Broward County wide Integrated Water Resource Plan Report

Transcription

1 Broward County wide Integrated Water Resource Plan Report Natural Resources Planning and Management Division Water Policy & Planning Program November 2009

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3 Abstract i The Broward County-wide Integrated Water Resource Plan (IWRP) is the tenyear plan of Broward County s water management community for meeting the needs of Broward s water users. It has been developed to coordinate the sources and users of water for effective and efficient local water management and to assist the local water suppliers in meeting the County s present and future urban and natural systems water needs. The information presented in this report in Chapters 1 through 4 provides background material on the physical setting, water resources, governance, and the process used in the development of the IWRP. The Plan itself is presented in Chapters 5 and 6 beginning on page 79. By design, the IWRP has developed in response to unique local conditions such as an extensively altered landscape resulting from historic drainage; topography; lack of natural storage; the seasonal and spatial variability in rainfall; and, the policies reflected in the broader long-term regional plans for Everglades restoration and regional water supply and availability. It recognizes that by cooperatively addressing these constraints, we will be able to better meet the uncertainties of an evolving Comprehensive Everglades Restoration Project (CERP) and what it may mean to the availability of future regional water supplies. In taking this cooperative approach, the IWRP addresses the challenges presented by rapid population growth, a diverse water management community, and the need to maintain a water management system capable of addressing multiple objectives. Its successful implementation will help to ensure that groundwater and surface water levels are sufficient to meet wetland system and public supply needs, while preventing saltwater intrusion and providing aquifer recharge and flood control. Over the past several years, there has been an increasing focus on water policy and resource management at both the local and state levels. Recent changes in State water policy have brought about a need to reevaluate the original concept of the IWRP, and to reassess the County s position and direction with respect to local and regional planning efforts. Foremost among these considerations is the need for diversification of local water resources and development of alternative water supply projects. Local governments are now required to incorporate these projects and planning efforts in their comprehensive plans. Some State funding has been made available to pursue these alternative sources on a cost-share basis. More recently, a major change in state law adopted in 2008, mandates that the two ocean outfalls in Broward County be closed by 2025 and 60 percent of the treated wastewater currently disposed of through these outfalls be reused for beneficial uses. While there still remain many decisions yet to be made with regards to the scale and type of alternative water supply projects to be pursued, local partners, comprised of water utilities, local governments, and water management entities

4 are working together with the State to investigate the feasibility of regional alternative water supply projects. Other entities are pursuing smaller scale individual projects. The County s water planning efforts will continue to focus on urban water resource management strategies that optimize the use of local and regional water sources and will continue to work with utilities and others in investigation of regional/sub-regional alternative water options to meet the County s long-term water supply needs and water resource objectives. These strategies include: Promoting conservation as the most cost-effective means of producing new water; Continued integration of the secondary canal network to store and distribute water; and Technical support for and working with others in the investigation and pursuit of multi-jurisdictional alternative water supply projects. Integral to the IWRP approach is the continued implementation of an active water resource assessment process that includes needs assessments, modeling, and monitoring. The County-wide integrated groundwater-surface water model is facilitating the analysis of various water management options, allowing the County to position itself to move the IWRP s water development programs forward with greater certainty. Master modeling scenarios will be developed to analyze individual IWRP projects and to determine where the infrastructure network or grid improvements will need to be in order to meet agreed upon performance objectives. The management of our water resources will continue to benefit from intergovernmental cooperation and the economies of scale inherent in this approach. Once modeling and cost-benefit analyses have been completed, and stakeholder benefits have been determined, we will be in a better position to consider future governance issues. ii

5 iii Preface It is evident that, prior to the days of the earliest explorers and settlers and through the great Florida Land Boom of the mid 1920 s, water surrounded Broward County on the east and inundated it on the west, paradoxically posing the greatest obstacles and the highest possibilities for man. Cooper Kirk, Broward County Historian Foundations of Broward County Waterways Broward Legacy, Winter/Spring 1985 In 1904, Napoleon B. Broward successfully ran for Governor of Florida under the promise to create an Empire of the Everglades by draining the last drop of water out of that pestilence-ridden swamp. One hundred and five years later, the County which bears his name is, in part, a tribute to the success of meeting that challenge and is now home to over 1.7 million people. Although the challenges of water management in Broward County are much different than they were a century ago, they are no less daunting. Today, these challenges include how to provide flood protection and supply water to a population expected to increase to more than 2.1 million people by 2025, while at the same time ensuring that our wellfields and urban wetlands have sufficient water supplies to maintain their integrity. Looking to the future, we must also ensure that our management decisions support and work in concert with Everglades restoration, the largest natural system restoration effort in the world. A century after Governor Broward s promise to drain the Everglades, the paradox involving Broward County s water resources is not just about removing water, but how to ensure its availability for recharge of our aquifers and natural systems. Getting the water right is not just a mantra for Everglades Restoration; it is key to successful management of Broward County s water resources as well. Broward County faces these challenges with confidence. Through its Integrated Water Resource Plan, Broward County has developed a big picture approach to managing local water resources. By working closely with the South Florida Water Management District, municipal and private water utilities, and numerous other local water management entities within the County on technical strategies, and with all users on conservation strategies, Broward County is ensuring that it is effectively and efficiently meeting the present and future needs of its urban population and natural systems. The success of these efforts will be measured by how well we are able to manage our water resources during droughts and floods and meet our commitments to restoration of the Everglades.

6 iv Acknowledgements This Integrated Water Resources Plan for Broward County is dedicated to David M. Lee, Director of the County s Water Resource Division from 1994 to March 2007 who provided the vision for the IWRP as represented in this document. His untimely passing in March 2007 has left a void in Broward s water management community. The development and implementation of the County-wide IWRP would not have been possible without the contributions and dedication of dozens of agencies and individuals including, but certainly not limited to: The Water Advisory Board to the Broward County Board of County Commissioners The Technical Advisory Committee to the Water Advisory Board The Surface Water Coordination Committee The South Florida Water Management District Dr. Nancy Gassman Dr. Darrell Dunn John Crouse Dave Markward Fran Henderson Carl Archie Roy Reynolds

7 TABLE OF CONTENTS Abstract... i Preface... iii Acknowledgements... iv EXECUTIVE SUMMARY... v Chapter 1: INTRODUCTION... 1 South Florida s Unique Environment... 1 Broward County... 2 Water in Broward County s Development... 3 The Challenges of Water Management... 6 We All Have a Role in Water Management... 8 Chapter 2: BROWARD COUNTY S WATER RESOURCES South Florida s Hydrologic System Rainfall Evapotranspiration Broward s Urban Water Budget The Biscayne Surficial Aquifer System The Floridan Aquifer Groundwater Flow Water Control in Broward County Canals Saltwater Intrusion Surface Water Management Broward County Water Supply System County Wellfields Chapter 3: GOVERNANCE OF WATER IN BROWARD COUNTY Integration of Water Resource Plans History of Regional Water Management South Florida Water Management District Lower East Coast Water Supply Plan Everglades Restoration-CERP Broward s County-wide Integrated Water Resource Plan (IWRP) Broward County s Role in Water Management Other Entities Involved in Water Management in Broward County A Greater County Role in Water Management? Governance through the IWRP Water Advisory Board Technical Advisory Committee Surface Water Coordination Committee Broward League of Cities Broward County/SFWMD technical working groups Comprehensive Plans Other Mechanisms for IWRP Implementation... 56

8 Chapter 4: DEVELOPMENT OF THE IWRP Early Development of the IWRP The IWRP Planning Process Canal System Integration Natural System Integration Utility System Integration Policy Integration Chapter 5: Broward s County-wide IWRP Introduction Planning for the Next Ten Years Implementation of the IWRP Water Resource Assessments Guide Adaptive Management Approach. 81 Needs Assessments Monitoring Modeling Our Urban Water Resource Management Strategies Conservation Technical Strategies Secondary Canal Integration/Stormwater Reuse Alternative Water Supply Projects Sub-regional Aquifer Storage and Recovery Wetland Rehydration Utility-driven Water Resource Strategies Utility Sharing Advanced Wastewater Treatment Reverse Osmosis Direction for the Future The Challenges of Climate Change Governance and Coordination Public Outreach and Education Summary Chapter 6: CONCLUSION AND RECOMMENDATIONS Appendix A: Broward County Drainage Basins Appendix B: Summary of IWRP Expenditures.146 Endnotes 149 List of Acronyms.. 153

9 v EXECUTIVE SUMMARY Broward s County-wide Integrated Water Resource Plan (IWRP) is the Broward community s approach to addressing water resource management over a tenyear planning horizon and beyond. By necessity, it employs an adaptive management process that responds to unique local conditions such as historic drainage; topography, loss of natural storage east of the Everglades, the seasonal and spatial variability in rainfall, and the policies reflected in the broader long-term regional plans for Everglades restoration and regional water supply and availability. In taking this approach, the IWRP addresses the challenges presented by rapid population growth, a diverse water management community, and the need to maintain a hydrologic system capable of meeting multiple objectives. Successful implementation of the IWRP will help to ensure that water supplies, and groundwater and surface water levels are sufficient to meet public water supply and natural system needs, while preventing saltwater intrusion, and providing for aquifer recharge and flood control. The goals of the Broward County-wide Integrated Water Resource Plan (IWRP) are: To make the most of our local water resources, so that Broward s longterm water supply needs are met; To coordinate a diverse water management community, ensuring the efficient and effective management of our water resources; To match up local water sources and users to ensure that water supplies are available when and where they re needed; To diversify water supplies to create flexibility and options so that the needs of urban and natural systems are met under wet and dry conditions. To accomplish these goals, the IWRP was developed in a phased approach with a focus on four plan components: canal system integration, natural system integration, utility system integration, and policy integration. This process resulted in a number of studies, programs, and ongoing efforts that have shaped, and continue to shape, the IWRP. Among these have been utilities & secondary canal needs assessments, wetlands needs assessments, secondary canal integration projects, hydrologic model development and application, and a targeted public outreach program. The IWRP has used these initiatives to develop and continually evaluate water programs which are designed to address the County s water needs and provide a flexible and cost-effective approach to serving the growth that is projected during the next decade and beyond while protecting natural systems. As will be discussed in detail in Chapter 5, urban resource management strategies that focus on conservation; optimization of our local water resources; use of the County s extensive canal network to aid in distribution and aquifer recharge;

10 vi regional alternative water supply projects; and utility-specific initiatives, serve as the basis for IWRP efforts to meet the County s diverse user needs. Broward County s Development Broward County s population growth over the past century has been phenomenal. From a land that was considered unfit for human habitation at the beginning of the 1900 s, the County has become home to over 1.7 million people, most located on just one-third of the total land area. Broward County s development is directly attributable to the successful efforts of both individuals and government to drain the Everglades, initially for flood control to encourage agriculture, and later for homes, businesses, and transportation routes. While the development of the land has further reduced water levels for flood protection, many of the isolated, remnant Everglades wetland sites have been left high and dry. Lower coastal ground water levels have also resulted in the further intrusion of salt water into the Biscayne aquifer, our principal drinking water supply. Overview of Water Resources As will be described in greater detail in Chapter 2, the south Florida environment is one of extremes - dry in winter and wet in summer. Our water supplies are dependent on a rain-driven system which feeds the highly transmissive Biscayne Aquifer that provides raw water for our 25 local water utilities, which in turn provide water to Broward County s residents, visitors, and businesses. While in the wet season most of our water comes from rainfall and aquifer recharge within the urban area, during the dry season, we depend largely on deliveries to our canal systems from the regional system or Water Conservation Areas located immediately west of the levee which divides the urban portion of Broward County from the Everglades. Although the long-term average annual rainfall is slightly more than 60 inches, dry periods occur when annual precipitation has averaged well below this amount. While the County has always been able to meet its water resource needs, when water restrictions have been implemented during particularly dry winters and prolonged periods of drought, there is an increased reliance on regional water for recharge of urban water supplies. A number of other important issues have warranted examination when considering Broward County s water resource needs: Evapotranspiration, or the return of water to the atmosphere from surface water and plants, is significant and accounts for a return of approximately 44% of the annual rainfall that falls on the County;

11 vii The capacity to store surface water is limited by the flat, low-lying nature of the land and by the limited availability of undeveloped land for water storage areas and the highly transmissive nature of our soils. Maintenance of groundwater levels and canal stages helps prevent saltwater intrusion into the Biscayne Aquifer and protects potable wellfields; Management of surface waters via the County s canal network provides aquifer recharge; Wetland needs assessments have indicated that rehydration of urban natural areas can help to restore their biotic integrity; Implementation of the Comprehensive Everglades Restoration Plan (CERP) and changes in Federal, State, and regional water policy will limit the amount of water that has historically been available from the Biscayne aquifer for meeting water supplies within urban Broward County, requiring that future supplies come from alternative water sources. Other recent changes in state law, regulations, and policy also impact Broward County s water resources, particularly with respect to the impending closure of the County s ocean outfalls; and Population is projected to increase twenty percent (20%) by 2025, so that the Broward community will require an additional million gallons per day (MGD) over what is currently permitted. Overview of Governance As discussed in Chapter 3, the IWRP provides a local level 10-Year plan for development and management of the County s urban water resources. However, other plans influence local water management and availability, and in order to be effective, the IWRP must be consistent with these other major water resource plans (i.e., the CERP and the Lower East Coast Water Supply Plan). In addition to coordination with Federal, State, and regional regulations and plans, recent changes in State water policy, specifically over the last six years, also impact water resources planning in Broward. The IWRP establishes a collaborative process between Broward County, the regional water management district, local water managers, and policy makers. Its success is rooted in its open process which encourages participation of a diverse water management community, which includes 23 special districts with water management functions, 25 water utilities, and 31 municipalities. Through the County s Water Advisory Board (WAB), its Technical Advisory Committee (TAC), the Surface Water Coordinating Committee (SWCC) and other working groups such as the Broward Water Resources Task Force, water management in Broward County is improving. Representing a broad cross section of decision-makers and water

12 viii managers, including utilities, water control and drainage districts, environmental interests, private consultants, government, and the public, these coordinating groups have provided key input at every stage of the IWRP process. Land use decisions in Broward County and within the many municipal jurisdictions which comprise it are guided by their Comprehensive Plans, which, in turn, shape demand for water in the various service areas. The need for greater coordination in land-use and water supply planning is apparent. Governments have the responsibility to implement programs and stimulate local awareness and support for these efforts. As new policies are developed to address the integration of land and water resources, there are opportunities to work with utilities and water managers to find the most effective means of managing water and to make better water management decisions. Water management in Broward County encompasses a wide range of issues, and while the IWRP is the local plan for managing the County s water resources, it is influenced by larger scale regional water plans including the CERP and the Lower East Coast Water Supply Plan (LECWSP). CERP is designed to address Everglades restoration, while the LECWSP is a strategy for meeting the needs of diverse water users in southeast Florida ranging from agriculture to urban populations to the environment. All of these regional water plans have developed, however, in response to changing demands created by the subsequent transformation of the south Florida landscape from Everglades to agricultural to residential, along with an ever-increasing population. Development of the IWRP Prior to the mid 1990 s, there were no attempts to coordinate water planning efforts on a County-wide basis. Development of the IWRP began in the summer of 1997 with the support of the Broward County Board of County Commissioners and the South Florida Water Management District (SFWMD) and was predicated on several critical assumptions. The first assumption was that water must be viewed from a regional perspective, blind to municipal or service area boundaries. All aspects of water management functions including drainage regulations, aquifer recharge, flood protection, maintenance of groundwater levels for wetlands, abatement of saltwater intrusion and public water supply would be considered. Over time, the focus for public supply has shifted to alternative water resources, including wastewater reuse, and has taken on increased importance in the regional context. A second assumption was that any County-wide plan needed to interface with broader long-term regional water resource plans with influences in Broward County, such as the CERP and the SFWMD s planning efforts.

13 ix Thirdly, water conservation and more efficient water management, would provide the greatest cost benefits by delaying or reducing the need for construction of new water supply infrastructure. Finally, coordination and consensus from a diverse water management community governed by multiple political bodies, would be essential to successful implementation of the IWRP. Development of the IWRP focused around the integration of four water plan components - natural systems, canal systems, utility systems, and policies, including a public outreach plan and local comprehensive plans. Implementation of the IWRP has occurred in four phases: In the first phase, water attributes and assets were inventoried countywide, including wetlands, surface water, and water management infrastructure. The second phase consisted of performing water needs assessments and developing hydrologic models to quantify the water needs of the natural system and urban population. Phase three of the IWRP has consisted of the development of proposed capital improvement plans and has included feasibility analyses and design of individual projects. The final phase is to construct the improvements in cooperation with partners to achieve the IWRP goal of more efficient water management. Given the dynamic nature of planning, implementation of these phases is an iterative process and necessary in order to adequately respond to changes in policy and the environment. The IWRP Today Today, as the IWRP has evolved, its current focus is on exploring a mix of urban water management strategies that are designed to provide more effective and efficient water resource development and natural system protection. These efforts are influenced by an adaptive management process and promoted through a broad public outreach effort (Figure ES-1).

14 x Figure ES-1: The Integrated Water Resource Plan consists of a number of complementary elements that are working together to more effectively and efficiently manage Broward County s water resources. Water conservation programs The County s conservation objective is to protect the quantity and quality of Broward s existing and future water resources to help meet our current and future needs. Consistent with this objective, the County has implemented a broad set of water conservation programs under the Water Matters campaign designed to produce long-term demand reductions along with improvements in water quality. These programs, targeted at various user groups, include NatureScape Broward, Know the Flow, Water Matters Day, the NatureScape Irrigation Service, and the Working Water Solutions initiatives. Further support for water conservation is found in variable rate structures, a number of conservation-oriented ordinances, and changes brought on by new State water conservation policies and regulations. Water management strategies The expected population growth within urban Broward County and its associated water demands, along with the need to reduce dependence on regional water, presents challenges to water management. The County, working closely with its

15 xi water management community, is addressing these issues by examining the best ways in which to make use of local water resources, regional water deliveries, and existing infrastructure, while at the same time exploring new sources of water to satisfy projected water demands and meet the needs of the natural system. As a strategy for meeting future water needs, the IWRP encourages the implementation of projects that support integrated use of water resources, and specifically, promotes a series of water management strategies. Secondary canal integration projects are designed to enhance surface water storage and facilitate distribution of source waters within the County s secondary canal network, without compromising flood protection. This integrated approach to canal management allows the County to optimize the volume of local rainfall that can be captured and retained for water supply benefits, while providing a distribution system for regional and alternative source waters. Sub-regional Aquifer Storage and Recovery investigations will identify how and where this technology can be implemented within the County in order to store more of the abundant seasonal rainfall. Storage is also enhanced through the Natural Systems rehydration projects, designed to restore the County s urban natural areas and improve natural system integrity. Utility sharing efforts are encouraged to coordinate operations among suppliers and optimize the use of our potable water supplies. Advanced Water Treatment technologies, including reverse osmosis and biomembrane filtration can be used to treat various resources, such as wastewater, brackish, and saline waters for various user needs and to provide offsets to potable wellfield withdrawals. Water Resource Assessments Key to the development of the IWRP has been a strong technical foundation that assesses water resources through a process that includes needs assessments, monitoring, and modeling. Broward County s water development programs are based on careful assessments of all user needs. Water for Everyone. People. Plants. Animals. summarizes the County s philosophy that in addition to public water supply needs, urban natural area needs must be considered as well. These assessments play an important role in developing a balanced approach to utilization of the County s water resources. Given increasing and often competing needs for these water resources, monitoring of water quantity and quality is an essential and ongoing component of the water resource development process to help ensure that our actions produce the desired result.

16 xii Models are a critical tool in adaptive management and are frequently used to test various scenarios for water resource development. The County has recently completed a county-wide surface and groundwater model that is enhancing the County s ability to make informed water resource planning management decisions relating to sub-regional projects. The application of this model serves as an important tool for planning to meet future water supply needs and environmental goals, while ensuring compliance with regional water policy and compatibility with CERP implementation. Governance and Coordination Through the IWRP s governance and coordination component, Broward County water managers, elected officials, and other stakeholders participate in a decision-making process aimed at reaching consensus on projects that serve the community as a whole, while considering larger regional interests. Several technical and policy groups convene regularly to further this aspect of the IWRP. Public Education and Outreach Public education and outreach is critical to effective implementation of the IWRP. The public education and outreach strategy of the IWRP is to educate and motivate the people and interests within Broward County to understand, participate in, and implement actions consistent with effective and efficient water management, now and in the future. This outreach is carried out through the Water Matters campaign which offers both general and targeted programs for the County s water users, including policy and business leaders, property managers, homeowners, and schoolchildren. Know the Flow is a 4-hour course, delivered jointly with the SFWMD, that is targeted at property managers and the regulated community. The course teaches participants about water management in south Florida, both regionally and locally, and best management practices that can be implemented to conserve water and prevent or reduce pollution. NatureScape Broward is the County s program to encourage individual participation in local water management through adoption of landscape best management practices. This is accomplished by encouraging the planting and propagation of native and non-invasive plants and protecting water quality and quantity through appropriate cultural practices such as fertilization, irrigation, and integrated pest management. Water Matters Day, an annual community event geared towards residents, provides information about water management in Broward County, water supply, the need for water conservation and water quality protection, and best management practices that can be implemented at home.

17 xiii Working Water Solutions is a series of forums for government, business leaders, and environmental professionals established for the purpose of convening to discuss what is required to develop regional water supply solutions. The forum has served as a catalyst for discussions concerning successful water conservation programs, development of alternative water supplies, current and future water resources planning, and balancing the public s need for water with economic vitality and environmental protection. Broward County s Integrated Water Resource Plan is an adaptive management plan that is working to help the County more effectively and efficiently manage its water resources and meet future needs. One of its main tenets is that everyone has a role in helping to ensure the sustainability of our water resources. Conclusion The approach for making water available for future use in Broward County is: 1) Community adoption of principles that include County-wide participation and responsibility; 2) Conservation and optimization of water resources; and 3) Pursuit and promotion of regional initiatives and alternative water supply projects. A key IWRP strategy is more efficient management of local rainfall through capture and retention within the County s extensive canal system. This is accomplished through installation of culverts, interconnects, and pumps which allow for redistribution of water resources. By investing in conservation and surface water management projects through secondary canal improvement projects as a primary approach towards more efficient management and coordination of local water resources, the County s IWRP approach has positioned the County favorably by helping to reduce the total water demands on the Biscayne aquifer while preparing the County to receive and deliver alternative source waters for canal and aquifer recharge. The IWRP provides an environmentally and fiscally-sound strategy for Broward County in addressing its present and future water resource needs. Over the next ten years, the IWRP will focus on implementing water programs that conserve our traditional water resources while working closely with Broward County utilities to develop alternative water supplies for meeting future demands, as well as reducing demands on the regional system. This includes exploration of regional AWS projects, alternative water sources for canal recharge, reuse, reverse osmosis, and sub-regional aquifer storage and recovery. The Integrated Water Resource Plan represents Broward County s commitment to our water future. Successful implementation of this plan, coupled with

18 xiv responsible permitting, adequate facility planning, and careful growth management will determine our ability to meet the goals of providing for future clean water supplies and sustaining the quality of life and the environment in Broward County. Recommendations Recommendations for the future have been developed to address a series of questions. These recommendations should not be considered all-inclusive, but rather a starting point for continued planning efforts to address the County s water future. How can we better understand our water resource management challenges? The County should continue support of its water resource assessment programs, including needs assessments, monitoring, and modeling. The County should work closely with municipalities to identify needs as part of the 10-year facility work plans to be prepared and as required by State law, and in order to better track anticipated water demands. The County should work with the SFWMD to develop a local drought management strategy consistent with the regional strategy. The Broward water management community should refine the SFWMD s Phase II Upper Floridan model to guide the placement and operation of any additional Floridan wells within the County. How can we better manage our water resources? The County should continue to conduct surface water and groundwater modeling to identify viable water supply and management projects and quantify their benefits. The County should work with the SFWMD to include projects identified through the IWRP in updates to the Lower East Coast Water Supply Plan. The County should work with the SFWMD and U.S. Army Corps of Engineers staff to identify what portion of water associated with CERP projects might be made available for urban water use and to determine whether these projects might be improved to enhance their environmental and water supply benefits. The County should continue to pursue geotechnical analysis of the Upper Floridan Aquifer to support the expanded development of this resource as an alternative water supply in Broward County.

19 xv The County should continue to develop the secondary canal network as a water delivery network and management strategy. The County should expand the development of a saltwater intrusion model along its entire coast to aid in the management of saltwater intrusion and provide a better understanding of the impacts of sea level rise and climate change on our groundwater supplies. The County should develop a stormwater management model to investigate the influence of rising sea level and other climate change influences on local water resources and our water management system with emphasis on drainage and flood control. The County should investigate the potential for subregional and regional projects that serve multiple jurisdictions to address water supply and other water management challenges. The County should undertake a reuse feasibility study to identify opportunities for reuse applications and projects County-wide. The County should partner with local water providers and municipalities to develop and coordinate a county-wide water conservation rebate program to support water conservation as a critical part of long-term planning efforts. Where will funding come from? The County should work with its partners to identify new sources for funding of conservation programs and to assist with AWS implementation projects such as residential hook-ups to reuse systems for irrigation. The County should work with municipalities and utilities to coordinate funding for water supply efforts; with FEMA where funds for drainage and recharge improvements related to hazard mitigation may be available; with SFWMD to identify sub-regional and other AWS projects eligible for funding under Alternative Water Supply Funding and water conservation projects eligible for funding under the Water Savings Incentive Program; with SFWMD and the U.S. Congress for funding of CERP; and, with the Florida Legislature for funding of the 2005 water resources program and to pursue water projects through CERP and other programs. How do we best implement the IWRP? The County should encourage continued participation and coordination of municipalities and local water managers in forums such as the Water Advisory Board and its Technical Advisory Committee, the Surface Water Coordinating

20 xvi Sub-committee, Southeast Florida Utilities Council, and other working groups. A new governance structure may be premature as it still remains to be determined what projects might be developed. An alternative form of governance might be required or beneficial. There are a number of potential options that need to be considered in determining how this report should be used. It is not a self-executing document, as many elements of implementation require extensive collaboration or fall under the authority of an alternative or multiple entitites. Options for use of this IWRP report include: Use for informational purposes only; Use as a guidance document for policy makers and water managers; Incorporation, by reference, into the Broward County Comprehensive Plan; and Recognition of the Broward IWRP within the LECWSP as a beneficial water management strategy for Broward County. Given this wide range of possibilities, it is recommended that this IWRP report be presented to the Broward Planning Council and/or League of Cities for consideration. We are optimistic that the value of this approach is self evident and that it behooves water managers at all levels to participate.

21 1 Chapter 1: INTRODUCTION South Florida s Unique Environment South Florida s natural environment is unique. This uniqueness is, in large part, a result of its climate, geology, topography, and vegetation. With distinct wet and dry seasons, south Florida is the only tropical climate in the continental United States. 1 Although the region receives an annual average of between forty-five (45) and sixty (60) inches of rain, evapotranspiration in south Florida is estimated at 70 to 90 percent of annual rainfall In addition, rainfall variability from year to year is quite high, resulting in periodic droughts and floods. Geologically, south Florida s origins can be traced to the region s separation from what is now the African Plate when the super-continent Pangea rifted apart in the Triassic Early Jurassic period. Shallow seas flooded into the rifting basin and began a long sequence of carbonate buildup which formed the foundation of south Florida. By the Late Oligocene, sediments eroded from the southern end of the Appalachian Mountains and began to reach the pristine shallow marine environments found in the area of the Florida peninsula. Numerous sea-level fluctuations subsequently eroded, redeposited, and reworked these sediments throughout the area. 2 The Florida peninsula became elevated above sea level about 50,000 years ago. Florida assumed its current shape about 10,000 years ago during the post-glacial period when, as a result of a rise in sea level, the peninsula shrunk in size and the Florida Keys became isolated from the mainland. South Florida is one of the youngest, but most geologically stable parts of the North American continent. It is also one of the lowest lying areas in terms of elevation, a factor that greatly influences its water resources. The predominantly flat landscape of south Florida tilts slightly to the south and drains into the shallow Florida Bay and Gulf of Mexico. Because of the region's expansive and extremely flat terrain, relatively minor changes in topography, either natural or man-made, can have significant impacts on water movement. Minor changes in elevation can also result in dramatic changes in vegetative communities. 3 Pine forests are found on the high ground of the Atlantic Coastal Ridge found in Palm Beach County and the northern part of Broward County. The pines are succeeded by hardwood hammocks in areas where fires have not occurred. In wetter areas, dwarf pond cypress can be found. However, of all the vegetative communities found in south Florida, perhaps none is better known than the river of grass, the Everglades.

22 2 The broad expanse of wetlands that compose the Everglades formed about 5,000 years ago as south Florida's geology, coupled with a warm, wet subtropical climate, created ideal conditions for the development of a huge, freshwater marshland ecosystem. 4 The combination of abundant rainfall, rich soils, and subtropical temperatures has historically supported a variety and abundance of plant and animal species, many of which are unique to south Florida. Although south Florida s surface relief is minor compared to mountainous areas of the earth, its subsurface geology and geomorphology is highly complex, a result of the marine and surficial processes which shaped it. 5 Composed primarily of layers of sand, clay/carbonate/shell mixes, and organic debris covering porous sedimentary rock, the subsurface geology has supported the formation of some prolific aquifers, including the highly productive Biscayne Aquifer underlying most of Broward County, and the Floridan Aquifer which underlies the entire state. Broward County Broward County, with a total land area of more than 1, 225 square miles, is situated on the southeast coast of Florida between Miami-Dade and Palm Beach Counties (Figure 1-1). Figure 1-1: Broward County location map The eastern part of the County, encompassing an area of approximately 422 square miles, is highly urbanized and includes 31 municipalities and 23 miles of beachfront. The western part remains undeveloped and encompasses much of the Everglades Water Conservation Areas. Relatively low and flat, most of Broward County land lies at an elevation between 2 and 10 feet above sea level.

23 3 The Pine Island Ridge found in Davie is the highest natural elevation in Broward County at just 29 feet. Broward County is the second most populated county in Florida. According to recent census data, with an estimated population of approximately 1.7 million, Broward County is home to approximately 10% of Florida s population. Water in Broward County s Development Water has always played a major role in shaping Broward County s development. Before development, pine flatwoods on the Atlantic coastal ridge formed the eastern rim of the Everglades, and much of the freshwater sheet flow moved south and west through a system of sawgrass ridges and open sloughs paralleling the direction of flow (Figure 1-2). 6 Figure 1-2: Before development, the Everglades extended eastward to the coastal ridge which is roughly where I-95 is located today. Source: SFWMD Tree islands dotted the landscape, rising slightly above the elevation of the sawgrass ridges. During the typical annual rise and fall of wet and dry season water levels, the two to three-foot elevation difference between ridge surface and slough bottom allowed the sloughs to remain water-filled throughout the year, while adjacent ridges would be exposed a few months of the year. 7 In the area south of, and including the New River (Fort Lauderdale), the pine flatwoods were absent and the Atlantic Coastal Ridge became discontinuous, forming a series of islands separated by coastal rivers. These rivers thus resulted in a portion of the flow being discharged eastward into Biscayne Bay and the Atlantic Ocean. Only the eastern areas on the Atlantic Coastal Ridge were perennially dry, with surface water flowing through low spots on the coastal ridge during the largest floods. 8 It is natural that early settlers chose these eastern dry areas of Broward County to live. Although the County receives an annual average rainfall of about 60 inches, three-fourths of this falls between May and November. However, it is important to recognize that rainfall greatly varies by year, and is seldom average. During the wet season, flood conditions can result throughout much of the County when concentrated rainfall is coupled with the low terrain and high groundwater levels. Prior to the twentieth century, this same flooding discouraged human settlement and development in much of Broward County and south Florida in general.

