJ EQD, COJ PWD, DCHD, and JEA. The TAT has collected 

much of the water quality data in the tributaries. The interagency, coordinated effort of the TAT 

has identified and eliminated fecal coliform sources in the tributaries, helping to achieve water 

quality improvements.

Members of the TAT from FDEP, COJ EQD, and JEA, participated in an intensive assessment 

effort between 2008 and 2009 to gather additional information about 11 tributaries to aid in 

source identification. That TAT conducted a “Walk the WBID” effort, which was a detailed field 

assessment of the 11 tributaries. During this effort, the TAT identified key monitoring locations 

in 10 of the tributaries and spent 8 months intensively monitoring these WBIDs; the monitoring 

included microbial source tracking (MST) sampling and sediment analysis. In addition, 4 of the 

WBIDs received thermal imaging to identify potential fecal coliform sources to the creeks. Of 

the BMAP WBIDs, Miller Creek, Miramar Creek, Hogan Creek, and Big Fishweir Creek were 

assessed using all or part of these tools.

PROCESS FOR PLAN RECOMMENDATION DEVELOPMENT

BASIN WORKING GROUP MEETING PROCESS

The BWG was asked to endorse the BMAP, since the members have been actively involved in 

the BMAP process. The BWG’s endorsement of the BMAP was used to move forward with the 

BMAP adoption process. FDEP will also ask for letters of commitment or resolutions of support 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

200

for the BMAP from the entities. These letters and resolutions will provide an additional level of 

support for the BMAP efforts as staff and board members change over time. The process to 

submit letters and resolutions of support will occur during and after BMAP adoption. The written 

statements of commitment will be added to the BMAP as they are received.

CONSENSUS

The technical stakeholder meetings were operated on an informal basis where the purpose of 

the discussions was to provide technical input. As such, there was no formal voting or 

measures of consensus during these meetings. The BWG, however, made specific 

recommendations to FDEP on BMAP issues and used a voting procedure to make these 

recommendations. Votes were held only in circumstances when a quorum of at least 75% of 

the voting members (or their designated alternates) was present at a publicly noticed meeting. 

Consensus was defined as a vote where more than 50% of the BWG members could support, 

agree to, or accept the motion. 

PUBLIC PARTICIPATION IN BASIN WORKING GROUP MEETINGS

All BWG and technical meetings were open to the public and noticed in the Florida 

Administrative Weekly (FAW). BWG meetings were also noticed in the Florida Times-Union. 

Public comment was invited during the BWG meetings and the technical meetings were open to 

anyone interested in participating in the technical discussions. In addition, public meetings were 

held on the verified lists, the adoption of the TMDLs, and the BMAP document.

PUBLIC MEETING(S) 

Meetings on the tributaries TMDLs and BMAP were held at the following dates and times:

• Review and seek comments on the proposed verified list of impaired waters: May 14, 

2003; June 25, 2003; November 2008; and April 2, 2009. 

• Review and seek comments on the proposed TMDLs: August 17, 2005, and February 

20, 2009. 

• Meeting on the BMAP: July 30, 2009.

PLAN RECOMMENDATION APPROVAL AND ADOPTION

The Basin Working Group approved the final recommended BMAP at its July 9, 2009 meeting. 

The final BMAP is to be adopted by FDEP Secretarial Order.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

201

Appendix D: S ummary of E PA-R ec ommended E lements of a 

C omprehens ive Waters hed Plan

The following is an excerpt on the nine elements of a watershed plan from the EPA’s Draft 

Handbook for Developing Watershed Plans to Restore and Protect Our Waters. Additional 

information regarding these elements can be found in the full version of the handbook located 

online at: http://www.epa.gov/owow/nps/watershed_handbook/. 

NINE MINIMUM ELEMENTS TO BE INCLUDED IN A WATERSHED PLAN FOR 

IMPAIRED WATERS FUNDED USING INCREMENTAL SECTION 319 FUNDS

Although many different components may be included in a watershed plan, EPA has identified a 

minimum of nine elements that are critical for achieving improvements in water quality. EPA 

requires that these nine elements be addressed for watershed plans funded using incremental 

Section 319 funds and strongly recommends that they be included in all other watershed plans 

that are intended to remediate water quality impairments. 

The nine elements are provided below, listed in the order in which they appear in the guidelines. 

Although they are listed as a through i, they do not necessarily take place sequentially. For 

example, element d asks for a description of the technical and financial assistance that will be 

needed to implement the watershed plan, but this can be done only after you have addressed 

elements e and i. 

Explanations are provided with each element to show you what to include in your watershed 

plan. 

NINE E LE ME NTS

a. Identification of causes of impairment and pollutant sources or groups of similar 

sources that need to be controlled to achieve needed load reductions, and any other 

goals identified in the watershed plan. Sources that need to be controlled should be 

identified at the significant subcategory level along with estimates of the extent to which they are 

present in the watershed (e.g., X number of dairy cattle feedlots needing upgrading, including a 

rough estimate of the number of cattle per facility; Y acres of row crops needing improved 

nutrient management or sediment control; or Z linear miles of eroded streambank needing 

remediation). 

What does this mean?

Your watershed plan should include a map of the watershed that locates the major sources and 

causes of impairment. Based on these impairments, you will set goals that will include (at a 

minimum) meeting the appropriate water quality standards for pollutants that threaten or impair 

the physical, chemical, or biological integrity of the watershed covered in the plan.

b. An estimate of the load reductions expected from management measures. 

What does this mean?

You will first quantify the pollutant loads for the watershed. Based on these pollutant loads, 

you’ll determine the reductions needed to meet the water quality standards.
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202

You will then identify various management measures (see element c below) that will help to 

reduce the pollutant loads and estimate the load reductions expected as a result of these 

management measures to be implemented, recognizing the difficulty in precisely predicting the 

performance of management measures over time.

Estimates should be provided at the same level as that required in the scale and scope 

component in paragraph a (e.g., the total load reduction expected for dairy cattle feedlots, row 

crops, or eroded streambanks). For waters for which EPA has approved or established TMDLs, 

the plan should identify and incorporate the TMDLs.

Applicable loads for downstream waters should be included so that water delivered to a 

downstream or adjacent segment does not exceed the water quality standards for the pollutant 

of concern at the water segment boundary. The estimate should account for reductions in 

pollutant loads from point and nonpoint sources identified in the TMDL as necessary to attain 

the applicable water quality standards. 

c. A description of the management measures that will need to be implemented to 

achieve load reductions in paragraph 2, and a description of the critical areas in which 

those measures will be needed to implement this plan.

What does this mean?

The plan should describe the management measures that need to be implemented to achieve 

the load reductions estimated under element b, as well as to achieve any additional pollution 

prevention goals called out in the watershed plan. It should also identify the critical areas in 

which those measures will be needed to implement the plan. This can be done by using a map 

or a description.

d. Estimate of the amounts of technical and financial assistance needed, associated 

costs, and/or the sources and authorities that will be relied upon to implement this plan.

What does this mean?

You should estimate the financial and technical assistance needed to implement the entire plan. 

This includes implementation and long-term operation and maintenance of management 

measures, information and education (I/E) activities, monitoring, and evaluation activities. You 

should also document which relevant authorities might play a role in implementing the plan. 

Plan sponsors should consider the use of federal, state, local, and private funds or resources 

that might be available to assist in implementing the plan. Shortfalls between needs and 

available resources should be identified and addressed in the plan. 

e. An information and education (I/E) component used to enhance public understanding 

of the project and encourage their early and continued participation in selecting, 

designing, and implementing the nonpoint source management measures that will be 

implemented.

What does this mean?

The plan should include an I/E component that identifies the education and outreach activities or 

actions that will be used to implement the plan. These I/E activities may support the adoption 

and long-term operation and maintenance of management practices and support stakeholder 

involvement efforts. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

203

f. Schedule for implementing the management measures identified in this plan that is 

reasonably expeditious.

What does this mean?

You need to include a schedule for implementing the management measures outlined in your 

watershed plan. The schedule should reflect the milestones you develop in g. 

g. A description of interim measurable milestones for determining whether management 

measures or other control actions are being implemented. 

What does this mean?

You’ll develop interim, measurable milestones to measure progress in implementing the 

management measures for your watershed plan. These milestones will measure the 

implementation of the management measures, such as whether they are being implemented on 

schedule, whereas element h (see below) will measure the effectiveness of the management 

measures, for example, by documenting improvements in water quality. 

h. A set of criteria that can be used to determine whether loading reductions are being 

achieved over time and substantial progress is being made toward attaining water quality 

standards.

What does this mean?

Using the milestones you developed above, you’ll develop a set of criteria (or indicators) with 

interim target values to be used to determine whether progress is being made toward reducing 

pollutant loads. These interim targets can be direct measurements (e.g., fecal coliform 

concentrations) or indirect indicators of load reduction (e.g., number of beach closings). You 

must also indicate how you’ll determine whether the watershed plan needs to be revised if 

interim targets are not met and what process will be used to revise the existing management 

approach. Where a nonpoint source TMDL has been established, interim targets are also 

needed to determine whether the TMDL needs to be revised.

i. A monitoring component to evaluate the effectiveness of the implementation efforts 

over time, measured against the criteria established under item h immediately above.

What does this mean?

The watershed plan must include a monitoring component to determine whether progress is 

being made toward attainment or maintenance of the applicable water quality standards. The 

monitoring program must be fully integrated with the established schedule and interim milestone 

criteria identified above. The monitoring component should be designed to determine whether 

loading reductions are being achieved over time and substantial progress in meeting water 

quality standards is being made. Watershed-scale monitoring can be used to measure the 

effects of multiple programs, projects, and trends over time. In stream monitoring does not have

to be conducted for individual BMPs unless that type of monitoring is particularly relevant to the 

project.

 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

204

Appendix E : P rograms To Ac hieve the T MDL

PROGRAMS TO ADDRESS THE SANITARY SEWER SYSTEM AS A SOURCE OF 

FECAL COLIFORM CONTAMINATION

Beginning in the late 1990s, the regional utility provider, JEA, undertook a comprehensive

program of pipeline rehabilitation focusing on larger line throughout the service area. To date 

the utility has spent more than $500 million in pipeline rehabilitation alone. Since the largescale replacements of existing systems have large capital costs, it is necessary to routinely 

conduct investigations, including, but not limited to, infiltration and inflow studies to evaluate the 

integrity of the infrastructure and use this type of assessment to locate severe problem areas 

with a high probability of impacts related to the utility. 

Examples of investigations and maintenance procedures include regularly (1) using remote 

camera equipment to inspect the lines, (2) cleaning lines, (3) inspecting manholes, and (4) 

testing pumps at lift stations to ensure proper function. Local utilities should also use “mean 

time to failure” estimates to replace pumps at lift stations prior to failing, as well as warning 

systems for utility failures to help minimize impacts when failures occur. JEA has implemented 

these systems. In addition to performing remedial maintenance on an as-needed basis, JEA

has routinely implemented a variety of corrective actions performed on a prioritized schedule. 

These include, but are not limited to, the following: 

• Pipe bursting (to replace existing failing infrastructure); 

• Slip lining (to replace existing failing infrastructure when capacity is not an 

issue); 

• Open cut (removal and replacement of failing infrastructure); 

• Manhole liners (modify polymer to rehabilitate failing manholes);

• Fiberglass-line manholes (to rehabilitate existing failing manholes);

• Replace manholes; 

• Line wet wells (corrosion prevention and control); and

• Replace force mains (replace failing infrastructure).

Spills of untreated sewage from the regional sewer system in Duval County are immediately 

addressed and investigated thoroughly. When an SSO occurs, the cause is usually listed as a 

recent, immediately traceable condition, such as a pipe blockage or pump failure. However, 

merely addressing the immediate cause without understanding the underlying cause of the 

overflow may not protect against future SSOs. 

In every case of an untreated wastewater discharge, JEA conducts a two-part investigation into 

the cause of the spill. The first is to address the immediate cause, and the second is conducted 

to address any underlying causes. Historically, pipe breaks, cave-ins, and grease have been 

the major causes of spill events. 

Significant investments in pipe replacement, focused on areas with the highest occurrence of 

events, have significantly reduced the number of events related to breaks and cave-ins. The
Final Lower St. Johns River Basin Management Action Plan – December 2009 

205

introduction of an effective Fats, Oils and Grease (FOG) Program has reduced the number of 

spills associated with grease stoppages. Continual focus on actions to reduce the causes of the 

events is the primary assignment of the Wastewater Preventive Maintenance team at JEA. 

