Surface Water Improvement and Management (SWIM) Plan for the Everglades 1992

EXECUTIVE SUMMARY (edited)

A. THE EVERGLADES INITIATIVE

      The South Florida Water Management District's (SFWMD) Everglades restoration and protection initiative consists of three primary components: (1) the Everglades Surface Water Improvement and Management (SWIM) Plan, (2) the SFWMD's permit for district structures, and (3) the Everglades SWIM Rule, requiring permits from private landowners.

1. Everglades SWIM Plan.

The Everglades SWIM Plan is being developed pursuant to the Surface Water Improvement and Management Act (SWIM Act - Section 373.451- 373.4595, Florida Statutes) and the Marjory Stoneman Douglas Everglades Protection Act (MSD Act - Section 373.4592, Florida Statutes). This Plan describes Everglades development and management history, summarizes present knowledge, and provides an overview of current conditions. The Plan then integrates proposed and existing programs to address various aspects of water resource management in the Everglades, such as water quality, water quantity (hydroperiod), flood control, and environmental enhancement. The plan also provides a funding strategy for the Everglades restoration initiative.

The Everglades SWIM plan represents overall approaches and guidelines for integrating activities and is subject to public, state and local review. Implementation of all programs and projects identified in the Plan will require specific actions through public processes such as SFWMD Governing Board approval, permits, rulemaking, and interagency agreements.

2.SFWMD Structures Permit Application.

Pursuant to the MSD Act, the SFWMD has applied to the Florida Department of Environmental Regulation (DER) for 5-year interim permits for District structures discharging into or within the Everglades Protection Area (EPA) and for the construction, operation, and maintenance of stormwater management systems.

3. Everglades SWIM Rule - Landowners Permit.

The SFWMD is required to publish notice of rulemaking to allow for a master permit or permits authorizing discharges by landowners within the Everglades Agricultural Area (EAA). Adoption of this rule will implement the initial program to address and regulate the amount of phosphorus discharged by farm lands served by S-5A, S-6, S-7, S-8, and S-150.

B. BACKGROUND

The Everglades is a unique South Florida resource. Man's original water management activities were designed to drain this region and exploit the natural resources of rich soils and tropical climate for agricultural development. Later, the canal system was improved for navigational use to transport products to coastal markets. The Central and Southern Florida Flood Control and Other Purposes Project (C&SF Project) was initiated in the 1940's with a number of interrelated management objectives. The canals, pump stations, and structures were constructed or modified to provide water supply to coastal areas, and flood protection for agricultural development within the EAA. In addition, large tracts of land within the Water Conservation Areas (WCAs) were set aside in public ownership to provide flood water and water supply storage and for environmental resource protection. Over the years, management priorities of this system have changed, with emphasis on flood control during hurricane years , water supply during droughts and, in recent years, environmental protection of Everglades' natural resources.

Today, the Everglades faces many complex water resource and environmental management issues. Most of these concerns have occurred due to the rapid and extensive urban and agricultural development that has occurred during the past century. Major problems confronting the Everglades system include the following:

1. Fragmentation of the Everglades, resulting in the loss of connections between the central Everglades and adjacent transitional wetlands. Everglades wildlife communities and sustainability of the ecosystem may be impaired by this separation and isolation.
2. Changes in timing, distribution and quantity of discharges into and within freshwater wetlands and estuarines, resulting in loss or degradation of native plant communities and loss or destruction of habitats of threatened and endangered plants and animals.
3. Impacts on natural Everglades ecosystems due to water quality associated with discharges from the EAA, resulting in adverse changes in plant and animal communities in the WCAs and threats to the ecological integrity of ENP.
4. Invasion of native plant communities by exotic species such as melaleuca.
5. Further problems are associated with the timing and distribution of discharges from freshwater areas into estuaries of Florida Bay, Manatee Bay and Barnes Sound. Any proposed changes in water management practices may alter the distribution, timing, quantity and quality of water discharged to these highly productive coastal estuaries.

C. PLAN SCOPE AND PURPOSE

The EPA consists of the five WCAs, and ENP, including most of Florida Bay and the ENP expansion area in Dade County. The SWIM planning area includes additional surrounding basins - the EAA, Barnes Sound- Manatee bay, the urban fringe of Dade and Broward counties, and basins west of the Everglades.