24 4 Early efforts to drain lands in Broward County by individual landowners were piecemeal and only marginally successful. This began to change in 1905, when the Florida Legislature passed an act establishing a board of drainage commissioners with the power to build canals, establish drainage districts, and levy annual taxes on landowners within that district. That same year, the Everglades Drainage District was established. On July 4, 1906, Governor Napoleon B. Broward formally opened the drainage project, and the dredge "Everglades" began work on the North New River Canal (Figure 1-3). The resulting network of canals and locks which were constructed opened thousands of Figure 1-3: The Dredge Everglades on the New River Source: acres of virgin land to settlement and cultivation, creating an overdrained landscape that remained floodprone. However, despite these efforts and those of early developers to market the area s lands to northerners, population growth in the County remained slow until the prosperity and optimism following World War I set off the first of Broward's great land booms. 9 In 1911, the Florida Fruit Lands Company auctioned off tracts of undrained swamp land at Progresso (now Fort Lauderdale). Several thousand people bought land in Tropical Paradise as the sales literature called it. After seeing his inundated property, one disillusioned buyer carped, I have bought land by the acre, I have bought land by the foot but by God, I have never before bought land by the gallon. 10 The character of Broward s population began to change rapidly in the 1920s. Before 1920, most settlers were farmers, but many newcomers that arrived after 1920 were urban people, including many retirees from the northeast and midwest. The 1920 s also witnessed the emergence of tourism as a major facet of the Broward economy. Between 1920 and 1925, the population of the County rose from 5,135 to 14,242. Population growth slowed in the County as the delivery of food and construction materials was hampered by the lack of transportation to get supplies to the area in a timely fashion. Northern banks became more cautious about lending monies to what they considered speculative developers. Then, in September 1926, a hurricane struck south Broward, killing at least 34 persons in Hollywood and 15 in

25 5 Fort Lauderdale and headlines in northern newspapers began to scare away potential newcomers. In September 1928, the Great Florida Hurricane killed over 2,000 persons in the Lake Okeechobee area and convinced the Federal government to fund construction of a permanent dike around the southern perimeter of Lake Okeechobee. While providing more secure protection from flooding, it cleared the way for intensive settlement of the Everglades and permanently severed the natural connection between the Everglades proper and its headwaters. Lake Okeechobee, which once overflowed its southern bank at water levels in the range of 20 to 21 feet above sea level, today is artificially maintained at about 13 to 16 feet above sea level by a dike system and canals which discharge water to the Atlantic and Gulf coasts. 11 The Great Depression created hard times in Broward County and brought all drainage activity to a halt. It did not stop population growth, however, as the population nearly doubled from 20,094 in 1930 to 39,794 in Following a period of severe drought, and after decades of drainage, widespread fires across the Everglades in 1944 and 1945 caused the loss of the region s valuable organic soils. This was followed by exceptionally heavy and prolonged rainfall and two severe hurricanes in 1947 which caused extensive flood damage in southern Florida. Parts of Broward County were under water for months (Figure 1-4). Figure 1-4: Downtown Fort Lauderdale following 1947 floods Source: SFWMD In 1948, the impact of that disaster prompted the United States Congress to authorize the Central and Southern Florida Project for Flood Control and other Purposes to provide flood protection for urban and agricultural development and an adequate water supply for development.

26 6 In the 1950 s and 1960 s, the major elements of the Central and Southern Florida Flood Control Project, which constitute Broward County s primary canal system, were constructed. Also constructed during this period were the Broward-Dade and water conservation area levee systems. The construction of these levees, canals and the secondary canals that followed had significant implications for water management and future land use development within the County. Another event which had its origins in the 1940 s was also responsible for transforming Broward County s landscape. During World War II, Broward County was a major training area for the military. Every airfield in the County, plus the site of what is now Broward Community College's central campus in Davie was a World War II training facility. Following the war, thousands of service men who had trained in Broward County recalled how nice it had been. Many decided to return with their families, and thousands of others joined them. Between 1950 and 1970, the County s population soared from 83,933 to 620,100. By 1980, along with a proliferation of secondary drainage canals, the population had exceeded 1,000,000 and has continued to grow, accompanied by an increase in the intensity of land use. The Challenges of Water Management In southeast Florida, abundant water supplies are present. However, while the natural systems found here are adapted to the cyclical climatic patterns that distinguish the wet and dry seasons (Figure 1-5), the greatest demand for water by people occurs during the dry season when rainwater is least available and when the County s population swells with winter residents. During this dry season, rainfall in south Florida is unable to meet all of the needs of the natural system, as well as agricultural and urban users, including tourists and others which may be unfamiliar with our water regime. Thus, we rely on water that exists below the surface of the ground or is brought into the urban area by surface conveyance. Conversely, during the wet season, there is an abundance of surface water and runoff rapidly discharges water to tide. This results in part, because of the lack of natural storage capacity caused by the drainage improvements constructed to support urban development and to prevent flooding. As the area s natural wetlands have been covered with impervious surfaces for Figure 1-5: Conceptualized satellite photo of the natural Everglades system pre-drainage. Source: SFWMD roads, parking lots, and other developments, our natural surface water storage areas have disappeared and the ability to recharge the underlying aquifer has been diminished.

27 7 The integrity of our natural systems in eastern Broward County, including our remnant Everglades wetland areas, has been compromised with the construction of canals which drain surface waters from the Everglades, and which has resulted in the lowering of the water table and saltwater intrusion along the coast and canal margins. Today, through better management of the canal network and control structures, we are able to use this infrastructure for multiple purposes, including recharge of the aquifer to help abate saltwater intrusion and benefits potable wellfields. In addition to these physical challenges, as Broward County has evolved from an agricultural community to an urban community, a complex, highly diverse system of water management has evolved. Currently, this system consists of 23 drainage and water control districts with various water management functions, 25 water providers, and 31 municipalities. In the absence of a clear mandate for the County to coordinate water planning efforts amongst all these entities, the County faces a significant challenge in its goal to effectively guide the management of local water resources. Broward County s population has continued to grow. Based on population projections, it is expected to increase by 27% to some 2.2 million people by 2025, at which time we may face water shortages based on current rates of consumption and current Figure 1-6: As Broward County s population continues to grow, it is approaching build-out of the urban area. The Sawgrass Expressway separates the urban area from the Everglades in Broward County. Source: SFWMD permitted withdrawals. We are quickly approaching complete build-out of the urban area up to the edge of the Everglades (Figure 1-6). As activities associated with restoration of the Everglades are implemented, regional water policy has also evolved to ensure that permitted allocations do not conflict with these restoration efforts. While we can control our land use decisions and water usage, the rainfall which is so necessary to our human and environmental needs, cannot be governed. We have made mistakes in the past in managing our water resources. As we look to the future, we must look at how we can restore the fragile Everglades ecosystem and provide enough water for our burgeoning population, our plants, and our animals at the same time. Where will the water to meet projected future demands come from?

28 8 How much longer can we rely on the Biscayne aquifer to meet our primary potable water needs and to what extent? How will Everglades restoration impact our current water supplies? Answering these questions, and others, is crucial to our future. We All Have a Role in Water Management Although continued growth poses significant challenges to the future of water planning efforts in Broward County, coordinated implementation through the Integrated Water Resource Plan (IWRP) provides a means of addressing these challenges. Through integrated water resource management, we can strengthen our management of local water supplies and resources, while we work to develop alternative sources and provide support for Everglades restoration. Integrated water resource planning fosters a systematic approach to water management, addresses water quality as well as water quantity, and balances user needs with appropriate sources. Local water resource management must address all sources of water and optimize the use of existing infrastructure. It must also consider how conservation fits into balancing water sources and supplies. Water conservation must not be viewed solely as an emergency measure designed to respond only to drought conditions; it should be part of a sound water resource management practice. Growing population and increasing water demands will continue to require judicious government planning at the state, County, and local levels, including more cooperation, a balanced approach to decision-making, and more public awareness of the importance of managing water resources. We all have a role to play in our water future. Residents can decrease water use on their landscapes and in their homes to reduce demands on limited freshwater resources. Homeowners associations and property managers can control their water usage and also improve water quality by minimizing the use of, and properly disposing of chemicals, fertilizers, and other pollutants. Businesses can decrease their water use and improve their pollution prevention practices through building design and operations. Local utilities can work together to improve efficiencies in operations and water use. Water control and drainage districts can work with residents and industries to implement source controls to minimize pollutants entering canal systems and ensure that water levels are maintained at a sufficient elevation to support groundwater recharge. Policy makers and municipalities can implement effective growth management and conservation policies and coordinate in efforts to ensure adequate water supplies and control the impacts of septic systems and other potential sources of contamination. The Integrated Water Resource Plan is Broward County s water management community s commitment to our water future. The implementation of this plan, through support from utilities, water control/drainage districts, the SFWMD,

29 9 municipalities, and others will determine our ability to meet our goals of providing for future water supplies and sustaining the quality of life and the environment that we have all come to appreciate. We are determined to dictate our own future by working together and acknowledging the challenges we face. We must learn to adapt to changing times, changing conditions, and changing needs. Everyone who lives, works, and plays in Broward County is called to help in the implementation of this Integrated Water Resources Plan. There is much to be accomplished and community-wide dedication and willingness to participate in this process in support of these efforts is an important first step.

30 10

31 Chapter 2: BROWARD COUNTY S WATER RESOURCES 11 South Florida s Hydrologic System Water is the essence of life in Florida. From the ocean, to the clouds and rain, to streams and lakes and groundwater and then to the oceans once again, water travels through the hydrologic cycle. In south Florida, groundwater and surface water form an integrated hydrologic system. Prior to development of south Florida, much of the precipitation that fell on the flat, low-lying area drained southward to the Gulf of Mexico and Florida Bay in the form of wide, shallow sheets of water (Figure 2-1). This sheetflow moved sluggishly southward during the wet season and was the major source of recharge to the underlying aquifers. Streams, such as the Kissimmee River, flowing southward from central Florida, flowed into Lake Okeechobee, a major water-storage component in the system. During the dry season, water probably covered less than 10 percent of the Everglades, which stretched as far east as the Atlantic coastal ridge in northeastern Broward County, and was primarily found in the deeper sloughs. 12 Figure 2-1: Historic Everglades Flow Source: circular/1182 Activities associated with the development of south Florida significantly impacted these historic flow patterns, and consequently, the region s hydrology. As a result, the Everglades ecosystem has been severely altered. In an effort to save it, local, state, and federal agencies have now embarked on the largest natural restoration project in the world, focusing on a plan to get the water right.

32 12 Rainfall Our water resources in Broward County are dependent upon rainfall. Major changes in hydrologic conditions generally are a direct result of the amount, distribution, and timing of rainfall. Fortunately, Broward County receives some of the highest rainfall within the state of Florida (Figure 2-2), although rainfall amounts vary greatly by year and location and rarely reflect the 60 inch average which is considered by many to be the norm for the County. Local rainfall falling on the urban area accounts for 77% of the water entering Broward County. The remaining water is derived from groundwater (16%) and structural flows through the primary canals (7%). Figure 2-2: Annual Rainfall in Florida Source: Wiseman and Roy (1999) Unfortunately, this rainfall is not distributed evenly either temporally or spatially, leaving south Florida with distinct wet and dry seasons, and often, significant differences in local rainfall amounts from one location to another. Analysis of long-term rainfall data for Fort Lauderdale indicates that three-fourths of the annual rainfall occurs during the wet season (May to November; Figure 2-3).

33 13 Rainfall (inches Average Rainfall for Ft. Lauderdale ( ) Jan Feb Mar Apr May Jun Month Jul Aug Sep Oct Nov Dec Typically, during the wet season, sea breezes caused by heating of the land surface result in the formation of intense storms during the early to late afternoon and lead to late afternoon and early evening rainfall events. In addition, tropical storms and hurricanes, which can affect coastal regions such as Broward County, can produce tremendous amounts of rainfall. Most of these have historically occurred in August and September. Figure 2-3: Seasonal Rainfall at Fort Lauderdale Source: CDM/DHI, CADA, December 2002 Rainfall data has also shown significant variation between locations within the County. For example, over a four-year period from 1999 to 2002, the average rainfall from 51 different rain gauge locations in urban Broward County ranged from a high of 73.9 inches to a low of 43.5 inches. 13 Evapotranspiration Evapotranspiration is the combined process by which water is transferred to the atmosphere by vegetation and direct evaporation. A function of solar radiation, temperature, vapor pressure deficit, atmospheric pressure, wind speed, vegetation, and the characteristics of the surrounding environment, evapotranspiration returns much of our rainfall to the atmosphere. Evapotranspiration rates are generally lowest at night and on cloudy days with high relative humidity, low temperatures, and no wind. Conversely, evapotranspiration rates are generally highest on bright, sunny days with low relative humidity, high temperatures, and moderate to high winds. Evapotranspiration represents the most significant loss from the water balance in south Florida. In urban Broward County, estimates indicate that almost 50% of the rain that falls on the County is returned to the atmosphere in this fashion. The high ratio of potential evapotranspiration to rainfall is a significant factor in Broward County s overall water budget.

34 14 Broward s Urban Water Budget Knowing how much water is available is essential to water planning. A water budget reflects the relationship between input and output of water through a region and is an essential component of models used to help guide our water management decisions. In an area such as Broward County, where groundwater and surface water are closely linked, many factors must be taken into account to determine the water budget. Water budgets have been developed by the SFWMD to examine the movement and storage of water in southeastern Florida for both the region as a whole and for sub-basins. Hydrologic components used in developing the water budgets were estimated directly from measured data, which included rainfall, canal flows, and wellfield pumpage. Computer models were used to estimate other components such as evapotranspiration, overland flow, groundwater flow, levee seepage, and changes in both surface and groundwater storage. Water budgets have also been developed by Broward County using both the SFWMD data and additional data collected by the County. Figure 2-4 shows a generalized water budget for urban Broward County. Figure 2-4: A generalized water budget for the Biscayne aquifer in urban Broward County showing inflows and outflows of water and based on information provided by SFWMD

35 15 The Biscayne Surficial Aquifer System The primary source of drinking water in Broward County, as well as Miami-Dade County and southeastern Palm Beach County, is the Biscayne Surficial Aquifer, one of the most productive aquifers in the world (Figure 2-5). All of Broward County s twenty-five water suppliers withdraw water from the Biscayne Aquifer. In 1979, the Biscayne Aquifer was designated as a sole source aquifer by the U.S. Environmental Protection Agency (EPA) under the Safe Drinking Water Act of The sole source designation protects an area's groundwater resource by requiring that the EPA review any proposed projects within the designated area that are receiving federal financial assistance. Lying underneath an area of about 4,000 square miles, including offshore areas, the Biscayne Aquifer is an unconfined and relatively shallow aquifer. It is not a defined geologic feature, per se, but is rather the extremely permeable part of the Surficial Aquifer system. The Surficial Aquifer system is wedge-shaped and thins to the west where it intercepts the land surface. The water table fluctuates in direct and rapid response to rainfall. The Biscayne Aquifer varies in thickness, with the thickest part generally found near the southeast part of the coast. Composed largely of sand, shell, sandstone, limestone, and clayey sand with minor clay or silt, the Biscayne Aquifer is highly transmissive, allowing water to easily flow through it. In general, the Surficial Aquifer system in Broward County increases in transmissivity from 75,000 ft 2 /day in the north and west portion of the county to 1,000,000 ft 2 /day in coastal southeast Broward 14 County. Figure 2-5: Sources of groundwater in south Florida Source: Water Resources Atlas of Florida Major inflows to the Surficial Aquifer system in Broward County consist of infiltration through rainfall, leakage from canals, and groundwater inflow. Major outflows include groundwater flow to canals and the coast, and wellfield pumping.

36 16 The Floridan Aquifer While it underlies the entire state, in southeast Florida, the Floridan Aquifer is located below the Biscayne Aquifer at a depth of 1,200 feet (Figure 2-6). It is composed of limestones of variable permeability and is approximately 1,000 feet thick. The top of the Floridan aquifer system in Broward County is about 950 feet to 1,000 feet below sea level and is considered to be Figure 2-6. The Floridan Aquifer sits at a depth of 1,000- a relatively confined surface 1,200 feet below the Biscayne Aquifer and is increasingly overlain by a 550 to 800 foot being seen as an alternative water source, despite its thick sequence of clay, silt, primarily brackish water quality in South Florida. limestone and sand referred Source: Patrick Davis, Hazen & Sawyer to as the intermediate confining unit. 15 While the Floridan Aquifer is used extensively for water supply throughout much of Florida, there has been limited use of this source of water in south Florida because of its brackish quality (thereby requiring a higher degree of treatment), and because of its lower transmissivity in comparison to the Biscayne Aquifer. However, with the need to develop alternative water supplies, many large utilities are currently moving to develop the Floridan as an alternative water source through reverse osmosis treatment technologies. Groundwater Flow The water table mimics the land surface; therefore, it is at a higher elevation under ridges and at a lower elevation under sloughs. The highest ground water elevations in Broward County occur in the Water Conservation Areas (WCAs), particularly in north-central Broward County where the average wet season water table elevation is 13.5 to 14 feet above sea level. 16 Water table elevations are also relatively high in northeast Broward County where the Atlantic coastal ridge is found. There is also a significant north to south gradient in water elevations in Broward County. The general movement of groundwater within the Biscayne Aquifer is seaward. Based on studies in northern Miami-Dade County, as well as data gathered from southern Palm Beach County, it is highly likely that some areas of the Biscayne Aquifer in Broward County may exhibit similar solutionriddled limestone resulting in conduit flow zones. 17 Local variations are caused

37 17 by canals, control structures, and/or wellfield operations and can fluctuate rapidly in response to variations in rainfall, natural discharge, and groundwater pumpage from wells. 18 Variations in recharge and/or natural or artificial discharge can also produce fluctuations in the water table. Fluctuations from 2 to 8 feet per year have been measured in some areas. Water Control in Broward County Canals As discussed elsewhere in this document, canals have been used extensively in southern Florida for drainage and flood control. Broward County s current drainage system consists of over 1,700 miles of canals, of which approximately 266 miles are part of the primary drainage system (Figure 2-7). The primary drainage system in the urban area is managed by the SFWMD and consists of the WCA levee which separates urban Broward County from the Everglades and nine major canals and their corresponding drainage basins (Appendix A): Hillsboro Canal C-14 (Cypress Creek) Canal Pompano Canal C-13 (Middle River) Canal C-12 (Plantation) Canal North New River Canal C-11 (South New River) Canal C-10 (Hollywood) Canal C-9 (Snake Creek) Canal Figure 2-7: Broward County s extensive canal system includes the primary canals shown in dark blue. These major canals, along with secondary and tertiary canals, eventually drain to the Atlantic Ocean, with the exception of the western segment of the C-11 Canal (Figure 2-8) which is occasionally backpumped into WCA-3 through the S-9 structure, as determined necessary for flood control. While the canals were historically designed for flood control, over time, their management has evolved to provide for a number of purposes, including drainage of land for development, discharge of excess water to and from the WCAs, redistribution of surface waters to help reduce saltwater intrusion, storage, natural system rehydration, and aquifer recharge. The result is a highly managed, intricate system of canals and retention ponds with control structures and pumps that maintain the balance between flood prevention and over drainage. The U.S. Army Corps of Engineers maintains operating schedules for the WCAs and control some key structures within the system.

38 18 In addition to providing surface water storage for natural systems delivery, the WCAs are a source of regional water to the urban system during dry periods, and are managed in accordance with established operational levels and protocols. This helps to maintain canal and groundwater levels. The reverse is also true during wet periods. When rainfall exceeds the availability of the system to absorb it, excess stormwater from urban basins and canals can be pumped into the WCAs to provide flood protection through either the Figure 2-8: The C-11 Canal along Griffin Road is one of the primary canals found in Broward County that is maintained S-9 pump station or the and operated by the SFWMD. North Springs Improvement Source: SFWMD District Pump Station #1. There is a direct connection between the surficial aquifer system and Broward County s extensive network of canals. Depending on groundwater levels, water may seep from the canals into the aquifer or vice versa, and a decline in the water level of a canal lowers adjacent groundwater levels. Similarly, a rise in the water level in a canal is quickly followed by a rise in the water table adjacent to the canal. The degree of connection partly depends on the permeability of sediments lining the canal bottom. An accumulation of fine sediments can dramatically reduce the rate of seepage. As discussed below, the canals can also be used to help prevent intrusion of saltwater into the surficial aquifer. Saltwater Intrusion Florida is a peninsula. Broward County is bordered on the east by the Atlantic Ocean. Prior to the development and drainage of south Florida, a large freshwater mound formed behind the Atlantic coastal ridge during the rainy season and prevented salty ocean water from moving westward into the surficial aquifer system (Figure 2-9). Construction of the canal system drained both the upper portion of the surficial aquifer system and this freshwater mound, resulting in both a significant decline in groundwater flow towards the ocean and the inland migration of the saltwater interface during dry periods. The reduction of eastward surface flow caused by the levees and control structure operations also reduced the freshwater head which kept saltwater east of the Atlantic coastal ridge.

39 19 Later, the development of numerous finger canals along the Intracoastal Waterway exacerbated saltwater intrusion by allowing canals to become a tidal channel, conveying saltwater inland and then laterally into the aquifer (through seepage). Figure 2-9: The freshwater-saltwater interface can be significantly altered by lowering the water table. Source: Cooper, USGS Water-Supply Paper 1613-C, 1964 How Does Saltwater Intrusion Occur? Saltwater intrusion occurs when large amounts of saltwater move into an aquifer s freshwater supply and create brackish water. Generally, it occurs when the water level of an aquifer is lowered and freshwater is being withdrawn at a faster rate than at which it is being replenished. A certain amount of mixing between freshwater and saltwater in a coastal aquifer is natural. This happens in an area known as a zone of dispersion (see graphic). The overall flow of freshwater in the aquifer moves toward the ocean, keeping the saltwater from intruding. Seasonal fluctuations in rainfall, tidal action, and the amount of water being removed either via wellfield withdrawals or by natural discharge can all influence saltwater intrusion. The Biscayne Aquifer is affected by saltwater intrusion. Coastal saltwater intrusion occurs when the elevation of the surface of the fresh groundwater (water table) declines. The weight of the lighter fresh water cannot hold back as much saltwater, and the wedge of saltwater that is always present along the coast begins to expand. The construction of drainage canals many years ago produced a decline in the water table causing saltwater intrusion that may become more pronounced during extended periods of reduced rainfall. A saltwater intrusion monitoring network, consisting of monitoring wells which are regularly sampled has been developed to better track changes in the saltwater front between the municipal wellfields and the coast. The data are analyzed frequently to track the migration of the saltwater front and gain a better understanding of its causes and how to protect the aquifer from it. Review, expansion, and modification of the monitoring network is desirable, but unlikely at this time due to budget constraints. In order to help reduce the saltwater intrusion, control structures have been built near the coast to separate freshwater and saltwater within the canal and help raise freshwater levels. These control structures increase the water levels in both the canal and adjacent aquifer by damming the water in the canal, creating

40 20 a freshwater head, thereby preventing further saltwater encroachment. Such operations are especially important during periods of low precipitation. Saltwater intrusion into the Biscayne aquifer has created operational challenges since the droughts of the 1930 s and 1940 s. With time, Fort Lauderdale, Dania Beach, Hallandale Beach, Deerfield Beach, Pompano Beach, and Broward County have all moved wells due to the threat of saltwater intrusion. In 1987, the City of Hallandale permanently reduced total pumpage by 50% and shut down their primary wellfield due to the threat of saltwater intrusion. Problems persist as a result of recent water shortages, and as a result, Dania Beach and Hallandale Beach utilities have had to limit landscape irrigation to just one day per week as opposed to the remainder of Broward County where two days are allowed. Surface Water Management The Broward County Water and Wastewater Services (BCWWS) actively employs one of the IWRP recommended water management strategies integration of canals for improved surface water management and aquifer recharge. In the northern portion of the County, BCWWS operates an extensively interconnected water management system of both gravity and pumped waterways which is comprised primarily of the secondary canal systems of several County-managed water control districts. The Northern Broward County Recharge System (NBCRS), which is operated under permit from the SFWMD, serves as a model for the IWRP to utilize the water management strategy employed by this operation (Figure 2-10). This water management system provides recharge and saltwater intrusion abatement for Fort Lauderdale s Prospect Wellfield, Pompano Beach s eastern and western wellfields, Deerfield Beach s eastern and western wellfields, Hillsboro Beach s wellfield and BCWWS s North Regional and District 2A wellfields. This secondary canal system also provides flood management, water level maintenance, wetland rehydration and broad aquifer recharge within the cities of Parkland, Coral Springs, Coconut Creek, Deerfield Beach, Pompano Beach, Margate, Fort Lauderdale and unincorporated areas as well as the independent Pine Tree Water Control District. The gravity portion of the NBCRS receives water from the C-14 Canal, rainfall, and stormwater runoff. The pumped portion of the system receives water from rainfall, stormwater runoff and water pumped from the Hillsboro Canal. Except during extreme events or prolonged rainy periods when the system is actively managed for drainage and flood control, rainfall and stormwater runoff can be captured and stored within the system. Because rainfall distribution is variable, excess stormwater runoff in one portion of the system can be retained and

41 21 Figure 2-10: The Northern Broward County Recharge System consists of primary, secondary and tertiary canals and surface water features. Primary canals are shown in dark blue and secondary canals are shown in gray. Red lines indicate culverts and interconnects that have been constructed to more effectively integrate the canal system. The green areas are wetland systems that have either been rehydrated or are proposed for rehydration. recycled by conveying the excess to areas of the system with available storage capacity. Water is pumped from the Hillsboro Canal under the authority of a Diversion and Impoundment permit issued to Broward County by the SFWMD. The current permit authorizes an annual average pumpage of MGD, a maximum monthly pumpage of 56.1 MGD, and unlimited pumpage when water is discharging to tide from the Hillsboro Canal, and as authorized by SFWMD Operations officials. During the water shortage, the SFWMD stopped water supply deliveries from the regional system to the NBCRS. The County s ability to withdraw water from the Hillsboro Canal is critical for maintaining canal levels within the secondary canal system, providing water for aquifer recharge and wetland areas, holding back the saltwater front, and recharging wellfields operated by the County and several municipal utilities. The merits of the NBCRS have been recognized in both the CERP and the Lower East Coast Water Supply Plan (LECWSP). The 2000 LEC Interim Plan included a recommendation for the development of a master plan to complete the interconnection of the NBCRS surface water infrastructure to allow conveyance of water to maintain and enhance sub regional ground water levels, benefit

42 22 proximate wellfields and selected wetlands, and to prevent saltwater intrusion. In addition, the Broward Secondary Canal Improvement Project, a project initially authorized as part of the CERP, proposes to expand the interconnection of Broward County s secondary canal systems with water supply, drainage, and water quality benefits (see Chapter 5 for project description). Broward County Water Supply System Broward County s water supply systems have developed in response to the changes brought about by the County s development from an agricultural base to an urban base. The tremendous population growth experienced in Broward County in the 1950 s and 1960 s was accompanied by the filling of wetlands, paving of surfaces, and loss of natural drainage patterns. Irrigation practices by agricultural operations, particularly in northern Broward County, kept groundwater levels high, as farmers kept their fields well-saturated. As agricultural areas in western Broward County were replaced with homes, groundwater seepage into the Biscayne Aquifer was reduced. In 1981, the County experienced a significant drought which was perceived as a threat to the County s water supplies. Not wanting a reoccurrence, the County made a determination that the best way to ensure a long-term, reliable potable water supply would be to relocate wellfields prone to the threat of saltwater intrusion and to begin a search for alternative sites. The County recognized that in order to protect the integrity of a wellfield, the ability to provide wellfield recharge would be an important criterion in site selection. Therefore, this decision would have to reflect the consideration of factors such as magnitude of aquifer transmissivity, land elevation, and recharge water supply, factors which vary between wellfields. In August 1983, in conjunction with Florida Atlantic University, Broward County brought together local governments and utilities in a conference on Regional Water Supply for Broward County. As an outcome of the conference, it was agreed that some entity, other than the County, needed to complete an analysis of County-wide water resources. James M. Montgomery, Consulting Engineers, Inc. was awarded a contract to undertake this analysis, which resulted in the 1986 study titled The Study of Water Supply and the Selection of Future Wellfield Sites in Broward County, Florida (Montgomery Report). 19 Concurrent with this, the County adopted the Regional Raw Water Supply Program, which called for the development of inland wellfields, safe from saltwater intrusion, to ensure a continual supply of potable water for Broward County. Ultimately, the purpose of this program was to shift potable water demands from east to west and away from the coastal zone. The Montgomery Report proposed two regional wellfields, one in northern Broward County and one in southern Broward County, and suggested that recharge was a critical component necessary to maintain wetland integrity in

43 23 northern Broward County and should be incorporated into any water supply plans for that region. In addition, the report recommended that methods of enhancing recharge in southern Broward County be sought. The Montgomery Report also suggested that in order for the project to provide the recharge necessary to replace the historic recharge from agricultural operations, the SFWMD would need to continue to provide a supply of surface water to their primary canals. As mentioned, Broward County s water suppliers draw the majority of their raw water supplies from the Biscayne Aquifer. Withdrawals from the Biscayne Aquifer are managed by the SFWMD through Consumptive Use Permits (CUPs) that are issued to applicants, which include large users such as parks, golf courses, and water utilities. One of the criteria for issuance of a CUP is that it must be consistent with public interest, including compliance with the Minimum Flows and Levels (MFLs) established for surface water and groundwater sources (see box next page). In February 2007, the SFWMD adopted the Regional Water Availability Rule which limits additional withdrawals from the Biscayne Aquifer in support of the CERP and Everglades restoration. Consequently, there is a growing need by Broward County s water managers to explore various alternatives for increasing their water supplies, or offsetting withdrawals with recharge. It is partly within this context that the IWRP continues to garner support from water utilities and water managers. Building on current efforts that optimize the efficient management of existing local water resources, Broward County s future efforts will now focus on the development of appropriate alternative water supplies.

44 24 Minimum Flows and Levels for the Biscayne Aquifer In 1997, the Florida Legislature mandated that all water management districts establish minimum flows and levels (MFLs) for surface waters and aquifers within their jurisdiction. Florida State Law requires the establishment of MFLs to determine the limit at which further withdrawals would be significantly harmful to the water resources or ecology of the area (section (1), F.S.). Significant harm is defined as such harm that it requires multiple years for the water resource to recover. The Biscayne Aquifer Minimum Level is water levels in the Biscayne Aquifer associated with movement of the saltwater interface landward to the extent that ground water quality at the withdrawal point is insufficient to serve as a water supply source for a period of several years before recovering. The MFL for the Biscayne Aquifer was developed with consideration of the threat of saltwater intrusion. It establishes minimum canal operational or control levels for each of the primary canal systems, which is the minimum water level in a canal sufficient to restrict saltwater intrusion within the coastal aquifer and prevent significant harm from occurring during a period of deficient rainfall. These management levels vary seasonally and are intended to balance the goals of flood protection and water supply. The drought management control levels represent target management elevations during the dry season. Water supply releases are made from regional water sources to achieve these targets whenever possible. These canal levels in turn influence the adjacent dry season groundwater elevations within the Biscayne Aquifer. The Biscayne Aquifer MFL not only serves to protect the aquifer from saltwater intrusion, but also ensures adequate groundwater levels for maintenance of natural systems, and prevents excessive groundwater seepage or surface water flows from the Everglades system. A byproduct of pumping the municipal water supply wells is a reduction of water table elevation in the vicinity of the wellfields. This drawdown of the water table may affect nearby wetlands, and may have an adverse effect on saltwater intrusion. Consequently, computer simulation of the surface water and groundwater system is being used to analyze how the canals and wellfields can be managed to maintain groundwater levels at wetlands and to reduce saltwater intrusion, while providing adequate municipal water supplies and reducing flooding. County Wellfields The BCWWS operates two major regional wellfields. The North Regional Wellfield (NRW; Figure 2-11) is located in Quiet Waters Park and along Hillsboro Boulevard and is comprised of ten (10) wells, each with a capacity of 2 MGD, for a total capacity of 20 MGD for the wellfield. The NRW is operated in conjunction with the 2A Wellfield to supply potable water to the District 2 retail service area

45 25 and City of Coconut Creek. Raw untreated water is also provided to the City of Deerfield Beach. Figure 2-11: North Regional Wellfield The South Regional Wellfield (SRW; Figure 2-12) is located primarily in Brian Piccolo Park in the south central portion of the County. In addition to the eight wells located in Brian Piccolo Park and a well located in the old 3A wellfield, a number of additional wells have been incorporated into the SRW, which includes a total of 17 wells, seven (7) of which are on standby or have been decommissioned. The eight (8) 4.0 MGD wells and one (1) 2.0 MGD wells currently in operation, provide a total capacity of approximately 34 MGD. The SRW provides raw water to the City of Dania Beach, the City of Hallandale Beach, the City of Hollywood and to the Florida Power and Light Corporation.

