LTC 314-2020 Update on Biscayne Bay and the Miami-Dade County's Biscayne Bay Task Force Recommendations UpdateMIA4/BE A CH
City of M ia m i Be a ch , 1700 Convention Center Driv e, Miami Beoch, florid 33139, www.miamibeachfl.gov
Jimmy l. Morales, City Manager
Tel: 305.673.7010 FA 305472.77 9
314-2020 NO. LTC# LETTER TO C O M M ISSIO N
TO : Mayor Dan Gelber and Members oft e City C
FROM: Jimmy L. Morales, City Manager
DATE September 14, 2020
SUBJECT: Update on Biscayne Bay and t Miami-Dade County's Biscayne Bay Task Force
Recommendations Update
The purpose of this Letter to Commission is to provide an update on the health of Biscayne Bay and the
Miami-Dade County's Biscayne Bay Task Force's Report and Recommendations: A Unified Approach to
Recovery for a Healthy & Resilient Biscayne Bay (Attachment A). At the beginning of August, an
unprecedented fish kill was reported in the northern basin of Biscayne Bay, concentrated by the Biscayne
Canal and the Little River. Over the course of a week, thousands of fish died from lack of oxygen.
Following this event, a devastating algae bloom flourished throughout the Bay and surrounding
waterways. Throughout both events, Miami Beach was coordinating with Biscayne Bay Aquatic Preserve,
Miami-Dade Division of Environmental Resources Management (DERM), Miami Waterkeeper, National
Oceanic and Atmospheric Administration, University of Miami, and Florida International University to
understand the environmental factors at play. In addition, staff was collecting samples and monitoring
the dissolved oxygen levels and the city's waterway contractor was assisting with removing dead fish that
had floated into Miami Beach waters.
HISTORY & BACKGROUND
The declining health of Biscayne Bay is not a new issue, it has been building from decades of in action
On August 31, 2020, The Miami Herald published 'Like Groundhog day': New report has same old
findings on how to save Biscayne Bay (Attachment B). High nutrients are one of the major issues
impacting the Biscayne Bay's health. Nutrients enter the Bay from sources such as aging sewer
infrastructure, leaking septic systems, fertilizers, and decaying organic matter.
In 2019, the Report on the Health of Biscayne Bay was issued by the Fall Term Miami-Dade County
Grand Jury convened by State Attorney Katherine Fernandez Rundle. The report highlighted that the
challenges facing Biscayne Bay require a regional approach to tackle the many factors that contribute to
the water quality issues. Attached is L TC #446-2019 that includes a full overview and link to the report
(Attachment C).
BISCAYNE BAY TASK FORCE
In 2019, Miami-Dade County Board of County Commissioners created the Biscayne Bay Task Force
(BBTF) to study the causes of the degradation of the bay and develop recommendations on how to
address these issues. On August 31, 2020, the Board of County Commissioners passed a resolution
directing the County Mayor provide an implementation plan for immediate action, including feasibility,
cost, and potential fund sources. The report focuses on three main areas: water quality, leadership, and
education. It will take collaboration and long-term commitment from Municipal, County, State and Federal
agencies as well as community organizations to restore the health of the Bay.
T h e B B T F re c o m m e n d a tio n s a r e b r o k e n in to s e v e n c a te g o r ie s fo r C o u n ty a c tio n . S ta ff h a s c o m p le te d a n
in it ia l re v ie w o f th e 6 2 re c o m m e n d a t io n s a n d h a s id e n tifi e d 4 2 o f th a t a r e a p p lic a b le to M ia m i B e a c h .
S t a ff is in th e p ro c e s s o f c o m p le t in g fu rt h e r a n a ly s is a s to p ro v id e g u id a n c e a n d a c tio n p la n th a t w ill b e
p r o v id e d to C o m m is s io n in O c to b e r . It is im p o rt a n t to n o te th a t th e re c o m m e n d a tio n s w ill ta k e fu n d in g
a n d lo n g -t e r m c o m m it m e n t fo r c h a n g e to b e re a liz e d .
N u m b e r o f N u m b e r o f
R e c o m m e n d a t io n R e c o m m e n d a tio n s
Im p le m e n ta b le in
M ia m i B e a c h
W a te r Q u a lit y 13 7
Governance 6 4
Infrastructure 11 3
Natural 9 6
Infrastructure
Marine Debris 7 7
Education & 9 9
Outreach
Funding 7 6
TOTAL 62 41
MIAMI BEACH WATER QUALITY PROTECTION PROGRAM
The City's 2019 Strategic Plan Through the Lens of Resilience outlines water quality protection as the
top objective in the Environment & Infrastructure area. The City reduces potential pollution through a
combination of education and outreach, good housekeeping, as well as the use of cutting-edge
technology and industry-vetted operational practices.
As part of the 1972 Clean Water Act, the National Pollution Discharge Elimination System (NPDES)
permit program was created to regulate pollution from point discharges into U.S. waters. Miami Beach is
one of 32 municipal NPDES co-permittees with Miami-Dade County to own and operate the municipal
separate storm sewer system. As part of the NPDES program, the City completes an annual report that
outlines the City's activities related to stormwater management. As part of this report, the City provides
an Annual Water Quality Report (Attachment D). Nutrient pollutants are the main pollutant of concern in
Miami Beach, and policies and programs should continue to be refined to address these inputs.
However, it should be noted that nutrient loads from Miami Beach are considerably lower than inflows
from the mainland. In 2020, the City retained Ardurra, an interdisciplinary engineering firm, to complete
Biscayne Bay Nutrient Loading Estimates to better understand the extent of the City's loading
contributions to the Bay (Attachment E). The report outlines that Miami Beach's drainage area represents
1.8% of the total contributing area to the north Bay and contributes 0.9% of all in flows. Of these inflows
it is estimated that runoff from the City contributes 2.4% of phosphorus loads and 0.5% of nitrogen loads.
These numbers were approximated using a conservative method. It is expected that the real loading from
the City is lower than represented in the report.
The report demonstrates that the City's impact on the nutrient loading to the Bay is minor. Unfortunately
the overall impact of the region's nutrient loading to the Bay creates a significant problem. In recent
studies, the County has identified septic tanks to be one of the major contributors of nutrients to the Bay.
Without the conversion of the myriad properties relying on septic tanks to a centralized sewer system,
there would be an unnecessary, significant, and continuous nutrient loading to the Bay from our local
region. The City of Miami Beach is proud to say that the entire City is operated on a centralized sewer
system and does not have any septic tanks within City limits.
T h e C ity 's s to r m w a te r m a n a g e m e n t p r o g ra m fo c u s e s h e a v il y o n p re v e n tin g p o llu tio n a t its s o u r c e . It is
e a s ie r a n d le s s e x p e n s iv e fo r e a c h p e rs o n to d o th e ir p a rt b y p ic k in g u p a ft e r th e ir p e ts , to s s in g tra s h in to
d e s ig n a te d b in s , a n d p ro p e r ly a p p ly in g la n d s c a p e m a in te n a n c e c h e m ic a ls th a n to c a p tu re a n d re m o v e
p o ll u ta n ts in la r g e r c o n c e n tra tio n s fr o m w ith in th e s to r m w a te r s y s te m . N e v e rt h e le s s , th e ci ty p la y s a n
im p o rt a n t ro le in p ro te c tin g w a te r q u a lity a n d h a s a w e ll-ro u n d e d s tra te g y to re m o v e p o llu ta n ts o u ts id e
a n d in s id e th e s to r m w a te r s y s te m b e fo r e th e y re a c h B is c a y n e B a y .
O v e r th e la s t fi v e y e a rs th e C ity h a s m a d e g r e a t p r o g r e s s to im p ro v e w a te r q u a lity , in c lu d in g :
• In s ci e n c e , s u c h a s th e v o lu n ta ry la u n c h o f a m u n ic ip a l w a te r q u a lity s a m p lin g p ro g ra m w ith o v e r 6 0
s ta tio n s ;
• In in f ra s tr u c tu r e d e s ig n , s u c h a s th e m o d ifi c a ti o n o f p u m p e d o u tf a ll d e s ig n s to in c lu d e d is s ip a te r
b o x e s th a t re d u c e d is c h a r g e v e lo c itie s fro m th o s e a p p ro v e d in th e ci ty 's fir s t n e w g e n e ra tio n p u m p
s ta tio n s ;
• In u r b a n d e s ig n , s u c h a s d e s ig n in g n e w p a r k s a n d g re e n s p a c e s to in c o rp o r a te b lu e a n d g r e e n
in fr a s tr u c tu r e lik e th e B a y s h o re G o lf C o u r s e ;
• In in fr a s tr u c tu re u p g r a d e s , s u c h a s c re a tin g a p la n a n d b e g in n in g a $1 3 3 mi llion s a n ita ry s e w e r
u p g r a d e p r o g r a m ;
• In o p e r a tio n s , s u c h a s in c r e a s in g s to rm w a te r s y s te m m a in te n a n c e fr o m o n c e e v e ry th re e y e a r s to
o n c e e v e ry y e a r ;
• In p o lic y , s u c h a s th e c ity w id e b a n s o n p o ly s ty re n e a n d p la s tic s tra w s a n d th e M B P la s tic F re e
p ro g r a m ; a n d ,
• In c o m p lia n c e , s u c h a s th e c re a tio n o f th e ci ty 's e n v iro n m e n ta l in s p e c tio n p ro g r a m s to re d u c e s a n ita ry
s e w e r o v e rf lo w s a n d c o n s tr u c tio n ru n -o ff.
O n e o f o u r m o s t re c e n t a c h ie v e m e n ts in c lu d e s fin a liz in g a n d a d o p tin g th e J a c o b s E n g in e e r in g B lu e -
G r e e n In fr a s tr u c tu r e P la n . K n o w in g th a t n u trie n t lo a d s w e re th e p rim a ry c o n c e rn re la tin g to th e h e a lth o f
th e B a y , th e C ity p ro c u r e d th e e x p e rt is e o f J a c o b s E n g in e e rin g to id e n tify c o m p lim e n ta ry s tra te g ie s to
s e q u e s te r n u t r ie n ts p r io r to s to r m w a te r ru n o ff e n te r in g th e C ity 's s to rm w a te r s y s te m . T h e s e s tra te g ie s
w e re c o m p ile d a s p a rt o f th e a d o p te d re p o rt .
L a s tly , o u r te a m c o n tin u e s to w o r k o n in n o v a tiv e a p p r o a c h e s to o p tim iz e o u r o w n s to rm w a te r s y s te m s
fr o m a w a te r q u a lity p e rs p e c tiv e . M o s t re c e n tly th e C ity h a s p a rt n e re d w it h re g u la to r s to id e n tify w a y s to
im p ro v e e x is tin g in fr a s tr u c tu r e . A lth o u g h th e p ro je c ts a re s till in th e d e v e lo p m e n t s ta g e s , th e C ity is
w o r k in g to re tro fit e x is tin g p u m p s ta tio n s w ith w a te r q u a lity w e ll s to c o m p le m e n t e x is tin g tre a tm e n t
te c h n o lo g ie s . A d d itio n a lly , th e C ity is w o r k in g w ith D E R M to id e n tify a n y p o s s ib le s c o u r is s u e s a n d
re m e d y th e s e is s u e s w ith th e u s e o f s c o u r p a d s o r o th e r c o a s ta l in fr a s tru c tu re a lte rn a tiv e s .
In M ia m i B e a c h w e c o n tin u e to m o d if y o u r p ro g ra m b a s e d o n th e b e s t-a v a ila b le s c ie n c e , te c h n o lo g y a n d
s tra te g ie s a v a ila b le fo r s tor m w a te r m a n a g e m e n t. U tiliz in g th e re c o m m e n d a tio n s o f th e B is c a y n e B a y
T a s k F o r c e , s ta ff w ill c o n tin u e to c o o rd in a te w ith M ia m i-D a d e C o u n ty a n d o th e r lo c a l s ta k e h o ld e rs in
re fi n in g o u r w a te r q u a lity p ro g r a m . T h e A d m in is tra tio n is c o m m itte d to o u r e ff o rt s in p ro te c tin g B is c a y n e
B a y .
S h o u ld y o u h a v e a n y q u e s tio n s , p le a s e c o n ta c t E liz a b e th W h e a to n , En vi ron m en t &S u st ai nab i lity
Di r e ct o r, a t ext 26121.
Attachments:
A: Biscayne Bay Task Force Recommendations
B: https://www_miamiherald_com/article245306740.html
C: Grand Jury Report
D: City of Miami Beach Water Quality Report 2019
E: Biscayne Bay Preliminary Nutrient Loadings Estimates prepared by Ardurra
MEMORANDUM
Agenda Item No. 14(A)(9)
TO: Honorable Chairwoman Audrey M. Edmonson DATE: August 31, 2020
and Members, Board of County Commissioners
FROM: Abigail Price-Williams SUBJECT: Resolution directing the County
County Attorney Mayor to review the report and
recommendations of the
Biscayne Bay Task Force and
provide an implementation plan
for immediate action, including
feasibility, cost, and potential
funding sources; requiring a
presentation to this Board and a
written report on an expedited
basis
The accompanying resolution was prepared and placed on the agenda at the request of Prime Sponsor
Vice Chairwoman Rebeca Sosa.
_______________________________
Abigail Price-Williams
County Attorney
APW/uw
1
A
u
g
u
s
t
3
1
,
2
0
2
0
2
1
4
(
A
)
(
9
)
Approved Mayor Agenda Item No. 14(A)(9)
8-31-20 Veto __________
Override __________
RESOLUTION NO. ________________________
RESOLUTION DIRECTING THE COUNTY MAYOR OR
COUNTY MAYOR’S DESIGNEE TO REVIEW THE REPORT
AND RECOMMENDATIONS OF THE BISCAYNE BAY TASK
FORCE AND PROVIDE AN IMPLEMENTATION PLAN FOR
IMMEDIATE ACTION, INCLUDING FEASIBILITY, COST,
AND POTENTIAL FUNDING SOURCES; REQUIRING A
PRESENTATION TO THIS BOARD AND A WRITTEN
REPORT ON AN EXPEDITED BASIS
WHEREAS, the health and well-being of Biscayne Bay are inextricably linked to the
economic and environmental well-being of Miami-Dade County; and
WHEREAS, Biscayne Bay provides Miami-Dade County residents and visitors with
ecological and environmental benefits, beauty, and serenity; and
WHEREAS, part of Biscayne Bay lies within Biscayne National Park, and this renowned
national park provides recreational opportunities as well as significant environmental value; and
WHEREAS, in addition, Biscayne Bay supports industries such as tourism, commercial
and recreational fishing, and other water-based recreational activities; and
WHEREAS, in 2019, this Board adopted Resolution No. R-165-19, creating the Biscayne
Bay Task Force to address issues that affect the health and well-being of Biscayne Bay; and
WHEREAS, the Biscayne Bay Task Force’s purpose was to develop recommendations
and an action plan identifying problem areas and prioritizing projects for Biscayne Bay, and to
present them in a report to this Board; and
WHEREAS, the Biscayne Bay Task Force has now produced its report, which contains
numerous recommendations for this Board, a copy of which is attached and incorporated by
reference; and
3
Agenda Item No. 14(A)(9)
Page No. 2
WHEREAS, the Biscayne Bay Task Force’s recommendations have come out at a time of
crisis for Biscayne Bay; and
WHEREAS, as reported in the local news, there have recently been large fish kills in
Biscayne Bay, and it is believed that the health of Biscayne Bay may be at a critical tipping point;
and
WHEREAS, urgent action by the County is needed to maintain, restore, and protect
Biscayne Bay, for the benefit of our community and for future generations; and
WHEREAS, as such, this Board wishes to direct the County Mayor or County Mayor’s
designee to review the Biscayne Bay Task Force’s report and recommendations and to provide
this Board, on an expedited basis, with an implementation plan for immediate action, including
feasibility, cost, and potential funding sources,
NOW, THEREFORE, BE IT RESOLVED BY THE BOARD OF COUNTY
COMMISSIONERS OF MIAMI-DADE COUNTY, FLORIDA, that this Board:
Section 1. Directs the County Mayor or County Mayor’s designee to review the
Biscayne Bay Task Force’s report and recommendations and to provide this Board, on an
expedited basis, with an implementation plan for immediate action, including feasibility, cost, and
potential funding sources.
Section 2. Directs the County Mayor or County Mayor’s designee to make a
presentation to this Board at the October 6, 2020 meeting, with respect to the County Mayor’s
implementation plan for immediate action pursuant to section 1 above.
Section 3. Directs the County Mayor or County Mayor’s designee to prepare a written
report with the County Mayor’s implementation plan for immediate action pursuant to section 1
above, and to place the report on an agenda of this Board as required by Ordinance No. 14-65
within 30 days of the effective date of this resolution.
4
Agenda Item No. 14(A)(9)
Page No. 3
The Prime Sponsor of the foregoing resolution is Vice Chairwoman Rebeca Sosa. It was
offered by Commissioner , who moved its adoption. The motion
was seconded by Commissioner and upon being put to a vote, the vote
was as follows:
Audrey M. Edmonson, Chairwoman
Rebeca Sosa, Vice Chairwoman
Esteban L. Bovo, Jr. Daniella Levine Cava
Jose “Pepe” Diaz Sally A. Heyman
Eileen Higgins Barbara J. Jordan
Joe A. Martinez Jean Monestime
Dennis C. Moss Sen. Javier D. Souto
Xavier L. Suarez
The Chairperson thereupon declared this resolution duly passed and adopted this 31st day
of August, 2020. This resolution shall become effective upon the earlier of (1) 10 days after the
date of its adoption unless vetoed by the County Mayor, and if vetoed, shall become effective only
upon an override by this Board, or (2) approval by the County Mayor of this resolution and the
filing of this approval with the Clerk of the Board.
MIAMI-DADE COUNTY, FLORIDA
BY ITS BOARD OF
COUNTY COMMISSIONERS
HARVEY RUVIN, CLERK
By:________________________
Deputy Clerk
Approved by County Attorney as
to form and legal sufficiency. _______
Abbie Schwaderer Raurell
5
A Unified Approach to Recovery
for a Healthy & Resilient Biscayne Bay
Biscayne Bay Task Force Report and Recommendations
June 2020
Biscayne Bay Task Force Members
Irela Bagué, Task Force Chairperson, President, Bagué Group
David Martin, Task Force Vice Chairperson, President, Terra Group
Lynette Cardoch, Ph.D., Director of Resilience & Adaptation, Moffatt & Nichol
Lee Hefty, Director, Division of Environmental Resources Management, Miami-Dade County
James Murley, Chief Resilience Officer, Office of Resilience, Miami-Dade County
John Pistorino, P.E., Principal, Pistorino and Alam
Alyce Robertson, former Director, Downtown Development Authority
Steve Sauls, Biscayne Bay Marine Health Summit Steering Committee Member
Tiffany Troxler, Ph.D., Director of Science, Sea Level Solutions Center, Florida International University
Exhibit "A"
6
1
Table of Contents
Acknowledgements ....................................................................................................................................... 1
Biscayne Bay Task Force Mission and Activities ........................................................................................... 2
Letter from the Chair .................................................................................................................................... 3
State of the Bay ............................................................................................................................................. 4
Recommendations ........................................................................................................................................ 7
Overarching Recommendation ................................................................................................................. 7
1. Water Quality .................................................................................................................................... 9
2. Governance .................................................................................................................................... 14
3. Infrastructure.................................................................................................................................. 17
4. Watershed Habitat Restoration and Natural Infrastructure and Natural Infrastructure ............... 22
5. Marine Debris ................................................................................................................................ 24
6. Education and Outreach ................................................................................................................. 26
7. Funding ........................................................................................................................................... 28
The Future of the Bay ................................................................................................................................. 30
Appendices .................................................................................................................................................. 32
Biscayne Bay Recovery At-a-Glance ............................................................................................................ 39
Acknowledgements
The Biscayne Bay Task Force wishes to thank local, state, and federal agencies, academic
institutions and community-based organizations, industry professionals, and members of the
public who attended and shared their knowledge, support, and recommendations. The Task
Force also appreciates the expertise and support provided by the staff of the Miami-Dade County
Department of Regulatory and Economic Resources. Thanks to the Florida Department of
Environmental Protection Biscayne Bay Aquatic Preserves for select photographs.
7
2
Biscayne Bay Task Force Mission and
Activities
On February 5, 2019, the Miami-Dade Board of County
Commissioners (BCC) adopted Resolution No. R-165-19
(Appendix A), establishing the Biscayne Bay Task Force
(Task Force). The Task Force was established as a nine-
member advisory board consisting of appointed
professionals representing civil engineers, coastal real
estate developers, water quality and ecology experts, coastal
managers, environmental regulators, resilience experts, and the community at-large. The Task
Force was charged to meet at least four times over a six-month period to review prior studies,
relevant data, and evaluations, and management planning and policy documents related to
Biscayne Bay (Bay) as well as to receive recommendations related to the health and management
of the Bay (Appendices B-H). The Task Force met 18 times and received approximately 35
presentations related to the health and management of Biscayne Bay from local and state
regulatory agencies, municipalities, academia, community-based organizations, and other key
stakeholders (Appendix I).
Land Acknowledgement
Our proceedings took place and these natural resources occur on the ancestral and traditional
lands of the Seminole, Miccosukee, and Tequesta people.
8
3
Letter from the Chair
When the members of the Biscayne Bay Task Force convened in June 2019, we had no idea that
our final report would coincide with the impacts of the worst global pandemic in recent history. Curiously,
due to Miami-Dade County’s “stay at home” order, the temporary closings of our beaches and marinas,
and the practice of social distancing, Biscayne Bay received a much-needed respite from human activity.
Despite the unusual break, the damage to the Bay was already present before the crisis. The health of
Biscayne Bay remains in a state of emergency and at a tipping point toward irreversible ecological collapse.
There have been many efforts undertaken in the past to protect and restore Biscayne Bay. In
1974, the Florida Legislature passed the Biscayne Bay Aquatic Preserve Act. Later, in 1981, Miami-Dade
County approved the Biscayne Bay Management Plan. The Florida Legislature included Biscayne Bay in
the Surface Water Improvement and Management Act 1997, followed by the creation of the Biscayne Bay
Partnership Initiative in 1999. In 2019, the Greater Miami and the Beaches Resilient305 Strategy listed
restoration of the Bay as a principle action. These past plans have helped to protect and restore parts of
Biscayne Bay but they have been sporadic and disjointed. Meanwhile, the watershed continues to be
threatened by a lack of fresh water, nutrient pollution from storm-water runoff, sewage pipe breaks,
compromised septic tanks, plastic pollution, and other contaminants.
The problems facing Biscayne Bay are serious and complex: Most will require financial
investments and a unified and collaborative approach to restoration and recovery. Within this report, the
Task Force recommends an overarching governing and administrative structure to implement
recommendations under seven policy themes: water quality, governance, infrastructure, watershed
habitat restoration and natural infrastructure, marine debris, education and outreach, and funding. These
themes are to be inclusive of and prioritize environmental justice and human health.
The Task Force acknowledges that some policies and projects can be implemented immediately
to address the areas within the watershed with the most significant water quality issues based on the
currently available water quality data, resources, and existing funding sources. It is also important to
highlight the infrastructure recommendations that will not only help restore the watershed but can
provide a path toward economic recovery and help us get back to work post-pandemic.
Biscayne Bay is Miami-Dade County’s most vital quality of life asset and the mainstay of our
economy. This report is an urgent and final call to make Biscayne Bay and the protection of the Biscayne
Aquifer a county and state priority. We call for a unified and committed effort by Miami-Dade County to
work with all municipalities, state and federal agencies, and the public to chart a long-term course towards
a healthy and resilient Biscayne Bay.
The members of the Biscayne Bay Task Force are grateful for the opportunity to present this
report. We are confident that the Board of County Commissioners and the Mayor will take the bold and
necessary actions to restore and protect Biscayne Bay for all and forever.
- Irela Bagué, Task Force Chair
"Whatever the universe is, I believe it is all one. And this fragile shoreline, with its mangroves, coastal
hammocks and ancient reef, is a precious part of very little that still survives of our unique environment."
- Marjory Stoneman Douglas
9
4
State of the Bay
Of local, regional, national, and international importance, Biscayne Bay is a sub-tropical shallow
estuary that is home to two state aquatic preserves, a critical wildlife area, a national park and
national marine sanctuary. Due to its unique habitat, Biscayne Bay is designated an aquatic park
and conservation area by Miami-Dade County. Cradled by the mainland to the west and barrier
islands to the east, its 428 square miles continue to be a source of sustenance and economic
vitality, while also providing for countless recreational opportunities enjoyed by residents and
visitors alike. Its spectacular natural beauty is widely recognized and enjoyed by nearly 2.8 million
residents and millions of visitors every year.
Despite its many layers of county, state, and federal protection for water quality, habitat, and
wildlife, Biscayne Bay is at a tipping point. Historically, Biscayne Bay received freshwater along
its shoreline as water traveled south and east, mixing with water from the Atlantic Ocean. Today,
natural freshwater flows have been replaced by pulsed, point source discharges from dredged
canals, intended to offer flood protection and move water away from inland areas. Canals can
intercept groundwater, and more than half of the freshwater received by the Bay enters via the
northernmost canals where the most notable seagrass losses have occurred. Runoff from the
land, impacted by the activities taking place on land, degrade the quality of the water entering
canals and Biscayne Bay. The timing, source, and quality of freshwater delivered to the Bay can
and has influenced the health, diversity, and distribution of the flora and fauna that comprise the
Biscayne Bay ecosystem. While there may be a general awareness in South Florida of the
importance of the Biscayne Aquifer and the need to protect the quality of the groundwater in
this aquifer as our sole source of drinking water, what is less known is the connection of this
aquifer to Biscayne Bay and the Bay’s dependence on large volumes of clean, fresh water for its
ecological health. Hydrological changes, water management practices, upland development, and
aged infrastructure have contributed to degraded water quality, seagrass die-offs and algal
blooms as determined in part through data collected via the County’s surface water quality and
benthic habitat monitoring programs and those data from other agencies and institutions.
Biscayne Bay is in trouble. The County’s water quality and seagrass survey data, as well as review
of scientific literature and academic studies presented as part of the Task Force’s work, indicate
that chronic, low-level nutrient loading and/or acute, pulsed nutrient loading is likely linked to
seagrass loss in Biscayne Bay. Excess nutrients can lead to a shift from a seagrass-dominated
habitat with clear water, low turbidity, and low levels of algae in the water column, to an algae-
based ecosystem that is turbid and reduces habitat essential for fish, birds, marine mammals,
and other marine species. Sources of nutrients can include pet waste, fertilizers, and yard
clippings and can be conveyed by stormwater outfalls. Other sources may include leaky sewer
infrastructure and septic tank effluent. Unique challenges presented by storms and sea level rise
compound and complicate these existing issues.
Seagrass, the foundation of all life in Biscayne Bay, has declined significantly in several basins.
Seagrasses provide habitat for ecologically and economically important fisheries such as shrimp,
10
5
lobster, and various fish species and provide services such as stabilizing sediments and
attenuating wave energy from storms. Within the past decade, the scientific community began
to better understand and quantify the role that coastal and submerged plants such as
seagrasses, mangroves and other tidal wetlands play in sequestering and storing carbon,
surpassing the capacity of their upland tree counterparts. While notable coverage of seagrasses
occurs in central and southern Biscayne Bay, seagrass losses identified over the past decade span
the north, central, and southern regions of the Bay. In the South, Barnes Sound and Manatee
Bay basins have experienced a decrease in seagrass of approximately 93 percent. In the central
portion of the Bay, along the eastern shoreline near Coral Gables, there has been a decrease in
seagrass of approximately 85 percent. And in the basins north of the Rickenbacker Causeway,
seagrass losses range from approximately 66 percent to 89 percent (Appendix Q).
Despite these setbacks, it is important to know that water quality improvement and seagrass
recovery are possible. In Tampa Bay, there was a 90 percent decline in seagrass between 1948
and 1982. Decisive measures were taken, including the formation of a technical team to expressly
investigate how to reduce nutrient loading. Following a 57 percent reduction in nitrogen loading
between the 1980s and 2002, there was a marked decrease in microscopic algae clouding the
water column leading to improved water clarity. This success in meeting water quality targets led
to Tampa Bay exceeding their established seagrass recovery goal of 38,000 acres, with 41,655
acres restored by 2016. A similar effort was undertaken in Sarasota Bay that led to a 46 percent
reduction in nitrogen loading and subsequent resurgence of seagrass habitat. Thinking beyond
restoration of Biscayne Bay to building resilience and long-term health is particularly critical in
the face of potential impacts from climate change and sea level rise. The long-term health of our
local economy also stands to gain.
