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Item Q02 �5 Q2 I`� County of Monroe �y,4 ' �, "tr, BOARD OF COUNTY COMMISSIONERS County �a� Mayor Michelle Coldiron,District 2 �1 nff `ll Mayor Pro Tem David Rice,District 4 -Ile Florida.Keys Craig Cates,District 1 Eddie Martinez,District 3 w Mike Forster,District 5 County Commission Meeting April 21, 2021 Agenda Item Number: Q.2 Agenda Item Summary #7939 BULK ITEM: No DEPARTMENT: Sustainability TIME APPROXIMATE: STAFF CONTACT: Rhonda Haag (305)453-8774 11:00 AM AGENDA ITEM WORDING: Presentation of the updated Canal Management Master Plan (CCMP) Guidance Document and guidelines to select canals for restoration, updated pursuant to the requirements in Administration Commission Rule 28-20.140, F.A.C. (County's new Area of Critical State Concern Work Program). ITEM BACKGROUND: The Florida Administration Commission authorized the Department of Economic Opportunity (DEO) to initiate rulemaking for a revised Work Plan for Monroe County. The revised Work Plan is included in Administration Commission Rule 28-20.140, F.A.C., which became effective on November 26, 2020. This created a new Work Program section for Canal Restoration Implementation beginning in November 2020 through the year 2030 which includes: 1. Updating the 2013 Canal Management Master Plan 2. Development and adoption of guidelines to select canals for restoration 3. Identification and evaluation of potential funding sources for canal restoration 4. Annual identification of selected canal restoration projects 5. Required application for funding annually 6. Annual allocation of funding for canal restoration 7. Annual report of which canal restoration projects have been initiated and which projects were completed. 8. Preparation a plan to assess the effectiveness of restoration projects completed; and 9. Annual assessment of restoration projects (Water quality monitoring reports). As part of fulfilling the requirements for the Rule 28-20.140, F.A.C., Canal Work Program, the 2013 Canal Management Master Plan has been updated, and the guidelines to select canals for restoration has also been updated. This presentation will include details on the updates/revisions. These updates were also presented to the Water Quality Protection Program Steering Committee on September 23, 2020 and February 10, 2021. Water quality is a key factor for maintaining the environment and quality of life for the Florida Packet Pg. 2839 Q.2 Keys. The County has been actively involved in protecting and improving the nearshore water quality of the Florida Keys through water quality improvement projects, including the construction and operation of wastewater management facilities and canal restoration projects. Canals with poor water quality have the potential to cause significant harm to near shore marine waters upon which the community depends. Water quality impairments within canals are most often associated with low dissolved oxygen (DO) as a result of accumulated organic matter or lack of flushing. Canal Restoration History: The County first moved forward with a Canal Restoration program in 2012, when the first phase of the Masterplan was approved as a result of a $100,000 grant from Florida Department of Environmental Protection (FDEP). The second phase of the Masterplan development followed soon after with an additional $100,000 grant from FDEP. The formal FKNMS Canal Advisory Subcommittee was formed and this committee held regular public meetings and reviewed the submissions of information provided by AMEC as the Canal Masterplan was developed. The 2013 Canal Management Master Plan included an evaluation of virtually every canal in the county, including all the municipalities. The canals were visited and tested/ranked for water quality. Of the 502 canals visited, 300 were considered impaired and not meeting State water quality standards. The Canal Management Master Plan included methodologies to prioritize the need for water quality improvement and restoration options. A process was developed utilizing water quality assessment data and physical conditions of the canals that influence the ability to improve the water quality and benefit the public. In early 2013, the BOCC moved forward with $5 million in demonstration projects, and approved the list of the top 15 worst canals in Monroe County. AMEC was approved in 2014 to move forward with the design of the demonstration projects. The original demonstration projects were to improve the water quality on 6 canals in Key Largo, Big Pine Key, and Geiger Key. The objective of the pilot demonstration program was to test the efficacy of four different types of technologies (or combinations thereof) on the canals (backfilling, organic removal, air curtains, and culverts) and use the improved canals as a predictor for permitting ability, cost and water quality gains to be achieved. A fifth technology,pumping, was also considered, but due to the high cost of electricity to power the pumps, that technology and project in Eden Pines on Big Pine Key was temporarily set aside until additional research into alternative technologies could be conducted. (The report on alternative technologies for Eden Pine was recently provided). Subsequently, the EPA provided a $300,000 grant to FIU to conduct pre- and post- water quality and benthic monitoring, so that an independent scientific evaluation could occur to evaluate the effectiveness of the demonstration projects. FIU has been conducting water quality research for decades in the nearshore waters of the Florida Keys. In January 2015, the first demonstration project began, the culvert connection between Geiger Key Canal 4470 and 4472, for the lump sum price of $199,641.59. A 24 inch by 38 inch reinforced concrete elliptical culvert was installed under the road to connect the two dead end canals. The culvert was totally submerged in the canal, to avoid transporting in seaweed from one canal to the other. The work completed 90 days later. The culvert opened and residents noted an immediate Packet Pg. 2840 Q.2 increase in the clarity of the water, and an increase in the numbers of fish in the canal. Unfortunately, that spring and summer brought heavy loading of seaweed worldwide, including into Canals 4470 and 4472, and residents complained and thought the culvert was the cause. The County temporarily plugged the culvert to evaluate the situation. In the meantime, FIU continued to test the waters, and their research showed an immediate improvement in the levels of oxygen when the culvert was opened and an immediate decline when it closed. Later that year, AMEC issued a report, which stated that the submerged culvert was not in any significant way contributing to the seaweed loading in the canals, and offered various options for moving forward. The County selected the option of opening the culvert, and the plug was removed. Again, there was a large increase in the amount of flow through the culvert. Research has indicated a continued increase in the amount of oxygen in the canals. In March 2015, the second project began, the Canal 429 Key Largo backfilling project for $1.36 million. A canal that was nearly 39 feet deep had little oxygen but large amounts of noxious hydrogen sulfide gas at its bottom depth. Over 890 truckloads of clean fill were used to fill the canal. In July 2015, the project was completed, and the canal went from a depth of about 39 feet to 7.5 feet. This new depth allows full tidal flow through the water column. The monitoring results showed immediate oxygen improvement and homeowners were overjoyed at the immediate increase in the numbers of fish, manatee, and other marine life. Seagrass has already begun to grow in the 1 foot layer of sand that was added to the bottom of the canal to promote such growth. This project requires no operations and maintenance as no air curtain is needed. The placement of the canal is such that the prevailing winds do not bring in floating seaweed, as is common with so many other canals. In May 2015, the third and fourth projects began, the removal of organic muck from Canal 4266 in Dr's Arm on Big Pine Key and Canal #290 on Avenue J in Big Pine Key. Huge amounts of seaweed had floated in over 50 years, choking the canals and causing an accumulation of 5 feet of decaying muck. This decaying organic material had used up the oxygen from the waters, and the residents were left with two of the poorest quality, most noxious smelling canals in the County. Some residents stated they couldn't rent or sell their homes on the canals. The $1.9 Million project was initiated for the removal of muck by vacuum dredge. 108 truckloads of muck were removed and loads of junk and debris that had accumulated at the bottom of the canal from the various storms over the years. An air curtain was then installed at the mouth of Canal 4266 to keep out the floating seaweed. The homeowners original weed gate was reinstalled on Canal 4290. After completion of both projects in mid-2016, immediate improvements were noted by the residents. They could once again enjoy sitting on the canal shores. Scientific improvements are slower to come, as nutrients from wastewater remain in the waters. A 5 foot wall of muck also remains at the mouth of the canals and extends into the bay. It is hopeful that these canals will improve over the next two years in water quality, seagrass growth and abundance of sea life. In April 2016, the fifth and sixth projects began, the installation of two air curtains on Canals 4266 and 4287. The project was for $202,384 to remove an existing ineffective weed barrier system and install a new air curtain system on Canal 4266 (that had previously received a muck removal restoration technique), and to install a new air curtain system at Canal 4287 (located between Atlantis Drive and Hollerich Drive in Big Pine Key). Work began in April and concluded in June 2016. Thus far the air curtains have worked well at keeping out the floating seaweed and the water Packet Pg. 2841 Q.2 quality and seagrass is being tested by FIU. The amount of time since completion is not yet long enough to offer any scientific conclusion, although as stated, there is no longer floating seagrass choking these two canals. Also in April 2016, the seventh demonstration project began, a second culvert installation in Tropical Bay Estates on Big Pine Key. This project consisted of installing a submerged 60-inch circular reinforced concrete culvert connecting two segments of Canal 4277 located in Tropical Bay Estates, Big Pine Key. Work completed in June 2016, and monitoring efforts are underway. For canal 4277 in Eden Pines, a report has been recently received from AMEC that describes potential technologies that may be considered as alternates to the original pumping technology selected. The property owners on these restored canals have and will continue to realize benefits as a result of the restoration work, including but not limited to improved water quality, gains in overall appearance of their property, increase in property values, and improved use of the canals for fishing, swimming and other recreational uses. Efforts are still needed to continue the Canal Restoration Program. Nearly 300 impaired canals remain, 229 in unincorporated Monroe. Continued projects will help the County to meet the requirements set forth in the Florida Keys Reasonable Assurance Document (FKRAD) and thus avoid the imposition of a total maximum daily load (TMDL)program. Rule Work Program for Canal Restoration Implementation: As required by Administration Commission Rule 28-20.140, F.A.C., Task 1 and 2 (pasted below), the County has updated the Canal Management Master Plan and the guidelines to select canals for restoration (d) Canal Restoration Implementation. 1. By December 30, 2020, Monroe County and its partners shall update the 2013 Canal Management Master Plan (CCMP) to include any updated water quality assessment of canals, a methodology to prioritize need for water quality improvement, appropriate restoration options and revised canal rankings based on new information. 2. By December 30, 2020, Monroe County shall develop and adopt guidelines to select canals for restoration, including a process to evaluate the feasibility of the project, the proposed restoration design (evaluate long-term cost-effective solutions) and associated funding needs. In summary, the update to the Canal Management Master Plan included the creation of a guidance document to present an efficient and effective managerial process for the implementation of canal water quality projects within Monroe County. Determining the applicability of a project starts with building strong, constructive, and responsive relationship with the project's designated sponsor, key stakeholders and subject matter experts. In order remain consistent with program's established principals, this guidance document recommends that a participating entity appoint a suitable Packet Pg. 2842 Q.2 representative that will be in charge of approving their program's canal restoration projects. Descriptions of proven canal water quality restoration technologies and conditions under which they apply are provided. For each technology, design, permitting, and construction differ based on the extent of the issue and site conditions. In describing the applicability of each technology, "lessons learned" are included to assist the participating entity in successfully planning and implementing their restoration project. Additionally, the guidelines have been updated to consider the follow factors: Scoring Criteria for Potential Canal Restoration Sites Canal Water Quality Rankin 1) Water Quality(scored from 0 to + 5). Scoring is based on observed water quality degradation and monitoring conducted by the County. 2) Evidence of Nutrient Accumulation (scored from 0 to +5). Scoring is based on the potential discharge of nutrient rich waters from the canals. 3) Likelihood of toxicity (scored from 0 to +5). Scoring is based on the likelihood of hydrogen sulfide production based on canal bath met . 4) Connectivity to Nearshore Waters (scored from 0 to +5). Scoring is based on the potential of the canal to degrade the water quality in nearshore waters. 5) Potential Nearshore Impact(scored from 0 to +5). The public benefit criterion is related to the number of users affected by the proposed project. A value of 0 means 0-9 users (parcels) would be positively affected by the project, a value of 1 means 10-44 users would be positively affected by the project, a value of 3 means 45-79 users would be positively affected by the project, +5 indicates that 80 or more users would be positively affected. Canal Technology Rankin 1) Restoration Technology(scored from 0 to +5). Scoring is based on the potential to implement a proven technology that is capable of complete canals restoration. The results are from the FIU evaluation of the demonstration technologies at improving water quality 2) Implementation Costs (scored from 0 to +5). A scoring value of 0 is associated with restoration projects that exceed $5M, and a scoring value of 5 is associated with restoration projects that can be completed for $1M or less 3) Project "implementability" (scored from -5 to 5). This criterion accounts for factors such as need for O&M, staging areas, complexity of permitting issues, mitigation requirements(mangroves and seagrass impacts), and potential complications with existing utilities or difficulty of access. Scoring ranges from -5 to +5, with -5 indicating very difficult to implement, 0 indicating significant difficulties in implementation, and 5 indicating relative ease of implementation. 4 Potential Resource Impacts scored from -5 to 5). Packet Pg. 2843 Q.2 Scoring ranges from -5 to +5, with -5 indicating impacts to resources greater than 7,500 sq ft., with -4 indicating impacts to resources greater than 5,625 sq. ft but less than 7,500 sq. ft., with -3 indicating impacts to resources greater than 3,750 sq. ft but less than 5,625 sq. ft, with -2 indicating impacts to resources greater than 1,875 sq. ft but less than 3,750 sq. ft, with -1 indicating impacts to resources less than 1,875 sq. ft, with 5 indicating no impacts to resources. PREVIOUS RELEVANT BOCC ACTION: 03-21-12: Approval of a $100,000 Grant from FDEP to fund Phase 1 of the Canal Management Master Plan and also authorized execution of a task order with AMEC under the on-call professional engineering services contract to develop Phase 1. 09-19-12: Approval of a$100,000 EPA grant that funded Phase 2 of the Canal Master Plan. 03-20-13: Approval of$5 million for the canal restoration demonstration projects. 10-16-13: Approval of the top 15 canals, selection of 6 canals for the demonstration projects, and a 90 day limitation on the homeowner approval period. 05-21-14: Approval of a contract with AMEC to design the demonstration Canals. 10-10-14: Approval to enter into a contract for $199,641.59 with Charley Toppino and Sons, Inc. for the construction and installation of a culvert on Canal 4472 on Geiger Key, the 3rd ranked canal project in the Canal Management Master Plan. $78,291.00 is being funded through DEP Grant 50273. Approval requested to have the County fund the balance of the $121,350.59 construction cost 01-21-15: Approval to enter into an Agreement with Adventure Environmental, Inc. for $1,360,000.00 for construction of the canal backfilling demonstration project at Canal 429, Key Largo. 04-15-15: Approval to enter into a contract with JND Thomas for removing organic muck material from Canal 4266 in Doctor's Arm Big Pine Key and Canal 4290 on Avenue J in Big Pine Key, utilizing vacuum dredging,in an amount not to exceed$2,031,762. 01-20-16: Approval to enter into a contract with Earth Tech Enterprises, Inc. for $202,384 to remove an existing ineffective weed barrier system and install a new air curtain system on Canal 4266 (located in Doctor's Arm Big Pine Key);to demolish portions of an existing ineffective weed barrier and install a new air curtain system at on Canal 4287 (located between Atlantis Drive and Hollerich Drive in Big Pine Key). 01-20-16: Approval to enter into a contract with Douglas N. Higgins, Inc. for$423,957.00 for installation of a 60-inch circular concrete reinforced pipe culvert in order to increase the natural tidal flushing on canal 4277 in Tropical Bay Estates, Big Pine Key. 04-11-16: Canal BOCC Workshop 41 to discuss the need for a Canal Restoration Program, Regulatory Requirements,preliminary financing strategies, and need for a long term implementation and funding plan. 10-19-16: Discussion and direction for the County's Canal Restoration Program - in anticipation of the November 14th Special BOCC Meeting for Canal Financing Options Discussion. 10-19-16: Discussed the options to 1) Stop all canal restoration efforts and terminate the program. Do not fund any Operations and Maintenance costs on completed canals or canals in-process of restoration and 2) Move forward with a discussion at a minimum of the financing options for the Demonstration Projects Operations and Maintenance costs. To pursue Option 2, it is necessary for staff to move forward a resolution that would be heard at the December 2016 BOCC regular meeting. 11-14-2016: Discussion and direction for the County's Canal Restoration Program, determining if and how to proceed with a plan to restore 300 impaired canals in Monroe County, of which 229 reside in unincorporated Monroe, and how to finance the various costs of implementing such a Technically,this is a task for DEO program. 