The Everglades contains areas that are pristine and areas that are experiencing degradation. For areas that are in pristine condition, the District's goal under the SWIM program is to preserve and protect existing resources. Areas that are degraded and are in need of restoration are defined, based on DER water quality criteria and evaluation methods, and state criteria for imbalance in flora and fauna. For areas that have shown measurable degradation, the District's goal is to protect remaining resources, eliminate or mitigate conditions that may lead to further decline, and develop options for restoration.

This current draft Everglades SWIM plan, the application for permits, and the Everglades SWIM Rule are a comprehensive statement of SFWMD policy and intent concerning Everglades management. This SWIM plan identifies structural and non-structural solutions to improve water quality, hydrologic conditions, and scientists' understanding of Everglades ecology. Regulatory, monitoring and research programs will be implemented to control or eliminate sources of pollution and to measure the effectiveness of proposed solutions.

The SWIM plan for the Everglades is presented in three documents. The Planning Document provides major conclusions and recommended actions; supporting discussions of technical, scientific and policy issues; management options that were considered in the development of specific recommendations; projects and funding; schedules; and other related materials. The Supporting Information Document includes a description of the legal basis, technical and scientific information, and data that are relevant to the SWIM plan. The Appendices provide additional supporting and supplemental data and documentation.

D. SWIM PLAN ELEMENTS Specific recommendations of the Everglades Plan are summarized in the following categories:

E. PROJECT FUNDING, COSTS, AND SCHEDULES

Primary Funding Sources. A series of new projects are proposed in this plan. The following primary funding sources are being examined for their ability to support the majority of costs of Everglades restoration projects:

Stormwater Funding (Utility). The Districts authorized under MSD Act to establish stormwater utility fees and/or assessments to fund stormwater management systems.

EAA Environmental Protection Taxing District (EPD). The EAA Environmental Protection Taxing District agreed in the past to contribute funding for everglades Restoration research and planning activities.

Federal Contributions. The District shall seek funding appropriate federal agencies (e.g. USEPA, USCOE, USDA, NPS, USFWS).

State Lands. The district will work with the Department of Natural Resources, the Governor's Office and Cabinet to exchange state owned lands in the EAA for the lands needed to build STAs.

Ad Valorem Taxes. The District has the ability , to levy additional taxes to continue the Everglades restoration projects.

Other Funding Sources. Other known funding sources for Everglades projects include:

Mitigation - WCAs. As part of mitigation for a proposed 500 kV power line, Florida Power and Light (FPL) will provide $28 million towards projects to manage inflow water quality and quantity and otherwise enhance the WCAs.

Preservation 2000. This legislation, funded for two years, authorizes issuance of bonds for acquisition of public lands to protect the integrity of ecological systems. Lands needed for Everglades restoration fall within this definition.

Mitigation- Melaleuca. FPL will also provide the District with $1.5 million towards melaleuca removal.

SWIM Trust Funds. The SWIM Trust Fund is appropriated by the Florida Legislature annually. Certain limitations exist for use of these funds. The MSD Act allows SWIM funds to be released to the SFWMD for acquisition, construction, or operation of STA-1- Phase 1 and STA-3 prior to adoption of the SWIM Plan.

SFWMD. SWIM trust funds require a 20% District match for FY 90-91 and a 40% District match for FY 92-97.

2. Overview of Proposed Everglades Restoration Projects. Project descriptions and cost estimates, representing FY 90-97for EAA-related projects and FY 90-95 for non-EAA related cost for additional years will be presented in plan updates. Estimated project costs do not include District staff time or resources. Final costs will be determined upon land acquisition, engineering design, construction bid, project definition, contract negotiations, etc. If funding sources change, project will be prioritized.

F. Long Term Commitment to SWIM Planning

In spite of dedicated efforts, complex environmental problems in Everglades, which have developed over the course of decades, cannot be solved solely by development and implementation of this initial plan. This plan represents the District's commitment to multiyear preservation and restoration process for the Everglades hat will be revisited annually for funding and other review. Because the science of resource is inexact, analyses of research and monitoring data to determine the effectiveness of these programs will ensure that SWIM planning remains a dynamic process.