Scientists have studied Biscayne Bay’s fragile ecosystem and the most recent call to action came
from the National Oceanic and Atmospheric Administration (NOAA) in 2019, with a warning of a
“regime change” occurring in Biscayne Bay’s ecosystem. We, the 2.8 million people who live in
and call Miami-Dade County home, must answer that call. In taking action, it is important to
acknowledge past restoration and management planning efforts (Appendix E) but also to elevate
what makes this effort different. Numerous efforts have focused on restoring the health and
economic value of Biscayne Bay. Each of these efforts has been united by three common
elements. First, the efforts have been collaborative in that their development involved several
relevant agencies, organizations, scientific institutions, and community members contributing
their knowledge and fervent support for a healthy Biscayne Bay. Second, they tell a story of
Biscayne Bay and its watershed’s past and set a plan in motion for the future.1 Third, they are
predicated on the same or similar issues over the years that are imperative to address if the issues
1 Watershed: A land area that channels rainfall and snowmelt to creeks, streams, and rivers, and eventually to outflow points
such as reservoirs, bays, and the ocean. https://oceanservice.noaa.gov/facts/watershed.html
11
6
are to be overcome and restoration and long-term health of Biscayne Bay a reality. But many
previously identified threats remain unabated. Biscayne Bay’s resilience – its capacity to
withstand future changes in land use, climate shocks and stressors, and infrastructure failures –
will continue to be at risk without bold action focused on watershed restoration through a
permanent, unified and transparent approach to manage its recovery. That is why this unified
approach to recovery for a healthy and resilient Bay builds on and expands the knowledge and
efforts of the past with bold, brave ideas while centering the following core ideas in order to be
successful in bringing Biscayne Bay back from the brink:
Water Quality is the focus of the initiatives laid out in this vision. Municipal, County, State and
Federal agencies along with community organizations must commit to this work, the fruits of
which may take years to be realized.
Leadership is central to implement the bold changes we need and to hold ourselves accountable
over time to bring about the change we are working toward and know we can achieve.
Education is the tool by which our communities and our leaders will remain invested in this work
and each other as we gain a clearer understanding of what projects and initiatives must be
accomplished to restore Biscayne Bay.
Improving upon the past and empowering our communities to participate in this work also
requires that this process uphold the tenets of environmental justice. These tenets demand,
among other things, “...that public policy be based on mutual respect and justice for all peoples,
free from any form of discrimination or bias” as well as “...the right to ethical, balanced and
responsible uses of land and renewable resources in the interest of a sustainable planet for...[all]
living things.”2 The process of restoring and recovering Biscayne Bay’s resources and continuing
to work to ensure the Bay is visually and physically accessible for all people is in service of these
ideals and in doing so is in service to the people and natural resources of Miami-Dade County.
Furthermore, restoration and recovery of the Bay’s resources through the infrastructure and
technology improvements that stem from the recommendations in this report will help get our
community back to work following the economic hardship imposed by the COVID-19 pandemic.
It is the hope and the mission of the Task Force that this unified and collaborative vision,
overseen by a body of agencies and stakeholders, will be effective in bringing about tangible
and lasting change for the health of our Bay, for the quality of life of our residents and visitors,
and the future of our region’s economy.
2 As drafted and adopted at the First National People of Color Environmental Leadership Summit in 1991 in Washington, DC,
1991. http://lvejo.org/wp-content/uploads/2015/04/ej-jemez-principles.pdf
12
7
Recommendations
The following section outlines recommendations the County should take to restore water quality
in Biscayne Bay. The Task Force recommends the establishment of an overarching administrative
structure to implement recommendations under seven policy themes.
Overarching Recommendation
A unified and collaborative approach to watershed restoration is urgently needed. To improve
the water quality and the health of Biscayne Bay, the Task Force recommends:
Miami-Dade County’s Board of County Commissioners (BCC) should create a new
intergovernmental body called the Biscayne Bay Watershed Management Board (WMB).
The WMB should be supported by the creation of a new position called the Chief Bay
Officer (CBO) in the Office of the Mayor. The WMB and the CBO should be supported by
County staff, appropriate technical experts and community input to improve water
quality in the Biscayne Bay watershed.
The WMB will be responsible to develop and, upon approval by the BCC, implement the
Biscayne Bay Watershed Restoration Plan (WRP). The WMB, working with the CBO,
should ensure that the following recommendations by the Task Force are implemented.
13
8
Figure 1. Map of the Biscayne Bay watershed and managed areas within and adjacent to the watershed.
NOTE: Watershed layer obtained from SFWMD. These subwatersheds are the smallest units classified in
AHED (Arc Hydro Enhanced Database). They were formerly known at the District as Subbasins.
14
9
1. Water Quality
Improving Biscayne Bay’s water quality will require
significant reductions in the levels of pollutants within
its watershed. Significant improvements must be
made to waters received by the Bay and canals
through outfalls and sheetflow. Groundwater quality
within the Biscayne Aquifer must also be improved
given that the aquifer is the Bay’s watershed. Fresh
water flows through this highly transmissive aquifer carry pollutants directly into the surface
waters of canals and Biscayne Bay. Many actions are urgently needed to restore the Biscayne
Bay watershed and protect the Biscayne Aquifer as it is our sole source of drinking water and a
carrier of pollutants to the Bay. These actions include pollutant load reduction goals; additional
monitoring to measure progress against those goals; leveraging the County’s role as a local
authority; an open, centralized information data repository; demonstration projects –
implemented and monitored; integrated flood risk reduction and water quality planning, policies,
and management; a climate change vulnerability assessment; specific studies that fill key
knowledge gaps; fertilizer ordinance; and capitalizing on existing County entities to make
improvements to the regulatory review process to focus on Biscayne Bay and increase
enforcement.
The Task Force recommends that the County:
1A. Establish science-based, pollutant load reduction goals and interim targets to improve
quality of surface water and groundwater and codify these limits in Chapter 24 to achieve deep
reduction in pollutant loads for restoration of seagrass meadows to historic coverages
consistent with a healthy Biscayne Bay ecosystem as part of a Biscayne Bay Watershed
Restoration Plan (WRP). Pollutant load reduction goals and interim targets should consider
future scenarios of land-use, population, existing and future development, local and South
Florida water management infrastructure, and climate shocks and stressors. Nutrient load
reduction targets established for surface water and groundwater entering the aquifer and canals
should be based on meeting, at a minimum, the chlorophyll-a based criteria, or “protective”
criteria for total nitrogen (TN) and total phosphorus (TP) at the point groundwater enters the Bay
as well as the locations where groundwater enters canals connected to the Bay. The County
should implement similar strategies for other pollutants of concern, including fecal indicator
bacteria (FIB), metals, and petroleum-based pollutants, where impairments and other hotspots
have been identified to ensure consistent standards that protect public health and our economy.
1B. Develop, implement and continuously monitor and demonstrate progress toward meeting
1A’s pollutant load reduction goals and interim targets for surface and groundwater and linked
15
10
biological recovery. Updates should be reported to and reviewed by the WMB on a regular basis.
Pollutant load reduction and biological recovery targets and goals toward meeting targets should
be updated on a regular basis, every two to three years. Targets and goals should be updated
based on actual land-use, population, development, local and South Florida water management
infrastructure and the Comprehensive Everglades Restoration Plan, and climate shocks and
stressors. Monitoring should leverage coastal information and observation system approaches
with remote monitoring as necessary, to demonstrate progress toward meeting interim targets
and goals. Progress should also be assessed based on measurements made at individual stations
or subsets of stations based on their proximity to the shoreline.
1C. Leverage the Department of Regulatory and Economic Resources’ (RER) role as regulatory
agency to activate additional resource management functions. Permits requested from and
authorized by County divisions (all divisions in RER and the Water and Sewer Department
(WASD)) should be coordinated, rigorously documented and archived for continuous review and
evaluation to ensure they meet pollutant load reduction goals (1A). This should include:
i) Evaluation of permit applications including but not limited to water control and coastal
and freshwater wetland dredge and fill projects. This information should be quantitative,
quality-assured, transparent, documented, archived, and made publicly accessible (1E;
data library).
ii) Required water quality monitoring associated with permitted activities to ensure water
quality specifications are maintained and Best Management Practices (BMP) are
performed as specified to verify that pollutant load reductions goals are being met.
Update Chapter 24 as needed to ensure tracking and monitoring of these activities.
iii) Exercising of role as municipal separate stormwater sewer system (MS4) permit-holder
to collect MS4 co-permittee information on types and implementation of all forms of
BMPs, including a County-wide atlas of stormwater infrastructure systems, with maps of
locations and details related to the sizing of stormwater infrastructure, and additional
information as needed, to evaluate MS4 activities and compliance with pollutant load
reduction goals and biological recovery targets. When reviewing applications related to
stormwater, the County should consider the information produced and documented by
other MS4 permit-holders and the SFWMD to assess compliance with pollutant load
reduction goals.
1D. The County should use the information collected per 1C to conduct an immediate
assessment of land-based hotspot areas prioritized based on existing, known impairments.
Additionally, each municipality shall evaluate the water quality of each of its outfalls and report
outcomes. This information should be employed to support the creation of an ordinance to be
16
11
created that requires outfalls not meeting standards to be corrected or eliminated within a
certain time period.
1E. Review, develop (as needed), implement and enforce local ordinances and policies to attain
pollution load reduction goals set forth in the Watershed Restoration Plan (WRP). Policies and
enforcement should emphasize known and emerging sources of pollution to surface waters and
groundwater including septic systems, exfiltration trenches, and other sources of stormwater
pollution regulated through permits and managed via Best Management Practices (BMPs). The
County should seek support as needed, and review, utilize and strengthen enforcement of
Chapter 24 to enforce these pollution load reduction goals and measures of the Watershed
Restoration Plan with emphasis on pollutant load reductions in the Biscayne Aquifer and through
stormwater outfalls.
1F. Coordinate, staff and provide an annual budget for comprehensive, centralized Biscayne
Bay Watershed data and research collaboration and data management infrastructure (e.g.,
searchable data library), including a GIS-based repository integrating groundwater, surface
water, external agency datasets, and documentation required from MS4 co-permittees following
recommendation 1C. Include information about ongoing city, agency, and university ongoing
research and monitoring activities, existing and planned BMPs, watershed restoration, natural
infrastructure projects, and infrastructure projects. Update regularly.
1G. Undertake and secure funding for new pilot projects and research projects focused on
reducing pollutant loads. Projects should include specific, focused in-situ monitoring of areas
that implement: conversions of septic to sewer and alternative decentralized wastewater
systems, stormwater systems based on alternative design criteria and features, living shorelines
and seawalls, stormwater easements (e.g. bioswales), and retention ponds to generate the
project-specific information needed to implement and improve effectiveness of pollutant load
reduction strategies, assess water quality-based performance, and track reductions in pollutant
loads. This should include a new program of monitoring the effectiveness of BMPs to improve
surface water, groundwater, and stormwater quality before waters enter canals and the Bay and
for monitoring of significant stormwater outfalls. Funding sources should be identified and
secured.
1H. Elevate and further amend the Comprehensive Develop Master Plan (CDMP) to further
include Biscayne Bay watershed management planning elements, including Adaptation Action
Area planning and other sea level rise planning efforts. Planning efforts should consider
alternative design and development criteria in sensitive areas in order to reduce discharge,
reduce pollutant loads including loads from the Biscayne Bay watershed and increase watershed
pollutant treatment efficiency. The WRP produced by the WMB should include recommended
criteria to improve water quality, with a focus on pollutant load reduction, to incorporate into
the CDMP and other related planning efforts. Examples include higher standards for projects in
the County, such as requiring more stormwater retention through installation of permeable
17
12
surfaces, green infrastructure, or other appropriate strategies to allow less pollutants to runoff
into the Bay.
1I. Conduct a climate change vulnerability assessment for Biscayne Bay. The WMB, working with
the BCC and County departments, should determine the scope and the issues that would go into a
vulnerability assessment for Biscayne Bay, including land use and population, local and regional water
management systems scenarios, and CERP scenarios. Federal, state, and local funds should be
leveraged to conduct this assessment.
1J. Initiate and fund studies that illuminate specific knowledge gaps for application toward
watershed restoration. Specific studies include:
Re-assess the north to south and source (canal, stormwater and groundwater) distribution of
discharge entering Biscayne Bay and work with SFWMD and other agencies to identify
strategies for implementing wetland rehydration projects (e.g. Deering Estate) in other areas
of the watershed to improve distribution, timing and magnitude of flows
Re-generate the circulation modeling output for the Bay, analyze gap-fill monitoring data for
robust calibration and validation, and expand domain to northern Biscayne Bay
Institute source tracking in hot spot areas (bacteria, pharmaceuticals, nutrients, petroleum-
based pollutants)
Update and apportion pollutant loading of primary watershed and Bay sources, incorporating
contributions from episodic loadings from natural hazards and infrastructure failures to
develop phosphorus and nitrogen budgets that support Biscayne Bay recovery and resilience
Apply in-situ studies to evaluate the following: a) water quality-based performance of
alternative decentralized wastewater and stormwater infrastructure treatment approaches
over traditional approaches and b) influence on load contributions to stormwater and
groundwater
Re-evaluate “protective” nutrient criteria based on pollutant loads and load reduction goals
Increase the number of permanent seagrass monitoring sites and allocate additional funding
as needed
Increase the spatial and temporal frequency of water quality sampling in hot spot areas, areas
that have experienced significant increase in pollutant loads, including areas defined as
impaired waters, and areas that improve the management of benthic resources
Evaluate the relationship between recreational and commercial fishing activities, food web
structure, and Biscayne Bay water quality
Evaluate facility-level pollutant loading contributions against existing permitted discharges
1K. Pass a county-wide ordinance to prevent the negative secondary and cumulative effects of
excess nutrients caused by fertilizer runoff entering Biscayne Bay through groundwater and
stormwater entering surface water bodies such as canals. The ordinance should include: public,
commercial and noncommercial property; a mandate that fertilizer can only be applied to
actively-growing turf; a mandate that fertilizer cannot be applied during the rainy season; a
18
13
designation of a fertilizer-free zone of 15 feet from waterways; a focus on the regulation of
nitrogen-releasing fertilizer in most forms; and a more rigorous regulation of phosphorus.
Additional model ordinances should be developed and codified to reduce use and application of
pesticides and herbicides. The County should work with municipalities to adopt the same
ordinances.
1L. Increase inspections of all marinas and commercial operations along waterways. Such
operations must have containment structures to eliminate direct runoff into waterways. Such
containment structures must have treatment equipment especially for oils, grease, and wash
water from boat maintenance operations. Impose fines and shutdowns if non-compliance is
discovered.
1M. Continue to monitor the progress of the October 7th, 2015 Consent Agreement between
FP&L and Miami-Dade County to address impacts associated with the plant, including addressing
the hypersaline groundwater plume and elevated levels of chlorides found outside property
boundaries including within the L-31E canal. The County should continue to monitor water
quality in the areas surrounding the Turkey Point facility including elevated levels of chlorides, as
well as nutrients such as ammonia, and take appropriate actions to ensure the environment is
protected and that pollutant load reduction goals are met.
19
14
2. Governance
In order to establish a permanent and unified approach to the
recovery of water quality in Biscayne Bay and future management of
the watershed, the Task Force recommends that the County:
2A. Establish by ordinance or other comparable process that
establishes the Biscayne Bay Watershed Management Board (WMB)
as a permanent organization. The Task Force recommends the
selection and invitation of participants with diverse backgrounds to
the WMB and its committees. It is recommended that the WMB shall
be comprised of a total of (11) members as follows:
(3) members of the Board of County Commissioners (BCC);
(3) designees of the Miami-Dade County League of Cities;
South Florida Water Management District Governing Board (member who resides in
Miami-Dade County);
Florida Department of Environmental Protection;
U.S. Department of Interior;
Florida Fish and Wildlife Conservation Commission; and
Florida Inland Navigational District.
Members will have experience with issues related to Biscayne Bay and are expected to leverage
the professional and financial resources of their respective organizations to achieve goals of the
Watershed Restoration Plan.
2B. The Mayor should appoint a Chief Bay Officer (CBO) and request funding for the position.
The CBO will advise the Miami-Dade County Mayor and the BCC and manage the WMB and its
committees. The CBO will act as liaison with County departments, County boards, external
agencies, stakeholder groups, and local, state, and federal governments on water quality issues,
policies and appropriations related to the health and recovery of Biscayne Bay.
2C. The WMB will, with technical and community recommendations, review, recommend
funding for and implement the Watershed Restoration Plan (WRP) to send to the BCC in order
to achieve time-bound and measurable progress toward WRP goals to achieve water quality and
seagrass restoration and meet its mandate of Bay health, recovery, and resilience. The WRP
should be developed by the end of 2021. While developing the plan, the WMB can concurrently
work to implement recommendations in this report . The WMB will be responsible for making
recommendations to Miami-Dade County departments and to the Office of Management and
Budget to prioritize water quality restoration in the annual budget cycle.
20
15
The WMB will work to make recommendations and develop funding strategies for projects to be
reviewed and approved by the BCC, incorporate relevant policies in Senate Bill 712 (SB 712) Clean
Waterways Act (Appendix K), develop and execute the Biscayne Bay Watershed Restoration Plan,
inform the BCC on a regular basis, secure funding for meeting the timeline for pollutant load
reduction goals, and update the Biscayne Bay SWIM Plan, as mandated by the SWIM Act per
Chapter 87-97 Florida Statutes (Appendix E). The WMB shall collaborate in organizing a biannual
Biscayne Bay Marine Health Summit.
The WMB should establish and appoint committees to address specific Bay issues to advise and
make recommendations on policies, restoration projects, public information campaigns and
water quality monitoring and targets. The Task Force recommends establishing the following
committees: Technical Advisory Committee, the Community Advisory Committee, and the
Nutrient Reduction Committee.
Figure 2. The proposed organizational structure above highlights the working relationship
between the BCC, CBO, Office of the Mayor, WMB, and the committees. The description in
Appendix J further defines the roles of the entities and Watershed Restoration Plan. Existing
entities are shown in blue boxes while new recommendations by this Task Force are shown in
purple boxes. Solid green lines mean an entity has direct oversight over a connecting entity.
Dotted green lines mean an entity plays an advisory role to another entity.
21
16
2D. Develop a formal partnership in the form of a Memorandum of Understanding (MOU) with
the SFWMD to create an internal staff working group in addition to their participation on the
WMB. The CBO will lead this effort. The group will work collaboratively to implement the WRP
and manage and fund activities to meet pollutant load reduction goals; determine redundancies
and data gaps; focus on canals that show high nutrient loads, and trash pollution and study
pollutant loads originating outside the watershed, including agricultural sources; develop BMPs
and Outstanding Waters standards and regulations, and enhance adaptation efforts to improve
the resilience of the regional water management system to manage saltwater intrusion.
2E. Enable the alignment and coordination of County departments to ensure a holistic,
comprehensive approach is taken for Biscayne Bay recovery and resilience. Resilient305 directs
Greater Miami and the Beaches to Restore and Preserve Biscayne Bay (Action 1), Employ a One
Water Approach (Action 54), and Share Bold Integrated Water Models (Action 53) to align County
departments in their work on issues that must be dealt with for the Bay’s long-term health.3
Direct departments to prioritize Biscayne Bay recovery and resilience in their budgets and
develop performance metrics to assess the effectiveness of this effort and identify funding.
Report progress in quarterly updates to the Science/Technical Advisory committee and, as
needed, to the full WMB.
2F. Develop a formal partnership in the form of a Memorandum of Understanding (MOU) with
the Miami River Commission (MRC) to ensure that the advice and expertise of the MRC is
available to the CBO and the WMB. The MRC has 20 years of experience advising public and
private interests along the Miami River that will be invaluable in the development of the WRP
and in the implementation of many other recommendations.
3 Greater Miami and the Beaches, Resilient305 Strategy. 31 May 2019. <https://resilient305.com/>
22
17
3. Infrastructure
As we grapple with the economic impacts of the global
pandemic, turning to infrastructure investments is one
strategy to lift our economy. During past national
downturns, infrastructure stimulus spending has
boosted near-term economic activity. Likewise,
improvements to our septic, sewer, and stormwater
systems are critical investments that will advance the
health of the Bay and prove to be the economic
stimulus that our County needs. There is no better time to
invest in our County than now. For some of the regulatory driven investments, such as the
Consent Decree to fix leaky sewer lines, managing assets and making sure these programs are
fully funded and implemented is a priority.
Therefore, creating design standards, establishing construction inspection requirements, and
setting operation and maintenance regulations for wastewater collection, including septic
systems, water and wastewater, and stormwater collection and drainage system are to be
reviewed and updated in Chapter 24 of the Miami-Dade County Code as needed in order to
ensure countywide infrastructure is working as intended and not contributing pollution to the
Bay.
For Septic Systems:
The State’s Blue-Green Algae Task Force Consensus Document4 recommended “a septic system
inspection and monitoring program” to identify “improperly functioning and/or failing systems
so that corrective action can be taken to reduce nutrient pollution, negative environmental
impacts and preserve human health.” The Task Force also noted that “current regulations
prohibit permitting of new septic systems on lots of one acre or less…within an Outstanding
Florida Spring watershed unless the system includes enhanced treatment.” The County drafted
a report, Septic Systems Vulnerable to Sea Level Rise, in November 2018, noting the occurrence
of improperly functioning and/or failing systems based on current and future groundwater levels
(Appendix L).
Florida Senate Bill 712 (Appendix K) takes effect July 1, 2020 and transfers duties and powers
from the Department of Health to the Department of Environmental Protection, including to
“develop a comprehensive program to ensure that onsite sewage treatment and disposal
systems regulated by the department are sized, designed, constructed, installed, sited, repaired,
modified, abandoned, used, operated, and maintained in compliance with this section and rules
4 Blue-Green Algae Task Force Consensus Document #1. 11 October 2019. <https://floridadep.gov/sites/default/files/Final%20Consensus%20%231_0.pdf>
FDEP
23
18
adopted under this section to prevent groundwater contamination, including impacts from
nutrient pollution, and surface water contamination and to preserve the public health.”
The Task Force recommends that the County:
3A. Increase compliance with existing laws to result in the immediate connection of ~12,000
properties to the sewer system and reduction in the number of new septic systems in
coastal/waterfront areas.
3B. Develop and enforce septic system design criteria with design parameters, including
proximity to canals and Biscayne Bay, elevation relative to groundwater level, sea level rise,
sizing, materials, individual and cumulative loading, and basin-specific criteria. Basin-specific
criteria should be based on existing (or lack of) infrastructure, land use, loading parameters and
other criteria to ensure pollutant load reduction goals are met.
3C. Initiate a mandatory septic system registration and inspection program that will first
prioritize those systems identified as vulnerable to shallow groundwater levels, those near
(within 1000 feet of) Biscayne Bay and canals, and those for new and substantially improved
(50% of market value) developments. The program should then be expanded county-wide. In
addition, utilize alternative treatment technologies or conversion to sewer, and identify, create
and secure new funding sources. Efforts should build on the State’s Task Force recommendations
and SB 712 - Clean Waterways Act provisions (Appendix K). All data and records pertaining to
such recommendations should reviewed by County staff, and WMB advisory committees, then
presented for review by WMB.
For Water and Wastewater Systems:
One Sanitary Sewer Overflow (SSO) is one too many; these are preventable with appropriate
policies and enforcement. The County must be proactive and have reliable information on all its
underground assets. For water and wastewater systems in Miami-Dade County, the County is
the primary system for all jurisdictions. Though some municipalities own and operate their own
infrastructure, the main system receiving the effluent is managed by the County. Additionally,
all design, operation, and maintenance requirements must include effluent standards for
pollutants.
The Task Force recommends that the County:
3D. Undertake immediate efforts to identify and eliminate all root causes of Sanitary Sewer
Overflows (SSO) including inflow and infiltration. Accelerate sewer infrastructure maintenance
and upgrades, with an emphasis on addressing all wastewater sewers that are located within
2,000 linear feet from Biscayne Bay shorelines and further West (inland) near Canals, Creeks,
Rivers and Lakes to reduce the potential for and impacts of SSOs, should they occur. All plans are
to be certified by letter/report, that is signed, and sealed by a Florida Registered Professional
24
19
Engineer. Ensure the County institutes its authority to implement proactive management and
have reliable information on all underground assets. Ensure adequate funding is authorized to
accelerate these activities. Use the County’s authority to institute stiffer penalties for SSOs,
understanding that SSOs harm the economic prosperity, health and quality of life of its residents
and businesses – referencing SB 712 (Appendix K) and increasing fines for unpermitted activities
over SB 712 (sanitary sewers, maintenance, etc.).
3E. Develop and expedite a Condition Assessment and Asset Management Action Plan to
document the condition of the County’s wastewater system assets and certify all historical “As
Builts” and/or those not already certified with a focus on identifying horizontal and vertical
locations of main wastewater transmission lines. As-builts must be certified, signed and sealed
by a Florida Professional Surveyor and Mapper qualified and registered to do work in Miami-
Dade County. In addition, a Florida Professional Engineer, qualified and registered to do work in
Miami-Dade County shall inspect and document the condition of these assets, to prioritize their
condition based on risk of failure and expedite rehabilitation and/or replacement or lining
following mandates in the WASD consent decree.
For Stormwater Systems:
Actions to improve stormwater systems should leverage cost- and maintenance-effectiveness of
technologies and should be holistic in order to address stormwater quality concerns at all levels,
both for public and private systems countywide. It is important to note that stormwater systems
in Miami-Dade County are controlled by jurisdictions. The County only has control over the
stormwater system in the Unincorporated Municipal Service Area (UMSA), so working with
municipalities to coordinate improvements is critical.
The Task Force recommends that the County:
3F. Enforce the existing code and update the stormwater design criteria to improve
effectiveness and include advances in stormwater treatment technologies such as stormwater
catch basins, stormwater filtering systems and smart stormwater system technology that can
also take into account future hydrologic conditions related to CERP and climate change. Existing
Code should be updated to establish an annual operating permit for all municipal and private
stormwater systems to include regular inspections and monitoring to address performance such
as during heavy rainfall events. Stormwater design criteria should be updated for science-based
effectiveness of water quality treatment and consider the multitude of impacts that sediment
erosion, leaves, litter and other items have on stormwater systems. These can include costs of
cleanups, floods caused by clogged stormwater catch basins and pipes, and groundwater and
surface water pollution caused by stormwater runoff. Evaluation of technologies should be
holistic in order to address stormwater runoff concerns at all points, from the street level through
the outfalls. All design, operation, and maintenance requirements must include effluent
standards for pollutants. Develop and implement guidelines for stormwater dry retention ponds
25
20
and swales that maximize watershed pollutant retention. Allocate funding for pollutant
monitoring to improve design of dry and wet retention ponds for Miami-Dade County and areas
within the SFWMD regional system.
3G. Develop a plan to prioritize the retrofitting of stormwater infrastructure within basins with
the most substantial water quality and/or habitat degradation issues . All stormwater systems
should be upgraded to maximize protection of water quality and municipalities should be urged
to provide updates of storm water improvements to the County for inventory.
3H. Eliminate direct and indirect stormwater discharges to Biscayne Bay through a combination
of infrastructure modifications (e.g., treatment technologies) to retain more stormwater at the
property-level via increased stormwater management in retention and infiltration and to conduct
monitoring to verify, identify and secure funding through community based and/or public private
partnerships while leveraging private working capital for implementation. Eliminate discharge of
untreated stormwater into canals, creeks, rivers, and lakes, including from the streets. Conduct
monitoring to verify, identify and secure funding to implement. Ensure basic design criteria for
stormwater system management are met and documented to include : 1) grates to block debris
from entering the storm drains and smart water sensors, 2) more regular maintenance of
stormwater systems to prevent discharge of debris and sediment, 3) more regular cleaning of
storm drainage system, and 4) standards that account for higher groundwater levels and the
reduced efficacy of exfiltration systems. Specify a minimum stormwater system management
schedule for MS4 co-permittees for stormwater discharged into canals, creeks, rivers, and lakes,
conduct monitoring to verify, identify and secure funding to implement. Implement a regular
review process to update design criteria to take future conditions into account.
For Design and Construction Methods:
3I. Set policy that all As-Builts/Record Drawings are done and certified by a Florida Professional
Surveyor and Mapper qualified and registered to do work in Miami-Dade County.
3J. Set policy to require during the design phase of future construction that all existing utilities
are designated and located vertically and horizontally based on American Society of Civil
Engineers (ASCE) Standard 38-02 (Appendix M) utilizing nondestructive subsurface utility
engineering methods, such as soft digs and 3-D ground penetrating radar. Survey grade Mobile
or Static LIDAR shall be used for mapping above ground features and utilities conducted by a
Florida Professional Surveyor and Mapper qualified and registered to do work in Miami-Dade
County. During plans review process, Miami-Dade County shall ensure design complies with the
policy prior to final approval or issuance of any construction permit.