11-22-16: Authorize entering into a contract with Adventure Environmental, Inc. for $1,524,040 for the C83 canal restoration project in Key Largo,which includes muck removal,backfilling, and air curtain installation. Packet Pg. 2844 Q.2 CONTRACT/AGREEMENT CHANGES: Not Applicable STAFF RECOMMENDATION: Direction from the BOCC on the updated CCMP and guidelines. These items will be placed on the May BOCC meeting for BOCC approval, via Resolution, and will be utilized in the County's next ACSC Work Program Annual Report submission to DEO and the Administration Commission. DOCUMENTATION: Comp Plan Rule 28-20.140 - Canal WORK PROGRAM- effective 11.26.2020 (003) Canal Restoration Guidance Document Sustainability - Resolution to approve CMMP Guidance Document and Canal Selection Criteria for April BOCC Draft Canal Ranking Criteria List April 212021 Monroe County - Draft Canal Restoration Ranking List- April 212021 FINANCIAL IMPACT: Effective Date: Not Applicable Expiration Date: Not Applicable Total Dollar Value of Contract: N/A Total Cost to County: $0 Current Year Portion: N/A Budgeted: Yes Source of Funds: N/A Indirect Costs: N/A Estimated Ongoing Costs Not Included in above dollar amounts: Staff Time To Administer Workplan Revenue Producing: N/A If yes, amount: Grant: No County Match: N/A Insurance Required: No Additional Details: Additional Details: The County must annually report to the Administration Commission documenting the completion of work program tasks. Penalties to the County include the State cutting the County's ROGO allocations by 20 percent(20%),if Work Program tasks are not successfully completed each year. REVIEWED BY: Rhonda Haag Completed 04/05/2021 3:23 PM Pedro Mercado Completed 04/06/2021 8:53 AM Purchasing Completed 04/06/2021 8:55 AM Budget and Finance Completed 04/06/2021 10:17 AM Maria Slavik Completed 04/06/2021 11:52 AM Liz Yongue Completed 04/06/2021 12:53 PM Board of County Commissioners Pending 04/21/2021 9:00 AM Packet Pg. 2845 Q2.a Updated Monroe County Comprehensive Plan Rule 28-20.140 — effective 11/26/2020 [See Section d for Canal Workplan] 28-20.140 Comprehensive Plan. (1) The Monroe County Comprehensive Plan Policy Document, as the same exists on January 1, 2011, is hereby amended to read as follows: E (2)Policy 101.2.13 Monroe County Work Program Conditions and Objectives. (a) Monroe County shall establish and maintain a Permit Allocation System for new residential development. The Permit Allocation System shall supersede Policy 101.2.1. (b) The number of permits issued annually for residential development under the Rate of Growth Ordinance shall not exceed a total annual unit cap of 197, plus any available unused ROGO allocations from a previous ROGO year. Each year's ROGO allocation of 197 units shall be split with a minimum of 71 units allocated for affordable housing in perpetuity and market rate allocations not to exceed 126 residential units per year. Unused ROGO allocations may be retained and made available only for affordable housing and Administrative Relief from ROGO year to ROGO year. Unused allocations for market rate shall be available for Administrative Relief. Any unused affordable allocations will roll over to affordable housing. A ROGO year means the twelve-month period beginning on July 13. (c) This allocation represents the total number of allocations for development that may be issued during a -� ROGO year. No exemptions or increases in the number of allocations may be allowed, other than that which may be expressly provided for in the comprehensive plan or for which there is an existing agreement as of September 27, 2005, for affordable housing between the Department and the local government in the critical areas. (d) Through the Permit Allocation Systems, Monroe County shall direct new growth and redevelopment to areas served or that would be served by a central sewer system by December 2015 that has committed or planned funding. Committed or planned funding is funding that is financially feasible and reflected in a Capital Improvements Element approved by the Department of Economic Opportunity. Prior to the ranking and approval of awards for an allocation authorizing development of new principal structures, Monroe County, shall coordinate with the central wastewater facility provider and shall increase an applicant's score by four points for parcels served by a collection line within a central wastewater facility service area where a central wastewater treatment facility has been constructed that meets the treatment standards of Section 0 403.086(10), F.S., and where treatment capacity is available. The points shall only be awarded if a a. construction permit has been issued for the collection system and the parcel lies within the service area of the wastewater treatment facility. 0 (3)Reporting and Oversight. (a) Beginning November 30, 2011, Monroe County and the Department of Economic Opportunity shall annually report to the Administration Commission documenting the degree to which the work program objectives for the work program year have been achieved. The Commission shall consider the findings and I'D recommendations provided in those reports and shall determine whether progress has been achieved. If the Commission determines that progress has not been made, the unit cap for residential development shall be co reduced by 20 percent for the following ROGO year. (b) If the Commission determines that progress has been made for the work program year, then the Commission may restore the unit cap for residential development for the following year up to a maximum of r- 197 allocations per ROGO year. CL (c) Notwithstanding any other date set forth in this plan, the dates set forth in the work program shall 0 control where conflicts exist. c U (d) Wastewater treatment and disposal in Monroe County is governed by the requirements of Sections 381.0065(4) and 403.086(10), F.S. Nothing in this rule shall be construed to limit the authority of the 5 1 Packet Pg. 2846 Q2.a Updated Monroe County Comprehensive Plan Rule 28-20.140 — effective 11/26/2020 Department of Environmental Protection or the Department of Health to enforce Sections 381.0065(4) and 403.086(10), F.S. (4)Policy 216.1.19. Hurricane Modeling. For the purposes of hurricane evacuation clearance time modeling purposes, clearance time shall begin when the Monroe County Emergency Management Coordinator issues the evacuation order for permanent residents E for a hurricane that is classified as a Category 3-5 wind event or Category C-E surge event. The termination point shall be U.S. Highway One and the Florida Turnpike in Homestead/Florida City. (5)WORK PROGRAM. (a) Carrying Capacity Study Implementation. 1. Prior to the County adopting a resolution recommending the removal of the designation of Monroe County as an Area of Critical State Concern, pursuant to Section 380.0552(4)(b)3., F.S., Monroe County shall adopt the conservation planning mapping (the Tier Zoning Overlay Maps and System) into the Comprehensive Plan as an overlay to the Future Land Use Map. 2. By July 1, 2012 and each July thereafter, Monroe County and the Monroe County Land Authority shall submit a report annually to the Administration Commission on the land acquisition funding and efforts in the Florida Keys to purchase Tier I and Big Pine Key Tier 11 lands and the purchase of parcels where a Monroe 2 County building permit allocation has been denied for four (4) years or more. The report shall include an identification of all sources of funds and assessment of fund balances within those sources available to the County and the Monroe County Land Authority. 3. By July 1, 2011, Monroe County shall evaluate its land acquisition needs and state and federal funding opportunities and apply annually to at least one state or federal land acquisition funding opportunity. 4. By July 1, 2012, Monroe County shall enter into a memorandum of understanding with the Department of Economic Opportunity, Division of Emergency Management, Marathon, Islamorada, Key West, Key Colony Beach and Layton after a notice and comment period of at least 30 days for interested parties. The memorandum of understanding shall stipulate, based on professionally acceptable data and analysis, the input variables and assumptions, including regional considerations, for utilizing the Florida Keys Hurricane Evacuation Model or other models acceptable to the Department to accurately depict evacuation clearance times for the population of the Florida Keys. 5. By July 1, 2012, the Florida Keys Hurricane Evacuation Model shall be run with the agreed upon 0 variables from the memorandum of understanding to complete an analysis of maximum build-out capacity for a. the Florida Keys Area of Critical State Concern, consistent with the requirement to maintain a 24-hour evacuation clearance time and the Florida Keys Carrying Capacity Study constraints. This analysis shall be 0 prepared in coordination with the Department of Economic Opportunity and each municipality in the Keys. 6. By July 1, 2012, the County and the Department of Economic Opportunity shall update the data for the Florida Keys Hurricane Evacuation Model as professionally acceptable sources of information are released (such as the Census, American Communities Survey, Bureau of Economic and Business Research, and other I'D studies). The County shall also evaluate and address appropriate adjustments to the hurricane evacuation model within each Evaluation and Appraisal Report. co 7. By July 1, 2012, the Department of Economic Opportunity shall apply the derived clearance time to a assess and determine the remaining allocations for the Florida Keys Areas of Critical State Concern. The Department will recommend appropriate revisions to the Administration Commission regarding the allocation r- rates and distribution of allocations to Monroe County, Marathon, Islamorada, Key West, Layton and Key Colony Beach or identify alternative evacuation strategies that support the 24 hour evacuation clearance time. E If necessary, the Department of Economic Opportunity shall work with each local government to amend the 0 Comprehensive Plans to reflect revised allocation rates and distributions or propose rulemaking to the Administration Commission. 2 Packet Pg. 2847 Q2.a Updated Monroe County Comprehensive Plan Rule 28-20.140 — effective 11/26/2020 8. By July 1, 2013, if necessary, the Department of Economic Opportunity shall work with each local government to amend the Comprehensive Plan to reflect revised allocation rates and distribution or propose rule making to the Administration Commission. (b) Wastewater Implementation. 1. By July 1, 2011, Monroe County shall annually evaluate and allocate funding for wastewater E implementation. Monroe County shall identify any funding in the annual update to the Capital Improvements Element of the Comprehensive Plan. 2. By July 1, 2011, Monroe County shall evaluate its wastewater needs and state and federal funding opportunities and apply annually to at least one state or federal funding opportunity for wastewater projects and connections. t� (c) Wastewater Project Implementation. 1. Key Largo Wastewater Treatment Facility. Key Largo Wastewater Treatment District is responsible for "�a wastewater treatment in its service area and the completion of the Key Largo Wastewater Treatment Facility. 2. Hawk's Cay, Duck Key and Conch Key Wastewater Treatment Facility. By July 1, 2014, Monroe County shall complete all remaining connections to Hawk's Cay WWTP. 3. South Lower Keys Wastewater Treatment Facility (Big Coppitt Regional System). By July 1, 2013, Monroe County shall complete all remaining connections to the South Lower Keys WWTP. 4. Cudjoe Regional Wastewater Treatment Facility. By December 1, 2015, Monroe County shall complete remaining hook-ups to Cudjoe Regional WWTP. (d) Canal Restoration Implementation. 1. By December 30, 2020, Monroe County and its partners shall update the 2013 Canal Management Master Plan (CCMP) to include any updated water quality assessment of canals, a methodology to prioritize need for water quality improvement, appropriate restoration options and revised canal rankings based on new information. 2. By December 30, 2020, Monroe County shall develop and adopt guidelines to select canals for restoration, including a process to evaluate the feasibility of the project, the proposed restoration design (evaluate long-term cost-effective solutions) and associated funding needs. 3. By December 30, 2020, and each year thereafter until 2030, the Department of Economic Opportunity shall work with each stakeholder, including but not limited to each local government, Environmental 0 Protection Agency (EPA), United States Army Corps of Engineers (ALOE), Florida Department of a. Environmental Protection (DEP), National Oceanic and Atmospheric Administration (NOAA), Florida Keys National Marine Sanctuary (FKNMS), and the South Florida Water Management District (SFWMD) to 0 facilitate intergovernmental coordination and expedite review of canal restoration projects within the Florida Keys. 4. By July 1, 2021, Monroe County shall identify and evaluate funding sources for the implementation of canal restoration projects and the continual operation and maintenance of canals post restoration. 5. By July 1, 2021, and each year thereafter until 2030, Monroe County shall identify canal restoration projects and implementation plans for each canal project. Monroe County shall provide a list of selected canal co restoration projects to the Department of Economic Opportunity by October Ist of each year to be completed a during the following work program reporting period. 6. By July 1, 2021, and each year thereafter until 2030, Monroe County shall evaluate its canal restoration r- needs and state and federal funding opportunities and apply annually to at least one state or federal funding CL opportunity for canal restoration projects. 0. E 7. By July 1, 2021 and each year thereafter until 2030, Monroe County shall annually evaluate and allocate 0 funding for canal restoration implementation. Monroe County shall identify any funding in the annual update to the Capital Improvements Element(CIE) of the Comprehensive Plan. 3 Packet Pg. 2848 Q2.a Updated Monroe County Comprehensive Plan Rule 28-20.140 — effective 11/26/2020 8. By July 1, 2021, the Department of Economic Opportunity shall work with each stakeholder, including but not limited to each local government, EPA, ALOE, DEP, NOAA/FKNMS, SFWMD, to facilitate intergovernmental coordination and review of alternative solutions, including reduced regulatory costs, for canal systems that are susceptible to receiving large inputs of seagrass and other accumulated organic material from near shore waters. E 9. By July 1, 2022, and each year thereafter until 2030, Monroe County shall report which canal restoration projects have been initiated and projects that were completed during the reporting period to the Department of Economic Opportunity for submission to the Administration Commission. 10. By July 1, 2022, the Department of Economic Opportunity shall work with each stakeholder, including but not limited to each local government, EPA, ALOE, DEP, NOAA/FKNMS, SFWMD, to facilitate the permitting approval of the alternative solutions identified for canal systems with accumulated organic material issues to substantially reduce those inputs to levels that do not contribute to eutrophication, hypoxia, or other water and sediment quality issues within the canals. 11. By July 1, 2023, Monroe County shall submit a plan to assess the effectiveness of completed canal restoration projects. The plan shall describe the methods, timeframes and potential funding sources to monitor the effectiveness of restoration projects based on water quality and ecological response factors. Monroe County shall consult with the DEP Division of Environmental Assessment and Restoration to develop a cost- effective plan. The Department of Economic Opportunity will coordinate review of the completed plan with the DEP. Monroe County shall account for agency review comments and modify the plan as necessary. 12. Beginning July 1, 2024, and annually thereafter until 2030, Monroe County shall assess the effectiveness of canal restoration in accordance with the plan identified in subparagraph (5)(c)11. The DEP will make monitoring information related to Keys water quality available to Monroe County to inform the assessment. Rulemaking Authority 380.0552(9), 380.05(22) FS. Law Implemented 380.0552 FS. History New 6-17-11, Amended 11-26-20. cv co cv 0 4 Packet Pg. 2849 Q.2.b r, woodr, 2 U) Canal Restoration Program Guidance Prepared for Monroe County Florida With Funding frorn the United States EPA, (Grant No. OOD8:341.8) � c a , ore) � calills 1 W �1 ' u+ .*bu17Ip,1 LI1 ,�s Fr17 m ra!h7 t n E 4�x n p a I ri z# r� r 'F». i y y U Packet Pg. 2850 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� CJ Table of Contents ExecutiveSummary...................................................................................................................vi c 1.0 Introduction.......................................................................................................................... 1 1.1 History of the Existing Canal Restoration Program ........................................................... 4 1.1.1 Restoration Success Evaluation................................................................................. 5 1.2 Purpose and Need of This Document............................................................................... 6 DocumentApproval................................................................................................................ 6 Revision of Framework Agreement......................................................................................... 7 2.0 Canal Restoration Approval Framework............................................................................... 8 2.1 Policy/Concept.................................................................................................................. 8 2.2 Program Obligations ..................................................................................................... 8 2.2.1 Regulatory Driver....................................................................................................... 8 2.2.2 Program Compliance ................................................................................................. 9 2.2.3 Feasibility of Project Implementation.......................................................................... 9 2.2.4 Framework Acceptance.............................................................................................10 2.2.5 Public Engagement and Participation........................................................................10 2.3 Determining Project Applicability .....................................................................................10 2.3.1 Management Structure..............................................................................................10 2.3.2 Staff..........................................................................................................................11 2.3.3 Roles and Responsibilities ........................................................................................11 2.3.4 Risks, Impacts, and Technical Review Analysis........................................................12 2.4 Determining Project Affordability......................................................................................12 2.4.1 Predicting Costs in the Future...................................................................................13 2.4.2 Repair and Replacement Costs.................................................................................14 2.5 Recommended Selection Process...................................................................................14 2.5.1 Workflow process......................................................................................................14 2.5.2 Oversight ..................................................................................................................15 2.5.3 Record Keeping and Reporting .................................................................................15 a 3.0 Implementation of Canal Restoration Projects.....................................................................16 3.1 CMMP and Demonstration Program Canal Restoration Technologies.............................16 3.1.1 Weed Gates/Air Curtains/Physical Barriers...............................................................17 3.1.2 Organic Removal ......................................................................................................18 3.1.3 Canal Backfilling........................................................................................................19 i Packet Pg. 2851 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.1.4 Culvert Installation.....................................................................................................20 3.1.5 Alternative Technologies...........................................................................................21 3.2 Identification and Acquisition of Canal Restoration Funds ...............................................22 3.2.1 Grant Application Requirements................................................................................22 0 3.2.2 Information Necessary to Complete Applications ......................................................24 3.2.3 Restore Act Funding .................................................................................................24 3.2.4 Florida Keys Stewardship Act....................................................................................25 3.3 Engineering Design Requirements ..................................................................................25 3.3.1 Data Acquisition........................................................................................................26 3.3.2 Design Criteria ..........................................................................................................29 3.4 Permitting Requirements and Barriers to Construction ....................................................31 3.4.1 Permit Applications ...................................................................................................32 3.4.2 Permit Information by Technology.............................................................................35 U c 3.5 Factors Affecting Ease of Implementation........................................................................44 3.6 Construction Requirements .............................................................................................45 3.6.1 Initiating the Bid Process...........................................................................................45 - 3.6.2 Evaluation of Bids and Requisite Qualifications.........................................................45 3.7 Construction Oversight....................................................................................................46 3.7.1 Performance of Monitoring and Reporting Requirements..........................................46 3.7.2 Permit Modification....................................................................................................46 _ 3.7.3 Permit Compliance....................................................................................................47 3.7.4 Construction Monitoring ............................................................................................47 3.7.5 Biological Construction Monitoring g ............................................................................48 3.7.6 Best Management Practices for Canal Restoration Projects .....................................48 3.8 Operation and Maintenance ............................................................................................50 3.8.1 Operations and Maintenance Program......................................................................52 3.8.2 Cost of Operation and Maintenance..........................................................................53 4.0 Effectiveness of Restoration Technologies..........................................................................56 4.1 Biological Improvements..................................................................................................56 c 4.2 Documented Improvements.............................................................................................57 5.0 Strategies for Improving Cost Efficiency..............................................................................59 _ 5.1 Project Grouping...............................................................................................................60 5.1.2 Benefits of Grouping Similar Projects........................................................................60 5.1.3 Area Focused Restorations.......................................................................................62 E 5.2 Establish Standard Engineering Designs.........................................................................63 ii Packet Pg. 2852 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 5.3 Permit Fast Tracking .......................................................................................................63 5.4 Development of an Approved Contractor and Unit Price Lists..........................................64 5.4.1 Standardized Qualification Process Based on Project Type......................................64 5.4.2 Pre-approve Sources of Materials.............................................................................65 0 5.4.3 Pre-Established Unit Prices.......................................................................................65 6.0 Literature Cited or Relied Upon...........................................................................................66 APPENDIXA...............................................................................................................................69 APPENDIXB...............................................................................................................................76 Tables Table 1 Canal Restoration Projects - US Army Corp of Engineers Permit Numbers................... 4 Table 2: List of Demonstration Project Success Monitoring Canals............................................ 6 Table 3: Feasibility checklist for potential canal restoration partners .......................................... 9 Table 4: Work flow process and roles and responsibilities ........................................................11 Table 5: Restoration technology technical requirement data needs...........................................28 Table 6: Canal Restoration Permitting Agency Information .......................................................31 Image Number Description Page Number Image 1 Florida Keys Early 20th Century 1 Image 2 Weed wrack build up within canal 2 Image 3 Great egret (Ardea albs) 3 Image 4 WQPP Canal restoration scoping meeting 15 Image 5 Weed gate (bubble curtain) 17 Image 6 Bubble curtain control panel 17 Image 7 Hydraulic dredge removing sediments 18 Image 8 Placement of fill material into deepwater canal 19 Image 9 Culvert installation 20 Image 10 Conceptual application of alternative technologies 21 Image 11 Allocation of the Gulf Coast Restoration Trust Fund 25 (source: restorethegulf.gov) Image 12 Survey equipment used for the collection of bathymetric 26 data Image 13 In-water benthic survey 27 Image 14 Collection of sediment cores 28 Image 15 Demonstration Project Canal 277 Big Pine, culvert 45 installation y Image 16 Florida key deer, No Name Key 48 Image 17 Multiple turbidity curtains prevent degradation of 49 Outstanding Florida Waters Image 18 Bubble curtain control panel and compressors 53 Image 19 Bubble curtain diffusers 55 Image 20 Sugarloaf key 62 Packet Pg. 2853 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 ACRONYMS AND ABBREVIATIONS ADCP's Acoustic Doppler Current Profiler CMMP Canal Management Master Plan DO Dissolved Oxygen EPA United States Environmental Protection Agency ESA Endangered Species Act FAC Florida Administrative Code FDEP Florida Department of Environmental Protection FEMA Federal Emergency Management Agency FIU Florida International University FKNMS Florida Keys National Marine Sanctuary FKRAD Florida Keys Reasonable Assurance Document FKSA Florida Keys Stewardship Act FWC Florida Fish and Wildlife Conservation Commission FWS United States Fish and Wildlife Service HOA Homeowners Association JaxBO US Army Corps of Engineers -Jacksonville issued Biological Opinion Keys Florida Keys LP Letter of Permission M&R Maintenance and Repair MOT Maintenance of Traffic MSBU Municipal Services Benefit Unit NMFS National Marine Fisheries Service NOAA National Oceanic Atmospheric Association O&M Operations and Maintenance PBO Programmatic Biological Opinion R&R Repair and Replacement RESTORE Resources and Ecosystems Sustainability, Tourist Opportunities, and Revived Economies of the Gulf Coast States Act �-- RFI Request for Information RFP Request for Proposal RFQ Request for Quote RTT Request to Tender SP Standard Permit SWPPP Stormwater Pollution Prevention Plan TMDL Total Maximum Daily Load USGS United States Geologic Survey WBIDs Water Body ID's WQPP Water Quality Protection Program c iv Packet Pg. 2854 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 DEFINITIONS Authorized The authorized representative or program manager will have been Representative appointed by the participating entity so serve as their canal restoration or Program program manager. They will also serve as the point of contact between the m Manager participating entity and the WQPP. c Mitigation Bank Mitigation banking is a practice in which an environmental enhancement and preservation project is conducted by a public agency or private entity ("banker") to provide mitigation for unavoidable wetland impacts within a defined region (mitigation service area). Mitigation Plan The Mitigation Planning process, and resulting mitigation plan, includes identification of impacts to protect resources and assessment and evaluation leading to the development of a comprehensive mitigation strategy for compensation of assessed impacts through on-site or off-site mitigation. Participating The organization (e.g. municipality and Monroe County) that has decided Entity to restore the water quality in a canal and agrees to adhere to the principals developed under the auspice of the FKNMS WQPP. Project Work to assist the project management team with the coordination of Coordinator resources, equipment, meetings, and information. They organize projects with the goal of getting them completed on time and within budget. Shall make recommendations to the participating entity's program manager regarding approval or disapproval based on the information provided by the project sponsor. Project Sponsor The individual within the participating entity's organization with overall accountability for the canal restoration project. The Project Sponsor is primarily concerned with ensuring that the project delivers the proposed benefits Standards Environmental stewardship upheld throughout the lifecycle of a canal restoration project that ensures a rule for the measure of quantity, weight, extent, value, or quality 0 c v Packet Pg. 2855 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 EXECUTIVE SUMMARY Construction of residential canals in the Florida Keys was initiated in the mid-20th century, before resource managers fully understood their impacts on local water quality and the broader coastal ecosystems. Depending upon how much fill material was required at the time of development; contractors routinely dredged the canals to a depth in excess of 20 feet. Most canals were designed as long, multi-segmented, dead-end canal networks which maximize waterfront property but resulted in little or no tidal flushing. Without adequate tidal flushing, the canals from their onset accumulated oxygen consuming sediments, nutrients and organic matter. The Monroe County Canal Water Quality Restoration Program has established under the auspice of the National Oceanic Atmospheric Association (NOAA) Florida Keys National Marine Sanctuary (FKNMS) Water Quality Protection Program (WQPP) a set of guiding principles geared toward improving canal water quality while ensuring no degradation of the Florida Keys National Marine Sanctuary and the residential communities of Monroe County. The guiding principal behind the Monroe County Canal Water Quality Restoration Program and its participating partners is the responsible use and protection of the natural environment through conservation and sustainable practices. This guidance document presents an efficient and effective managerial process for the implementation of canal water quality projects within Monroe County, FL. This document assumes that within the County any suitably equipped and established organization (e.g. municipality and Monroe County) that has decided to restore the water quality in a canal and agrees to adhere to the principals developed under the auspice of the FKNMS WQPP can do so. Determining the applicability of a project starts with building strong, constructive, and responsive y relationship with the project's designated sponsor, key stakeholders and subject matter experts. In order remain consistent with program's established principals, this guidance document recommends that a participating entity appoint a suitable representative that will be in charge of approving their program's canal restoration projects. Descriptions of proven canal water quality restoration technologies and conditions under which they apply are provided herein. For each technology, design, permitting, and construction differ based on the extent of the issue and site E conditions. In describing the applicability of each technology, "lessons learned" are included to assist the participating entity in successfully planning and implementing their restoration project. c The restoration of water quality in Monroe County's residential canals is a complex and costly venture that requires a long term commitment from its participating entities. Through the development of the demonstration projects, Monroe County and its local partners have documented areas where costs and project schedules can be managed to reduce the expense associated with implementing and operating canal restoration projects. For instance, cost efficiencies increase when formal implementation plans are adopted with known budgets and funding sources. Plans, project timelines, and budget for implementation provide important insight that set expectations for contractors and engineers. This allows contractors and engineers to plan for consistent utilization of construction crews. Additionally, dredging companies and engineering contractors will recognize efficiencies by continuous mobilization within the County. As funding for the long-range operations becomes consistent from year to year, economies of scale will influence the management of restorations. A most effective methodology for creating efficiencies is to plan: plan for restoration design and construction implementation; plan for community engagement and canal stakeholder input; plan vi Packet Pg. 2856 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 for short-term and long-term operation and maintenance; and plan for financial management of all costs.An example of how planning can result in reduced project schedules and implementation costs is permitting. It is assumed that fast tracking of environmental and construction permits for canal restoration projects is not viable. This is due to environmental sensitivities and the abundance of protected natural resources in the Florida Keys. However, the process of obtaining applicable permits in a timely manner is assisted through the implementation of the guidance discussed in this document which involves working in partnership with the applicable regulatory agencies so that they become familiar with the key aspects of the projects that could lead to delays in the process. The management principles listed herein are proven drivers of efficiencies and cost reduction. Through the development of the Monroe County Canal Water Quality Restoration Program, a comprehensive canal attribute table that contains specific information detailing the physical °' characteristics of each canal located within the County (i.e. size, shape, depth, etc.) has been developed and is available to participating entities for review. The restoration technologies completed as part of the Monroe County Demonstration Program focused on improving dissolved oxygen concentrations and addressing the lack of canal flushing. The restoration technologies, which are described in this document, have proven successful in addressing water quality issues and the aesthetics associated with degraded canals. 0 c vii Packet Pg. 2857 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� 1.0 INTRODUCTION The Florida Keys (Keys) located in Monroe County, Florida stretches approximately 110 miles from just south of Miami, Florida to Key West, Florida. As the only tropical archipelago within the continental United States, the Keys after World War II became a popular destination for tourists c and residents alike. To accommodate the post war demand for seaside living, Keys developers converted the coastal mangrove wetlands which dotted the archipelago into waterfront property. Because residents desired homes adjacent to the water with dock space for boats and developers needed a source of fill material for construction, dredged finger canals became an essential characteristic of Keys life. Today, residential canals are a permanent part of the Keys landscape. Construction of residential canals in the Keys was initiated in the mid-20th century, prior to resource managers fully understanding their impacts on local water quality and the broader coastal C `uIa r 12r4?., ' Rw4 k C ecosystems. Depending upon how much fill s All material was required at the time of development; � � contractors routinely dredged the canals to a depth ; in excess of 20 feet. Most canals were designed as long, multi-segmented, dead-end canal networks which maximize waterfront property but property resulted in little or no tidal flushing. Without 7it�x' adequate tidal flushing, the canals from their onset accumulated oxygen consuming sediments, nutrients and organic matter. � " s From 1950 to 1970, studies of residential canals that focused on water quality were conducted throughout Florida. These studies determined that canal construction created significant water quality and biological degradation within both the canals and the coastal halo (Kruczynski 1999). The deterioration of water quality occurred almost Image 1: Florida Keys Early 20tt'Century. c immediately as turbidity in the coastal waters increased as a result of the dredging. In addition to the findings published in the aforementioned studies, residents of the Keys have witnessed a steady deterioration of the water quality within their canals. A few signs of the water quality degradation reported by the residents included the darkening color of the water, objectionable odors,floating sludge, and periodic fish kills.Water quality degradation not only presents aesthetic and ecological problems, but a public health threat as well. Previous studies concluded that degraded canal water results in not only the deterioration of the environmental quality of receiving y waters but also impacts the adjacent benthic communities including seagrass and coral reefs (Lapointe and Clark 1992; Lapointe et al. 1994; Lapointe and Matzie, 1992). Subsequent studies attributed the decline in canal water quality in Monroe County specifically to the anthropogenic nutrient loading from both on-site waste water disposal and storm water run-off(Kruczynski 1999). In response to the documented water quality issues in the Florida Keys, in 2008 the Florida Department of Environmental Protection (FDEP) in collaboration with local stakeholders developed the Florida Keys Reasonable Assurance Document (FKRAD) for the purpose of 1 Packet Pg. 2858 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 addressing anthropogenic nutrient loading from on-site waste water disposal and stormwater run- off within the nearshore waters. Through the implementation of the FKRAD prescribed management activities (Wastewater Management, Stormwater Management, and the adherence to Regulatory Guidelines), it was expected that Monroe County would not be required to establish Total Maximum Daily Loads (TMDLs) to address either the nutrient loading or diminished DO concentrations in the residential canals. In the 2011 FKRAD update, the FDEP acknowledged that due to the varying nature of the residential canals within Monroe County, the actual improvement in water quality from the implementation of the three above referenced general management activities is unknown. Furthermore, the 2011 FKRAD stated that without addressing the poor circulation, weed wrack, organic sediments and water depth issues, DO concentrations in the residential Keys canal will likely not achieve Class III Marine Surface Water DO standards. Since the canals discharge directly to near shore Outstanding Florida Waters in the FKNMS, where FDEP adopted a "zero-degradation" policy for marine waters, addressing on-going canal water quality �,'i, � r impairment is of utmost importance. It was identified by the tit WQPP Canal Restoration Advisory Subcommittee that the first step to address this problem was to prepare a Canal ���{ �ts�l „r' � , Management Master Plan (CMMP) to provide an updated water quality assessment of all residential canals within the Keys, develop a methodology to prioritize need for water quality improvement, and identify appropriate restoration options. Image 2:Weed wrack build up within Relationship to Existing Federal/State Plans: The canal y Magnuson-Stevens Fishery Conservation and Management Reauthorization Act of 2006 provides for federal protection of commercial fisheries species and protection of essential fish habitat, which are both present in the Florida Keys. Canal restoration measures will help improve water quality which is vital to supporting a sustainable fish population reverse a declining fish population. The FKNMS was established by Congress in 1990. Under its authority, National Oceanic and Atmospheric Association (NOAA) and the FDEP manage all waters and natural and cultural resources surrounding the Florida Keys. 0 The Sanctuary's Water Quality Protection Program (WQPP) was mandated by Congress and developed jointly by United States Environmental Protection Agency (EPA), NOAA, the State of Florida, and Monroe County. Centralized waste water system development has been a focal effort of the Sanctuary and its WQPP over the last several years. Now that these efforts are well underway, the WQPP recognizes that addressing the impaired water quality in the canals is the next focus. In 2007, the FKNMS developed a canal water quality improvement strategy. In 2012 the WQPP Steering Committee convened a Water Quality Canal Restoration Advisory Subcommittee to manage and oversee the implementation of canal water quality improvements. Benefits to Natural Resources: The near shore tidal waters of the Florida Keys are a fragile, extremely valuable and unique ecosystem that supports many species of commercial importance, including the snapper-grouper complex, red drum, stone crab, and spiny lobster. Essential fish habitat in the Florida Keys includes critical breeding and hatchling habitats such as the extensive seagrass beds in Florida Bay and the Gulf of Mexico and coral reefs in the southern Atlantic Ocean. These habitats are extremely sensitive to sedimentation, turbidity, and nutrient loading — all problems that have been attributed to, in part, by the water quality of the Keys' canal systems. 