46 26 Figure 2-12: South Regional Wellfield BCWWS also operates a number of smaller wellfields within their four service areas, as do many municipalities. As noted previously, SFWMD authorizes the amount of water that can be withdrawn from the Biscayne Aquifer and all sources through the issuance of CUPs. In all, there are currently 358 wells providing a permitted MGD of groundwater in Broward County for public water supply purposes. Additionally, there are many other permitted wells withdrawing water for a variety of purposes, including irrigation Table 2-1 shows the wellfields, allocations (CUP), and number of public water supply wells.

47 27 Table 2-1: Permitted groundwater use in Broward County as of June 2008 Wellfield CUP Allocation (MGD) Number of Wells Broward County (WWS) 36 District 1 Potable Water Supply South Regional Wellfield A/North Regional Potable Water Supply 17.5 Cooper City Coral Springs City Coral Springs Improvement District Dania Davie Deerfield Beach Fern Crest Fort Lauderdale Hallandale Beach Hillsboro Beach Hollywood Lauderhill Margate Miramar North Lauderdale North Springs Improvement District Parkland Pembroke Pines Plantation Pompano Beach Royal Utility Seminole 2 Sunrise Tamarac Total In accordance with the Regional Water Availability Rule, the SFWMD is not expected to permit additional withdrawals from the Biscayne Aquifer unless allowed for on a temporary basis during the development of an Alternative Water Supply or provided for through an offset, which is an action that prevents increased seepage or delivery of increased volumes of surface or groundwater derived from the Everglades. The increasing demand of a growing population, coupled with constraints on regional water availability, has prompted the County to:

48 28 Pursue county-wide implementation of the IWRP as a water management strategy; Identify opportunities for improvements in water resource management and conservation to meet short-term water supply needs and reduce the overall need for more costly alternative source development; Initiate discussions with the SFWMD and major utilities to explore multijurisdictional approaches to new source development; Undertake the development of a county-wide water management master plan; and Explore the viability and sustainability of specific alternative water supply strategies in Broward County. As discussed previously in this Chapter, Broward County s water management community is diverse, including numerous municipalities, drainage/water control districts, and water utilities responsible for water supply planning, resource development, drainage, and flood control. In Chapter 3, we will look at how our water resources are governed.

49 29 Chapter 3: GOVERNANCE OF WATER IN BROWARD COUNTY Water resource management within Broward County encompasses a wide range of issues including, but not limited to: Drainage/flood control; Water supply; Potable water treatment; Wastewater treatment and disposal; Reuse of wastewater; Water conservation; Aquifer recharge; Wellfield protection; Saltwater intrusion; Water pollution prevention; Wetland protection; and Everglades restoration Given this wide range of issues, it may not seem unusual for several entities to share in these responsibilities. What may seem unusual, however, is the number of entities that are actually involved. Broward County s water managers include representatives from 23 drainage, water control, and community development districts with water management functions; 28 water utilities of which 25 serve as water providers; and, 31 municipalities. These entities manage water resources under a variety of authorities, responsibilities, and sometimes overlapping jurisdictions. Coordinating with, and reaching consensus among such a diverse water management community operating under differing political bodies presents a significant challenge to water management in Broward County. This becomes even more apparent when one considers one of the findings noted in a draft report on Water Resource Planning in Broward County prepared in 2002 for the Broward County Charter Review Commission 20 : there is no existing entity with the specific mission and necessary authority to create and implement a long-range countywide water resource plan for Broward County and to coordinate implementation of the plan with other agencies inside and outside of the County. Therefore, the success of Broward County s integrated approach to water management relies on a willingness on the part of these diverse entities to

50 30 participate in a process that encourages them to consider water management beyond the immediate borders of their respective jurisdictions. Through the open and participatory process embodied in the Integrated Water Resource Plan (IWRP) process and principles, Broward s water management community has been directly involved in implementing coordinated operational and structural changes in water management. This foundation of shared responsibility, mutual benefit and consensus building in a diverse water management system has created momentum to improve water management County-wide. Integration of Water Resource Plans Broward County s IWRP, by design, complements regional water resource plans that have been developed for south Florida, namely, the Lower East Coast Water Supply Plan (LECWSP) and the Comprehensive Everglades Restoration Plan (CERP). These plans provide a coordinated strategy for regional water resource planning and continue to evolve in response to the changing water supply needs of people and natural systems. The Broward County-wide IWRP is a local level short-term plan, while the joint federal-state CERP and the South Florida Water Management District s LECWSP (formerly the Lower East Coast Regional Water Supply Plan or LECRWSP) address long-term regional water management issues. Figure 3-1 shows the relationship between these plans. This relationship is discussed further in Chapter 4. A brief review of the history in which these regional long-term plans evolved is important in order to understand how the IWRP has developed. Figure 3-1: Coordination of water resource plans is necessary for effective water resource management

51 History of Regional Water Management 31 Figure 3-2: This report on the 1947 flood damage prompted Congress to authorize the Central and Southern Florida Flood Control Project. Source: SFWMD Plans to manage water in south Florida can be traced as far back as 1882 when Hamilton Disston's companies undertook the first attempt to drain the Everglades by excavating 11 miles of canal south of Lake Okeechobee in the direction of Miami. However, a more comprehensive and coordinated approach towards water resource management began when the U.S. Congress authorized the Central and Southern Florida Flood Control Project (C&SFFCP) in 1948 (Figure 3-2) in response to severe flooding throughout south Florida in The following year, the Florida Legislature established the Central and Southern Florida Flood Control District (C&SFFCD) to act as the local sponsor for this most ambitious project. When the C&SFFCP was designed, its main intended function was to provide flood protection for urban and agricultural property and people, with minor consideration given to the prevention of saltwater intrusion, provision of water supply for agriculture and urban development, and the preservation of fish and wildlife. The C&SFFCP was designed conceptually with a 50-year planning horizon, which was based on forecasts that significantly underestimated the population growth the area would experience. Increasing population and more intensive land use placed higher than anticipated demands on the system s flood protection and water supply capabilities. From 1949 through 1969, during a period when South Florida s population boomed and demand for water increased accordingly, the U.S. Army Corps of Engineers (Corps) and the C&SFFCD built and operated the various components of the C&SFFCP. With the passage of the National Environmental Policy Act in 1969, the Corps and the C&SFFCD were also required to consider damage to the environment when making management decisions. As Florida s growth continued to boom and concern about the environment and the impacts of growth on natural resources grew, Governor Reuben Askew convened a conference in 1971 on Florida s water management issues. This conference led to the passage of the Florida Water Resources Act of 1972 (Chapter 373 Florida Statutes). In its declaration of policy, the Water Resources Act stated:

52 32 Because water constitutes a public resource benefiting the entire state, it is the policy of the Legislature that the waters in the state be managed on a state and regional basis. Consistent with this directive, the Legislature recognizes the need to allocate water throughout the state so as to meet all reasonable-beneficial uses. 21 The Florida Water Resources Act of 1972 authorized the Florida Department of Environmental Protection (FDEP) and the water management districts to regulate the construction and operation of stormwater management systems and the withdrawal, diversion, storage, and consumption of water. This broadened the authority and responsibility of the C&SFFCD, which previously had primarily focused on flood control. In 1976, the C&SFFCD became the South Florida Water Management District (SFWMD), to reflect the changing scope of the District s responsibilities. Through Chapter 373 and Chapter of the Florida Administrative Code, the SFWMD was directed to develop regional water supply plans as a means to support the planning efforts of local governments and individual utilities. South Florida Water Management District The SFWMD is south Florida s regional water authority, responsible for managing and protecting water resources of the region by balancing and improving water quality, flood control, natural systems and water supply. As such, it plays a significant role in managing many of the water resources within Broward County, and has a predominant role in efforts to restore the Everglades. The SFWMD operates and maintains the C&SFFCP, which today includes 1,969 miles of canals and levees, 50 pumping stations and about 501 major water control structures. 22 The SFWMD s area of jurisdiction spans 16 counties and comprises 31 percent (17,930 square miles) of the total land area of Florida, a geographic region that includes vast areas of agricultural lands, water conservation areas, and areas of enormous urban growth and development. The SFWMD serves forty percent of the total population (more than six million residents) in central and southern Florida. Broward County is located within the Lower East Coast (LEC) planning area, one of four regional planning areas in the SFWMD. The LEC planning area covers approximately 1,200 square miles and includes all of Miami-Dade, Broward and Palm Beach counties, and most of Monroe and eastern Hendry counties (Figure 3-3).

53 Figure 3-3: Lower East Coast Planning Area Source: LECWSP, SFWMD Over the years, the SFWMD s role in water management in south Florida has changed. While much of the SFWMD s current activities are focused on Everglades restoration, it remains a regulatory agency with significant influence over water resource decisions affecting Broward County. This includes the withdrawal of water from the Biscayne and Floridan Aquifers and operation of the primary canal system. In addition, the SFWMD continues to develop plans and work closely with Broward County, individual municipalities, utilities, and drainage/water control districts to address water supply and flood control issues, natural resource management, and to ensure that local water planning efforts are consistent with the larger regional efforts embodied in the LECWSP and the CERP, as well as state laws, such as the 2005 changes to growth management which more closely aligns water and land use planning and the 2008 ocean outfall legislation. 33 Lower East Coast Water Supply Plan The SFWMD s first regional planning document was the Lower East Coast Regional Water Supply Plan (LECRWSP). The LECRWSP planning process was initiated by the SFWMD in The purpose of this plan was to fulfill the requirements of Section , Florida Statutes (F.S.), which called for the development and implementation of regional water supply plans. The original goal of the LECRWSP was to provide an integrated approach to regional and local water management by providing a cost-effective and implementable strategy for ensuring adequate water supplies to meet the demands of the environment, agriculture, and urban areas within the planning area through the year As the SFWMD planning efforts became refocused on Everglades Restoration, the LECRWSP process was slowed. A 1997 legislative mandate, establishing criteria for all water management districts water supply plans, changed the planning horizon for the LECRWSP from 2010 to In order to make the most of the progress that had been made to date through its LECRWSP process, the SFWMD decided to proceed with an Interim Plan for the LEC. In December 1997, the SFWMD developed and released a draft Interim Plan, pending completion of the final CERP. This Interim Plan was not a regional water supply plan as defined by the 1997 amendments to Chapter 373, F.S., but was intended to be used as a guide for the SFWMD and stakeholders in advance

54 34 of completion of the LECRWSP, also referred to as LEC The list of components to be incorporated in the LECRWSP was included in the final Interim Plan for the LECRWSP and was approved as an order of the SFWMD Governing Board in March The Interim Plan paved the way for sub-regional (County) plans which Broward County recognized would be beneficial to its interests. Consequently, the County became an active participant in the LECRWSP development. The Interim Plan contained recommendations for undertaking research, modeling, evaluation, design, funding, external coordination, and implementation of water resource development and water supply development projects. Three recommendations specific to Broward County were included. Among them was the recommendation that: The District should establish and maintain a team to work in partnership with water control districts, utilities, local governments, landowners, and other interested partners within Broward County. The general mission of the team should be to work with local partners to develop a fully integrated and coordinated water resources plan for the urbanized county. 23 The timing of this recommendation, along with the recommendation that the County initiate needs assessments for all users in the urban area, was fortuitous in that it coincided with the County s efforts to better address local water resource governance. Concern about the ability of the regional system to meet unlimited urban demands and recognition of the fact that water demands which could not be met from the regional system would therefore require local solutions, presented Broward County and the SFWMD with an opportunity to integrate numerous water management objectives into a local approach for managing water resources. Thus, Broward s County-wide IWRP was conceived with the intention of balancing water supply among all urban users through an integrated planning approach which addresses canals, potable water systems, and natural system needs. The Interim Plan recommendation anticipated two phases for the IWRP. The first phase would include short-term project components and would focus on data enhancement projects, hydrologic modeling specific to Broward County, and a consensus-building method for the plan. A second phase would consist of longer-term objectives. The SFWMD agreed to provide Broward County with two years of funding (FY 1998 and FY 1999) to provide a foundation for the IWRP. Development of the IWRP is discussed in detail in Chapter 4. Meanwhile, as the Everglades restoration plan neared completion, the LECRWSP was finalized in May of 2000 and the SFWMD Governing Board concurrently made a commitment to begin funding preliminary design and implementation of its components.

55 35 Three recommendations to support the County s IWRP were included in the LECRWSP (2000): Northern Broward County Secondary Canals Recharge Network Southeast Broward County Interconnect Water Supply System Broward County Urban Environmental Enhancements The SFWMD updated its regional planning document by producing the Lower East Coast Water Supply Plan Update (LECWSP), extending its planning horizon to 2025 and addressing consistency issues with regards to the CERP and policy direction provided by the Florida Legislature during the 2005 legislative session. As the SFWMD and Corps move towards implementation of CERP projects, Broward County will remain active, regardless of whether the CERP Secondary Canal Improvement Project (see Chapter 5) is pursued now, or at some future date. As an active participant in the LEC planning process, the County recognizes that the strategies and actions proposed in the LECWSP will not only support the County s IWRP, but will also help to significantly improve the availability of water within much of the Everglades system. Everglades Restoration-CERP Figure 3-4: Restoration of the Everglades through the CERP will restore the quantity, quality, timing, and distribution of water to this unique system. Just as Broward County s IWRP has been developed in response to the LECRWSP, the LECRWSP, and subsequent LECWSP have been developed to respond to the efforts to restore the Everglades through the implementation of the CERP. The CERP is an extremely complex and constantly changing multi-faceted plan. Thus, there is a dynamic and inter-related nature to each of these planning efforts. The CERP looks at system improvements needed within the entire watershed of more than 18,000 square miles and over a thirty year time horizon (Figure 3-4). The CERP s history can be traced to the Water Resources Development Act of 1992 (WRDA 1992), wherein Congress authorized a re-examination of the C&SFFCP to determine if structural and operational improvements could be made to the C&SFFCP for environmental protection, flood protection, and water supply purposes in an effort to improve the sustainability of south Florida. This analysis, referred to as the Restudy, requires that: The Chief of Engineers shall review reports, with a view to determining whether modifications to the physical, biological,

56 36 demographic, or economic conditions, with particular reference to modifying the project or its operation for improving the quality of the environment, improving protection of the aquifer, and improving the integrity, capability, and conservation of urban water supplies affected by the project or its operation. 24 The water supply planning efforts that were completed from 1992 to 1997 as part of the LECRWSP provided the foundation, in the form of analytical tools, alternatives, evaluation techniques, and storage projects, for the Restudy Conceptual Plan. This plan was adopted in August 1996 under the recommendation of the Governor s Commission for a Sustainable South Florida to address the sustainability of south Florida (see box on following page). In passing the Water Resource Development Act of 1996 (WRDA 1996), the U.S. Congress provided specific direction related to the Restudy. Specifically, WRDA 1996 required the completion of a feasibility study for the development of a comprehensive restoration plan that would serve as the framework for the restoration of the south Florida ecosystem, while providing for the water-related needs of the system. Additionally, WRDA 1996 required that the comprehensive plan be submitted to Congress by July 1, The purpose of the feasibility study was to develop a plan for the C&SFFCP that includes separable and incremental components or projects and features as necessary to provide for the water-related needs of the region it serves. WRDA 1996 also established a cost share between the State of Florida and the federal government for C&SFFCP modifications, including water quality features essential for Everglades restoration, and authorized construction of critical restoration projects. The Restudy was a multi-year planning effort by the Corps and the SFWMD, which was completed in April 1999 with publication of the Central and Southern Florida Comprehensive Review Study Final Feasibility Report and Programmatic Environmental Impact Statement. 25 This document served as the basis for obtaining congressional authorization of the CERP. The Restudy is being implemented through the CERP. The CERP was approved in the Water Resources Development Act of 2000 and is designed to capture, store and redistribute fresh water previously lost to tide and to regulate the quality, quantity, timing and distribution of water flows. It includes more than 60 elements, will take more than 30 years to construct, and was originally projected to cost an estimated $7.8 billion. The estimated plan cost has since been revised

57 37 Governor s Commission for a Sustainable South Florida The Governor s Commission for a Sustainable South Florida was created by the late Governor Lawton Chiles pursuant to Executive Order to: make recommendations for achieving a healthy Everglades ecosystem that can coexist and be mutually supportive of a sustainable South Florida economy and quality communities. The Commission objectives were to: coordinate and integrate water management and restoration plans and ensure that such plans incorporate principles of sustainability, full cost accounting, ecosystem management, and adaptive management; restore and enhance regional ground water storage; protect ground and surface water capacity through development of alternative sources of water and other operational and allocation schemes; integrate land use with water management; and understand the limits of a "managed system" and set realistic flood control goals. The Initial Report by the Commission (October 1, 1995) identified that, at the time, there were approximately 200 water management-related plans which were largely uncoordinated and inconsistent. The report recognized that: most of South Florida has been designated a "Critical Water Supply Problem Area" and large capital investments over the next decades will be needed for restoration, protection, and the provision of increased water supply to the region. The Commission recommended: assessing, exploring, and changing surface water management systems to allow more water to be stored at higher levels in the ground; identification and development of alternative water sources and conservation activities to protect surface and ground water functions and capacity; identifying South Florida's preferred alternative for the U.S. Army Corps of Engineers "Restudy"; requiring compatibility between local comprehensive plans and regional water supply plans of the South Florida Water Management District; ensuring that new water demands do not adversely affect the sustainability of the ecosystem; and, identifying of flood prone areas and incorporating these limitations into local comprehensive plans. to almost $12 billion. The major CERP components as outlined on the official website of the CERP ( are: 1) Surface Water Storage Reservoirs 2) Water Preserve Areas 3) Management of Lake Okeechobee as an Ecological Resource 4) Improved Water Deliveries to the Estuaries

58 38 5) Underground Water Storage 6) Treatment Wetlands 7) Improved Water Deliveries to the Everglades 8) Removal of Barriers to Sheetflow 9) Storage of Water in Existing Quarries 10) Reuse of Wastewater 11) Pilot Projects 12) Improved Water Conservation 13) Additional Feasibility Studies The CERP was approved as the strategy for Everglades restoration in the Water Resources Development Act of 2000 which was signed into law by former President William Jefferson Clinton on December 11, This landmark legislation establishes the CERP as a framework and guide to restore, protect, and preserve the water resources of central and southern Florida. 26 Broward s County-wide Integrated Water Resource Plan (IWRP) While regional water management issues affecting Broward County are addressed in the CERP and LECWSP planning process, the County recognized the need for sub-regional coordination of water management and planning efforts at the local level. Broward County, with the support of the SFWMD, has developed the IWRP to bring the Everglades restoration efforts into local programs. The IWRP strives to optimize the use of local water resources in order to limit the County s reliance on water from the regional system, delay and reduce the costs associated with the development of alternative water supplies, and protect natural systems. The IWRP is the local approach towards addressing the County s water management needs over a ten-year planning horizon. As refinements are made to both the LECWSP and the CERP, the IWRP will continue to adapt, maintain flexibility, and incorporate the results of these larger regional efforts and changes in environment and policy. Broward s County-wide IWRP is discussed in detail in Chapters 4 and 5. The next section discusses the County s role in water management and how that role has evolved.

59 39 Broward County s Role in Water Management Broward County plays a significant role in providing a regional focus for its diverse water management community through a number of mechanisms. These mechanisms have allowed the County to advance integrated water resource concepts, projects, and programs and facilitate consensus amongst Broward s water managers. The County also has some very specific roles in water management, with activities performed by several agencies which serve the Broward County Board of County Commissioners (BCBCC). In discussing these roles, it is important to distinguish between those activities performed by the Water Resources Policy and Planning Section and Water Engineering and Licensing Section (both part of the former Water Resources Division) located within the Environmental Protection and Growth Management Department, and the Water Management Division (WMD) located in Water and Wastewater Services (BCWWS). While each performs a distinct, but integral function in managing water supply and surface water management in the County, all of these groups work very closely together. Environmental Protection and Growth Management Department Within the Environmental Protection and Growth Management Department, the Water Engineering and Licensing (WEAL) Section's primary function is to protect Broward County's water resources through the licensing of surface water management systems, point and nonpoint source discharges, and subsequent monitoring of compliance with code and license requirements. The WEAL enforces water quality standards in accordance with Chapter 27 of the Broward County Code of Ordinances for both surface waters and groundwater, regulates wastewater discharges, and issues permits for surface water management. The Water Resource Policy and Planning Section's goal is to develop and coordinate policies that maximize the beneficial uses of Broward County's water resources through assessment of surface and groundwater resources. This group also provides general and targeted outreach on the County s water resources and integrates policies by reviewing legislation, comprehensive plan amendments, and water management plans. The functions and institutional setting of these former Water Resource Division (WRD) programs has evolved over time. The WRD traces its origins to the Broward County Pollution Control Board, which was created by the Florida Legislature in The County Charter of 1975 transferred and vested its powers and authority to the Environmental Quality Control Board (EQCB), a semi-autonomous body. The EQCB s primary responsibilities in water

60 40 management were wastewater licensing and wellfield protection. The EQCB had no planning function at that time. In 1988, the procedures and authority of the EQCB were modified by a Charter amendment which resulted in the centralization of County-wide environmental regulations. The Charter granted the EQCB the power to adopt regulations which, in turn, had to be ratified by the BCBCC. At the time of adoption, the EQCB established and enforced water quality standards for both surface waters and ground waters, and was responsible for issuing water management work permits throughout the County. The EQCB was in existence until 1991, when the BCBCC reorganized pursuant to the Charter of Broward County and placed all environmental programs under a new organization, the Office of Natural Resource Protection which later became the Department of Natural Resources Protection (BCDNRP). In 1998, land use and permitting functions were transferred to BCDNRP, which later became the Broward County Department of Planning and Environmental Protection (BCDPEP), and the Broward County Environmental Protection Department (BCEPD) in late In early 2008, the BCEPD was merged once again with planning and is currently called the Broward County Environmental Protection and Growth Management Department. Within the Florida Administrative Code, the SFWMD is given the authority to delegate its surface water management permitting function for projects of less than 40 acres to local governments that meet certain criteria. 27 In Broward County, permitting delegation has been granted to the County for the Management and Storage of Surface Waters permit, along with several independent drainage districts which have been authorized permitting programs for projects of less than 40 acres located in uplands. Areas outside of independent drainage district jurisdiction fall within the jurisdiction of Broward County Environmental Protection and Growth Management Department, whose permitting function is performed by the Development and Environmental Regulation Division. Pursuant to Chapter 27 of the County Code, Broward County also issues its own surface water management permits. Broward County Water Management Division (WMD) The Broward County Water and Wastewater Service s (BCWWS) Water Management Division (WMD) was created in 1983 by merging the Broward County Water Management Division under the Department of Public Works with the Section 208 (water quality) staff of the Broward County Planning Council. BCWWS is the County s utility, responsible for providing both water and wastewater services (Figure 3-5).

61 41 Figure 3-5: Broward County Water and Wastewater Services in Pompano, Florida The WMD works with local and regional water management districts in a cooperative effort to implement water resource management activities in support of adequate water supply, conservation and drainage measures. The WMD is in charge of operations and maintenance of water management facilities for which the County has responsibility and functions much like the independent drainage districts (see following section). In this capacity, the WMD keeps facilities, both owned by and under contract with the County, properly functioning and constructs new improvements to enhance the systems as well. The facilities are managed to provide flood protection, aquifer recharge, saltwater intrusion abatement, environmental preservation and potable water supply. Maintenance duties include removal of debris, aquatic weed control and proper operation of flood control gates, pumps, and other control structures. Incorporated municipalities typically maintain drainage facilities within their respective jurisdictions, unless contractual agreements have been made with the local independent drainage district or the BCWWS. The WMD also acts as the staff to a number of dependent water management districts. The BCWWS provides treated potable water to approximately 14% of Broward County s population residing in four principal areas-districts 1, 2, 3A, and 3BC (Figure 3-6). The utility owns and operates two water treatment plants located in Districts 1 and 2 and four wellfields (1A, 2A, South Regional, and North Regional Wellfields). All of the BCWWS wellfields currently draw from the Biscayne Aquifer. The volume and rate of withdrawal for the BCWWS, as well as for the other water utilities in Broward County, is regulated by the SFWMD through the issuance of consumptive use permits (CUPs) pursuant to Part II of Chapter 373, Florida Statutes. Other Entities Involved in Water Management in Broward County Although the SFWMD and the County have responsibilities related to water management throughout Broward County, there are many other entities involved either in drainage and/or water supply that provide these services within a limited geographical area. These include a number of special districts, which are sometimes referred to as 298 s (from the section of Florida state law that governs them) and/or special act districts, which have been granted drainage and water control authority under state law, and many utilities, which are an integral part of the overall water management system.

62 42 Figure 3-6: BCWWS Service Areas Drainage/Water Control Districts Broward County s water management community includes 23 drainage/water control districts with varying water management functions. These include water control districts, drainage districts, improvement districts, community development districts, and one irrigation and soil conservation district. These districts can be either independent entities with their own governing structure or dependent districts, governed by other existing legislative bodies like a municipal or County commission. Figure 3-7 shows the current special districts with water management functions in Broward County. A number of these districts were established by developers as a means to recoup costs associated with development of their landholdings. Through the Chapter 298 process, developers are allowed to levy assessments

63 43 and fees on property owners within their jurisdiction for operations and maintenance of these systems. The pre-statehood territorial legislature created special districts in 1822 as special purpose units of government to serve localized and limited functions as dependent or independent districts. A special act by the Legislature in 1834, authorized property owners to construct drainage ditches across adjacent lands Figure 3-7: Map of Drainage/Water Control Districts in Broward County as of April, 2007 as long as the activity was properly noticed and court appointees approved the design, as well as applicable compensation to affected landowners.

64 44 In 1913, the Florida State Legislature enacted the first general drainage law, entitled the General Drainage Act, which authorized adjoining landlords to 'reclaim' land by establishing drainage districts. This law authorized drainage districts to be created by circuit court decree. That same year, the Legislature created the Everglades Drainage District. Other drainage districts soon followed. The desire at the time was to open up south Florida s fertile soil and subtropical climate for agricultural development. Statutory references of the period referred to the overabundance of water as the common enemy. In 1917, the Florida legislature created the Napoleon B. Broward Drainage District to oversee drainage and reclamation of a half million acres in Broward County and northern Dade County. Eventually that drainage district was split into smaller districts, which includes the Central Broward Water Control District, the County s second largest independent special district, and a remnant of the larger district. The County s largest independent drainage district, the South Broward Drainage District, was established in Other major independent drainage/water control districts include the Old Plantation Water Control District, and the North Springs and Coral Springs Improvement Districts. A list of Broward County s special districts that have drainage and water control responsibilities is found in Table 3-1.

65 45 Table 3.1: Special Districts with Drainage/Water Control Responsibilities Creation Statutory Permitting Documents Authority Program District Name Type Local Governing Authority Bonaventure Development District Central Broward Water Control District Cocomar Water Control District Coral Bay Community Development District Coral Springs Improvement District Cypress Cove Community Development District Indian Trace Development District Lauderdale Isles Water Management District Dependent Independent Dependent Independent Independent Independent Dependent Dependent City of Weston Broward County Broward County City of Margate Broward County City of Margate City of Weston City of Fort Lauderdale City Ordinance #98-61 & Chpt LOF Ch L.O.F. Margate City Ordinance #80-23, Coconut Creek City Ordinance # City Ordinance #89-22 Ch , L.O.F. City Ordinance #90-7 City Ordinance #18 County Resolution dated 11/17/70; Ch L.O.F F.S. Section F.S. Section F.S. Chapter 190, F.S. Chapter 298, F.S. Chapter 190, F.S F.S. Chapter 298 F.S. Permitting of district facility usage Permitting of district facility usage Permitting of all water management facilities within district Permitting of district facility usage Surface water management; permitting of projects less than forty acres (by delegation of SFWMD); permitting of district facility usage Permitting of district facility usage Permitting of district facility usage Permitting of district facility usage North Springs Improvement District North Lauderdale Water Control District Independent Dependent Broward County City of North Lauderdale Ch , L.O.F. Ch L.O.F. Chapter 298, F.S. Chapter 298, F.S. Surface water management; permitting of projects less than forty acres (by delegation of SFWMD); permitting of district facility usage Permitting of district facility usage

66 46 Table 3.1: Special Districts with Drainage/Water Control Responsibilities (continued) District Name Type Local Governing Authority Creation Documents Statutory Authority Permitting Program Oakridge Community Development District Independent City of Hollywood City Ordinance #95-71 Chapter 190, F.S. Permitting of district facility usage Old Plantation Water Control District Pine Tree Water Control District Plantation Acres Improvement District South Broward Drainage District Sunshine Water Control District Tindall Hammock Irrigation & Soil Conservation District Turtle Run Community Development District Twin Lakes Water Control District West Lake Community Development District Broward County Water Control District #2 Independent Independent Independent Independent Independent Independent Independent Dependent Independent Dependent Broward County Broward County Broward County Broward County Broward County Broward County City of Coral Springs City of West Park City of Hollywood Broward County Ch , L.O.F. Ch ; : ; L.O.F. Ch , L.O.F. Ch , L.O.F. Ch , L.O.F. Ch L.O.F. City Ordinance # County Resolution dated 12/29/70 City Ordinance #93-15 Chapter , L.O.F. Section F.S. Chapter 298, F.S. Surface water management; permitting of projects less than forty acres (by delegation of SFWMD); permitting of district facility usage Permitting of district facility usage F.S. Surface water management; permitting of projects less than ten acres (by delegation of SFWMD); permitting of district facility usage Section F.S. Section F.S. Permitting of district facility usage Permitting of district facility usage F.S. Work within the District (rightsof-way) and surface water management Chapter 190, F.S. Section F.S. Chapter 190, F.S. Section , F.S. Surface water management Permitting of district facility usage Permitting of district facility usage Permitting of all water management facilities within district

67 47 Table 3.1: Special Districts with Drainage/Water Control Responsibilities (continued) District Name Type Local Governing Authority Creation Documents Statutory Authority Permitting Program Broward County Water Control District #3 Broward County Water Control District #4 Dependent Dependent Broward County Broward County Chapter ; ; , L.O.F. County Resolution # Section , F.S. Section , F.S. Source: Broward Water Providers Permitting of all water management facilities within district Permitting of all water management facilities within district There are 25 municipal and private utilities providing water within Broward County. Their service areas are shown in Figure 3-8. These utilities currently draw all or most of their water from the Biscayne Aquifer. The amount of water that is allowed to be withdrawn from the aquifer is based on their consumptive use permit (CUP), which is issued by the SFWMD. Each CUP stipulates the annual allowable withdrawal in million gallons per year and the maximum monthly in million gallons per month. Under Florida law, permitted uses are afforded the status of an existing legal use which gives the permittee the right to use water consistent with the terms and duration of the permit. Permit renewals are typically required every twenty years with five year reviews. In order to continue withdrawals from the aquifer, CUPs must be renewed upon expiration. This allows the SFWMD an opportunity to incorporate new rules or standards as necessary. In order to secure and maintain a CUP, applicants, primarily water utilities, must meet three criteria: Reasonable and beneficial use of the resource. This standard requires that the user prevent wasteful or excessive use of water and demonstrate that the applicant is implementing water conservation, managing urban demand, requiring high-efficiency irrigation systems, and is using the lowest quality of water for the intended purpose; Consistency with public interest and recovery and preventative strategies for the Everglades and Biscayne aquifer; and

68 48 Figure 3-8: Water service areas of Broward County utility providers as of April 2007

69 49 Will not interfere with any existing legal users or those with a valid permit or ones that are exempt. On February 15, 2007, the Governing Board of the South Florida Water Management District authorized the adoption of the Regional Water Availability Rule, a rule that protects the Everglades from the impacts of additional urban water supply demands, beyond those measured prior to April It requires that future water demands be met by alternative water resources. A Greater County Role in Water Management? Recognizing that Broward County is unique in the large number of entities that have some jurisdiction over water management, some people and groups have called for a greater role for the County in overall coordination of water management. Several studies have been undertaken in an attempt to examine the effectiveness of the existing water management system in Broward County and to identify where improvements could be made. These studies have identified various issues and have led water managers within the County to better coordinate their activities with one another, thereby addressing regional concerns as well as those within their immediate jurisdiction. Support for both a greater County role in water management and an integrated approach to water resources management can be found within these studies which are discussed below. Broward County Water Management Program Evaluation- South Florida Regional Planning Council In 1996, the South Florida Regional Planning Council (SFRPC) undertook an evaluation to examine the effectiveness of the County s water management system and the ability of local drainage districts to provide flood control. The SFRPC analysis recognized that the current system of drainage in Broward County was operating at an acceptable level of service, but noted that there was room for improvement. Specifically, it identified concern over both the ability of the local drainage districts to coordinate amongst themselves, and with the County and the SFWMD, to achieve common goals. The evaluation also noted the need for independent drainage districts to become active partners with the County and the SFWMD in order to help achieve the regional goals of increasing surface water storage, water supply, improving efficiency of water deliveries to wellfields, enhancing and conserving recreational and natural resource values, and generally integrating water supply and flood protection into a compatible comprehensive water resource management policy.