26
21
For Coastal Flood Management Systems:
3K. Ensure that new infrastructure projects to address coastal flooding and storm surge that
are cost-shared by the County adhere to the recommendations of this Task Force and prioritize
Biscayne Bay health and resilience. This includes such information as USACE Back Bay Coastal
Storm Risk Management (CSRM) Feasibility Study and any future flood control projects.
27
22
4. Watershed Habitat Restoration and
Natural Infrastructure and Natural
Infrastructure
Biscayne Bay’s health is dependent on the activities
that happen within its watershed. Improving and
restoring habitat countywide has multiple benefits,
including diversifying plant and animal species,
providing habitat for fisheries, and increasing green
spaces that absorb and filter water before it reaches our waterways and the Bay. Depending on
the project, natural infrastructure is just as beneficial: It can provide additional water filtration
services, can act as habitat for fisheries and other wildlife that help support our economy, and
can protect the shoreline from coastal erosion and storm surge. To utilize watershed habitat
restoration and natural infrastructure to improve the health of the Bay, the Task Force
recommends that the County:
4A. Develop ecologically acceptable living shoreline design options that are consistent with the
existing Biscayne Bay Aquatic Preserve Act. The County shall create “A Living Shoreline Guide”
and conduct workshops with municipalities, developers, coastal engineers, and other industry
experts to provide the appropriate guidance on design and regulations. The County should
develop incentives for living shoreline installation.
4B. Raise awareness of the value of mangroves through a homeowner education campaign.
Mangroves are the first line of coastal defense and a natural barrier protecting coastal
communities from storm surge, flooding, and sea level rise. Mangroves provide carbon storage
which helps lower carbon emissions.
4C. Increase enforcement of existing rules for protecting existing mangroves and mangrove
shorelines to improve their future health and maintain the appropriate amount of canopy.
Existing culverts that provide water to existing mangroves must be inspected and repaired.
4D. Identify vulnerable properties along the coastline and partner with municipalities to focus
on public properties and private property owners to create a voluntary Mangrove Protection
and Restoration Zone Program (e.g., mangrove planter box initiative) in flood-prone coastal
communities to designate protection zones, plant mangroves based on the “A Living Shoreline
Guide,” and monitor and report progress after storm events. In this effort, the County should
include: data collection, review and consideration of opportunities for converting flood-damaged
properties from willing sellers participating in current and future buy-out programs; and
increasing buffer areas via vegetated easements or as projects for listing in the Miami-Dade
County Local Mitigation Strategy (LMS).
28
23
4E. Prioritize existing and identify new green and blue infrastructure approaches and
restoration projects, including projects identified in existing plans like the Miami-Dade County
Department of Parks, Recreation, and Open Spaces Parks and Open Space System Master Plan,
using data to help inform projects with significant potential for improving water quality. Retain
a pool of environmental engineering firms with qualifications that include green infrastructure
projects to assist staff in designing and implementing these projects. Create mechanisms for
expanding research and monitoring capacity by local universities to include adequate studying
and tracking of funds as a proportion of project financing to ensure water quality improvements.
Increase incentives for green infrastructure, such as green walls and roofs, for new development,
substantially improved/damaged structures, and retrofitting projects to decrease pollutant
runoff. In addition, each new seawall permit application should be evaluated for natural and
hybrid alternatives. Review existing County regulatory process and policies as necessary to
promote the installation of natural shorelines and green infrastructure consistent with protection
and enhancement of Biscayne Bay.
4F. Continue to work with SFWMD and to have the State of Florida allocate the funds necessary
to ensure the timely commencement of construction of the Cutler Flow Way in accordance with
the project timeline in the Integrated Delivery Schedule. The County has been a significant
investor of funding and resources for the Comprehensive Everglades Restoration Plan (CERP)
Biscayne Bay Coastal Wetlands (BBCW) Project by providing land acquisition, staff resources, data
sharing, and directly funding a portion of the costs for the redesign of the Cutler Flow Way for
Phase 1 of BBCW. Funds must be allocated from the State of Florida in a timely manner to ensure
commencement of construction of the Cutler Flow Way and to allow for completion and
operation under the current Integrated Delivery Schedule without further delays.
4G. Continue to advocate for funding to support the Biscayne Bay Southern Everglades
Ecosystem Restoration (BBSEER) project (also known as the BBCW / C-111). The County should
continue to actively participate and coordinate as part of the Project Delivery Team during the
planning process with the USACE and SFWMD and other agencies of the Program Delivery Team
(PDT) to ensure that the quantity, quality, timing and distribution of water are adequate for the
complete, full scale salinity restoration of the portions of the Bay proposed for restoration under
the BBCW and BBSEER projects.
4H. Establish seagrass growth and maintenance requirements based on pollutant loading and
reduction targets (nutrients, sediments/turbidity), influence of temperature and dissolved
oxygen, carbon dioxide, changes in food web structure, Bay recreational use, and resulting
influence on water clarity and seagrass health.
4I. Accelerate green infrastructure solutions for flooding, resiliency and water quality that
include a review of watershed habitat restoration opportunities in repetitive loss areas and
future flood hazard areas. Evaluate and allocate cost savings of Community Rating Systems (CRS)
benefits into the Biscayne Bay watershed water quality restoration plan.
29
24
5. Marine Debris
Marine debris is one of the most widespread
problems stressing the world's oceans, waterways,
and coastlines. It can travel long distances and
traverse territorial borders, and there are many
difficulties in identifying its sources. There are two
common sources of marine debris: the actions that
take place on land (land-based sources), and the
actions that take place in waterways and the marine environment (water-based sources). It is
estimated that 80% of marine debris is from land-based sources. To reduce marine debris and its
impacts to the stormwater system, the Task Force recommends that the County:
5A. Create a comprehensive marine debris prevention, reduction, and removal program within
DERM and adequately fund and staff the program. The primary goal of the program would be
to prevent, reduce, and remove the amount of marine debris entering Biscayne Bay and its tidal
tributaries, thereby reducing the impact of marine debris on the Bay’s flora and fauna while
enhancing the quality of life for the County’s residents and visitors. To accomplish this goal,
program activities should include, at a minimum, marine debris related project planning,
implementation and obtaining funding; public outreach and education; and enforcement action
when necessary and appropriate. The program should establish annual targets for the
prevention, reduction, and removal of marine debris entering the Bay.
5B. Establish a marine debris working group to promote collaboration on ways to reduce
marine debris. The working group may include, but not necessarily be limited to, representatives
of County, state and municipal resource agencies, including the SFWMD, law enforcement
agencies, stormwater utilities, solid waste and public works departments, recreational and
commercial boaters and fishers, and NGOs. Among the purposes of the working group should be
to share information, coordinate efforts, and develop a plan to prevent, reduce, and remove
marine debris. The plan should address marine debris emergency response and define annual
targets for the prevention, reduction, and removal of marine debris entering the Bay. The marine
debris working group could also make recommendations to the County and municipalities
regarding policy and legislation for the prevention and reduction of marine debris.
5C. Through the Miami-Dade County Police Department, direct the Marine Patrol Unit to
prioritize its commitment to the enforcement of all applicable laws having a nexus to the
environmental health of the Bay and its tributaries, including but not limited to those related to
fisheries, derelict and at-risk vessels, vessel marine sanitation devices, vessel speed zones, vessel
groundings and mooring restrictions. The BCC should urge state and municipal marine law
enforcement agencies to do the same.
30
25
5D. Conduct an analysis of marine debris in Biscayne Bay to identify primary sources of marine
debris, the routes by which it is introduced into the Bay, and the areas of most significant
accumulations, including within stormwater catchment basins, to guide prevention efforts and
target removal.
5E. Adopt a target maximum input level policy for trash. Work with municipalities to decrease
the amount of trash pollution entering Biscayne Bay from land-based trash sources and
stormwater systems.
5F. Evaluate the various existing stormwater outfall systems throughout the County to
determine their effectiveness at preventing debris from entering Biscayne Bay. This evaluation
should include any recommendations for alternative designs and maintenance as well as any
changes in policy or regulations regarding installation of stormwater outfall systems.
5G. Identify and establish dedicated and recurring funding sources to pay for marine debris
prevention and removal activities and to use as matching funds for supplemental grant
opportunities. Such sources may include, but not be limited to, vessel registration fees and
stormwater utility fees.
31
26
6. Education and Outreach
Every citizen and visitor must be informed and
educated about water quality impacts related to
littering and pollution. They must be given ample
opportunities to create a personal connection to, and
responsibility for, the health of Biscayne Bay. To
educate citizens and visitors, the Task Force
recommends the County:
6A. Create a multilingual, multimedia campaign and educational outreach program to promote
and improve awareness of the economic, commercial, and recreational opportunities of Biscayne
Bay.
6B. Leverage the funding in the Community Based Organization grant program to create a
special focus on Biscayne Bay education. Encourage greater coordination with local
environmental education organizations, including the Environmental Education Providers, and
work together with related NGOs, municipalities, agencies, public/private schools, academic
institutions, environmental organizations, business organizations, and marine and tourism
industry organizations to increase impact and avoid duplication of efforts.
6C. Conduct an educational campaign to inform the public on the proper and improper ways
to dispose of trash and the impacts of littering and marine debris to the health and
management of Biscayne Bay as recommended by the Grand Jury Report dated August 8th 2019
(Appendix D), and instructed by Resolution R-1260-19 adopted on November 11th, 2019
(Appendix O). Include promoting native landscapes and xeriscapes and education on the
vulnerability of the Biscayne Aquifer and watershed to pollutants among other key topics. As part
of the campaign, increase signage in public areas and include storm drain signage as adopted in
Resolution R-1335-19 (Appendix P).
6D. Implement policies to reduce the amount of locally generated plastic marine debris by
restricting or banning the use and/or sale of single-use plastic items at County buildings, parks,
beaches, and other facilities, and at County-sponsored events.
6E. Build upon and increase volunteer clean-up activities county-wide to support the “Keep
Miami-Dade County Beautiful” initiative with the Departments of Solid Waste Management and
Parks, Recreation and Open Spaces, through “Neat Streets Miami.”
6F. Develop environmental sustainability and “plastic free” best practices for commercial
businesses and all public events and county-owned properties. Incorporate “Leave No Trace”
principles in public education campaign.
FDEP
32
27
6G. Support a “Living Laboratory for Bay Health” in conjunction with local universities, NGOs,
and private sector partners to train and inspire the next generation of scientists, eco-engineers
and environmental stewards through sustainable and resilient policies and business practices.
Develop partnerships with academic, business and industry associations.
6H. Develop and implement a contractor and lawn care industry training program for
contractors that do business with the County and all MS4 co-permittees, including County and
city staff. Include an educational campaign specific to the landscaping industry about proper
disposal of yard waste and the detrimental water quality impacts resulting from fertilizer use.
6I. Expand the scope of Baynanza to add year-round activities and collaborate on Biscayne
Bay Marine Health Summit activities
33
28
7. Funding
Since all governmental levels have a role in
the management of the Bay, funding needs
to come from all levels: federal, state, and
local as well as public private partnerships.
Adequate external funding will be
necessary to preserve, protect and
revitalize the habitat and watershed for
long-term, meaningful results. To ensure
funding for projects and programs, the Task Force recommends the County make water quality
restoration of Biscayne Bay an annual budget priority. The Task Force also recommends that the
County:
7A. Collaborate with the Miami-Dade Legislative Delegation and the Congressional Delegation
to secure annually appropriated funds to support Biscayne Bay watershed restoration, possibly
through mechanisms such as legislative budget requests that may include support for a National
Estuary Program and other programs that support the Biscayne Bay-based economy and quality
of life in Southeast Florida.
7B. Immediately engage in the legislative process to designate a Biscayne Bay License Plate
drawing from regional examples of related, successful specialty plates for Indian River Lagoon
and the Tampa Bay Estuary. Funds from the sale of the license plate should benefit habitat
restoration, pollution prevention and environmental education initiatives.
7C. Immediately enter into a cost-share partnership with SFWMD which has allocated funds to
update the 2005 Biscayne Bay Economic Study. The purpose of the Biscayne Bay Economic Study
2019 Update is to estimate the economic contribution of the Bay from 2005 to 2019 as it is used
for real estate development, recreation, shipping, cruising, commercial fishing and to update the
recreational uses and intensity of use of Biscayne Bay. The study will employ the same
methodology as was used in the original 2005 Biscayne Bay Economic Study that evaluated the
Bay’s economic contribution from 1980 to 2004 so that comparisons may be made.
7D. Collaborate with Florida Inland Navigational District (FIND) to immediately identify projects
that will improve water quality and restoration of the Biscayne Bay watershed.
7E. Leverage municipal financial resources through interlocal agreements to supplement
County funds in order to accelerate projects that improve the water quality of Biscayne Bay.
7F. Develop a mechanism to collaborate with municipalities and work with the development
community to enhance development rights in exchange for substantial capital investments in
protecting Biscayne Bay.
34
29
7G. Direct the preparation of a report of potential funding sources by the Office of
Management and Budget and the Office of Intergovernmental Affairs that would potentially
be used for long-term support of the restoration of Biscayne Bay. The report should include a
review of the following:
All Stormwater utilities - fees for stormwater infrastructure. The County should
consider working with the cities to agree to adopt the BBMP;
Evaluate existing revenues to determine if they are adequate to update their
stormwater infrastructure to improve water quality;
Evaluate and engage in community-based partnerships and public-private
partnerships
Senate Bill 712 (Appendix K)– analyze the matching grant program to upgrade septic
systems or hook a septic tank to a municipal sewage system;
Evaluate potential of a voluntary contribution on WASD or municipal stormwater bills
would be revenue positive, and add a voluntary contribution to fund priority septic
conversions and elimination of direct stormwater outfalls
Explore other grant programs to help upgrade outdated municipal sewage treatment
plants;
NOAA marine debris grant funding;
Bond program for Biscayne Bay funding;
EPA urban water program;
Future FDEP funding for septic system upgrades and/or conversion to sewer;
PACE program funding;
Water quality trading;
Mitigation credits
35
30
The Future of the Bay
The decline of the Biscayne Bay ecosystem will persist long after our community recovers from
the crisis brought on by the COVID-19 pandemic. The Bay faces a multitude of complex problems
impacting water quality throughout the watershed. As water quality declines and we lose
seagrasses and document degradation of other habitats, the health and resilience of the Bay and
our beaches will continue to decline, impacting tourism, recreational and commercial fishing, and
boating. Losing the jewel that is Biscayne Bay could severely affect our tourism-driven economy
and depreciate waterfront property values.
Local and regional canals drain into Biscayne Bay, bringing pollution from stormwater runoff,
sewage pipe breaks, compromised septic tanks, plastic, marine debris, and other contaminants.
Furthermore, the channelization of our waterways has led to a lack of historic freshwater flows
that have contributed to changes in the Bay ecosystem.
As our region grows and welcomes new residents and visitors, pollution prevention will be critical
to improving water quality in the watershed and Biscayne Bay. However, through a unified,
coordinated approach to improving water quality in the short and long-term, we can ensure the
recovery and preservation of Biscayne Bay for its ecological functions, economic importance, and
natural splendor.
The Task Force believes many long-term solutions to improve and manage water quality resides
in the upland watershed and will require collaboration and partnership with the State of Florida,
36
31
Miami-Dade County, municipalities, and the private sector. Many of the solutions provide
opportunities for stimulating our economy post-pandemic.
Land-use changes, behavioral changes, and infrastructure improvements can prevent pollution
from reaching our waterways and the Bay. Locally, we must re-examine our County budget and
municipal budgets to prioritize projects to advance our pollution reduction goals. At the same
time, we must continue to advocate for funding at the state and federal levels. Sustained
funding sources at every level will be critical to implement the recommendations in this report
and to advance future guidance from the Water Management Board.
The creation of a permanent governing entity and the appointment of a Chief Bay Officer by the
Mayor will provide the coordination and needed oversight of the Bay and act as the mechanism
for addressing the short and long-term issues that lie ahead. Making the Bay's health a priority
now and providing additional staff, resources, and expertise will bolster our economy and
increase the long-term resilience of Biscayne Bay for our families, visitors, and future generations
living, working, and playing in Miami-Dade County.
37
32
Appendices
38
33
Appendix A- Resolution R-165-19 creating the Biscayne Bay Task Force
Appendix B - Miami-Dade County Report on the Decline of Seagrasses and Hardbottom
(February 2019)
Appendix C – NOAA Report on Trends in Chlorophyll and Biscayne Bay Increasing in Nutrients
Appendix D- Miami-Dade State Attorney Grand Jury Report on the Health of Biscayne Bay
Appendix E- Historical Biscayne Bay Management Planning Documents
Appendix F- Additional Submissions to Biscayne Bay Task Force
Appendix G- Biscayne Bay is dying, Miami’s economy will die with it if we don’t come to the
rescue, Op-Ed by Irela Bagué, Miami Herald
Appendix H- Biscayne Bay-related Resolutions of the Miami-Dade County Commission
39
34
Appendix I- Presentations and Speakers received by Biscayne Bay Task Force
Meeting BBTF Meeting Date Title/Subject Presenter(s) Name and Title Affiliation
#1 Monday, June 15, 2019 Miami-Dade County Commission on Ethics Robert Thompson, Community Affairs Specialist Miami-Dade County COE
#2 Monday, July 15, 2019 DERM-RER Natural Resources Programs Overview
Lisa Spadafina, Chief, RER-DERM Natural Resources
Division Miami-Dade County RER-DERM
Biscayne Bay Water Quality and Seagrass Report Summary
Pamela Sweeney, Manager, RER_DERM Restoration and
Enhancement Section Miami-Dade County RER-DERM
Biscayne Bay Habitat Restoration and Enhancement Program
Josh Mahoney, ERPS, RER-DERM Restoration and
Enhancement Section Miami-Dade County RER-DERM
Septic Tank Vulnerability to Sea Level Rise Report Virginia Walsh,P.G., Ph.D., Chief Hydrology Section Miami-Dade County Water and Sewer Department
#3 Monday, July 29, 2019 Resilience and Sea Level Rise Strategy James Murley, Chief Resilience Officer Miami-Dade County RER- Office of Resilience
Stormwater Regulatory- DERM Water Control Section Maria Molina, P.E. RER-DERM Water Control Section Miami-Dade County RER-DERM
Managing Stormwater…The Miami-Dade County Experience
Marina Blanco-Pape. P.E., Chief, RER-DERM Water
Management Division Miami-Dade County RER-DERM
Marine Debris Removal: DERM Coastal Resources Section John Ricisak, ERPS, RER-DERM Miami-Dade County RER-DERM
Volunteer Clean Up Organization Dave Doebler , Co-founder VolunteerCleanup .org
#4 Monday, August 12, 2019 RER-DERM Water and Wastewater
Carlos Hernandez, P.E. Chief, RER-DERM Water and
Waster Water Division Miami-Dade County RER-DERM
#5 Monday, August 26, 2019 Miami-Dade County Land Use Changes Kimberly Brown, AICP, Supervisor Planning Section, Miami-Dade County RER-Planning Division
Miami-Dade WASD Consent Decree Program
Lynnette Ramirez, P.E. Senior Advisor Capital Projects
and Compliance Miami-Dade County Water and Sewer Department
Miami-Dade WASD Capital Improvements and Operations Dr. Douglas Yoder, Deputy Director for Operations Miami-Dade County Water and Sewer Department
#6 Monday, September 9, 2019
The Role of Municipalities in Protecting Biscayne Bay: Miami Beach
Rising Above
Susanne Torriente, Assistant City Manager, Margarita
Kruyff, Assistant Director, Environment &
Sustainability Department, Roy Coley, Public Works
Director, Eric Carpenter, Assistant City Manager City of Miami Beach
#7 Wednesday, October 2, 2019 Water Management in the City of Miami Alan Dodd, P.E. Director Resilience and Public Works City of Miami
Biscayne Bay Task Force: What's Killing the Bay?Rachel Silverstein, Ph.D., Executive Director Miami Waterkeeper
#8 Tuesday, October 15, 2019 RER-DERM Environmental Monitoring & Restoration Division Wilbur Mayorga, P.E., Senior Division Chief Miami-Dade County RER-DERM
Macroalgae in Biscayne Bay Different Issues, Causes, and Challenges
Dr. Ligia Collado-Vides, Senior Lecturer, Florida
International University Florida International University
Water Quality of Biscayne Bay
Dr. Henry O. Briceno, Professor, Florida International
University Institute of Water and Environment, Southeast Environmental Research Center, FIU.
#9 Monday, October 28, 2019 Restoration Alternatives to TMDLs Julie Espy, Program Administrator Florida Department of Environmental Protection
Biscayne Bay Aquatic Preserves Laura Eldredge, Manager, BBAP Florida Department of Environmental Protection
#10 Monday, November 18, 2019
The Formation of the Tampa Bay Estuary Program & Recovery of
Tampa Bay Ed Sherwood, Executive Director Tampa Bay Estuary Program
Biscayne Bay Habitat Focus Area Joan Browder, Ph. D.NOAA National Marine Fisheries Science Center
Biscayne Bay Task Force Presentations
40
35
Appendix I- Presentations and Speakers received by Biscayne Bay Task Force, con’t.
#11 Monday, December 2, 2019 Biscayne Bay Marine Health Summit Luiz Rodrigues, Founder and Coordinator Biscayne Bay Marine Health Summit
#12 Monday, January 13, 2020
SFWMD: Operations of C&SF Water Control Structures
Discharging to Biscayne Bay Matahel Ansar, Ph.D., P.E. Section Chief SFWMD Applied Hydraulics Section, Hydrology & Hydraulics Bureau
Biscayne Bay Water Quality: SWIM Plan to CERP Lawrence Glenn, Director SFWMD Water Resources Division
Port Of Miami
Becky Hope, Chief of Planning and Property
Development Port of Miami
#13 Monday, January 27, 2020
WASD Sanitary Sewer System Performance & Asset
Management Jose Cueto, Assistant Director Miami-Dade County Water & Sewer Department
Coral Gables: Sustainability & Resiliency
Matt Anderson, Senior Sustainability Analyst and
Jorge Acevedo, P.E. Utilities & ROW Division
Chief City of Coral Gables
Coral Gables Tidal, Wetland and Water Quality Monitoring
Project Tiffany Troxler, Ph.D.FIU Center for Aquatic Chemistry and Environment
NOAA Biscayne Bay Water Quality Trends Dr. Christopher Kelble, Oceanographer
NOAA Atlantic Oceanographic and Meteorological Laboratory Ocean
Chemistry & Ecosystems Division
#14 Monday, February 10, 2020 FPL- Turley Point
Wilbur Mayorga, P.E. Senior Division Chief,
Environmental Monitoring & Restoration Division Miami-Dade County RER-DERM
Biscayne Bay Shoreline Development Review Committee
Gilbert Blanco, Supervisor-LEED AP, and Maria
Cedeno, Principle Planner- SDRC Coordinator Miami-Dade County RER-Development Services Division
#15 Monday, February 24, 2020 FIND- Biscayne Bay Restoration Partnership T. Spencer Crowley, FIND Miami Commissioner Florida Inland Navigation District
41
36
Appendix J- Proposed Organizational Structure of Water Management Board Illustrating the
Relationships Between Entities
MDC Board of County Commissioners (BCC): Receives reports from WMB for progress updates,
requests for funding through contracts, grants and disbursements, requests to collaborate, etc.
Biscayne Bay Watershed Management Board (WMB): Comprised of 11 members outlined in 2A
of the Governance section, the WMB will serve as a clearinghouse for the technical and
community outreach work. Members will have experience with issues related to Biscayne Bay and
are expected to leverage the professional and financial resources of their respective organizations
to effect goals of the Watershed Restoration Plan.
Chief Bay Officer (CBO): The CBO will advise the Miami-Dade County Mayor and the BCC and
manage the WMB and its committees. The CBO will also act as liaison with County departments,
County boards, external agencies, stakeholder groups, and local, state, and federal governments
on water quality issues, policies and appropriations related to the health and recovery of Biscayne
Bay.
Biscayne Bay Watershed Restoration Plan (WRP): WMB will, with technical and community
recommendations, review, recommend funding for and implement the Watershed Restoration
Plan (WRP) to achieve time-bound and measurable progress towards WRP goals to achieve water
quality and seagrass restoration and meet its mandate of Bay health, recovery, and resilience.
The WMB should establish and appoint committees to address specific Bay issues to advise and
make recommendations on policies, restoration projects, public information campaigns and
water quality monitoring and targets:
Technical Advisory Committee: Will serve as the technical experts to address those issues outlined
in the restoration plan and are expected to conduct work that will include but not be limited to
engaging with outside experts as needed, design and implement special studies, research and
propose innovative designs, standards, and best management practices. Sub-committees may be
created and chaired as designated by the Chief Bay Officer or County leadership. This committee
communicates with other committees and sub-committees as needed.
Community Advisory Committee: Will serve to implement the education and outreach restoration
goals and objectives and will be comprised of members of the community as designated by the
WMB or Chief Bay Officer. This committee communicates with other committees and sub-
committees as needed.
Nutrient Reduction Committee: Will serve as the technical experts whose mission is specific to
the identification (i.e., load, fate, and transport) and reduction of pollutant loading into surface
waters of the County. This committee communicates with other committees and sub-committees
as needed.
42
37
Appendix K- Senate Bill 712 – Clean Waterways Act
Appendix L- Miami-Dade County Report on Septic Systems Vulnerable to Sea Level Rise
Appendix M- American Society of Civil Engineers (ASCE) Standards 38-02
Appendix N- Miami-Dade County Parks and Open Spaces Master Plan
Appendix O- Resolution R-1260-19 - Creating an Educational Campaign Related to Proper
Disposal of Trash
Appendix P- Resolution R-1335-19 - Design and Place Signage to Education the Public about
Proper Disposal of Trash and the Impact of Littering on Biscayne Bay
43
38
Appendix Q- Seagrass Loss by Basin - 2019
44
39
Biscayne Bay Recovery At-a-Glance
WATER QUALITY
1A Establish science-based, pollutant load reduction goals and interim targets Short-Term (S)
1B Develop, implement, and continuously monitor and demonstrate progress toward meeting 1A’s
pollutant load reduction goals and interim targets Short-Term (S)
1C Activate additional Department of Regulatory and Economic Resources’ (RER) resource management
functions Immediate (I)
1D County should conduct an immediate assessment of land-based hotspot areas prioritized based on
existing, known impairments Immediate (I)
1E Review, develop (as needed), implement and enforce local ordinances and policies to attain pollution
load reduction goals set forth in the Watershed Restoration Plan (WRP) Short-Term (S)
1F Coordinate, staff and provide an annual budget for comprehensive, centralized Biscayne Bay
Watershed data and research coordination and data management infrastructure Immediate (I)
1G Undertake and secure funding for new pilot projects and research projects focused on reducing
pollutant loads Immediate (I)
1H Elevate and further amend the Comprehensive Develop Master Plan (CDMP) to further include
Biscayne Bay watershed management planning elements Mid-Term (M)
1I Conduct a climate change vulnerability assessment for Biscayne Bay Short-Term (S)
1J Initiate and fund studies that illuminate specific knowledge gaps for application toward watershed
restoration Immediate (I)
1K Pass a county-wide fertilizer ordinance Short-Term (S)
1L Increase compliance of all marinas and commercial operations along waterways Immediate (I)
1M Continue to monitor the progress of the October 7th, 2015 Consent Agreement between FP&L and
Miami-Dade County Immediate (I)
GOVERNANCE
2A Establish by ordinance a Biscayne Bay Watershed Management Board (WMB) Immediate (I)
2B The Mayor should appoint a Chief Bay Officer (CBO) and request funding for the position Immediate (I)
2C The WMB will, with technical and community recommendations, review, recommend funding for and
implement the Watershed Restoration Plan (WRP) Short-Term (S)
2D Develop a formal partnership in the form of a Memorandum of Understanding (MOU) with the
SFWMD Immediate (I)
2E Enable the alignment and coordination of County departments that takes a holistic, comprehensive
approach to Biscayne Bay recovery and resilience Immediate (I)
2F Develop a formal partnership in the form of a Memorandum of Understanding (MOU) with the Miami
River Commission Immediate (I)
INFRASTRUCTURE
3A Increase compliance with existing laws to result in the immediate connection of ~12,000 properties
to the sewer system Short-Term (S)
3B Develop and enforce septic system design criteria with design parameters Short-Term (S)
3C Initiate a mandatory septic system registration and inspection program Mid-Term (M)
3D Undertake immediate efforts to identify and eliminate all root causes of Sanitary Sewer Overflows
(SSO) including inflow and infiltration. Accelerate sewer infrastructure maintenance and upgrades Short-Term (S)
3E
Develop and expedite a Condition Assessment and Asset Management Action Plan to document the
condition of the County’s wastewater system assets and certify all historical “As Builts” and/or those
not already certified with a focus on identifying horizontal and vertical locations of main wastewater
transmission lines
Short-Term (S)
3F Enforce the existing code and update the stormwater design criteria to improve effectiveness
and include advances in stormwater treatment technologies Short-Term (S)
3G Develop a plan to prioritize the retrofitting of stormwater infrastructure within basins with the most
substantial water quality and/or habitat degradation issues Short-Term (S)
3H Eliminate direct and indirect stormwater discharges to Biscayne Bay Mid-Term (M)
3I Set policy that all As-Builts/Record Drawings are done and certified by a Florida Professional Surveyor
and Mapper qualified and registered to do work in Miami-Dade County Short-Term (S)
3J Set policy to require during the design phase of future construction that all existing utilities are
designated and located vertically and horizontally Short-Term (S)
3K
Ensure that new infrastructure projects to address coastal flooding and storm surge that are cost-
shared by the County adhere to the recommendations of this Task Force and prioritize Biscayne
Bay health and resilience
Short-Term (S)
Action Type
Actions that can be accomplished administratively within the County
Actions that require additional policy considerations
Actions that require further collaboration at the municipal, state, or federal level
Benchmark
Immediate (I) Less than one year
Short-Term (S) Between one and three years
Mid-Term (M) Greater than three years
45
40
Biscayne Bay Recovery At-a-Glance, con’t.