SPECIFIC CITYWIDE IMPROVEMENT PROGRAMS BY JEA

FATS, OILS, AND GREASE REDUCTION PROGRAM

Fats, oils and grease (FOG) generated during food preparation build up in sanitary sewer lines. 

Without proper maintenance, these lines clog, eventually leading to the occurrence of SSOs. 

JEA has an EPA award–winning FOG Program that regulates commercial grease dumped into 

the sewer system. Grease is a major cause of SSOs for utilities, and JEA’s Industrial 

Pretreatment Group is nationally recognized for its preventive program. To help reduce these 

events, JEA requires that all food service establishments (FSEs) (“FOG generators”) connected 

to JEA sewer participate in the FOG Program: 

http://www.jea.com/about/pub/downloads/fog/FOGTrainingSlideShow.pdf. 

To help FOG generators meet the program requirements, JEA has developed the Preferred 

Hauler Program (PHP). The preferred haulers are vendors, approved by JEA, that pump, haul, 

and properly dispose of FOG materials for food service establishments. To meet JEA’s 

expectations, these haulers must demonstrate, both initially and continually, that they are able 

to meet the following criteria (abbreviated version obtained from: 

http://www.jea.com/about/pub/downloads/fog/FOGProgramPreferredHaulerRequestforParticipat

ion.pdf):

1. Satisfactorily pump out grease traps/interceptors; 

2. Attend waste hauler education meeting; 

3. Accept limited regulatory responsibility for the generator. 

4. Submit manifest document for the disposal of all trap contents generated in JEA’s 

service area on a quarterly basis.

JEA monitors compliance monthly. Food service establishments that miss their required 

interceptor pump out are indentified and brought into the enforcement process. Escalating 

enforcement measures consist of an initial notice of violation, followed by a cease and desist 

order, and finally the emergency suspension of service for FSEs that fail to comply with previous 

actions.

SSO ROOT CAUSE PROGRAM

The SSO Root Cause Program began in January 2007 and is run by a group of first responders, 

who meet every two weeks to determine the root cause of each SSO so that an effective 

solution can be implemented. The Root Cause Committee identifies the root cause and 

determines short- and long-term corrective action to prevent reoccurrence. It also identifies any 

improvements that can be made to reporting procedures. As indicated in the following table, the 

Root Cause Program has revealed that in many cases, the identified preliminary cause is not 

the true root cause of the overflow.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

206

Unknown

Poor Grade

Roots

Vandalism

Power Loss

Cave- in

Tuberculation

3rd Party damage

Equipment Failure

Stoppage

Grease

0 10 20 30

0 10 20 30

Preliminary Cause

Cause

Percent

Root Cause

Percent within all data.

SSO Root Cause Analysis

F IGUR E E -1. SSO R OOT C AUSE ANALYS IS

This program is ongoing, and some benefits have already become apparent:

• Prior to the implementation of the Root Cause Program, blockages in gravity 

lines would typically be dealt with by simply resolving the obvious immediate 

cause: the blockage, which often was caused by grease. Under the Root 

Cause Program, a significantly more detailed analysis is performed, which has 

shown that poor grade (sags or bellies) in existing pipes are often the primary 

reason for the accumulation of grease that caused the blockage. Under 

previous procedures, the blockage would be cleared and the line placed back 

into service. Under the program, the blockage is cleared, the line is cleaned, 

and a closed-circuit television camera is run through the impacted line. The 

video will reveal the existence of poor grade, if present. When poor grade is 

identified under the Root Cause Program, the affected line segment is either 

replaced or added to a scheduled cleaning list to be cleaned quarterly, semiannually, or annually. 

• The Root Cause Program has identified tuberculated iron pipe as a significant 

concern. Tuberculated pipe refers to the buildup of iron deposits and other 

materials in the interior periphery of a pipe, resulting in a reduced carrying 

capacity in the line and greater potential for blockage. The discovery of a 

pattern of tuberculated iron pipe by the Root Cause Program has resulted in a 

program to deal with tuberculated pipe through replacement or Cured in Place 

Pipe (CIPP) lining. For FY09, $600,000 has been budgeted to address 

tuberculated pipe.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

207

• When the preliminary cause of grease is confirmed as the root cause, JEA 

personnel will survey the system upstream of a grease blockage to identify a 

potential source such as a restaurant. JEA Industrial Pretreatment (IP) 

personnel will visit and evaluate any potential sources to verify compliance 

with JEA’s IP Program and undertake enforcement as necessary to reduce or 

eliminate the source of grease to the system. 

• JEA operates with a continuous improvement philosophy. A design change 

for odor control had the unintended consequence of causing SSOs through 

the buildup of grease. After identification of the problem by the Root Cause 

Committee, this particular design configuration was removed from JEA 

specifications and is no longer approved for construction. Where identified, 

these installations will be retrofitted to the current JEA standard.

In general, the Root Cause Program has allowed JEA to better prioritize limited repair and 

replacement (R&R) resources to optimize JEA’s limited financial resources. 

POP-TOP PROGRAM

JEA implemented the Pop-Top Program in early 2007 to open and inspect all accessible 

manholes in the service territory (approximately 54,000 manholes), with the objective of 

preventing future SSOs. Since April 2007, JEA crews have inspected more than 30,000

manholes to detect potential problems in the collection system. Generally, the problems of 

greatest concern are manifested through surcharged conditions (backups of flow to varying 

degrees) that typically result from a restriction in flow downstream of the surcharged manhole. 

In some cases, the discovery of a surcharged condition has resulted in an immediate response 

to prevent a potential SSO. In many more cases, the pop-top inspections have identified 

conditions that, if unresolved, could result in an SSO sometime in the future. These lines are 

placed on a cleaning schedule to avoid the possibility of an eventual SSO. Figure E-2 shows 

the problems identified in manholes (M/H) and main lines (M/L) to date as the result of the poptop inspections, including 140 instances of surcharged lines.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

208

FIGUR E E -2. P R OB LE MS IDE NTIFIE D THR OUGH THE POP -TOP P ROGR AM

NON-INTRUSIVE PIPE TESTING AND AIR RELEASE VALVE PROGRAMS

The Pipe Integrity Testing and Air Release Valve (ARV) Programs are both incorporated under 

this larger entity, focusing on known critical force mains, iron pipes, and air valves that are 

located near waterbodies. 

• Pipe integrity testing, initiated in 2006, utilizes sonar to test the wall thickness 

of sanitary sewer iron or ductile iron pipes while maintaining the integrity of the 

structures. Sewer gases are corrosive and may over time reduce the wall 

thickness of sewer lines to unacceptable levels, in some cases causing pipe 

ruptures. The testing program allows JEA to assess the condition of the pipe 

and replace pipe with unacceptable pipe wall thickness before it fails. To date, 

130 sites have been tested.

• The purpose of an ARV is to reduce static head pressure in force main 

systems caused by air in the pipe. If the valves are not working properly, air 

cannot escape and can prevent the associated pumps from pumping, causing 

overflows at lift stations. Periodic inspection is required to ensure the valves 

are working properly. Over time, sewer gases deteriorate the ARV and the 

associated galvanized piping attached to the force main that support the valve. 

These failures often result in overflows, since they are attached to pressure 

systems. Under this program, ARVs are inspected and replaced as 

necessary. All metal ARVs are now replaced with plastic corrosion-resistant 

valves that are easily cleaned and reused. Also, all galvanized support piping 

is replaced with stainless steel pipe to eliminate pipe failures. JEA standards 

have been modified to reflect the improved materials for construction above. 

To date, 362 ARVs have been replaced. The inspection and replacement 

program is prioritized based on proximity to tributaries, with valves within 200

feet of tributaries given highest priority.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

209

SUPERVISORY CONTROL AND DATA ACQUISITION (SCADA)

The SCADA Program was implemented at JEA lift stations. Alarms sound if the sewer in a wet 

well rises above a specific level, and triggers an alert to the JEA lift station Operations and 

Maintenance Group. They respond immediately to avoid an SSO. Currently, 1,230 lift stations 

have been retrofitted with SCADA telemetry systems at a cost of more than $22 million. With 

SCADA, JEA can respond to a comprehensive list of alarms, including high wet-well levels, 

power outages, and pump failures. During a typical week, there are between 40 and 50 wetwell high alarms received from the 1,230 stations on SCADA. 

The implementation of SCADA monitoring at JEA’s lift stations has resulted in a significant 

decrease in lift station-related SSOs, as shown in Figure E-3. 

FIGUR E E -3. L IFT S TATION SSOS , FY02–FY08

THIRD PARTY EDUCATION AND ENFORCEMENT PROGRAM

In 2003, JEA implemented a program to address SSOs caused by third-party contractors. The 

program involves an increased emphasis on both education and enforcement of the contractors 

who routinely perform excavations in the vicinity of JEA infrastructure. The program has been 

successful in dramatically reducing the SSOs caused by third-party hits on JEA sewage lines, 

as shown in Figure E-4. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

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F IGUR E E -4. R EPORTABLE SSOS BY THIR D P AR TIE S , 2003–08

MANHOLE MONITORING

The Manhole Monitoring Program, which was initiated in 2007, involves the placement of fluid 

level measurement devices under manhole covers. Under the first phase of the project 

(completed before the end of 2007), 17 monitors were installed at a cost of over $130,000. The 

devices transmit alarms when the water level in the manhole is elevated, denoting a surcharged 

condition. Upon receiving an alarm, JEA personnel are dispatched to the site to address the 

situation and take action as necessary. As conditions at the monitored sites improve, the 

monitors can be moved on short notice to address more critical situations elsewhere. 

JEA has avoided at least 12 SSOs as the result of the first phase of the program. In addition, 

the monitors have allowed JEA to more effectively utilize other resources, as personnel are no 

longer required to make frequent inspections of potential problem sites to constantly assess 

changing conditions. JEA currently has plans to expand the program with the acquisition of an 

additional 10 monitors in the second phase.

FORCE MAIN DISCHARGE MANHOLES

This program was implemented at manholes into which force mains discharge. The structure of 

these manholes is subjected to increased deterioration due to a higher concentration of 

corrosive sewer gases associated with the pressurized discharges of sewage. Under this 

program, all force main discharge manholes were inspected in 2007. Those found in need of 

repair have been rehabilitated.

TRIBUTARY POLLUTION ASSESSMENT MANUAL

JEA contracted with a consultant, PBS&J, to develop a methodology for conducting tributary 

pollution assessments for sources of fecal coliform contamination in the listed tributaries. This 

methodology will be field-verified by conducting sanitary surveys of selected tributary waterbody 

segments, and revised based on lessons learned from this process. The final product of this 

endeavor was a Tributary Pollution Assessment Manual that can be used as a blueprint for 

conducting sanitary surveys. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

211

CAPACITY, MANAGEMENT, OPERATIONS, AND MAINTENANCE (CMOM) PROGRAM

JEA’s Water and Wastewater Systems Group is spearheading a voluntary EPA program aimed 

at reducing SSOs and preserving wastewater infrastructure. Considering that SSOs can lead to 

disease, water quality violations, the contamination of drinking water supplies, and beach 

closures, the importance of a well-maintained wastewater collection system cannot be 

overstated.

CMOM is a standardized system of continuous improvement to track numerous elements that 

contribute to a successful wastewater collection system. JEA has tracked similar information for 

years, but formalized and consolidated it in January 2008. In JEA’s CMOM program, there are 

152 elements tracked in the following three areas:

 

1. Management – Includes areas such as complaint management tracking, sewer 

system design and construction standards, and public notification. 

2. Operations – Examples include pump station operations, pretreatment 

monitoring, and grease trap monitoring.

3. Maintenance – Collection system maintenance includes pump station inspections 

and sewer line cleaning.

Documentation, measurement, and reporting in this standardized fashion will lead to more 

informed decisions based on hard data, allowing JEA to identify and address system priorities, 

detect trends, and proactively address problems both internally and cooperatively with local 

partners. 

COJ LOCAL POLLUTION CONTROL PROGRAM

COJ’s local pollution control program has helped to address fecal coliform problems in the 

tributaries of the St. Johns River through several innovative programs. COJ began a 

regionalization program for small WWTFs (package plants) in 1989 that has resulted in phasing 

out over 400 plants. Currently, there are approximately 20 package plants in the city. 

