EXHIBIT 1 BASIN MANAGEMENT ACTION PLAN For the Implementation of Total Maximum Daily Loads for Nutrients Adopted by the Florida Department of Environmental Protection for the Lower St. Johns River Basin Main Stem Developed by the Lower St. Johns River TMDL Executive Committee In Cooperation with the Florida Department of Environmental Protection Division of Environmental Assessment and Restoration Bureau of Watershed Restoration Bureau of Assessment and Restoration Support October 2008 ACKNOWLEDGMENTS: The Lower St. Johns River 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 TMDL Executive Committee, identified below, with participation from affected local, regional, and state governmental interests; elected officials and citizens; and private interests. TMDL EXECUTIVE COMMITTEE MEMBERS Organization/ Executive Committee Interest Group Representative Florida Dept. of Environmental Protection-Northeast District Office Greg Strong (Chair) Builders/Developers Neil Aikenhead Local Governments/Clay County Utility Authority Ray Avery U.S. Army Corps of Engineers Mike Fulford Forestry/Shadow Lawn Farms Jim Kuhn Agriculture/Florida Dept. of Agriculture and Consumer Services Jody Lee Environmental Interests/Stewards of the St Johns Don Loop St Johns River Water Management District Kirby Green Municipal Stormwater-Public Works/City of Jacksonville Ed Hall Utility Authorities/ JEA Athena Mann Environmental Interests/University of North Florida Env. Center Courtney Hackney Military/U.S. Navy Mary Oxendine Local Government Utilities/St. Johns County Utilities Neal Shinkre Agriculture/North Florida Growers Exchange Wayne Smith Regional Planning Councils/Northeast Florida Regional Council Brian Teeple Local Governments/MS4 Permittees Harold Rutledge Industry/Atlantic Marine Holding Company Herschel Vinyard Ex Officio Members East Central Florida Regional Planning Council Phil Laurien Florida Dept. of Environmental Protection-Central District Vivian Garfein OTHER PARTICIPANTS Past Executive Committee Members: Ernie Frey, Mario Taylor, Comm. Glen Lassiter, Richard Bonner, Bill Bartnick, Susan Hughes, Stephen Nix, Roger Bass, Diane Shider, Mike Burch, Jeff Jones, Sandra Glenn, and Comm. Rob Bradley. Current Official Alternates: Bill Green, David Bolam, Michael Hollingsworth, Doris Marlin, Bill Bartnick, Casey Fitzgerald, Kraig McLane, Lynn Westbrook, Vince Seibold, Ebenezer Gujjarlapudi, Paul Steinbrecher, Ray Bowman, Jay Caddy, Mickhael Sulayman, Phil Leary, Michele Rundlett, Roger Chubin, Debbie Warren, Ken Wilkey, Kimberly Loewen, and Christianne Ferraro. Key Staff: FDEP Northeast District: Melissa Long, Khalid Al-Nahdy, Jeff Martin, Joe Emery, Jim Maher, and Jodi Conway. FDEP-Tallahassee: Daryll Joyner, Wayne Magley, Fred Calder, Gail Sloane, Amy Tracy and Latrincy Whitehurst. St. Johns River Water Management District: John Hendrickson, Peter Sucsy, Kraig McLane, Ed Lowe, Dean Campbell, Pam Livingston-Way, and Courtney Hart. FDACS: Terry Pride. Wildwood Consulting, Inc.: Tiffany Busby and Marcy Policastro. i For additional information on Total Maximum Daily Loads and the watershed management approach in the Lower St. Johns River Basin, contact: Amy Tracy Florida Department of Environmental Protection Bureau of Watershed Restoration, Watershed Planning and Coordination Section 2600 Blair Stone Road, Stop 3565 Tallahassee, FL 32399-2400 Email: [email protected] Phone: (850) 245-8506 ii TABLE OF CONTENTS EXECUTIVE SUMMARY ....................................................................................................... IX CHAPTER 1 : CONTEXT, PURPOSE, AND SCOPE 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 Basin Management Action Plan .............................. 2 1.3.1 Stakeholder Involvement ............................................................................. 2 1.3.2 Plan Purpose ............................................................................................... 3 1.3.3 Geographic Scope ....................................................................................... 3 1.3.4 Plan Scope .................................................................................................. 6 1.3.5 TMDLs within the Lower St. Johns River Basin ........................................... 6 1.3.6 Pollutant Reduction and Discharge Allocations ........................................... 8 1.4 Assumptions and Considerations Regarding TMDL Implementation ................. 8 1.4.1 Assumptions ................................................................................................ 