2 Packet Pg. 2859 Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 The health of nearshore aquatic habitat has been negatively affected by oil spills and other human activity. Discharged water originating from residential canals has been shown to be a contributing factor in the long-term cumulative impact on aquatic resources located in the Florida Keys (Kruczynski 1999). By improving canal water quality, canal restoration measures will help to reverse this trend and better protect nursery habitat for protected species. In addition, improved canal water quality in the Florida Keys will directly benefit a number of marine species listed for protection under the Endangered Species Act of 1973 (ESA). These species, t which include the West Indian manatee, many 1t species of sea turtles, acroporid corals, and the small-toothed sawfish depend on healthy near shore seagrass and coral reef habitats. Improvements to near shore water quality resulting from the restoration of water quality in the residential canal systems will help to reduce E stresses on these critically important marine communities. Economic Benefits: Monroe County is home to Image 3: Great egret(Ardea aiba) the largest portion of the Florida Reef Tract, which is located in the coastal waters of five south Florida counties (Monroe, Miami-Dade, Broward, Palm Beach, and Martin). NOAA estimates the annual economic value of the Florida Reef Tract at $8.5 billion. The value is inclusive of$4.4 billion in local sales, $2 billion in local income. NOAA further attributes more than v, 70,000 full and part-time jobs to the Florida Reef Tract's existence (FKNMS Undated). Of the 70,000 jobs, more than 33,000 of those jobs are located in Monroe County alone (FKNMS 2013). As previously noted, the Keys provide habitats and critical spawning grounds for many of the commercially and recreationally-harvested fish species that populate the Gulf of Mexico and Atlantic Ocean waters. The Keys are considered the `fishing capital of the world', generating E hundreds of world records and billions of dollars of economic impact. Key West is also the 20th most valuable commercial fishing port in the nation. Improved canal and near shore water quality c will help to sustain and improve these natural resources that serve as the economic base for Monroe County. Work Accomplished to Date to Address Water Quality Impairment:A total of$900 million has been spent replacing inefficient septic tanks and cesspits with centralized waste water treatment plants and collection systems. In addition to implementing waste water and storm water improvements, Monroe County, through County and EPA grant funding, has developed a Canal Management Inventory that prioritized the need for improvement of the water quality in the canals and identify appropriate restoration techniques. A demonstration program was completed between 2014 and 2016 that evaluated the implementation of the initially selected technologies (described in Section 3.0). Additionally, EPA grant funding has been used to evaluate additional ca technologies applicable to canal restoration. 3 Packet Pg. 2860 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 1.1 History of the Existing Canal Restoration Program In 2013, Phase II of the Monroe County Canal Management Master Plan (CMMP)was completed that evaluated the conditions of the Keys canals, prioritized the need for water quality improvement, and identified appropriate restoration options for each canal. The CMMP selected technologies that could address the specific Class III water quality exceedances (dissolved oxygen and nutrients)within the canals and surrounding near shore waters. Depending upon the specific canal(s) selected, one or a combination of techniques were proposed. The CMMP provided an initial technology selection as well as, the ranking for prioritization and selection. In response to the recommendations of the CMMP, Monroe County in 2014 allocated approximately $5 million for the restoration of water quality in seven residential canals within unincorporated Monroe County. The Village of Islamorada and City of Marathon soon joined in the county-wide Canal Restoration Demonstration Program by committing funds for demonstration canal restorations. Although a preliminary ranking of canals had been performed as part of the CMMP, the first step o in implementing the demonstration program was to objectively and scientifically select canals for water quality improvements. The ranking processes implemented by the County and municipalities was approved by the WQPP Canal Restoration Advisory Subcommittee. Since the initial seven demonstration canal restorations were proposed by Monroe County, the canal restoration program has grown to include 15 residential canals throughout Monroe County and the participating municipalities (Table 1). Table 1 Canal Restoration Projects -US Army Corp of Engineers Permit Numbers Participating Canal Location Technology Permit Number entity Number Monroe County #472 Geiger Key, FL between Culvert SAJ-2014-01041 Venus and Mars Lanes NW-IF Village of #137 Islamorada, FL in Treasure Air Curtain SAJ-2014-02190 Islamorada Harbor GP-MIB Monroe County #29 Key Largo, FL Sexton Cove Backfilling SAJ-2014-02871 between Pigeon and Bunting (SP-MIB) Drives Monroe County #266 Big Pine Key, FL between Organic Removal SAJ-2014-03356 Witters and Bailey Lanes (Vacuum Dredging of (SP-MIB) muck)and Air Curtain Monroe County #290 Big Pine Key, FL between Organic Removal SAJ-2014-03356 Avenue I and J (Vacuum Dredging of (SP-MIB) permitted in muck),Air Curtain conjunction with Canal#266 Monroe County #287 Big Pine Key, FL between Air Curtain SAJ-1984-00653 _ Atlantis Drive and Hollerich Drive Monroe County #277 Big Pine Key, FL Killdeer Culvert SAJ-2015-03343 and Monroe County #83 Rock Harbor, between Organic Removal and SAJ-2016-01918 Grouper Lane and Cuda Backfill (SP-MIB) Lane 4 Packet Pg. 2861 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Participating Canal Location Technology Permit Number entity Number Monroe County #75 Key Largo, between Ocean Backfilling SAJ-2017-00605 Drive and Coral Way NW-MIB U Village of #145 Lower Matecumbe, Cortez Air Curtain Not Available Islamorada Drive Village of #148 Lower Matecumbe, Sea Air Curtain SAJ-2016-02776 Islamorada Lane GP-MIB Village of #132 Plantation Key, North Drive Injection Well Under Review _ Islamorada m City of Marathon #221/#222 Marathon, 891h Street Culvert Not Available City of Marathon #256 Marathon, Calle Ensueno Maintenance Under Review Dredging/Mangrove Trimming City of Marathon #257 Marathon, Spoonbill Drive Culvert/Berm Break SAJ-2018-01783 1.1.1 Restoration Success Evaluation As part of the Canal Restoration Demonstration Program, Florida International University (FIU) E assessed the effectiveness of the various technologies implemented by Monroe County and its U partners by comparing treated canals against nearby, unaltered controls over a period of three o years. The Canal Restoration Demonstration Program effectiveness studies were performed by FIU's Seagrass Ecosystems Research Laboratory and Southeast Environmental Research Center. A total of 19 canals were included in the Water Quality Monitoring Project for Demonstration of Canal Remediation Methods. For 18 of the 19 canals involved in the monitoring project, there were designated experimental controls that included adjacent canals of similar dimensions and orientation. The studies began prior to the installation of the first technologies in 2014. The list of canals along with their location and designated technological remediation method y are presented in Table 2. Seagrass Ecosystems Research Laboratory (Biological and Benthic Conditions) The 2018 study by FIU's Seagrass Ecosystems Research Laboratory title Status of Residential Canal Benthic Habitats in the Florida Keys and the Effectiveness of Remediation Technologies (Project Report) monitored the effectiveness of restoration technologies by using organisms such as seagrass, macro-algae, and fish as indicators of success. In addition to discussing the o prevalence of biological organisms, the project report also includes a discussion regarding the source and composition of the accumulated organic material in the canal bottoms. Southeast Environmental Research Center (Water Quality Monitoring) The Southeast Environmental Research Center studied the effects of restoration technologies on meeting State of Florida water quality standards. The Southeast Environmental Research Center's 2018 study titled, The Water Quality Monitoring Project for Demonstration of Canal Remediation Methods: Florida Keys, documented FIU's efforts at developing a monitoring program that could determine the effectiveness of the restoration technologies at improving canal water quality. A summary of the effectiveness studies completed by FIU's Seagrass Ecosystems Research Laboratory and Southeast Environmental Research Center is provided in Section 4.0 of this document. 5 Packet Pg. 2862 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� Table 2: List of Demonstration Project Success Monitoring Canals Canal ID Location Description Technology Completed m 29 Key Largo Demo Backfilling Yes Z 28 Key Largo Control for 29 Not Applicable Not Applicable o 137 Plantation Demo Weed Gate Yes 132 Plantation Control for 137 Not Applicable Not Applicable 148 Lower Matecumbe Demo Weed Gate Yes 147 Lower Matecumbe Control for 148 Not Applicable Not Applicable 266 Big Pine Demo Organic Removal + Yes Weed Gate 263 Big Pine Control for 266 Not Applicable Not Applicable 277 Big Pine Demo Culvert Yes 282 Big Pine Control for 277 Not Applicable Not Applicable 278 Big Pine Demo Pumping No 287 Big Pine Demo Air curtain Yes 288 Big Pine Control for 287 Not Applicable Not Applicable 290 Big Pine Demo Organic Removal + Yes Air Curtain 293 Big Pine Control for 290 Not Applicable Not Applicable 459 Geiger Demo Culvert No 458 Geiger Control for 459 Not Applicable Not Applicable U 472 Geiger Demo Culvert Yes 476 Geiger Control for 472 Not Applicable Not Applicable 1.2 Purpose and Need of This Document This guidance document was produced as the final deliverable for Monroe County in support of °' EPA Grant No. OOD83418. As previously referenced, Monroe County as well as, the Village of Islamorada and the City of Marathon, beginning in 2014, have implemented a series of technology driven demonstration projects focused on the restoration of water quality in residential canals. The purpose of this document is to establish a framework for the selection and implementation of �? canal restoration projects and identify aspects of the program that can be improved so that the initiative can take fullest advantage of the limited funding resources available. Currently, each canal proposed for restoration is presented to the Water Quality Protection Program Canal Restoration Advisory Subcommittee for their approval. Upon acceptance of this guidance document by the WQPP, proposed canal restoration projects will no long need to be presented to the WQPP or the Canal Restoration Advisory Subcommittee for their concurrence. Due to the number of canals that could potentially be restored and technical aspects of the restorations, and the requirements to allocate and spend certain funds within a set timeframe; upon acceptance of this document, the County and municipalities will be able to move forward with canal restoration projects in a more efficient manner. Document Approval On November 13, 2019, this guidance document received approval from the WQPP Steering Committee. In order to maintain consistency and transparency with the program's public outreach and community engagement,this document upon finalization shall be made available to the public through Monroe County's Canal Restoration website. 6 Packet Pg. 2863 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 Revision of Framework Agreement This guidance document will be in effect once approved by the EPA. The guidance may be reviewed/updated at the request of any municipality or entity that has agreed to adhere to the recommendations and principals outlined in this document. 0 c c c 7 Packet Pg. 2864 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 c� 2.0 CANAL RESTORATION APPROVAL FRAMEWORK 2.1 Policy/Concept The Monroe County Canal Water Quality Restoration Program has established under the auspice c of the FKNMS WQPP a set of guiding principles geared toward improving canal water quality while ensuring no degradation of the FKNMS and the residential communities of the Florida Keys. 2.2 Program Obligations The responsible use and protection of the natural environment through conservation and sustainable practices are core values of the Florida Keys Canal Water Quality Restoration Program. The basic principles of the Florida Keys Canal Water Quality Restoration Program are: 1. Restoration projects should strive to address existing pollution in canals and should utilize methods that do not result in water quality impacts to groundwater or nearshore waters; 0 2. Comply with all applicable Federal, state and local environmental laws, statutes, regulations and other environmental requirements; 3. Contractors shall endeavor to protect water quality beyond what is described in the applicable permit conditions; 4. Assess potential environmental impacts associated with the design, construction and operation prior to commencing work; 5. Minimize solid waste generation and the potential release of pollutants into the environment first through source reduction, secondarily through reuse and recycling, and �? finally through treatment and disposal; 6. Maintain policies and processes for the safe and efficient use, tracking, storage and disposal of materials and waste products; c 7. Strive to obtain the best value by considering life cycle environmental impacts along with cost and functional performance of the restoration technologies; 8. Reduce resource consumption by eliminating wasteful practices and promoting efficient use, and by evaluating and implementing feasible and practical conservation measures; and c 9. Maintain a working relationship with stakeholders. 2.2.1 Regulatory Driver The FKRAD was approved by the FDEP for Nutrients in 2008 and provided to the EPA in February 2009. The FKRAD was updated in 2017 for two major reasons: 8 Packet Pg. 2865 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • To provide the status of the management activities defined in the original RAD, and • To address DO impairments in certain segments or Water Body ID's (WBIDs) in the Florida Keys. m It is expected that the Nutrient FKRAD will support placement of the Florida Keys in category 4b o for nutrients (i.e., impaired but a TMDL is not required because the waterbody will attain the narrative nutrient criterion as a result of completed or proposed measures as part of an approved Reasonable Assurance)and support placement of the DO impaired segments in category 4e (i.e., impaired but recently completed or ongoing management activities are underway to restore the water body). Surface water quality criteria for the State of Florida can be found at Florida Department of State website: https://www.firuies.org/gateway/RuieNo.asp?title=SURFACE`/` 20WATE R%20Q UAL Y%20S AN DARDS&I =62-302.530. If the waterbodies not meeting the DO water quality standard do not show improvement in subsequent assessments, TMDLs may be needed to specifically address DO. However, the implementation of this program could be sufficient to either update the FKRAD to address DO, not just nutrients, or maintain the assessment category 4e designation. 2.2.2 Program Compliance o The concepts and policies detailed herein were included to ensure that entities who endeavor to abide by the principles listed in this document are able to successfully implement canal restoration projects. 2.2.3 Feasibility of Project Implementation It is recommended that before any entity proceeds with their initial canal restoration they conduct a feasibility analysis of their management processes to ensure their capacity to review proposed projects, manage the implementation of canal restoration technologies, monitor the success of canal restoration projects post restoration, and fund the construction and operations and maintenance. The steps are detailed in Table 3. Table 3: Feasibility checklist for potential canal restoration partners Managerial Steps Participating Entity's Responsibilities o Project Selection Verify the water quality in the proposed canal is degraded and needs improvement through the implementation of restoration technologies. Document the source of impairment. Identify why the selected restoration technology will improve water quality Technical Review of Maintain staff or technical consultants that are qualified to evaluate the perspective Documentation restoration technologies Site Access Confirm homeowners are willing to sign access agreements. Canal Ownership Confirm who"owns"by right the canal to be restored. Ownership varies throughout the County. Funding Verify funding for the design and permitting, restoration, and operations and maintenance. Operations and The responsible entity for the operations and maintenance of the proposed restoration Maintenance shall be a viable party for the entire Iifec cle of the project. CJ Roles and Responsibilities Identify and clarify the roles and responsibilities of all participating partners, participating entity, and project approvers. Cost Analysis Establish long-range costs and document within the funding plan the performance Documentation standard to be achieved and maintained. 9 Packet Pg. 2866 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 2.2.4 Framework Acceptance The framework or policy recommendations outlined in this document do not constitute a contract. However, adherence to the principals detailed herein establish an intent to follow established methods and protocols previously reviewed by the FKNMS WQPP Canal Sub-committee and implemented by the Florida Keys Canal Water Quality Restoration Program. 2.2.5 Public Engagement and Participation Stakeholder engagement is the basis for building strong, constructive, and responsive relationships that are essential for the successful management of a project. The Florida Keys Canal Restoration Program and its participating partners shall be willing to work collaboratively with peoples living within the geographic vicinity of a proposed canal restoration. Monroe County and municipalities have hosted a series of public meetings designed to engage the public at every step in the development of the Canal Restoration Program. As part of US EPA Grant #OOD26914, Monroe County in 2015 administered an outreach program that actively engaged the public and regulatory community. The outreach program was comprised of three public presentations held at community centers in the upper, middle, and lower keys. As a follow c to the March 2015 presentations, Monroe County in August 2015 hosted on-site educational seminars at two active canal restoration projects. Since the completion of the outreach program in 2015, the public has remained engaged in the development of the program through the Canal Restoration Advisory Subcommittee meetings and County hosted workshops. Additionally, Monroe County, FL has created a webpage devoted solely to canal restoration. The website assists interested parties by presenting the programs latest developments and provides a library of materials associated with the programs development. Additionally, the canal restoration y website provides links to canal focused scientific resources and databases. https://www.monroecounty-fl.gov/598/Cana1-Restoration Input in the completion of this document is key to continuing the canal restoration program's long term strategy of working with residents, municipalities, and stakeholders who have an interest in ensuring that the water quality in the residential canals remain compliant with the state water quality standards. c 2.3 Determining Project Applicability It is recommended that each participating entity appoint an authorized representative (i.e. program manager) that will be in charge of approving their program's canal restorations. The appointed representative from the entity shall identify and review potential canal restoration projects. Determining the applicability of a project starts with building strong, constructive, and responsive relationship with the project's designated sponsor, key stakeholders and subject matter experts. Establishing a comprehensive understanding of the program is key to managing scope and expectations based on current and future funding levels. 2.3.1 Management Structure Consistent with the policy and the objectives and principles described herein, it is recommended that the participating entity establish a management program complete with project managers, 10 Packet Pg. 2867 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 coordinators, and planners that will be responsible for reviewing and evaluating the validity of perspective canal restoration projects. 