WATERSHED HABITAT RESTORATION AND NATURAL INFRASTRUCTURE
4A Develop ecologically acceptable living shoreline design options that are consistent with the existing
Biscayne Bay Aquatic Preserve Act Immediate (I)
4B Raise awareness of the value of mangroves through a homeowner education campaign Short-Term (S)
4C Increase enforcement of existing rules for protecting existing mangroves and mangrove shorelines Short-Term (S)
4D
Identify vulnerable properties along the coastline and partner with municipalities to focus on public
properties and private property owners to create a voluntary Mangrove Protection and Restoration
Zone Program
Short-Term (S)
4E Prioritize existing and identify new green and blue infrastructure approaches and restoration projects Immediate (I)
4F
Continue to work with SFWMD and to have the State of Florida allocate the funds necessary to ensure
the timely commencement of construction of the Cutler Flow Way in accordance with the project
timeline in the Integrated Delivery Schedule
Immediate (I)
4G Continue to advocate for funding to support the Biscayne Bay Southern Everglades Ecosystem
Restoration (BBSEER) project (also known as the BBCW / C-111) Mid-Term (M)
4H Establish seagrass targets and maintenance requirements Short-Term (S)
4I Accelerate green infrastructure solutions for flooding, resiliency, and water quality Short-Term (S)
MARINE DEBRIS
5A Create a comprehensive marine debris prevention, reduction, and removal program within DERM and
to adequately fund and staff the program Short-Term (S)
5B Establish a marine debris working group to promote collaboration on ways to reduce marine debris Short-Term (S)
5C
Through the Miami-Dade County Police Department, direct the Marine Patrol Unit to prioritize its
commitment to the enforcement of all applicable laws having a nexus to the environmental health of
the Bay and its tributaries
Short-Term (S)
5D Conduct an analysis of marine debris in Biscayne Bay Short-Term (S)
5E Adopt a target maximum input level policy for trash Short-Term (S)
5F Evaluate the various existing stormwater outfall systems throughout the county to determine their
effectiveness at preventing debris from entering Biscayne Bay Mid-Term (M)
5G Identify and establish dedicated and recurring funding sources to pay for marine debris prevention
and removal activities Immediate (I)
EDUCATION AND OUTREACH
6A Create a multi-lingual, multi-media campaign and educational outreach program Immediate (I)
6B Leverage the funding in the Community Based Organization grant program to create a special focus
on Biscayne Bay education Short-Term (S)
6C Conduct an educational campaign to inform the public on the proper and improper ways to dispose of
trash and the impacts of littering and marine debris to the health and management of Biscayne Bay Immediate (I)
6D Implement policies to reduce the amount of locally generated plastic marine debris Short-Term (S)
6E Build upon and increase volunteer clean-up activities county-wide Immediate (I)
6F Develop environmental sustainability and “plastic free” best practices Short-Term (S)
6G Support a “Living Laboratory for Bay Health” Short-Term (S)
6H Develop and implement a contractor and lawn care industry training program Short-Term (S)
6I Expand the scope of Baynanza to add year-round activities and
collaborate on Biscayne Bay Marine Health Summit activities Immediate (I)
FUNDING
7A Collaborate with the Miami-Dade Legislative Delegation and the Congressional Delegation to secure
annually appropriated funds to support Biscayne Bay watershed restoration Immediate (I)
7B Immediately engage in the legislative process to designate a Biscayne Bay License Plate Immediate (I)
7C Immediately enter into a cost-share partnership with SFWMD Immediate (I)
7D Collaborate with Florida Inland Navigational District (FIND) to immediately identify projects that will
improve water quality and restoration of the Biscayne Bay watershed Immediate (I)
7E Leverage municipal financial resources through interlocal agreements to supplement County funds Short-Term (S)
7F Develop a mechanism to collaborate with municipalities and work with the development community Short-Term (S)
7G Direct the preparation of a report of potential funding sources by the Office of Management and
Budget and the Office of Intergovernmental Affairs Immediate (I)
46
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 1/22
HOMEPAGE
‘Like Groundhog day’: New report has same
old findings on how to save Biscayne Bay
BY ADRIANA BRASILEIRO AND ALEX HARRIS
AUGUST 31, 2020 06:00 AM , UPDATED SEPTEMBER 01, 2020 12:55 PM
Thousands of dead fish washed ashore along different spots in Biscayne Bay on Monday. Alarmed residents
posted images on social media and alerted wildlife authorities. The water will be tested for harmful algae
blooms BY KATHRYN MIKESELL / SANDY MOISE
Listen to this article now
12:02 Powered by Trinity Audio
SHARESHARE
ORDER REPRINT →
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 2/22
There’s a new plan to save ailing Biscayne Bay, and it looks a lot like the old plan —
and the one before that.
For decades, scientists and environmentalists have done more than plead with
politicians to protect South Florida’s crown jewel: They’ve written studies, held
summits and presented action plans.
County managers and environmental agencies issued report cards for the bay, with
traffic-light indicators and lists of priorities. Alarms were sounded to warn policy-
makers about the slow death of the bay as contamination from crumbling sewage
pipes and failing septic tanks, stormwater runoff, overfishing, a warming ocean,
marine debris and the ever-growing pressure of development increased the risks
for the ecosystem that many consider a liquid reflection of Miami-Dade’s soul.
TOP ARTICLES
Tropical Storm Sally expected to hit Gulf Coast as a hurricane. Paulette nears
Bermuda
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 3/22
Yet even with climate change and sea-level rise adding a sense of urgency to the
search for long-term solutions, nothing truly transformative has happened.
Reports were shelved, programs that were working were sunsetted and political
attention went elsewhere.
Now, environmentalists are hoping the grim images of thousands of fish floating
belly up along seawalls and in shallow areas of north Biscayne Bay this month will
revive efforts to actually do something to protect the fragile marine environment
in Miami’s backyard.
“What’s wrong with the bay? Everything. Whose fault is it? Everybody’s. And we
already know most of the answers,” said Irela Bagué, chair of the Miami-Dade
County Biscayne Bay Task Force. “Talking about solutions for Biscayne Bay is like
Groundhog Day. I just hope that this fish kill will get everyone talking and that
we’ll find the political will to get things done.”
THE SAME OLD PROBLEMS
The most recent task force assembled a nine-member interdisciplinary group in
2019 to address the bay’s woes. Its report, which has been sent to Miami-Dade
County Mayor Carlos Gimenez, said a key problem is chronic pollution and that the
bay had reached a tipping point. The document is expected to be presented to
commissioners at their meeting on Monday, Aug 31.
The report focuses on water-quality restoration and recommends the creation of a
new entity called the Biscayne Bay Watershed Management Board to manage the
bay, complete with a chief officer to oversee and share information. The goal is
Today’s top headlines
Sign up for the Afternoon Update and get the day’s
biggest stories in your inbox.
Enter Email Address
SIGN UP
This site is protected by reCAPTCHA and the Google
Privacy Policy and Terms of Service apply.
en la familia.
para cada uno
Planes Unlimited
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 4/22
simple, and isn’t new: creating policies to address the multiple sources of yucky
stuff that has been polluting the bay for decades.
A dead fish floats on the surface of the water in Downtown Miami, Florida on Biscayne Bay on Wednesday,
August 12, 2020. Hot temperatures led to an abrupt drop in oxygen levels, making it impossible for fish to
survive. Daniel A. Varela DVARELA@MIAMIHERALD.COM
Local news has never
been more important
Subscribe for unlimited digital access to the news
that matters to your community.
#READLOCAL
___
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 5/22
Among the recommendations are massive infrastructure projects, like connecting
thousands of homes to the sewer system and eliminating stormwater discharges
into the bay, and easier goals, like a homeowner educational program to raise
awareness about the importance of mangroves. The report concludes with a handy
list of actions that can be taken immediately or in less than one year, between one
and three years, and in more than three years.
But the new plan doesn’t propose anything that hasn’t been suggested before, and
activists say there are plenty of additional steps the county and cities could have
taken to improve water quality. Complying with existing agreements to upgrade
the sewage infrastructure is one example, said Rachel Silverstein, executive
director of Miami Waterkeeper.
The urban end of Biscayne Bay that managed to survive decades of causeways and Jet Skis and
dredging, where acres of seagrass grew in water that remained gin clear despite all the pumping and
dumping from its coastal neighbors, is sick. BY EMILY MICHOT
“And how about approving a county ordinance prohibiting the use of fertilizers?
And also just stop deferring maintenance on infrastructure projects that we all
know need to get done,” she said. She also believes upgrades to Miami-Dade’s
sewer infrastructure could have been done faster, and connecting thousands of
homes from septic to sewer should have been figured out by now and in the works.
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 6/22
Scientists said what killed the fish was low dissolved oxygen due to higher salinity
levels and water temperature that was at least six degrees higher than the average
at this time of year — especially in shallow areas.
But the root cause of the widespread fish kills are still under investigation. Fish
and wildlife researchers didn’t find evidence of toxic algae blooms — although that
did happen after the kills, likely sparked by all the decaying marine life.
Heavier-than-average rain in July meant more stormwater runoff through the
canals that feed the northern part of the bay — and more fertilizer, dog poop and
other organic material running into the near-shore waters.
“The stage was already set for that to happen, with a high nutrient load going into
the bay, ” said Florida International University geochemist Henry Briceño. “We
have a big nutrient pollution problem.”
The bay has also been struggling with a worsening seagrass die off since 2013,
further cutting oxygen levels in areas and leading to spiraling problems.
BAY DETERIORATES UNDER DEVELOPMENT AND POLLUTION
Researchers also point to repeated failures by policy-makers and county managers
to do more to address the key causes of Biscayne Bay’s issues — nutrient pollution.
U n l i m i t
Alex and Ani
-25%
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 7/22
There has been plenty of data collected on its damage over the decades.
Historically, stormwater runoff, sewage spills and septic-tank malfunction have
been key parts of the equation, and researchers have been warning against septic
tanks (especially in coastal areas) since the 1970s. Back then, Miami-Dade was
among the nation’s fastest-growing counties, installing tens of thousands of septic
systems, which can leach into ground and bay waters. It was common for outfalls
to empty directly into the bay.
As far back as 1975, a report from the U.S. Department of the Interior advocated
for a reduction in septic tanks in the county, especially in northern coastal areas.
Groundwater quality and the bay suffered in areas of more density, the report
said.
County environmental staff responded with the Biscayne Bay Management Plan,
an in-depth study with extensive recommendations, including the creation of an
oversight body. The Biscayne Bay Management Committee was formed in 1981,
with representatives from all the governmental agencies that had a stake in
regulating the bay.
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 8/22
They met regularly and were able to implement most recommendations of the
Plan: extensive replanting of mangroves and sea grasses, improving fish stocks,
extensive building of buffering rip-rap (rocks that are placed to protect from
flooding) along the shoreline and the creation of the Shoreline Development
Trash and dead fish float on the surface of the water in Downtown Miami, Florida on Biscayne Bay on
Wednesday, August 12, 2020. Daniel A. Varela DVARELA@MIAMIHERALD.COM
Alex and Ani
-25%
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 9/22
Review Board to influence development decisions impacting the bay. Biscayne Bay
experienced a renaissance later that decade thanks to many of those well-
coordinated initiatives, said Susan Markley, who led Miami-Dade’s natural-
resources division and retired in 2014.
But the committee was phased out in 1992 — underlining that while there have
been temporary rebounds, politics and shifting priorities often get in the way of
the sustained health of the bay.
In 1999, the Florida Legislature created the Biscayne Bay Partnership Initiative,
with a mission to develop “an open and inclusive, community-based forum to
survey public and private sector activities and programs affecting Biscayne Bay,
and to provide recommendations for actions to protect, improve, and enhance the
bay’s resources, its social, economic, and natural values, with its ecological health
as a priority.”
But the bay’s health deteriorated anyway, especially after 2005 when two
hurricanes hit the area, triggering harmful algae blooms that smothered seagrass
meadows and weakened the bay’s coral reefs.
THREE SOURCES OF TROUBLE
In recent years, advocates have sought to sharpen the focus on the main suspects
that have worsened water quality across the bay: aging sewer lines, leaky septic
systems and polluted water flowing from canals filled with high levels of nutrients.
Activists like Waterkeeper say the county needs to do a better job to comply with a
federally mandated order to repair its decaying sewer system to reduce the
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 10/22
nutrient load going into the bay.
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 11/22
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 12/22
The county is under a $1.6 billion federal court order issued in 2014 to replace
pipes and treatment plants that often fail, spilling millions of gallons into streets
and waterways. The sewage almost always end up in Biscayne Bay. As of the most
recent status report published in March, the county met only eight out of 18
interim deadlines for projects and only two out of five final construction deadlines
during the reporting period from July to Dec. 2019.
And then there is the septic issue. Conversion of leaky septic tanks to sewer is
another ambitious project that has been proposed several times as a key solution
for the bay’s woes since the 1970s. The county itself said two years ago that it’s a
major problem, exacerbated by rising seas.
Nearly 58,000 septic tanks in the county are already vulnerable to compromise in
storms or floods. By 2030, that could rise to more than 67,000.
There is even a law saying that Miami-Dade has to convert any septic tank that’s
close enough to a county sewage line, but the high price tag and political
unpopularity of forcing private residents to pay for the upgrade have led to
thousands of exemptions.
Once again, it’s included in the most recent Biscayne Bay Task force report:
“Increase compliance with existing laws on septic systems so that they are fully
Biscayne Bay has lost more than 80 percent of its seagrass meadows over the past decade. Environmental
agencies have blamed chronic pollution brought on by dirty canals, increasing floodwater and leaky septic
tanks in older neighborhoods. Caitlin Granfield MIAMI
Advil 200 Mg Ibuprofen, Pain Reliever and…
$20.55
203
Shop now
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 13/22
enforced, resulting in the connection of 12,000 properties to the sewer system and
reducing the number of new septic systems in coastal/waterfront areas.”
READ NEXT
So why hasn’t all this been done?
“We are deferring maintenance on our environment, we are not using best
practices, the can has been kicked down the road for so long, on pump stations, on
sewer lines. I’m sure everyone here has drafted a report at some point but nobody
acted on it,” said state Sen. Jason Pizzo, who organized a Zoom meeting with a
who’s who of Biscayne Bay science, policy, regulation and advocacy a few days
after the fish kill this month.
It included Noah Valenstein, the head of Florida’s Department of Environmental
Protection; Lee Hefty, Miami-Dade’s director of the Department of Environmental
Resources, an agency best known as DERM; Todd Crowl, director of Florida
International University’s Institute of the Environment; and others.
They all agreed on the urgent need for a system to put all the pieces of the puzzle
together to create a long-term plan for a more resilient bay. Hefty agreed that there
ENVIRONMENT
A $3 billion problem: Miami-Dade’s septic tanks are already failing due to sea
rise
JANUARY 10, 2019 7:00 AM
Advil Liqui-Gels Pain Reliever and Fever …
$11.27 $11.86
Subscribe & Save
Save 5%
1,191
Shop now
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 14/22
is a nutrient problem but said things are more complicated than that: for many
years, there were nutrients going into the bay and that wasn’t a huge problem.
Now, there are many other factors contributing to the bay’s lack of resiliency.
“What we really need is behavior change in all of us, in the way we fertilize our
lawn, when we wash our cars, when you see the lawn guys blowing clippings into
the street, where do you think it goes? It goes in the storm drain and ends up
adding nutrients into the bay,” Hefty said.
SOLUTIONS IGNORED, SCIENCE OVERLOOKED
But it’s not always easy to get county commissioners to listen. Just a few years ago,
when the alarm was raised about dying seagrass, no meaningful action was taken.
After the 2017 seagrass die off, concerned bay watchers brought the County
Commission a plan to create a Biscayne Bay Restoration Initiative modeled off a
successful 2008 effort for the Lake Worth Lagoon.
The initiative would have put all the groups that have a stake in the bay at one
table and focused on improving environmental quality by finding funding for
restoration projects and monitoring programs.
In Lake Worth, the initiative used grants to upgrade the neighborhoods with the
leakiest septic tanks onto sewer, as well as create 70 acres of new habitat,
including mangroves, oyster beds and artificial coral reefs. From 2008 to 2012
alone, the Lake Worth Lagoon Initiative brought in $26.3 million for restoration
projects.
Advil 200 Mg Ibuprofen, Pain Reliever and…
$20.55
203
Shop now
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 15/22
When the Miami-Dade group — including representatives from Miami
Waterkeeper, the South Florida Water Management District and the Florida Inland
Navigation District — took the idea to commissioners in 2017, nothing happened. A
few commissioners appeared interested in the drafted resolution, which called for
the commission to fund one full-time staffer to assist the initiative, but some
refused to even meet with the bay watchers.
“We presented that to the county and the county did not believe that it was a
solution and so they decided not to move forward with it,” said Spencer Crowley,
an attorney for Akerman and a Miami-Dade commissioner for FIND.
“Unfortunately, that’s what happened, and now we’re seeing the results of that
inaction.”
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 16/22
“In 2017, we were worried about seagrass die offs, but now we have fish kills,” he
said. “Those fish kills could have been avoided if we had a structure and a process
that was functioning and we had members of all these different organizations
communicating about issues with the bay.”
Instead, the county created another task force that year, like the Partnership
Initiative funded by the legislature in 1999. That initiative last updated its “action
items” list in 2010. Those action items were mostly about coordinating agencies or
finding opportunities to present about the bay to politicians or scientific meetings.
Even the chair of the current task force admits that there is a lot of data and
science that has been overlooked and perhaps wasted because of a lack of
coordination. Bagué, the chair of the Miami-Dade County Biscayne Bay Task Force,
is hoping the new report will help connect all interests together, and that the fish-
kill momentum will last long enough to spur real action.
Dozens of boaters anchored off Key Biscayne on Sunday, May 25, 2014, atop an area in the bay known as the
Mashta Flats. The area is an ecologically fragile flats, with sea grass beds. Melissa M. White
MIAMI HERALD FILE
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 17/22
“Everybody is doing great work, producing research, filing bills, passing
ordinances, but it’s not done in a collective manner. Nobody is coordinating with
anybody, even internally at the county,” Bagué said. “Whatever we create now, it
must be permanent. The bay has enormous value, without the bay there is no local
economy.”
1 of 21 of 2
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 18/22
ADRIANA BRASILEIRO (305) 376-2576
Adriana Brasileiro covers environmental news at the Miami Herald. Previously she covered climate change,
business, political and general news as a correspondent for the world’s top news organizations: Thomson
Reuters, Dow Jones - The Wall Street Journal and Bloomberg, based in São Paulo, Rio de Janeiro, Paris and
Santiago.
FROM OUR ADVERTISING PARTNERS
This Company Has Found
a Radically New Way to
Protect Your Gutters! Read
More!
LEAFFILTER PARTNER
The States Where
Americans Don't Want To
Live Anymore
MONEYWISE.COM
New York Doctor "I Beg
Americans To Throw Out
This Vegetable Now"
WELLNESSGUIDE2020
The Horrifying Truth
About CBD
TOMMY CHONG
Business towers and luxury condos in Brickell have stunning views of Biscayne Bay. Development in the
downtown area has contributed to the bay’s pollution troubles. PEDRO PORTAL
PPORTAL@MIAMIHERALD.COM
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 19/22
COMMENTS
All Senior Drivers Should
Claim This Large Reward
(Check If You Qualify)
COMPARISONS.ORG
Diabetics: Here's How To
Lower Blood Sugar (It's
Genius!)
WEEKLYPENNY.COM
ENVIRONMENT
Miami Wilds lease is
approved for zoo
parking lot where
rare Florida bats live
BY ADRIANA BRASILEIRO
SEPTEMBER 11, 2020 08:44 PM ,
UPDATED SEPTEMBER 11, 2020 09:07 PM
County officials approved a lease
TRENDING STORIES
U.S. offering breaks on
immigration deadlines due to
pandemic — but higher fees await
UPDATED SEPTEMBER 12, 2020 06:24 PM
Florida reports 2,423 new COVID-
19 cases and the fewest deaths
since June
UPDATED SEPTEMBER 13, 2020 02:37 PM
Tropical Storm Sally expected to hit
Gulf Coast as a hurricane. Paulette
nears Bermuda
UPDATED 2 HOURS 17 MINUTES AGO
COVID-19 cases and deaths decline
across Florida, with 3,190 new
cases and 98 deaths
UPDATED SEPTEMBER 13, 2020 12:04 PM
READ NEXT
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 20/22
County officials approved a lease
agreement for a water park slated to be
built on Zoo Miami’s parking lot next to the
last remnant of pine rockland, home to one
of the world’s most endangered bats.
KEEP READING ➔
Ryan Fitzpatrick has a terrible day
for the Miami Dolphins. So is it Tua
Tagovailoa time?
UPDATED SEPTEMBER 13, 2020 07:22 PM
Local news has never been
more important
#ReadLocal
Subscribe for unlimited digital access to the news that matters to your community.
#READLOCAL
FLORIDA
Alligator attacked woman as she
was trimming trees near a Florida
lake
UPDATED SEPTEMBER 11, 2020 01:42 PM
ENVIRONMENT
‘More heat, less Florida’: Advocates
draw attention to climate change’s
main impact
UPDATED SEPTEMBER 10, 2020 08:43 AM
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 21/22
ENVIRONMENT
Miami Wilds water park plan
downsized but activists push for
restoring rare forest instead
SEPTEMBER 10, 2020 6:00 AM
POLITICS
In Miami’s tightest U.S. House race,
Gimenez, Mucarsel-Powell differ
sharply on policy
UPDATED SEPTEMBER 09, 2020 08:46 AM
POLITICS
Trump signs order extending and
expanding oil drilling moratorium
off Florida’s shores
UPDATED SEPTEMBER 08, 2020 05:59 PM
SPONSORED CONTENT
7 Mistakes You're Making With
Your Money During the Pandemic
BY THE PENNY HOARDER
Take Us With You
Real-time updates and all local stories you want
right in the palm of your hand.
MIAMI HERALD APP ➔
9/14/2020 Biscayne Bay’s problems (and solutions) ignored for decades | Miami Herald
https://www.miamiherald.com/article245306740.html 22/22
COPYRIGHT
COMMENTING POLICY
PRIVACY POLICY
TERMS OF SERVICE
VIEW NEWSLETTERS ➔
SUBSCRIPTIONS
Start a Subscription
Customer Service
eEdition
Vacation Hold
Pay Your Bill
LEARN MORE
About Us
Contact Us
Newsletters
News in Education
Public Insight Network
Reader Panel
Archives
ADVERTISING
Place a Classified
Media Kit
Public Notices
MIAMI BEACH
OFFICE OF THE CITY MANAGER
NO. LTC# 446-2019 LETTER TO COMMISSION
TO: Mayor Dan Gelber and Members of the City Co mission
FROM: Jimmy L. Morales, City Manager 1 41.4
DATE: August 9, 2019
SUBJECT: GRAND JURY REPORT RE a ARDING HEALTH OF BISCAYNE BAY
The purpose of this Letter to Commission is to share with the Mayor and Commission the Report
on the Health of Biscayne Bay issued by the Fall Term Miami-Dade County Grand Jury convened
by State Attorney Katherine Fernandez Rundle. The 33-page report was issued yesterday and has
been in the works since last November. A copy of the report is attached hereto and a link to the
WLRN coverage of the report is set forth below:
https://www.wlrn.org/post/ grand-iurv-report-warns-health-biscavne-bav-tipping-point
Let me first reiterate what my administration and our outstanding team of experts on my Resilience
team, the Public Works department, and the Environment and Sustainability department have
been saying for several years. The challenges that face Biscayne Bay require a regional approach
to tackle the many factors that contribute to the water quality issues and the degradation of that
precious ecosystem. We continue our efforts to work with our County and municipal partners in
that regard.
But, considering the amount of social media and other attention that has been drawn to our
stormwater pumps and the public comments of those (whether for political reasons or otherwise)
who seem to blame our relatively recent stormwater initiatives for all that ails Biscayne Bay, it is
impossible to ignore that not once in the 33-page report does the Grand Jury ever mention our
stormwater pumps or otherwise even hint that our City's efforts are uniquely and adversely
impacting the bay. There is a general discussion of stormwater runoff that focuses on the nutrients
that flow into Biscayne Bay. The report points out,for example, that approximately 100,000 pounds
of dog feces is deposited into the County daily and much of that gets into the stormwater system,
and into the Bay. It also discusses runoff from suburban lawns as a major source of fertilizer
pollution. Again, these are not issues unique to Miami Beach and certainly all of the jurisdictions
in the County need to address the quality of stormwater that enters the canals and bays. But at
no point in the report is there any mention of the conversion of our stormwater system from
gravity to pumped as a special or unique threat to Biscayne Bay.
It is important to highlight the issues that the Grand Jury indicates are serious challenges and the
ways that our City is trying to address them:
1. Septic Tanks: Approximately 105,000 properties in Miami-Dade County are on septic
tanks. The Grand Jury views these as a serious threat to both Biscayne Bay and our fresh
water supply. Every property in the City is connected to central sewer; there are no
septic tanks in Miami Beach.
2. Sewage Contamination: The Grand Jury discovered that leaking and broken sanitary
sewer pipes in the Miami Dade Water and Sewer system have contributed to the spilling of
millions of gallons of sewage directly in Biscayne Bay. The report goes into great detail on
this point, going back almost a decade. As you know, the City's neighborhood projects
not only address stormwater, but also replace old and faulty sanitary sewer and
water pipes. We are doing that at our cost and any delays in our projects also delay
upgrading this critical infrastructure. Please also note that in the last couple of years,
the City installed a redundant sanitary sewer main, at the City's cost, to help address
problems that might arise from the existing old sewer main. Just recently, that redundant
pipe proved very useful when a private contractor ruptured the sewer main on 5th street.
We were able to re-route the sewage to the redundant line while we repaired the old line
and thereby reduced the amount of any spillage.
3. Hard debris: The report highlights how plastics, glass, aluminum cans and other trash find
their way into the stormwater system and, therefore, into the Bay. The
City is aware of this and our program includes several elements to address this:
a. The stormwater pumps use trash racks to capture all solid objects. (See
picture attached hereto).
b. The City cleans its canals 3x a week, up from twice a week prior to our
program.
c. The City cleans out the entire stormwater system (all pipes) once a year,
compared to once every 3-5 years prior to our program.
d. The City has been a leader in trying to reduce "single use" plastics in our
community.
e. We have a robust street cleaning program (and are trying to improve that with
the alternate side street cleaning program).
I believe that there are few, if any, cities in South Florida that can match our efforts to prevent
debris from entering our stormwater system and therefore be discharged into the Bay.
4. Sediment: The Grand Jury notes that sediments flowing into the Bay can also be harmful.
The City is aware of this and our stormwater pumps include vortex structures that
capture a significant amount of the sediment.
5. Excessive Nutrients: The report discusses that excess nutrients (e.g. nitrogen and
phosphorus) allow algae blooms to thrive, which can harm fish and underwater plants by
reducing or eliminating oxygen in the water. The Grand Jury highlights three principal
sources of these nutrients:
i. Nutrients used in agricultural activities that make their way into the canal
system and then into the Bay.
ii. Leaks from the County wastewater system.
iii. Stormwater runoff.
As I noted earlier in the LTC, we have never denied that stormwater is a factor that
contributes to issues in the Bay and we are sensitive to the nutrient content of the water
we discharge. Towards that end:
a. We have established 35 monitoring stations to test our water quality;
b. We have 95 doggie bag dispensers across the city, plus another 119
dispensers in our City parks, to encourage dog owners to pick up the dog
feces and prevent it from entering the stormwater system;
c. Our Integrated Water Management Strategy, which is expected to be
finalized by the end of the year, will leverage green infrastructure to
reduce nutrient loads into the bay;
d. Our enhanced street cleaning program also helps in this effort.; and
e. We are working on a water quality education campaign focusing on
pollution prevention to be released this fall.