Before the regionalization effort began in 1989, COJ had hundreds of small private sanitary lift 

stations serving the area. Recognizing that the number of sanitary lift stations would 

significantly increase because of phasing out package plants and the need for reducing the 

potential sewage overflow, the local pollution control program has implemented a sanitary lift 

station inspection program requiring all lift stations constructed after August 1991, to have 

operator attendance. The COJ Environmental Protection Board (EPB) Rule 3 established the 

basic requirements for lift station design, construction, and operation by adopting Rule 62-604, 

F.A.C. The rule also requires that all lift station must have monthly operator visits, a logbook, 

and an emergency contact number posted at the site.

Today there are more than 900 privately owned lift stations, and EQD’s goal is to inspect all 

private lift stations at least annually. Citizens’ reports of sewage overflow or self-reports by lift 

station owners are entered and tracked in COJ’s CARE system. All overflow events from a lift 

station are investigated and enforced using EPB guidelines. COJ’s proactive efforts to reduce 

SSOs are well documented.

EQD has recently recognized and begun addressing the problem of old above-ground sand filter 

onsite sewage treatment systems. These systems previously were not under the jurisdiction of 

existing regulatory programs because of their hybrid design. The sand filters recently examined 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

212

are nonfunctional due to a lack of maintenance. In addition, bypass pipes (around the sand 

filter) have been installed in some of the systems, causing inadequately treated sewage to be 

discharged to the MS4. EQD has embarked on a program to identify, map, and sample these 

systems to bring them into compliance through enforcement and connection to the municipal 

sanitary sewer system, or to use other means if connection is not possible. 

P R OGR AMS TO ADDR E S S OS TDS AS S OUR CES OF F ECAL C OLIFOR M 

C ONTAMINATION

DCHD OS TDS P ROGR AM

The objective of the OSTDS Program is to provide safe and sanitary treatment and disposal of 

domestic and commercial sewage waste in the areas not served by public sewerage systems. 

Generally, OSTDS present no public health problems when they are properly designed, 

installed, and maintained on sites having satisfactory soil and drainage features. However, 

where an installation site is unsuitable, and where no modification of the property is possible or 

practical, the use of an OSTDS may contaminate ground or surface waters. The primary goals 

of DCHD are to protect public health by eliminating the potential for the spread of infectious 

disease caused by improperly built or maintained OSTDS, and to protect ground and surface 

water from OSTDS discharge.

DCHD is responsible for all operational aspects of the OSTDS Program, as described in Rule

64E-6, F.A.C. To accomplish its program goals and objective, DCHD utilizes the expertise of 

one field supervisor, eight field inspectors, and three administrative support staff. In addition, 

the DCHD office has a field inspector to perform complaint investigations and an enforcement 

officer to address legal cases.

During the permitting process, the OSTDS staff provides many services including, but not 

limited to, the following: 

• Application/plan review; 

• Site evaluation; 

• System construction permitting; and

• Installation inspection. 

DCHD must review all applications for construction permits relating to the installation, 

modification, replacement, or repair of OSTDS and determine within the time limitations 

prescribed by the Florida Administrative Procedures Act, Section 120.60, F.S., whether to issue 

or deny a permit. The goal for the average number of days to issue a new construction permit is 

eight days and two days for a repair permit. 

The review process involves a determination as to whether the site location and installation will 

comply with standards set forth in Chapter 381, F.S. and Rule 64E-6, F.A.C. DCHD also 

inspects and evaluates all new installations, repairs, abandonments, or modifications of OSTDS; 

inspections are made to ensure adequate tank construction and capacity, fill material if needed, 

drainfield size, elevation, cover, dosing system construction, distance from surface water and 

potable wells, and other regulatory requirements. DCHD also inspects existing OSTDS for 

compliance when there is a change of use or occupancy. When COJ’s Building and Zoning 

Department receives an application for a building permit, when a zoning change is requested or 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

213

when COJ receives an application for occupational license, the applicant will be referred to the

DCHD office for OSTDS review.

When a building served by an OSTDS is located in an area zoned or used for

industrial/manufacturing purposes, or where a business generates commercial sewerage waste, 

DCHD issues an annual operating permit and requires at least one compliance inspection per 

year. The updated listings of these properties are identified by DCHD staff, who crossreference JEA and COJ data. 

In addition to the actual permitting process for OSTDS systems, DCHD also regulates the 

OSTDS maintenance industries. Service permits are issued to the following facilities annually, 

and DCHD performs one to two compliance inspections each year, as follows, depending on the 

type of facility:

• Septic disposal services;

• Lime stabilization facilities;

• Land application facilities;

• Portable or temporary toilet services; and

• Septic tank manufacturers.

When an inspection determines that a DCHD-issued OSTDS permit is out of compliance, the 

inspector notifies the appropriate parties in writing. Proper documentation, in the following 

sequence, is required for any type of inspection:

Step i. Written notice (i.e. inspection report);

Step ii. Official notice;

Step iii. Legal notice or corrective notice; and

Step iv. Case referred to State Attorney’s Office.

It should be noted that a complaint investigation begins at Step ii, with the issue of the official 

notice. By law, two versions of the notice are required prior to enforcement. Depending on the 

severity of the case, the timeline between steps of this sequence may vary. For example, for 

more serious occurrences, the timeframe between Step i and Step iii can be under 24 hours.

Approximately 90% of cases in Duval County are corrected after Steps i and ii. For those cases 

that require enforcement, DCHD has its own Enforcement Officer to take cases to court. FDEP 

law enforcement becomes involved in cases of willful pollution. The DCHD computer database 

includes a record of all complaints and investigations. This database is updated daily and may 

include approximately 16 to 20 complaints per week.

F LOR IDA ONS ITE WASTEWATER AS S OCIATION (FOWA) P R OPOS E D L E GIS L ATION

FOWA proposed legislation for a state statute requiring that OSTDS be inspected every five 

years. Although the goal was to have the bill voted on during the 2007 legislative session, the 

bill failed in committee and was not brought to the full legislature. According to Mike McInarny, 

FOWA (personal communication, June 5, 2007), it is currently the organization’s goal to educate 

legislators in the upcoming year with the objective of resubmitting the bill during the 2008 

legislative session. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

214

At this point, the focus has temporarily shifted to legislation on the local level. FOWA proposed 

a similar bill before the Jacksonville City Council. Mr. McInarny stated it will be the goal of

FOWA to educate officials on the local level in order to increase support for the ordinance.

DCHD-S PONS OR E D T R AINING P R OGR AMS

On April 25, 2006, First Coast District Florida Environmental Health Association (FEHA) hosted 

its first advanced OSTDS training opportunity, Perspectives on the use of OSTDS in Florida. 

The course was approved for 6 hours of continuing education for registered septic tank 

contractors and certified environmental health professionals. Approximately 70 people were in 

attendance. Speakers included representatives from associations such as FDOH, EPA, St. 

Johns Riverkeeper, WSEA, FOWA, and DCHD. Those in attendance included personnel from

JEA and FDEP, as well as certified plumbers, septic tank contractors, and environmental health 

professionals from 7 county health units.

DCHD and FDOH hosted another training program, entitled Onsite Management: Alternative for 

a Better Community, on November 16, 2006, in Jacksonville. The course was originally 

presented at the 2006 FEHA Annual Education Meeting in Sarasota, Florida. This training 

provided 6 contact hours for all septic tank contractors and certified environmental health 

professionals. It was an introduction to Onsite Wastewater Management and EPA’s Voluntary 

Management Guidelines. In addition, the speakers provided consideration for existing and 

future development and the opportunity for discussion of local issues that affect our community.

DCHD intends to continue other such efforts in the future; however, the themes may change. 

One idea is to include a DCHD public outreach endeavor as a part of the COJ’s annual 

environmental workshop.

DCHD INTE NS IVE INS PE CTION P ROGR AM

In the Miller Creek, Miramar Creek, Big Fishweir Creek, and Goodbys Creek watersheds, a 

discrete portion of each WBID was identified as having a higher probability of OSTDS-related 

problems. This determination was made based on the number of repair permit applications, 

water quality information, and the site conditions of these areas. DCHD is proposing to add an 

intensive inspection program to focus on these areas to proactively prevent issues from septic 

tanks in these watersheds. 

As part of this first five-year BMAP cycle, DCHD will seek to secure funding for the new program 

and will begin inspections as funding is available. DCHD will provide the findings from the 

inspections and any corrective actions taken in the annual BMAP progress reports. 

Assessment efforts that are also occurring in these WBIDs may identify additional areas where 

intensive inspections would be beneficial. DCHD will also look to secure funding to include 

other areas in the inspection program, as necessary. 

COJ S E PTIC TANK P HASE -OUT P ROGR AM

The purpose of the Septic Tank Phase-Out Program is to improve the quality of surface waters 

and ground waters by connecting properties located in the septic tank failure areas to JEA 

public sewer service. In May 2000, COJ enacted Ordinance Code 2000-119-E, which amended 

Chapter 751 Ordinance, to establish sources of funding for constructing public sewer service 

lines, adopt the FDOH priority list for septic tank failure areas, and provide an enforcement 

mechanism for EQD.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

215

Based on an analysis completed by WSEA, there are a total of 64,837 OSTDS in Duval County. 

WSEA concludes that 23,944 systems are contained within the 39 failure areas identified to 

date. The number of septic tanks connected to JEA in future years depends on the construction 

of sewer collection systems in each failure area and DCHD enforcement actions for septic tanks 

located outside identified failure areas.

DC HD/C OJ S E PTIC TANK F AILUR E AREA R ANK ING 

The TAT is the sampling subcommittee for the LSJR tributaries. The DCHD and EQD mutually 

agreed that it would be beneficial for the TAT to make a recommendation for revisions to the 

procedure used to determine the “sanitary conditions” portion of the DCHD/COJ Septic Tank 

Failure Area ranking. 

The state has adopted WBIDs as the hydrologic unit for determining whether waterbodies are in 

compliance with designated uses as adopted in state rule. WBIDs are also the hydrologic unit 

within the tributaries BMAP that management efforts are directed towards to bring various 

waterbodies into compliance that may be verified as impaired for fecal coliform bacteria. The 

TAT has adopted a protocol for ranking the various WBIDs for degree of severity. Using the 

ranking procedure, WBIDs that rank highest (worst water quality for fecal coliform bacteria) are 

prioritized for BMAP development and investigative studies to complete the required technical 

reports and BMAPs.

The TAT fecal coliform ranking for impaired WBIDs is as follows:

1. For a selected WBID, all fecal coliform data from the most recent five-year period

are retrieved from FL STORET. 

2. This procedure is repeated for all WBIDs to be ranked. 

3. Once fecal coliform data for the WBIDs of interest are assembled, each WBID is 

scored using the following protocol: determine the percent of samples that exceed 

800 cfu/100mL, then determine the percent of samples that exceed 5,000 

cfu/100mL, and lastly the percent of samples that exceed 10,000 cfu/100mL. 

4. The above calculations are completed for each WBID. 

5. All of the WBIDs are then ranked for each percent exeedance category. The 

WBID with the highest percent exceeding 800 cfu/100mL ranks as number one, 

then the WBIDS are ranked for percent exceedance of 5,000, and finally percent

exceedance of 10,000 are ranked. In this manner, a WBID that ranked with the 

highest percent exceedances for 800, 5,000, and 10,000 cfu/100mL would score a 

1st, 1st, and 1st ranking. The WBID would then have a combined ranking score of 

3, and would be the worst WBID in the group in terms of fecal coliform violations. 

6. After a combined score is determined for each of the WBIDs, all WBIDs are 

ranked based on the combined rank score. 

7. The ranking by the combined rank score becomes the final fecal coliform rank for 

that WBID, as determined by the TAT protocol. 

On June 17, , the TAT met to discuss an appropriate method to calculate the sanitary condition

index score, which is based on the fecal coliform determination that is used for ranking the 

DCHD septic tank failure areas. Three options were considered, as follows: 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

216

1. Continue to use a ranking based on fecal coliform geometric mean for the most 

recent five-year period for a selected group of surface water monitoring sites near 

the septic tank area of interest. 

2. Use a percent violation of the 400 or 800 cfu/100mL fecal coliform standards for 

the same set of data as used in the first option. 

3. Adopt the TAT fecal coliform WBID ranking protocol and apply it individually to the 

different WBIDs in each septic tank failure area. 

Option 3 was selected in large part for the consistency it introduces in the methodology used 

throughout the tributaries regarding prioritization.

WSEA provided COJ with a comprehensive list of the WBIDs for each of the existing and 

proposed septic tank failure areas and the percent of each WBID that was within the boundaries 

for a given failure area. COJ and FDEP used the TAT protocol to rank the list of WBIDs 

provided by WSEA. For each failure area, the WBID rank score was then multiplied by the 

percent that WBID constituted in the failure area. Sanitary condition points (1 to 10) were then 

assigned based on total WBID scores for each of the failure areas. The lower the total WBID 

score for a failure area, the worse the fecal coliform conditions resulting in a high sanitary 

conditions point value.