70 50 of the Governance, Special Taxing Districts & Transportation Subcommittee of the Broward County Management and Efficiency Study Committee (MESC) The Broward County Management and Efficiency Study Committee (MESC) was authorized and empowered by the Broward County Board of County Commissioners in 1998 to conduct a comprehensive study of county government by analyzing and studying the most effective and cost efficient means to provide services to Broward County residents. A subcommittee was formed to examine special taxing districts. While the MESC subcommittee originally intended to study all special taxing districts, flooding caused by Hurricane Irene in 1999 shifted the subcommittee s focus to a review of what could be done to improve drainage throughout Broward County. In June 2000, the subcommittee issued a final report on drainage and water control districts, recognizing that: water control is an extremely complicated issue, not only because of the many entities of differing authorities involved, but also because the entities have unique and varied responsibilities pursuant to their creation by the Legislature, municipalities, judicial decree or dependency to the County. 28 The final report included the opinion of the County Attorney that: the County has the ability to legislate all aspects of water resources quality control but is without authority to legislate water resources management, as defined in Chapter 298, Florida Statutes, within existing water control districts. 29 In the MESC report, recommendations were provided to improve the management and efficiency of stormwater drainage and canal maintenance in Broward County. The recommendations addressed a number of areas, including dependent districts, independent districts, water resource planning, water quality, water quantity, administration, and public information. By the time this report was issued in 2000, Broward County had been actively pursuing its IWRP process for three years and much progress towards addressing these concerns had been made. Among the planning recommendations, the subcommittee included: continuation, implementation, and expansion of the Integrated Water Resources Plan to provide a stronger link between land use planning and water resources planning to help ensure Broward County s sustainability. 30

71 51 Draft : Water Resource Planning in Broward County prepared for the 2002 Broward County Charter Review Commission The Broward County Charter Review Commission was convened in 2002 with the purpose of making recommendations regarding changes that needed to be made to the County Charter. The Charter Review Commission draft report recognized the need for more effective coordination of the planning, funding, permitting, and operation of water facilities and proposed the creation of a Water Resource Council to serve as the local planning agency for water resource issues in the County s Comprehensive Plan. As proposed, the Water Resource Council and the Broward County Planning Council would work together to coordinate the planning of water resource issues and land use issues. The Water Resource Council would prepare a long range County-wide Water Resource Plan which would be revised as necessary for consistency with the County Land Use Plan and vice-versa. Significant opposition to this approach was voiced by many of the County s water managers, who saw it as infringing on their authority. In consideration of the progress that had been made to date in implementing the IWRP and assurances made by some of the drainage/water control districts and municipalities to work together in cooperation with Broward County and the SFWMD, the 2002 Charter Review Commission ultimately chose not to act on recommending Charter amendments with regards to the issue of water resource planning. Governance through the IWRP Broward County has been able to address the challenge of coordination and consensus with the County s diverse water management community through the IWRP process. The success of this process has been contingent upon establishing an effective governance and coordination component that ensures broad participation and input from the technical community as well as policy makers through a number of working groups. Information is shared openly amongst groups to help foster consensus on projects that advance the IWRP process and each of these working groups serves a specialized role in supporting the IWRP s goals and activities. Working group members have dedicated hundreds of volunteer hours to building consensus for proposals and projects under the IWRP. Water Advisory Board The Water Advisory Board (WAB) to the BCBCC advises the BCBCC on matters related to water management. The WAB is composed of 11 members that meet every other month and are responsible for approving whether a particular program or project should be forwarded to the BCBCC for funding or approval. The membership consists of:

72 52 Two members of and appointed by the BCBCC; Five City Commissioners who are members of and appointed by the Broward County League of Cities; One member of and appointed by the Governing Board of the SFWMD; One member of and appointed by the SFRPC; One lay person, appointed at large by the BCBCC; and The Chair of the Technical Advisory Committee (TAC) of the WAB. Staff assistance and appropriate resources are provided to the WAB by the Broward County Water Resources Policy and Planning Section of the Natural Resources Planning and Management Division. The duties and functions of the WAB are: To advise and make recommendations to the BCBCC in matters relating to the development, use, and management of the water resources within Broward County, which may include, but are not limited to, water supply, water conservation, groundwater recharge, reuse of wastewater effluent, and stormwater management. To make recommendations to the BCBCC regarding policies relative to the development, operation, and management of the water supply within Broward County. To monitor, evaluate, and make recommendations for adoption of modifications to the Broward County Water Supply Plan. To develop and recommend for adoption a Countywide Comprehensive Water Resources Management Plan per chapter 36 of the Broward County Code. To act for the BCBCC in such matters regarding water resources as the BCBCC may authorize. To act as the major water policy advisory entity for Broward County and appoint subcommittees, where appropriate, and review and make recommendations to the BCBCC regarding subcommittee activities and recommendations. Technical Advisory Committee The Technical Advisory Committee (TAC) provides technical guidance regarding water resource management issues to the WAB to the BCBCC. By the time a project or issue reaches the WAB, it has typically been reviewed and discussed in detail by the TAC. The TAC is composed of 21 members representing utilities, drainage districts, environmental interests, private consultants, government, and

73 53 the public. The TAC meets monthly, either alone or in a joint meeting with the WAB. Surface Water Coordination Committee The Broward County Surface Water Coordination Committee (BCSWCC) is composed of a group of drainage and water control district managers and government water managers that meet quarterly to discuss issues of mutual interest and concern. Three members are currently on the TAC. The purpose of the BCSWCC is to encourage all water control districts, municipalities and regional water managers to participate in surface water resources management and to assist in surface water efficiency for Broward County. The principal objectives are: To improve the awareness of surface water management through the education of the public and elected officials. To improve coordination of all local and regional surface water management operations during regular and/or emergency situations. To improve integration of surface water and groundwater to enhance the quality and volume of recharge. To assist in disseminating new surface water management ideas and technology. To assist in the review and implementation of a county-wide water resource management plan. To act as an advisory group to the TAC of the WAB to the BCBCC. Broward League of Cities The mission of the Broward League of Cities is to identify and help resolve issues affecting municipal governments within the county; promote municipal authority and represent the interests of municipal governments of Broward County; increase public knowledge of municipal services, issues, concerns, accomplishments and responsibilities; and, provide leadership on issues of regional and state concern. The Broward League of Cities nominates five members to the WAB. In addition, the County participates in Broward League of Cities meetings and makes presentations on water resource issues as requested.

74 54 Broward County/SFWMD technical working groups Figure 3-8: The Broward Everglades Working Group is comprised of stakeholders working to reduce pollutant inputs into waters in the C-11 basin. Broward Everglades Working Group In order to ensure that Broward County s water management activities are closely aligned with the larger regional efforts of the LECWSP and the CERP, Broward County participates in a number of technical forums and working groups with the SFWMD and local water managers. Many of these collaborations were formed to address issues related to Everglades restoration, such as the activities of the Broward Everglades Working Group (Figure 3-8). The 1994 Everglades Forever Act set into action a plan for restoring a significant portion of the Everglades. Recognizing that phosphorous pollution is one of the primary causes of Everglades degradation, the Florida Department of Environmental Protection has proposed a water quality standard of 10 ppb phosphorous for water discharged to the Everglades and has recommended point source controls as the priority pollution strategy for Broward County as part of the long-term plan. In May 2004, Broward County and the SFWMD initiated a joint Broward Everglades Working Group of drainage districts, government agencies, municipal officials, industry, and other affected stakeholder groups in the Everglades Stormwater Program (ESP) basins, to discuss a flexible approach to accomplish this state mandate. Although the Working Group has initially focused on the C-11 West Basin, as the major basin in Broward County that discharges to the Everglades, the intent of this effort is to expand this initiative to other ESP basins within the County. The Broward Everglades Working Group reviewed a menu of best management practices which can be tailored to their individual community s environment or ability to implement pollution reduction measures. Each municipality has chosen measures from a list of Pollution Reduction Options to develop an individual area-specific Pollution Reduction Action Plan. These individual plans have been consolidated in the C-11 West Basin Pollution Action Reduction Plan which has been incorporated into the Long Term Plan for Achieving Water Quality in the Everglades through reference, and which will hopefully serve as a catalyst for similar initiatives County-wide.

75 55 Comprehensive Plans The governance of water resources in Broward County also occurs through the comprehensive planning process. Water supply and planning needs are identified in the County s Comprehensive Plan and are implemented through County policies, which are then often adopted by local municipalities. The County s Comprehensive Plan includes elements addressing potable water, wastewater, drainage and natural aquifer groundwater recharge, and conservation. Policy integration continues to provide the platform for successful coordination of water management efforts throughout Broward County. The IWRP s Policy Integration component was initially called Comprehensive Plan Amendments and originally focused solely on recommending new policies or modifying existing policies to achieve the goals of the IWRP in order to integrate the County and municipal Comprehensive Plans and water resource management. While the Policy Integration component of the IWRP has expanded to include an active public outreach program, review and modification of water elements of comprehensive plans and local ordinances remain an important part of the process as well. From 2003 to 2005, the Florida State Legislature passed legislation to expand upon the requirements of the local government comprehensive plan and Florida water law to include closer coordination between land use planning and water supply planning. Included in those legislative changes, was the requirement for the development of a 10-Year Water Supply Facilities Workplan (Chapter 163, F.S.), with the purpose of increasing the coordination of future land use and water supply planning. In 2004, the County completed the Evaluation Appraisal Report (EAR) of the water elements of the Comprehensive Plan along with a 10-Year Water Supply Facility Workplan. In December 2007, it updated the goals, objectives, and policies and supporting documents of the Comprehensive Plan to reflect recent changes in statewide water policy and local water supply needs and completed a revised 10-Year Water Supply Facility Workplan. This work has helped to guide local governments in their own planning efforts. As new ordinances are proposed to implement water-related policies, the County will continue to play an active role in ensuring their consistency with County and state policies.

76 56 Broward County 10-Year Water Supply Facilities Workplan 31 In order to improve the coordination of future land use and water supply planning, the Florida State Legislature amended the requirements of the local government comprehensive plan to include the development of a 10-Year Water Supply Facilities Workplan (Chapter 163, Florida Statutes). Pursuant to this legislation, Broward County s Department of Planning and Environmental Protection (now Environmental Protection and Growth Management Department) and the BCOES (now Water and Wastewater Services) have developed a 10-year Water Supply Facilities Workplan, a water supply facility needs assessment for the County and several municipalities. This joint workplan provides a comprehensive analysis of short- and long-term water needs in unincorporated regions of Broward County and the County utility s service area. It also evaluates the provider utility s ability to meet those needs. Utilities likely to experience water supply shortages have been identified and recommendations are provided for the development of alternative water supplies, conservation, and water-sharing arrangements. The Workplan, submitted to the Department of Community Affairs in March, 2004 received enthusiastic support by utility managers. Subsequent changes to Florida State law have required that additional information be provided. Consequently, the County s 10-Year Water Supply Facilities Workplan was updated and submitted to the Florida Department of Community Affairs in early 2008 and approved in September As part of the IWRP, Broward County has collaborated with other local governments within the County to assist in the development of their individual water supply workplans. Other Mechanisms for IWRP Implementation In an era where government resources are continuously stretched, interlocal agreements, cost sharing arrangements, and grants are mechanisms which can be used to implement IWRP projects and provide outreach. The County stands ready to facilitate the implementation of these mechanisms and provide funding where consensus has been reached and resources are identified. Through the dedication of resources, both the SFWMD and the BCBCC have been key partners in moving the IWRP forward. As partners in the water management community step forward to address their individual needs, Broward County is committed to the implementation of projects which integrate the County s water resources, reduce dependence on regional water resources, and work towards multi-jurisdictional solutions. In the following chapter, the historical development of the IWRP from a conceptual plan to a systematic planning approach is discussed.

77 57 Chapter 4: DEVELOPMENT OF THE IWRP Recognizing that water management in Broward County presents different challenges than in many other places, the County undertook development of the Integrated Water Resource Plan (IWRP) in the mid-1990 s in order to meet the goals of addressing, at a local level, the coordination of sources and users of water for more efficient local water management and in order to meet the County s urban water needs. The IWRP has been tailored to the County s physical and socio-political environment and constraints and to accommodate those features which make water management in Broward County unique, including: The lack of natural topography, and hence limited water storage capacity; The seasonal nature of rainfall; The extensive urbanization of the County and subsequently, the limited green space, open space, and available land for water resource/water supply projects; and The diversity and number of entities with water management responsibilities. The IWRP has been designed to address the short-term water resource needs of urban Broward County based upon a ten-year planning horizon. However, it is not a static plan fixed on specific projects and timelines, but is dynamic and embraces the CERP concept of adaptive management. While the basic principles, components, and objectives remain the same, the specific projects and implementation strategies may change in response to local and regional water policy and questions regarding land and water resource management. The IWRP is founded on the principle that water must be viewed from a regional perspective, blind to jurisdictional lines established by municipalities, drainage/water control districts, or utilities. To be effective, the IWRP addresses all aspects of water management functions, which has required a comprehensive approach that incorporates many activities, dimensions, institutions, and services. In Broward County, integration of water resource management helps to ensure that sufficient quantities of high quality water are available for all users, including people, plants, and animals. The IWRP recognizes that any program addressing water management within Broward County must complement other water resource plans that have been developed for the region. As discussed in greater detail in Chapter 3 Governance, the IWRP is a local level (urban Broward County) water plan with a short-term planning horizon, while the Comprehensive Everglades Restoration

78 58 Plan (CERP) and the South Florida Water Management District s Lower East Coast Water Supply Plan (LECWSP) deal with broader long-term regional issues (see Figure 3-1). However, similar to these regional planning efforts, which also evolve in response to new technical analyses, changing needs, and policies, the IWRP employs an adaptive management process. This approach has directed the development of programs and projects aimed at more effective and efficient local water management. This chapter discusses how this process has evolved. Early Development of the IWRP The development of a County-wide water resource plan has been a pursuit and concern of several agencies since at least the early 1990 s. Phase I of the SFWMD s Broward County Water Supply Plan was released in October 1991 and included a description of relevant water supply goals, directives and policies as they applied to the water issues within Broward County at that time. As the SFWMD s primary focus shifted to planning associated with the restoration of the Everglades, the completion date for the original LECRWSP was delayed from 1994 to As discussed in Chapter 3, the decision was made to approve an Interim Plan as a product of the first phase of water supply planning efforts for the Lower East Coast planning region. Recognizing that the LECRWSP did not address all of the complexities of the County s unique urban water management challenges, both the County and the SFWMD saw this as an opportunity to develop a local approach to planning for the County s multiple water resource needs. Similarly, all counties in the LEC region were encouraged to prepare their own local-level water plans. Key staff from two County agencies, in consultation and with support from the SFWMD, began development of a Broward County-wide Integrated Water Resource Program in earnest in June This effort included staff from the Water Resources Division of Broward County s Department of Natural Resources Protection (BCDNRP), later named the Department of Planning and Environmental Protection (BCDPEP), then the Environmental Protection Department (BCEPD) and recently renamed the Environmental Protection and Growth Management Department; and, the Broward County Office of Environmental Services (BCOES), now named Broward County Water and Wastewater Services (BCWWS). The County recognized that while the original LECRWSP was primarily intended to be a drought management plan, urban water management challenges would require that the program provide water management strategies addressing issues of flood control, drought, and the conveyance of water throughout Broward County. Hence, the County-wide plan would need to: Meet the water needs of the urban natural systems, parks, and the urban population;

79 59 Serve to mitigate saltwater intrusion; Enhance aquifer recharge; Capture water being lost to tide; and Maintain flood protection. Several meetings between Broward County staff were held to develop basic goals and objectives, draft a discussion paper, and prepare a suggested scope of work to initiate the IWRP. In August 1997, a draft discussion paper was prepared for review by the Technical Advisory Committee (TAC) and the Water Advisory Board (WAB) to the Broward County Board of County Commissioners. This initial IWRP discussion paper, subtitled A Flood, Drought, and Daily Management Plan, formed the basis for the development of the IWRP and still guides its progress today. Starting with the single goal of maximizing and protecting the beneficial uses of Broward County s water resources, a proposed scope of work was built around three fundamental water supply considerations: quantity, quality, and cost (Figure 4-1). It was determined that in an ideal situation, our water supply should originate at the intersection where each of these parameters is optimized-most water of the highest quality at the best cost. Cost Water Supply Quantity Quality Figure 4-2: The initial IWRP discussion paper focused on developing a balance between cost, quantity, and quality to meet water supply needs.

80 60 The paper outlined three major objectives to address each of these parameters, and provided supporting strategies and action steps. These are discussed below: Objective 1: Manage water resources for effective timing, distribution and quantity Strategy 1-A: Develop an adequate quantitative database to help answer the question How much water do we have? Action Step 1-A-1: Characterize the County s water budget by geography, for the County, Canal Basins, wellfields, and significant natural resources. Examine inflows/sources, outflows, and storage for these geographic components. Strategy 1-B: Determine the adequacy of the system to meet our design conditions to help answer the question How well does the current system work? Action Step 1-B-1: Characterize the demand in terms of quantity, elevation, and location. Action Step 1-B-2: Determine the adequacy of our storage and delivery system to meet our design condition demand for flood protection and water supply. Action Step 1-B-3: Determine how implementation of the LECRWSP impacts inflows, outflows, and storage in Broward County. Action Step 1-B-4: Determine how implementation of the Minimum Flows and Levels impact inflows, outflows and storage in Broward County. Strategy 1-C: Develop and implement resource management alternatives to help answer the question What can we do to make the system work better? Action Step 1-C-1: Pursue management improvements (revise regulations, develop Best Management Practices, obtain Environmental Resource Permit delegation, implement new Well Head Protection Areas regulations, and improve outreach to water management partners and consumers). Action Step 1-C-2: Determine a minimal level of service for utilities during extreme conditions. Action Step 1-C-3: Develop alternatives to reduce demand (i.e., conservation/reuse measures). Action Step 1-C-4: Reduce reliance on the Biscayne Aquifer.

81 61 Action Step 1-C-5: Develop county-wide water resource storage and recharge alternatives (i.e., infrastructure modification). This included the following tasks: To complete the North Aquifer Drainage Assessment Study and implement recommendations; To develop and implement integrated municipal utility water supply plans as they relate to recharge, storage and demand; To provide adequate volumes and timing of water resources to urban natural systems based on these assessments; To propose modifications of the delivery system or interconnects; To propose modifications to the comprehensive plan which codifies the local water resources management plan; and To coordinate flood protection activities. Action Step 1-C-6: Develop a County-wide emergency management plan for an extreme drought. Objective 2: Provide users the appropriate quality of water resources to meet demands. Strategy 2-A: Develop an adequate qualitative database to answer the question What are the water quality issues in Broward? Strategy 2-B: Develop historic trends of water quality to answer the question What parameters in which areas require improvement? Strategy 2-C: Develop methods to match user with the appropriate water quality (reuse, etc.) to answer the question How can we meet the water quality needs of each user? Strategy 2-D: Provide regulatory programs that protect the quality of Broward County s water resources. Strategy 2-E: Protect wellfields from saltwater intrusion. Action Step 2-E-1: Develop innovative safe methods to retard movement of or drive back the salt water front. Action Step 2-E-2: Finalize the establishment of the salt water intrusion monitoring network. Action Step 2-E-3: Develop recharge strategies.

82 62 Objective 3: Institute cost effective water management throughout Broward County Strategy 3-A: Provide for effective coordination between water management agencies Strategy 3-B: Determine the marginal cost of additional supplies versus demand reduction. Strategy 3-C: Determine new ways to generate funds to support natural system water needs. Strategy 3-D: Evaluate methods of economic evaluation to better judge the full cost of alternatives. Several key factors that would be critical to the development of a successful planning process were acknowledged in the discussion paper. Two principle considerations were the recognition that while BCDNRP had the lead planning responsibility for the County s water resources, it did not have the authority to implement such a plan, and that consensus building within the diverse water management community would need to be an important part of developing a local water management program. The discussion paper also clarified that the intent of the plan was to take a comprehensive view of the long-term needs of water users in Broward County, while taking strategic action on projects that were needed immediately, and on which a consensus existed. Over time, participants in the planning process would be expected to contribute to expanding the plan to include appropriate items, management options, proposed infrastructure improvements, and coordination recommendations to make the IWRP comprehensive and integrated. To build consensus for the effort, the discussion paper was widely circulated amongst County agencies, drainage/water control districts, municipalities, utilities, industrial water users such as Florida Power & Light and the nursery industry, the Broward County Planning Council, the SFWMD, and other interested parties. Planning for the IWRP continued to move forward with the participation of the TAC and WAB, and with support from the SFWMD. At the suggestion of the TAC members, a subcommittee was formed which convened monthly from September 1997 through January 1998 to develop goals, identify problem areas, and refine a scope of work for a cooperative agreement between the County and the SFWMD to assist with further development of the IWRP. The scope of work included an action plan for FY 1998 with specific tasks to accomplish agreed upon goals and the following two main objectives:

83 63 Create an operational framework to support the process of developing and implementing the Broward County IWRP; and, Gather information to benefit ongoing and future modeling, study and planning efforts. The Interim Plan for Lower East Coast Regional Water Supply 32, approved in March 1998 by the SFWMD Governing Board, included a recommendation for development of the Broward County Integrated Water Resource Plan along with a commitment for partial funding for Fiscal Year 1998 for this effort. This recommendation reflected the direction that Broward County was heading with its water resource planning efforts and was largely based on the fact that the County, in coordination with the SFWMD, municipalities and others, had already initiated a planning process to accomplish this recommendation. The recommendation envisioned two phases for the plan, the first addressing short-term project components and consensus-building, and a second consisting of longer-term objectives. In July 1998, with the support of the WAB, the SFWMD and Broward County entered into a cooperative agreement authorizing the implementation of Phase I of the IWRP on a cost-shared basis. Phase I included the following tasks: Ortho-rectification of aerial photography; Development of GIS coverage of protected resource areas in Broward County; Development of a surface water database; and, Expansion of the existing water level monitoring network and establishment of a rainfall monitoring network. In the agreement, the SFWMD agreed to provide $150,000 to be matched by Broward County in funds or in-kind services. A second cooperative agreement to implement Phase II of the development of the IWRP was approved by the County in August, The SFWMD again agreed to provide $150,000 to be matched by Broward County in funds or in-kind services. Phase II included the following tasks: Design, implementation, and evaluation of pump tests at five representative natural system sites to determine the amount of water needed to restore groundwater levels; Additional GIS work, including the creation of culvert GIS coverages; Development of a North Broward County Utility Needs Assessment and Options Development Study; and,

84 64 Creation of a public outreach plan to educate the public on water management in Broward County. Today, as the County continues to work in cooperation with its diverse water management community in implementing the IWRP, the SFWMD continues to actively support the IWRP process and projects. Additional cooperative agreements between Broward County and the SFWMD have moved implementation of the IWRP forward, and provided further support for the LECRWSP and the CERP as well. The IWRP Planning Process The strength of the IWRP lies in the technical approach it has taken in developing a planning process for the County s water resources. Taking a regional perspective, the IWRP examines in detail all water management functions in the County, including drainage regulations, aquifer recharge, flood protection, maintenance of groundwater levels for wetlands, wastewater treatment and reuse of water, abatement of saltwater intrusion and public water supply. It has also examined the policy framework that guides water management activities and decisions. The IWRP planning process focused on four strategies or components to improve integration of water management in Broward County: Natural System Integration Canal System Integration Utility System Integration Policy Integration Each of these water plan components is defined by a specific objective which addresses the integration of Broward County s water resources and the overall goals of the IWRP. The identification of these objectives was a critical step in the IWRP planning process. Without specific objectives it would have been difficult, if not impossible, to gauge the success or failure of any of the management actions that were to be initiated. Each component s objective is technically sound, defensible, and is able to be assessed using either existing or future monitoring programs. In addition, the objectives address the specific major water resource issues that have been identified within Broward County. The objectives for each component are discussed later in this chapter. In addition, the IWRP incorporates an approach which examines the County s water resources through four phases: Phase 1: Identify water attributes and assets to catalog countywide wetlands, surface water and water management infrastructure in a Geographic Information System (GIS) format;

85 65 Phase 2: Perform water needs assessment and develop models to determine and quantify the water needs of the natural system, recharge system, and urban population; Phase 3: Develop capital improvement plans to perform feasibility and design analysis on Phase 2 recommendations, create cost sharing partnerships, develop strategies for funding and list priority projects; and, Phase 4: Construct the improvements to implement projects with partners to achieve the IWRP goal of more efficient water management. For planning purposes, as well as to reflect the availability of funds during a particular fiscal year, urban Broward County was split into three planning areas based on drainage basins and groundwater elevations (Figures 4-2 to 4-4). Figure 4-2: The North Broward County IWRP Planning Area encompasses the area between the Broward/Palm Beach County line and the C-14 Canal. Figure 4-3: The Central Broward County IWRP Planning Area encompasses the area between the C-14 Canal and the North New River Canal.

86 66 Figure 4-4: The Southern Broward County IWRP Planning Area encompasses the area between the North New River Canal and the Broward/Miami-Dade County line. By addressing local water resource management through the IWRP planning process, our knowledge and understanding of local water resources and natural system needs have been greatly improved. This process has led to a number of significant accomplishments towards more effective water resource management. While implementation of several recommended IWRP projects is still pending, with the continued support of the water management community, implementation of these and other proposed IWRP projects will be realized. These projects are discussed in the remainder of this chapter and in Chapter 5. Canal System Integration Objective Canal system integration is the keystone to the IWRP. The objective of this IWRP component is to capture and retain as much of our local rainfall as possible without compromising flood protection. This is accomplished by using the network of drainage canals found in Broward County to move water from regional canals and stormwater systems into critical wellfield and wetland recharge zones, thereby taking advantage of the close link between the surface water and groundwater. Background There are over 1,700 miles of canals in Broward County that have been developed to manage local drainage. These are managed by the SFWMD, the County, municipalities, the drainage/water control districts, and homeowner associations. The ultimate goal of canal integration is to utilize this surface water conveyance system as a water resource grid, in order to move water from one part of the County to another, as needed. Activities related to this IWRP component are actually an outgrowth of efforts that occurred prior to the development of the IWRP. Recognizing that there was a relationship between canal water levels and aquifer levels, BCOES had begun

87 67 plans to use the secondary canal systems for aquifer recharge by the early 1970 s. The concept was refined in the 1980 s and 1990 s when pumped recharge was integrated into the existing gravity system. 33 The North Aquifer Drainage Assessment (NADA) was initiated in 1995 as a collaborative effort between the BCDNRP, BCOES, and the SFWMD in response to the SFWMD s request for proposals under the FY 1996 Stormwater Management Partnership Program. The goals of the NADA 34 were to identify, evaluate, and implement alternative water management techniques that would integrate multiple stormwater management objectives such as: Maintaining existing levels of flood control; Minimizing water quality impacts to receiving waters; Maximizing the utilization of storage capacity of the stormwater management system; and, Maximizing recharge to wetlands and the surficial aquifer system. The objective of the NADA was to examine the possibility of moving stored water from the western part of northern Broward County to the eastern part of the County to provide aquifer recharge to critical wellfields and to enhance stormwater storage and distribution while meeting flood protection and water quality requirements. Northern Broward County was chosen as the initial study area due to the considerable knowledge and regulatory control of the BCDNRP and BCOES within the area, although it was intended that the assessment techniques would be transferable to other portions of the County. Changes in land usage had substantially lowered water levels in several portions of the study area, exacerbating the threat of saltwater intrusion and degrading the quality of local wetlands. The management alternatives addressed in the NADA investigated means of optimizing the storage capacity of the conveyance system, maximizing aquifer recharge, sustaining wetlands, and providing mitigation of saltwater intrusion. Data Collection Data Collection, or Phase 1 work of the Canal System Integration Component focused on creating databases for the County s surface water features and related infrastructure. In order to collect the information needed, the County undertook three tasks: Creation of ortho-rectified digital aerial photography for digitizing surface water systems; Development of databases for surface water features, control structures, and culverts; and Expansion of a groundwater level and rainfall monitoring network.