2.3.2 Staff m Team members shall be able to perform the actions in a competent and efficient manner. Personnel within the participating entity with direct responsibility for the project's approval and performance will have the knowledge, skills, and experience necessary to perform their work, including current knowledge of the regulatory requirements. Personnel will also possess the knowledge, skills, and experience to implement the specific measures and actions required under this guidance document. 2.3.3 Roles and Responsibilities It is recommended that participating entities' align their canal restoration policies with this guidance document and that participating entities provide annual updates to WQPP and representative public on the status of restoration projects. Charting the relationships of various partners can clarify the appropriate roles and responsibilities for project implementation. This example (Table 4) of a potential Monroe County project demonstrates the complexity of roles and c responsibilities of canal restoration in general. It is recommended that the work flow process (2.3.1) include similar details. Table 4:Work flow process and roles and responsibilities Partners Roles Documentation r- Funding Operations Oversight Tools EPA Grants Technical Assistance Regulations • Grant Awards, Grant Report Audits, Permits • Grant Awards, Florida DEP Grants Technical Assistance Regulations/Permit • Grant Reports • Audits, Permits USACE Not Applicable Project Authorization Permitting • Clean Water Act 404d Permit FKNMS Not Applicable Project Authorization Permitting • Special Use Permit SFWMD Not Applicable Project Authorization Permitting • ERP U Define _ o State Terms in • Adopted bills;funds Appropriation responsibilities and Legislature authority Legislation management tools • Memorandums of _ • Taxes • Maintenance of Agreement; Homeowners Adjacent to . Fees treatment systems, Inspection reports . Preventative Canals • Special • Inspections, Maintenance Plans, .2 Assessments • Volunteer clean up • Special Assessment Rolls y • Special Tax . Capital Program • Ordinances District oversight Management for Monroe • Special Restoration • MOA with • Annual reports on canal County or assessments • Annual Inspection homeowners restoration progress CJ • Inspections and • Annual reports on Participating • User fee • Emergency enforcement enforcement Entity management Management for • Budget extreme weather ' Implementation management hazard of design, 11 Packet Pg. 2868 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Partners Roles Documentation • Grant application Public education permitting, and construction CJ The participating entity, in collaboration with appropriate and relevant third parties, will establish, maintain, and strengthen as necessary an organizational structure that defines roles, responsibilities, and authority to implement this guidance document. Specific personnel, including management representative(s), with clear lines of responsibility and authority should be designated. Key environmental and social responsibilities should be well defined and communicated to the relevant personnel and to the rest of the participating entity's organization. 2.3.4 Risks, Impacts, and Technical Review Analysis The process of identifying risks and impacts will consist of an adequate, accurate, and objective evaluation and presentation of the proposed canal restoration project, prepared by competent professionals. For projects posing potential impacts to infrastructure and the environment, or where technically complex issues are involved, participating entities may need to involve external experts to assist in the risks and impacts identification process. 0 The extent of project review required for each proposed canal restoration should give due consideration to the complexity of the subject matter and relevance of the proposed restoration. The program manager shall assign one or more individuals, sufficiently knowledgeable in the relevant field, to provide technical review (if required) for a proposed project. The program manager may assign the technical review to themselves, if they have sufficient background in the scientific subject of the work, and if the complexity, potential controversy and significance of the work do not warrant broader review. The project coordinator for the respective entity shall make recommendations to the program manager regarding approval or disapproval based on the information provided by the project sponsor. It is recommended that the technical reviewers document issues with proposed canal restoration projects, including any pertinent details. Additionally, it is recommended that staff document the process by which the issue was resolved. If the participating entity determines that knowledge of the issue and solution would benefit the Florida Keys Canal Restoration Program partners, they should feel free to communicate their lesson learned with the program's participants. 2.4 Determining Project Affordability Canal restoration projects represent a major long-term investment on the part of the participating entity. It is imperative, the costs of doing so are fully understood as early in project planning process as possible. While a participating entity may have sufficient funds to implement a canal restoration project, they may not have sufficient funds or funding mechanisms necessary to maintain the project long-term. It may be that the future costs ultimately affect the overall financial viability of project. The key to conducting a meaningful cost analysis of a canal restorations life a cycle is to identify and quantify all costs associated with a canal restoration project. This includes an evaluation of the initial implementation costs as well as, those that occur throughout the life of the project. The common approach is to select a time horizon based on the needs of the project or community and to factor in replacement costs. For canal restoration projects in particular, the life of the project could be in perpetuity; however, in the case of infrastructure projects, a time frame of 10 or 15 years is commonly used based on past experience with various technologies. 12 Packet Pg. 2869 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� One way of accurately estimating all costs over the life of the project is to determine the initial costs and the future costs. Initial costs comprise all planning, acquisition, and labor costs needed to implement the canal restoration project. The future costs may include but not be limited to costs for energy, financing, O&M, and replacement costs. A key component of predicting the long-term costs associated with a restoration project is understanding inflationary pressures such as how energy costs and replacement costs might increase. In determining project affordability, the key is to identify the co sfs: full range of costs over time and to arrive at an estimate of -� cash flows out (expenses related to the system) and cash Labor costs (internal staff, flows in (energy savings, taxes related to the service, HOA consultants, contractors, fees, etc.) for each year over the life of the project. It is etc.); recommended that when developing a conceptual restoration plan, the participating entity begin questioning Design (Engineers); and comparing equipment vendors on the capital and operating costs of equipment and services they provide. Potential equipment: Example budgetary planning sheets from typical restoration culverts, diffusers, pumps, projects are provided as Appendix A. control boxes, etc.); 2.4.1 Predicting Costs in the Future Fill material and disposal costs; and If a particular restoration technology requires O&M or has a high replacement cost, it is important for the participating Operations and entity to understand how those aspects of the project management y management would affect not only the affordability of the project and but the levels funding support necessary beyond its implementation costs. Furthermore, if a participating entity is not able to permit and construct a project within a year or two of the projects conceptual development, project costs must take into account the actual implementation timeline in order to, plan for adequate sources of funding, inflation impacts, and other project expenses that would be incurred during the year of E construction (whether it is 3, 5, or 10 years from now). To assist in controlling costs, one option is to get a vendor under contract during the planning stage and seek out price guarantees. It is c important to develop models that predict future project costs (construction, O&M, replacement, energy, etc.) and to update the models periodically to address how supporting revenues need to be adjusted as well. While using the value today's dollars and prices in predicting future costs is often done, it is recommended that participating entities adjust their future cost predictions for inflation. There are a host of ways to estimate inflation. One is to look at established cost or price indices as a starting point for your estimate. The Consumer Price Index, is often use to calculate the "inflation" rate. However, there are also industry standards that are useful for determining how inflation can affect future construction costs. A method that specifically applies to capital infrastructure projects is the Construction Cost Index (CCI). The CCI is calculated by Engineering News-Record and tracks the change in price for a specific combination of construction labor, steel, concrete, cement and lumber using data from 20 cities across the United States. The price for this combination of construction labor and materials is probably much closer to the actual costs that a participating entity may pay for its canal restoration projects. NOTE: Due 13 Packet Pg. 2870 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 to the remoteness of the Florida Keys, costs associated with deliveries and mobilizations may be under represented. 2.4.2 Repair and Replacement Costs Vital to the long-term success of a canal restoration program is the responsibility of a participating entity to clearly identify the process for both a system's operation and maintenance as well as, how repair and replacement (R&R) issues would be handled beyond a technology's construction and installation. This includes how replacement costs will be planned for in case of a catastrophic event or extreme weather phenomenon. This includes where repair and replace funds come from, and how such funds would be distributed. As noted above, whether the long-term O&M is funded through an instrument such as a Municipal Services Benefit Unit(MSBU) or an HOA fee, the taxes or fees would need to be adjusted over time to account for inflation. If the need for replacement is associated with a Presidential Disaster Declaration, costs for replacement may be recouped through the Public Assistance and Individual Assistance programs authorized by the Robert T. Stafford Disaster Relief and Emergency Assistance Act and administered by the Federal Emergency Management Agency (FEMA). 0 2.5 Recommended Selection Process These guiding principles and processes shall not be construed as regulations issued by a governing body but rather an advisory process that ensures that participating entities are conducting the programs in alignment with the Canal Restoration Program. Proposed restoration projects should be submitted for review to the participating entities program manager for project approval. It is recommended that the program manager for a participating entity serve as the point of contact between the participating entity and the WQPP on any updates involving current and future projects. 2.5.1 Workflow process The initial request for review shall contain these elements: ' • A brief overview of the project work from the feasibility analysis, • Ajustification statement for the project request, • Goals and Objectives (what is the purpose of doing the work), • Name of the Project Sponsor, • Scope of Work, • Partnership roles, responsibilities and involvement, • Verification of canal ownership, • Commitment of the canal adjacent property owners to grant access, • Initial estimated cost, 14 Packet Pg. 2871 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • Long-term operations plan, and • Identified funding source with request approval from the Annual Budget process if applicable. 2.5.2 Oversight Oversight is essential to ensuring a canal restoration's success, as well as proper stewardship of the community's resources. Management oversight of they selection, review, and implementation of restoration `. 't projects will be the responsibility the performing entity and it's appointed representative. It is recommended t, that the participating entity develop the following rocesses: A° • Establish a compliance program to ensure ; proper engineering systems and budget Image 4:WQPP Canal restoration scoping U controls, meeting • Regularly evaluate the operations and maintenance of a canal restoration; and • Ensure that the participating entity can financially support the long-term operations and management. 2.5.3 Record Keeping and Reporting Each participating entity will be responsible for providing the FKNMS WQPP with updates on the status of canal restoration projects they have chosen to implement. This could be through either updates from the participating entities at WQPP meetings or through emailed communications (e.g. newsletters, website updates, etc.) to the WQPP members. All monitoring data collected by participating entities will be made available to stakeholders should they request information on the success of said projects. 0 c 15 Packet Pg. 2872 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� 3.0 IMPLEMENTATION OF CANAL RESTORATION PROJECTS Establishing the cost of canal restoration is dependent upon several key factors including but not limited to the following: c 1) The current water quality condition of the proposed canal; y 2) The suitability of restoration technologies to address the documented water quality issues, 3) Issues related to the ease of permitting, 4) The willingness of adjacent homeowners to provide financial support; 5) Landowner willingness to grant access to the participating entity for the restoration of the canal; 6) The availability of sufficient grants or other funding to share in the cost of the restoration; and 0 7) Willingness and operational capacity of the homeowners or homeowners association to maintain the canal once restored. Each of the above referenced variables and others not listed impact the ability to implement restorations as well as, maintain the canal once the restoration is complete. The process used by the Monroe County Canal Restoration Program and its participating partners to select canals for restoration is outlined in Appendix B. The technical discussion describes the y ranking process developed as part of CMMP, provides a list of considerations that should be addressed early in the planning process, and presents a list of criteria that can be used to guide the participating entity towards which canal is most suitable for restoration. 3.1 CMMP and Demonstration Program Canal Restoration Technologies Monroe County has developed a comprehensive canal attribute table that contains specific information detailing the physical characteristics of each canal located within the County(i.e. size, shape, depth, etc.). The restoration technologies completed as part of the Monroe County Demonstration Program and the following Phase II of the CMMP focused on improving dissolved oxygen concentrations and addressing the lack of canal flushing. They include: • Removal of accumulated organics from within canals; • Weed gates, air curtains or other physical barriers to minimize additional organic accumulation in the canals; • Culvert connections to facilitate flushing; • Backfilling to prevent occurrence of deep stagnant zones; and • Capping which is used to encase organic sediments. The following section provides a brief description of each of the above listed technologies along with the type of canal conditions where the technology is most applicable. 16 Packet Pg. 2873 Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.1.1 Weed Gates/Air Curtains/Physical Barriers Technology Description Weed gates can be either comprised of mechanical devices or air curtains that physically block seaweed from passing through the device's barrier. Weed gates are designed to prevent floating, c wind-driven flotsam (i.e. organic debris)from entering and accumulating in man-made canals where y it typically sinks and fouls the water.A number of the existing homeowner groups have installed weed gates that consist ' of a floating arm that contains hanging flaps often made of rubber. The gates are placed at a canal mouth to prevent z floating seaweed from entering into the canal. The gate swings open when applied with slight pressure to allow access for boat traffic. An alternative design is a static weed barrier comprised of pilings and plastic netting coupled with a section of a submerged air discharge hose that creates an it y, ''oll�<<Iti�fViyV r air curtain allowing boat traffic. The design of the weed Image 5:Weed gate(bubble curtain) gates should consider the natural movement of seaweed M along the shoreline and configured parallel to land such c that dead zones adjacent to the canal are not created where seaweed can accumulate. Although homeowner constructed weed barriers have been shown to be effective, the demonstration program evaluated the effectiveness of air curtains which are less likely to become an obstruction to boat traffic, require less maintenance, and more easily permitted. The air curtain developed as part of the demonstration program relied upon a series of diffusers and pumps that create a continuous bubble curtain which impedes the migration of seaweed into the canal under normal weather conditions. The components of the system are placed along the canal bottom at the mouth of the canal and at a depth that is sufficient to create a strong bubble curtain. The depth of the diffusers should be such that the typical draft of canal-stored vessels can clear the system without incident. System components of the air curtains consist of air hoses, air emitters (aka diffusers), and a regenerative blower. A staging area and a power supply (electric or solar panel)for the regenerative blower are required. A ,w comprehensive operation and maintenance plan is required to ensure continued effective operation. ' � [" Application Image 6: Bubble curtain control panel Technologies that reduce the input of seaweed-loading into a canal are most applicable to canals that are subject to high loadings of seaweed and flotsam. The orientation of the canal mouth and y location in relation to open water affect the susceptibility to entry of wind-driven weed wrack. The configuration of the canal also affects whether the weed wrack will exit the canal or be trapped in a `dead end' canal section. Lesson Learned The following considerations should be given when proposing a weed gate/air curtain project: 17 Packet Pg. 2874 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • If the compressors and distribution manifold are placed too close residences, noise from the system may become a nuisance; • The control system and pumps should be placed at an elevation that reduces the likelihood of flooding; 0 • It is recommended that discussions with homeowners regarding "private property access" v, and "approval to place equipment" agreements begin before moving forward with the design phase; and • Due to shallow entrances into the canal, navigation issues associated with the placement of equipment should take into consideration draft requirements for the canal's vessels. 