CITY OF J ACK S ONVIL LE OR DINANCE C HAPTER 751 S E PTIC TANK S UPE R FUND

Sec. 751.101. Declaration of legislative intent and public policy.

The Council finds and declares that the publicly owned water and sewer system must be 

expanded into those neighborhoods and subdivisions where septic tank systems have failed so 

as to create a sanitary nuisance or other conditions affecting the environment and the health, 

safety and general welfare of the inhabitants of the City. It is further declared that in an area 

having failing septic tank systems, but which has not been declared a sanitary nuisance by the 

Director of the Environmental and Compliance Department after consulting with the Director of 

Duval County Health Department, water and/or sewer service will not be provided unless at 

least 60% of the property owners signify their desire for the system by signing a letter of intent 

to make payment of the sewer tap charge, the water pollution control charge, water meter tap 

fee and water capital recovery fee, if applicable. It is further declared that the costs of 

constructing sewer collection lines and water distribution lines to septic tank system failure 

areas, which are declared to be sanitary nuisances are to be borne by all taxpayers since the 

problems are City-wide. It is further declared that any existing Water and Sewer Enterprise 

Fund, managed and controlled by JEA, which is being financed by current City utility customers 

should not be used to rectify septic tank system failure area problems without reimbursement.

(Ord. 87-485-660, § 1; Ord. 91-992-399, § 1; Ord. 93-138-148, § 56; Ord. 2000-119-E, § 1; Ord. 

2008-513-E, § 1)

Sec. 751.102. Definitions.

When used in this chapter, unless the context otherwise clearly indicates a different meaning, 

the following terms shall have the meaning contained below:

(a) Available as applied to a publicly owned or investor-owned sewerage system means that 

the publicly owned or investor-owned sewerage system is capable of being connected to the 

plumbing of an establishment or residence, is not under a Department of Environmental 

Protection moratorium, and has adequate permitted capacity to accept the sewage to be 

generated by the establishment or residence; and 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

217

(1) For a residential subdivision lot, a single-family residence, or an establishment, any of 

which has an estimated sewage flow of 1,000 gallons per day or less, a gravity sewer line to 

maintain gravity flow from the property's drain to the sewer line, or a low pressure or vacuum 

sewage collection line in those areas approved for low pressure or vacuum sewage collection, 

exists in a public easement or right-of-way that abuts the property line of the lot, residence, or 

establishment.

(2) For an establishment with an estimated sewage flow exceeding 1,000 gallons per day, a 

sewer line, force main, or lift station exists in a public easement or right-of-way that abuts the 

property of the establishment or is within 50 feet of the property line of the establishment as 

accessed via existing rights-of-way or easements.

(3) For proposed residential subdivisions with more than 50 lots, for proposed commercial 

subdivisions with more than five lots, and for areas zoned or used for an industrial or 

manufacturing purpose or its equivalent, a sewerage system exists within one-fourth mile of the 

development as measured and accessed via existing easements or rights-of-way.

(4) For repairs or modifications within areas zoned or used for an industrial or manufacturing 

purpose or its equivalent, a sewerage system exists within 500 feet of an establishment's or 

residence's sewer stub-out as measured and accessed via existing rights-of-way or easements.

(b) Criteria factors means a prescribed listing of criteria to be applied to the Failed Area List to 

determine priority of providing service pursuant to Section 751.107. 

(c) Director means the person directing the water and sewer distribution and collection 

systems for JEA, or his deputy, division chief, agent or representative, unless a specific 

reference is made to a named City department. 

(d) EPB means the Environmental Protection Board. 

(e) Failed Area List means the most current list of septic tank system failure areas pursuant to 

Section 751.106. 

(f) Sanitary nuisance shall have the meaning given in Section 386.01, F.S., and as further 

defined and interpreted in the criteria factors specified herein. 

(g) Septic tank system has the same meaning as provided in Section 64E-6, Florida 

Administrative Code. 

(h) Septic tank system failure areas means a subdivision or platted subdivision with five or 

more failing septic tank systems, and which meets a minimum score of 70 percent of the criteria 

factors, from evaluation of those criteria factors specified herein, by the Director of the 

Environmental and Compliance Department after consulting with the Director of the Duval 

County Health Department or designee. 

(i) Sewage lines means any of the publicly owned regional sewerage system and connections, 

fittings, collection and pumps including force mains and gravity flow lines. 

(j) STS Fund means the Septic Tank Superfund. 

(k) Water lines means any part of the publicly owned water system together with all 

connections, fittings, valves and pipes. 

(Ord. 87-485-660, § 1; Ord. 91-992-399, § 1; Ord. 93-138-148, § 57; Ord. 94-903-552, § 61; 

Ord. 97-229-E, § 28; Ord. 2000-119-E, § 1; Ord. 2008-513-E, § 1)

Sec. 751.103. Septic Tank Superfund (STS), establishment of.

There is hereby established a Septic Tank Superfund (known as the STS Fund) of monies 

collected and received from various sources, as specified in Section 751.104, to be used to 

provide water and/or sewer service to septic tank system failure areas, that have been declared 

sanitary nuisances as provided herein and are noted on a Failed Area List. 

(Ord. 87-485-660, § 1; Ord. 91-992-399, § 1; Ord. 2000-119-E, § 1)

Sec. 751.104. Sources of funding.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

218

The STS Fund may acquire monies from the Environmental Protection Fund, federal or State 

grant funds, monies that may be appropriated from revenue bonds and any other monies 

appropriated by Council.

(Ord. 87-485-660, § 1)

Sec. 751.105. Administration of STS Fund.

The Director of Finance is authorized and directed to make disbursements from this fund upon 

the written recommendation of the Director of the Environmental and Compliance Department 

after consulting with the Director of the Duval County Health Department for the sole purpose of 

providing water or sewer service to areas on the Failed Area List which are presently served or 

will be served by the city in priority as determined in accordance with the criteria factors.

(Ord. 87-485-660, § 1; Ord. 91-992-399, § 1; Ord. 93-138-148, § 58; Ord. 2000-119-E, § 1; Ord. 

2008-513-E, § 1)

Sec. 751.106. Failed Area List.

The Director of the Environmental and Compliance Department shall be responsible for 

assembling and maintaining a prioritized listing of Septic Tank System Failure Areas (Failed 

Area List) based upon the criteria factors specified herein, after consulting with the Director of 

the Duval County Health Department. The Failed Area List shall be submitted to City Council for 

its review as part of the annual budget process. The Failed Area List shall be updated at least 

annually. The list shall be promulgated and shall be made available to the public in the Office of 

the Director of the Environmental and Compliance Department. Any area on the list which has

been designated a sanitary nuisance by the Director of the Environmental and Compliance 

Department after consulting with the Director of the Duval County Health Department shall be 

identified as such on the list.

(Ord. 87-485-660, § 1; Ord. 93-138-148, § 59; Ord. 2000-119-E, § 1; Ord. 2008-513-E, § 1)

Sec. 751.107. Criteria factors.

Priority of providing sewage lines or water lines to a Septic Tank System Failure Area shall be 

determined by the Director of the Environmental and Compliance Department in consultation 

with the Director of the Duval County Health Department, or designee, in accordance with 

criteria factors developed by the Director of the Environmental and Compliance Department 

after consulting with the Director Duval County Health Department, or designee, and the 

Director of the Public Works Department. The criteria factors developed shall include:

1. The number of septic tank system repair permits issued in the area.

2. Average lot size in the area.

3. Soil potential in the area.

4. Seasonal highwater table in the area.

5. Threat to potable water in the area.

6. Sanitary conditions in the area.

7. Proximity of the area to any surface water body.

8. Potential for flooding in the area.

If a Septic Tank System Failure Area has been declared a sanitary nuisance by the Director of 

the Environmental and Compliance Department after consulting with the Director of the Duval 

County Health Department, that area automatically shall be given the highest priority for the 

provision of service. If two or more areas are so declared sanitary nuisances, then the 

developed criteria factors shall be applied to determine the priority amongst them.

(Ord. 87-485-660, § 1; Ord. 93-138-148, § 60; Ord. 2000-119-E, § 1; Ord. 2008-513-E, § 1)

Sec. 751.108. Provision of sewage service to Septic Tank System Failure Areas.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

219

(a) When the Director of the Environmental and Compliance Department, in consultation with 

the Director of the Duval County Health Department have ranked the Septic Tank System 

Failure Areas in accordance with Section 751.107 and sufficient STS Funds are available, the 

Director shall contact the property owners in the Septic Tank System Failure Area having the 

highest priority. When at least 60 percent of the property owners in the Septic Tank System 

Failure Area have agreed to have service provided to their area and each of those property 

owners has signed a letter of intent to make payment of the sewer tap charge, water pollution 

control charge, water meter tap fee and capital recovery fee, the Director shall prepare and 

implement a plan for providing sewage lines to the Septic Tank System Failure Area in 

accordance with Chapter 122, Part 6.

(b) If, however, a Septic Tank System Failure Area has been declared a sanitary nuisance by 

the Director of the Environmental and Compliance Department after consultation with the 

Director of the Duval County Health Department, the Director shall prepare and implement a 

plan for providing sewage lines without first having to contact the owners in the Septic Tank 

System Failure Area.

(c) For a failure area where the threat is to drinking water supplies (wells), when notified by the 

Director of the Environmental and Compliance Department after consultation with the Director of 

the Duval County Health Department, the Director or designee shall prepare and implement a 

plan for providing water lines only to the failure area where installation of water lines would be 

more cost effective than installation of sewage lines to failure area.

(Ord. 87-485-660, § 1; Ord. 91-992-399, § 1; Ord. 93-138-148, § 61; Ord. 2000-119-E, § 1; Ord. 

2008-513-E, § 1)

Sec. 751.109. Variances.

Variances to the procedure for the provision of service to a Septic Tank System Failure Area 

established by this Chapter may be granted as provided in Section 360.111.

(Ord. 87-485-660, § 1; Ord. 2000-119-E, § 1; Ord. 2000-119-E, § 1)

Sec. 751.110. Appeals.

Appeals shall be heard as prescribed in Part 4, Chapter 360.

(Ord. 87-485-660, § 1)

Sec. 751.111. Reimbursement of Water and Sewer Enterprise Fund.

When the STS Fund is created and sufficient funds are available, the first use of the monies 

available shall be for reimbursement of the Water and Sewer Enterprise Fund, managed and 

controlled by JEA for the costs of providing water and sewer service.

(Ord. 87-485-660, § 1; Ord. 94-903-552, § 62; Ord. 2000-119-E, § 1)

Sec. 751.112. Mandatory and deferred connections.

(a) The owner of a septic tank system shall connect to a publicly owned or investor-owned 

sewerage system within 365 days after written notification by the owner of the publicly owned or 

investor-owned sewerage system that the system is available for connection. In the alternative, 

said owner may defer such connection as provided in subsection (b) of this Section. The 

publicly owned or investor-owned sewerage system must notify the owner of the septic tank of 

the availability of the central sewerage system. No less than one year prior to the date the 

sewerage system will become available, the publicly owned or investor-owned sewerage 

system shall notify the affected owner of the septic tank of the anticipated availability of the 

sewerage system and shall also notify the owner that the owner may be required to connect to 

the sewerage system within one year of the actual availability. The owner shall have the option 

of prepaying the amortized value of required connection charges in equal monthly installments 

over a period of time determined by JEA, based upon sewerage system costs. Nothing in this 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

220

Section shall operate to impair contracts or other binding obligations relating to payment 

schedules in existence as of May 31, 2000.

(b) If the owner has a properly functioning septic tank system and wishes to defer connection 

to the available publicly owned or investor owned sewerage system in subsection (a), of this 

Section, such connection may be deferred until such time as the title to the owner's property is 

sold, conveyed or otherwise transferred. In consideration for such deferral, the owner shall 

execute an agreement with the City, under which the owner agrees to have a covenant placed 

upon the deed to owner's property that restricts the sale, conveyance or other transfer of title to 

the property until such time as connection to the available publicly owned or investor owned 

sewerage system is made. Said agreement shall also provide that the deferral relates only to 

connection under this ordinance and that it in no way binds the State of Florida from enforcing 

mandatory connections to available systems pursuant to Florida law, including Section 

381.00655, F.S. Said contract shall be filed in the Official Records of Duval County as notice of 

such connection requirement. The Director of Public Works is hereby authorized to sign such 

agreements for the City; provided however that such agreement shall bear attestation from the 

Corporation Secretary, review and approval from the Director of Administration and Finance and 

form approval by the Office of General Counsel.