88 68 In the first task, the County entered into an Interlocal Cooperative Agreement with the Broward County Property Appraiser and several municipalities to produce ortho-rectified digital aerial photography of Broward County to more accurately present the spatial location of water features. In the second task, databases were created for surface water features, control structures and culverts, including their physical characteristics and operational criteria. Under a separate agreement, the BCOES contracted with Florida Atlantic University s Department of Geography and Geology to conduct hydrographic surveys of certain water bodies. In the final task under the initial IWRP Cooperative Agreement, the County was provided with funding to upgrade the County s rain gauge and groundwater level monitoring network. The second IWRP Cooperative Agreement focused on additional data collection necessary for completion of the GIS coverages. The SFWMD provided the County with funds to enhance its GIS capabilities and hire interns to aid in data collection. Once the information was collected, GIS databases were created to catalog spatial data, physical characteristics and operational criteria for surface water features, control structures and culverts and a comprehensive GIS coverage of this infrastructure was produced. These databases, which the County maintains and revises as new information is made available, are important for the SFWMD s modeling efforts related to the CERP and LECRWSP projects, as well as for the County s local water resource planning efforts. The information and review of the secondary canal operations have resulted in recommendations for identifying locations for pumps and interconnects between canals. Needs Assessments Secondary canal needs assessments were conducted in conjunction with utility needs for each of the IWRP planning areas and are discussed in the Utility System Integration section in this Chapter. These needs assessments provided recommendations for various drainage basin interconnects and have led to feasibility analyses, design, and construction of a number of secondary canal integration projects under Phase 3 and Phase 4 of the IWRP, discussed in Chapter 5. The Northern Broward County Recharge System: A Model for Secondary Canal Integration and the IWRP Approach The modeling work undertaken as part of the NADA provided support for the County s implementation of the Northern Broward County Recharge System (NBCRS)(Figure 2-10).

89 69 The NBCRS is a network of canals, lakes, pumps, and control structures that allows for the storage of rain runoff and recharge of several wellfields and isolated wetlands. During light to normal wet weather, the control structure gates are raised above the normal control elevations to "capture" the runoff. Then, by opening either the east-west and/or north-south interconnect structures, this water is moved towards the desired areas instead of being discharged to the ocean. During dry weather, pumps can be used to draw water from the SFWMD s Hillsboro Canal. This water can then be diverted to areas in need of additional groundwater recharge or surface water hydration, using the same interconnects. During extreme wet weather, the operation of the canals and control structures can be reversed to provide for flood protection as needed. The construction of secondary canal interconnects and culverts as part of the NBCRS and more effective operational protocols has increased the storage capacity of the canal system, helped to maintain proper control elevations, and provided a means for redirecting surface flows to recharge coastal wellfields, aquifer recharge, and rehydration of urban natural areas. As developed to date, the Northern Broward County Recharge System has demonstrated how secondary canal integration and the integrated approach to water resource planning can work in Broward County. Based on achievements realized through implementation of the Northern Broward County Recharge System, the County has been able to move forward with additional secondary canal integration projects, as discussed in Chapter 5. Natural System Integration Objective The objective of the Natural System Integration component is to identify and meet the water deliveries and elevations of urban natural areas to maintain habitat function and vitality. Background Broward County s development has significantly altered the natural environment from what was formerly a landscape dominated by water and the Everglades to one that now includes an extensively-developed urban area occupying the eastern third of Broward County. West of the WCA levees, the physical environment remains Everglades, but east of the WCA levees, few remnants of this once extensive system can be found. Primary and secondary canal development, along with upland development of roadways, homes, etc. is responsible for isolating urban Broward County s remnant wetlands from their normal hydrological patterns. For some wetlands, this has resulted in wetland vegetation being replaced with upland species. Just as the overall recognition of the importance of wetlands has increased throughout the United States and the world, Broward County has gained greater

90 70 appreciation for the importance of its remaining urban wetlands as both natural systems and wetland recharge zones, and has taken action to preserve and restore them. Broward County has made a substantial financial investment in the natural areas within the urban County through bond issues, park development, and mitigation plans developed by both the former BCEPD s Biological Resources Division and the County s Parks and Recreation Division. However, in order for these natural areas to function as they once did and support the biotic diversity formerly associated with them, it is necessary that certain hydrological conditions be met. While it is unrealistic to expect that these areas can be completely restored, significant progress has been made towards understanding their hydrologic requirements, and in some cases, towards restoring the overall integrity of certain wetlands. Data Collection Under the IWRP planning process, Phase 1 work for the Natural System Integration component identified urban natural areas in the county which were threatened by lowered water levels. Using in-house resources, a natural systems and wetland mitigation GIS coverage was developed by Broward County to help identify biological systems with water needs. Needs Assessments The water needs for five natural areas, representative of Broward County s wetlands were assessed in Phase 2 of the Natural System Integration component. To accomplish this, the County entered into a contract with Hartman and Associates Incorporated, to conduct rehydration pump tests and other studies on hydrologically impacted wetland sites in northern and central Broward County. 35 Beginning in August 2000, pump tests were conducted at Fern Forest Park, Tradewinds Park South, and Turtle Run Environmentally Sensitive Land (ESL), in northern Broward County, and Prospect Road ESL in central Broward County. The pump tests involved pumping water into the wetlands and recording the rate of water rise and decline. Water balance models were constructed for each of the wetlands to: Determine the pumpage rate needed to maintain a specified elevation rate; Determine if the hydrologic conditions of each wetland are sufficiently similar to each other such that one model could be constructed to estimate reasonably well the water requirements for other wetlands in the county; and

91 71 Provide supporting technical documentation to the South Florida Water Management District to apply for a permit to rehydrate and maintain the desired water elevations in selected wetlands. These rehydration tests showed that the leakage of water from the wetlands to the surficial aquifer is highly variable, although a nearly direct connection of the wetland to the surficial aquifer was noted in all wetlands. In addition, the presence or absence of canals and lakes around the wetlands, and the control elevations of these surface water bodies has a great influence on the volume of water that can flow horizontally out of the wetland. Following these initial studies, the County decided to expand the needs assessments for eight additional wetlands impacted by historic development practices, roadway construction, and other drainage alterations. Wetland requirements and specific infrastructure needs were assessed to provide recommended water deliveries for: Alpha 250 Cypress Dome Site Coconut Creek Maple Swamp Site Forman ESL Site Holmberg Road (County Park Sites) Tradewinds ESL Site Tradewinds Park North Site Wiles Road Cypress Dome Site Woodmont Cypress Strand Site Hydrogeologic 36 and hydrologic 37 analyses for each of these wetlands were presented in the Hartman reports. These analyses identified potential sources of supply for rehydration for each wetland site, and the quantity of water required for each site was documented in order to allow the County to apply for water reservation rights from the SFWMD. Preliminary estimates of capital construction costs were also provided. Utility System Integration Objective The primary objectives of the Utility System Integration component of the IWRP are to work with various utilities to determine how operations can be altered within, and integrated between, water treatment plants to prevent movement of the saltwater front through dynamic pumping operations and to improve efficiencies of operations and water use. Background Twenty-five (25) utilities produce water within urbanized Broward County. While each of these utilities has its own distinct service area, they all currently withdraw the vast majority of their raw water from the same source - the Biscayne Aquifer.

92 72 By working together, utilities can ensure that their operations are compatible, that local demand does not exceed availability, and that they are working towards more efficient water management. One of the anticipated outcomes of utility integration was to be two multi-utility operational plans specific to the north-central coastal and southern coastal regions, and the sharing of water resources through the development of interconnects. The north-central region was addressed in a utility needs assessment study 38 which also addressed drainage/water control districts and resulted in the construction of several interconnects, thereby partially satisfying some of the original objectives, while the southern coastal region was addressed in a separate report. 39 The findings of these analyses are discussed in greater detail below. Support for the multi-utility operational approach in south Broward was provided in Recommendation 8 of the LECRWSP, which called for the development of an interagency agreement for the development of an integrated water supply system between the service areas of Hollywood, Hallandale Beach, Dania Beach, Broward County, and possibly, the Seminole Tribe of Florida and other communities. Today, utility integration in the southern part of the County is being addressed through the SFWMD s permitting process. Although the utilities have generally worked independently to address their individual supply and demand needs, through the IWRP process, they have increasingly worked cooperatively, along with the County, to address the larger concerns of local water management in the regional context. Data Collection and Needs Assessments Data collection and needs assessments for the Utility Integration component were conducted concurrently for each of the IWRP planning areas through the preparation of a series of needs assessment studies which evaluated existing potable water sources and recommended strategies to integrate these sources into regional networks. The first study focused on utility needs in northern Broward County, which had previously been identified as an area of concern in the SFWMD s hydrologic models for the Lower East Coast. The County entered into a contract for a Needs Assessment and Option Development Study for the north county utilities to identify opportunities to integrate existing and future infrastructure plans, service area distribution systems and wellfield and canal operational improvements for finished, raw water, and reuse systems. The scope of work for this study called for a series of meetings and workshops to be conducted and a final project list with costs and benefits to be prepared. The contract also required the consultant to perform an assessment which would

93 73 identify existing and future infrastructure plans and recommendations for operational efficiency improvements for the northern coastal utilities. The contract was awarded to Hartman and Associates, Inc. which completed the needs assessment 40 in March The objective of this study was to identify current and future water management and distribution options which would increase the efficiency of utilities in North Broward County to help them meet current and future (through 2010) water needs. Data collection included review and analysis of consumptive use permits, secondary canal system operations, capital improvement plans, daily pumpage records, utility infrastructure, reuse distribution systems and capacity, and available water resources. The study recommended strategies to integrate these systems into a more effective regional network to meet the region s potable water needs and natural system requirements. The investigation revealed that although interconnections were in place between the potable water utilities within the study area, they were largely undersized and that many of the existing interlocal agreements governing the use of these interconnections did not provide for resource sharing. In order to establish a balance amongst the multiple demands on the region s water resources and ensure a long-term supply through the utilization of innovative water resource management strategies and technologies, the study called for: The development of improved interconnections and interlocal bulk sales agreements between the region s utilities; The development of inter-drainage district connections; The incorporation of reclaimed water and canal water for beneficial reuse and recharge programs into water supply programs; The construction of facilities utilizing innovative treatment technologies; The implementation of water conservation plans within the region; The implementation of utility capital improvement plans; and Other recommendations including additional studies to delineate drawdown contours, quantification of irrigation needs, and GIS coverage of water mains. Specifically, the recommendations suggested: 11 finished water interconnects at an estimated cost of $1.82 million 3 reuse facilities expansions at an estimated cost of $10 million 10 additional studies to build a technical basis for the plan at an estimated cost of $1.46 million 5 special utility projects at an estimated cost of about $7 million 5 drainage basin interconnects with 5 recharge/backpump facilities at an estimated cost of $3.75 million

94 74 These recommendations were then brought before the participating utility directors and water managers for their voluntary implementation of the projects. The initial northern Broward needs assessment was followed up with similar studies for the central 41 and southern 42 Broward County areas. Each of these studies attempted to determine the region s potable water needs and natural systems requirements along with the constraints to meeting those needs. The general findings of both of these studies were similar to those identified in the Northern Broward County Assessment. Recommendations in the central Broward study called for eleven (11) stormwater capital improvement projects, including interconnects between drainage districts and canals, and a series of projects to recharge the Prospect Wellfield and Peele-Dixie Wellfield as part of proposed widening of the Florida Turnpike. The southern Broward County study proposed ten (10) stormwater capital improvement projects and reiterated the need for moving forward with Recommendation 8 of the LECRWSP - integration of the water supply system in southeast Broward County. Other special projects included examining the possibility of interconnecting Brian Piccolo Lake to both the C-9 and C-11 canals and the implementation of a saltwater encroachment barrier by the Cities of Dania Beach, Hallandale Beach, and Hollywood. Recommended utility projects are discussed in Chapter 5. Policy Integration Objective The objective for the Policy Integration component of the IWRP is to develop and implement a public outreach plan on local water management and to review comprehensive plans and local ordinances for opportunities to streamline, conserve, optimize, and protect the beneficial uses of water in Broward County. Background Initially called Comprehensive Plan Amendments, the Policy Integration component of the IWRP was originally limited to reviewing comprehensive plans and local ordinances to identify opportunities to implement water resource management concepts. Over time, this component has expanded to encompass the County s broad public outreach efforts related to water conservation, intergovernmental coordination, and partnerships. As Broward County expanded the scope of its Policy Integration component to include outreach and public education, the SFWMD agreed to provide cost-share funding to assist the County in developing a public outreach plan on local water management, recognizing that these efforts would complement their own outreach activities.

95 75 Data Collection and Needs Assessment In 2000, as part of the second IWRP cooperative agreement between the County and the SFWMD, the County was tasked with developing the framework for a public outreach plan and providing recommended formats and content for outreach materials. Each agency provided $50,000 in funding which was used to contract with a consultant who would provide a strategy for public outreach 43. The consultant began by collecting outreach materials from local and regional agencies on water management. Three target audiences or focus groups were then identified to be interviewed regarding perceptions, messages, and methods of water management outreach in Broward County - elementary school teachers, property managers, and homeowners. A series of creative and graphic display messages were presented to the focus groups to facilitate discussion. Results revealed a significant need for education on the structure and function of the local water management system. Each group preferred its own method of communication. Property managers preferred to be reached through technical publications and continuing education credit workshops. Homeowners preferred TV and major magazines for outreach. School teachers were interested in conservation messages but stated that any materials would need to be packaged in a curriculum compatible with standardized test objectives. Water Restrictions - the Need for Policy Integration In August of 2000, during a prolonged dry period in South Florida, the SFWMD became concerned about the water levels in Lake Okeechobee, the main reservoir for South Florida. The lowering of the lake for environmental purposes, coupled with below average rainfall during that wet season, caused the lake levels to drop dramatically. By September 2000, the SFWMD declared a water shortage warning and requested utilities to voluntarily cutback their water usage by 10%. As the lack of rain continued into the fall of 2000, the SFWMD declared a water shortage emergency, imposed restrictions and conservation efforts, and reduced water allocations. Responding to this emergency, the County produced a reference document for the public, elected officials and local code and law enforcement agencies outlining the existing irrigation restrictions in Broward County and its municipalities. 44 This guide identified a wide range of irrigation regulations between different municipalities within Broward County. As a result of this effort, some municipalities adopted the County s standard during water restrictions, although some inconsistencies still remain. Policy Integration Implementation Under Phase 4 of the Policy Integration component, the County has proceeded diligently with implementation of its outreach efforts through a nationally-

96 recognized program, The Broward County Water Matters Program. 45 This program is described further in Chapter 5, which discusses how the water plan components and IWRP development process have led to programs and projects that are implementing the IWRP in Broward County. The review of comprehensive plans remains an important part of the IWRP process. Through this process, recommendations for changes to goals, objectives, and policies concerning water management can occur. For example, as a result of completion of the 10-Year Water Facility Supply Plan (2007), recommendations were made for changes to the County s Comprehensive Plan. Ultimately, it is hoped that these changes may encourage the development of policies and standards for more efficient water management and to reduce the potential for future water shortages in the County, and the overall need for and cost of alternative water supplies. Thus, the IWRP has evolved through a well-developed process that reflects a careful consideration of the unique conditions that influence both the availability of the water resource and the management community that exists in Broward County. This approach addresses all aspects of water management and seeks to identify how, when, and where the resource can be more efficiently managed in order to optimize its potential in maintaining system integrity while providing a high quality resource. In the next Chapter, we will look at how the IWRP is being implemented today and the direction that it is moving. 76

97 77 Chapter 5: Broward s County-wide IWRP Introduction As the County-wide IWRP has developed over time, the benefits of an integrated approach to water resource management have been demonstrated. Projects such as the Northern Broward County Recharge System have been shown to achieve multiple water management objectives with minimal public investment. The IWRP has also demonstrated that an open and participatory governance and coordination process can help to successfully bring a diverse water management community together to address technical and policy issues that extend beyond the borders of their immediate local jurisdictions. Yet, certain challenges remain. Despite, the fact that the County is approaching build-out, the population is expected to continue to increase by 20% by 2025 (Table 5-1). Table 5-1: Population Projections for Broward County Year Population ,745,917 1,753, ,769, ,873, ,996, ,111,448 Concurrent with this growth, the Broward water management community is faced with the challenge of meeting a comparable increase in water demand from 245 MGD (2005) to 284 MGD (or an additional 39 MGD) by 2025, based on the County s population projections and the current per capita rate of consumption. In addition, the implementation of the CERP will require water managers to respond to anticipated changes in the availability of traditional water resources due to modifications in regional and local water management and water policies. Prudent planning also requires that we strive to maintain the same level of service as we prepare to meet projected consumptive and natural system water demands, particularly during extended dry periods and drought, when demands can increase by as much as 30%. While it is estimated that an additional 39 MGD will be needed by 2025, our water needs during a drought may be significantly greater - perhaps 369 MGD (an additional 124 MGD over current demand). Water conservation measures can go far towards reducing our usage.

98 78 The effectiveness of limitations on water usage, including landscape irrigation, cannot be underestimated. During two periods of Phase II water restrictions in 2007 and 2008, savings of 19.8 and 35.7 MGD (8%-15%) over pre-restriction water usage was realized. This Chapter discusses how the IWRP is currently being implemented to address the County s water needs over the next ten years, while providing a general strategy for meeting longer-term demands. This information aids policy makers, planners, and water managers in their efforts to: Promote conservation of water resources; Identify opportunities for projects that save water and/or improve efficiency in water management, or otherwise produce water; Conceptualize and test water management scenarios under varying conditions; Develop effective strategies for distributing water to meet local and regional needs; and Evaluate the pros and cons of various alternative water resource projects. Planning for the Next Ten Years While integrated water resources planning in Broward County encompasses a wide range of issues as has been discussed, conceptually, the County-wide IWRP is envisioned as consisting primarily of three tiers: a series of urban water management strategies, adaptive management tools, and public outreach (Figure 5-1). Over the next ten years, the County s water planning efforts will continue to build on the progress made to date and will keep its focus on urban water resource management strategies that optimize the use of the County s secondary canal network as a surface conveyance and aquifer recharge system and opportunities for developing regional water supply solutions. At the same time, efforts will continue to include promotion of conservation as the most cost-effective means of meeting part of our future water demands. Beyond conservation and canal integration, the County will also move forward during this planning period to explore alternative water sources that can meet multi-jurisdictional needs. This would include sub-regional Aquifer Storage and Recovery (ASR) as a means to provide additional storage for our seasonallyabundant rainfall, wastewater reuse, and the pursuit of alternative source waters for canal and aquifer recharge. The recent 2008 legislation that requires the elimination of wastewater discharges through the County s ocean outfalls by 2025 will certainly drive new planning efforts as we seek to identify how to best reuse sixty percent of the volume, based on the annual average amount of wastewater discharged during

99 79 Figure 5-1: The County-wide Integrated Water Resource Plan is an adaptive management plan that responds to changes in policies and the environment. Generally, as we move from rainfall-based strategies to those that are alternative-sourced, these strategies increase in cost and technical sophistication (Figure 5-2). Rain-Sourced Alternative-Sourced $$ Cost $$ URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Figure 5-2: Over the next ten years, the County s water programs will focus on optimizing the water resources that are derived from rain and that can be developed cost-efficiently through inter-governmental coordination and the exploration of alternative water supplies to meet longterm water supply needs. Technical investigations will also explore opportunities to expand wellfield operations with Biscayne withdrawals through offsets provided through indirect wellfield recharge. It is hoped that, together, these programs will meet all of the needs of the County s water users for this period and beyond.

100 80 In summary, the County will begin to shift its focus to water development strategies that are not rain-sourced, but rather based on creating new water from technologically-based alternative sources. These are likely to include more costly alternatives such as advanced wastewater treatment or reuse, reverse osmosis of Floridan Aquifer water, or possibly, even seawater desalinization, but will not exclude the continued exploration for more affordable options such as stormwater reuse where supplies are available. In addition to the greater costs associated with these strategies, development of these alternatives will require greater involvement by utilities to address individual service area needs. Implementation of the IWRP As the IWRP is being implemented today, it focuses on urban resource management strategies that are based on two complementary approaches - a conservation approach which is implemented and pursued through a number of conservation initiatives; and, a technical approach, designed to guide efforts relating to the operation and maintenance of existing resources and the development of alternative water supplies. As noted previously, by optimizing and more wisely using all of our existing water resources, we will be better able to stretch our existing supplies while working on the development of alternative sources. These efforts are discussed in detail in this Chapter. The IWRP utilizes an adaptive management approach to ensure that the strategies being pursued are environmentally sound and have a strong technical basis. This approach includes a water resource assessment process which incorporates needs assessments designed to identify, evaluate, and re-evaluate user needs; a modeling component to assess viability; and, a monitoring component designed to assess long-term impacts and results. These components are integral to the IWRP s urban water resource management strategies and provide the basis for better decision-making through the governance and coordination process discussed in Chapter 3. It is through this process that changes in policies are addressed, actions are coordinated, and programs and projects are moved forward. Public outreach forms a third major tier of the IWRP. Through programs, partnerships, and resources such as printed materials and internet-based content, the County is reaching out to its residents and other stakeholders to increase the public s understanding of our water management system and shared challenges to ensure community coordination and participation so that we will move forward in the same direction.

101 Water Resource Assessments Guide Adaptive Management Approach ADAPTIVE MANAGEMENT WATER RESOURCE ASSESSMENT Needs Assessments Monitoring Modeling GOVERNANCE & COORDINATION Governance Partners Coordination Mechanisms Projects Assessing our water resources and user needs is a fundamental part of the County s water development programs and will continue to guide local planning efforts. The water resource assessment process will help guide planning decisions based on changes in local conditions and water resource availability. Water resource assessments include the measurement, collection, and analysis of relevant user needs and water quantity and quality parameters for the purposes of effective development and management of our water resources. It provides the basis for: planning and implementation, operation, regulation, monitoring, and maintenance of water resources projects; decision-making on water resources development proposals; and formulation of policies, strategies, and legislation related to water resources development and management. The IWRP s water resource assessment process consists of three complementary components: 1) Needs assessments to identify and assess the needs of people and natural systems, to measure current conditions, and to identify where improvements can be made; 2) Monitoring to describe or measure hydrological conditions and the results of various water management activities; and, 3) Modeling to predict or forecast the potential impacts of existing and future water resource development alternatives on local and regional resources. Needs Assessments In order to design and then assess the effectiveness of water development programs, we must have a thorough understanding of our needs. As described in Chapter 4, during the IWRP planning process, needs assessments were conducted for urban wetlands, utilities, and secondary canals. These assessments led to the design and development of projects to rehydrate wetlands and better integrate the County s secondary canal system. Historically, it is the water required for public water supply that has driven water development projects. Given the rapid rate of population growth that Broward has experienced until recently, and the fact that substantial growth is still 81

102 82 projected during the next twenty years, these needs assessments must constantly be undertaken to ensure that we are planning adequately for growth. An example of the need for constant re-evaluation is the analysis of water supply facility needs for the unincorporated parts of the County and the BCWWS service area completed in February 2004 as part of the Broward County 10-Year Water Supply Facilities Workplan. This study, which was prepared by the County in conjunction with five major water providers was distinct from previous analyses in that it assessed the future water demands of these water providers and their ability to meet future water demands in unincorporated Broward County based on population projections, facility capacity, and CUPs. Based on predicted population growth and the per capita rate of water consumption, estimated to be 161 gallons per day in 2000, the report found that four of five utilities would be unable to meet demands based on their CUP. Furthermore, the report identified a potential water deficit of approximately 100 MGD over permitted (as of December 2003) withdrawals by Since this Workplan was completed, new limiting conditions have evolved. The current SFWMD policy limits withdrawals from the Biscayne Aquifer to demands realized prior to April 2006, further changing the planning environment. The early needs assessments prepared as part of Phase 2 of the IWRP identified potential opportunities for water sharing to meet the needs of various utilities, primarily through interconnections. However, these projects were never pursued due to hydraulic and other limitations associated with existing infrastructure. Needs assessments performed today can also help quantify the necessary amounts of water required to achieve desired rates and levels of aquifer recharge, which in turn may provide an offset to withdrawals, a major limitation facing utilities today. We can then identify projects capable of producing the desired volume of water and within the necessary timeframe. This analysis is currently underway as part of the County s development of a County-wide Water Management Master Plan. By necessity, the needs assessment process is iterative. It drives the dynamic of the IWRP and is a precursor to adapting management measures necessary to address changes associated with local water demands and resource availability. As new water policies and regional planning efforts result in changes to our water budget, needs assessments will continue to provide a means by which we can remain abreast of any discrepancies between supply and demand. Monitoring Another key component of the water assessment process is monitoring. Monitoring of the quantity and quality of the County s water resources is essential to ensuring successful water management programs. Monitoring enables water managers to verify that operations are producing the desired result, and if not, to adjust or refocus the approach.

103 83 The task of tracking changes can often be difficult and distinguishing changes caused by water management operations versus those explained by natural variations can be challenging, requiring extensive data sets. An effective monitoring program provides the data necessary to assess project status and trends. This information allows water managers to evaluate the impacts of their management activities, indicating when goals have been met, if actions should continue, and whether other efforts are warranted. Figure 5-5: Telemetry sites, such as this one in northern Broward County can measure water levels remotely. Source: BCWWS Continued and enhanced monitoring of rainfall, surface water levels (Figure 5-5), and groundwater, will be essential to developing management plans for the County s water resources. As noted earlier, South Florida s hydrology is extremely dependent upon rainfall and the maintenance of adequate groundwater levels to support people and nature. In addition to the great seasonal variability in rainfall experienced in south Florida, significant geographic variability is observed as well. It is not unusual that it may be raining on one side of a street and dry on the other. This variability is apparent in annual rainfall data from different rain gauge stations used for monitoring rainfall located throughout the County (see Table 5-1). This data provides a good example of the type of rainfall variability observed in urban Broward County. Table 5-1: Annual rainfall (in inches) observed over a four year period at 11 rain gauges in Broward County Site Average Hillsboro Pineland ESL (Coconut Creek) Coral Springs WTP Hampton Pines Park (North Lauderdale) NRWWTP (Pompano) Miramar Flamingo Park WTP 2A (Pompano Beach) Brian Piccolo Park Ft. Lauderdale-Broadview Park Hollywood WTP Weston

104 84 Groundwater monitoring also allows us to assess the impacts of wellfield operations on groundwater levels and the interaction between urban and regional water management. While there are several hundred groundwater monitoring wells within the County, many of the wells have been neglected and/or abandoned. Therefore, monitoring capabilities are currently limited to the number of stations that are actively being monitored. As part of a comprehensive monitoring program, the County s groundwater monitoring programs monitor ground water levels, chloride concentrations, and conductivity. In FY 2005, Broward County initiated a project to review existing hydrologic monitoring activities in urban Broward County with emphasis on the location, frequency and type of data collection with special interest in stations located near deepwater lakes. Some of these lakes are former limestone mining pits and others are lakes constructed by developers during construction of housing communities. These lakes might be used to provide additional freshwater storage, mitigate flooding, and augment groundwater recharge. Initial efforts included the examination of existing surface water and groundwater monitoring databases and data from water control districts and utilities to: Identify and classify potential recharge lakes; Develop water budget data for recharge lakes; Identify existing and potential locations for wetland water level monitoring stations; Identify areas most prone to flooding, and existing and potential locations for monitoring wells in flood prone areas; and Identify where new canal stage monitoring stations are needed. The ultimate goals of this project were to identify gaps in the existing monitoring system, and to address deficiencies through the addition of supplemental stations. Ultimately, these data will be used to enhance the current monitoring system to provide water managers with data demonstrating the effects of future infrastructure and water management operations on hydrologic features and flood control. Additionally, this will allow the County to better monitor any changes in hydrology in response to CERP projects or changes in regional water management operations. Modeling The third component of the County s water resource assessment process is modeling. Computer modeling plays an essential role in the County s technical strategy and overall planning for, and management of, local water resources. Modeling allows the prediction, with some level of certainty, of the impacts of various water management scenarios. The County s numerical predictive models allow simulation of the effects of various parameters such as rainfall, pumping, additional control structures, recharge strategies, and surface water conveyance on surface water and

105 85 groundwater flows. The results of such analyses allow the development of the best possible strategies for groundwater and surface water management and the prediction of aquifer-surface water interactions. Predictive modeling is also used to develop water budgets and assess various water management alternatives and scenarios. Development of the County s hydrologic modeling activities is an outgrowth of regional modeling efforts of the SFWMD. The regional models used by the SFWMD are appropriate for analyzing water management in the large geographic areas under the SFWMD s jurisdiction; however, given their scale, they do not provide sufficient information for assessing the various projects to be implemented at a local level. Broward County s needs required a more refined approach to the water management options available. Consequently, the County approached the SFWMD about pursuing a complementary modeling effort. As discussed earlier, the County completed the development of a hydrologic model 46 of the north County area in the year 2000 and applied it to alternatives involving canal operations and pumping from the Hillsboro Canal. The NADA was completed for approximately $245,000. The SFWMD provided $100,000 in support, matched by Broward County with $10,000 in funds and approximately $135,000 of in-kind services. The NADA used a then-innovative linkage of a surface water model (XPSWMM) to a groundwater model (MODFLOW) and has been used to simulate stormwater and groundwater management practices, develop recommendations for infrastructure improvements, and examine alternatives for managing water resources during periods of water restriction. Based on the successful experience with the NADA model, the County was encouraged to pursue the development of a similar model for central Broward County. The Central Aquifer Drainage Assessment (CADA) 47 was developed using the most advanced model technology - the MIKE SHE/MIKE 11 model series developed by the Danish Hydrologic Institute (DHI), which allows for full integration of surface and groundwater components, rather than mere linkage. The CADA was developed with funding of $200,000 from the SFWMD along with in-kind services provided by Broward County. Under the CADA, five management scenario simulations were evaluated. The baseline condition was used as a reference for comparing the scenarios: Dixie Wellfield recharge scheme which considered diversion of water from C-13 via the C-12 to Fort Lauderdale Country Club lakes for the purpose of improving aquifer recharge near the Dixie Wellfield; Prospect Wellfield recharge considered the connection of Prospect and Gator Lakes to the existing wellfield recharge system for the purpose of evaluating the benefits of additional recharge;

106 86 North Fork Augmentation considered diversion of water from C-13 to the North Fork of the New River (C-12) for the purpose of providing additional freshwater flow in the North Fork for ecological benefits; Aquifer Storage and Recovery for the purpose of reducing dry season pumpage, while meeting peak demands through Aquifer Storage & Recovery; and Plantation Acres Flooding for the purpose of minimizing flooding in Plantation Acres. The integrated MIKE SHE/MIKE 11 hydrologic modeling system has been utilized by the County for addressing various water resource management scenarios. MIKE SHE/MIKE 11 is a valuable tool for improved understanding of related processes and feedback mechanisms between different components of the hydrologic cycle. The MIKE series modeling approach is a significant advance over the XPSWMM/MODFLOW approach because it treats the groundwater and surface water as a single hydrologic system and maintains a balanced water budget for the entire system, whereas the XPSWMM/MODFLOW model links surface water and groundwater systems without necessarily requiring a balanced water budget for the entire system, causing uncertainty regarding the accuracy of some results. Through funding of $250,000 from the SFWMD, the South Aquifer Drainage Assessment (SADA), which also uses MIKE SHE/MIKE 11 model technology, expands the County s hydrologic modeling effort to the south part of the County to include the C-9, C-10, and C-11 basins 48. This model incorporates the most current ground elevation data and data from an enhanced rain gauge network. The model will be used to examine an area prone to flooding and will be used to develop alternative water management strategies to help mitigate flooding in this area. In 2005, the County replaced the NADA XPSWMM/MODFLOW model with a MIKE SHE/MIKE 11 model, and combined and improved the three MIKE SHE/MIKE 11 models (northern, central, and southern) to provide a seamless integrated surface water and groundwater model for all of the urban area of Broward County. In 2007, the County entered into a contract with DHI, Inc. to use this existing integrated surface water and groundwater model to develop a County-wide Water Management Masterplan to meet the County s water supply needs and water resource objectives through This effort is being used to evaluate the technical feasibility, water supply benefits, and infrastructure needed to deliver alternative source water to the County s canal system to augment and potentially offset regional water deliveries needed to maintain canal levels, rehydrate natural areas, and provide aquifer recharge. Other water management alternatives being examined include the capture of additional rainfall that is currently discharged to the ocean, and development of Floridan Aquifer wells

107 87 proposed or being constructed by various utilities. The Masterplan may also examine the reuse of wastewater currently being discharged through the two ocean outfalls in Broward County. Recently, the NADA model, discussed in Chapter 4, was refined to make it compatible with the hydrologic models developed for Central and South Broward County, thereby minimizing the errors associated with lack of an overall or balanced water budget. The Broward Integrated Hydrologic Model (Figure 5-6) integrates all areas of the County into a single seamless model. The model is compatible with the SFWMD s regional South Florida Water Management Model and their Figure 5-6: Conceptualized graphic of an Integrated Hydrologic Model Source: SFWMD Broward County Groundwater Model, which are being used for hydrologic simulations related to the CERP and the LECWSP. Development of the County s hydrologic model was funded at a cost of almost $700,000 with funding from the SFWMD providing for two-thirds of the project costs. Future modeling work is expected to address saltwater intrusion in greater detail and the impact of reduced freshwater discharges from the canals as a result of the ability to capture more rainfall within the secondary canal system. The County s model is now being applied in development of a County-wide Water Management Master Plan. The 3-year project, with a $1 million budget funded by Broward County, integrates current water supply planning efforts and plans for AWS development county-wide with analysis of surface water, groundwater, and ties into the Floridan Aquifer Model. It will identify projects, management strategies, timelines, planning level cost estimates for constructing utility specific and regional projects as part of County-wide strategy for developing resources needed to meet 2025 demands and comply with the Regional Water Availability Rule.