9 1.4.2 Considerations ........................................................................................... 10 CHAPTER 2 : LOWER ST. JOHNS RIVER BASIN SETTING ................................................... 13 2.1 Basin Hydrology and Water Management ........................................................ 13 2.1.1 Hydrology .................................................................................................. 13 2.1.2 Water Management ................................................................................... 13 2.2 Land Use Coverage ......................................................................................... 16 2.3 Statement of Water Quality Problem ................................................................ 19 2.3.1 Verified Nutrient Impairment of the LSJR .................................................. 19 2.3.2 Other Indications of Nutrient Impairment ................................................... 20 2.4 Water Quality Trends ....................................................................................... 20 CHAPTER 3 : POLLUTANT SOURCES AND DETAILED ALLOCATIONS .................................... 22 3.1 Pollutant Sources ............................................................................................. 22 3.1.1 Freshwater Reach ..................................................................................... 22 3.1.2 Marine Reach ............................................................................................ 25 3.1.3 Total Nitrogen and Total Phosphorus Sources .......................................... 28 3.1.4 Determination of Nitrogen and Phosphorus Loads for Urban Stormwater . 31 3.2 Detailed Allocations .......................................................................................... 32 3.2.1 Detailed Allocations for Point Sources ....................................................... 32 3.2.2 Detailed Allocations for Nonpoint Sources ................................................. 35 3.3 Allocations for New and Expanding APRICOT and RO Facilities ..................... 36 3.4 Existing Facilities without an Allocation ............................................................ 37 3.4.1 De Minimus Facilities ................................................................................. 37 3.4.2 Plants Above Head of Tide ........................................................................ 38 3.5 Seminole Electric Atmospheric Deposition Reductions .................................... 39 3.5.1 Description of Atmospheric Sources of Nitrogen ....................................... 39 3.5.2 Seminole Electric’s Planned Reductions to Atmospheric Deposition ......... 39 3.5.3 Reductions Applied to Seminole Electric and Urban Stormwater Sources 39 3.5.4 Consideration of Other Atmospheric Deposition Reductions ..................... 40 CHAPTER 4 : POLLUTANT REDUCTION FRAMEWORK AND ANTICIPATED OUTCOMES ............ 41 4.1 Permitting Links to TMDL Implementation ....................................................... 41 4.1.1 Point Source Permitting ............................................................................. 41 4.1.2 The NPDES Stormwater Program ............................................................. 42 iii 4.1.3 St. Johns River Water Management District .............................................. 43 4.2 Other Programs that Contribute Toward Achievement of TMDLs .................... 43 4.2.1 St. Johns River Water Management District SWIM Program ..................... 43 4.2.2 SJRWMD Watershed Action Volunteers.................................................... 44 4.2.3 SJRWMD Algal Initiative ............................................................................ 44 4.3 Water Quality Credit Trading Framework for the LSJR Basin .......................... 44 4.4 Anticipated Resource Responses from BMAP Implementation ........................ 45 CHAPTER 5 : POINT SOURCE TMDL IMPLEMENTATION .................................................... 46 5.1 Wastewater Permitting ..................................................................................... 46 5.1.1 Aggregate Permits ..................................................................................... 46 5.1.2 Projects to Meet TMDL Allocations ............................................................ 47 5.2 MS4 Permitting ................................................................................................. 47 5.2.1 NPDES MS4 Phase I Stormwater Permit Requirements ........................... 47 5.2.2 NPDES MS4 Phase II Stormwater