(c) If the owner's septic tank system has failed and the Duval County Health Department will 

not issue a permit for repair, the owner shall connect to the available publicly owned or investor 

owned sewerage system within 90 days after notification, by the Duval County Health 

Department, that the permit will not be issued. 

(Ord. 2000-119-E, § 1)

Sec. 751.113. Penalty.

Any person who violates any provision of this Chapter or shall be assessed a civil penalty not to 

exceed $500 per violation. Each day a violation continues shall constitute a separate violation.

(Ord. 2000-119-E, § 1)

Sec. 751.114. Enforcement.

This Chapter shall be enforced by the Environmental and Compliance Department and 

Environmental Protection Board pursuant to the provisions of Chapter 360, Part 4 and rules 

promulgated pursuant thereto.

(Ord. 2000-119-E, § 1; Ord. 2008-513-E, § 1)

Sec. 751.115. Assessment and recovery of civil penalties.

Civil penalties provided for in Section 751.113 may be assessed by the administrative process 

in Chapter 360, Part 4 and rules promulgated pursuant thereto or, in the alternative, by judicial 

process in a civil action filed in the name of the City in a court of competent jurisdiction. A civil 

penalty assessed and owed under this Chapter shall be paid to the Tax Collector for deposit in 

the Septic Tank Superfund established by Section 751.103. An administratively assessed civil 

penalty under this Section and Chapter 360, Part 4, may be recovered in a civil action in the 

name of the City. The City shall be entitled to reasonable attorney’s fees and costs, including 

appellate fees and costs in actions where the City is successful in recovering civil penalties.

(Ord. 2000-119-E, § 1)

Sec. 751.116. Other relief.

In addition to any penalties assessed and collected under this Chapter, the City, through the 

Office of General Counsel, may seek injunctive or other appropriate relief in a court of 

competent jurisdiction to enforce this Chapter or administrative orders issued pursuant to this 

Chapter and Chapter 360, Part 4.

(Ord. 2000-119-E, § 1)
Final Lower St. Johns River Basin Management Action Plan – December 2009 

221

Sec. 751.117. Interpretation.

Whenever the titles "Director of Environmental and Compliance," "Director of Duval County 

Health Department," "Director" as the person directing the water and sewer distribution systems 

for JEA, or "Director of Public Works" are used in this chapter, those titles include the deputies, 

division chiefs, agents, representatives or designees of each respective director.

(Ord. 2000-119-E, § 1; Ord. 2008-513-E, § 1)
Final Lower St. Johns River Basin Management Action Plan – December 2009 

222

P R OGR AMS TO ADDR E S S S TOR MWATE R AS S OUR CE S OF F ECAL C OL IFOR M 

C ONTAMINATION

MS 4 C APITAL AND DRAINAGE S YS TE M R E PAIR (DS R ) P ROJECTS

Between 1997 and 2008, COJ completed numerous MS4 capital improvements at a cost of over 

$182 million. COJ’s current 5-year Capital Improvement Plan (CIP) lists 19 MS4 projects with a 

total estimated cost of over $95 million, with an additional $167 million in proposed funding 

beyond FY2012/2013. 

In addition to constructing new drainage CIP projects, between 1997 and 2008, COJ has 

completed over 60 DSR projects at a total cost of over $5 million. It is anticipated that

continuing investments will average $500,000 annually for DSR projects.

As demonstrated above the COJ has, is, and will, within approved annual budget limits, 

construct stormwater collection and treatment facilities.

MS 4 MAINTE NANCE AC TIVITIE S

COJ maintains its MS4 via response to requests received through the Citizen Action Response 

Effort (CARE) system, as well as through an allocation of approximately $6 million annually for 

street sweeping, structure and closed conveyance cleaning, and spot repair/replacement 

projects.

The Department of Public Works’ Right-of-Way and Grounds Division responds to an average of 

10,000 CARE requests per year. A work order management system to track labor equipment 

and material costs for each CARE-related work order was implemented in 2007. To date, the 

work order management system database contains over 9,000 CARE drainage work orders at 

an average total cost of $550 per work order. This translates into an annual cost of 

approximately $5.5 million.

In summary, COJ invests approximately $11.5 million annually to maintain its stormwater 

drainage system. Based on the historical number of CARE-related cases, it is projected that the 

average annual maintenance costs will remain at the historic levels summarized above. The 

type and volume of CARE-related maintenance activities and their locations assist DPW in 

defining future capital improvement and DSR projects. 

INS PE CTION, S AMPLING, AND E NFOR CE ME NT ACTIVITIE S

Between January 1, 2000, and December 1, 2008, COJ EQD completed 2,876 CARE-initiated 

inspections citywide. EQD anticipates conducting an annual average of 350 CAREinitiated inspections, described in the Inspection, Sampling, and Enforcement Activities Report,

for the foreseeable future.

EQD maintains 100 ambient tributary water quality trends and conditions sampling sites 

citywide. EQD has established a goal of conducting quarterly sampling for these sites.

SSO inspections are initiated via a CARE request or referral by FDEP or JEA. Where the SSO 

inspection determines the source is from an NPDES-permitted facility, inspection findings are 

forwarded to FDEP. SSOs found to originate from a private lift station or non-NPDES permitted 

WWTF are addressed by EQD. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

223

S TOR MWATE R MANAGE ME NT P LAN

Since 2006, COJ, via a contract with a consultant, is updating the Master Stormwater 

Management Plan (MSMP). The update includes the following:

• Update stormwater models; 

• Develop master plan level designs for regional and neighborhood Best 

Management Plans to reduce flow and improve water quality; and

• Develop a Stormwater Utility fee structure and operating budget.

To date, COJ has invested $3 million in the MSMP. The current CIP includes $2 million to 

update the MSMP during FY2012/2013. Although this funding is planned, the proposed MSMP 

update requires budget approval. 

MS 4 NPDE S P ROGR AM

In conjunction with the MSMP above, COJ had established a Stormwater Compliance 

Inspection Program to ensure all construction activities comply with its preapproved BMPs. In 

1997, COJ along with its copermittees (FDOT, Atlantic Beach, and Neptune Beach) was issued 

the first MS4 NPDES permit. The permit is now in its third cycle and currently under review by 

FDEP. Between 1997 and 2007, FDOT has invested approximately $3 to $3.5 million in 

its NPDES Program. Between 1996 and 2008 COJ has invested approximately $10.9 million 

in its NPDES Program. Key elements of the work completed during this period include the 

following:

• Inventory and mapping of all COJ and FDOT MS4 infrastructure.

• Between 1998 and 2007 a citywide Illicit Discharge Detection and Elimination 

field survey/inspection was conducted to identify all discharges into the 

watershed.

• Implementation of a High Priority Industry Inspection Program. 

• Development of field inspection tools and protocols to support ongoing illicit 

discharge and detection by COJ staff.

During the next 5 years (2009–13) an additional investment of $2.7 million is planned for the 

NPDES Program. Using the latest GIS and handheld technology, COJ plans to develop and 

implement tools and practices to enhance current private lift station, septic tank, and highpriority industry inspections and enforcement procedures. In addition, COJ will integrate 

existing data systems to more effectively address NPDES permit administration as well as 

comply with LSJR main stem and tributaries BMAP reporting requirements. 

OUTR E ACH AND E DUC ATION

COJ is actively engaged in many public awareness activities, including the following: 

• Public service announcements on septic tank maintenance and pet waste 

management; 

• Educational materials and newsletters to provide a better understanding of 

ordinances; and
Final Lower St. Johns River Basin Management Action Plan – December 2009 

224

• Presentations to groups such as homeowner’s associations and Citizen Policy 

Advisory Committees (CPACs) on the impact of fecal coliform generated by 

pet waste entering and affecting our waterways. 

P ET WASTE MANAGE ME NT

In 2004, Sec.462.301 Jacksonville Ordinance Code (JOC) and 2007, Sec. 28.716 JOC, COJ

enacted ordinances for the removal and proper disposal of solid waste from pets and animals 

on private and public properties. Enforcement provisions include monetary penalties up to $250 

per violation and imprisonment.

S PE CIAL P ROJECTS AND INVE S TIGATIONS

In 2005, COJ funded $8,000 to conduct a trial thermal imaging project. The trial project covered 

three tributary segments: Hogan Creek, Fishing Creek, and Little Pottsburg Creek. Follow-up 

ground truthing revealed much information on the potential hot spots indentified via thermal 

imagery. However, water quality information was not collected to substantiate the hot spots as 

positive fecal coliform sources.

Leveraging the lessons learned during the 2005 study, in conjunction with FDEP, another study 

was conducted. Using $50,000 in special funding from the Legislature, the study involved the 

thermal imaging of four creeks routinely contaminated with fecal coliform. This study included 

preflight and postflight sampling for fecal coliform bacteria by the EQD/FDEP contractor and 

MST analysis by the University of South Florida. Field verifications and ground truthing will be 

completed on four WBIDs. The WBIDs included in this study are McCoy Creek, Miramar Creek,

Craig Creek, and Big Fishweir Creek. 

COJ POTE NTIAL IL LICIT CONNE CTION P R OGR AM

The keys to COJ’s PIC Program are education and the elimination of illicit discharges. In June 

2007, the consulting firm of England-Thims & Miller (ETM), under contract with COJ PWD, 

began to develop an inventory of PICs while mapping the MS4 system in Duval County. ETM 

has examined the permits, beginning in 1997, for the cities of Jacksonville, Atlantic Beach, and 

Neptune Beach, and FDOT. The entire MS4 system was inventoried; however, with constant 

growth comes constant change. New technologies are being used to make inventory 

maintenance less time consuming and more economical.

On October 1, 2007, the PIC Program was shifted from PWD to COJ EQD. EQD is currently 

following up on and resolving the PICs found by ETM during its inventory. EQD is using several 

handheld Trimble units and a dedicated computer to track progress. ETM created the computer 

programming, set up the system, and trained EQD staff on its operation.

EQD has the authority to conduct detailed investigations and take enforcement action, if 

necessary, to resolve the PIC. There are daily reports of new PICs from COJ’s CARE system, 

which is a database that allows anyone to report a PIC or any other problem to COJ. The 

reports coming in from the CARE system vary greatly, and the PIC staff looks into each one of 

them. 

A typical PIC investigation includes talking to the property owner to gather as much information 

as possible about the pipe and to formulate a plan and timetable for its removal. If the property 

owners are cooperative, EQD works in conjunction with them to remove the pipe. If the property 

owners are not cooperative, EQD is prepared to bring about compliance through the 

enforcement process. Many of the reported PICs involve swimming pools or washing machines 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

225

and are fairly easy to resolve. A small percentage involves an illegal discharge of wastewater, 

usually from a failing septic system. EQD works with the State Health Department to resolve 

these issues.

EQD also conducts over 200 industrial inspections a year of high-priority sites. One full-time 

inspector visits these industries and checks the facilities for areas that might be prone to illegal 

runoff. After a comprehensive site visit, the inspector will share his findings with facility 

personnel.

Educational outreach is an essential part of the PIC Program. EQD distributes pamphlets, door 

hangers, and other educational materials in a variety of ways, including to an individual during 

an inspection, at homeowner’s association meetings, during Earth Day events, and anywhere 

else where there is an opportunity to get the message across. EQD also works in conjunction 

with SJRWMD’s WAV Program. Information about the program can be found online at

www.sjrwmd.com/education/wav/index.html. 

FDOT DR AINAGE CONNE CTION P ROGR AM

14-86.001 Purpose. The purpose of this rule chapter is to regulate and prescribe conditions for 

the transfer of stormwater to the Department of Transportation’s right of way as a result of 

manmade changes to adjacent property(ies), through a permitting process designed to ensure 

the safety and integrity of the Department of Transportation’s facilities and to prevent an 

unreasonable burden on lower properties. This rule chapter does not regulate dewatering 

activities. 

Specific Authority 334.044(2), (15) FS. Law Implemented 334.044(15) FS. History - New 11-

12-86, Amended 1-20-09.

14-86.002 Definitions. As used in this rule chapter the following terms shall have the following 

meanings:

(1) “Adjacent Property” means any real property or easement with a shared boundary to the 

Department’s right of way. 

(2) “Applicant” means the owner of adjacent property or the owner’s authorized representative.

(3) “Applicable Water Quality Standards” means rules and regulations of state or federal 

governmental entity(ies) pertaining to stormwater discharges from the Department’s facilities to 

which the drainage connection is made.