108 88 Modeling for Climate Change A variable-density groundwater flow and solute transport model or saltwater intrusion model is currently being developed as a joint project between Broward County and the United States Geological Survey (USGS). The model is being developed to simulate the historical pattern of saltwater intrusion in response to drainage and wetland reclamation, groundwater withdrawals, rainfall and water management practices. The objective of this model is to determine the extent to which climatologic and operational factors influence saltwater intrusion and how we might mitigate these impacts through modified water management strategies. Phase I, which is a study of northeastern Broward County is being conducted at a cost of $500,000, cost-shared equally between the County and USGS. The County then desires to extend this model to the entire coastline. Phase II (central Broward) and Phase III (south Broward) studies will follow at a cost of $500,000 each, providing funding is included in future budgets. The model is expected to eventually tie into the existing County-wide Integrated Hydrologic Model. These studies will allow the County to better manage its existing resources, particularly in the face of drought and rising sea level. Water budgets developed for urban Broward County using the South Florida Water Management Model developed as part of the CERP process show that under normal rainfall conditions, thirty-one inches (average across the total area of urban Broward County), or 713 million gallons per day (MGD), are currently discharged to tide on an average annual basis. Most of this discharge is from local rainfall. Similar water budgets derived from modeling efforts also show that after the scheduled completion of all CERP projects in 2050, there will be an average of 23 inches, or 529 MGD, discharged to tide. It is projected that even during a 1-in-10 year drought, eight inches, or 184 MGD, will be discharged to tide. While some amount of this water must continue to be sent to tide to maintain a healthy estuarine condition, it is apparent from analyses that some of this water could be captured and used to meet the County s future needs. Based on the data from these water budgets, the County is pursuing water development programs aimed at the increased capture, storage, and utilization of local rainfall before it is discharged to the ocean. These water budgets provide evidence that there are opportunities to meet some portion of future demands through local water that is currently available and expected to be available post- CERP. This approach is also intended to produce significant cost savings over time, and fits into the County s original strategy to focus on immediate low-cost options that could produce water today while planning for the development of alternative source waters for canal recharge or potable systems. The IWRP is focused on strategies to help meet the anticipated 2025 deficit of MGD. While it is possible that conservation efforts, including limitations on

109 89 irrigation, might allow us to meet much of this demand, it is also recognized that the additional demands will need to be met by other sources. Clearly, each of the water development programs being pursued or explored under the IWRP has different costs of development and implementation. While the exact costs are not yet known, it has been estimated that the cost of developing approximately 100 MGD of water is between $500 million to $1 billion. Therefore, by seeking opportunities to further take advantage of our abundant rainfall, the County is wisely pursuing those alternatives that have the lowest developmental costs and significant potential for meeting user needs. Our Urban Water Resource Management Strategies Meeting our urban water resource needs requires that we pursue a number of options ranging from simple conservation to make our existing resources go further, to more technical strategies designed to create new water. Conservation URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Water conservation programs constitute the most cost-effective and immediate means of reducing Broward County s urban water demands and offer an alternative to more costly water development programs. It is often said that the cheapest gallon of water is the one that is not used. Water conservation is an essential part of the County s plan to help achieve the long-term sustainability of local water supplies and is integral to the success of the IWRP. Conservation demonstrates stewardship of our resources, and provides long-term cost savings for local users. Broward County has implemented an extensive water conservation program to reduce water consumption both indoors and outdoors. Within the County s Comprehensive Plan, numerous water conservation-related objectives and policies have been outlined as a framework for ensuring the conservation and protection of urban water resources and the Everglades. These policies are supported by the Broward County Code of Ordinances, which require and mandate certain conservation practices within the County and by the Florida Building Code, such as the installation of certain low flow fixtures and rain shutoff devices on irrigation systems. A significant focus of the County s water conservation efforts is directed towards educating Broward County residents about their role in the overall water management system and what they can do to protect water quality and quantity.

110 90 Over the next ten years, the County s conservation strategy will focus on ways in which per capita water demands can be reduced. A primary focal point will be on reducing the demand for water used for landscape irrigation, as it is estimated that 50% of our potable water is used for this purpose. By simply improving efficiencies and maintenance of irrigation systems and working to instill minor behavioral changes in landscaping practices, such as plant selection and the frequency of watering, significant water savings can be realized. Mandatory water restrictions, necessitated by recent droughts, have demonstrated savings of fifteen percent or greater over pre-drought usage. Another benefit of implementing these changes will be improved water quality as proper irrigation practices result in reduced runoff, and consequently reduced pollutant loads (i.e., fertilizers, pesticides) to the environment. The box on the following page presents the Conservation goals and strategies proposed for the planning period. Broward County s Water Conservation Initiatives Implementation of the County s conservation strategy is achieved through numerous water conservation outreach and education initiatives that are part of the umbrella Water Matters campaign. These initiatives, discussed in detail below, are aimed at both general audiences and target groups such as homeowners, homeowner associations, landscape professionals, property managers, policy makers, and children and include: NatureScape Broward; Know the Flow; NatureScape Irrigation Service; Water Matters Day; IWRP outreach; and Broward schools partnership. These programs are discussed below. WATER MATTERS As mentioned, Broward County s Comprehensive Plan requires the development of a program to promote conservation of water resources. Under the Water Matters initiative, the County has implemented a formal water conservation education and outreach program to better educate residents about the relationship between our daily activities and

111 91 Conservation Goal : Achieve 10.3 MGD of water savings by 2019 through implementation of water conservation programs. Background: As discussed elsewhere, conservation is the most cost-effective and immediate means of reducing Broward County s urban demands on the Biscayne Aquifer. While it has been estimated that as much as 50% of Broward County s residential water demand is for irrigation, for purposes of setting a conservation goal for 2019, a more conservative figure was used. It was assumed that, in the absence of any conservation measures, a minimum of 20%, or 69 MGD of the 343 MGD demand projected for 2019 (based on LEC Water Supply Plan Update projections, as interpolated) would be used for outdoor irrigation and that conservation measures might produce a 15% decrease in this demand. The conservation goal does not reflect additional savings that might be realized through indoor conservation programs or irrigation restrictions driven by the State and individual water utilities. Strategy: The strategy for meeting this goal includes a multi-pronged approach focusing on education and outdoor conservation programs targeted at municipal properties and homeowners, property managers, and landscape professionals. A number of these programs are currently being implemented. Provide a minimum of 10 Know-the-Flow Programs annually Hold Water Matters Day community event annually Conduct 156 NatureScape Irrigation Service evaluations in cooperation with municipal partners annually Conduct 75 NatureScape Irrigation Service evaluations in the County s water service areas annually Certify 300 NatureScape properties per year. Work with the School Board of Broward County to reduce water usage at school facilities Promote information on landscape best management practices to multiple cultures within the community Document actual water savings from implementation of recommendations of NatureScape Irrigation Service and publish results annually Lead Agency: Broward County Potential/Expected Partners: Municipalities, Utilities, Water Control/Drainage Districts, SFWMD, School Board of Broward County, and other stakeholders Cost: $330,000 annually, $3,300,000 FY 2009-FY 2019 the effects on our natural resources, thereby fostering and encouraging greater environmental stewardship. The Water Matters program imparts the message that Broward County residents and homeowners can make a big difference in the

112 92 quality, quantity, and future availability of water in Broward County and in support of Everglades restoration. The Water Matters initiative, launched in October 2002, is unique from other water conservation programs in that it not only considers water conservation strategies to be employed inside the home, but puts greater emphasis on opportunities for water conservation in the homeowner s backyard, where it is estimated that up to 50% of household water consumption in Broward County occurs. The theme for this initiative is Water for Everyone. People. Plants. Animals. Within the Water Matters program, a number of outreach programs have been developed which are implemented County-wide and in partnerships with utilities, special districts, the SFWMD, non-profit organizations, and other County agencies. These include NatureScape Broward, Know the Flow, and the NatureScape Irrigation Service. The County also sponsors an annual event for the general public, Water Matters Day, which promotes responsible use of water resources and is designed to better educate homeowners on their role in improving the quality and quantity of local water resources through the use of best management practices as part of their daily activities, such as creating environmentally-friendly NatureScapes in their backyards. To help the public access information, the campaign has produced public service announcements for radio, TV and newspaper promotion. The campaign s brochures and the Water Matters website 49 are filled with information on what citizens can do. In FY 2004, the County s outreach plan budget was expanded to $250,000 which was cost shared 50/50 with the SFWMD. One of the major focuses of the FY 2004 Water Matters outreach program was to work with businesses, industries, and/or properties to develop a number of model water conservation projects to demonstrate how water savings can be realized by implementing some relatively easy changes in management practices in conjunction with installation of waterconserving devices. FY activities focused on providing web-based information on NatureScape Broward to a wider audience with the goal of engaging individuals who may need assistance in their landscape design, but may not have the time to participate in formal classes. In addition, a NatureScape Makeover contest was held and one lucky property owner received a landscape makeover which resulted in the creation of a model NatureScape. Beginning in FY 2007, activities have focused on working with the School Board of Broward County to develop model school facilities, incorporating water conservation improvements, learning gardens, and implementing NatureScape landscaping principles. Other efforts have included providing outreach to the

113 93 business community and policy makers to encourage increased conservation and partnerships for addressing our regional water issues. Educational internet content on the IWRP, Know the Flow, and Water Matters programs has been posted on the County s website. The Water Matters program will continue to be an integral IWRP component to educate citizens and provide outreach to target groups of water users. NATURESCAPE BROWARD NatureScape Broward is a Water Matters program designed to help people learn about, create, and maintain attractive, low maintenance, low impact, healthy landscapes that reflect and help protect Florida s natural resources. NatureScapes are Florida-Friendly yards and landscapes that: Conserve water by using native and other drought-resistant plants; Reduce stormwater contamination caused by pesticides and fertilizers; Use integrated pest control practices; Provide food, water and shelter for resident and migrating wildlife; and Recycle yard waste into mulch and compost The programmatic goal of NatureScape Broward is to: Protect water quality and quantity,and create wildlife habitat through appropriate landscaping practices, the prudent use of our water resources, and the planting of native, non-invasive, and other drought tolerant plants in Broward County. A number of themes are incorporated into the NatureScape Broward program. Right Plant, Right Place stresses the importance of ensuring that plants are selected and planted in appropriate locations based on their intended function and growth requirements. Get the Water Right encourages homeowners to understand the irrigation requirements of their yards. In conjunction with this theme, a companion brochure on Landscape Best Management Practices has been developed to discuss the importance of best management practices and provide homeowners with tips on irrigation, stormwater management, fertilizer application, vegetation management, and NatureScaping. NatureScape Broward programs are offered through regularly scheduled classes and at the request of interested groups, such as garden clubs and community associations. As a result of this initiative, over 2,500 backyards, schoolyards, workplaces, public properties, and homeowner communities have been certified as

114 94 NatureScapes in Broward County to date. This effort resulted in the County s designation in October 2005 as a Community Wildlife Habitat by the National Wildlife Federation, the first County nationwide to achieve this status. The County continues to support certification of Broward cities as Community Wildlife Habitats. Five cities have achieved this designation to date, and several other municipalities are also pursuing this certification. KNOW THE FLOW Another program under the Water Matters initiative is Know the Flow, a water management course presented monthly and geared towards the thousands of licensed property managers in Broward County. The Know the Flow program encourages property managers and landscape professionals to adopt environmentally sound practices; increase their knowledge of proper maintenance of stormwater systems; and, provides the tools necessary to implement environmentally sound landscape practices in support of the conservation and protection of local water resources. The Know the Flow course was developed as a cooperative project between BCEPD, Broward County Extension Education/University of Florida Institute of Food and Agricultural Sciences, the South Florida Water Management District, and the Central Broward Water Control District. Today, the program is delivered in partnership with the South Florida Water Management District. The four-hour course is presented in four parts: South Florida s Natural History - this section discusses the Natural Everglades that once occupied much of the area that is now urbanized in Broward County and presents an overview of the climate, geology, and the history of primary drainage projects. Managing South Florida s Water - this section provides information on Florida Water law; the missions and responsibilities of water management entities; county services; and, property owner responsibilities. Managing your Neighborhood Water Management System - this section focuses on the importance of maintaining the tertiary drainage system and presents the concepts of control elevation, first flush, conservation, and detention and retention as they relate to flood protection, water supply, water quality, and environmental enhancement. Landscape Best Management Practices - this section presents turfgrass and landscape best management practices, including proper irrigation practices, fertilizer selection and application, integrated pest management, stormwater management systems, and, NatureScape Broward. Property owners that participate in Know the Flow are eligible for four continuing education credits in the subject of Operation of the Community Association s

115 95 Physical Property. Landscape professionals with a pesticide applicator license are also eligible for continuing education credits. An abbreviated Know the Flow presentation is also available for community groups. NATURESCAPE IRRIGATION SERVICE In 2005, Broward County launched the NatureScape Irrigation Service (NIS), a conservation-based technical service to further reduce water used for irrigation. Based on both the success of the Mobile Irrigation Lab (MIL) approach (discussed below) and a perceived need to expand this type of service to a greater segment of the community, two NIS labs are being operated through the Water Resources Policy & Planning Section with financial support from BCWWS and 22 other water utilities. The NIS is focused on larger properties where potential water savings are greatest, and provides technical assistance on Florida-friendly landscaping. In its first two years of operations, the NIS conducted 536 evaluations resulting in savings of over 350 million gallons per year and an average reduction of 28% in water usage on properties evaluated. The MIL concept was developed to help people conserve water, save money, and protect water quality. MIL staff will evaluate the performance of individual or community irrigation systems and provide specific information on system deficiencies, water conservation, and landscape best management practices. Technicians take samples of the soil to determine the moisture level and rooting depths in a homeowner or property manager s lawn. They also take water measurements from individual irrigation systems to determine the uniformity of water distribution. After all of the information is collected, MIL operators use it to quantify current water consumption and estimate the water savings that would be possible by implementing operational or equipment modifications, many of which are often very simple and cost-effective. Figure 5-3: Water Matters Day has featured a native tree give-away WATER MATTERS DAY Water Matters Day, an annual event held in the spring, is another means of providing the County s residents with educational information underscoring the importance of properly managing water resources through irrigation maintenance, landscaping techniques, and conservation efforts. This educational event focuses on water conservation, pollution abatement, and personal stewardship and couples hands-on activities with entertainment, environmental experts, and family fun. Water Matters Day features a number of yard maintenance and water education workshops. In addition, after visiting a number

116 96 of educational exhibits, residents are eligible to receive south Florida-friendly trees and plants (Figure 5-3). Approximately 3,000 native trees and plants have been given away each year. Over the seven years ( ) that Water Matters Day has been held, over 19,700 people have attended this annual event. Each year, approximately exhibitors have shared information about their activities which directly support water conservation, water quality protection, best landscape management practices, and native landscaping (Figure 5-4). Sponsors have included the SFWMD, water utilities, municipalities, environmental groups, and industry. Figure 5-4: Education on conserving our water resources is the focus of Water Matters Day UTILITY CONSERVATION PROGRAMS In addition to the County-wide efforts being undertaken to educate the public about the importance of water conservation, water utilities are in the process of developing their own conservation programs under a statewide initiative. As the SFWMD considers renewal of Consumptive Use Permits (CUPs) for the local utilities, there is an increasing effort to require conditions for meaningful conservation and reuse measures. Future conservation strategies are expected to be driven by the water conservation initiative of the Florida Department of Environmental Protection (FDEP), which was established in response to the 2001 drought. This initiative was an open process where FDEP, in close coordination with the state s five water management districts, facilitated public meetings to develop specific water conservation recommendations. In February 2004, FDEP, the state water management districts, and utility representatives signed a Joint Statement of Commitment for the Development and Implementation of a Statewide Comprehensive Water Conservation Program for Public Water Supply to cooperatively develop a work plan 50 which would include recommendations for: Developing standardized definitions and performance measures; Establishing a clearinghouse for water conservation; Developing and implementing a standardized water conservation planning process for utilities; Developing and maintaining a Florida-specific water conservation guidance document; and Implementing pilot applications through cooperative agreements with volunteer utilities.

117 97 In June, 2004, former Governor Jeb Bush signed into a law stating that the overall water conservation goal of the State is to prevent and reduce wasteful, uneconomical, impractical, or unreasonable use of water resources and which emphasized goal-based, accountable, tailored, and measurable water conservation programs for public water supply. The FDEP entered into a contract with a private consulting firm to develop a guide which is an interactive web-based application (software and database) to aid utilities in developing utility-specific conservation goals, selecting best management practices to meet those goals, measuring and reporting results, and adjusting their conservation programs as needed to better meet conservation goals. This guide has now been turned over to the Conserve Florida Clearinghouse at the University of Florida ( whose mission is to develop collaborative relationships with related programs, and to collect, analyze and make available reliable information and technical assistance to public water supply utilities and water managers for use in developing effective and efficient water conservation programs. The BCWWS has implemented a water conservation plan as required in their CUPs from the SFWMD. This active conservation program, which has been in place since 1991, includes the following: A progressive rate structure which includes a three tier structure for residential users and a two tier structure for commercial and irrigation users. Automatic tier adjustments are imposed for formally declared water restrictions (Chapter 34, Broward County Code of Ordinances, Article III). A leak detection program utilizing surveillance techniques, certification and calibration of water meters to reduce water losses. Production and distribution of water conservation flyers and brochures to the public and hosting of conservation contests throughout the Broward County elementary school system. Support for a County-operated NatureScape Irrigation Lab within their service areas. Plans to prepare water use profiles for the BCWWS service area customers including demographic data, customer class, land use, rate profiles, usage patterns, and seasonal variations. Conservation measures have also been adopted by the Broward County Board of County Commissioners. These include:

118 98 A County-wide ordinance limiting hours of irrigation from 5:00 P.M. to 9:00 A.M. (Chapter 36, Broward County Code of Ordinances, Article II) A County-wide ordinance adopting the principles of Xeriscape (Chapter 39, Broward County Code of Ordinances, Article VIII) A County-wide ordinance adopting the South Florida Building Code which requires water conservation fixtures and low flow volume irrigation (Chapters 5 and 39, Broward County Code of Ordinances, Article III) A County-wide ordinance requiring the installation of rain sensor devices on all irrigation systems installed after May 1, 1991 (Chapter 39, Broward County Code of Ordinances, Article VII). The County s Comprehensive Plan provides that the BCWWS continue to implement a year-round public information and education program promoting water conservation. To support this policy, the BCWWS distributes an annual Customer Confidence Report to all its retail users to provide a summary of water quality conditions and encourage water conservation. In addition, the BCWWS distributes flyers and brochures providing water conservation information to its customers and conducts presentations to area schools year-round. Tours of water treatment plants are offered. The BCWWS is currently evaluating the feasibility of implementing additional programs to increase conservation throughout the BCWWS service areas. Broward County s other utilities have also adopted conservation plans as a result of similar obligations under their CUPs and several are providing financial support to the County for the NatureScape Irrigation Service. In addition, the County recognizes the need for and the benefits of a County-wide water conservation incentives program, and is pursuing such a strategy with willing partner municipalities and their water providers. The objectives of the program are to: Encourage a stronger water conservation ethic among water users through increased public education and outreach, and Provide incentives and resources to residents for realizing significant water savings through plumbing retrofits. Technical Strategies While an effective conservation strategy can help us meet a portion of our expected future water demand, it alone may not be able to help us meet all of this demand. The County s IWRP technical strategies are focused on making more water available through several water development strategies. Some of these are focused on taking advantage of our local and regional rainfall, including secondary canal integration/stormwater reuse; natural systems rehydration; and sub-regional aquifer storage and recovery (ASR). Other strategies will require the development of new water supplies with higher levels of treatment. These

119 99 include expansion of new resources and application of new treatment technologies, including membrane treatment of wastewater for reuse, treatment of brackish water from the Floridan Aquifer, and perhaps, desalination of ocean water. The County s technical strategies, including projects that have been developed in pursuit of those strategies are discussed in greater detail in the following sections. Secondary Canal Integration/Stormwater Reuse URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Goal The overall goal of the Secondary Canal Integration/Stormwater Reuse strategy has been to capture and retain as much of our local rainfall as possible, within the secondary canal system, without compromising flood protection. Discussion As previously described, Broward County s 1,700 plus miles of canals (Figure 5-7) provide a substantial capacity for the capture, storage, and distribution of rainfall and stormwater runoff. Consequently, this program has been a primary focus of the County s water resource development efforts under the IWRP. Figure 5-7: Broward County has over 1700 miles of primary, secondary, and tertiary canals and surface water features. The primary canals are shown in bold. This extensive canal system extends to virtually all parts of the County, although it is not contiguous and is interrupted by roads and other developments. Still, this basic infrastructure provides a valuable framework that can be utilized to store and distribute water. As has been demonstrated through the Northern Broward County Recharge System (Figure 2-10) discussed in Chapter 4, this network makes it possible to take advantage of the spatial variability in rainfall in order to capture precipitation in the area where it occurs

120 100 and move it to other areas in need of recharge, via pumps, interconnects, and culverts. The NBCRS has a CUP allocation for the water used to augment captured rainfall. Cooperative agreements between local jurisdictions could facilitate further expansion of this system and even greater movement of water within the County. The Northern Broward County Recharge System is a proven model for demonstrating how stormwater can be distributed and reused to benefit multiple users. Through secondary canal interconnects and culverts, water can be routed, either through gravity or by pumping, and delivered to lakes for storage or water-poor areas in need of additional recharge. This system has allowed stormwater to be reused for aquifer recharge and control of saltwater intrusion, in addition to providing for rehydration of a number of the County s urban natural areas. The effectiveness of water recharge operations within a secondary canal system has been demonstrated by WWS Water Management Division water managers of the NBCRS capturing and storing all rainfall with only two exceptions during the course of a year and for drawdowns prior to landfall of hurricanes as a preventative measure for flood projection. The successful demonstration of this approach has, in turn, resulted in similar secondary canal improvements being pursued throughout the County. Future projects to further integrate the secondary canals through interconnection of basins and the addition of recharge pumps will improve our resource grid and allow greater flexibility in providing flood control, saltwater abatement, and enhanced wellfield operations. While additional efficiencies might be gained in the capturing and reuse of stormwater, the County is interested in expanding the use of the canal network to receive other source water to provide for more predictable and reliable water deliveries, regardless of precipitation patterns. Alternative sources might include regional reservoirs, ASR wells, or treated wastewater. Regardless of which source waters are considered, implementation of secondary canal improvement projects are part of both the County s secondary canal integration strategy and the CERP. Drought Management Broward County has recognized the need to make more efficient use of our rainsourced water supplies. During years of normal rainfall, wet seasonal rainfall is stored within the regional water system for use during the subsequent dry season. However, rainfall amounts vary widely from year-to-year, season-toseason, and location-to-location, producing erratic and unpredictable conditions which can result in widespread and/or local drought conditions. In addition to this climatic and spatial variation, rapid population growth has increased the demand on the region s available water supply, especially during low rainfall periods.

121 101 During drought conditions, declines in water levels throughout the system can affect the ability to deliver water to meet both people and natural system needs. Equally important, as water levels drop, the ability to protect against saltwater intrusion becomes increasingly difficult. Therefore, maintenance of water levels is an integral part of our water resource management strategy. A drought management strategy ensures that different water management actions are in place, depending on the location, nature, and magnitude of the drought. The SFWMD has developed a drought management protocol for application in its own operations and those of other water providers and managers within the LEC. This strategy is based on meeting the water demands for a 1-in-10 year drought event as required by Florida law (Section , F.S.). For drought conditions greater than a 1-in-10 year event, it may be necessary for urban users to decrease water withdrawals from the regional water system to avoid causing significant harm to the resource. Water shortage triggers are water levels at which mandated phased restrictions will be declared by the SFWMD, which will then curtail withdrawals and will help to prevent water levels from declining to and below a level where significant harm may occur to the resource. These phased restrictions increase in severity from Phase I (Moderate Shortage) designed to result in a 15% reduction in demand to Phase IV (Critical Shortage) designed to result in a 60% reduction in demand. While the County has yet to develop a formal County-wide drought management protocol, water management strategies pursued under the IWRP are designed to lower overall demands, provide more efficient water management, and reduce future reliance on traditional water supplies. As discussed in Chapters 1 and 2, local water resource management has evolved to address a unique set of circumstances, including the lack of topography and natural storage; seasonal variability and patchy distribution of rainfall events; and, an extensive drainage system designed to provide flood control and protection. Management of this system for sometimes quite distinct objectives (e.g. recharge vs. drainage), requires that operations designed to meet one objective do not compromise other critical needs. Although the lack of topographic relief and highly transmissive soils substantially limits the opportunities for long-term surface water storage, it also facilitates the movement of water with relatively minor investments in pumps, culverts, and interconnections. Thus, although initially designed for the purpose of providing flood control and protection, following the successful demonstration of the Northern Broward County Recharge System, the County s elaborate 1,700 mile plus canal network has come to be viewed by the water management community as being capable of serving multiple objectives. This network is now being developed as a distribution and storage system that can be utilized to address water supply and environmental issues, including saltwater abatement, aquifer

122 102 recharge, and wetlands rehydration. As the network can also be used to redistribute recharge from alternative source waters, it may also serve as a primary means for providing drought management. Today, we are investigating the effectiveness of maintaining higher average annual water levels within the canal system as a means to abate short-term declines in aquifer levels during the dry season and drought periods. With further integration of the canal system, the County will be well positioned to receive any source water that is made available to maintain the same water levels and recharge capabilities, regardless of climatologic conditions. Thus, the County s use of this canal network and associated pumps and interconnections will continue to serve as a principle strategy for delivery and management of water. Determining how much water is needed, where it is needed, when it is needed, and how it should be delivered is part of the water resource assessment process that is integral to the technical strategy for making more water available to address user needs. Broward County Secondary Canal Improvement Project (CERP) The Broward County Secondary Canal Improvement Project, as part of the CERP, is a water management project that will optimize the integration and operation of the County s secondary canal system and support Everglades restoration by reducing the County s reliance on water from the regional system. Authorized and to be funded by the U.S. Congress, State of Florida, and local government, the goals of the Broward County Secondary Canal Improvement Project are to capture as much annual rainfall as possible for storage and recharge of the Biscayne Aquifer, to maintain water levels in wetlands, and to stabilize saltwater intrusion. Additionally, through more efficient management of the local water resources, urban demand on the regional system is expected to be reduced, as well as seepage losses from the WCAs, since the project has the potential to raise groundwater levels on the east side of the levee. Estimated at a cost of $12 million with 75% to come from the federal and state governments, the project consists of secondary canal improvements similar to those that have been pursued to date, but on a larger scale. This project includes a series of water control structures, pumps, and canal improvements located in the C-9, C-12, and C-13 Canal Basins (see Appendix A) and east basin of the North New River Canal in central and southern Broward County. Excess water in the basins will be pumped into the coastal canal systems to maintain canal stages at optimum levels. When basin water is not sufficient to maintain canal stages, the canals will be maintained from other CERP projects and/or Lake Okeechobee and the Water Conservation Areas. The project is currently scheduled for completion sometime between As the timeline for the CERP projects is revised in response to changing priorities and funding availability, Broward County will continue to work closely with the

123 103 Army Corps of Engineers and the SFWMD in project design and will work to ensure that aspects of the project which can be expedited at a local level complement the broader project. Through the State of Florida s Acceler8 Initiative, funding for several CERP projects was expedited, although the CERP Secondary Canal Improvement Project was not among the expedited projects. In advance of construction of the CERP Secondary Canal Improvement project, Broward County will continue to pursue secondary canal projects as funds are made available by the SFWMD and the County, and through partnerships developed with municipal and local drainage and water control districts. The proposed goal in the box below. and strategies for secondary canal integration are presented Secondary Canal Integration Goal : Complete integration of the Northern Broward County Recharge System and expand this effort to the central and southern parts of the County. Background: Secondary canals can provide the storage and infrastructure needed to distribute water throughout Broward County. The Northern Broward County Recharge System has successfully demonstrated the benefits of secondary canal integration. It is approximately 85% complete at this time. The Secondary Canal Improvement Project is tentatively scheduled for completion by Strategy: Provide funding for further design of canal network FY 2006-FY 2009 $300,000 annually Continue to construct the Northern Broward County Recharge network and other secondary canal integration projects FY $300,000 annually Seek continued support for implementation of the CERP Broward County Secondary Canal Improvement Project Expand monitoring network and support for current efforts Meet with communities to determine locations for projects Determine performance objectives Run master modeling scenarios Delineate grid network based on performance objectives Identify improvements needed and potential source waters for recharge Coordinate with local partners in implementation. Lead Agency: Broward County Potential/Expected Partners: Municipalities, Utilities, Water Control/Drainage Districts, SFWMD, Florida Legislature, FEMA, USACE Total Costs: Estimated at a cost of $17-$20 million

124 104 Secondary Canal/Stormwater Reuse Projects The following is a list of projects that have been completed or are in progress under the IWRP s Secondary Canal/Stormwater Reuse program. Project: C-1 CANAL AT HAMMONDVILLE ROAD RECHARGE STRUCTURE Design Cost: $16, $8, BCWWS $8, SFWMD Construction Cost: $105, $84, Broward County $20, SFWMD Description: This concrete recharge structure (Figure 5-8) with three vertical lift gates on the C-1 Canal at Hammondville Road allows more water required for aquifer recharge to be stored in this secondary canal, Figure 5-8: Hammondville Road recharge providing enhanced structure shown with gates open. aquifer recharge near the Pompano Beach easterly wellfield, without impacting existing drainage. Since completion, water levels in the C-1 Canal have been raised by one foot and the potential to raise them an additional foot exists without further modifications (Figure 5-9). Status: Completed in 2004

125 105 Project Completed Figure 5-9: Graph showing increase in water level in C-1 canal following completion of Hammondville Road recharge structure IWRP Grants Funding In order to further the IWRP process, Broward County developed a grants program wherein the County and the SFWMD partner to provide funds to interlocal partners on a 50/50 cost shared basis for projects that implement integrated water resources concepts. The interlocal partner is responsible for providing 50% of the funding while the SFWMD and Broward County each provide 25%. Funding is limited to the amounts made available by each entity in any given year and have traditionally been used for design and feasibility analyses. Grant proposals receive a weighted score based on criteria which include: Willingness of project sponsor to support a minimum 50% cost share on feasibility/preliminary design analysis (10 points); Project should encourage regionalization of local water supplies (20 points); Project should reduce competition for water supplies through more effective water management operations (10 points); Projects should further Lower East Coast Regional Water Supply Plan or Broward IWRP overall (20 points); Project supports the investigation of a dependable, sustainable supply of water which is not otherwise feasible (5 points); Project enhances isolated wetlands, helps protect the Everglades and other environmentally sensitive areas, facilitates aquifer protection, or reduces saltwater intrusion (15 points); Project significantly implements reuse, storage, recharge or conservation of water (10 points); Provides an innovative approach or technology (5 points); and Meets additional criteria not listed which makes the project valuable (5 points). The IWRP grant program was expanded in to provide support for Alternative Water Supply projects

126 106 Project: COCOMAR-PINETREE INTERCONNECT Design Cost: $50, $25, Broward County $25, SFWMD Construction Cost: $158, $114, Broward County $ 43, SFWMD Description: The Cocomar Water Control District-Pinetree Water Control District recharge interconnect project (Figure 5-10) is designed to help move recharge water west of State Road 7 to a series of canals that are adjacent to future well sites and several isolated wetlands, including the Forman ESL site which is scheduled for rehydration in The project has allowed approximately 4 MGD to 7 MGD to be moved into the Pinetree Water Control District during the dry season. Status: Completed, December 2003 Figure 5-10: Cocomar-Pinetree Recharge Interconnect at SR 7

127 107 Project: S-4 PUMP STATION REHABILITATION Design Cost: $80, $80, BCWWS Construction Cost: $773,789 $634,794 Broward County $138,995 SFWMD Description: The S-4 pump station (Figure 5-11) is designed to increase the capacity of water deliveries from the Hillsboro Canal to the County s C-1 canal, the easternmost canal in Broward County providing freshwater recharge. It is intended to recharge coastal wellfields, raise groundwater levels, and abate saltwater intrusion. Status: Completed in March Figure 5-11: Rehabilitated S-4 Pump Station SUNSHINE WATER CONTROL DISTRICT PUMP STATIONS Design and feasibility work 51 for the Sunshine Water Control District (SWCD) pump stations project was completed in February The SWCD area contains the public water supply wells that are owned and operated by the City of Coral Springs. These wells pump water from the surficial aquifer, which is recharged by local rainfall and the portions of the SWCD drainage canal system within the wellfield. During times of prolonged dry periods, the continuous withdrawal of groundwater by the wells causes lowering of the groundwater table and canal surface elevations. In addition, lowered canal levels within the shallow canal system promote the growth of aquatic and emergent vegetation resulting in decreased canal flow capabilities.