3.1.2 Organic Removal Technology Description The decomposition of the weed wrack material that has settled on the canal bottom can consume large � '� amounts of dissolved oxygen, and can deplete the viability of a canal's ecosystem and the adjacent near-shore waters. Organic removal consists of removing the decomposed weed wrack materialk � & present at the bottom of a canal. Due to the fine q , x particle size of the decomposed weed wrack material, mechanical excavation of the organic material is difficult, although possible under certain circumstances. Therefore, a hydraulic dredge is the preferred means of removal of the organic material. A logistical limitation of the use of the hydraulic ca Image 7: Hydraulic dredge removing sediments dredge is the large volume of suspended sediment and extracted water that requires stabilization, and the space requirements associated with the stabilization process. Typical hydraulic dredging projects utilize constructed dewatering stabilization cells that are built with earthen berms. However, space limitations in the residential canal neighborhoods require an alternative method to dewater the dredged material such as geo- tubes or mechanical dewatering presses. Geo-tubes are comprised of specially formulated geo- textile that allow for dredged material to be placed into the geo-tube, and for the entrained water to be decanted from the dredged material. Mechanical dewater systems use pressure to separate the water from the organic sediments. Several site characteristics must be evaluated prior to implementation of an organic removal project. These include assessment of navigational capacity 2 to allow access of the dredging equipment, available space for dewatering staging area, access of transportation vehicles to the staging area, and characterization of the sediments to determine appropriate disposal options. Application Monroe County has conducted a Keys-wide bathymetry survey which provided approximate soft sediment thickness data for the canals evaluated in the CMMP. Canals with a soft sediment thickness greater than 0.75 feet were considered potentially suitable for organic removal. Additional site-specific information such as percent organic content will be necessary to verify 18 Packet Pg. 2875 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 potentially suitable canals. Good candidates for organic removal are canals that have had significant accumulations such that the canal bathymetry doesn't support the implementation of a capping project. Lessons Learned 0 It is recommended that any canal that undergoes organic removal due to the migration of seaweed also include the installation of an air curtain or similar weed barrier to prevent future degradation as part of the restoration process. Additional lessons learned include the following: • As a result of the Florida Keys receiving the designation of Outstanding Florida Waters (OFW), the applicant (i.e. participating entity) will need to be prepared to address polymer residual and toxicity concerns in their Environmental Resource Permit application; • Due to the space needed to accommodate the equipment used in the dewatering process, it is recommended that the participating entity consider canals where vacant lots exist and private property approvals are likely to occur; • The participating entity should consider the amount of time the canal will be closed and what c impact that may have on the canal's residents; and • The results of the effectiveness studies indicated that in areas where muck was built up outside of the canal, upon implementation of the restoration technology, muck sloughed back down into the canal. The regulations associated with the removal of muck from outside the canal are very prohibitive in nature. 3.1.3 Canal Backfilling Technology Description Canal backfilling would be performed in order to decrease the depth of a canal to promote flushing and reduce/eliminate stratification. Prior studies have indicated that approximately only the upper 6 feet of the canals will naturally flush in the shallow Keys near-shore environment(Kruczynski 1999). Filling in of abrupt changes in depth or sink areas to six or eight feet would assist in eliminating stagnation and increasing circulation. Flushing is typically hindered by the fact that both the canal sill and the waters surrounding the Keys are typically shallower than the canal bottom. This difference in depth hinders mixing in the lower depths of the canals. This option would work best in canals where there was sufficient energy, either from tidal fluctuations or wind force, to promote flushing at the canal mouth once the deep stagnant zone has been eliminated. Application c Canals with an average canal bottom depth greater than 10 feet may be candidates for backfilling. Due to the high unit cost of backfill, further hydrodynamic evaluation is suggested to determine the quantity and placement of fill that is required to provide adequate flushing for a canal, prior to initiating the backfilling activities. Lesson Learned E 19 Packet Pg. 2876 Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Participating entities should consider the following lessons learned when proposing a backfill project: • In order to document existing conditions, it is recommended that the participating entity collect detailed pre and post construction video of property attributes located along the canal as well as, the properties located A' along the proposed traffic route through the neighborhood; • Confirm that there will be sufficient space available to stage equipment and materials { needed for a backfill project; • It is recommended that discussions with _"� homeowners regarding "private property access" and "approval to place equipment" Image 8: Placement of fill material into deepwater agreements begin before moving forward canal with the design phase; • The participating entity should consider the amount of time the canal will be closed and what impact that may have on the canal's residents; and • Backfill projects require the delivery of large amounts of fill material that are transported to the site via dump trucks. This process can result in traffic impacts to residents as the trucks enter and exit the project area. 3.1.4 Culvert Installation Technology Description Culverts can be installed between canals or between canals and thin land strips to improve flushing within them in a similar fashion to flushing channels. Based BE T on canal-specific hydrology, lar er or smaller diameter : P g culverts may be more applicable. Hydraulic studies by qualified engineers need to be performed to confirm i, r � � tier t7 that the correct type and size culvert is proposed. Culverts could be installed in any Iithology, but would still need an energy source to induce flushing such as a channel at the outfall mouth. Image 9: Culvert installation It is recommended and often required that culverts are equipped with manatee grates to prevent entry of wildlife or humans. Culverts are prone to clogging and require routine maintenance. Application 20 Packet Pg. 2877 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Installation of a flushing culvert is recommended if it is apparent that a connection between a canal and another canal or the near shore waters could potentially increase flushing. Field verification of the applicability of a culvert installation will be required at each proposed canal location. Lesson Learned 0 Participating entities should consider the following lessons learned when proposing a culvert project: • It is recommended that the installation of a culvert be coupled with the construction of an air curtain to prevent the unwanted migration of seaweed; • Homeowners may become concerned with the increased movement of debris (e.g. sea weed) through the canal as tidal flow into and out of the system increases; • As a result of the land disturbance requirements for the installation of culverts, private property approvals are key; and • The installation of culverts requires the use of heavy equipment. The participating entity should confirm early on in the selection process that there will sufficient staging area available. 3.1.5 Alternative Technologies To provide additional options for treatment to the eutrophic and hypoxic waters in Florida Keys residential canals, Monroe County under EPA Grant No. X7-OOD40915-0 evaluated potentially cost-effective passive and low-energy technologies. Technologies evaluated include seagrass planting, macro-algae farming, oyster aquaculture, floating mangrove islands and bioremediation. Alternative technologies were evaluated based on development status (research, pilot study, and large scale implementation), effectiveness, ease of Implementation and permitting, footprint and homeowner disruption, and cost. The desktop study and technology evaluation showed best alternatives for Florida Keys residential canals are: c • Macro-algae farming: primarily due to macro-algae tolerance tohig ability to t introduce eaters, the e' �w t �t., y "Of,P,'inA� different locations in the water column to take advantage of limited light on highly turbid R ` '' c canals, their quick cultivation time (45-60days), and their high biomass demand which can offset the maintenance cost; Image 10: Conceptual application of alternative technologies .. and • Floating mangrove islands: primarily due to the well documented ability of mangrove plants to filter water and the high success expectation for this technology. 21 Packet Pg. 2878 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Unfortunately, the above reference technologies have not been proven and are not recommended for use through the Monroe County Canal Restoration Program. Monroe County and its partners continue to evaluate alternative technologies that can be cost effectively implemented. One such technology that have been effectively implement is capping. As other technologies are proven useful in improving water quality, they will be added to future revisions of this Canal Restoration Guidance document. Capping Technology Description Capping would be performed to decrease the depth of a canal to promote flushing and reduce/eliminate stratification. Clean fill material is placed in a canal using an excavator to effectively bury the organics and prevent the consumption of oxygen from the water column. Application Canals with a soft sediment thickness greater than 0.75 feet and water depth greater than 10 feet are considered potentially suitable for capping. Additional site-specific information such as percent organic content will be necessary to verify potentially suitable canals. Good candidates for capping are canals that have a significant amount of organics accumulated on the canal bottom but not so significant that the canals requires the removal of organics to ensure that stable bathymetry persists. It is recommended that during the project design phase the appropriate gradation of fill material is determined through an evaluation of sediment cores to ensure that gas does not get trapped as the material is placed on the canal bottom. Lesson Learned The lessons learned presented for the backfilling apply to capping projects. 3.2 Identification and Acquisition of Canal Restoration Funds Attainment of sufficient project funding is one of the most challenging steps in any restoration project. Multiple federal and state grant programs from the FDEP and EPA are available to support potential water quality and ecosystem improvement projects considered for the Florida Keys canals. Each program has different eligibility and matching requirements, but most can be applied to the various canal restoration techniques. It is recommended that agency managers for each - grant program be contacted in advance to confirm the funds can be applied to restoration projects and determine what types of submittals increase the likelihood of a successful proposal. 3.2.1 Grant Application Requirements The project owner or participating entity seeking additional funds should be prepared to provide the agency (i.e. grantor) with sufficient information about the proposed project. Applicants need to describe in detail the extent of the existing problem and how what the municipality (or similar entity) is proposing to address the water quality problem. The following terms defined below are commonly used in funding applications. 22 Packet Pg. 2879 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • Project Description: The applicant should be able to briefly describe why they are requesting funding and what type of project is being proposed; • Project Location Details: The location of the proposed canal restoration project. Information should include the canals geographic location expressed in terms of geographic coordinates (i.e. latitudes and longitudes) as well as local street address (state, city, and cross streets); y • Description of the type of project proposed for funding: The description should explain in detail what type of canal restoration technology is being performed and why it applies to the perspective canal; • Project Objective: Typically the main objective will be to enhance water quality, while secondary objectives might include preventing the migration of seaweed into a canal; • Project Work Plan: The purpose of a project work plan is to promote the efficient, organized, and timely completion of the project according to schedule, budget and contract requirements. A project work plan for the purpose of a grant application will have sufficient details regarding what is being planned and what protocols must be met to complete the c project; • Project Budget: While the application may not require an itemized budget, the total cost to deliver a completed project must be determined prior to providing the project budget in the grant application; • Applicant Matching Amount: Matching grants are an effective means of funding canal restoration projects, especially those with active community support. The concept of a matching grant is simple. State or local governments designate funds to go to particular types of projects. Local municipalities or various organizations within the community can then develop project proposals and apply for the grant. If accepted, the granting entity (e.g. state or local government) will match the applicant's (e.g. municipality or organizations) contribution to the project, generally at a 1:1 or 2:1 match, but it could be set up for any level of match; Cooperating Partners/Match: It is also important c • to note that community labor and materials, not just financial donations, count towards they it+ matching grant donation. Thus, neighborhood groups that have time, but not money to donate, can still apply for grants, giving them an effective r o way to fund local improvement projects; ` • Project Milestones: Milestones are tools used in project management to mark specific points along a project timeline. These points may signal anchors such as a project start and end date, a need for external review or input and budget checks, among others. In many instances, milestones do not impact project ca duration. With regards to the restoration of canals, project milestones might be the posting of the construction bid documents (i.e. request for proposal); and 23 Packet Pg. 2880 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • Project Deliverables: Typical deliverables associated with canal restoration projects are design plans and permits but a deliverable could be any report or documentation that indicates that tangible progress has been made. 3.2.2 Information Necessary to Complete Applications c Specific forms are required for many of the applications to provide specific details about how the information must be formatted. Generally, however, the information requested is very similar among grant programs. Project information can be obtained largely from the information provided from the descriptions developed for each restoration technology. More detailed information such as project milestones and deliverables will need to be developed from the project information as it becomes available. Specific budget information will need to be provided using the individual grant formats. Information on the project team will also need to be assembled prior to submittal. The particular grant applicant needs to determine the amount of matching funds and cooperating partners' contributions available for their respective project. As noted above, requirements for funding match can vary from 0% to 50%, and additional points may be awarded for providing more than the minimum amount. Community involvement and benefit is also generally encouraged and will need to be considered when completing the applications. Most applications require only conceptual plans and a reasonably well-developed budget 3.2.3 Restore Act Funding The "Resources and Ecosystems Sustainability, Tourist Opportunities, and Revived Economies of the Gulf Coast States Act of 2012 (RESTORE) dedicates 80 percent of all administrative and civil penalties related to the Deepwater Horizon spill to a Gulf Coast Restoration Trust Fund (Trust Fund)and outlines a structure by which the funds can be utilized to restore and protect the natural resources, ecosystems, fisheries, marine and wildlife habitats, beaches, coastal wetlands, and economy of the Gulf Coast region (Image 11).The U.S. Department of the Treasury is responsible for issuing compliance and auditing procedures for the entire Act and procedures for two grant programs administered by Treasury. The passage of the RESTORE Act provides significant federal funding to accomplish a multitude of projects geared toward Keys canal water quality improvements. There are multiple RESTORE Act funding sources that could potentially be used for canal restoration projects. Within Florida, the FDEP is in charge of evaluating and approving funding for projects. In an effort to obtain funds for canal water quality restoration, Monroe County has previously submitted to the FDEP a request for funds titled "Monroe County Canal and Stormwater Water Quality Improvements."The aforementioned request has been granted and is actively providing funds for canal restoration projects. c An additional source of funds related to the RESTORE Act are associated with a local allocation of funds referred to as the "Local Pot." Monroe County has created a RESTORE Act Local Advisory Committee to review, rank and recommend projects for the use of these funds. RESTORE Act Local funding covers a broad range of eligibility requirements. 24 Packet Pg. 2881 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 v(ood December 12, 2019 3.2.4 Florida Keys Stewardship Act The Florida Keys Environmental Stewardship Act was passed by the Florida State Legislature and signed into law in 2016. The law secures a recurring set-aside of Florida Forever funding for state land acquisition in the Florida Keys. In addition, it supports state appropriations for water quality projects in the Florida Keys, and expands the types of water projects eligible for state funding. The Florida Keys Stewardship Act (FKSA), authorized use of funds for canal restoration amongst other types of water quality improvement projects.The ultimate authorization and annual appropriation amounts depend upon what our total need is and how much we can reasonably spend in a year, and in continued consultation with the local governments and with House `Supplemented by interest generated by the t a a [ailril1kabilitM n Trust fund(50!RESTORE n Trust Fund Council,25%Science 20f© ts38 Program,25%CC7E) _sow C: ¢, tU U 35% 30% 30% 2.5% 2.5% g f t W 9 • i $d q; W Image 11:Allocation of the Gulf Coast Restoration Trust Fund (source: restorethegulf.gov). leadership (Monroe County, 2018). In 2018 alone, the Florida Legislature approved $5 million for water quality projects in Monroe County. 3.3 Engineering Design Requirements The engineering design process is a methodical series of steps that engineers use in creating functional products and processes. Among the fundamental elements of the design process are the establishment of objectives and criteria, synthesis of conceptual solutions, analysis of e alternative designs, construction, testing, and evaluation. For projects located in environmental sensitive areas, professional scientists familiar with the project area perform complementary studies that provide guidance to the design engineers and permitting professionals so that potential impacts to protected resources can be either minimized or eliminated. The following subsections describe the design process as it was developed during the Monroe County Canal Demonstration Program. 25 Packet Pg. 2882 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.3.1 Data Acquisition Prior to the design and permitting of a canal restoration project, field engineering and ecological surveys of the canal should be performed in order to determine existing conditions of the ,= n ) hydrologic, structural, and ecological environments. Although each of the restoration technologies may require the same typet� of survey, the extent to which a study is required is based on the proposed technology and its anticipated footprint. Additionally, the results of the aforementioned surveys will guide engineers in x f+ determining the applicability. The following describes each of the studies typically required for canal restoration projects: Bathymetric Survey: Bathymetric surveys allow engineers and designers the ability to measure the depth of a waterbody as well as, map the underwater features of a waterbody. Multiple methods can be used for bathymetric surveys including multi- beam and single-beam surveys, acoustic Doppler current profilers (ADCPs), sub-bottom profilers, and the Ecomapper Image 12: Survey equipment Autonomous Underwater Vehicle. Bathymetric surveys can be used for the collection of bathymetric data used for many different types of research including flood inundation, contour of streams and reservoirs, leakage, scour and stabilization, water-quality studies, dam removal, biological and spill, and storage and fill in reservoirs and ponds (USGS, 2018). Bathymetric surveys are used by designers of canal restoration projects for the following: • Bathymetric surveys provide designers with canal bottom elevations so that it can y determined how much fill material needs to be added to a canal to achieve the prescribed depth necessary to improve water quality. • Canal bottom elevations are also used by engineers for culvert or air curtain projects. The �? information is need to determine to what depth a culvert should be placed to improve canal flushing and how the arrangement of diffusers used in the creation of an air curtain should be placed in order to prevent seaweed from entering into the canal. 