(4) “Approved Stormwater Management Plan” or “Master Drainage Plan” means a plan adopted 

or approved by a city, county, water management district, or other agency with specific drainage 

or stormwater management authority provided that: 

(a) Such plan is actively being implemented;

(b) Any required construction is substantially complete;

(c) Downstream mitigation measures have been provided for in the plan; and

(d) The use of any Department facilities either existing or planned, which are part of such plan, 

have been approved by the Department.

(5) “Closed Basin” means a basin without any positive outlet, for the design storms applicable to 

this rule.

(6) “Critical Duration” means the length of time of a specific storm frequency which creates the 

largest volume or highest rate of net stormwater runoff (post-improvement runoff less preimprovement runoff) for typical durations up through and including the 10-day duration for 

closed basins and up through the 3-day duration for basins with positive outlets. The critical 

duration for a given storm frequency is determined by calculating the peak rate and volume of 

stormwater runoff for various storm durations and then comparing the pre-improvement and 

post-improvement conditions for each of the storm durations. The duration resulting in the 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

226

highest peak rate or largest net total stormwater volume is the “critical duration” storm (volume 

is not applicable for basins with positive outlets).

(7) “Department” means the Florida Department of Transportation.

(8) “Discharge” means the event or result of stormwater draining or otherwise transferring from 

one property to another or into surface waters.

(9) “Drainage Connection” means any structure, pipe, culvert, device, paved or unpaved area, 

swale, ditch, canal, or other appurtenance or feature, whether naturally occurring or created, 

which is used or functions as a link to convey stormwater.

(10) “Facility” or “Facilities” means anything built, installed, or maintained by the Department 

within the Department’s right of way.

(11) “Impervious Area” means surfaces which do not allow, or minimally allow, the penetration 

of water. Examples of impervious areas are building roofs, all concrete and asphalt pavements, 

compacted traffic-bearing areas such as limerock roadways, lakes, wet ponds, pond liners, and 

other standing water areas, including some retention/detention areas.

(12) “Improvement” means any man-made change(s) to adjacent property.

(13) “Licensed Professional” means an individual licensed by a Florida professional licensing 

board, authorized by law to design and certify the stormwater management system under 

review. 

(14) “Man-made Change” means any intentional physical change to or upon adjacent property 

resultant from an intentional physical change, which establishes or alters the rate, volume, or 

quality of stormwater.

(15) “Permit” or “Drainage Connection Permit” means an authorization to establish or alter a 

drainage connection to the Department’s right of way issued pursuant to this rule chapter.

(16) “Permittee” means the individual or entity to which a Drainage Connection Permit is issued.

(17) “Positive Outlet” means a point of stormwater runoff into surface waters which under 

normal conditions would drain by gravity through surface waters ultimately to the Gulf of Mexico, 

or the Atlantic Ocean, or into sinks, closed lakes, or recharge wells provided the receiving 

waterbody has been identified by the appropriate Water Management District as functioning as 

if it recovered from runoff by means other than transpiration, evaporation, percolation, or 

infiltration.

(18) “Post-improvement” means the condition of property after improvement.

(19) “Pre-improvement” means the condition of property:

(a) Before November 12, 1986; or

(b) On or after November 12, 1986, with connections which have been permitted under this rule 

chapter or permitted by another governmental entity based on stormwater management 

requirements equal to or more stringent than those in this rule chapter. 

(20) “Right of Way” means land in which the Department owns the fee or less than the fee, or 

for which the Department has an easement, devoted to or required for use as a transportation or 

stormwater management facility.

(21) “Stormwater” or “Stormwater Runoff” means the flow of water which results from and 

occurs immediately following a rainfall event.

(22) “Stormwater Management System” means a system which is designed and constructed or 

implemented to control stormwater, incorporating methods to collect, convey, store, infiltrate, 

treat, use, or reuse stormwater to prevent or reduce flooding, overdrainage, pollution, and 

otherwise affect the quantity or quality of stormwater in the system.

(23) “Surface Water” means water upon the surface of the earth whether contained in bounds 

created naturally or artificially or diffused. Water from natural springs shall be classified as 

surface water when it exits onto the earth’s surface.

(24) “Watershed” means the region draining or contributing water to a common outlet, such as a 

stream, lake, or other receiving area.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

227

Specific Authority 334.044(2), (15) FS. Law Implemented 334.044(15) FS. History - New 11-

12-86, Amended 1-20-09.

14-86.003 Permit, Assurance Requirements, and Exceptions.

(1) Permit.

(a) No permits are required for properties without improvements on or after November 12, 1986.

(b) All improvements on or after November 12, 1986, require a Drainage Connection Permit, 

Form 850-040-06 (10/08), whether or not the work is done in conjunction with a driveway 

connection, and whether or not the improvement retains stormwater runoff on the adjacent 

property up to and including the 100 year event of critical duration.

(2) Assurance Requirements.

(a) The applicant for a drainage connection permit shall provide reasonable assurances that:

1. The peak discharge rates and total volumes of stormwater discharging from the adjacent 

property to the Department’s right of way are those provided for in an approved stormwater 

management plan or master drainage plan; otherwise the post-improvement stormwater runoff 

discharging from the adjacent property to the Department’s right of way shall not exceed the 

more stringent of the following:

a. The peak discharge rates and total volumes allowed by applicable local regulation; or

b. The improvement shall not increase stormwater discharge rate above the pre-improvement 

discharge rate, and in watersheds which do not have a positive outlet, the post-improvement 

total volume of stormwater runoff shall not be increased beyond the pre-improvement volume 

considering worst case storms for up to the frequencies and durations contained in paragraph 

14-86.003(2)(c), F.A.C.

2. Any discharge pipe establishing or constituting a drainage connection to the Department’s 

right of way is limited in size based on the pre-improvement discharge rate, downstream 

conveyance limitations, downstream tailwater influences, and design capacity restrictions 

imposed by other governmental entities.

3. If the improvement changes the inflow pattern of stormwater or method of drainage 

connection to the Department’s right of way, post-improvement discharge will not exceed the 

pre-improvement discharge to the Department’s right of way, any new drainage connection will 

not threaten the safety or integrity of the Department’s right of way, and will not increase 

maintenance costs to the Department. At a minimum pavement hydraulics, ditch hydraulics, 

storm drain hydraulics, cross drain hydraulics, and stormwater management facilities shall be 

analyzed. The analysis must follow the methodology used in the design of the Department’s 

facilities receiving the discharge and meet the criteria in chapters 2, 3, 4, and 6 of the 

Department’s Drainage Manual, Topic Number 625-040-002-c, May 2008, incorporated herein 

by reference. The Drainage Manual is available from the Department at: 

http://www.dot.state.fl.us/rddesign/dr/Manualsandhandbooks.shtm. 

4. The quality of water conveyed by the connection meets all applicable water quality standards, 

and such assurance shall be certified in writing. In the event the discharge is identified causing 

or contributing to a violation of applicable water quality standards, the permittee will be required 

to incorporate such abatement as necessary to bring the permittee’s discharge into compliance 

with applicable standards.

(b) If the requirements set forth in paragraph 14-86.003(2)(a), F.A.C., cannot be fully complied 

with, the applicant may submit alternative drainage connection designs. The analysis 

supporting the proposed alternative connection must follow the methodology used in the design 

of the Department’s facilities receiving the proposed alternative drainage connection and meet 

the criteria in chapters 2, 3, 4, and 6 of the Department’s Drainage Manual. Deviation from a 

standard in the Drainage Manual must be approved by the District Drainage Engineer. 

Acceptance of any alternative design must serve the purpose of this rule chapter and shall be 

based upon consideration of the following:
Final Lower St. Johns River Basin Management Action Plan – December 2009 

228

1. The type of stormwater management practice proposed;

2. The efficacy and costs of alternative controls;

3. The impact upon the operation and maintenance of the Department’s facilities; and

4. The public interest served by the drainage connection.

(c) In providing reasonable assurances, the applicant shall:

1. Use a methodology which is compatible with the methodology employed in the design of the 

Department’s facilities receiving the stormwater;

2. Determine the peak discharge rates considering various rainfall event frequencies up to and 

including a 100 year event of critical duration of up to three days; and

3. In watersheds without a positive outlet, determine the stormwater runoff total volumes 

considering various rainfall amounts up to a 100 year rainfall frequency of critical durations of up 

to ten days. The pond retention volume must recover at a rate such that one-half of the volume 

is available in seven days with the total volume available in 30 days, with a sufficient amount 

recovered within the time necessary to satisfy applicable water treatment requirements.

(3) Exceptions. The following exceptions do not require a Drainage Connection Permit:

(a) Improvements to adjacent properties not draining to the Department’s right of way in the preimprovement and post-improvement condition.

(b) Single-family residential improvements which are not part of a larger common plan of 

improvement or larger common plan of sale.

(c) Agricultural and silvicultural improvements that:

1. Are subject to regulation by the Department of Environmental Protection or regional Water 

Management Districts;

2. Are exempt under the provisions of Section 373.406, F.S.; or 

3. Are implementing applicable best management practices adopted by the Florida Department 

of Agriculture and Consumer Services in Rule Chapter 5M, F.A.C., or Rule Chapter 5I-6, F.A.C.

(d) Any other improvement, provided that all of the following apply:

1. The total impervious area, after improvement, is less than 5,000 square feet of cumulative 

impervious area and is less than 40% of that portion of the property that naturally drained to the 

Department’s right of way;

2. The improvement does not create or alter a drainage connection;

3. The improvement does not change flow patterns of stormwater to the Department’s right of 

way, and does not increase the surface area draining to the Department’s right of way; 

4. The property is located in a watershed which has a positive outlet; and

5. The site or improvement is not part of a larger common plan of improvement or larger 

common plan of sale. (4) An exception provided in subsection 14-86.003(3), F.A.C., shall not 

apply if any drainage connection from the adjacent property threatens the safety and integrity of 

the Department’s facilities or creates an unreasonable burden on lower properties, including 

violations of applicable water quality standards.

Specific Authority 334.044(2), (15) FS. Law Implemented 334.044(15) FS. History - New 11-

12-86, Amended 1-20-09.

14-86.004 Permit Application Procedure.

(1) An applicant shall submit a Drainage Connection Permit, Form 850-040-06 (10/08), 

incorporated herein by reference. This form may be obtained from any of the Department’s 

local area Maintenance Offices, District Offices, or on the internet at the Department’s website: 

http://www.dot.state.fl.us/onestoppermitting/. 

(2) The applicant shall submit four completed Drainage Connection Permits packages. Each 

completed Drainage Connection Permit package shall include all applicable attachments. All 

applicable plans and supporting documentation shall be submitted on no larger than 11" X 17" 

multipurpose paper and included in PDF format on a compact disk.

(3) The Drainage Connection Permit shall be accompanied by:
Final Lower St. Johns River Basin Management Action Plan – December 2009 

229

(a) A location map, included in the construction plans, sufficient to show the location of the 

improvement and any drainage connection to the Department’s right of way, and shall include 

the state highway number, county, city, and section, range, and township.

(b) A grading plan drawn to scale showing pre-improvement and post-improvement site 

conditions including all pervious and impervious surfaces, land contours, spot elevations, and all 

drainage facilities of the Department and of the adjacent property. The bench mark datum for 

the plans (whether NGVD 29 or NAVD 88) shall be noted on the plans. Contour information 

shall extend 50 feet beyond the property boundaries or be sufficient to clearly define the portion 

of the watershed which drains through the property to the Department’s right of way.

(c) Photographs which accurately depict pre-improvement and present conditions.

(d) Soil borings and water table data and, where percolation or infiltration is utilized in the 

design, appropriate percolation test methodology and results.

(e) Computations as required by subsection 14-86.003(2), F.A.C.

(f) The Drainage Connection Certification, Part 2 of the permit must be certified by a Licensed 

Professional that the complete set of plans and computations comply with either paragraph 14-

86.003(2)(a) or 14-86.003(2)(b), F.A.C.

(4) Improvements which otherwise meet the criteria of subparagraphs 14-86.003(3)(d)1. and 14-

86.003(3)(d)4., F.A.C., but which create or alter a drainage connection to the Department’s right 

of way, will not require submittal of the information required by paragraphs 14-86.004(3)(d) 

through (f), F.A.C., but will otherwise require the submittal of all other required information.