128 108 The benefits of implementing this project include: 1) Provision of supplemental groundwater recharge to the City of Coral Springs wellfield. 2) Maintenance of control elevation within the SWCD canal system. 3) Flexibility in operation of the recharge system. 4) Provision of back-up facilities. 5) Provision of improved system control and flow quantification. 6) Improvement to the data recording and submittal requirements of the SFWMD. Project: SUNSHINE WCD PUMP STATIONS Design Cost: $22, $11, SWCD $11, SFWMD Construction Cost: Estimated at $259,900 Description: Status: The objective of this project consists of improvements at SWCD Pump Stations No. 1 and No. 2 to allow quantifiable and controllable recharge to the city of Coral Springs wellfield from the C-14 Canal. The transfer of regional water from the C-14 canal into the SWCD allows maintenance and recharge of the SWCD canal and groundwater system, thereby minimizing the negative impact of the dry periods. Not yet constructed NORTH SPRINGS IMPROVEMENT DISTRICT INTRA-BASIN PUMP AND INTERCONNECT IWRP funds have supported the analysis and design 52 of a secondary canal interconnect between two principle basins in the North Springs Improvement District (NSID). Preliminary design and feasibility was completed in February The NSID consists of two basins: an east basin of 1,063 acres and a west basin of 5,968 acres. The total water surface area of the NSID East Basin is about one-tenth that of the NSID West Basin. This means that by lowering water levels in the West Basin by one inch, ten inches of recharge can be achieved in the East Basin.

129 109 Under the existing conditions, stormwater runoff from the West Basin drains into a primary canal, and may be pumped into the Everglades Water Conservation Area 2A to provide flood control, if necessary. It is important to note that this has not been required during the past two years. During periods of deficient rainfall, the canal system and groundwater table elevations are lowered as a result of wellfield withdrawals. With construction of the inter-basin pump and gated culvert, it is anticipated that the pump will be used when the West Basin is above its design water level of 7.0 feet National Geodetic Vertical Datum (NGVD) and the East Basin is below its design water level of 9.0 feet NGVD. Project: NSID INTRABASIN PUMP AND INTERCONNECT Design Cost: $18, $9, NSID $9, SFWMD Construction Cost: Estimated at $250, Description: Status: This construction would allow the transfer of surface water from the West Basin to the East Basin, thereby allowing water to be retained within the secondary canal system, while providing needed flood control in the west, reducing potential water quality impacts to the Everglades, and providing recharge to two local wellfields in the east. Not completed NSID-PINETREE WATER CONTROL DISTRICT INTERCONNECT Another planned interconnect is between the NSID East Basin and Pinetree Water Control District (WCD). Design and feasibility work 53 for this project was cost shared by the SFWMD/Broward County and NSID. In conjunction with the NSID intrabasin pump and interconnect, this project will allow the passage of water in either direction between NSID west basin, NSID east basin, Pinetree WCD, and the Cocomar WCD. This project will help minimize the need to discharge excess surface water to the primary canal during high intensity storms and provide communities with even greater opportunities for stormwater reuse and flexibility in flood control while allowing conservation of water.

130 110 Project: NSID-PINETREE WCD INTERCONNECT Design Cost: $21,220 $10, NSID $10, SFWMD Construction Cost: $80, $40, NSID $40, SFWMD Description: This construction consists of a gated culvert and pumping facility, to create an east-west connection between NSID and the north regional recharge system. The connection allows gravity flow to the west under normal conditions or a pump could convey water east to the Pinetree WCD for sharing with Cocomar WCD. Status: Completed, September 2005 Other IWRP Canal System Integration Projects PROSPECT WELLFIELD RECHARGE Prospect wellfield is a closed basin which receives no stormwater input; it relies solely on groundwater as its source of water. Population growth has increased demands on the wellfield, causing water levels in Prospect Lake to be lowered. Through the IWRP, the City of Fort Lauderdale completed a public works project in 2002 to transfer water from the C-14 canal to the lake to help recharge the aquifer (Figure 5-12). Figure 5-12: Prospect Lake receiving recharge water TURNPIKE DRAINAGE AND WELLFIELD RECHARGE This project, described in the CERP, is an example of how the integrated approach has fostered collaboration among water managers. Upon notification of the widening of the Florida Turnpike, the opportunity to combine recharge and drainage projects became apparent to special districts, municipalities, and the County. The Cities of Fort Lauderdale and Plantation, the Old Plantation Water Control District, and Broward County are currently working together to develop projects that enhance recharge to Fort Lauderdale s Peele-Dixie and Prospect

131 111 wellfields while assisting the Florida Department of Transportation with stormwater management. The Turnpike drainage infrastructure is currently being modified in an existing ditch which is under construction. The remaining elements will await this completion. In the meantime, Broward County has supported a related rehydration project that brings water from the Old Plantation Water Control District on the west side of the Turnpike to the C-12 canal and then allows a southward conveyance to the Peele-Dixie wellfield using the same Turnpike infrastructure located on the east side of the Turnpike. Broward County provided $14,400 for feasibility and design work associated with this project which was matched by Fort Lauderdale. The SFWMD provided $75,000 for construction, with the difference provided by BCWWS. The project was completed in Project: C-12/OLD PLANTATION WCD INTERCONNECT Design Cost: $29,125 $14, Broward County $14, Fort Lauderdale Construction Cost: $99, $24, Broward County $75, SFWMD Description: This construction consists of a gated culvert from the OPWCD canal system to the C-12 Canal for the purpose of supplying water to the C-12 canal to allow recharge water to be directed towards the Fort Lauderdale Peele Dixie wellfield. Status: Completed, September 2007 Southern Broward County IWRP Projects Broward County and the SFWMD each allocated $62,500 towards design and feasibility analyses for secondary canal integration projects in southern Broward County through the IWRP grants fund process. The South Broward Drainage District applied these funds for the feasibility analysis and design of two approved projects. Design work for the S-9 and S-10 Basins Stormwater Improvement Project was undertaken at a cost of $166,500, with the South Broward Drainage District providing 50% of the funding and Broward County and the SFWMD each providing 25%. Essential elements of this project include:

132 112 Design for the elimination of drainage outfall connections to the C-11 Canal; Design of a wetland mitigation area; Design of approximately 2,000 linear feet of new canal; Design of stormwater recharge control structures; and Design of recharge culverts. This $3.6 million capital improvement project, funded in part by the SFWMD ($1.1 million) and the State ($0.9 million) included the installation of control structures at the outfalls of basins S-9 and S-10 which allow water to be kept longer in the canals, and in turn, helps to provide treatment, thereby improving water quality when discharge is required. The project eliminates the western outfalls and interconnects basin S-9 with basin S-10. The installation of interconnections between the sub-basins along with three control structures provides 1.5 inches of stormwater runoff detention prior to discharging into the C- 11 West Canal structure, thereby furthering the CERP s goal of reducing urban stormwater discharges to the Everglades, and enhancing aquifer recharge as well. The SBDD also closed three outfalls located in the S-8 sub-basin. The SFWMD provided $30,000 towards this project under its agreement with the SBDD and the County provided funds under the IWRP. This project has resulted in this subbasin being able to provide 1.5 inch detention over the previously permitted conditions. The S.W. 184 Avenue Canal Network Modifications project is a needs assessment study that was designed at a cost of $40,000 with the County and the SFWMD each providing $10,000, which was matched by $20,000 from the South Broward Drainage District. This project consists of an evaluation of existing canals, data collection, modeling, and preliminary design to determine which canals are best suited for improvements in the Rolling Oaks area of Southwest Ranches. These improvements have resulted in the SBDD being able to hold an additional one-half inch of water prior to discharge, enhancing recharge and providing for additional water quality treatment. Alternative Water Supply Projects Since 2007, the IWRP grant process has begun to consider projects related to the development of alternative water supplies. These include the following projects: MIRAMAR STORMWATER REUSE STUDY Broward County and the City of Miramar each allocated $36,400 towards design and feasibility analyses of a stormwater reuse project that will provide source water for the City s reuse system for irrigation applications.

133 113 The preliminary design report examined four alternatives for a proposed stormwater reuse pumping station. Construction and operation of this proposed stormwater pumping station will allow Miramar to retire certain irrigation wells near the reuse main on Dykes Road and will provide the City with an opportunity to initiate centralized distribution of reuse water to irrigation users in the western sector of the City. FORT LAUDERDALE RECLAIMED WATER/MEMBRANE CONCENTRATE FEASIBILITY STUDY Broward County and the City of Fort Lauderdale have each contributed $125,000 to investigate the feasibility of offsetting withdrawals from the surficial aquifer using reclaimed water and/or blending nanofiltration concentrate to meet irrigation needs. The City has identified three sites that could potentially provide alternative water sources to meet the City s future demands. Two of the projects would process wastewater at satellite wastewater treatment plants to indirectly recharge the City s Prospect Well Field, provide for residential and commercial irrigation, and allow for the maintaining of a fresh water mound to offset salt water intrusion. The third project would investigate the potential for mixing water treatment concentrate and raw water near the City s Peele-Dixie wellfield for recharge and irrigation. The project has recently been completed. DEERFIELD FLORIDAN AQUIFER EXPANSION AND WATER CONSERVATION Broward County and the City of Deerfield Beach each allocated $48,000 towards feasibility analysis and design for construction of an Upper Floridan Aquifer well and for the purpose of determining if the efficiency of the water treatment process can be increased by reprocessing permeate from the membrane treatment process through blending with Floridan water and subsequent retreatment using reverse osmosis. Essential elements of the project include: Determine optimum ratio of blended waters; Characterize the quality of feed waters to look at the potential for fouling; Determine the need for additional pretreatment; and Monitor for fouling and determine the expected cleaning cycle. The overall objective of the project is to determine the feasibility of expanding the City s Floridan well system from 1.5 MGD to 5.0 MGD with the development of additional wells to be sited on properties currently owned by the city. The project would allow the City to transfer some portion of its potable water demands from the Biscayne Aquifer as a means of diversifying water supplies and improving drought management. The new Floridan well was completed in October 2008.

134 114 DEERFIELD BEACH FLORIDAN WELL EXPANSION FEASIBILITY AND DESIGN Broward County and the City of Deerfield Beach have each contributed $65,000 to a design study for a new Floridan well system on properties currently owned by the City that will be tied into the West Water Treatment Plant to produce an additional 3 MGD of potable water. It includes the development of a groundwater model that documents the water withdrawals that can be sustained without impacts to existing users. Completion is expected by the end of January HALLANDALE BEACH ALTERNATIVE WATER SUPPLY FEASIBILITY STUDY PHASE I Broward County and the City of Hallandale Beach have entered into an agreement designed to reduce saltwater intrusion into the City s production wells, with further phases to include groundwater modeling and final design and construction of alternative water supply facilities. The project includes the investigation of the feasibility of implementing reuse, stormwater and aquifer recharge; construction of production wells further inland; and reduced well depth and pumpage. The benefits include enabling the City ot meet its water supply needs in light of water production limits at the Broward County South Regional Wellfield and generating information on saltwater intrusion that may be utilized by other area municipalities that are facing the same challenge. Each party has contributed $25,000 to the feasibility analysis with completion expected by the end of January, DANIA BEACH CONCENTRATE RECYCLING PROGRAM Broward County and the City of Dania Beach have each contributed $15,000 towards the feasibility and design of a study that will explore whether it is possible to further treat filtration concentrate with low pressure reverse osmosis to gain an additional 7% - 17% water recovery (for a total water recovery of 97%) from groundwater withdrawals. The project is expected to be completed by the end of January, POMPANO BEACH INDIRECT GROUNDWATER RECHARGE PILOT STUDY Broward County and Pompano Beach are each contributing $90,000 towards the feasibility of raising the water table in the northern coastal area of the County to provide sufficient hydrologic pressure to abate saltwater intrusion through application of water in infiltration trenches throughout the City of Pompano Beach. The goal of the project is to determine the rate of groundwater recharge that can be achieved based on the infiltration rates of constructed infiltration trenches, so trenches can be designed and constructed to achieve optimal recharge. The project includes analytical testing and construction of 600 feet of infiltration trenches, application of water from adjacent water sources and measurement of groundwater rise in production wells. Results of these analyses, coupled with hydrologic modeling, will demonstrate whether trench infiltration can

135 115 serve as a beneficial regional resource management strategy. The project is expected to be completed by the end of January, In September of 2009, the Water Advisory Board approved eight additional alternative water supply projects at a cost of $265,000 for consideration by the Broward County Board of County Commissioners. Sub-regional Aquifer Storage and Recovery URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Goal The County is also analyzing the potential for Sub-regional Aquifer Storage and Recovery (ASR) and expanded use of the Floridan Aquifer, in general, to meet future water supply needs. Utility-specific ASR goals will be addressed as part of an individual utility s 10-year Water Supply Facilities Work Plan. Discussion For the purposes of the County s planning efforts, the County is investing in a geotechnical analysis and mapping of the upper Floridan Aquifer using carbonate stratigraphy. This analysis will focus on identifying layers of permeability and enhanced hydraulic connectivity in the general use of the Floridan Aquifer as an alternative water supply. ASR has been an effective water management strategy employed by water utilities in many parts of the state and is an integral part of the CERP. In the case of Broward County, sub-regional ASR would involve the withdrawal of water from the Biscayne Aquifer or temporary storage of this water in the upper Floridan Aquifer. Storage would occur when excess water is available, with recovery of that water during times when it is needed. Stormwater runoff could also serve as source water for capture and storage in an ASR Bank. Water might later be used for potable purposes, canal recharge, abatement of saltwater intrusion or water system recharge. To date, the exploration of sub-regional ASR as a water resource alternative has been limited in Broward County. The BCWWS and the Cities of Fort Lauderdale and Sunrise have constructed ASR wells with limited success. The City of Sunrise has one (1) finished ASR well that is permitted to operate at 2.0 MGD, however, because of Florida Department of Health operational constraints associated with high chloride levels, it is now operated as a blending well. The City of Deerfield Beach has completed construction of an ASR well, but has since decided to no longer pursue ASR and will instead use the well to produce feed

136 116 Sub-regional Aquifer Storage & Recovery Goal : Identify feasibility and location for Aquifer Storage and Recovery within Broward County by Background: Sub-regional or local ASR offers the potential to provide a costeffective means of meeting Broward County s future water needs by storing water during the wet season, and recovering it later during the dry season or times of drought. Most ASR sites developed in Florida rely upon water storage, and later withdrawal from the upper Floridan Aquifer with little change in water quality. However, in South Florida, water in the Floridan Aquifer is brackish to saline, which can severely impact the quality of recovered water. Transmissivity can also lessen confinement of the stored water, thereby resulting in lower recovery rates. In order to proceed with local development of this potentially very valuable program, further analyses are required to assess possible well locations, whether geology is suitable, potential impacts on utility operations, water quality, and any regulatory constraints on operational permits. Strategy: Develop scope of study by FY 2008 Conduct ASR feasibility and design study by FY 2009 FY $465,000 proposed in budget Develop and test pilot wells Test feasibility of ASR Construct ASR facilities in Broward County Lead Agency: Broward County Potential/Expected Partners: Utilities, SFWMD Total Costs: Estimated at $500,000 annually water for a planned 3.0 MGD brackish water reverse osmosis water treatment expansion. In FY 08, the County allocated $465,000 to the investigation of regional ASR as a viable water management strategy in Broward County. This effort will be undertaken with the USGS and Florida Geological Survey and will include an analysis of subsurface stratigraphy based on existing cores and borehole technology. The objective is to determine whether subsurface geology might be conducive to successful ASR operation if properly sited. The results of this investigation will influence AWS projects provided consideration as part of regional water supply planning efforts.

137 117 Additional factors influencing the potential for ASR in Broward County include land availability, source-water quality, and source-water proximity (preexisting surface-water canal systems or surficial aquifer system wellfields, or water treatment plants). These factors plus potential interaction with neighboring utility operations and regulatory considerations and other constraints must also be analyzed. Wetland Rehydration URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Goal The goal of the Wetland Rehydration strategy is to provide water deliveries to urban natural areas to meet target groundwater elevations, provide storage for aquifer recharge, and improve and maintain habitat function. Discussion Through the Wetland Rehydration water development strategy, the County is furthering the integration of its natural systems. For the most part, rehydration of wetlands has been pursued using water from the regional system, which has been authorized as part of the County s Diversion and Impoundment permit by the SFWMD.

138 118 Wetlands Rehydration Goal : Provide water deliveries to a minimum of 14 urban natural areas to provide storage for aquifer recharge and improve habitat function by Background: Under Phase 3, data from the Phase 2 rehydration tests were used to design and construct water management infrastructure at Fern Forest, Prospect Road, Hillsboro Pinelands, and Tall Cypress/Turtle Run wetlands (see Figure 4-5). Fern Forest was chosen as the initial rehydration project (see discussion below) and design and feasibility analyses were undertaken using $15,000 from the SFWMD and $11,832 of County funds. Construction was completed for a cost of $80,000. The successful rehydration of Fern Forest has provided the impetus to implement similar rehydration projects to benefit other natural areas throughout Broward County. Strategy: Seek new opportunities and continue to provide water deliveries to urban wetlands. Lead Agency: Broward County Potential/Expected Partners: Utilities, SFWMD Total Cost: FY 2005: $244,000 FY 2006: $270,000 FY 2007: $310,000 Projects are currently on hold due to other priorities by Broward Parks and Recreation. IWRP Projects FERN FOREST REHYDRATION Fern Forest (Figures 2-10 and 5-13) is the largest remaining portion of the riverine forest of historical Cypress Creek that once connected the Everglades system and directed freshwater towards the coast. It contains the highest plant diversity within the Broward park system. Before the rehydration project, the habitat in several locations was changing from wetland to upland due to the lack of surface water input. The wetlands within Fern Forest had been severely impacted by the construction of the C-14 Canal and the nearby Figure 5-13: Fern Forest after rehydration

139 119 operation of wellfields. The C-14 was dug along what is now the northern boundary of Fern Forest and disrupted the historical flow through the park s wetlands. Additionally, the water control elevation of the C-14 is lower than the elevations of the wetland areas in the park. The large Prospect wellfield to the southeast has also lowered local ground water levels. In 2001, Broward County completed a project to rehydrate the wetland areas in an effort to maintain habitat function and vitality. Through the addition of pumps and water control structures, water is now moved from the C-14 to Fern Forest to provide the necessary water for improved wetland function. Since re-watering began, wetland species have returned and upland species have receded to the edges. Project: FERN FOREST REHYDRATION Design Cost: $26, $11, Broward County $15, SFWMD Construction Cost: $80, $30, Broward County $50, FDEP grant Description: Through the addition of a pump and nine minor water control structures, water is now moved from the C-14 to Fern Forest to provide needed water to maintain the integrity of the wetlands. Status: Completed in 2001 An additional $127,700 of County funds was used for design and feasibility work related to rehydration of the remaining three initial wetland areas - Prospect Road ESL, Hillsboro Pinelands ESL, and Turtle Run. HILLSBORO PINELAND ESL PUMP PROJECT The Hillsboro Pineland ESL site is a 40 acre site (Figures 2-10 and 5-14) that was purchased in 1993 with funds from a voter approved land acquisition bond. The site is representative of the natural vegetation of northwest Broward County and includes both pine upland and wetland habitats. Considered to be the headwaters of the historic Hillsboro River as water moved east from the Everglades toward the Atlantic Coastal Ridge, the area is made up of numerous basin wetlands including a large three acre wetland consisting of a basin marsh surrounded by a cypress ring, open on the east side, and a wet prairie on the south side. The basin marsh retains water after heavy rain

140 120 conditions but plant species composition turned weedy due to lack of water. Historical photographs show that a smaller wetland (0.5 acres) northeast of the large wetland was a cypress dome. A large cypress dome exists in the southwest corner of the site and two soggy areas occur in the northwest section. All wetlands, present or historic, were evaluated for restoration potential as part of the resource management planning process. Historic water levels in this area are estimated to have been 14 feet NGVD or higher, while the surface water design elevation is 11 feet NGVD. As a result, any rehydration options would require the use of pumps. These requirements were considered during later review of development proposals for the area. Consequently, in exchange for allowing utility lines to cross the ESL site, the adjacent residential development, Country Woods, granted a flowage easement through one of its lakes to the County, and provided a donation of $35,000 toward a pump and the installation of a connecting pipe and headwall in the lake on the Country Woods property. Target pumping elevations were established for the two wetland areas within pumping distance from the source lake by evaluating elevations of on-site development improvements, roads, surrounding developments and storm water retention volumes. The pumped water elevation is designed to replace the depleted ground water table, allowing rain water and runoff to be retained on site for a longer period of time, therefore mimicking a natural system where water fluctuations are caused by rain. This system allows naturally higher surface water elevations in the rainy season and lower elevations in the dry season. An elevation of 13.2 feet NGVD was established for the basin marsh, allowing rain to drive the water into the higher elevations of the cypress ring on a seasonal basis. To reforest the small wetland, 440 cubic yards of muck was added with 80 pond cypress trees of various sizes, positioned to create a dome with larger trees in the center. Due to the addition of a foot of muck soils to the small wetland the target water elevation was increased to 13.8 feet NGVD. Automatic water level shut offs were installed to turn the pumps on at the low levels and off at the high levels. The levels set in the cypress dome wetland are on at 13.0 feet NGVD and off at 13.8 feet NGVD and in the basin swamp on at 12.7 feet NGVD and off at 13.2 feet NGVD. Two staff gauges were installed near the pump outlets and a water level data logger was installed to take readings every 15 minutes initially, and currently four times a day.

141 IWRP 121 Figure 5-14: The Hillsboro-Pineland Natural Area in Coconut Creek The park officially opened in February, 2004 (Figure 5-15) and the pumps were permanently turned on at the end of April 2004, although they have had to be shut off intermittently during drought conditions. General observations include a die off of weedy species in the basin swamp with no replacement yet. In the cypress dome, Pontederia and Sagittaria are increasing and may have been

142 122 brought in with the muck. Wildlife observed utilizing either wetland include mottled ducks, wood storks, green heron, little blue heron, snowy egret, and great egret. Project: HILLSBORO-PINELAND ESL REHYDRATION Design Cost: $45, $45, Broward County Construction Cost: $99, $64, Broward County $35, Donation for easement Description: The Hillsboro-Pineland ESL wetland rehydration project was designed to help restore several isolated wetlands, and provide water for aquifer recharge. Status: Completed in 2004 Figure 5-15: Rehydration of the Hillsboro- Pineland wetlands has encouraged the use of the area by wildlife. TALL CYPRESS SITE The Tall Cypress Natural Area (Figure 2-10) is a 66 acre parcel purchased with 1989 Environmentally Sensitive Land Bond Funds and additional land that was set aside for park purposes by both the County and the City of Coral Springs. A lease agreement exists between the City of Coral Springs and Broward County Parks and Recreation for management of the property by Broward County Parks and Recreation. A resource management plan was developed for the natural area providing management recommendations for the natural resources of the site. A 6.5 acre wetland (Figure 5-16), consisting of a marsh surrounded by cypress trees, was identified as an area on the property that would benefit from the addition of water.

143 123 Figure 5-16: The Tall Cypress Natural Area in Coral Springs In 1984, when the nearby Turtle Run Development was platted, the local water control district, the Turtle Run Community Development District, dropped water levels to 9.5 feet NGVD, which influenced water levels within the natural area. Based on Phase II IWRP studies of the natural area, it was determined that a

144 124 target elevation of 10.5 to 11 feet NGVD would be desirable to restore the wetland. This elevation would fill the basin to the base of the cypress trees and allow for water storage during the rainy season that would seasonally raise elevations into the cypress trees, thus mimicking water fluctuations of a natural system. The Tall Cypress Natural Area was authorized to pump at 1.4 mgd to an elevation of 12 feet NGVD under the North County Recharge permit. Permission was granted from the Turtle Run Community Development District to withdraw water from the lake under their control just north of the site. A 1100 gpm pump was installed near the lake on the north side of the natural area and a pipe from the lake to the pump was buried to allow for maintenance of the easement that surrounds the lake. An automatic shut-off was placed in the lake to turn off the pump if the surface level should the drop too low. In addition, a stilling well was installed near the outlet of the pump with an automatic turn-on and off floats. This float design turns the pump off once the water hits the desired elevation and turns it on when the water level drops to a certain level. The Broward County Parks and Recreation Division initially paid for the entire project using a combination of Florida Communities Trust money ($100,000) and Park s 2000 Safe Parks and Land Preservation Bond ($64,000) account. SFWMD later contributed $60,000 to reimburse the 2000 Safe Parks and Land Preservation Bond account. Additional testing, analysis, and design for other wetland sites are ongoing and are expected to result in the construction and installation of the necessary infrastructure as part of new rehydration projects. Other natural areas proposed for rehydration in the future are the Forman and Tradewinds ESL sites. These are discussed briefly below. FORMAN ESL SITE The Forman ESL site (see Figure 2-10) is an 18.2 acre site within the Pinetree Water Control District in the City of Parkland that contains remnants of cypress wetlands. Topography studies have been completed and a target water elevation has been set at 14.0 NGVD. Surface water control elevations in the area are at 11 NGVD. The projected amount of water required to flood the approximately six acre site is 340 gpm. Water withdrawal will be from adjacent lakes either to the south of the site or to the east. To accomplish water deliveries to this site, the SFWMD permit for the North County Diversion and Impoundment permit was amended to include the Forman site withdrawal of 0.35 MGD at 14 feet NGVD.

145 125 TRADEWINDS ESL SITE The Tradewinds ESL site (Figure 2-10) is a natural area located at the northern end of Tradewinds Park (538 acres) in the City of Coconut Creek, consisting of pineland uplands and cypress wetlands. The entire site is 24.3 acres and is located within the Cocomar Drainage District. Surface water elevations in the area are maintained at 11 feet NGVD. Topographic analyses have been completed and the target elevation for wetland restoration is 13 feet NGVD. Projected water requirements to raise elevations to 13 feet NGVD are up to 740 GPM, although this elevation will pose a flooding hazard until Wiles Road is built. However, this level of recharge is likely to require that the target water elevation will likely be dropped to 12.5 feet NGVD, which would only require 300 mgd. Therefore, water will be withdrawn directly from a Cocomar canal for which permission has been granted. The SFWMD permit for the North County recharge permit was amended to include the Tradewinds ESL site withdrawal of 0.75 mgd, the recharge rate needed to maintain water levels at 13 feet NGVD. Assessing Water Quality in Reconstructed Wetlands Receiving Urban Stormwater Runoff The Snake Warrior Island Natural Area is a reconstructed wetland that was created as a part of a neighborhood improvement project in Miami Gardens in southern Broward County. The restoration and management goals of this project included: restoration to historical wetland conditions; providing a stormwater management area; creating a recreational and educational resource for the local community; and, protecting the site as an archeological preserve. Snake Warrior Island is one of the earliest Seminole settlements in the Eastern Everglades, and contains prehistoric artifacts as well. In 2003, a study was conducted to monitor the impact of using urban stormwater as a means to rehydrate wetlands. The study 54 tested the stormwater pretreatment/treatment performance of Miami Garden s drainage system which is managed by the County. Eight linked wetland cells were constructed within the park and stormwater from a local neighborhood was routed into the system. A seven month water quality monitoring program was implemented in June 2003 to characterize the water entering the wetlands, to determine if local drainage systems were providing adequate pre-treatment, and to assess the benefits and concerns of rewatering/rehydrating natural systems with urban stormwater. Results from water quality monitoring tests suggest the system responds rapidly to changes in source inputs. Monthly water column samples were also collected at six sites for nutrients, metals, organics, alkalinity, turbidity and chlorophyll-a. Preliminary results suggest pretreatment of urban stormwater was effective and it may be a viable source of water for reconstructed wetlands. Results from this study will be applied to future management decisions involving rehydration of reconstructed wetlands using urban stormwater runoff.

146 126 Utility-driven Water Resource Strategies The urban water resource management strategies presented in the preceding sections are those that the County intends to focus its efforts on over the planning period. These are strategies in which the County can provide support through sub-regional technical analyses and coordinated planning efforts, and are likely to be the most effective. In moving beyond these strategies, greater capital investments will be required to pursue other alternatives such as advanced wastewater treatment and reverse osmosis. Initially, it was assumed that pursuit of these alternatives would be the responsibility of individual utilities, not because of cost, but because selection of a particular alternative is specific to individual utility operations. However, with the now requisite focus being placed on alternative water supplies, including subregional and multi-jurisdictional projects, Broward County may have an expanded role. This will become more defined with feasibility and design analyses and further development of the Broward County Integrated Water Management Master Plan. Utility Sharing URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Discussion As discussed in Chapter 2, BCWWS operates two major regional wellfields - the North Regional Wellfield and the the South Regional Wellfield. Developed at a cost of $65 million in the early 1990 s, these wellfields provide raw water to several municipal utilities. Both wellfields are currently under-utilized and have the potential for meeting additional needs in the future. While the original focus of the County s efforts in implementing this strategy was to analyze these wellfields for additional capacity, that focus has changed for a number of reasons including the implementation of the Regional Water Availability Rule, which limits further utilization of the Biscayne Aquifer to meet public water supply needs. Nonetheless, to the extent that the Biscayne Aquifer is utilized, utility sharing can help ensure that withdrawals from the aquifer are utilized to the greatest extent practical to meet the demands wherever they occur within the urbanized County. By being able to move water supplies between utilities or wellfields to accommodate variable demands in different areas, we would be able to spread the available supply over a larger geographic area, not limited by any particular service area.