I commend the Grand Jury, and State Attorney Katherine Fernandez Rundle, for showing great
leadership on this issue. In an objective, apolitical analysis, they have highlighted the biggest
threats to Biscayne Bay, and identified possible remedies and strategies. Many of these will
require political courage, particularly when it comes to spending the dollars necessary to fix the
County's wastewater system, eliminate septic tanks and other measures that will be necessary in
the long term. This City Commission has shown such leadership in moving forward a stormwater
program that tries to strike a balance between meeting the challenges of climate change and sea
level rise, while still protecting our precious assets like Biscayne Bay and the aquatic ecosystem.
We can always do better in this regard, and we will continue to strive to do so. But I thought it was
important to note that we are but one of many actors and stakeholders that need to come to the
table and do the right thing. Talking about Miami Beach spending billions of dollars for deep well
injection of stormwater (which nobody does) while raw sewage and heavy agricultural nutrients
are pouring into the Bay from sources on the mainland makes no sense. We look forward to
working with our neighbors to come up with regional solutions to what is a regional problem.
gy= .s.
w
t
A
1,
J
a . A
x.13 ,ti43
1. ,'.t i,1 . -A
A.
mor 1.,... {. p r + R"
ti
Com'•
f+
40iie,
N.,,s
a
i i ** 7‘r) -Y,I I, I
1111e1 . 41794ik'' .
i.,
00`04'.:‘,;,.41.1
111h 1
i0r47., Ili\#ri0 *- ' Ai
P314
tilt,
k s v
qiipU1t1tk- ‘‘ ' ' ''*'‘‘ 4 I 4%i ,
k,,,,:, ,,T,#
c
N,,.
44( "
I/ II 11 .‘;‘,\ " ., ' ,, 3. ' i 1 '440' 44' 'al%'•41P4_' .:. '
e
IN THE CIRCUIT COURT OF THE ELEVENTH JUDICIAL CIRCUIT
OF FLORIDA IN AND FOR THE COUNTY OF MIAMI-DADE
FINAL REPORT
OF THE
MIAMI-DADE COUNTY GRAND JURY
FALL TERM A.D. 2018
State Attorney
KATHERINE FERNANDEZ RUNDLE
Chief Assistant State Attorney
DON L.HORN
Chief Assistant State Attorney for Special Prosecutions
HOWARD ROSEN
Assistant State Attorneys
DAVID MAER
JOHN PERIKLES
ROBERT BEHAR ERIK KESSLER
VICE FOREPERSON ACTING CLERK
FILED
August 8, 2019
INDEX
Page
THE HEALTH OF BISCAYNE BAY: WATER FLOWS AND WATER WOES 1-27
I. INTRODUCTION 1
II. SEWAGE CONTAMINATION 2
A. Direct Discharge of Sewage(Wastewater) Into The Ocean 4
B. Leaking Sewer Pipes 4
III. HARD DEBRIS: TRASH FLOWING INTO OUR WATERWAYS 8
A. Clean Up Efforts 8
B. Plastics 10
C. Sediment 14
IV. EXCESSIVE NUTRIENTS 15
A. Stormwater Runoff 16
B. Agricultural Activities 16
C. Wastewater Sewer Systems 17
V. CONTAMINATION OF THE BISCAYNE AQUIFER — THE SOURCE OF OUR
DRINKING WATER 17
A. Septic Tanks 17
B. Hypersalinity of Water in Cooling Canals at Florida Power and Light's Turkey Point
Power Plant 24
C. The Saltwater Plume 25
VI. CONCLUSION 27
INDICTMENTS 28-29
ACKNOWLEDGMENTS 30
THE HEALTH OF BISCAYNE BAY:
WATER FLOWS AND WATER WOES
I. INTRODUCTION
Water is essential for human life. Up to 60 percent of the human body of an adult is
comprised of water. The brain and heart are 73 percent water. Lungs are 83 percent water. The
skin is 64 percent water. Muscles and kidneys are 79 percent water,while bones are 31 percent.'
Water also serves a number of essential functions within the human organism. It is a vital building
material in every cell in our bodies. Through the processes of respiration and sweating, water
regulates our internal body temperature. Water forms saliva,which assists in the digestive process.
The carbohydrates and proteins that our bodies use as food are metabolized and transported by
water in the bloodstream. Water assists in flushing waste from our bodies through urination.
Water acts as a shock absorber for our brain and our spinal cord, and it also lubricates our joints.2
To survive, humans must consume a certain amount of water each day, depending upon
age, gender,and where one lives. Generally,an adult male needs about 3.2 quarts of water a day,
while an adult female needs about 2.3 quarts of water a day. Some of this water comes from food,
but much of it is taken in through drinking fluids, including water.3 While humans may go up to
three weeks without food, they can only survive for three or four days without water.
Not only is water essential for individuals to survive, but in South Florida,water is just as
essential for our way of life. The main economic engine which drives the economy in South
Florida is tourism. In 2018,Greater Miami had a record number of 16.5 million overnight visitors.4
These visitors spent almost $18 billion dollars in Greater Miami.5 Eighty-four percent of the
international tourists and seventy-two percent of the domestic tourists came for vacation or
pleasure.' The importance of the quality of our water to our economy is reflected in the fact that
The Chemical Composition of The Adult Human Body And Its Bearing On The Biochemistry Of Growth,by Ii. H.
Mitchell,T.S. Hamilton,F. R.Steggerda,and H.W. Bean,Journal of Biological Chemistry, 1945, 158:625-637.
z United States Geological Survey(U.S.G.S.),Water Science School,The Water in You:Water and the Human Body;
available at https://www.usgs.gov/special-topic/water-science-school/science/water-you-water-and-human-body?gt-
science center_objects=0#qt-science center objects
Ibid.
Greater Miami and the Beaches,2018 Visitor Industry Overview,presented by the Greater Miami Convention&
Visitors Bureau,at page 7.
5 Ibid,at page 39.
lbid,at page 14.
1
our beaches were the most popular destinations for tourists to visit. In fact, fifty-three percent of
our international tourists and forty-four percent of our domestic tourists visited a beach during
their stay in Greater Miami.' Both the international visitors and the domestic visitors reported that
our beaches were the "most liked"feature of their visit.$
Florida is the southeasternmost state in our nation, and South Florida is located at the
southeasternmost corner of our peninsula. We are located in a subtropical climate, between the
Atlantic Ocean and the Florida Everglades. Our community sprang forth from a settlement along
the Miami River,and expanded west toward the Everglades,and east,across Biscayne Bay, to the
barrier islands. Biscayne Bay sits as the crown jewel of our environment. Biscayne Bay is an
estuary where freshwater from the mainland mixes with saltwater from the Atlantic Ocean. It is a
source of numerous recreational and commercial activities, including boating, fishing, cruising,
diving, and sightseeing. Clearly, the health and cleanliness of Biscayne Bay is vital to our
community and to our economy.
However,Biscayne Bay is now in a precarious balance. The State of Florida has designated
some portions of Biscayne Bay's waterways as "impaired". There are three (3) major problems
that are contributing to the State's "impaired" designation and negatively impacting the water
quality of Biscayne Bay:
1. Sewage contamination,which results in excessive amounts of harmful bacteria;
2. The presence of excess nutrients, which results in destructive algal blooms;and
3. Pollution and littering, which result in massive amounts of trash being discharged
into the bay via our storm drainage system.
As a result of these three factors Biscayne Bay is at a tipping point. Without corrective action, the
declining quality of this body of water may become irreversible.
II. SEWAGE CONTAMINATION
The Miami-Dade Water and Sewer Department (hereinafter MDWSD) has two main
responsibilities. First,the Department is responsible for supplying freshwater to its customers, the
residents and businesses in Miami-Dade County. To accomplish this goal MDWSD operates and
Mid,at page 23.
8 Mid,at page 3 I.
2
maintains 3 large regional water treatment plants, 5 small water treatment plants, and the Hialeah
Reverse Osmosis Water Treatment Plant(hereinafter WTP). Using 8,500 miles of pipe MDWSD
supplies an average of 320 million gallons of water a day to its 450,000 retail and 15 wholesale
customers.
MDWSD's second responsibility is to treat and dispose of all wastewater in Miami-Dade
County. Wastewater is generated by both residential ( single-family residences and apartment
buildings) and commercial (office buildings, businesses, shopping centers, and restaurants)
sources. Wastewater from these settings primarily originates from water use associated with
bathrooms (toilets, sinks, and showers), laundries (washing machines and sinks), kitchens ( sinks
and garbage disposals), and general cleaning (utility sinks). Industrial, manufacturing, and
institutional facilities also generate wastewater that has to be disposed of.
To treat and dispose of all of the wastewater in Miami-Dade County, MDWSD operates
three (3) wastewater treatment plants, which collect, treat, and dispose of 300 million gallons of
wastewater a day. This equates to approximately 120 gallons per day for every resident of Miami-
Dade County. The wastewater system is comprised of a labyrinth of 6,500 miles of main pipes
and laterals, as well as over a thousand sewer pump stations which keep the flow of wastewater
moving. The three large wastewater treatment facilities are: 1)the North District WTP,located at
Florida International University North; 2) the Central District WTP, located at Key
Biscayne/Virginia Key;and 3)the South District WTP,located at Black Point Marina. The Central
District WTP processes the highest volume of wastewater.
There are three main steps to treating wastewater. The primary process consists of
removing grit such as sticks,rocks,toilet wipes,paper towels, feces, and other hard debris. In the
secondary process, microbes are utilized. These microbes, when exposed to oxygen, serve to kill
organic material. The final process involves the addition of chlorine.
Once treated, wastewater from the three treatment plants—which is referred to as effluent
is disposed of in one of two different ways; deep injection wells or ocean outfall. The deep
injection well process involves injecting the effluent deep underground. All of the effluent from
the South District WTP and some of the effluent from the North District WTP is disposed of via
deep injection.
3
A. Direct Discharge of Sewage(Wastewater) Into the Ocean
The second way for the disposing of wastewater is ocean outfall. Ocean outfall involves
the discharge of effluent three(3)miles offshore into the Gulfstream Current in the Atlantic Ocean
in 100 foot deep water through 96-inch pipes which lie on the bottom of Biscayne Bay. All of the
effluent from the Central District WTP—which has the highest volume—and some of the effluent
from the North District WTP is disposed of in this manner. The average daily amount of effluent
disposed of via the ocean outfall pipe from the Central District WTP on Key BiscayneNirginia
Key is 143 million gallons of sewage a day.
While we were told that ninety-six(96) percent of this effluent goes into the ocean and is
swept away from our coast, we were also told that there is a four(4)percent chance that some of
it will return to our coast. The idea that our wastewater, whether treated or not, is being pumped
into our most valuable resource, our ocean and Bay, is extremely troubling. We were happy to
hear that legislation enacted in 2008 mandates that by the year 2025 the Miami-Dade Water and
Sewer Department will no longer be able to dispose of wastewater via the ocean outfall process.
In 2025 there will be a permanent ban on dumping treated sewage directly into our waterways.
We implore all parties to make sure that other disposal processes will be created and will be in
place to ensure strict compliance with the impending timeline.
B. Leaking Sewer Pipes
In addition to the sewage and wastewater that is intentionally being discharged into the
Atlantic Ocean, this Grand Jury discovered that leaking, broken and busted sewer pipes have
contributed to the spilling of millions of gallons of sewage directly into Biscayne Bay. Significant
portions of the 6,500 miles of main pipes and laterals in the MDWSD wastewater system are old,
and in need of replacement. MDWSD is supposed to assess and make repairs to the entire system
of pipes on a ten (10) year cycle. However, we heard testimony that approximately half of the
water being treated at the wastewater treatment facilities is mostly groundwater that has seeped
into,and actually intruded into the wastewater system through leaks and cracks in the sewer pipes.
A plethora of media accounts over the past several years reveal the poor condition of the
pipes and demonstrates how frequently significant breaks in our sewage system cause thousands
https://www.miamiherald.com/news/local/environment/article I64655777.html
4
of gallons of raw sewage to pour into our Bay. On a summer evening in 2010, a break in a 72-
inch(6 foot) sewer line at N.W. 18th Avenue and 157th Street caused a spill that lasted for about
twelve (12) hours before it was stopped. During those twelve (12) hours, roughly 20 million
gallons of sewage spilled into the Biscayne Canal. The Biscayne Canal empties into Biscayne Bay
in the Miami Shores area. The day after the break in the 6-foot sewer line, health officials issued
an advisory regarding sewage contamination in Biscayne Bay. The advisory affected the area from
Oleta River State Park, near the rupture point, south to the Julia Tuttle Causeway, including 13a1
Harbour Beach and Haulover Park. People were advised to avoid all swimming and recreational
activities in the area.10
An article in the Palm Beach Post from 2012 started by stating that"Miami-Dade County's
antiquated sewer system has ruptured at least 65 times over the past two years,spewing more than
47 million gallons of untreated human waste into waterways and streets from rural South Miami-
Dade to the ritzy condos of Brickell Avenue to the Broward County Border."" The article stated
that many of the leaks were relatively minor, posing minimal public health concerns, but that at
least eight(8) leaks topped 100,000 gallons. Six other leaks released more than a million gallons
of raw sewage "from rusted valves or cracked concrete-and-steel pipes that county engineers
acknowledge had long out-lived their intended life span."I2
Between October and December of 2011, four (4) separate sewage system failures sent a
total of more than 19 million gallons spilling from the Central District Wastewater Treatment
Plant.13 One of those spills,on October 9,2011, spilled 17 million gallons of raw sewage.14 Three
weeks later,on October 31,2011,as operators shifted from a generator to the power grid there was
a power outage. That power outage caused another million gallons of partially treated sewage to
spill out of a relief valve directly into Biscayne Bay. Again, Miami-Dade County was forced to
issue a"no-swimming"advisory for the affected areas.
Miami-Dade County has two(2)96-inch ocean outfall pipes that transport sewage directly
out and into the Atlantic Ocean. The two (2) ocean outfall pipes in Miami-Dade County were
10 https://www.sun-sentinel.com/news/fl-xpm-2010-06-20-fl-biscayne-bay-sewage-062110-20100620-story.html
https://www.pahnbeachpost.com/article/20120515/NEWS/812032210
12!bid.
Ibid.
a Ibid.
5
constructed in 1956 and 1975.'' One of the 96-inch ocean outfall pipes, the one from the Central
District WTP located at Key Biscayne/Virginia Key, was leaking sewage in shallow water within
one mile of Fisher Island.16 Although the pipe was repaired in the summer of 2017,it was reported
that the pipe had been leaking for at least a year. A lobster fisherman purportedly reported the
broken ocean outfall pipe to MDWSD officials in August of 2016.17
We discovered during our investigation that what might start out as a relatively small or
insignificant problem in the sewage system could still have a major impact upon Biscayne Bay.
For instance, in August of 2018, a faulty grease trap at a local restaurant caused a sewage leak.
The restaurant located near the 1800 block of the John F. Kennedy Causeway(N.E. 79th Street)
on Treasure Island in North Bay Village, for all intents and purposes, sits on a small island in the
middle of Biscayne Bay, between the mainland and Miami Beach. Because of the restaurant's
location when the grease trap malfunctioned the resultant sewage spill poured directly into
Biscayne Bay. North Bay Village had to call in Miami-Dade County's Department of
Environmental Resources Management to help contain the spill.18
This past October, during a routine daily inspection of the pump stations on the City of
Miami Beach,city inspectors discovered cracks in a wastewater pipe under the bridge to La Gorce
Island. Though the leak lasted less than sixteen(16)hours, the inspectors believe that during that
time approximately 800 gallons of raw sewage leaked out of the pipe and directly into Biscayne
Bay.'9
On Tuesday, December 4th, 2018, during the week of Art Basel, which brings thousands
of visitors and millions of dollars into our community, a construction contractor broke a 16-inch
sewage pipe, spilling just over 9,200 gallons of wastewater at the corner of N.E. 2nd Avenue and
30th Street. Much of the wastewater went into storm drains that flush directly into Biscayne Bay.
While the spotlight of the annual world renown Art Basel was beginning to shine upon our 1
community once again, officials had to issue warnings against swimming, boating, or fishing in
waters between the Venetian Causeway and the Julia Tuttle Causeway. Two days later the
15 https://www.miamiherald.com/news/local/environment/article I 64655777.htnt I
16 Ibid.
lbid
a https:f/www.local!0.com/news/tlorida/miami-dade/sewage-leaking-into-biscayne-bay-near-north-bay-village
19 haps://www.miaminewtimes.com/news/biscayne-bay-polluted-by-800-gallons-of-poop-from-miami-beach-city-
says-10926772
6
warnings were lifted, after water testing showed no elevated levels of pollution from the sewage
spill 20
In November of 2018 there was a power outage at the North District Wastewater Treatment
Plant. As the pumps were not operating, hundreds of thousands of gallons of treated wastewater
was released into the Oleta River, which runs directly into Biscayne Bay.
Finally, on Super Bowl Sunday, February 3, 2019, three(3)pumps in a pump station that
serves the North District WTP became clogged. As a result, over about a twelve-hour period
approximately 750,000 gallons of untreated wastewater backed up in the facility and spilled into
the storm drain system. That untreated wastewater subsequently flowed into the Oleta River, and
ultimately into Biscayne Bay.21 The Miami-Dade Water and Sewer Department once again issued
a precautionary advisory against swimming,fishing,or boating in the area bounded by N.E. 163rd
Street to the north, Haulover Inlet, including Haulover Beach, to the south; the Intracoastal
Waterway to the east,and mainland Miami-Dade County to the west. This also included beaches
in Bal Barbour and Oleta River State Park.22 Fortunately,the Super Bowl was not in Miami-Dade
County this year.
Very often, these breaches in the wastewater sewage system result in the issuance of a
public health advisory,such that beaches are closed and residents and visitors are told not to swim
or engage in other recreational activities in Biscayne Bay or the Atlantic Ocean. Not only are these
spills harmful to the physical health of our residents and visitors, but they also have a direct
negative impact upon the health of our economy. We believe the negative publicity from these
events scares away international and domestic visitors who are so essential to our economy.
We discovered during this investigation that Miami-Dade County is under a 2014 federal
court order to repair its aging wastewater sewer system as part of a $1.6 billion-dollar consent
decree. While there have been significant advancements in replacement and repairs to the aging
sewer pipes, we urge the Miami-Dade Water and Sewer Department to continue to modernize its
infrastructure as expeditiously as possible, without sacrificing the quality of work. We urge our
20 https://www.miamiherald.com/news/local/environment/artic1e222662665.htmI
71 https://www.newsweek.com/florida-officials-dont-swim-fish-after-mechanical-failure-pump-station- 1317007
22 lbid
7
elected officials and county staff to be ever vigilant in assessing the system and the employees that
maintain it.
III. HARD DEBRIS: TRASH FLOWING INTO OUR WATERWAYS
As the population of South Florida increased and moved west, a series of canals were
constructed to drain land for development and to control flooding. After there was catastrophic
flooding from Lake Okeechobee caused by severe hurricanes in 1926 and 1928,the Army Corps
of Engineers built a dike around Lake Okeechobee. Additional flooding in 1947 led to the
construction of an unprecedented number of canals throughout South Florida, regionally and
locally. To control flooding,during periods of heavy rainfall, freshwater from the Everglades is
moved east,via the canals. The water which courses through these canals also carries many other
materials, including a significant amount of debris. Plastics,glass, and other trash are often found
floating in the canals. Why is this a problem?
Our stormwater drainage system in South Florida ultimately discharges into Biscayne Bay.
Although most of our stormwater drains flow toward the canal systems, and then into the Bay,
some stormwater drains flow directly into the Bay. Accordingly, all of the items we see by the
side of the road,including plastic shopping bags,plastic water bottles,paper items,aluminum cans,
Styrofoam, plastic straws, food containers, and other organic and inorganic trash and waste
products, are often washed into our stormwater drains. From there, eventually those items will
find their way into the Bay. Whenever someone decides to throw trash out of a moving car, they
need to consider the fact that there is a significant likelihood that the piece of trash that they are
throwing out of their window will end up in Biscayne Bay. It is estimated that eighty percent
80%) of the marine debris in Biscayne Bay comes from land-based sources, including litter
washed into the Bay through the stormwater system.
A. Clean Up Efforts
As a direct result of the massive littering, various individuals and community groups
participate in various cleanup activities to clean Biscayne Bay. Baynanza is a celebration of
Biscayne Bay and a recognition of its significance as one of our most important ecological systems
in South Florida. While Baynanza includes numerous events over a period of several weeks, the
Biscayne Bay Cleanup Day has become a primary event. Government partners for this event
include Miami-Dade County,the City of Miami and the City of Miami Beach. Biscayne National
8
Park, numerous corporate partners, as well as non-profits, environmental groups, and other
community groups also participate in this worthwhile event.
Many of these groups not only participate in Biscayne Bay Cleanup Day in conjunction
with Baynanza, but also conduct and sponsor regular cleanups of Biscayne Bay and its shoreline.
One such group is VolunteerCleanup.org. VolunteerCleanup.org conducts regular cleanups of
numerous areas in and around Biscayne Bay.
One such area that VolunteerCleanup.org cleans on a regular basis is Albert Pallot Park.
Albert Pallot Park is a three (3) acre park that is located on the western shore of Biscayne Bay,
between N.E. 38th and 39th Street,just north of the Julia Tuttle Causeway (State Road 112), in
the Buena Vista neighborhood. It is just a couple of blocks to the east of the Miami Design District.
Large quantities of marine debris build up along the shoreline of Albert Pallot Park on a regular
basis. Cleanups along the shoreline of the park can typically net 300 to 400 pounds of plastic trash.
VolunteerCleanup.org typically performs such cleanups monthly. The fact that this park gets so
much trash along its shoreline appears to be due to the location of the shoreline of Albert Pallot
Park. The park is located on the western edge of Biscayne Bay, and just north of the Julia Tuttle
Causeway. Due to the currents and the structure of the land mass at that location, the trash which
floats into the area and washes up onto the shore appears to have nowhere else to go.
Margaret Pace Park is an eight (8)acre park that is located at 1745 North Bayshore Drive.
It runs along Biscayne Bay from N.E. 17th Terrace to N.E. 20th Street. It is a City of Miami Park.
It contains a dog park, basketball court, playground, volleyball courts, tennis courts, and paved
walking paths. A lot of marine debris also builds up along the shoreline of Margaret Pace Park.
Monthly cleanups of Margaret Pace Park typically also net 300 to 400 pounds of plastic trash.
As one drives along the MacArthur Causeway (State Road A IA) between Miami and
Miami Beach, there are beautiful vistas on both sides. To the south, magnificent cruise ships at
dock at PortMiami, the largest passenger port in the world. To the north, beautiful multimillion-
dollar waterfront homes dot the landscape on Palm Island,Hibiscus Island, and Star Island. Both
of these views are framed by the beautiful shimmering waters of Biscayne Bay. This iconic drive
has been depicted in many movies and television series. However, if one were to pull over to the
side of the road and climb over the protective concrete guardrail, one would see significant
9
amounts of trash washed up on the shore. A recent cleanup along the shoreline of the MacArthur
Causeway(across from Star Island)netted over a thousand(1,000)pounds of trash.
We are making several recommendations to reduce the trash in Biscayne Bay. The first
recommendation, which is very basic but still needs to be repeated and emphasized, is that
everyone needs to be educated as to what the ultimate impact of littering has upon not only the
area where the trash was thrown, but also on Biscayne Bay. It seems that sometimes it takes
children to remind adults not to improperly dispose of trash, so apparently the message is getting
through to children. A continuous series of public service announcements should be undertaken
through radio,television,and social media reminding people of the proper ways to dispose of trash,
and—just as importantly—the improper ways not to. We further recommend that signage to this
effect also be posted in public places such as in parks and on public transportation.
Many storm drains on the side of the road do not have effective gratings over them. Proper
gratings would prevent a significant amount of trash and waste products from entering the
stormwater drainage system. However, that would mean that these items would remain on the
exteriors of the storm drains. So to be effective, these storm drain gratings would have to be
cleaned on a regular schedule. Grates have been installed on all storm drains in the City of
Aventura,to block debris from entering into the drainage system. Consequently,the quality of the
water emptying into the intra-coastal waterways in that area has improved.23 We recommend that
Miami-Dade County and all of the municipalities in Miami-Dade County do the same.
There are additional devices that can be utilized to capture debris which does make its way
into the stormwater drainage system. Items can be trapped by these screening devices to prevent
them from getting into the canal system and into Biscayne Bay. Of course,this will also necessitate
a regular schedule of frequent cleanings of this filtration system. We recommend the
implementation of such a system, as well as more frequent cleaning of the stormwater drainage
system.
B. Plastics
Single use" plastics make up the vast majority of the trash which is contained in the
stormwater drainage system, the canals, and Biscayne Bay. The most identifiable and common
23 https://www.cityofaventura.com/191/Flood-Protection
10
single use" plastics are plastic bottles and plastic bags. Plastic is ubiquitous in our daily lives.
From the moment that we awake,there is barely a function that we do that does not involve plastic.
We brush our teeth with plastic toothbrushes utilizing toothpaste that is squeezed from a plastic
tube. We sit on plastic toilet seats and use shampoo that comes from plastic bottles. Our orange
juice is packaged in plastic, as is our coffee, our cereal, our bread, our eggs, our bacon, and our
cheese. And it is barely 7:00 A.M. The rest of our day is the same, filled with plastic,much of it
single use". But it was not always that way.
World War II necessitated a great expansion of the plastics industry in the United States.24
The need to preserve scarce natural resources made the production of synthetic alternatives
comprised of plastic a priority. Nylon, which was invented in 1935 as a synthetic silk, was used
during the war for parachutes, ropes, body armor, and helmet liners.25 Plexiglas provided an
alternative to glass for aircraft windows.
26 During World War 11 plastic production in the United
States increased by 300%.27
Disposable plastic utensils became popular with Americans in the 1 960s. Plastic water
bottles were invented in 1973. In the late 1970s and early 1980s,plastic bags were introduced, to
address concerns about the number of trees which were being cut down in order to produce paper
bags, which at that time, were in common use. We were informed that it takes between 500 and
1,000 years for a plastic bottle or a plastic bag to fully degrade. That means that essentially every
plastic bottle or bag that has ever been produced still exists on this planet in some form. To
highlight this problem,the Grand Jury received information that in the middle of the Pacific Ocean
is an area that has become known as the Great Pacific Garbage Patch. It is comprised of plastics
in various states of degradation, and is said to cover an area twice the size of Texas. It is now
believed that there are 5.25 trillion pieces of plastic debris in the ocean. At least two thirds of the
world's fish stocks are suffering from plastic ingestion and 100,000 marine creatures a year die
from plastic entanglement and these are the ones found.28
2A Conflicts in Chemistry: The Case of Plastics,The History and Future of Plastics, What Are Plastics,and Where
do They Come From?,Science History Institute;available at https://www.sciencehistory.org/the-history-and-future-
of-plastics
S Ibid.
26 Ibid.
27 Ibid.
28 bttp://oceancrusaders.org/plastic-crusades/plastic-statistics/
11
Reducing the use of single use plastics should be a priority for every individual, every
company,and every entity of government, from the municipality to the nations of the world. One
such way to affect this reduction is through the implementation of a recycling program for single
use plastics such as bottles and bags. Numerous states have already seen success with such
programs for many years. A recycling program is fairly easy to implement and is quite effective.
A recycling program for plastic bottles (such as water bottles) and plastic bags (such as
those utilized by grocery stores)could work as follows. The consumer would be charged a nominal
returnable fee for each plastic bottle that he or she purchases. The fee could be approximately five
or ten cents per bottle. Accordingly, if the consumer buys a single bottle, such as one might buy
at a convenience store or a restaurant, the fee would only be five or ten cents. If the consumer
buys a case of water which consists of twenty-four(24) bottles, the fee would be $1.20 or$2.40,
depending upon if the fee were five or ten cents. If the case of water consists of forty(40)bottles,
the fee would be $2.00 or $4.00, depending upon if the fee were five or ten cents. Upon the
consumer returning the empty bottles to any authorized retailer which sells such plastic bottles,
the fee for each bottle would immediately be refunded to him or her in cash. If the consumer had
bought a bottle of water at a restaurant to drink with their meal, when they were done eating and
turned back in their bottle they would immediately be refunded back the fee. Many years ago,
such a program was in effect in Florida for certain glass bottles (prior to the implementation of
plastic soil drink bottles in the 1990s,soda bottles were all glass).