(5) The Department recognizes that regulatory and permitting programs exist or may be 

developed in the future by local units of government, and state or federal agencies which may 

overlap with some or all of the requirements of this rule chapter. In order to avoid duplication 

the Department will:

(a) In lieu of the requirements in Rule 14-86.003 and subsection 14-86.004(3), F.A.C., accept a 

permit that accomplishes the purposes of this rule chapter so long as the permit is issued by a 

governmental entity with specific stormwater management authority and is based on 

requirements equal to or more stringent than those in Rule 14-86.003, F.A.C.; or

(b) Accept any form, plans, specifications, drawings, calculations, or other data developed to 

support an application for a permit required by a governmental entity, pursuant to any rule which 

establishes requirements equal to or more stringent than Rule 14-86.003, F.A.C.

(6) The Drainage Connection Permit serves as the application. Once approved by the 

Department, the form and supporting documents become the Drainage Connection Permit.

Specific Authority 334.044(2), (15) FS. Law Implemented 334.044(15) FS. History - New 11-

12-86, Amended 1-20-09.

14-86.005 General Conditions for a Drainage Permit.

(1) A Drainage Connection Permit does not exempt the permittee from meeting all other 

applicable regulations and ordinances governing stormwater management.

(2) All work done in conjunction with the drainage connection permit shall meet and adhere to all 

general and specific conditions and requirements contained on the Permit.

(3) Within 15 working days after completion of the work authorized by an approved Drainage 

Connection Permit, the permittee shall notify the Department in writing of the completion; and 

for all design work that originally required certification by a Licensed Professional, this 

notification shall contain the As Built Certification, Part 8 of the Permit. The certification shall 

state that work has been completed in substantial compliance with the Drainage Connection 

Permit.

(4) The permittee or property owner, will be required to reimburse the Department for any fines, 

penalties and costs, e.g., abatement costs, mitigation costs, remediation costs, etc. incurred by 

the Department in the event the permittee’s discharge fails to meet the applicable water 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

230

quality standards or minimum design and performance standards contrary to the permittee’s 

assurances provided in subsection 14-86.003(2), F.A.C. 

Specific Authority 334.044(2), (15) FS. Law Implemented 334.044(15) FS. History - New 11-

12-86, Amended 1-20-09.

14-86.006 Permit Suspension or Revocation. A permit will be suspended or revoked if:

(1) The permitted drainage connection is not constructed, operated, or maintained in 

accordance with the permit;

(2) Emergency conditions or hazards exist;

(3) False or misleading information is submitted to the Department in the Drainage Connection 

Permit package;

(4) Another governmental entity revokes or suspends a permit which was the basis upon which 

a Department Drainage Connection Permit was obtained;

(5) The As-built Certificate required for the Drainage Connection Permit is not submitted in 

accordance with subsection 14-86.005(3), F.A.C.

(6) Any discharge above the permitted design discharge.

Specific Authority 334.044(2), (15) FS. Law Implemented 334.044(15) FS. History - New 11-

12-86, Amended 1-20-09.

14-86.007 Forms.

Specific Authority 334.044(2) FS. Law Implemented 120.53(1)(b), 120.60, 334.03(17), (22), 

334.035, 334.044(1), (12), (13), (27), 335.04(2), 335.10(2), 339.155(2)(a), (f) FS. History - New 

11-12-86, Repealed 1-20-09.

 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

231

Appendix F : Walk the W B ID G uidelines

Walk the WBIDs is a field reconnaissance effort to gain a better understanding of a watershed, 

including the hydrology of the creek and its branches, where infrastructure (sewer and 

stormwater) is located, and what potential sources are contributing fecal coliform to the 

waterbody. This activity is a useful tool for impaired WBIDs in which the source(s) of the fecal 

coliform loading are not readily apparent. The following provides guidelines, based on past 

efforts, for organizing and conducting a Walk the WBID exercise to gain additional information 

for the tributaries in this BMAP.

INITIAL S TEPS

Before going into the field, the lead entity should hold a data review meeting with other entities. 

Each entity provides available information about the WBID to better acquaint themselves with 

the conditions in the watershed. This information includes GIS data, infrastructure maps, and 

the WBID-specific technical report (available from FDEP). After this review, the lead entity 

conducts a preliminary reconnaissance of the WBID to identify areas of focus and to determine 

appropriate routes for the Walk the WBID effort. 

Once the lead entity has gained a better understanding of the WBID, the Walk the WBID field 

team should be organized. The members of this team are determined based on the conditions 

in the watershed and the likely sources identified in the data review meeting. For instance, if 

failing OSTDS are common in the WBID (based on the number of repaired permits issued), it 

would be beneficial to include DCHD on the team, since it can access private property to inspect 

a septic tank. Depending on the potential sources, not all entities need to participate in the field 

exercise and should only attend the follow-up meeting. However, the lead entity should ensure 

that it has the emergency call-in numbers and appropriate contact information for other entities 

in case an incident is observed while in the field that should be reported. 

The team should meet briefly before the exercise to review any pertinent information that the 

lead entity has gathered and to choose a date and time for the Walk the WBID. Based on past 

efforts, a maximum of two WBIDs can be walked in one day.

WALK THE WB ID FIE LD R E CONNAIS S ANCE 

The Walk the WBID team should have large-format WBID maps while conducting the field 

investigations, including WBID boundary, roads, stormwater infrastructure, sewer infrastructure, 

potential septic tank locations, National Hydrography Dataset (NHD), and jurisdictional 

boundaries when appropriate. A GPS unit, camera, and notepad are essential for obtaining the 

coordinate of a potential source, capturing an image of the potential source, and correlating the 

coordinates with the photo for later follow-up. Sampling equipment should also be included to 

provide additional water quality information about potential sources identified in the field.

The team should try to explore the entire waterbody while in the field, referring to the maps to 

follow the creek above and below ground, where the creek branches or is piped underground. 

The team should look in the banks for exposed pipes and along the vicinity of the creek for 

potential sources. Canals/ditches that intersect the waterbody should also be walked to ensure 

that the waterbody and its associated branches are all included within the WBID boundary.

The team should also investigate any potential sources. This can include identifying sewer 

infrastructure (manholes and pump stations) and inspecting for signs of recent overflows, MS4 

conveyances that need cleaning, failing septic tanks, evidence of wildlife, heavy tree cover or 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

232

vegetated ditches, evidence of homeless populations, and pet and livestock sources. Care 

should be taken to ensure that only appropriate entity representatives access private property, 

unless the property owner has offered access to the entire team.

Any potential sources identified while in the field should be properly reported. The lead entity 

will keep a record of major findings during the Walk the WBID effort, including observations 

about the waterbody, potential sources, followed-up items and the responsible entity, as well as 

any areas that should be added to the monitoring plan.

FOLLOW-UP ACTIVITIE S

After the Walk the WBID field visit, the lead entity will provide a write-up to FDEP summarizing 

the findings, which should include the following components:

1. Identification of the WBID walked;

2. Results of any preliminary investigation or issues identified;

3. List of entities and personnel participating in the field efforts or other operations;

4. Sources and potential sources observed;

5. Immediate follow-up actions taken;

6. Follow-up actions still needed;

7. Sources eliminated or investigated;

8. Monitoring sites identified or proposed; and

9. Any other pertinent information. 

This information will be used in the BMAP annual progress report. In addition, the lead entity

should hold a meeting with the data review team to determine the status of issues identified in 

the field that other entities were responsible for addressing. The resolutions for these follow-up 

activities will be included in the Walk the WBID write-up. 

The Walk the WBID team should also review the monitoring plan for the tributary and determine 

if adjustments need to be made to the sampling locations based on the field observations. 

Updated station locations and monitoring responsibilities will also be reported to FDEP.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

233

Appendix G: Glos s ary of Terms

303(d) List: The list of Florida's waterbodies that do not meet or are not expected to meet 

applicable water quality standards with technology-based controls alone.

305(b) Report: Section 305(b) of the federal Clean Water Act requires states to report 

biennially to the EPA on the quality of the waters in the state.

Allocation Technical Advisory Committee (ATAC): The Watershed Restoration Act of 1999 

required FDEP to form a Technical Advisory Committee to address issues relating to the 

allocation of load reductions among point source and nonpoint source contributors. The ATAC 

was therefore formed in order to develop recommendations for a report to the legislature on the 

process for allocating TMDLs. 

Background: The condition of waters in the absence of human-induced alterations. 

Baffle box: An underground stormwater management device that uses barriers (or baffles) to 

slow the flow of untreated stormwater, allowing particulates to settle out in the box before the 

stormwater is released into the environment. 

Baseline period: A period of time used as a basis for later comparison.

Baseline loading: The quantity of pollutants in a waterbody, used as a basis for later 

comparison.

Basin Management Action Plan (BMAP): The document that describes how a specific TMDL 

will be implemented; the plan describes the specific load and wasteload allocations as well as 

the stakeholder efforts that will be undertaken to achieve an adopted TMDL.

Basin Status Report: For the LSJR Basin, this document was published in June 2002 by 

FDEP. The report documents the water quality issues, list of water segments under 

consideration for a TMDL and data needs in the basin. 

Best Available Technology (BAT) Economically Achievable: As defined by 40 CFR, 

§125.3, outlines technology-based treatment requirements in permits.

Best Management Practices (BMPs): Methods that have been determined to be the most 

effective, practical means of preventing or reducing pollution from nonpoint sources.

City of Jacksonville (COJ): An incorporated city in northeast Florida, some of which lies in the 

St. Johns River Basin. 

Coliforms: Bacteria that live in the intestines (including the colon) of humans and other 

animals, used as a measure of the presence of feces in water or soil.

Clean Water Act (CWA): The Clean Water Act is a 1977 amendment to the Federal Water 

Pollution Control Act of 1972, which set the basic structure for regulating discharges of 

pollutants to waters of the United States.

Continuous deflective separation (CDS) Unit: A patented stormwater management device 

that uses the available energy of the storm flow to create a vortex to cause a separation of 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

234

solids from fluids. Pollutants are captured inside the separation chamber, while the water 

passes out through the separation screen.

Designated use: Uses specified in water quality standards for each waterbody or segment 

(such as drinking water, swimmable, fishable).

Detention Pond: A stormwater system that delays the downstream progress of stormwater 

runoff in a controlled manner, typically by using temporary storage areas and a metered outlet 

device.

Domestic Wastewater: Wastewater derived principally from dwellings, business buildings, 

institutions and the like; sanitary wastewater; sewage.

Dry Season: The dry part of the year when rainfall is low; in the LSJR Basin the dry season is 

defined as November through May.

Effluent: Wastewater that flows into a receiving stream by way of a domestic or industrial 

discharge point.

Environmental Protection Agency (EPA): The agency was created in December 1970 to 

address the nation's urgent environmental problems and to protect the public health. The 

majority of FDEP’s regulatory programs has counterparts at the EPA or is delegated from the 

EPA.

Event mean concentration: The flow-weighted mean concentration of an urban runoff 

pollutant measured during a storm event.

Exfiltration: Loss of water from a drainage system as the result of percolation or absorption 

into the surrounding soil. 

External loading: Pollutants originating from outside a waterbody that contribute to the 

pollutant load of the waterbody. 

Flocculent: A liquid that contains loosely aggregated, suspended particles.

Florida Department of Environmental Protection (FDEP): FDEP is Florida's principal 

environmental and natural resources agency. The Florida Department of Natural Resources and 

the Florida Department of Environmental Regulation were merged together to create FDEP

effective July 1, 1993.

Ground Water or Groundwater: Water below the land surface in the zone of saturation where 

water is at or above atmospheric pressure.

Impairment: The condition of a waterbody that does not achieve water quality standards 

(designated use) due to pollutants or an unknown cause.

Jacksonville Electric Authority (JEA): A large electric and water utility that operates in Duval 

and St. Johns Counties. 

Load Allocations (LA): The portions of a receiving water's loading capacity that are allocated 

to one of its existing or future nonpoint sources of pollution.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

235

Load Capacity: The greatest amount of loading that a waterbody can receive without violating 

water quality standards.

Loading: The total quantity of pollutants in stormwater runoff that contributes to the water 

quality impairment. 

Lower Basin: When used in northeast Florida, commonly refers to the LSJR Basin.

Margin of safety (MOS): An explicit or implicit assumption used in the calculation of a 

TMDL, which takes into account any lack of knowledge concerning the relationship between 

effluent limitations and water quality. An explicit MOS is typically a percentage of the 

assimilative capacity or some other specific amount of pollutant loading (e.g., the loading from 

an out-of-state source). Most FDEP-adopted TMDLs include an implicit MOS based on the fact 

that the predictive model runs incorporate a variety of conservative assumptions (they examine 

worst-case ambient flow conditions, worst-case temperature, and assume that all permitted 

point sources discharge at their maximum permittable amount).