147 127 Utility sharing involves the coordination of utility operations to optimize the resources of the Biscayne Aquifer and future alternative water supplies amongst utilities. Through the utility sharing program, utilities are encouraged to cooperate to a greater extent to improve efficiencies of operations and water use. This may encompass such activities as: Construction of interconnections between utilities; Identification of systems with additional capacity and developing interutility agreements for greater utilization of those systems; and Joint funding of projects that will benefit regional needs. The utility needs assessments undertaken as part of the IWRP development process provided recommendations for various options addressing operational, infrastructural, and water management changes to be considered for design and construction. These recommendations included construction of interconnections, distribution system modifications to reduce demands on raw groundwater resources, and expansion or construction of reclaimed water systems. Where these changes can be shown to clearly have a regional benefit, cost-share funding is available from the County to assist with the feasibility and design phase of the project. As mentioned, the new focus for the utility sharing strategy has shifted to identifying alternative water sources and subregional and multi-jurisdictional projects. Those proposals will be considered as part of the Broward County Integrated Water Management Master Plan. IWRP Utility Projects Under Phase 3 of the IWRP Utility Integration Component, SFWMD and Coral Springs entered into an agreement for design analysis for two Coral Springs potable water interconnects. The North Springs Improvement District and Coral Springs Improvement District interconnects were designed at a total cost of $10,860 which were cost shared equally between the partners and the SFWMD. Although these projects would provide useful potable water interconnects in case of water emergencies, they are limited by pipe size for purposes of long-term water supply sharing. There are two regional wellfields that have been constructed in Broward County. As discussed in Chapter 2, Broward County s Water Resources, the BCWWS provides raw water from its North Regional Wellfield to the City of Deerfield Beach and finished potable water to the City of Coconut Creek. In southeastern Broward County, raw water from the BCWWS South Regional Wellfield is available for use by the Cities of Dania Beach, Hallandale, Hollywood, and the Florida Power and Light Corporation. The current demand for the SRW is MGD annually. The forecasted demands for this wellfield are MGD by

148 , with 9.55 MGD of this demand being met through advanced wastewater treatment of water from nearby utilities. The development of such regional and sub-regional water supply projects or efforts to build additional capacity into utility projects so as to share the capacity and/or resource is expected to be the focus of any future utility sharing arrangements as part of the IWRP. The benefits of utility sharing and subregional and multi-jurisdictional projects, especially in light of increasing demands and the Regional Water Availability Rule, is becoming more evident to utility managers, particularly those that do not have more than an emergency transmission capacity with adjacent utilities. This new focus will continue to provide opportunities for greater efficiency and effectiveness in managing our water resources. Through cooperative agreements between utilities, further integration of utility operations is possible. Advanced Wastewater Treatment URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED WASTEWATER TREATMENT REVERSE OSMOSIS Discussion Treatment of wastewater for reuse can serve as a new water supply to reduce demands on the Biscayne aquifer and may also serve as a source water for aquifer recharge, allowing additional withdrawals without impacting the regional system. Wastewater reuse programs are very well developed in the southwest and central portions of Florida, however, in Broward County, concerns about impacts to surface water and groundwater quality; the historic availability of plentiful water supply from the Everglades/regional system; and, the relatively inexpensive offshore disposal options available have discouraged its application locally. The feasibility of wastewater reuse within Broward County has been considered in the past. In January 1994, an analysis 55 was prepared for the Broward County DNRP to study its applicability within the County. The objectives of the report included a review of state and County regulations controlling reuse, an analysis of the hydrogeology and groundwater quality in Broward County, and recommendations on water reuse regulations for Broward County based on the historical performance of these systems and the local hydrogeology. While the 1994 report recognized that there were clearly significant water conservation benefits that could be realized in Broward County with the

149 129 implementation of a water reclamation program, at that time, the potential benefits were countered by concerns about the risks of contaminating the Biscayne Aquifer as a result of the widespread unmanaged use of reclaimed water for irrigation and other uses. Of course, the field of science has substantially improved treatment technologies such that strict controls can now be employed to provide high levels of nutrient and micro-constituent removal, as dictated by the intended end use. Then, in June 2001, the Broward County Board of County Commissioners requested a study be conducted to evaluate the feasibility of constructing a wastewater treatment wetland in Broward County, similar to the Wakodahatchee Wetlands in Palm Beach County. Key objectives of the study 56 were to: Provide an analysis of the regulatory challenges associated with treatment wetlands; Outline the potential planning, design, construction capital, and operational and maintenance costs of establishing a treatment wetland; and Describe the extent to which a treatment wetland can provide wastewater treatment and disposal, create wetlands, expand wildlife habitat, recharge the surficial aquifer, provide public education on water resource issues and mitigation opportunities. The study found that, given the extensive development in Broward County, land availability was the primary factor limiting the viability of wastewater treatment wetlands within the County. Other conclusions reached by the study included the following: Natural wetland hydration was not possible in Broward County because no Broward County wastewater treatment plant provided advanced wastewater treatment (at that time); A constructed treatment wetland in Broward County would likely require a liner and could only be permitted with no discharge point; Due to limited land availability and development costs, treatment wetlands were not a cost-effective alternative to conventional forms of wastewater disposal in Broward County. The nutrient concentrations most often found in treated wastewater have also been a hindrance to broad implementation of reuse projects. Treated wastewater has an average phosphorous concentration of approximately 1,000 parts per billion (ppb), one hundred times greater than the allowable phosphorous concentration permitted in discharges to the Everglades under the 1994 Everglades Forever Act and 50 times greater than the County s freshwater water quality standard of 20 ppb. While many treatment technologies are presented as treating reuse water to drinking water standards, there is no drinking water standard for phosphorous and the standard for nitrogen is 10 mg/l

150 130 (almost seven (7) times the County s standard of 1.5 mg/l). As part of the Broward Everglades Working Group, Broward County is currently working with the SFWMD and drainage/water control districts, municipalities, and affected parties in the C-11 Basin to reduce phosphorous loads to the Everglades and to the County s freshwater canals. The numerous mandatory and voluntary pollution prevention efforts County-wide as part of an overall nonpoint source pollution strategy represent a tremendous investment of financial and human resources among local and state governments Thus, introduction of wastewater at the current levels of treatment would be contrary to the County s water quality efforts and environmental restoration goals. However, the County is supportive of and interested in advanced wastewater treatment technologies that can reduce nutrient concentrations to a level consistent with Broward County s current water quality standards. Figure 5-17: Recycled wastewater is used for irrigation at Broward County s Water & Wastewater Services facility in Pompano. Another historic constraint to traditional wastewater reuse for irrigation application in Broward County has been the belief that as we approach build-out, the problem of laying out the necessary infrastructure to support its use would be extremely costly. However, since 2006, the City of Pompano Beach has been implementing a program that is successfully installing reuse distribution lines for residential and commercial irrigation in existing neighborhoods. Miramar has also had success in the installation of reuse irrigation systems. The reuse requirement of the ocean outfall legislation of 2008 makes re-examination of this concept event timelier. Beyond these considerations, there is an issue of overspray of reuse water and the impacts of resultant runoff on water quality. However, it is generally recognized that wastewater reuse for irrigation can be appropriate on large properties if it is used judiciously and its application is managed (Figure 5-17). Such users may include parks, golf courses, and industrial operations where overspray and water quality is less of a concern. Reuse for irrigation is just one possible application. Another use, and one that could be of even greater local value, is the potential application as a source for canal recharge and/or aquifer recharge. While infrastructural requirements limit the feasibility of a broad reuse distribution system in urban Broward County, with an adequate level of treatment, the canal system might provide a ready-made distribution network providing further drought protection. Additionally, reuse applications for aquifer recharge could be used to help abate saltwater intrusion or offset wellfield withdrawals.

151 131 The application of membrane technology or reverse osmosis as an advanced wastewater treatment (AWT) for treatment of wastewater may provide an acceptable means for increasing the utilization of this water source. This method has been shown to produce finished water with a phosphorous concentration of just ppb. Chemical additions can further reduce these concentrations to 20 ppb. Several pilot projects have been implemented within Broward County to test various treatment technologies for diverse reuse applications. Projects have included use of membrane bioreactors (MBR) in NSID for irrigation, MBR and R/O by Sunrise and Plantation for potential groundwater and canal system recharge, respectively. Water quality analyses have also evaluated removal efficiency of microconstituents. In addition, Pompano Beach and Broward County are now partnering in a project that could lead to use of AWT for aquifer recharge via infiltration trenches. These pilot projects constitute necessary first steps in what could evolve into larger-scale projects with significant resource benefits. In 2008, the Florida Legislature mandated the elimination of ocean outfalls in Florida with complete elimination by 2025 and reuse of at least sixty percent (60%) of the volume currently being discharged to the ocean. This law will certainly result in more reuse projects being identified that may also serve as an alternative water supply to provide offsets to allow additional future demands to come from the Biscayne aquifer. Reverse Osmosis URBAN WATER RESOURCE MANAGEMENT STRATEGIES CONSERVATION SECONDARY CANAL INTEGRATION ASR WETLAND REHYDRATION UTILITY SHARING ADVANCED W ASTEWATER TREATMENT REVERSE OSMOSIS Discussion Reverse osmosis in the treatment of brackish water represents another urban water resource management strategy that can be employed to help meet the County s future water needs. While the Floridan Aquifer serves as the major source of water in other parts of the State, its development as a resource has been minimal in south Florida because of both the costs associated with construction of deeper Floridan wells

152 132 and the additional treatment that would be required in order to remove salts. Simply put, while the quality of the Floridan Aquifer is high in north Florida, in South Florida, the quality is not as good, and as a potable water supply it is not as readily accessible as water from the Biscayne Aquifer. In Broward County, the City of Hollywood is the only major water provider that currently draws water from the Floridan Aquifer with an average withdrawal of 1 MGD that is mixed with Biscayne water prior to treatment. Local water utilities have been encouraged to pursue development of the Floridan Aquifer as one of several possible alternative water supplies. Since the passage of the Regional Water Availability Rule, many utilities have committed to developing Floridan wells as part of their 10 and 20-year Water Supply Plans. However, many feel that further analysis needs to be undertaken to determine the extent of the resource and the costs and impacts associated with development of this aquifer relative to other potential alternatives. A comprehensive assessment of the resource using a well-calibrated Floridan groundwater model is desirable as a first step towards determining the reliability of the Floridan Aquifer as a source of water for the future in Broward County. As part of the County s development of a County-wide Water Management Masterplan, the County will perform a County-wide detailed analysis of proposed Floridan well systems, including potential interconnections with neighboring wells, as well as possible water quality variability to improve the SFWMD s Floridan model. Direction for the Future With the County-wide integrated groundwater-surface water model now completed, we are now in a better position to move the IWRP s secondary integration efforts forward on a more reasonable scale. To this end, the County has entered into an agreement with an independent contractor, DHI, Inc., for professional services in developing a Broward County Integrated Water Management Masterplan. The objective is to use the County s model to identify water supply projects and management strategies capable of meeting the County s water demands and other water resource goals through Consistent with constraints posed by CERP and the Regional Water Availability Rule, the analyses will include investigation of various alternative water supply projects and opportunities for increasing withdrawals from the Biscayne Aquifer based on offsets achieved when AWS projects can provide the secondary canal network with source waters for canal and aquifer recharge. Model scenarios will use projects identified in the LECWSP as a starting point, including assessment of the Floridan Aquifer. Hydrologic analyses will quantify the benefits and impacts under 1-in-10 year drought conditions. This effort is being undertaken in close coordination and consultation with local water providers and managers as well as the SFWMD. The products of this investigation will include the identification of specific AWS projects (individual and regional), water management strategies such as use of the secondary canal

153 133 network as a water delivery and recharge mechanism, sizing and location of projects, secondary canal improvements (culverts, pumps, etc.), planning cost estimates, and quantification of water to be made available. The timeframe for completion is June These scenarios will provide the first comprehensive evaluation of the cumulative impact of proposed projects on the various resources and the potential interaction of projects. The Challenges of Climate Change While the modeling efforts currently underway by DHI, Inc. will help identify projects, costs, and the quantification of water to be made available using various alternative sources, water managers today are facing additional challenges as they begin to plan for the potential impacts associated with climate change. These include: Impacts of rising sea level on infrastructure and drainage Movement of the saltwater front and potential for closure of potable water wellfields Increased production of greenhouse gasses resulting from the additional energy usage associated with more costly treatment options Longer drought and flooding conditions. These anticipated climate change related impacts, along with almost certain other unanticipated impacts, will continue to promote the need for an adaptive management approach in addressing our water resources. The saltwater intrusion model being developed in cooperation with the USGS will help determine the extent to which climatologic factors influence saltwater intrusion and how we might mitigate these impacts through modified water management strategies, while allowing the County to better manage its existing resources, particularly in the face of drought and rising sea level. Governance and Coordination As the County works with its ADAPTIVE MANAGEMENT diverse water management community to address local WATER RESOURCE GOVERNANCE & ASSESSMENT COORDINATION water development, it relies Needs Assessments Governance Partners not only on its water resource Monitoring Coordination Mechanisms assessment tools to guide its Modeling Projects water development and conservation programs, but also, an effective governance and coordination process as well. This process has been discussed in detail in Chapter 3, Water Governance in Broward County. The IWRP s governance and coordination element ensures broad participation and input from the technical community through the Technical Advisory Committee and that of elected officials through the Water Advisory Board to the Broward County Board of County

154 134 Commissioners. Other working groups play a supporting role and help to foster consensus on projects that advance the IWRP. All areas of substantial progress and achievement the secondary canal projects, Water Matters program participation, support for Water Matters Day, NatureScape and the proliferation of Community Wildlife Habitats, the NatureScape Irrigation Service, Know the Flow training, IWRP grant funding, the Broward Everglades Working Group, and water conservation demonstration projects - have been the result of IWRP coordination. Today, the governance structure that has been established for managing the County s water resources is working and effective. Yet there are no guarantees that this same structure will perform as well in the future as new challenges arise. The existing structure, or any for that matter, is only as good as the willingness of the participants to recognize the benefits of addressing these shared challenges in a collaborative fashion, looking beyond their own immediate needs. Although we have yet to be really tasked or challenged with respect to governance, we might expect this to become more of an issue as we begin serious contemplation of subregional water projects and further explore AWSsourced solutions. However, it is clear that coordination is the area where we have had the greatest opportunities and success. Consistent with the direction provided by the State through recent legislation and water policy, the County is shifting its focus to working with utilities on those water development programs that are based on alternative water sources. These would include sub-regional ASR, Advanced Wastewater Treatment and Reverse Osmosis for the treatment of water from the Floridan Aquifer, or possibly even seawater desalination. The Broward County Water Resources Task Force The Broward County Water Resources Task Force was formed in September 2008 with participants that include elected representatives from Broward County, municipalities, and independent districts, the SFWMD and other state and County agencies to work collaboratively to identify and evaluate potential regional and sub-regional water supply strategies and solutions of appropriate water quality to meet county-wide future water resource needs and water conservation goals. The Task Force s duties and responsibilities are to identify and evaluate opportunities and constraints to providing future water supply of appropriate water quality, conservation, wastewater treatment, and reuse or reclaimed water opportunities that are most efficient and cost-effective, and to make recommendations, including regional/subregional opportunities and governance as part of the considerations.

155 135 The Task Force s Technical Team is assisting and advising the Task Force on matters such as, but not limited to, resource availability, management, facilities and infrastructure, supply and constraints, and other technical, environmental, and professional subject matter as requested by the Task Force. Public Outreach and Education PUBLIC OUTREACH Public outreach and education efforts form the third tier of the PROGRAMS PARTNERSHIPS RESOURCES IWRP. These efforts are essential to keeping the public informed about the importance of their role in ensuring that we have a good supply of clean water now and in the future. They also serve to educate the public on local water management systems, water conservation, and environmental stewardship. Broward County s IWRP outreach efforts aim to reach a wide variety of audiences and age groups through programs, partnerships, and resources. Programs include those initiatives previously discussed in this Chapter, under the Water Matters umbrella program as well as recent activities as part of the Working Water Solutions initiative which is focused on bringing together elected officials, business leaders, and water professionals to jointly address issues of water supply, growth, planning, and the economy. Partnerships include cooperative efforts that have developed with municipalities and the local business community through the Water Matters demonstration projects, and those that have been forged to deliver the Know the Flow program. NatureScapes are appearing throughout the County thanks to working partnerships with the Florida Yards & Neighborhoods Program at the University of Florida and the Community Wildlife Habitat Program with the National Wildlife Federation. Also of note is the NatureScape Irrigation Service, a partnership with twenty-two Broward County municipalities and WWS to improve irrigation efficiency. In addition, in order to educate Broward County s young water users about water management, in 2004, the Water Resources Division entered into a contract with the Museum of Discovery and Science (MODS) in Fort Lauderdale. Through this contract, MODS incorporated the goals and objectives of Broward County s Water Matters initiative, including NatureScape Broward, and implemented tailored educational programs to museum visitors. During the contract period, almost 61,000 children attended one of 1,970 programs that were delivered. More recently, the County has entered into a partnership with the School Board of Broward County to bring NatureScape and Water Matters program principles into the schools, with the implementation of both improvements to landscaping at

156 136 school facilities and the introduction of classes and NatureScape learning gardens to help connect students with the environment. Resources include printed materials such as brochures, public service announcements in newspapers and on radio and television; technical presentations to various groups ranging from elected officials to community groups and presentations to schoolchildren; and, a variety of information on the County s website. Efforts are also underway to provide some of these outreach materials in Spanish. As the use of the Internet continues to become more widespread, the County has recently incorporated a number of interactive modules on its website to help educate residents about the specific activities they can undertake as individuals to better manage water and protect water quality. These include lessons on NatureScape, Know the Flow, Water Matters, and the Integrated Water Resource Plan, as well as other initiatives. Finally, with regards to public education and outreach, this IWRP document is yet one more effort to inform the public, especially decision makers, about the importance of working together to ensure that the quality and quantity of our water resources contribute positively to our quality of life in Broward County. Summary By cooperatively addressing shared water concerns through the IWRP, the local water management community is better preparing itself to respond to the water needs associated with a growing population, protecting the quality and quantity of resources, and ensuring water availability regardless of climatologic conditions, all in the face of significant changes in water policies as related to regional water availability. Over the next ten years, the County s water planning efforts will continue to build on the progress made to date and will continue to focus on those urban water resource management strategies that optimize the use of our available water resources and infrastructure, both on a daily basis and during drought conditions. These strategies include continuing to promote conservation as the most costeffective means of meeting part of our future water demands, as well as continued development of projects that further utilize our extensive canal network to store and distribute water. Beyond conservation and canal integration, however, the County will also begin to explore the potential for sub-regional Aquifer Storage and Recovery (ASR) as a means to provide additional storage for our seasonally-abundant rainfall and will work with the State and utilities to pursue sub-regional AWS projects, particularly those that provide alternative source water for canal recharge and reduce our reliance on the regional system. Continued integration of the secondary canal network is a key to the County s overall strategy for meeting its water needs through 2018, and hopefully beyond. With the County-wide integrated groundwater-surface water model completed and now being applied, and work progressing on further development of our

157 137 monitoring network, we are moving towards the position of being able to advance the IWRP s water development programs forward with greater certainty. With the clear direction that we must focus on alternative source water projects to meet future demands, we need to determine where the inputs need to be, what volumes are needed, and how to deliver that water. To this end, the County has embarked on an ambitious three-year effort to answer these questions. The objective of the County s Integrated Water Management Masterplan project is to develop a plan for satisfying Broward County's water supply and water resource goals for the period ending in 2025, using improvements in the water management and water supply system that are compatible with the Lower East Coast Water Supply Plan Update, Florida's Water Protection and Sustainability Program, and CERP. The water supply and water resource goals include (1) meet the projected municipal and industrial water supply for each water supply service area to the year 2025, (2) reduce saltwater intrusion, (3) decrease flood hazard, (4) improve the hydrologic regime of wetlands in the urban area, and (5) benefit CERP. Another goal is to improve surface water quality in the urban area, although quantifying the water quality goal is beyond the scope of this project. Nevertheless, protecting and improving water quality shall be considered in the selection of water management alternatives, including alternatives involving discharge of treated wastewater to canals. This project adopts the water quality goals of CERP, which are to improve water quality throughout the system, especially in the natural areas, and comply with all applicable water quality standards and all water quality permitting requirements. One additional goal will be a reduction of the volume of stormwater discharged into the WCAs and the contaminant concentration in that stormwater. Development of alternative water supplies will require greater involvement in the process by utilities to address the needs in their individual service areas, as well as consideration of multi-jurisdictional cooperative efforts. The County s application of its Hydrologic Model in the Masterplan will ensure consistency with the Regional Water Availability Rule, CERP, and LECWSP leading to products that will provide a framework for moving forward with a coordinated County-wide approach for developing water supply projects needed to support our growing population and economy while providing for natural systems needs and supporting water quality benefits. With the planned development of various alternative water supplies and the potential for moving towards sub-regional projects that require multi-jurisdictional cooperative efforts, there may be a need to explore alternative governance options. In the meantime, governance of our existing water resources will continue to benefit from increased intergovernmental cooperation and the economies of scale inherent in this approach. The IWRP will continue to provide an effective means for achieving the necessary coordination and cooperation to meet our shared water resource goals and water supply needs. Once we

158 138 complete the work above and determine stakeholder benefits, we will be in a better position to consider future governance options. To date, over $6.0 million has been spent by the County and the local water management community in advancing the IWRP. The SFWMD has contributed an additional $2.4 million in supporting the IWRP process. This figure does not reflect the contributions the SFWMD has made to individual utilities and other organizations for construction of alternative water supply projects, including Floridan wells, ASR, and reuse systems. This information is presented in Appendix B.

159 Chapter 6: CONCLUSION AND RECOMMENDATIONS 139 The 2004 Quality of Life Assessment in Broward County found that over threefourths of Broward County residents are concerned about the quality and availability of future drinking water supplies. 57 Given the importance of good, clean drinking water to our health, this concern is understandable. Similarly, Broward County citizens are also concerned about stormwater management. The 2006 Broward County Resident Survey results indicate that the public feels that stormwater management is one of the top priority areas for improvement. But the concern for our water resources must extend beyond just drinking water and flood control. Water is essential to many aspects of our quality of life, including having healthy and attractive landscapes, recreational resources, and the maintenance of wildlife habitats. Further support for protecting our water resources was demonstrated in 2008, when Broward County s voters approved an amendment to the County s charter clarifying the County government s duty to enact ordinances which protect its citizens right to a sustainable environment, including clean air and clean water, while encouraging the stewardship of natural resources. Broward County s policies for water management today and into the future will reflect the need to address the various challenges associated with intense population growth and environmental restoration efforts. The demand for water by people, plants, and animals, and the need to ensure that the actions we undertake in meeting these demands do not jeopardize the success of Everglades restoration, add to these challenges. By working together, we can address these challenges and create a more sustainable future for current and future residents, businesses, and visitors. Broward s County-wide Integrated Water Resource Plan (Figure 5-1) provides the blueprint for the County s approach to coordinating the sources and users of water for effective and efficient local water management. The IWRP has brought the County s diverse water management community together to successfully face shared concerns and implement programs and projects which address local and regional water needs. For the short-term, successful implementation of the IWRP will rely on pursuit of a number of complementary urban water resource management strategies, water savings programs to make our water go further coupled with technical strategies designed to produce more water, and effective coordination. This approach will ensure that we are moving forward with strategies that provide water to all users at the most reasonable cost. At the same time, continued emphasis on public

160 140 education and outreach will help to secure County-wide participation in these efforts as we strive to become a truly sustainable community. Phase I of the IWRP included assessments, identification of assets and their attributes, model development, and a general plan for moving forward. This has prepared us well for the next phase and furthering implementation. This will include identification of: Where water is needed How to produce this water How to distribute this water, with the likelihood of using the canal system This IWRP report details the history and development of the County s efforts towards addressing its water resource policy and how it intends to meet the challenges that additional growth and Everglades restoration will place on both urban and regional water supplies. The plan lays a solid framework for a wellthought out and coherent strategy towards meeting our future water management needs. As a planning document, however, the IWRP also recognizes that policy evolves in response to changing priorities and as new information becomes available. Implementation of policy is also constrained by economics. Thus, adaptive management is a necessary part of planning and the IWRP approach. A number of significant questions still remain to be answered as the planning process continues. Thus, recommendations for moving the IWRP forward have been developed to address four key areas: 1) How can we better understand our water resource management challenge? 2) How can we fix it? 3) Where will funding come from? 4) How do we best implement the IWRP? The following recommendations, which have been developed to address these questions, should not be considered all-inclusive, but rather a starting point for moving the process forward. How can we better understand our water resource management challenges? The County should continue support of its water resource assessment programs, including needs assessments, monitoring, and modeling. The County should work closely with municipalities to identify needs as part of the 10-year facility work plans to be prepared and as required by State law, and in order to better track anticipated water demands. The County should work with the SFWMD to develop a local drought management strategy consistent with the regional strategy.

161 141 The Broward water management community should refine the SFWMD s Phase II Upper Floridan model to guide the placement and operation of any additional Floridan wells within the County. How can we better manage our water resources? The County should continue to conduct surface water and groundwater modeling to identify viable water supply and management projects and quantify their benefits. The County should work with the SFWMD to include projects identified through the IWRP in updates to the Lower East Coast Water Supply Plan. The County should work with the SFWMD and U.S. Army Corps of Engineers staff to identify what portion of water associated with CERP projects might be made available for urban water use and to determine whether these projects might be improved to enhance their environmental and water supply benefits. The County should continue to pursue geotechnical analysis of the Upper Floridan Aquifer to support the expanded development of this resource as an alternative water supply in Broward County. The County should continue to develop the secondary canal network as a water delivery network and management strategy. The County should expand the development of a saltwater intrusion model along its entire coast to aid in the management of saltwater intrusion and provide a better understanding of the impacts of sea level rise and climate change on our groundwater supplies. The County should develop a stormwater management model to investigate the influence of rising sea level and other climate change influences on local water resources and our water management system with emphasis on drainage and flood control. The County should investigate the potential for subregional and regional projects that serve multiple jurisdictions to address water supply and other water management challenges. The County should undertake a reuse feasibility study to identify opportunities for reuse applications and projects County-wide. The County should partner with local water providers and municipalities to develop and coordinate a county-wide water conservation rebate program to support water conservation as a critical part of long-term planning efforts.

162 142 Where will funding come from? The County should work with its partners to identify new sources for funding of conservation programs and to assist with AWS implementation projects such as residential hook-ups to reuse systems for irrigation. The County should work with municipalities and utilities to coordinate funding for water supply efforts; with FEMA where funds for drainage and recharge improvements related to hazard mitigation may be available; with SFWMD to identify sub-regional and other AWS projects eligible for funding under Alternative Water Supply Funding and water conservation projects eligible for funding under the Water Savings Incentive Program; with SFWMD and the U.S. Congress for funding of CERP; and, with the Florida Legislature for funding of the 2005 water resources program and to pursue water projects through CERP and other programs. How do we best implement the IWRP? The County should encourage continued participation and coordination of municipalities and local water managers in forums such as the Water Advisory Board and its Technical Advisory Committee, the Surface Water Coordinating Sub-committee, Southeast Florida Utilities Council, and other working groups. A new governance structure may be premature as it still remains to be determined what projects might be developed. An alternative form of governance might be required or beneficial. There are a number of potential options that need to be considered in determining how this report should be used. It is not a self-executing document, as many elements of implementation require extensive collaboration or fall under the authority of an alternative or multiple entitites. Options for use of this IWRP report include: Use for informational purposes only; Use as a guidance document for policy makers and water managers; Incorporation, by reference, into the Broward County Comprehensive Plan; and Recognition of the Broward IWRP within the LECWSP as a beneficial water management strategy for Broward County. Given this wide range of possibilities, it is recommended that this IWRP report be presented to the Broward Planning Council and/or League of Cities for consideration. We are optimistic that the value of this approach is self evident and that it behooves water managers at all levels to participate.

163 143 APPENDIX A: Broward County Drainage Basins There are fourteen (14) major drainage basins within Broward County: four drainage basins are located in western Broward County (west of the levee) and ten drainage basins in eastern, urbanized Broward County. The drainage basins in urban Broward County are shown in Figure A Water Conservation Area 2A. WCA 2A basin contains 99.2 square miles in north-central Broward County, and an additional 65.5 square miles in south-central Palm Beach County. WCA 2A is connected to Lake Okeechobee by way of the North New River Canal (NNRC). 2. Water Conservation Area 2B. WCA 2B basin, located in central Broward County, has an area of 43.8 square miles and is a source of significant recharge to the Biscayne Aquifer. Water supplied to the aquifer by way of WCA 2B is important to maintaining groundwater levels in coastal areas. 3. Water Conservation Area 3A. WCA 3A basin has an area of square miles of which square miles are located in western Broward County. WCA 3A is connected to Lake Okeechobee by way of the North New River and Miami Canals. 4. Water Conservation Area 3B. WCA 3B basin has an area of square miles, 30.5 square miles of which are located in south-central Broward County. WCA 3B also functions as an important basin for recharge to the Biscayne Aquifer. 5. Hillsboro Canal Basin. The Hillsboro Canal basin has an area of approximately 102 square miles, 40 square miles of which are located in northeastern Broward County. The Hillsboro Canal is the northernmost canal in Broward County and connects Lake Okeechobee to the Atlantic Ocean. 6. Cypress Creek (C-14) Canal Basin. The C-14 basin has an area of 59 square miles and is located in northeastern Broward County. The C-14 basin is divided into an eastern basin (34 square miles) and a western basin (25 square miles). 7. Pompano Canal Basin. The Pompano Canal basin has an area of approximately 7.2 square miles, located in northeastern Broward County. 8. Middle River (C-13) Canal Basin. The C-13 basin has an area of approximately 39 square miles located in eastern Broward County. The C-13 is divided into an eastern basin (9 square miles) and a western basin (30 square miles).

164 North Fork Middle River Basin. The North Fork Middle River Basin has an area of approximately 5 square miles and is located in eastern Broward County. The area drains into the North Fork of the Middle River and does not contain any canals or control structures. 10. Plantation (C-12) Canal Basin. The C-12 basin has an area of approximately 19 square miles and is located in eastern Broward County. Flow in the canal is to the east with discharge to the New River. 11. North New River Canal Basin. The North New River Canal (NNRC) basin has an area of approximately 30 square miles and is located in eastern Broward County. The NNRC basin is divided into a 7 square mile eastern basin and a 23 square mile western basin. The NNRC connects Lake Okeechobee to the Atlantic Ocean. Flow in the canal is to the southeast with discharge to the South Fork of the New River. 12. South New River Canal (C-11) Basin. The C-11 basin has an area of approximately 104 square miles and is located in south central Broward County. The C-11 basin is divided into a 23 square mile eastern basin and a 81 square mile western basin. 13. Hollywood (C-10) Canal Basin. The C-10 basin has an area of approximately 15 square miles and is located in southeast Broward County. The C-10 basin was constructed without a control structure in order to maintain the water surface elevation in the canal high enough to prevent salt water intrusion into local groundwater. 14. Snake Creek (C-9) Canal Basin. The C-9 basin has an area of approximately 98 square miles and is located in southeastern Broward County (59 square miles and northeastern Dade County (39 square miles). The basin is divided into a 45 square mile eastern basin and a 53 square mile western basin.

165 145 Figure A-1: Drainage basins and municipalities in urban Broward County