It has been reported that shoppers worldwide are using approximately 500 billion single-
use plastic bags per year.29 Some stores do not provide free bags for their shoppers. Two(2)states
California and Hawaii) have banned plastic bags on a statewide level; 4 U.S. states (Delaware,
Maine, Rhode Island and New York) have mandatory recycling or reuse programs in place; and
200 U.S. municipalities have banned or taxed plastic bags. Globally, plastic bags are banned in
32 countries, 18 of which are in Africa.30 Unfortunately for us,Florida was one of 10 U.S. states
AZ,FL, IA, ID,IN,MI,MN, MO,MS,WI)which has placed preemptive bans on banning plastic
bags.3
29 Id.
30 https://www.reusethisbag.com/articles/where-are-plastic-bags-banned-around-the-world/
31ld.
12
Notwithstanding the statutes, in 2017 the City of Coral Gables passed an Ordinance
prohibiting the use or distribution of single use plastic bags at City special events and prohibited
vendors within the city from giving out single use plastic bags. Following passage of the
ordinance the City of Coral Gables was sued by the Florida Retail Federation Incorporated which
claimed the Florida statutes precluded the city from passing such an ordinance. The court found
the statutes unconstitutional and entered a final order to that affect. Coral Gables' ordinance is
still in effect. We believe the town of Palm Beach, Florida has become the most recent
municipality to say goodbye to single-use plastic bags and polystyrene containers. Their
ordinance, which takes effect December 12, 2019 applies to restaurants, drug stores, grocery
stores,gas stations and vending trucks or carts. It also applies to individuals or groups who hold a
special permit for events on town property.32 We are hopeful that our state will get onboard with
this effort and are pleased to report that during this past legislative session a Senate Bill was filed
which provided,"A store or a food service business may not provide a carryout bag made of plastic
film to a customer". That Bill"died in committee." This Grand Jury recommends that the Florida
Legislature make it a major goal to pass such a bill during its next legislative session.
Alternatively, implementing a recycling program for plastic grocery bags would give
consumers a choice. Consumers could choose to use their own lightweight but heavy-duty bags.
They would bring their empty bags to the grocery store, pack their groceries and take them home
full. These bags are typically made from canvas or another fiber or polypropylene (which is
ironically a plastic). The Florida Legislature passed, and Governor DeSantis signed into law
effective July 1, 2019, Florida Statute §581.217, which creates a state hemp program within the
Florida Department of Agriculture and Consumer Services.33 Hemp is a strong fiber that has
traditionallybeen utilized for the creation ofropes for the military. Hemp would be a goodstrong
source of fiber for making such reusable bags. Consumers who choose not to utilize their own
bags for grocery shopping, but who would rather continue to utilize plastic bags, would have the
option of doing so, but would be charged a nominal returnable fee for each plastic bag that he or
she uses for packing their groceries. Once again, the fee could be five or ten cents a bag.
Consumers could actually reuse those plastic bags to save money. Consumers who return the
32https://www.palmbeac hpost.com/news/20190627/palm-beach-becomes-first-county-municipality-to-ban-plastic-
bags-polystyrene-containers
33 See Florida Senate Bill 1020(2019).
13
empty plastic bags to any authorized retailer which utilizes such plastic bags, would receive a cash
refund.
Implementing a plastic bottle or plastic bag recycling program turns the bottle or the bag
into a commodity, by putting a direct value on it. This directly incentivizes consumers to return
the bottles and bags for their refund. Just as the average person would not throw out nickels or
dimes into their trash, or onto the side of the road, or into the Bay, if bottles or bags had a cash
value to them, the consumer would not discard them either.
The free market would serve to ameliorate the trash created by those few who still might
choose to discard their bottles or bags. People who see discarded bottles or bags would pick them
up on their own, as a means of earning extra cash. When glass bottles had a return value, various
groups,including,Boy Scouts,Girl Scouts,sports teams, and others would regularly collect bottles
that they would find as a means to fund certain activities such as trips, or to purchase uniforms.
We urge the Florida Legislature to implement a recycling program such as we detail here.
There is another simple solution to help reduce plastics on our roadways,in our stormwater
system, canals, and in our Bay. Putting more trash receptacles in public places can reduce the
amount of trash that ends up on the ground, and eventually in the Bay. it is not unusual to see
overflowing trash receptacles in some areas of our communities. The overflow ends up on the
ground and from there may be blown or washed into the stormwater system. This result can be
easily avoided with more frequent emptying of trash receptacles. Finally, we also urge that trash
can coverings be utilized that do not allow for wind to blow trash out when the receptacle gets too
full.
C. Sediment
In addition to Biscayne Bay suffering damage from plastics and other marine debris, it is
also negatively impacted by sediment that flows from the canals into the bay.Devices called baffle
boxes can be installed to address this problem. A baffle box is a concrete or fiberglass structure
which can be installed inline in a stormwater drainage system. It contains a series of chambers
that are separated by baffles. The purpose of a baffle box is to filter out sediment from stormwater.
As the water flows through the series of chambers,its flow velocity is reduced as it hits the concrete
baffles,allowing solids and pollutants to settle to the bottom of the box.
14
Baffle boxes have been shown to remove from 500 to 50,000 pounds of sediment per
month,depending upon the sediment load which flows into the baffle box.34 They have been used
successfully in other jurisdictions. To be effective, baffle boxes must be regularly cleaned. For
this reason manhole covers are placed over each chamber, so that each chamber can be easily
accessed for cleaning. While some baffle boxes have been installed in Miami-Dade County, we
recommend the installation of additional baffle boxes at appropriate locations to further reduce the
amount of harmful sediment flowing into Biscayne Bay.
IV. EXCESSIVE NUTRIENTS
Biscayne Bay is a marine estuary that supports a diverse ecosystem. In its natural state,
Biscayne Bay has a living hardbottom habitat with extensive seagrass cover. These seagrass
meadows provide nursery space for baby fish,and a habitat for shrimp and other small crustaceans.
These in turn lure bigger fish, including snapper, sea trout, snook, bonefish, grunt, and tarpon.
Manatees also thrive in these seabeds, where they feed on the seagrass. These seabeds also serve
as a filtration system,which helps to keep the waters of the Bay clear.
Unfortunately,over the past several years, Biscayne Bay has suffered a significant loss of
much of its seagrass. In 2017, Miami-Dade County biologists discussed a study which indicated
that Biscayne Bay has lost more than 21 square miles of seagrass over the pass decade.35 The
shallow basin in the northern portion of Biscayne Bay between the Julia Tuttle Causeway to the
south and the 79th Street Causeway to the north is referred to as the Tuttle basin.36 Nearly half of
the seagrass in this basin has died. With this significant reduction in seagrass the fish have fled.
The bottom of the Tuttle basin is now being referred to as an underwater dust bowl.37 In 2017, the
Florida Department of Enviromnental Protection determined that Biscayne Bay is an "impaired
waterbody" because of the presence of Chlorophyll-a,Nitrogen.35
It is the combination of the nutrients nitrogen and phosphorus that allow algae blooms to
thrive. Too much nitrogen and phosphorus in the water causes algae to grow faster than
3'Stormwater Technology Fact Sheet Baffle Boxes,United States Environmental Protection Agency,Office of
Water,Washington,DC, EPA 832-F-01-004,September 2001.
33 https://www.mlamiherald.cont/news/local/environment/article 145863444.Ittml
36 Ibid.
7 Ibid.
https://www.miamitodaynews.com/2019/02/05/palm-beach-county-becomes-poster-child-for-biscayne-bays-
health/
15
ecosystems can handle. Significant increases in algae harm water quality, food resources and
habitats, and decrease the oxygen that fish and other aquatic life need to survive. Large growths
of algae, called algal blooms,can severely reduce or eliminate oxygen in the water, leading to the
loss of underwater plants such as seagrasses and the deaths of large numbers of fish.39
Beginning in 2005, after Hurricane Katrina and Hurricane Wilma swept through South
Florida, significant changes became evident in Biscayne Bay. A persistent algal bloom started to
coat the seagrass in the central portion of the Bay.A new tnicroalgae,and a toxic blue-green bloom
at the southern end of the Bay was killing off coral and sponges. Fish populations also shrank.4°
There are many theories as to what caused the increase in nutrients in Biscayne Bay.
Annually, 2,173 tons of nitrogen flow into Biscayne Bay from the canal system in Miami-Dade
County. Amongst this total is approximately 512 tons of nitrogen a year that is not produced in
Miami-Dade County. The source of that nitrogen is the regional canal system which feeds into
our local canals. The various contributors of this nutrient loading into the canal system that
eventually ends up in Biscayne Bay include stormwater runoff, byproducts from agricultural
activities in the western and southern portions of Miami-Dade County, leakage from the
wastewater sewer system, and leakage from septic tanks. In addition to the 2,173 tons of nitrogen
that are loaded into Biscayne Bay from Miami-Dade canals annually, there is an additional 5,400
tons of nitrogen discharged into the ocean through the ocean outfall pipes on an annual basis.
A. Stormwater Runoff
Nutrients flow into the stormwater system from all sorts of sources, including organic
material. Human and pet waste contain nutrients. We were surprised to learn that it is estimated
that based upon the population in Miami-Dade County, approximately 100,000 pounds of dog
feces a day are deposited in our community. Much of this gets into the stormwater system, and
into the Bay. Dog feces contain a lot of nitrogen.
B. Agricultural Activities
Nutrients such as phosphates and nitrogen are utilized in many agricultural activities, and
they easily make their way into the canal system and into the Bay. Sources for phosphates and
United States Environmental Protection Agency(E.P.A.),Environmental Topics,Nutrient Pollution,The Issue;
available at https://www.epa.gov/nutrientpollution/issue
0 https://www.miamiherald.com/news/local/enviromnent/articleI45863444.html
16
nitrogen include fertilizer that is used on lawns. The nutrients from fertilizer run into storm drains,
the canal system,and eventually the Bay. Runoff from suburban lawns is actually a major source
of fertilizer pollution.
C. Wastewater Sewer Systems
As discussed previously, there are many leaks in the wastewater sewer system in Miami-
Dade County. Consequently, a significant amount of human waste from the wastewater sewer
system makes its way into the canal system and into the Bay.
V. CONTAMINATION OF THE BISCAYNE AQUIFER-THE SOURCE OF OUR
DRINKING WATER
The Biscayne Aquifer underlies an area of about 4,000 square miles and is the principal
source of water for all of Dade and Broward Counties and the southeastern part of Palm Beach
County in southern Florida. The Biscayne Aquifer, which is the primary source of our fresh water
for drinking in South Florida, lies a mere four feet below our feet. It goes as deep as eighty (80)
to one hundred and forty (140)feet. It is a shallow layer of highly permeable limestone. Because
the Biscayne Aquifer is highly permeable and lies at shallow depths everywhere, it is readily
susceptible to contamination. The aquifer is the only source of drinking water for about 3 million
people.`` Major population centers that depend on the Biscayne Aquifer for water supply include
Boca Raton, Pompano Beach, Fort Lauderdale, Hollywood, Hialeah, Miami, Miami Beach, and
Homestead.The Florida Keys also are supplied primarily by water from the Biscayne Aquifer that
is transported from the mainland by pipeline.
42 Our natural water supply is being negatively
impacted by: 1) run off from septic tanks; and 2) the hypersalinity of water in the cooling canal
system used by Florida Power and Light to dissipate the heat created by generators at its nuclear
power plant located at Turkey Point.
A. Septic Tanks
Septic tanks not only contribute to the discharge of excessive nutrients into Biscayne Bay,
they also are responsible for contaminating our water supply. There are two (2) ways to handle
Al Ground Water Atlas Of The United States Alabama,Florida,Georgia,South Carolina HA 730-G,
https://pubs.usgs.gov/ha/ha730/ch_g/G-text4.html,
42 Id.
17
wastewater from a residence in Miami-Dade County. The vast majority of residences in Miami-
Dade County are connected to the Miami-Dade Water and Sewer Department's wastewater sewer
system and dispose of their plumbing waste from toilets and sink and shower drains in this manner.
This is what is referred to as a "centralized" system. The centralized system in Miami-Dade
County consists of the vast network of pipes and pumps operated by MDWSD which collect and
move the wastewater from the locations where they are generated to one of the three(3)wastewater
treatment plants operated by MDWSD. However,even with the availability of this massive system
there are approximately 105,000 parcels of property in Miami-Dade County that are not connected
to the centralized MDWSD wastewater collection and treatment system.
43 Many of these
properties are located in areas of the county where centralized systems are not available, and they
treat their wastewater onsite, in what are referred to as "decentralized" systems. These
decentralized onsite systems utilize septic tanks.
A septic tank is a large vault, usually constructed of concrete, that is buried under the
ground. It typically holds about 1,000 gallons of wastewater. The solid portion of the waste settles
to the bottom,and light solids and liquids such as oils and grease float to the top. These solids and
liquids remain in the tank. As such, the solid and liquid wastes that remain in the tank must be
pumped out and transported from the site by a trained professional.This requirement dictates that
septic tanks receive routine maintenance.
As wastewater enters the septic tank it dispels an equal amount of wastewater (effluent)
through an outlet valve located on the opposite side of the tank. The outlet valve has a filter in it
that prevents solid debris from exiting the tank. As effluent exits the septic tank, it is distributed
into a drainfield, which sits on top of soil. Once this effluent gets into the drainfield, it begins to
gradually flow down vertically through the soil to the water table. This process is designed to
remove a number of pollutants. However, for pathogens such as bacteria and viruses, and other 1
organic and inorganic pollutants to be removed by natural filtration through the soil, the vertical
flow must be achieved under trnsatuiated flow conditions. In other words,for this natural filtration
process to be effective, the soil that the effluent is flowing down through cannot be saturated.
Unsaturated flow conditions allow for aerobic conditions in the soil. The air-filled pockets in the
Septic Systems Vulnerable To Sea Level Rise,November 2018,Final Report in support of Miami-Dade County
Resolution No. R-911-16.
18
soil slow the rate of vertical flow of the wastewater, which increases the time that it takes for the
effluent to reach the water table. This allows for proper natural absorption,aeration,filtration,and
biochemical reactions to occur.'''
To achieve unsaturated flow conditions, a minimum vertical separation must be
maintained between the bottom surface of the drainfield and the wet season high water table. The
Environmental Protection Agency recommends a minimum separation between the bottom surface
of the drainfield and the wet season high water table of 24 to 48 inches.#5 The minimum separation
required by the Florida Department of Health is 24 inches.46
If the vertical section of soil below a drainfield of a septic tank is saturated, the effluent
that comes out of the drainfield will flow vertically almost unimpeded through the saturated soil,
so it will not have necessary time for the proper absorption, aeration, filtration, and chemical
reactions to occur. This unimpeded vertical flow significantly increases the risk of contamination
of the water table and the risk of impact upon human health. According to Dr. Samir Elmir from
the Florida Department of Health:
The volume of unsaturated soil underneath the drainfield impacts the [septic system's]
ability to efficiently remove pollutants. It has been shown that aeration of effluent in the unsaturated
soil is important in achieving decomposition of organic particles and compounds, in effectively
removing phosphorus, in facilitating nitrification that serves as the basis for denitrification to
remove nitrogen,and in decreasing bacteria and viruses." In addition, effluent moves more slowly
in unsaturated soil than in saturated soil, and,therefore, experiences a longer treatment time and a
better opportunity for many pollutants to be removed." Studies conducted in Florida show that the
concentrations of various contaminants from the septic tank decrease considerably with the increase
4°Ibid.
u United States Environmental Protection Agency(E.P.A.), Design Manual,Onsite Wastewater Treatment and
Disposal Systems(EPA 625/1-80-012);available at https://www.epa.gov/sites/production/files/2015-
06/documents/septic_1980_osdm_al l.pdf
46 Chapter 64e-6,Florida Administrative Code;available at
https://vww.flrules.org/gateway/ChapterHome.asp?Chapter=64E-6
47 Bicki,T.J.,R.B. Brown,M. E.Collins, R.S. Mansell,and D.F. Rothwell. 1984. Impact of On-Site Sewage
Disposal Systems on Surface and Ground Water Quality. Report to Florida Department of Health and Rehabilitative
Services under Contract number LC 170.
48 Bicki, T.J.and R. B.Brown. 1990.On-Site Sewage Disposal—The Importance of the Wet Season Water Table.
Journal of Environmental Health 52(5):277-279
19
of the depth of unsaturated soil. Bacteria and viruses from wastewater treated by septic systems
travel considerable distances in saturated soil and cause groundwater pollution.'
See Septic Systems Vulnerable To Sea Level Rise, November 2018, Final Report in
support of Miami-Dade County Resolution No. R-911-16, at pg. 14.
Septic tanks and the effluent that flow from their drainfields not only contain large amounts
of ammonia and phosphorus, but also numerous pathogenic human organisms. According to Dr.
Elmir,"shigellosis, salmonella,hepatitis A,viral gastroenteritis and other human viral diseases are
shed in human waste in extremely high numbers(order of millions)in waste discharged from both
ill and healthy people." In addition, Dr. Elmir notes that, "Some of the pathogenic human
organisms can survive harsh and various environmental conditions(extreme temperatures,various
soil moisture conditions,rainfall,salinity,etc.)for a long time from one day to a couple of years."5I
This reality heightens our concerns over how these septic tanks have the potential to contaminate
our drinking water and create health risks for visitors and residents alike.
Saturated soil columns under drainfields do not allow for the filtration and neutralization
of these dangerous pathogens and excessive nutrients from effluent that is discharged from the
drainfields. This, along with old leaky or cracked septic tanks, allows the effluent from these
systems to not only leach into the groundwater, but to also flow into the canal system and then into
Biscayne Bay, carrying these pathogens and nutrients with it. Once this contaminated and
untreated effluent gets into our ground water and the Biscayne Aquifer, it can easily contaminate
our water supply and cause a public health disaster. Studies have demonstrated the migration of
viruses from septic tanks to coastal waters in the Florida Keys, Sarasota, and Charlotte Harbor.52
49 Anderson,D. L.,A. L. Lewis,and K. M.Sherman. 1990.Unsaturated Zone Monitoring Below Subsurface
Wastewater Systems Serving individual Homes in Florida. IN: Proceedings ot'the National Environmental Health
Association's Fifth Annual Midyear conference"Drinking Water and Groundwater Protection". Pp.413- 438;Ayres
Associates. 1989 Onsite Sewage Disposal System Research in Florida—Performance Monitoring and Ground Water
Quality Impacts of OSDSs in Subdivision Developments. Prepared for Florida Department of Health and
Rehabilitative Services,Tallahassee,Florida.;Otis,R.J.2007. Estimates of Nitrogen Loadings to Groundwater from
Onsite Wastewater Treatment Systems in the Wekiva Study Area. Task 2 Report Wekiva Onsite Nitrogen
Contribution Study
so Hain,K.E.,and R.T.Obrien. 1979.The survival of enteric viruses in Septic tanks and septic tank drain fields.
Water Resources Res. Inst. Rept.No. 108,New Mexico Water Resources Res. Inst., New Mexico State Univ., las
Cruces,New Mexico.; Viraraghavan,T. 1978.Travel of microorganisms from a septic tile. Water, Air,and Soil
Poll.9:355-362
5' Septic Systems Vulnerable To Sea Level Rise,November 2018, Final Report in support of Miami-Dade County
Resolution No. R-911-16.
S2 http://www.floridahealth.gov/environmental-health/onsite-sewage/research/__documents/research-
reports/_documents/seasonally-inundated-report.pdf
20
The impact of rising sea levels upon septic tanks are also a major concern. As sea levels
rise, so does the groundwater table. Since 1994, sea levels have risen four (4) inches, and are
expected to increase an additional two (2) to six (6) inches by 2030.53 The increase in sea levels
have led to higher groundwater levels in certain areas. With rising sea levels, the soil column
below a drainfield remains wet and saturated and does not function effectively or efficiently to
filter the effluent coming out of the drainfield of the septic tank. If the water table rises to the level
of the drainfield,there is effectively no filtering of the effluent at all once it leaves the septic tank.
The unfiltered effluent then seeps into the Biscayne Aquifer, and also runs off as surface water,
ultimately getting into Biscayne Bay.
While the current minimum separation between the bottom surface of the drainfield and
the wet season high water table is currently 24 inches for new septic tanks,that was not always the
standard. The standard, which at one time was only 12 inches, was actually made stronger over
time. This means that some septic tanks exist in Miami-Dade County wherein the bottom surface
of the drainfield was only 12 inches above the water table when the system was installed. Since
sea levels have risen four(4) inches since 1994,these drainfields are only eight (8) inches above
the water table now. If the forecasting is correct, and the sea level and the water table rise an
expected two (2) to six (6) inches by 2030, then in the next ten years these drainfields may only
be two(2) inches above the water table. This is almost as if the property owner just flushed their
toilet right into our drinking water.
The Miami-Dade County Board of County Commissioners demonstrated its concern for
this issue in 2016 when it voted in favor of a resolution directing the Mayor or Mayor's designee,
to study and assess how sea level rise may affect septic systems in Miami-Dade County".
On October 5,2016,the Board of County Commissioners(Board)passed Resolution No.
R-91 I-16, which directs the Mayor or Mayor's designee, "to study and assess how sea level rise
may affect septic systems in Miami-Dade County, and to prepare a report. The report shall, at a
minimum, identify:(1)how septic systems may be affected by sea level rise;( 2)the potential risks
involved;(3)areas of the County that could be most impacted;(4)recommendations on how best to
eliminate the vulnerability of septic systems to sea level rise; and(5)recommendations as to any
further legislative or administrative action that may be necessary to address the vulnerabilities and
problems identified, including, but not limited to, seeking funding from the state for purposes of
carrying out the objectives of this item."54
53 Septic Systems Vulnerable To Sea Level Rise,November 2018,Final Report in support of Miami-Dade County
Resolution No. R-9I 1-16.
https://www.miamidade.gov/green/1ibrary/vulnerability-septic-systems-sea-levet-rise.pdf p.7
21
In the November 2018 Final Report in support of Miami-Dade County Resolution No. R-
911-16,it was determined that as of now,56%of the septic systems—or 58,349 parcels of property
are already periodically compromised during storms or wet years. To make this calculation,the
assumption was that the bottom of the drainfield associated with the septic tank was 18 to 24 inches
below the surface of the ground, and that the minimum required separation between the bottom of
the drainfield and the water table is 24 inches—the minimum required distance to establish aerobic
soil and unsaturated flow and thereby promote proper treatment of the effluent at the wet season
high water table. Therefore,an average wet season water table within 42 inches of the surface of
the ground will result in approximately 18 to 24 inches between the bottom of the drainfield and
the water table and less than 18 to 24 inches for the wettest season water table.At these separations,
water quality may already be periodically compromised for 56%of the septic systems—or 58,349
parcels of property which already have an average wet season water table within 42 inches of the
surface. By the year 2040,with the increase in sea level rise and the accompanying increase in the
water table,it is forecast that water quality will be periodically compromised for 64%of the septic
systems—or 67,234 parcels of property.
55
In this regard, it is our recommendation that from now on, no property owner in Miami-
Dade County should be permitted to install a septic tank and MUST connect to the Miami-Dade
Water and Sewer Department's wastewater sewer system, if there is a sewer line in the vicinity.
In those portions of the county where the water table is already so high that any septic tank system
would already be periodically compromised during storms or wet years if such a system were to
be installed, then such a system should not be approved for installation.
Additionally,while we know that Miami-Dade County leaders are exploring the possibility
of connecting the property owners that are currently utilizing onsite decentralized septic tanks onto
the centralized MDWSD wastewater sewer system, we are also aware of the substantial cost that
would be involved to accomplish this. A preliminary analysis in 2013 done by MDWSD estimated
that the cost to connect all of the residential properties to the MDWSD wastewater sewer system
who were on septic tanks would be $2.3 billion. A subsequent report in 2016 indicated that the
cost would be approximately$3.3 billion.' Assuming the figure of 100,000 properties, the cost,
ss Septic Systems Vulnerable To Sea Level Rise,November 2018,Final Report in support of Miami-Dade County
Resolution No. R-9I 1-16.
se lbid
22
when spread amongst each property owner, would be approximately $33,000.00 each. This is a
prohibitive cost for property owners to incur.
We know that Miami-Dade County leaders are exploring funding sources for this important
and necessary project, including but not limited to general obligation bonds, revenue bonds, rate
surcharges,the creation of a special taxing district,connection charges, and connection surcharges.
Because this is such a critical issue for our communities, we urge Miami-Dade County leaders to
explore these funding sources, as well as other sources of funding that have been suggested,
including funding from the U.S. Environmental Protection Agency Clean Water State Revolving
Fund, U.S. Environmental Protection Agency Nonpoint Source Section 319 Grants, Community
Development Block Grants from the U.S. Department of Housing and Urban Development,
funding programs within the U.S. Economic Development Administration, financial assistance
sources from within the Catalog of Federal Funding Sources for Watershed Protection,and grant
funding from the U.S. Environmental Protection Agency Environmental Center Network.
Biscayne Bay and the waterways in Miami-Dade County are not the only ones having
problems in the State of Florida. On July 6, 2016, (then) Governor (now Senator) Rick Scott
announced that he would propose additional funding in his State Fiscal Year 2017-2018
recommended budget to help clean up the Indian River Lagoon and Caloosahatchee River into
which the polluted waters of Lake Okeechobee are discharged. This budget was to include new
funding for a voluntary 50/50 matching grant program with local communities surrounding the
water bodies affected by algae blooms resulting from the frequent discharges of water from Lake
Okeechobee. Governor Scott stated in a press release that septic tank runoff is a major contributor
to the pollution in those waters,and that he looked forward to working with the Legislature to fund
efforts to curb it. As the successor to Rick Scott,we encourage Governor DeSantis,working with
the Florida Legislature, to fund efforts to assist Miami-Dade County in saving the health of
Biscayne Bay and the health of the residents of South Florida by eliminating septic tanks and
converting to the centralized MDWSD wastewater sewer system.
A person may not construct,repair,modify,abandon or operate an onsite sewage treatment
and disposal system (OSTDS) without first obtaining a permit approved by the Miami-Dade
County Health Department. The OSTDS program is responsible for performing application
reviews, conducting site evaluations, issuing permits, and conducting inspections and complaint
23
investigations associated with the construction, installation,repairs,and abandonment of an onsite
sewage treatment and disposal system. We recommend that the OSTDS program implement a
mandatory biannual inspection of every septic tank in Miami-Dade County,to insure that they are
all maintained properly. Such an effort would preserve the public health by preventing
groundwater and surface water contamination.
B. Hypersalinity Of Water In Cooling Canals at Florida Power and Light's Turkey
Point Power Plant
Florida Power and Light is the largest of Florida's fifty-five(55)electric utilities. It powers
about half of the state and serves over 10 million people over about 5 million customer accounts.
Florida Power and Light's Turkey Point Power Plant is located at 9700 S.W. 344th Street, on a
3,300-acre site two(2)miles east of Homestead and twenty-five(25)miles south of Miami. It was
built in the late 1960s and initially had two (2)fuel powered electrical generation units. In 1972
the first nuclear plant — Unit 3 —came on line, followed by the second nuclear plant —Unit 4 —
which came on line the following year. Combined, these units generate 1,632 megawatts of
electricity. Unit 5, a natural gas electrical generation unit capable of generating 1,187 megawatts
of electricity, was commissioned in 2007. Units 1 and 2 are decommissioned. Half of the
electricity used in Miami-Dade County comes from Florida Power and Light's Turkey Point Power
Plant.
Nuclear power generators create a significant amount of heat, which must somehow be
dissipated. The system that dissipates the heat utilizes water, which does not come into contact
with the actual nuclear equipment, to remove the heat. It is analogous to the radiator of a car,
which dissipates the heat built up in an engine, yet the radiator fluid does not come into contact
with the gasoline or the interior of the cylinders in the internal combustion engine of the car. Most
nuclear power plants dissipate this heat by the use of cooling towers; large towers which transfer
the heat from the water into the air.
Turkey Point is unique, in that rather than using cooling towers to dissipate the heat, it
utilizes a series of cooling canals. This cooling canal system is comprised of a series of thirty-nine
39)adjacent canals. Each canal is about thirty(30) yards wide and only three(3)feet deep. The
cooling canal system is two (2) miles wide, and five (5) miles long. It is referred to as a giant
radiator, and in fact, from above, looks like a radiator turned on its side. The water flows in a
24
counterclockwise direction. Hot water from the electrical generating process is discharged from
the electrical power generating units in the plant into a feeder canal which flows into the thirty-
two(32)canals on the western side of the cooling canal system. These canals flow in a southerly
direction toward a collector canal,which then brings the water in an easterly direction to seven(7)
north-flowing canals. The"cooled" water is then returned to the intake location at the electrical
power generating unit,where it begins another cycle.