National Pollutant Discharge Elimination System (NPDES): The permitting process by 

which technology based and water quality–based controls are implemented.

Nonpoint Source (NPS): Diffuse runoff without a single point of origin that flows over the 

surface of the ground by stormwater and is then introduced to surface or ground water. NPS 

includes atmospheric deposition and runoff or leaching from agricultural lands, urban areas, 

unvegetated lands, OSTDS, and construction sites.

Nonpoint Source Pollution: Nonpoint source pollution is created by the flushing of pollutants 

from the landscape by rainfall and the resulting stormwater runoff, or by the leaching of 

pollutants through the soils into the ground water. 

Organic Matter: Carbonaceous waste contained in plant or animal matter and originating from 

domestic or industrial sources.

Outfall: The place where a sewer, drain, or stream discharges.

Particulate: A minute separate particle, as of a granular substance or powder. 

Pollutant Load Reduction Goals (PLRGs): PLRGs are defined as the estimated numeric 

reductions in pollutant loadings needed to preserve or restore designated uses of receiving 

waterbodies and maintain water quality consistent with applicable state water quality standards. 

PLRGs are developed by the water management districts.

Point Source: An identifiable and confined discharge point for one or more water pollutants, 

such as a pipe, channel, vessel, or ditch.

Pollutant: Generally any substance, such as a chemical or waste product, introduced into the 

environment that adversely affects the usefulness of a resource.

Pollution: An undesirable change in the physical, chemical, or biological characteristics of air, 

water, soil, or food that can adversely affect the health, survival, or activities of humans or other 

living organisms.
Final Lower St. Johns River Basin Management Action Plan – December 2009 

236

Removal efficiency: A description of how much of a given substance (metals, sediment, etc.) 

has been extracted from another substance. 

Retention Pond: A stormwater management structure whose primary purpose is to 

permanently store a given volume of stormwater runoff, releasing it by infiltration and /or 

evaporation.

Reuse: The deliberate application of reclaimed water for a beneficial purpose. Criteria used to 

classify projects as “reuse” or “effluent disposal” are contained in Subsection 62-610.810, F.A.C.

Runoff curve: A calculated number representing the percentage of rainfall that becomes runoff 

for a given area.

Quality Assurance (QA): An integrated system of management activities involving planning, 

implementation, documentation, assessment, reporting, and quality improvement to ensure that 

a process, product, or service meets defined standards of quality.

Quality Control (QC): The overall system of technical activities that measures the attributes 

and performance of a process, product, or service against defined standards to verify that they 

meet the established data quality objectives.

Septic Tank: A watertight receptacle constructed to promote the separation of solid and liquid 

components of wastewater, to provide the limited digestion of organic matter, to store solids, 

and to allow clarified liquid to discharge for further treatment and disposal in a soil absorption 

system. 

STORET: The EPA's STOrage and RETrieval database, used nationally for water quality data 

storage. 

Stormwater: Water that results from a rainfall event.

Stormwater runoff: The portion of rainfall that hits the ground and is not evaporated, 

percolated, or transpired into vegetation, but rather flows over the ground surface seeking a 

receiving water body.

Submersed: Growing or remaining under water.

Surface Water: Water on the surface of the earth, whether contained in bounds created 

naturally or artificially or diffused. Water from natural springs is classified as surface water 

when it exits the spring onto the earth’s surface.

Surface Water Improvement and Management (SWIM) Waterbody: A waterbody designated 

by statute or by a water management district for priority management to restore and maintain 

water quality, habitat, and other natural features of the waterbody. The LSJR Basin has this 

special designation. 

Total Maximum Daily Load (TMDL): The sum of the individual wasteload allocations for point 

sources and the load allocations for nonpoint sources and natural background. Prior to 

determining individual wasteload allocations and load allocations, the maximum amount of a 

pollutant that a waterbody or waterbody segment can assimilate from all sources while still 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

237

maintaining its designated use must first be calculated. TMDLs are based on the relationship 

between pollutants and instream water quality conditions.

Wasteload Allocations (WLAs): Pollutant loads allotted to existing and future point sources, 

such as discharges from industry and sewage facilities. 

Wastewater: The combination of liquid and pollutants from residences, commercial buildings, 

industrial plants, and institutions, together with any ground water, surface runoff, or leachate 

that may be present.

Waterbody Identification (WBID) Numbers: WBIDs are numbers assigned to hydrologically 

based drainage areas in a river basin.

Water column: The water within a waterbody between the surface and sediments. 

Water Quality Index: Determines the quality of Florida's streams, blackwaters, and springs. 

Categories include water clarity, dissolved oxygen, oxygen-demanding substances, nutrients, 

bacteria, and macroinvertebrate diversity.

Water Quality Standards (WQSs): (1) Standards that comprise the designated most beneficial 

uses (classification of water), the numeric and narrative criteria applied to the specific water use 

or classification, the Florida Anti-degradation Policy, and the moderating provisions contained in 

Rules 62-302 and 62-4, F.A.C. (2) State-adopted and EPA-approved ambient standards for 

waterbodies. The standards prescribe the use of the waterbody (such as drinking, fishing and 

swimming, and shellfish harvesting) and establish the water quality criteria that must be met to 

protect designated uses.

Watershed: Topographic area that contributes or may contribute runoff to specific surface 

waters or an area of recharge.

Watershed management approach: The process of addressing water quality concerns within 

their natural boundaries, rather than political or regulatory boundaries. The process draws 

together all the participants and stakeholders in each basin to decide what problems affect the 

water quality in the basin, which are most important, and how they will be addressed. 

Wet Season: The rainy part of the year; in the LSJR Basin the wet season is defined as June 

through October. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

238

Appendix H: B ibliography of K ey R eferenc es and Webs ites

K EY R E FE R E NCE S : 

Amick, R., and E. Burgess. March 2003. Exfiltration in sewer systems. Cincinnati, OH: U.S. 

Environmental Protection Agency, National Risk Management Research Laboratory. 

EPA/600/SR-01/034. Available: 

http://www.epa.gov/nrmrl/pubs/600r01034/600sr01034.pdf. 

Anderson, K.L., J.E. Whitlock, and V.J. Harwood. 2005. Persistence and differential survival of 

fecal indicator bacteria in subtropical waters and sediments. Applied and Environmental 

Microbiology 71:3041-3048.

Bergman, M.J. 1992. Lower St. Johns River Basin reconnaissance: Surface water hydrology. 

Vol. 2. St. Johns River Water Management District. Technical Publication SJ 92–1.

Brown and Caldwell. September 2005. Status report on the development of a reporting 

methodology for surface discharges of sewage. Irvine, CA. Prepared for the Orange 

County Sanitation District.

Brownell, M.J., V.J. Harwood, R.C. Kurz, S.M. McQuaig, J. Lukasik, and T.M. Scott. 2007. 

Confirmation of putative stormwater impact on water quality at a Florida beach by 

microbial source tracking methods and structure of indicator organism populations. 

Water Research 41:3747-3757.

CDM. 2006. Quality Assurance Project Plan, Stormwater monitoring program for Upper Deer 

Creek Wet Detention Pond, Jacksonville, FL.

Davies, C.M., J.A. Long, M. Donald, and N.J. Ashbolt. 1995. Survival of fecal microorganisms in 

marine and freshwater sediments. Applied and Environmental Microbiology 61:1888-

1896.

Eleria, A., and R.M. Vogel. 2005. Predicting fecal coliform bacteria levels in the Charles River,

Massachusetts, USA. Journal of the American Water Resources Association 1769 

41:1195-1209, 

FDEP. 2002. Basin status report: Lower St. Johns. Tallahassee, FL: Bureau of Watershed 

Management. 

FDEP and SJRWMD. 2001. Development of Total Maximum Daily Loads and Pollutant Load 

Reduction Goals for the Lower St. Johns River Basin: Plan of Study. Palatka, FL. 

Mallin, M.A., L.B. Cahoon, B.R. Toothman, D.C. Parsons, M.R. McIver, M.L. Ortwine, and R.N. 

Harrington. 2007. Impacts of a raw sewage spill on water and sediment quality in an 

urbanized estuary. Marine Pollution Bulletin 54:81-88.

McDowell, W., C. Brick, M.Clifford, M. Frode-Hutchins, J. Harvala, and K. Knudsen. 2005. 

Septic system impact on surface waters: A review for the inland Northwest. Tri-State 

Water Quality Council.

National Environmental Service Center. 2006. Community onsite options: Wastewater 

management in the new millennium and approaches to onsite management. Community 

perspectives. Morgantown, WV: West Virginia University.

Nicosia, L., J.B. Rose, L. Stark, and M. Stewart. 2001. Ground water quality. Journal 

Environmental Quality 30:1933-1939.

PBS&J. November 2007. Newcastle Creek technical report (WBID 2235). Prepared for the 

Florida Department of Environmental Protection, Tallahassee, FL. 

PBS&J. March 2008. Hogan Creek technical report (WBID 2252). Prepared for the Florida 

Department of Environmental Protection, Tallahassee, FL. 

PBS&J. April 2008. Butcher Pen Creek technical report (WBID 2322). Prepared for the Florida 

Department of Environmental Protection, Tallahassee, FL. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

239

PBS&J. May 2008. Miller Creek technical report (WBID 2287). Prepared for the Florida 

Department of Environmental Protection, Tallassee, FL. 

PBS&J. June 2008a. Miramar Creek technical report (WBID 2304). Prepared for the Florida 

Department of Environmental Protection, Tallassee, FL. 

PBS&J. June 2008b. Big Fishweir Creek technical report (WBID 2280). Prepared for the 

Florida Department of Environmental Protection, Tallassee, FL. 

PBS&J. July 2008. Deer Creek technical report (WBID 2256). Prepared for the Florida 

Department of Environmental Protection, Tallassee, FL. 

PBS&J. August 2008a. Terrapin Creek technical report (WBID 2204). Prepared for the Florida 

Department of Environmental Protection, Tallassee, FL. 

PBS&J. August 2008b. Goodbys Creek technical report (WBID 2326). Prepared for the Florida 

Department of Environmental Protection, Tallassee, FL. 

PBS&J. September 2008. Open Creek technical report (WBID 2299). Prepared for the Florida 

Department of Environmental Protection, Tallassee, FL. 

Tyler, D. 2006. Draft fecal and total coliform TMDL for Wagner Creek (WBID 3288A). 

Tallassee, FL: Florida Department of Environmental Protection, Division of Water 

Resource Management, Bureau of Watershed Management.

U.S. Soil Conservation Service. 1986. Urban hydrology for small watersheds. Report No. 

Technical Release 55, U.S. Department of Agriculture. 
Final Lower St. Johns River Basin Management Action Plan – December 2009 

240

S TOR MWATE R AND WATER QUALITY P R OTE CTION WE B S ITE S : 

TABLE H-1: S TOR MWATE R AND WATER QUALITY P R OTE CTION WE B S ITE S

ENTITY/PROGRAM URL

L oc al and R egional S ites

SJRWMD WAV Program http://www.sjrwmd.com/education/wav/index.html

JEA

JEA FOG Program Workshop 

http://www.jea.com/

http://www.jea.com/about/pub/downloads/fog/FOGTrainingSlideShow.pdf

COJ http://www.coj.net/Departments/Environmental+and+Compliance/Environme

ntal+Quality/Water+Quality.htm

LSJR Technical Advisory Committee http://www.lsjr.org/ 

S tate S ites

General Portal for Florida http://www.myflorida.com

FDEP

Watershed Management 

TMDL Program

BMPs, public information

NPDES Stormwater Program

NPS funding assistance

Surface Water Quality Standards

LSJR Basin Water Quality Assessment Report

http://www.dep.state.fl.us/

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

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

http://www.dep.state.fl.us/water/nonpoint/pubs.htm

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

http://www.dep.state.fl.us/water/nonpoint/319h.htm

http://www.dep.state.fl.us/legal/Rules/shared/62-302/62-302.pdf 

http://www.dep.state.fl.us/water/basin411/sj_lower/assessment.htm

FDOH

Standards for OSTDS

http://www.doh.state.fl.us 

http://www.doh.state.fl.us/environment/ostds/pdfiles/forms/64e620070924.pdf

National S ites

Center for Watershed Protection http://www.cwp.org/

EPA Office of Water

EPA Region 4 (southeast United States) 

EPA SSO Fact Sheet

http://www.epa.gov/water

http://www.epa.gov/region4

http://www.epa.gov/npdes/sso/control/