0 Topographic Survey: A Topographic survey is a survey that gathers data about the elevation of points on a piece of land and documents the elevations as contour lines. The purpose of a topographic survey is to collect data about the natural and man-made features of the land, and its elevations. Depth and Condition Surveys of Existing Seawalls: The evaluation of canal seawalls is done to better understanding the existing condition of the seawall so the engineers can protect against designing a project that will negatively impact residences within the project area. Seawalls are y constructed from a variety of materials such as, reinforced concrete, boulders, steel, gabions, vinyl, wood, aluminum, fiberglass composite, or sandbags. The function of seawalls, also known as bulkheads or retaining walls, is to minimize the erosion of soil particles into the water and serve as a form of defense between land and water. A seawall is an invaluable structure for those homeowners who live close to the water who rely on the wall to protect their property from water damage. The constant fluctuation of the water levels and battering of the wall by the elements can range from cracks and pitted surfaces to total failure if it becomes undermined. 26 Packet Pg. 2883 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Threatened and Endangered Species Surveys: The Endangered Species Act (ESA) Provides a program for the conservation of threatened and endangered plants and animals and the habitats in which they are found. The lead federal agencies for implementing ESA are the U.S. Fish and ` Wildlife Service(FWS)and the NOAA Fisheries Service. The law requires federal agencies, in consultation with the U.S. t ' Fish and Wildlife Service and/or the NOAA Fisheries Service, to ensure that actions they authorize, fund, or carry out are not likely to jeopardize the continued existence of any listed species or result in the destruction or adverse modification of designated critical habitat of such species. Image 13: In-water benthic survey The law prohibits any action that causes a "taking" of any listed species of endangered fish or wildlife. The initial performance of a threatened and endangered species survey should identify the presence or absence of any federally listed species in the project area through either a desktop review of publically managed databases and on site visual inspections. Finally, visual inspections may include in-water surveys for federally listed corals. Sensitive and Protected Resource Surveys: Potential wetlands in the assessment area shall c be identified and delineated in accordance with Florida Administrative Code, Chapter 62-340, the USACE 1987 Wetland Delineation Manual, and the Regional Supplement to the Corps of Engineers Wetland Delineation Manual: Atlantic and Gulf Coastal Plains Region (version 2.0) (2010). In addition identifying the presence or absence of wetlands, the applicant shall conduct a survey to confirm the presence or absence of protected benthic features (i.e. seagrasses, corals, and sponges). The surveys for protected benthic species shall be performed in accordance with the Florida Fish and Wildlife Conservation Commission (FWC) Recommended Survey Protocols y for Marine Habitats related to Permitting Applications (1115109 DRAFT), USACE Submerged Aquatic Vegetation Guidelines, and National Oceanic Atmospheric Association 2011 Protocol for Benthic Surveys of Coral Resources in _ FKNMS. -- Inspection of Existing Treatments: Due to the extent of the E problem and effect on local communities, homeowners and homeowner associations have in some instances taken it upon c themselves to install either preventative measures in the form of weed barriers and other treatments such as aerators. Aerators attempt to alleviate low dissolved oxygen conditions by pumping air into the canals at various locations. Such treatments should be evaluated to determine if they can be upgraded or incorporated into - the restoration plan. Additionally, there may be infrastructure F associated with the treatments that might need to be removed as part of the restoration process. Sediment Testing: Sediment data is used to establish fundamental objectives for engineering design of sediment handling and sediment dewatering controls. It is used to screen the beneficial use and the ultimate disposition of the dewatered sediments. A pre-determined °3 number of sediment cores are collected from the canal and logged Image 14: Collection of detailing variations in the sediment profile. This activity provides an sediment cores 27 Packet Pg. 2884 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 indication of organic content as well as an estimate of the amount of material disposal needed. Chemical characterization is also performed on the collected sediments to determine disposal options based on whether or not contamination is present in the canal sediments at levels that effect how and where the organic material can be disposed. Polymer Testing: Polymers are added to effluent from dredged sediments. The polymers bind to the sediments causing a separation between the effluent and sediments and in turn prevent the receiving bodies from becoming turbid. Bench scale polymer dose testing of sediment collected from the canal determine how much polymer is required. Table 5: Restoration technology technical requirement data needs Technology Bathymetric Topographic Depth and Threatened Sensitive Inspection Sediment Polymer Survey Survey Condition and resource of existing Testing Testing of Existing Endangered survey(i.e. treatments Seawalls Species mangroves tss Survey and corals Backfillin ✓ ✓ ✓ ✓ ✓ ✓ ✓ Weed ✓ ✓ ✓ ✓ ✓ ✓ ✓ ✓ Barrier and Organic Removal U Weed ✓ ✓ ✓ ✓ ✓ Barrier Organic ✓ ✓ ✓ ✓ ✓ ✓ ✓ ✓ Removal _ Culvert ✓ ✓ ✓ ✓ ✓ ✓ Installation Capping ✓ ✓ ✓ ✓ ✓ ✓ ✓ Backfillin ✓ ✓ ✓ ✓ ✓ ✓ ✓ *= requires documentation or monitoring that the replacement water is not degraded. y Although restoration technologies may require the same type of engineering or scientific surveys, existing conditions, as well as how the technology is being applied can dictate how the survey should be performed. Technology based survey specifications: Weed Barrier and Organic Removal • Bathymetric Survey for entire canal. Topographic survey for blower and electric drop area - • Determine depth of existing seawalls - do not want to compromise foundations. o Baseline survey- photo document, boat count, seawall condition Weed Barrier (Only) Surveys required: (only required at mouth of canal near construction zone) • Bathymetric Survey 28 Packet Pg. 2885 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Organic Removal (Only) • Bathymetric Survey for entire canal. • Determine depth of existing seawalls — do not want to compromise foundations. Culvert Installation c Surveys required: (near installation point in both canal and outfall location) • Bathymetric Survey o If tidal model will need to be run, survey will be required for entire canal as well as outfall location. • Determine depth of existing seawalls — do not want to compromise foundations. • Confirmation of any utilities that could be impacted. • Geotechnical studies in the area of the proposed culvert placement. • Site recon needed to see placement of culvert and current headwall location, materials, and elevations. 3.3.2 Design Criteria The design requirements for each canal restoration project will differ from those of any other canal restoration project performed due to the unique characteristics of residential canals in Monroe County. The size, shape, orientation of the canal mouth, and near shore characteristics will all effect the design of the project. The engineering design process is a methodical process that engineers use in developing construction plans.The process is highly iterative as illustrated below and parts of the process often need to be repeated many times. The steps may become articulated, subdivided, and/or illustrated in different ways, but they generally reflect certain core principles regarding the underlying concepts and their respective sequence and interrelationship. Upon completion of the existing condition surveys and development of a conceptual restoration, the engineering team will develop a series of preliminary designs based on following milestones: Preliminary Design - 30% Documents The conceptual design will be combined with information obtained during the existing condition surveys to examine if potential alternative design options might exist. Based on the results of the evaluation, the design shall be modified to achieve the best possible result. At this stage in the project, the designer will prepare preliminary design plans and technical specifications for the y project. The preliminary design plans will include an existing site plan, proposed site plan, proposed grading plans, erosion and sediment control plans, and construction details. The preliminary design plan will be submitted to the owner at the conclusion of this task for final review and approval. Many of the design efforts are similar in magnitude for all restoration techniques; however, certain E restorations have unique design elements. These include the following: 29 Packet Pg. 2886 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 • The organic removal projects require design of dewatering systems and disposal coordination, and • Culvert designs require preparation of a hydraulic model. 60% Construction Documents Completion Submittal 0 Upon acceptance of the preliminary designs, the designer shall prepare a 60% construction submittal. 60% design plans and specifications include existing site plan, proposed site plan, proposed grading plans, erosion and sediment control plans, construction details; construction schedule, Engineer's Opinion of Probable Cost shall be submitted to participating entity for review and comment. At this stage in the designs, it is recommended that open communication with the homeowners be maintained throughout the remainder of the design process. The Construction Documents will include each of the following components: • Survey: licensed surveyors will prepare the required topographic, planimetric and bathymetric surveys; • Construction Plans: the plans will depict our continued design effort, possible site impacts, maintenance of traffic, and utility impacts and relocations, if necessary; • Specifications: Technical specifications will be prepared for the project, utilizing County Standards where applicable, other accepted industry specifications if needed (i.e. FDOT, SFWMD, etc.) or developed specifically for this project application if necessary; • Schedules: The design team will prepare a detailed construction schedule,working closely with the County, the homeowners and other stakeholders to phase, sequence and y complete construction while considering the constraints and limitations; and • Estimate of Construction Cost: The cost for the canal restoration will be refined throughout the design process and a detailed Engineer's Opinion of Probably Cost will be prepared �? and submitted with the 60% construction documents. As previously stated, many of the design efforts are similar in magnitude; however, certain restorations have unique design elements that should be included with the 60% designs: • Culvert designs require preparation of MOT plans; and • Backfilling requires an investigation of local quarry fill material specifications and - availability of materials to assist in the development of the fill specifications. 100% Construction Documents Completion Submittal - c Upon acceptance by the participating entity of the 60% construction documents and comments from permitting agency reviewers, the design Team will develop the 100% construction documents for the project. Because the design package is advancing from 60% to a 100%, the design Team should have frequent and ongoing communication with the participating entity and stakeholders to resolve any outstanding issues or questions and address concerns during the final design development. The final design plans will include an existing site plan, proposed site plan, proposed grading plans, erosion and sediment control plans, cut/fill analysis and construction details. Comments received from the owner shall be addressed and resolved prior to the final submittal of the 100% construction documents and design specifications. Once the 30 Packet Pg. 2887 Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 final designs are approved an Operation and Maintenance (O&M) Plan will be prepared for each project site. 3.4 Permitting Requirements and Barriers to Construction Permits are required from local, state and federal agencies in order to implement a canal water quality improvement project. All of these agencies are involved, because the Florida Keys are part of the Florida Keys National Marine Sanctuary and the nearshore waters to which the canals discharge are designated Outstanding Florida Waters. Many threatened and endangered species are present in these waters that need to be protected.Additionally, all of the canals are considered part of navigable waterways, and therefore in-water canal work requires a U.S. Corp of Engineers permit. A list of the permitting agencies and designated agency contacts for canal restorations are presented below (Table 6). For the demonstration projects, the State permit was obtained from the South Florida Water Management District. For applications submitted by private homeowners, the Florida Department of Environmental Protection will issue the State permit Table 6: Canal Restoration Permi ing Agency Information m Agency Primary Contact Phone Email Address Focus Numbe o r South Florida State Trisha (561) tstone@sfwmd.gov 3301 Gun Club Water permitting Stone, PWS 682- Road,West Palm Management agency for Lead 6954 Beach, FL District(SFWM water quality Environmen 33406Marathon, D) tal Analyst FL 33050 United States Federal Maria (305) Maria.I.Bezanilla(o7usace.arm 9900 SW 107th Army Corp of agency for Bezanilla, 779- y.mil Avenue Engineers work in ACOE Miami 6057 Suite 203 (USACOE) navigable Permitting Miami, Florida waters Section 33176-2785 National Overseas all Joanne (305) ioanne.delaney@.noaa.gov Email Oceanic and in-water work Delaney, 809- communication CJ Atmospheric within the Permit 4714 preferred Administration FKNMS Coordinator (NOAA)/Florida NOAA/FKN Keys National MS Marine Sanctuary (FKNMS) *Monroe Ensure Michael (305) Roberts- 2798 Overseas County compliance Roberts, 289- Michael(a7MonroeCounty- Hwy, Marathon, Planning and with the Land CEP; PWS 2502 FL.Gov FL 33050 Environmental Development Sr. Resources and Florida Administrator Building / Codes Environment al ResourcesL 1- *=For projects in incorporated Monroe County, municipality permitting requirements would supersede Monroe County's authority Additional information about the permitting process for each of these agencies can be found at the following web links: • DEP - https://flaridadep.gav/water/submerged®lands®environmental®resources® coordination 31 Packet Pg. 2888 Q.2.b Monroe County Canal Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • DEP (Monroe County office): https://floridadel2.gov/south/sd-12ermitting • USACE - http://www.sai.usace.army.miI/Missions/Regulat • NOAA/FKNMS- http://floridakeys.noaa.gov/permits/welcome.html?s=management 0 • Monroe County - https://fi-monroecounty.civicplus.com/index.aspx?NID=243 The permitting process may also require additional review by other state and federal agencies if the permitting agency reviewer has concerns that the proposed activities may have environmental impacts. These agencies include the Environmental Protection Agency, NOAA Habitat Conservation, NOAA Protected Resources Division, Florida Fish and Wildlife Conservation Commission, and US Fish and Wildlife Service. The agency reviewer will forward the application to these reviewers directly so the municipality (or similar entity) does not need to prepare an additional application; however, additional reviews can significantly delay the time it takes to obtain a permit. Finally, local incorporated municipalities within Monroe County may have their own permitting requirements that would supersede the County's authorities. It is recommended that the participating entity confirm local Jurisdiction early on in the protect scoping process. During the pre-application meeting(s) it should be discussed whether any aspect of your project will require additional agency reviews. If the answer is yes, you should discuss if there are changes that can be made to the proposed plans that would eliminate the need for the additional reviews. 3.4.1 Permit Applications Blank applications for each agency can be obtained at the following links: • FDEP - https://floridadep.gov/water/submerged-lands-environmental-resources- coordination/content/farms®environmental®resource • USACE - http://www.sai.usace.army.miI/Missions/Regulat /Source ook.aspx • NOAA/FKNMS - httpJ/sanctuaries.noaa.gov/management/permits/welcome.htmI • Monroe County - https://fi-monroecounty.civicplus.com/index.aspx?NID=160 Some of the agencies have different applications depending upon the proposed project. Florida Department of Environmental Protection The FDEP s basic application is an Environmental Resource Permit(ERP).The FDEP also has criteria for exemptions to the requirement to obtain an ERP, as well as permits known as General Permits that expedite the permitting process for select types of projects. The requests for verification that a project is exempt from ERP permits shall be submitted to FDEP before commencing the project. If the project qualifies for an ERP exemption, under the Florida Statutes, then the USACOE Engineering form 4345 can be submitted to the USACOE instead of the ERP application. A link to the USACOE form 4345 is: The link to form 4345 is: httpJ/search.usa.qov/search?affiliate=sai&query=form%20 3 5. 32 Packet Pg. 2889 Q.2.b Monroe County Canal Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 US Army Corp of Engineers The USACE permit application and review process is the most complex due to the additional reviews associated with Section 7(a)(2) of the ESA to evaluate the potential impacts of a proposed action on any federally listed threatened or endangered species or its designated critical habitat. These evaluations often require coordination with the US Fish and Wildlife Service and/or NOAA Fisheries pursuant to Section 7 of the Endangered Species Act. For projects located in the Florida Keys, federally listed threatened and endangered species that typical impact the permitting process include: key deer, manatee, wood stork, nesting sea turtles, and American crocodile, among others. The USFWS website provides a good reference of those species under their purview: httpJ/www.fws.gov/verobeach/ConservationintheKeys.html. NOAA Protected Resource Division who is the other main outside agency reviewer for the Florida Keys Canal Restoration projects also evaluated a lot of other species. Generally the species that are impacted by inshore projects would be green sea turtles, loggerhead sea turtles, hawksbill sea turtles, kemp's ridley sea turtle, leatherback sea turtles, and smalltooth sawfish, in addition to c many species of coral. For a list of other species in the area click on the following link: http://sero.nmfs.noaa.gov/protected resources/section 7/index.html. Impacts to critical and/or suitable habitat or areas accessible to a species triggers Section 7 review to some degree for both US Fish and Wildlife Service and NOAA Protected Resource Division. Protected Resource Division review is basically triggered by in water activity as well as impacts y to mangroves (i.e. black, white and red) may trigger PRD. More information on the ESA process can be found at: httpJ/www.sai.usace.army.mil/Missions/Regulatory/Source aak.aspx. Part of the USACE application requires the applicant to submit information on threaten and �? endangered species that may be within the project area by completed a Section 7 Checklist. This checklist needs to be completed by a qualified scientist and forms the basis for the USACOE determination as to whether additional federal reviewers/consultations will be required. For those projects where the USACE makes a finding of "no affect," nothing more will need to be done c regarding consultations with other agencies. The check list and information concerning how to complete the checklist can be found at: http://sero.nmfs.noaa.gov/protected resources/section 7/consultation submittal/index.html. Jacksonville USACE Biological Opinion c In accordance with Section 7(a)(2) of the ESA, programmatic consultations allow for streamlined review of groups of frequently occurring or routine activities or Federal action agency policies, plans, regulations or programs that have well-understood and predictable effects on ESA-listed species and designated critical habitat. Programmatic consultations may be used to evaluate the effects of authorizing certain categories of frequently occurring activities or action Agency policy or programs, where specifics of any individual future project, such as the specific location, are not definitively known at the time of the programmatic consultation. 