The heat from the water in the cooling canal system is dissipated as the water flows through
its cycle. It is dissipated through the natural processes of evaporation and solar radiation. When
the water enters the electrical power generating unit,its temperature is approximately eighty-eight
degrees (88°). When the water is discharged from the electrical power generating unit, its
temperature is about six (6)or seven(7)degrees hotter.
Like all other canals in South Florida,the cooling canals are connected to our groundwater.
The water in the cooling canal system is saltwater. As the water evaporates from the cooling
canals, the salinity concentration in the water that remains in the canals increases significantly.
Additionally,drought conditions can cause an increase in the salinity of water in the cooling canals.
Because saltwater is denser and heavier than freshwater, the saltwater tends to sink. Because the
cooling canals are connected to the groundwater, the hypersaline water flows down into the
groundwater. In fact, in our ecosystem, there is a constant struggle between the saltwater in the
ocean and the freshwater inland. As sea levels rise, saltwater intrudes further inland, threatening
our underground freshwater supply.
C. The Saltwater Plume
The hypersaline water from Turkey Point has formed an underground saltwater plume that.
currently exists under Turkey Point, and extends several miles beyond the western boundary of
Florida Power and Light's Turkey Point property footprint. In fact, scanning technology employed
by Florida Power and Light has revealed that the location of the plume is depth dependent, in that
the deeper the depth of the scan, the higher the concentration of saline contained in the
groundwater. This saltwater plume constitutes a serious threat to the source of our freshwater.
Florida Power and Light has acknowledged the existence of this saltwater plume and has
undertaken strategies to mitigate it. They are taking a two-pronged approach. The first prong is
directed at taking steps to decrease the salinity in the cooling canals. The second prong is focused
25
on retracting the area of the hypersaline plume by pumping the hypersaline groundwater out of the
Biscayne Aquifer.
To reduce the salinity in the cooling canals, Florida Power and Light has installed wells
that are approximately one thousand(1,000)feet deep,and extend into the Floridan Aquifer,which
is way below the level of the Biscayne Aquifer. These wells are pumping 14 million gallons of
water a day from the Floridan Aquifer into the cooling canals,in an effort to reduce the salinity in
the cooling canal system to the average salinity of Biscayne Bay,which is 34 psu(practical salinity
units).
To retract the underground hypersaline plume, Florida Power and Light has implemented
a recovery well system that extracts the hypersaline groundwater out of the Biscayne Aquifer. The
recovery well system consists of ten (10) wells that extract 15 million gallons of hypersaline
groundwater per day. This hypersaline groundwater is then injected approximately three thousand
3,000) feet underground into the boulder zone,which is a confined zone safely below the Biscayne
Aquifer. It is the same zone where the Miami-Dade Water and Sewer Department injects all of
the wastewater from the South District Wastewater Treatment Plant and some of the wastewater
from the North District Wastewater Treatment Plant. Florida Power and Light's first goal is to
halt the westward migration of the hypersaline plume within five (5) years. Its second goal is to
retract the plume to an area within the boundaries of the Florida Power and Light Turkey Point
property lines within ten(10)years.
Florida Power and Light's plans to accomplish these goals are set forth in two separate
agreements. One is a 2015 Consent Agreement with Miami-Dade County. The other is a 2016
Consent Order with the Florida Department of Environmental Protection. In accordance with these
agreements, by 2021,Florida Power and Light must reduce the salinity in the cooling canals to 34
practical salinity units. Florida Power and Light has stated that to meet with this deadline, it will
employ additional measures if needed.
We implore the executives at. Florida Power and Light to do whatever they can to ensure
that the salinity levels in the cooling canal system are brought down as much as possible, as soon
as possible,and that the saltwater plume is reduced as much as possible and as soon as possible.
We also urge all of the agencies with regulatory authority over the Turkey Point facility, including
the United States Nuclear Regulatory Commission, the United States Environmental Protection
26
Agency, the Florida Department of Environmental Protection, the Miami-Dade County
Department of Environmental Resource Management, the South Florida Water Management
District, and Miami-Dade County, amongst others, to rigorously evaluate and monitor Florida
Power and Light's efforts to both bring the salinity levels in the cooling canal system down to 34
psu,and to diminish the saltwater plume.
As stated earlier in this report,ocean outfall legislation requires that by the year 2025,there
is to be no more wastewater discharged into the ocean. We urge Florida Power and Light and
Miami-Dade County to continue their efforts as stated in a Joint Participation Agreement to
explore opportunities to reuse treated wastewater at Florida Power and Light's Turkey Point
facility.
We also recommend that should Florida Power and Light move forward with plans to build
additional nuclear power generating units at Turkey Point, such units must be cooled utilizing
cooling towers,rather than a cooling canal system.
VI. CONCLUSION
It is obvious that the health of our precious Biscayne Bay and our underground drinking
water is at a state of precarious balance, brought forth by the many forces which have been
discussed herein, most of which are maiunade. The entire balance is further threatened by rising
sea levels. Whether these rising sea levels are caused by manmade forces and are a consequence
of global warming, or whether the rise in sea levels are part of long-term natural ebbs and flows
of the environment over the passage of great periods of time is a debate for another day, but we
know for a fact that sea levels have risen.
Accordingly, we encourage everyone, from the individual to every unit of government, to
act responsibly in making decisions that will affect the future health of Biscayne Bay and our water
supply. We are heartened to see that the Miami-Dade County Board of County Commissioners
has created the Biscayne Bay Task Force, whose purpose is to advise the Miami-Dade County
Board of County Commissioners and the County Mayor"on issues related to Biscayne Bay. That
includes but is not limited:to the long-term management of Biscayne Bay;the health of the marine
community; run-off and other impacts to water quality; marine debris; education and outreach;
economic development and vitality related to Biscayne Bay; and how conditions in Biscayne Bay
27
may affect residents and property owners. As part of its duties, the Task Force shall also review
the relevant data and prior studies,assessments,reports,and evaluations related to Biscayne Bay,
and receive advice and recommendations from County staff including the County's Division of
Environmental Resources Management (DERM), Office of Resiliency, and Water and Sewer
Department. The Task Force may hear additional presentations and comments from other experts
and members of the public, including but not limited to entities such as the South Florida Water
Management District, the Florida Inland Navigation District, the Florida Department of
Environmental Protection,and the National Parks Service. The Task Force shall prepare a written
report with recommendations to the Board of County Commissioners. That report should include
recommendations and an action plan identifying problem areas and prioritizing projects for
Biscayne Bay, and recommendations to this Board regarding proposed State and Federal
legislation,activities,and appropriations.s57
We urge all levels of government to participate in earnest efforts to implement whatever
recommendations they can to ensure a healthy future for our Bay and our groundwater. The broad
and beautiful lagoon that we know today as Biscayne Bay has always had a special magnetism,
from its 1513 European discovery by Juan Ponce De Leon to its contemporary daily discovery by
residents,tourists and visitors alike. Yet,as we express our love for Biscayne Bay's beauty,marine
life and its ecology, we too often shy away from our daily actions that may be slowly strangling
this thing we say we cherish. This Grand Jury hopes that their report,intended to focus our
attention on those daily actions and activities which are damaging Biscayne Bay, will be a loud
call to action so that we may save this valuable resource.
S7 Miami-Dade County Board of County Commissioners Resolution Number R- 165-19.
28
INDICTMENT
NAME OF DEFENDANT CHARGE RETURNED
THALES FERREIRA First Degree Murder
First Degree Murder True Bill
WALTER SAUL PEREZ First Degree Murder
Attempted Felony Murder with a
Firearm/Deadly Weapon or
Aggravated Battery True Bill
JOHN STANTON(A)and
JERMAINE SHELDON KING(B) First Degree Murder(A&B)
Robbery Using Deadly Weapon
Or Firearm (A&B)
Firearm Weapon Ammunition
Possession by Convicted Felon
Or Delinquent(A) True Bill
DAVID THOMAS CASH (A)and
KARL PHILIP SCHMIDT(B) First Degree Murder(A&B)
Controlled Substance Sell/Manufactue/
Deliver/or Possess W/Intent (A)
Controlled Substance Sell /Manufactue/
Deliver/or Possess W/Intent(B)
Controlled Substance Sell /
Manufacture/Deliver/or
Possess W/Intent (A) True Bill
JULIO MONTEZ MORRIS, Also known as
BOO",also known as"BOO BA"(B),
JAMES WILLIAM KELLY, III,
Also known as"SKATEBOARD"(C),and
HOWARD TRANARD WATERS(D)First Degree Murder(B)
First Degree Murder(B,C,D)
First Degree Murder(B,C,D)
Conspiracy to Commit First Degree
Murder(B,C,D)
Attempted/Premeditated Murder(B)
Retaliating Against a Witness, Victim or
Informant/Bodily Injury/Firearm (B)
Retaliating Against a Witness, Victim
or Informant/Bodily Injury/Firearm(B,C,D)
28
INDICTMENT
NAME OF DEFENDANT CHARGE RETURNED
continuedfrom previous page)
Tamper/Wit/Vic/Life/Capital Felony(B)
Tamper/Wit/Vic/Life/Capital Felony(B,C,D)
Burglary With Assault or Battery Therein
While Armed(B)
Attempted Premeditated Murder With a
Deadly Weapon or Aggravated Battery(B) True Bill
NOEL A. CHAMBERS First Degree Murder
First Degree Murder
Murder l st Degree/With a Deadly Weapon /
Attempt True Bill
ANTHONY RODRIGUEZ(A)and
JAMES ANTHOWN LEMONS (B) First Degree Murder(A&B)
Murder Premeditated Attempt Deadly Weapon
or Aggravated Battery(A&B)
Murder Premeditated Attempt Deadly Weapon
or Aggravated Battery(A&B)
Murder 1st Degree/With a Weapon/
Conspiracy(A&B)
Shooting or Throwing Deadly Missile(A&B)
Firearm/Weapon/Ammunition Possession by
Convicted Felon or Delinquent(A)
Grand Theft 3rd Degree/Vehicle(A)
Robbery Using Deadly Weapon or Firearm(B)
Murder I st Degree With a Deadly
Weapon Attempt(B) True Bill
PAOLA DENISE VARGAS ORTIZ First Degree Murder True Bill
29
ACKNOWLEDGMENTS
We have had the privilege and opportunity of serving as Grand Jurors on the Fall Term 2018
Miami-Dade County Grand Jury over the past nine(9)months,including an extension. We come
from many different backgrounds, from many different parts of the County, but we all have a
common appreciation of how important our work here has been. The homicide cases which were
presented to us were sobering. We leave both informed and enriched. We would like to express
a debt of gratitude to the following individuals:
Thank you to Katherine Fernandez Rundle for allowing us to be a voice for this community
and for the leadership that you show on this important topic.
Thank you to Don Horn for getting us started with the rules of law and for your guidance
in giving us examples based upon interesting stories from other matters that you used as
references.
Thank you to Howard Rosen for the guidance through this long Grand Jury process and
your invaluable assistance to us in preparing this report.
Thank you to Neil Gil for the great entertainment and mushroom pizza. We are still waiting
on that lobster.
Thank you to Rose Anne Dare for your important work in keeping things running smoothly.
Thank you Judge Lopez,Judge Rodriguez,and Judge Hogan Scola for your important role
in this awesome extended journey.
Thank you to John Perikles and David Maer for your help and insight.
Thank you to all our fellow Grand Jurors for your dedication and commitment to serving
this Country. God Bless America.
It has been an honor and a pleasure to serve our community.
Resp ctfully submitted,
Robert Behar, Vice Foreperson
Miami-Dade County Grand Jury
Fall Term 2018
ATTEST:
464-1
Erik Kessler
Acting Clerk
Date: August 8, 2019
30
City of Miami Beach
Water Quality Report
January 8, 2020
Table of Contents
1.0. INTRODUCTION ………………………………………………………………......... Page 1
Stormwater Management in Biscayne Bay Watershed……………..Page 1
Miami Beach Water Quality Sampling Program…………………………Page 2
2.0. METHODOLGY ………………………………………………………………………….Page 4
Sample Location………………………………………………………………………..Page 4
• Figure 1………………………………………………………………………….Page 5
• Figure 2………………………………………………………………………….Page 6
• Figure 3A……………………………………………………………………….Page 7
• Figure 3B……………………………………………………………………….Page 8
Sampling Methodology and Equipment Used……………………………Page 8
Field Observation………………………………………………………………………Page 9
3.0 ANALYSIS………………………………………………………………………………….Page 9
Table 1……………………………………………………………………………………..Page 10
Table 2……………………………………………………………………………………..Page 10
4.0. RESULTS ……………………………………………………..…….........................Page 11
Table 3……………………………………………………………………………………..Page 11
5.0. CONCLUSIONS..……………………………………………………….……………….Page 11
6.0. RECOMMENDATIONS…………………………...…………………………………Page 12
1
Introduction
Stormwater Management in the Biscayne Bay Watershed
Clean waterways are critical to our local ecosystem, our residents’ quality of life, and our economy.
As a utility, the city has the responsibility of protecting public health and safety by operating the
wastewater and stormwater systems appropriately. Each year, the city reviews its stormwater
management program to determine what strategies worked and which require refinement to keep
up with changes in our community. A critical part of this review process is to monitor the health
of the waterways to understand how our aquatic habitats function and set measurable goals to
improve their health.
The health of Biscayne Bay is a regional concern. Contributing factors such as underground septic
tanks, nutrient loading from agriculture, and inputs from heavy industry, are examples of inputs
that cause other areas of the bay and contributing waterways to have higher nutrient loads and have
lower percentages of dissolved oxygen. Through the development of the Greater Miami & the
Beach Resiliency Strategy, the region developed recommendations and goals for improving
regional water quality.
To augment the efforts occurring across the region, the city implements a multi-faceted strategy to
keep pollution from entering our waterways that meets and, where possible, exceeds regulatory
requirements. The city’s strategy is founded on the requirements of the National Pollution
Discharge Elimination System (NPDES) permit program, which was created in 1972 by the Clean
Water Act. The NPDES permit program addresses water pollution by regulating point sources that
discharge pollutants to waters of the United States.
Miami Beach is one of 32 municipal co-permittees with Miami-Dade County for NPDES Permit
No. FLS000003, that own and operate Municipal Separate Storm Sewer Systems (MS4s)
throughout Miami-Dade County. The Miami Beach MS4 is comprised of over 90 miles of pipes
that carry rainwater collected from inlets on city streets and discharges it via more than 300 outfalls
into our waterways and Biscayne Bay. 31 other municipalities and Miami-Dade County also
operate MS4s for a combined total of more than 8,000 outfalls discharging into Biscayne Bay and
its tributaries. The city’s outfalls constitute approximately 4% of the region’s outfalls.
The city reduces potential pollution through a combination of education and outreach, good
housekeeping, as well as the use of cutting-edge technology and industry-vetted operational
practices. The city’s stormwater management program focuses heavily on preventing pollution at
its source: people. It is easier and less expensive for each person to do their part by picking up after
their pets, tossing trash into designated bins, and properly applying landscape maintenance
chemicals than to capture and remove pollutants in larger concentrations from within the
stormwater system. Nevertheless, the city plays an important role in protecting water quality and
has a well-rounded strategy to remove pollutants outside and inside the stormwater system before
they reach Biscayne Bay.
Over the last seven years, the city has made great strides to improve water quality:
• In science, such as the voluntary launch of a municipal water quality sampling program.
2
• In engineering, such as installing water quality treatment structures within the stormwater
system that trap pollutants, including litter, sediment, and oils, through a four-step process
at new stormwater pump stations.
• In operations, such as increasing stormwater system maintenance from once every three
years to once every year.
• In education, such as the launch of the Plastic Free MB initiative.
• In policy, such as the citywide bans on polystyrene and plastic straws; and,
• In compliance, such as the creation of environmental inspection programs to reduce
sanitary sewer overflows and construction run-off.
Water quality is a key factor of waterway and ecological health. The city has pollution prevention
programs beyond those required by the NPDES permit, such as a waterway cleanliness contract
that removes litter from the Bay and its surrounding waterways. For example, a total of 84,825 lbs.
of debris were removed from waterways during this report year. The city continues to improve its
stormwater management program and exceed NPDES permit program expectations.
Miami Beach Water Quality Sampling Program
Protecting water quality is a continuous and team effort. As part of the NPDES permit
requirements, the Miami-Dade County permit holders are required to regularly monitor the water
quality in Biscayne Bay and its tributaries. In 1994, interlocal agreements between Miami-Dade
County and its NPDES co-permittees provided funding and enabled DERM to collect samples on
behalf of its co-permittees to meet the requirements of the NPDES permit. The samples are tested
for physical (i.e., temperature), chemical (i.e., nutrients) and biological (i.e., enterococcus)
parameters. The results are analyzed annually and provided in a surface water quality monitoring
report to the NPDES co-permittees so they can evaluate the effectiveness of their stormwater
management programs.
Due to the geographical distribution of the county’s sampling stations, there is limited water
quality information for the areas of Biscayne Bay surrounding the barrier islands, like Miami
Beach. We cannot protect our beaches, our waterways, or our urban forest unless we understand
how each habitat functions and we set measurable goals to improve their health. To fill this data
gap, in 2016, the city voluntarily launched its own water quality sampling program to expand upon
the county’s existing sampling network of nearly 90 stations countywide.
The program added more than 60 stations to cover areas of Biscayne Bay closer to our shoreline
and within our waterways for which data has historically not been collected. The stations are
sampled in accordance with the county’s methodology so the data collected can be used toward
the larger management of the bay. The data from this program generates a more robust snapshot
of local water quality and allow city staff to make data-driven stormwater management decisions.
The results inform where staff time, resources and funding will provide the greatest environmental
benefit.
City staff annually reviews data from our municipal water quality sampling program, as well as
data collected and reported by Miami-Dade County’s Division of Environmental Resources
Management (DERM) to determine where enhancements in pollution prevention are necessary.
Certain enhancements can be implemented at the local level, such as increased cleaning frequency
3
of city pump stations to ensure their water quality treatment structures operate as designed. Other
enhancements require regional collaboration, such as enacting countywide policies that reduce
pollution into Biscayne Bay.
It is important to note that the first five years of data were expected to serve as a baseline or control,
providing an initial picture of the health of our waterways through which we can begin to
understand natural patterns of fluctuation in local water quality, such as tidal or seasonal variations.
The baseline serves as a control to which we can compare the data collected in future years. The
longer we collect data, the larger our sample size and the more statistical confidence we will be
able to have in the analysis of the results. Therefore, each year we will have a better understanding
of the health of our waterways than the previous year.
To ensure the integrity of the analysis and the program, staff retained an outside water quality
expert, Dr. Charles Rowney, in February 2018 upon completion of the first full year of sampling.
Dr. Rowney had over 35 years of experience in assessing, implementing, and interpreting water
quality programs and was tasked with reviewing the city’s data, drawing initial conclusions about
the health of our waterways, and identifying observable trends that will be monitored in subsequent
years. He completed his review, released a report, and shared his findings with the Sustainability
and Resiliency Committee (currently named Land Use and Sustainability Community), as well as
a technical roundtable of representatives from the Florida Department of Environmental
Protection, Miami-Dade County, the City of Miami and other regional community stakeholders on
September 26, 2018.
Based on his analysis of the Miami Beach water quality sampling program and the data collected
during the monitoring period, there is no indication of gross or persistent sanitary system
contamination into Biscayne Bay from Miami Beach. Furthermore, the samples taken through his
review did not show a significant difference between the samples taken near the gravity outfalls
the city has operated for over 100 years and the samples taken near the pumped outfalls. Therefore,
there was no evidence that the City’s activities, including the installation of the pumps, have had
a measurable change in the bay. Dr. Rowney also made recommendations for improving the
sampling program design that allowed the city to fine-tune its sampling and stormwater
management efforts.
In February 27, 2019, following the recommendations provided by Dr. Rowney, city staff made
six changes to the water quality monitoring program:
• Enhancement 1 – Train in-house staff to execute and oversee sample collection.
• Enhancement 2 – Remove all "outfall" sampling stations.
• Enhancement 3 – Add stations in areas where data is not currently collected.
• Enhancement 4 – Sampling for more parameters at existing and new stations.
• Enhancement 5 – Sampling during rain events.
• Enhancement 6 – Install constant monitoring probes in areas requiring in-depth
investigation.
These six enhancements were approved by the Sustainability and Resiliency Committee (currently
named Land Use and Sustainability Community). Training will allow staff to respond more
4
quickly to water quality violations, improving enforcement, and it will allow greater oversight and
control of monthly sample collections. Removing outfall and unnecessary sampling stations with
redundant information will reduce monthly costs where funds can be used to finance other
enhancements. For example, we reduced the total stations from 64 to 35 because the data showed
that having an “outfall” versus an “ambient” station was redundant, and we could use these funds
to add other improvements.
Additional sampling stations will increase coverage, particularly in North Beach. New stations will
sample in the stormwater system that has less influence from Biscayne Bay. Sampling for more
parameters will allow us to identify early warning signs of ecosystem health regarding excess
nutrient loading, such as Chlorophyll A. Also, it will provide a more holistic picture of bay health.
Quarterly sampling during storm events in select locations will occur to account for seasonality. It
is an NPDES permit requirement to estimate pollutant loading during rain events.
Constant monitoring probes will help staff understand how the stormwater system functions over
time. Data will be collected as frequently as every minute. However, we have not installed constant
monitoring probes yet because our Environmental Specialist, who was purchasing probes from In-
Situ, at the time resigned in June 2019. The new Environmental Specialist started in September
2019 and began to fill in the three-month gap left by the lapse in position fulfillment. This has
caused us to delay the purchase of constant monitoring probes for several months. The city is still
working on purchasing constant monitoring probes.
As the Miami Beach water quality monitoring program nears the completion of its fourth year, it
will continue to serve as a useful screening level program for early detection of major or potentially
chronic water quality concerns that could impact Biscayne Bay so the City can address them
swiftly. The city is constantly evaluating its stormwater management program and making
improvements that further improve the quality of our stormwater discharges
Methodology
Sample Locations
Miami-Dade County has been collecting water quality data for nearly 40 years throughout
Biscayne Bay. The County’s sampling program collects forty-five (45) of its samples from
freshwater canals and the remaining eighty-nine (89) samples come from estuarine stations within
Biscayne Bay. The county collects water quality data from within the 9 Nutrient Regions as defined
by the Florida Department of Environmental Protection (FDEP) established Water Body
Identification (WIBIDs) in 1999. One of the county’s sampling locations includes five (5) stations
(BBMB01, BBMB02, BBMB03, BBMB04 and BB14) part of the Southern North Bay (SNB)
within the waters surrounding the City of Miami Beach (Figure 1).
5
Figure 1-SNB monitoring stations within Miami Beach
The City of Miami Beach’s program is modeled after the Miami Dade County’s water quality
sampling program, following their approach and methodology. The sample locations were selected
to fill gaps in the County’s monitoring network. From its launch in 2016 through 2018, the city’s
monitoring network grew to 64 stations (Figure 2).
6
Figure 2- City of Miami Beach water quality sampling program stations
In 2019, after reviewing input from Dr. Rowney, the city’s water quality program was enhanced
by removing duplicative sample points and adding sample locations within the stormwater sewer
system, such as pump station wet wells and manholes upland from the outfalls. The current
network collects data from 35 sample locations in Biscayne Bay and the waterways sur rounding
the city (Figure 3A & 3B). The locations of the sample points where selected to reflect land uses
in various zoning area including single family residential (SR1-4), multifamily residential (RM1-
3), commercial (CD1-3), government use (GU), and the Convention Center District (CCC), at
stormwater outfalls and ambient locations approximately 50 feet from the corresponding outfall as
well as within the wet well at pump stations.
7
Figure 3A- North Beach sampling stations
8
Figure 3B- South Beach sampling stations
Sampling Methodology and Equipment used
The city has used Miami-Dade County’s contract with PACE Analytical Services (PACE) to
perform the sampling and laboratory testing portion of the program. Samples are collected once a
month. Given the large sample size and distance between sample locations, the sampling event
spans the course of two days each month. Consideration is given to ambient conditions. Before
each sampling event weather patterns are studied for the coming weeks to determine rain patterns,
wave conditions, wind conditions and tide conditions.
While in the field PACE staff uses equipment in line with the DEP-SOP-001/01 FS 2100 Surface
Water Sampling SOP. PACE staff performs sample recovery by lowering a high-density
9
polyethylene (HDPE) bottle attached to an extendable pole into the water, allowing the water to
flow from the top 2 feet of the water into the sample container. Prior to the collection of the sample
the container is triple rinsed. The source water is collected and transferred to pre-labeled bottles.
Additionally, before the sample is taken a YSI 556 multimeter probe is lowered into the water to
record field readings, including temperature, pH, specific conductance and dissolved oxygen. A
portion of the source water is also collected into a glass quevet to record field turbidity with the
use of a Hach 2100Q Turbidimeter.
To access the sample points a boat is used and operated by city staff. When approaching the outfall,
the boat is slowed down and placed in a neutral state. When obtaining samples in shallow areas
the outboard motor on the boat is propped up to avoid sediment resuspension.
Field Observation
During sampling events staff records observations that are relevant to the future interpretation of
the results, such as wind speed, wind direction, temperature, tide and current conditions.
Observations are also made in relations to boat traffic and construction near outfall locations and
anthropogenic influences. The sampling network includes outfalls, locations within the wet well
at pump stations and manholes along the trunk lines upstream of outfalls. Observations are made
in relation to the conditions surrounding the outfall. For example, during sampling events
observations are made to determine if the outfall is fully submerged or above water, condition of
water directly below the outfall. For the wet wells, the efficiency of the trash capturing structures
is inspected to observe how much trash has been introduced into the system and how much of the
trash has been captured for removal. Within the manholes along the trunk line, observations are
made to determine if debris from designated land use may be entering the storm sewer system.
Additional observations are made regarding boat traffic, recreational activities and construction
near or at outfall locations that may interfere with the sampling events.
Analysis
The parameters of the water quality monitoring program established by the city were selected to
mirror the NPDES recommended parameters that have been selected by Miami-Dade County for
their water quality monitoring program with exceptions based on the unique conditions of the city
(see Table 1). In addition, as with the Miami-Dade County water quality program for those
nutrients with numeric interpretations of narrative criteria listed in 62-302.532 Florida
Administrative Code (F.A.C.), the evaluation will follow the protocol as noted in that section of
the F.A.C.
10
Table 1: List of NPDES recommended parameters, and other parameters samples for in the city’s
water quality monitoring program.
Parameters
Dissolved Oxygen Enterococcus
Total Kjeldahl Nitrogen Fecal Coliform
pH Specific Conductance
Salinity Nitrogen, Ammonia
Nitrogen, NO2 Plus NO3 Turbidity
Field Temperature
The results of the samples tested for parameters mentioned in Table 1 are provided by PACE to
the city within two weeks prior to the sampling event. City staff reviews the results to determine
if any lab errors have been made. Once a year, city staff performs a comprehensive review of the
results in conjunction with the results of the data in the previous year to identify potential trends
and the success of the city’s stormwater management program improvements. Currently the only
water bodies with designated numeric nutrient criteria (NNC) are estuarine and coastal waters and
to evaluate the compliance of the appropriate estuarine regions with the listed nutrient criteria the
calendar Annual Geometric Mean (AGM) values for each parameter in the SNB will be calculated.
The AGM will be compared to its respective criterion to determine whether the criterion was
exceeded (please refer to Table 2 for the respective criterion). Additionally, the data will be used
to identify portions of the city’s Municipal Separate Storm Sewer System (MS4) which can be
targeted for loading reduction and/or corrective action with additional pollutant reduction
measures.
Table 2: Numeric interpretation of the State of Florida’s narrative nutrient criteria expressed in
mg/L or µg/L, as AGM (62-302.532 F.A.C.) per Estuarine Region.
Estuary Total Phosphorus Total Nitrogen Chlorophyll-A
Biscayne Bay Annual geometric means that shall not be exceeded more than once in a three -year
period.
Southern North Bay
(SNB)
1.010 mg/L 0.29 mg/L 1.1 µg/L
11
Results
A review of the Miami-Dade County Surface Water Quality Monitoring Report for 2018 revealed
that the City had exceedances in Enterococci and Escherichia Coli (E.Coli) following their
assessment of Biscayne Bay. Following the review of the report, a preliminary review was
conducted to analyze the water quality data gathered for 2019. During the review of the 2019 water
quality data, it was revealed that the city had exceedances in seven of the 35 sample locations each
spread throughout the city’s 12 land use areas (see Table 3). In addition, the data analysis revealed
that there were Total Nitrogen exceedances in five of the 35 sample locations. The data analysis
revealed exceedances in Total Phosphorus above the numeric nutrient criteria (NNC) for the SNB
but within the allowable limit under state standards.
Table 3: City of Miami Beach Water Quality Sample Location Data
Conclusion
After reviewing the 2019 water quality data, it was apparent that the main area of concern for the
city was total phosphorus. The city had exceedances for phosphorus in all sample locations above
the NNC for SNB. The results of the 2019 water quality data revealed that the concentrations of
total phosphorus was between 0.031mg/L and 0.04 mg/L, which is between 0.021 and 0.037 times
greater than the NNC for SNB of 0.010 mg/L. Strom water runoff in urban watersheds has become
a leading cause of nonpoint phosphorus pollution. When rain falls, the runoff washes pollutants
off our streets, parking lots, construction sites, storage yards and lawns. Urban runoff carries a
mixture of pollutants from our cars and trucks, outdoor storage piles, muddy construction sites and
pesticide spills. Often efficient systems of ditches, gutters and storm sewers carry the polluted
runoff to nearby water bodies, bypassing wastewater treatment systems.
Land Use
Sample Location
Single Family Residential (RS-1, RS-2,
RS-3, RS-4)
4,6,8,17,22,34,38,42,58,63,65,67,68,70,77,78
Residential Multifamily, Low Intensity
(RM-1)
69,71
Residential Multifamily, Medium
Intensity (RM-2)
19,76
Residential Multifamily, High Intensity
(RM-3)
52,66,73,75
Commercial, Medium Intensity (CD-2) 54,72
Commercial, High Intensity (CD-3) 9
Commercial Performance Standard,
Intense Phased Bayside (CPS-4)
46,47,49
Convention Center District (CCC) 10
Civic and Government Use (GU) 44,56,60,74
12
The city’s stormwater management system may be linked to heavy fertilizer use, desorbed pools
of eroded soil, decomposing plant materials, such as leaves and grass clippings. Another source of
phosphorus can come from land use changes. The construction of new buildings can create
unfavorable conditions, particularly the impervious surfaces, which can aide in the transport of
nutrient laden materials.
The city takes every precaution to protect our waterways and makes a concerted effort to introduce
preventative measures to protect water quality. The city has developed a multi-faceted stormwater
management program to minimize stormwater pollution above and beyond our NPDES permit
requirements. The first component of this multi-faceted program focuses on preventing pollutants
from entering our stormwater systems through various approaches including public education,
daily street sweeping and other good housekeeping practices.
The second component of our stormwater management program focuses on trapping debris within
the system and removing to from the stormwater via Vortex structures and other pollution control
structures. Sediment and debris trapped in these structures can create a breeding ground for
bacteria. The third component of the stormwater management program is preventing the growth
of bacteria within the system. The city has introduced into its stormwater management program is
regular cleaning and maintenance of the system to remove trapped pollutants. The city cleans the
entire system at least once a year and cleans the Vortex structures on a quarterly basis to remove
pollutants and reduce the potential for bacteria within the system.
The fourth and final component of the city’s stormwater management program is the water quality
monitoring of Biscayne Bay, which has historically been done monthly by Miami-Dade County
on our behalf and reported annually to the Florida Department of Environmental Protection
(FDEP). As previously mentioned, within this report the city has developed its own monthly
sampling program to monitor the health of Biscayne Bay and the city’s waterways to mirror the
county’s sampling program.
Recommendations
The city continues to the make enhancements to its water quality program and after receiving
insight from an outside water quality expert, the city removed duplicative sample locations and
introduced sample points within our pump stations. The next step will be for the city to analyze
the data and compare the results of the water quality for samples collected from the outfall and
samples collected from within the wet well at the pump station. Another recommendation for the
program moving forward is to compare the results of samples collected in areas with pump stations
versus areas using gravity. The results should be analyzed to make comparisons between land use
areas to determine the effectiveness of the pump stations in those areas. The discovery of
exceedances in phosphorus (TP) has caused the city to put into action a fertilizer ordinance to
reduce the levels of TP. The ordinance was designed to implement the following requirements;
• All commercial and institutional applicators of fertilizer (landscapers) within the
City to abide by and successfully complete the six-hour training program in the
13
"Florida-friendly Best Management Practices for Protection of Water Resources
by the Green Industries" offered by the Florida Department of Environmental
Protection through the University of Florida Extension "Florida-Friendly
Landscapes" program, or an approved equivalent. All managers and
employees must be certified.
• A 10 ft. setback from waterways and storm drains where no fertilizer may be
applied
• No fertilizer applied during the rainy season (June-Sept)
• Nitrogen content in fertilizer must be 50% 'slow release'
• In no case shall grass clippings, vegetative material, and/or vegetative debris
be washed, swept, or blown off into stormwater drains, ditches, conveyances,
water bodies, wetlands, or sidewalks or roadways.
Additional measure included in the ordinance included the consideration of banning the retail sale
of fertilizers with either phosphorus or less than 50% ‘slow release’ nitrogen. During the ordinance
process it was revealed that city would have issues with enforcement mechanisms for contractors
performing landscaping services on private property. This concern has led the city to approve a
resolution urging the County to introduce a fertilizer ordinance. The fertilizer ordinance would
work to reduce the use of fertilizers and its runoff, which can be harmful to the health of waterways
in Biscayne Bay.
As the city continues to enhances its water quality program we will look to implement a water
quality campaign to will include educational materials and trainings that will provide city staff and
residence with information on steps that can be taken to prevent pollution from entering into
Biscayne Bay. Additional steps will be taken to collaborate with other Counties and state agencies
to share information on water quality protection programs.
Miami Beach draws approximately 6 million overnight tourists on an annual basis and appeals to
the 90,000 residents who choose to call the urban island home. Protecting our waterways is key
to providing our visitors with the world-class experience they have come to expect from Miami
Beach and protecting the high quality of life residents enjoy. While at this time no major issues
have been identified, the City is consistently evaluating its stormwater management program to
go above and beyond in protecting this regional resource.
Memo
To: Roy Coley, MBA / City of Miami Beach
Nelson Perez-Jacome, PE / City of Miami Beach
From: Agustin Maristany, PE / Ardurra
Date: February 13, 2020
Re: Biscayne Bay Preliminary Nutrient Loadings Estimates
Introduction
Recent reports of sewage spills and seagrass losses in Biscayne Bay have raised awareness of
the potential impact of nutrient loadings to the health of the Bay. To better understand the
extent of the City of Miami Beach loading contributions to the Bay, the City retained Ardurra
Group, Inc. (Ardurra) to estimate preliminary nutrient loadings into the northern portion of the
Bay from various sources, with primary emphasis on the relative nutrient loadings between the
City and other major sources. Loadings are considered preliminary to the extent that they were
based on readily available information, some source data were not available, and there is room
for refinement based on additional data. However, the relative loadings amongst the various
sources are not expected to change substantially from the results shown herein.
The northern portion of Biscayne Bay extends north of the Rickenbacker Causeway and has a
surface area of approximately 17.9 square miles. Potential nutrient sources into the Bay include
canal discharges, atmospheric deposition (wet and dry fall), coastal area discharges, coastal
groundwater inflows, ocean outfalls, sewage spills, sediment resuspension/decomposition,
nitrogen fixation, and tidal inflows. Of these potential sources, only canal discharges,
atmospheric deposition, western coastal area discharges, and Miami Beach runoff were
considered in the loading estimates because of insufficient data to cover the remaining sources.
Excluded sources include coastal groundwater inflows, ocean outfall discharges, sewage spills,
sediment resuspension/decomposition, nitrogen fixation, tidal inflows, and drainage from several
coastal basins (Surfside, Bal Harbour, Bay Harbor Islands, Port Miami, Fisher Island, Virginia
Key, and Indian Creek Island).
This technical memorandum summarizes the results of the work performed herein and is
organized into the following sections:
• Introduction
• Inflow Sources
• Nutrient Data
• Loading Estimates
• Summary and Conclusions
February 13, 2020
Page 2
Inflow Sources
Data on inflow sources to the Bay were obtained from documents and databases, as follows:
• Flow records
o South Florida Water Management District’s (SFWMD) DBHYDRO database - daily
average flows and rainfall at the Miami Airport (MIAMI.FS_R) for the period of record.
• Watersheds, Control Structures, and Operations
o Map of Active DBHYDRO Stage Sites, SFWMD
o Structure Books, SFWMD Operations Control Center
o An Atlas of Eastern Dade County Surface Water Management Basins, SFWMD
o Miami-Dade County GIS
• Miami Storm Event characteristics – “Analysis of Storm Event Characteristics for Selected
Rainfall Gages Throughout the United States”, EPA, 1989
• Miami Beach Land Use
Canal discharges into the western shores of the northern Bay contribute most of the inflow
water into the northern Bay. Major canals discharging into the northern Bay include Snake
Creek (C-9 East), Arch Creek, Biscayne Canal (C-8), Little River (C-7), and Miami River (C-6,
C-5, and C-4). Figure 1 shows the basin areas discharging into the Bay and Table 1 provides a
summary of canal flow data obtained from DBHYDRO.
Review of Table 1 reveals occasional negative flows in all the basins which may be attributed to
back flow through the control structure due to either storm surge overtopping the structure or
high tides while the structured was partially open, although the nature of these occurrences was
not investigated. A review of historic flow graphs at each station indicated that the occurrence
of negative flows was very limited for all stations, except for G-58 which showed consistently
negative values that could not be explained without a more in-depth investigation beyond the
scope of this work. Therefore, the flow data for the G-58 station was not used in the
calculations. Instead, flows for the Arch Creek Basin (G-58) were estimated as the product of
its area and an average basin yield as discussed below.
Table 1 shows basin yields, defined as the volume of runoff per unit area, expressed in inches
per year over the watershed. Rainfall at the Miami airport, for example, averaged 63.2 inches
per year for the period April 1996 through August 2019. By comparison, some basin yields are
very high due to seepage inflows from the Water Conservation Areas into the western reaches
of these basins as well as surface water transfers from the regional system, including
maintaining minimum flows and levels during dry periods. These unique hydrologic conditions
inflate the basin yield and are not representative of basin yields for basins not affected by these
hydrologic conditions.
In order to estimate average flows for coastal basins and Arch Creek, as shown in Figure 1,
basin yields were calculated for a couple of neighboring basins that are not significantly affected
by these hydrologic conditions. DBHYDRO records were downloaded for the Coral Gables and
Cutler Drain canal basins as shown in Table 2.
February 13, 2020
Page 3
Figure 1 – North Biscayne Bay Drainage Basins, Canals, and Control Structures
Table 1 – Summary of Canal Flows (DBHYDRO)
Canal Period of Record Area1
(mi2)
Daily Average Flow (cfs) Yield
in/yr Name Number Structure Start End Count Max Min Ave
Snake Creek C-9 S-29 5/31/85 8/6/19 98 12,196 2,778 -1,390 290 40.0
Arch Creek G-58 9/5/87 7/31/19 7 10,350 118 -257 -32
Biscayne C-8 S-28 5/31/85 8/6/19 29 11,792 1,750 -131 108 51.5
Little River C-7 S-27 5/31/85 8/6/19 32 12,032 1,645 -1,426 167 70.8
Miami River C-6 S-26 5/31/85 8/21/19 54 12,536 1,960 1,212 213 53.6
Tamiami C-42 S-25B 5/31/85 8/6/19 84 12,473 1,817 -386 215 34.7
Comfort C-52 S-25 5/31/85 8/6/19 2 12,392 160 -29 9 62.4
1 Basin area to control structure only
2 C-4 and C-5 canals drain into the C-6 canal prior to discharging into Biscayne Bay
February 13, 2020
Page 4
Table 2 – Basin Yields for Coastal Basins (DBHYDRO)
Canal Period of Record Area1
(mi2)
Daily Average Flow (cfs) Yield
in/yr Name Number Structure Start End Count Max Min Ave
Coral Gables C-3 S-93 9/30/91 8/7/19 11 10,106 430 -323 12.2 15.1
Cutler Drain C-100 S-123 8/31/85 8/21/19 41 11,845 5,710 -2,773 39.3 13.0
1 Basin area to control structure only
From Table 2, the area weighted average basin yield of 13.4 in/yr was calculated as
representative of coastal basins and applied to the coastal basin areas as well as Arch Creek to
estimate average flows into the Bay.
Discharges from Miami Beach were estimated using the rational method as the product of the
runoff coefficient (0.49), the average rainfall storm volume (0.71 inches less 0.1 inches to
account for non-runoff producing storms), and the average number of storms per year (72.4
storms/year), as follows:
Miami Beach Runoff (in/yr) = 0.49 * (0.71-.1) * 72.4 = 21.6 in/yr
The runoff coefficient was estimated as the product of the fraction of land use and its respective
runoff coefficient, as follows:
Runoff coefficient = (0.64 * 0.4)R + (0.275 * 0.8)C + (0.085 * 0.15)G = 0.49
where: R = residential; C = commercial; G = golf course
Table 3 summarizes the inflows and drainage areas for each of the sources considered.
Additionally, several inflow sources were consolidated for easy of reporting, as follows:
• Biscayne Canal was combined with its coastal area and Arch Creek
• Little River was combined with its coastal area
• Miami River was combined with its coastal area, as well as the Tamiami and Comfort
canals which flow into the C-6 Canal before discharging into the Bay
Review of Table 3 indicates that the bulk of inflow volumes are delivered to the Bay’s western
shores through various canals with a combined drainage area of 326.2 square miles, accounting
for 91.7 percent of all inflows into the Bay. Figure 1 depicts the combined basin outline
discharging into the Bay. Miami Beach represents 1.8% of the drainage area of the northern
portion of the Bay, contributing 0.9% of the inflows.
February 13, 2020
Page 5
Table 3 – Summary of Inflow Sources
Inflow Source Individual Consolidated
Name Canal Structure Area
(mi2)
Flow
cfs
Yield
(in/yr)
Area Flow
(mi2) % cfs %
Snake Creek C-9 S-29 98.4 290.1 40.0 98.4 28.1 290.1 25.9
Arch Creek Arch Creek G-58 7.3 7.2 13.4
38.0 10.8 117.7 10.5 Biscayne C-8 S-28 28.5 108.3 51.5
Biscayne C-8 Coastal Basin 2.2 2.2 13.4
Little River C-7 S-27 32.0 167.0 70.8 36.9 10.5 171.9 15.3 Little River C-7 Coastal Basin 5.0 4.9 13.4
Miami River C-6 S-26 53.9 212.8 53.6
152.8 43.6 449.1 40.0 Miami River C-6 Coastal Basin 12.8 12.6 13.4
Tamiami C-4 S-25B 84.3 215.2 34.7
Comfort C-5 S-25 1.9 8.5 62.4
Miami Beach Miami Beach 6.4 10.2 21.6 6.4 1.8 10.2 0.9
Rainfall Biscayne Bay 17.9 83.1 63.2 17.9 5.1 83.1 7.4
Total 350.5 1,122.1 350.5 1,122.1
Nutrient Data
Nutrient data were obtained from various documents and databases, as follows:
• Canal Water Quality Data
o South Florida Water Management District’s (SFWMD) DBHYDRO database
• Miami Beach Water Quality Data
o Monthly Water Quality Data - collected at 64 sampling stations throughout the
coastal waters adjacent to Miami Beach for the period 8/16/16 to 5/20/19
o Pump Station 32 Water Quality Sampling – 36 grab samples at the 6th Street Outfall
for the period 10/31/18 to 11/15/18. Samples were obtained downstream of the
vortex structure, at the wet well, and at the outfall when the pump station was on and
off.
• Bulk deposition of phosphorus and nitrogen
o Atmospheric Deposition of Phosphorus: Concepts, Constraints and Published
Deposition Rates for Ecosystem Management, by Garth W. Redfield, 2/2002, South
Florida Water Management District, EMA # 403, West Palm Beach, FL.
o Quantifying Atmospheric Deposition of Phosphorus: A Conceptual Model and
Literature Review for Environmental Management, by Garth W. Redfield, 3/1998,
South Florida Water Management District, Technical Publication WRE #360, West
Palm Beach, FL.
o Outlier Detection in Phosphorus Dry Deposition Rates Measured in south Florida, by
Hosung Ahn and R. Thomas James, Feb 1991, Atmospheric Environment 33 (1999)
5123-5131
February 13, 2020
Page 6
Canal water quality data were available through DBHYDRO for numerous stations in Biscayne
Bay. Data for stations closer to the point of discharge of each of the canals were selected and
downloaded for further analysis. Subsequently, the nutrient data was paired with flow data from
each of the canals to calculate flow-weighted concentrations for Total Nitrogen and Total
Phosphorus. Generally, flow-weighted concentrations were higher than the simple averages,
with nitrogen values experiencing a more pronounced increase compared to phosphorus.
Table 5 summarizes the flow-weighted concentrations at each of the stations. Bold values were
used as the basis for calculating nutrient loads.
Table 5 – Summary of Canal Nutrient Data
Canal Period of Record Total Phosphorus (mg/l Total Nitrogen (mg/l)
Name Station Start End Count Ave Count Ave
Snake
Creek
SK01 7/11/88 9/8/14 155 0.017 27 1.11
SK02 7/11/88 9/8/14 180 0.011 54 1.31
SK03 7/8/91 9/8/14 146 0.007 52 1.04
Biscayne BS01 3/19/79 9/8/14 219 0.016 28 0.55
BS04 7/11/88 9/8/14 187 0.019 55 1.08
BS10 7/8/91 9/8/14 152 0.016 50 1.47
Little
River
LR01 3/19/79 9/8/14 216 0.013 28 0.53
LR03 7/11/88 3/3/03 133 0.026 Insufficient Data
LR06 7/9/90 3/3/03 117 0.029 26 1.41
LR10 7/8/91 9/8/14 151 0.012 50 2.17
Miami
River
MR02 4/11/84 3/4/03 170 0.021 Insufficient Data
MR07 4/11/84 9/9/14 230 0.016 5 1.15
MR08 2/1/88 9/9/14 193 0.010 54 1.45
MR15 7/9/91 9/9/14 140 0.007 47 1.18
Tamiami TM03 7/12/88 3/4/03 135 0.011 25 1.09
TM08 7/9/91 3/4/03 94 0.005 23 1.13
Comfort CM02 10/6/09 9/9/14 55 0.033 25 0.53
For coastal basins, an average of the bold phosphorus and nitrogen concentrations were used
for the loading calculations: 0.022 mg/l for total phosphorus and 1.33 mg/l for total nitrogen.
Figure 2 shows the location and distribution of monthly water quality sampling stations
monitored by Miami Beach. Locations included the Collins Canal, Indian Creek, Middle/North,
South Beach, and Venetian Islands. Sixty-four (64) grab samples were obtained from adjacent
coastal waters for the period 8/16/16 to 5/20/19. Thirty-two (32) of the 64 stations were located
near existing outfalls (labeled “outfall”), while the remaining were obtained at representative
locations throughout Miami Beach coastal waters (labeled “coastal”).
Table 5 provides a summary of Total Phosphorus and Total Nitrogen data from all the monthly
grab sample data collected. Total Nitrogen was calculated by adding the organic nitrogen
parameter (Total Kjeldahl Nitrogen) to the inorganic parameter (Nitrate plus Nitrite Nitrogen).
February 13, 2020
Page 7
Figure 2 – Miami Beach Water Quality Sampling Stations
February 13, 2020
Page 8
Table 5 – Summary of Miami Beach Nutrient Data in Adjacent Coastal Waters
Location Count Total Phosphorus (mg/l) Total Nitrogen (mg/l)
Ave Max Min Ave Max Min
All 64 0.038 0.103 0.030 0.474 0.828 0.347
Outfall 32 0.040 0.103 0.032 0.499 0.828 0.373
Coastal 32 0.036 0.081 0.030 0.448 0.603 0.347
In addition to the monthly samplings, the City conducted more detailed sampling at Pump
Station 32 located at the 6th Street outfall. Sampling was conducted at multiple locations (as
shown on Table 6) on the following dates and times:
• Daily grab samples on 10/31/18, 11/1/18, 11/2/18, and 11/5/18
• Four (4) grab samples on 11/6/18 between 11:05 am and 12:57 pm -
• Four (4) grab samples on 11/7/18 between 9:30 am and 1:40 pm
• Two (2) grab samples on 11/8/18 at 9:35 am and 10:00 am
• Two (2) grab samples on 11/9/18 at 11:11 am and 1:57 PM
• Daily grab samples on 11/14/18 and 11/15/18
Table 6 provides a summary of Total Phosphorus and Total Nitrogen data from all data
collected at Pump Station 32. Total Nitrogen was calculated by adding the organic nitrogen
parameter (Total Kjeldahl Nitrogen) to the inorganic parameter (Nitrate plus Nitrite Nitrogen).
Table 6 – Summary of Miami Beach Nutrient Data at Pump Station 32
Location Count Total Phosphorus (mg/l) Total Nitrogen (mg/l)
Ave Max Min Ave Max Min
All 36 0.054 0.120 0.036 0.697 1.250 0.275
Vortex 4 0.057 0.062 0.051 0.920 1.225 0.665
Wet Well 14 0.055 0.065 0.038 0.788 1.228 0.275
Pump On 14 0.055 0.120 0.036 0.574 0.860 0.275
Pump Off 4 0.043 0.050 0.038 0.589 0.896 0.355
After review of Table 5 & 6, the phosphorus and nitrogen concentrations used to calculate
loadings from Miami Beach are highlighted in bold on Table 6. Generally, the higher values in
Table 6 were used and, within Table 6, the higher value between the “wet well” and “pump on”
were selected for the load calculations.
For atmospheric deposition, bulk deposition values (wet and dry fall combined) were obtained
from several studies in Florida as previously identified. Phosphorus bulk deposition averaged
56.1 mg/m2/yr, ranging from 35 to 93.3 mg/m2/yr. Similarly, nitrogen bulk deposition values
averaged 839.7 mg/m2/yr, ranging from 750 to 910 mg/m2/yr.
February 13, 2020
Page 9
Loadings Estimates
Nutrient loadings were estimated as the product of average inflows and average concentrations
of total phosphorus and total nitrogen. The exception was atmospheric deposition which was
calculated as the product of the area of the northern portion of the Bay and the average
literature values of bulk atmospheric deposition for phosphorus and nitrogen.
Table 7 provides the basis for the area, flow, and load calculations. Table 8 provides a
summary of area, flow, and loads by consolidated major sources.
Table 7 – Basis of Nutrient Loadings by Sources
Inflow Source
Area
(mi2)
Yield
(in/yr)
Flow
cfs
Phosphorus Nitrogen
Name Canal Structure Conc.
(mg/l)
Load
lbs/d
Conc.
(mg/l)
Load
lbs/d
Snake Creek C-9 S-29 98.4 40.0 290.1 0.017 26.81 1.31 2,053
Arch Creek Arch Creek G-58 7.3 13.4 7.2 0.022 0.84 1.33 52
Biscayne C-8 S-28 28.5 51.5 108.3 0.019 11.14 1.47 859
Biscayne C-8 Coastal Basin 2.2 13.4 2.2 0.022 0.26 1.33 16
Little River C-7 S-27 32.0 70.8 167.0 0.029 25.87 2.17 1,952
Little River C-7 Coastal Basin 5.0 13.4 4.9 0.022 0.58 1.33 35
Miami River C-6 S-26 53.9 53.6 212.8 0.021 24.54 1.45 1,668
Miami River C-6 Coastal Basin 12.8 13.4 12.6 0.022 1.48 1.33 91
Tamiami C-4 S-25B 84.3 34.7 215.2 0.011 12.38 1.13 1,308
Comfort C-5 S-25 1.9 62.4 8.5 0.033 1.53 0.53 21
Miami Beach Miami Beach 6.4 21.6 10.2 0.055 3.03 0.79 43
Atmospheric Biscayne Bay 17.9 63.2 83.1 15.7 235.1
Total 350.5 1,122.1 124.2 8,333.6
Table 8 –Summary of Nutrients Loads by Consolidated Sources
Inflow Sources Area Flow Phosphorus Load Nitrogen Load
Name Canal (mi2) Percent cfs Percent lbs/d Percent lbs/d Percent
Snake Creek C-9 98.4 28.1% 290.1 25.9% 26.8 21.6% 2053.1 24.6%
Biscayne C-8 38.0 10.8% 117.7 10.5% 12.2 9.9% 927.0 11.1%
Little River C-7 36.9 10.5% 171.9 15.3% 26.4 21.3% 1987.6 23.8%
Miami River C-6 152.8 43.6% 449.1 40.0% 39.9 32.2% 3091.7 37.1%
Miami Beach 6.4 1.8% 10.2 0.9% 3.0 2.4% 43.2 0.5%
Atmospheric 17.9 5.1% 83.1 7.4% 15.7 12.7% 235.1 2.8%
Total 350.5 1,122.1 124.2 8,333.6
Figure 3 shows pie charts with the relative contribution of each sources to area, flow,
phosphorus, and nitrogen loadings. Figures 4 through 7 provide aerial views of North
Biscayne Bay contributing areas, inflow distribution, phosphorus, and nitrogen loadings,
respectively.
February 13, 2020
Page 10
Figure 3 – Relative Source Areas, Flows, and Loadings to North Biscayne Bay
February 13, 2020
Page 11
Figure 4 – North Biscayne Bay Contributing Areas
Figure 5 – North Biscayne Bay Inflow Distribution
February 13, 2020
Page 12
Figure 6 – North Biscayne Bay Phosphorus Loading
Figure 6 – North Biscayne Bay Nitrogen Loading
February 13, 2020
Page 13
Summary and Conclusions
The City of Miami Beach retained Ardurra to prepare preliminary estimates of nutrient loadings
into North Biscayne Bay, with primary emphasis on establishing the relative nutrient loadings
between the City and other major sources. Loadings are considered preliminary to the extent
that they were based on readily available information, some source data were not available, and
there is room for refinement based on additional data. However, the relative loadings amongst
the various sources are not expected to change substantially from the results shown herein.
The northern portion of Biscayne Bay extends north of the Rickenbacker Causeway and has a
surface area of approximately 17.9 square miles. Potential nutrient sources into the Bay include
canal discharges, atmospheric deposition (wet and dry fall), coastal area discharges, coastal
groundwater inflows, ocean outfalls, sewage spills, sediment resuspension/decomposition,
nitrogen fixation, and tidal inflows. Of these potential sources, only canal discharges,
atmospheric deposition, western coastal area discharges, and Miami Beach runoff were
considered in the loading estimates because of insufficient data to cover the remaining sources.
Excluded sources include coastal groundwater inflows, ocean outfall discharges, sewage spills,
sediment resuspension/decomposition, nitrogen fixation, tidal inflows, and drainage from several
small coastal basins (Surfside, Bal Harbour, Bay Harbor Islands, Port Miami, Fisher Island,
Virginia Key, and Indian Creek Island).
Most of the calculations were based on actual data for drainage areas, flows, and water quality.
Exceptions include (1) runoff from smaller western coastal areas which were based on average
runoff yields for watersheds with similar hydrologic characteristics, (2) runoff estimates for Miami
Beach which were based on standard methods to calculate runoff from developed areas, and
(3) bulk atmospheric deposition rates which were based on literature data from studies
conducted in south Florida. Further, the water quality data associated with canal flows were
based on grab samples collected downstream of the salinity control structures, and therefore,
the nutrient concentration may be somewhat diluted by Bay waters. To compensate, canal
water quality data was flow-weighted to provide greater weight to data collected during flow
events.
To provide a higher level of confidence to the calculations, the relative contribution of the
various nutrient sources into the Bay was expressed in terms of contributing drainage area,
inflows, and nutrient loads. The highest level of confidence is associated with the contributing
areas, followed by inflows, and last, loadings estimates.
Results indicate that the City of Miami Beach is a very minor contributor to the Bay as
summarized in Table 9. Its drainage area represents 1.8% of the total contributing area to the
north Bay.
February 13, 2020
Page 14
Table 9 – Miami Beach Contribution to Biscayne Bay
Miami Beach Contribution to North Biscayne Bay
Parameter Percent of Total
Contributing Area 1.8%
Inflow 0.9%
Phosphorus Loading 2.4%
Nitrogen Loading 0.5%
In terms of inflows, Miami Beach contributes 0.9% of all the inflows into the north Bay compared
to 91.7% contributed by canal discharges. This lower percentage relative to its drainage area is
explained by the fact that the runoff from the major canals draining the western portions of the
County contribute not only the runoff generated by local rainfall, but also convey additional large
volumes of water from surface water transfers from the regional system.
Finally, Miami Beach’s contribution of phosphorus and nitrogen loads amounts to 2.4% and
0.5%, respectively, of the total loadings into the north Bay, compared to 84.9% and 96.7%,
respectively, by runoff from canal discharges. The relative contribution of Miami Beach may be
reduced somewhat with the addition of multiple additional potential sources that were not
included in the calculations due to lack of data.
An interesting observation is that bulk atmospheric deposition (wet and dry fall) is significantly
higher than the contributions from Miami Beach. It has been well documented in the literature
that dust from the Saharan desert significantly impacts south Florida, especially during the
summer, carrying phosphorus, nitrogen, and minerals.