33 Packet Pg. 2890 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 On November 20, 2017, the National Marine Fisheries Service (NMFS)approved a programmatic biological opinion (PBO) referred to as "JaxBO."The JaxBO addresses consultation requirements for threatened and endangered species and their designated critical habitat occurring throughout the State of Florida for certain actions. A summary of the JaxBO, a complete list of the activities included in the JaxBO, and the project design criteria can be found at: 0 https://www.sai.usace.army.mil/Missions/Regulatory/Public-Notices/Article/13839 0/final- programmatic®biological®opinion-jaxbo/ It is recommended that proposed canal restoration projects attempt to meet the criteria established in the JaxBO in order to reduce the time associated with the consultation process. Monroe County j The Monroe County permit application is a combined Building-Floodplain- n Developmental Permit Application that includes review by a Planning and Environmental Resource County biologist as well as a review of compliance with the Florida Building code for such things as the electrical portions of the air curtain systems. The type of project affects the number of different departments that will need to review the application. c The permit fees are based upon the number of departments that review the application as well as the total estimated project cost. Wetland Impacts and Mitigation Requirements In some instances the construction of a canal water quality improvement project may cause impact to wetland plants such as red mangroves. Impact means damage or removal of roots, not just trimming of branches. All efforts should be made to avoid this. When the agencies review an application for wetland impact they first look for elimination and reduction of impacts. If there are still wetland impacts after elimination and reduction, a method to offset (make up for) those impacts is called mitigation. Mitigation usually consists of restoration, enhancement, creation, preservation, or a combination thereof. A mitigation proposal is a document that describes how you plan to offset the wetland plant impacts. Mitigation is generally accomplished "in kind". This means offsetting your impacts to a certain kind of resource by restoring, enhancing, creating, or preserving the same kind of resource within the same drainage basin, or within a reasonable distance of the project. For example, if the project impacts red mangroves, then the mitigation should involve red mangroves. Mitigation may be located on the project site (on-site), off the project site (off-site), or in a mitigation bank. A mitigation bank is a large area, owned by a mitigation banker, in which wetlands and other surface waters are restored, enhanced, created, or preserved. The mitigation banker earns credit for the work, and then sells the credit to property owners who want to use it to offset their project impacts. Buying mitigation credits from a mitigation bank is probably the easiest mitigation option, c because the bank is responsible for mitigation activities and monitoring. The property owner makes a payment for the mitigation credit, provides proof of the purchase, and their responsibility is fulfilled. FDEP has prepared a video which answers some of our most frequently asked questions about mitigation. The video can be viewed at the following link: https://www.youtube.com/watch?v=IXN-tar MHM. 34 Packet Pg. 2891 Q.2.b Monroe County Canal Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 During one of the culvert demonstration projects a small area of red mangroves was located within the footprint of the culvert and design changes could not fully eliminate the impacts. During the permitting process for the canal restoration demonstration projects the way different agencies address these impacts was identified. They are outlined below. Florida Department of Environmental Protection: The State has not required mitigation to offset any minor wetlands/other surface waters impacts associated with the canals water quality improvement projects because the projects are being conducted solely for environmental restoration and enhancement activities. The SFWMD stated this policy for the demonstration projects and communications with DEP has indicated their concurrence. US Army Corp of Engineers: The USACE requires mitigation for any wetland impact. If the USACE requires mitigation for impacts to protected resources one option is the USACE approved Keys Restoration Fund. The Keys restoration fund is a compensatory mitigation program that restores wetlands and seagrass in the Florida Keys. The Keys Restoration Fund can provide mitigation for the canal restoration c projects. Their contact information is found on their web page at: http://keysrestorationfund.com/. FPL Everglades Mitigation Bank is another mitigation bank that can be utilized for the canal restorations but it is not located in the Keys. There contact information is found on their web page at: httpsJ/www.fpl.cam/environment/wildlife/mitigation-bank.htm1. Mitigation banks require you to purchase `credits' to mitigate for the project impacts. The y impacts from your project need to be calculated using a method approved by the regulating agency. The USACE will accept utilization of The Uniform Mitigation Assessment Method (UMAM) to determine the mitigation requirements for the Keys Canal Restoration projects. This method calculates the loss in ecological function to determine the appropriate mitigation credits �? needed to offsite the project impacts. Some mitigation banks have their own scoring sheets that also require completion. You should work closely with the USACE and mitigation bank to ensure completing the correct paperwork. 0 Florida Keys National Marine Sanctuary: a, Compensatory mitigation may be required by the FKNMS if unavoidable impacts are occurring to sanctuary resources such as corals or seagrasses. Compensatory mitigation required by the FDEP, SFWMD, or the USACE may be accepted by the FKNMS. Monroe County does not require mitigation and will accept the other permitting agency mitigation requirements 3.4.2 Permit Information by Technology 76 Air Curtains/Weed Barriers General technology description: Air curtains and weed barriers are devices placed at the mouth of a canal to prevent seaweed from entering the canal. Air curtains consist of equipment that injects air into the water column at the canal mouth that creates a barrier to the entry of seaweed. 35 Packet Pg. 2892 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 The equipment has two components: 1) an air supply such as blower or compressor which is usually placed on an upland area near that canal mouth, and 2)slotted piping or diffusers that are placed on the canal bottom at the canal mouth which emit air bubbles. Physical barriers that are designed to prevent seaweed entry into the canal can consist of PVC piping or wood arms that extend across the canal and which are manually opened to allow boat access. They do not require any electricity to operate and thus have low operating costs. The air curtain design plans utilized for one of the demonstration projects can be found on the Monroe County Canal Restoration Web Page: http://www.monroecounty-fl.gov/index.aspx?NID=598. Permit application information: Florida Department of Environmental Protection: The air curtains installed during the demonstration program qualified for a state exemption to the U Environmental Resource Permit. Most air curtains should qualify for this exemption unless they c have more than a minimal impact on sensitive resources such as seagrass or coral. A `Request for Verification of an Exemption' form needs to be completed and submitted with supporting information. If the project qualifies it is termed a "de minimus" exemption. The canal restoration demonstration program did not include permitting a physical weed barrier such as a swing weed gate. However, communications with DEP indicated it would also quality for an exemption with the same condition that the project has minimal impact on sensitive y resources (e.g. seagrass or coral). Information needed to be submitted includes: 1. Completed `Request for Verification of an Exemption' form 2. Clear dimensioned drawings of the project. They do not need to be sealed by an engineer and can be hand drawn. A site plan and cross-section drawings are needed. The DEP web page provides further details of what is required: 3. httpJ/12ublicfiles.dep.state.fl.us/dwrm/slerg/erpheIp/merged rojects/erphelp/Subject Disc ussions/ rawings.htm . 4. Detailed description of the construction methods with emphasis on the Best Management 2 Practices that will be used for erosion and turbidity control. 5. A description of the canal bottom and side wall conditions where the air curtain/weed barrier will be placed to verify that there are no sensitive natural resources that could be impacted, such as corals or seagrass. 6. $100 Fee 36 Packet Pg. 2893 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 US Army Corp of Engineers: Air curtains may qualify for a Regional General Permit(GP)SAJ-17 for Minor Structures in Florida if all conditions required by the permit are met. A summary of some of the conditions that must be met by the project are detailed below: 0 1. The project cannot be located within the following state parks: John Pennekamp Coral Reef State Park, Lignum Vitae Key State Botanical Site and Aquatic Preserve, Long Key State Park, Curry Hammock State Park, and Bahia Honda State Park. 2. The project cannot cause adverse impact to hard or soft corals, hardbottom or other essential features within staghorn or elkhorn coral designated critical habitat. 3. The project cannot adversely affect manatees and the applicant agrees to follow the "Standard Manatee Conditions/for In-Water Work, 2011" found at: httpJ/www.sai.usace.army.mil/Missions/Regulatory/Source ggk.aspx 4. The applicant agrees to follow the conditions specified in the "Sea Turtle and Smalltooth U Sawfish Construction Conditions, March 2006" found at: c http://www.saj.usace.army.miI/Missions/Regulatory/SourceBook.as x 5. The project cannot directly or indirectly adversely impact essential fish habitat such as but not limited to mangroves and seagrasses. 6. The project cannot include dredging, 7. The project cannot include the removal of red mangroves. A copy of the SAJ-17 conditions can be found at the following link: http://www.saj.usace.army.miI/Portals/ /docs/regulatory/sourcebook/permitting/general permit s/ /SAJ-17 Final Permit Instrument Corrected 31may13.pdf. If the project does not qualify under the General Permit then the application will be evaluated as a Letter of Permission (LP) or Standard Permit (SP). The limits/thresholds of each permit type can also be found on the Corps Source Book. http://www.saj.usace.army.miI/Missions/Regulatory/SourceBook.as x. If the project qualifies for a State"de minimus" exemption then the USACE Engineering form 4345 can be submitted instead of the ERP application. The ERP application will also be accepted. Section 3.4.1 provides the link to the applications and a help tutorial for completing the ERP y 0 application. Information needed to be submitted: • Completed Engineering form 4345 or ERP application. • Clear dimensioned drawings of the project —the same as for the FDEP. 37 Packet Pg. 2894 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • Detailed description of the construction methods with emphasis on the Best Management Practices that will be used for erosion and turbidity control. • A description of the canal bottom and side wall conditions where the air curtain/weed barrier will be placed to verify that there are no sensitive natural resources that could be impacted, such as corals or seagrass. • Endangered Species Act Section 7 Checklist The Endangered Species Act Section 7 Checklist will need to be completed by a qualified scientist and forms the basis for the USACE determination as to whether additional federal reviewers/consultations will be required. The check list and information concerning how to complete the checklist can be found at: httpJ/sero.nmfs.noaa.gov/protected resources/section 7/consultation submittal/index.html. Florida Keys National Marine Sanctuary: The Florida Keys National Marine Sanctuary should be contacted when performing any in-water work in the Sanctuary, which includes work in canals. They will advise you as to whether a permit is required. A permit was required for all the demonstration projects. The permit application is the same for all the technologies and the information required in the FKNMS submittal is also needed for the DEP and USACE permit applications as well. Please refer to Section 3 for application information. Monroe County: For projects in unincorporated Monroe County, a Monroe County Building Permit is required for air curtains and will need to include review by all applicable departments such as plumbing, electrical and biological. Please refer to Section 3.4.1 for the application information. The attachments to the application are the same documents required by FDEP and the USACE. With -- regards to the incorporated municipalities of Monroe County, various programs or building departments may require similar permits. Culvert Installation c General technology description: Culverts are installed to restore some of the natural tidal flushing that was lost when canals were constructed. The easiest location to install a culvert is across an existing roadway or strip of land that blocks the flow of water between two canals that dead end at the roadway or strip of land. It is important to understand the hydrology of the proposed area including tidal range and anticipated flow in order to correctly size and design the culvert. Culverts can be installed by an open trench method, such as those done in the demonstration program, or by directional drilling. Directional drilling has been evaluated as an alternative and its applicability is limited due to cost and size requirements. Culverts can be made of several different types of material; the demonstration project culverts were made of reinforced concrete. 38 Packet Pg. 2895 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Permit application information: Florida Department of Environmental Protection: Installation of a culvert will require an Individual ERP application. Section 3.0 provides the link to the FDEP web page for the application and a help tutorial for completing the application. The Individual ERP application for a culvert will require hydraulic design data and will need to include the following: 1. Completed Sections A, C and D of the ERP application. 2. Design drawings. 3. Hydraulic calculations supporting the design. 4. A description of the canal bottom and side walls where the culvert will be installed to verify that there are no sensitive natural resources that could be impacted, such as corals or seagrass. 5. A vegetation survey within the project foot print to identify the presence of any mangroves c that might be affected by the construction. 6. Description of the construction methodology. 7. Application fee. Canal water quality improvements are Restorations and the fee is $250. 8. All property owners within the footprint of the culvert installation must sign the application as co-applicants. US Army Corp of Engineers: When the State requires an ERP application the USACE permit application is a joint application. Therefore, the Information needed to be submitted includes the same information provided to DEP in the ERP application plus the following: 0 • Section 7 Checklist. • Map and list of mailing addresses of all property owners located within 500 feet of the proposed project along with mailing labels of that list. The USACE may deem that the project can qualify for a General Permit or Nation Wide Permit. However, the same application information is required. Please refer to Section 3 for additional application information. y Florida Keys National Marine Sanctuary: The Florida Keys National Marine Sanctuary should be contacted when performing any in-water work in the Sanctuary, which includes work in canals. They will advise you as to whether a permit is required. A permit was required for all the culvert demonstration projects. The permit application E is the same for all the technologies and the information required in the FKNMS submittal is also 39 Packet Pg. 2896 Q.2.b Monroe County Canal Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 needed for the DEP and USACE permit applications as well. Please refer to Section 3 for the application information. Monroe County: a For unincorporated Monroe County, a Monroe County Building Permit is required for a culvert installation and will need to be reviewed by all applicable departments such as biological. Please refer to Section 3.4.1 for the application information. The attachments to the application are the same documents required by FDEP and the USACE. The drawings must be signed and sealed by a Professional Engineer. With regards to the incorporated municipalities of Monroe County, various programs or building departments may require similar permits. Organic Removal General technology description: In many areas of the Keys floating seaweed enters canal systems on strong winds and tides and gets trapped at the back of the canals due to the dead end construction. It then sinks to the canal bottom where it decays using up all the dissolved oxygen needed for marine life. In addition the decay produces gases such as hydrogen sulfide and methane which are released to the water surface causing unhealthy foul odors. This technology consists of removal of the organic material accumulated on the canal bottom. Different methods can be utilized for the removal such as hydraulic vacuum dredging which was used in the two demonstration projects, or mechanical dredging. The material usually requires dewatering to allow it be trucked off-site to an appropriate disposal location. The demonstration projects utilized a mechanical dewatering system. Dewatering using Geotubes is another technique. Permit application information: Florida Department of Environmental Protection: On organic removal project may quality for a FDEP `Maintenance Dredge' exemption. The `dredging' work must be of material that has accumulated in previously dredged canals and no dredging of the underlying natural hard bottom is allowed. The FDEP web page provides details of what is required to quality for the maintenance dredging exemption. Some of the main criteria include: • Dredging must be limited to a depth of no more than 5 feet below mean low water; • There can be no significant impacts to previously undisturbed natural areas; c • Control devices for return flow and best management practices for erosion and sediment control must be utilized to prevent bank erosion and scouring and to prevent turbidity. What is Not Considered Maintenance Dredging? Dredging that exceeds any of the following thresholds generally will not be considered maintenance dredging: • The area to be dredged has not been dredged in the past; 40 Packet Pg. 2897 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • The area to be dredged has been allowed to shoal in to such an extent as to render the area to be dredged non-functional for a prolonged period of time; • The proposed dredging will expand (deepen, widen, or lengthen)the dredge area from original design specifications; c • Generally, dredging proposed more than 2 years after a storm event that caused sudden shoaling is no longer considered maintenance dredging. FDEP should be contacted to verify whether your project qualifies. A link to the exemption is found at: httpJ/12ubiicfiles.deg.state.fl.us/dwrm/slerg/erl2heIp/merged rojects/erghelp/Miscellaneous/Chap ter 403 Exemptions.htmf maint dredging. Even if a homeowner is sure their project qualifies for the DEP exemption, they will need to show an exemption verification letter from DEP in order to obtain the USACE and Monroe County permits. A Request for Verification of Exemption should be submitted to DEP to obtain that letter and should contain: • Location map(s) of sufficient detail to allow someone who is unfamiliar with the site to travel to and locate the specific site of the activity; • $100 notice fee; • Two sets of plans and drawings, calculations, environmental information, and other supporting documents that clearly and legibly depict and describe the proposed activities in detail sufficient to demonstrate compliance with the terms, conditions, and limitations of the exemption; • Identification (by number or description) to the rule or statutory exemption sought. • Location where dredged material will be disposed; include design details of the dredged material disposal site (heights of retention berms, dimensions, capacity, including freeboard to prevent breaching of containment berms, temporary barges that may be used, or similar methodology such as directly depositing material into dump trucks for disposal in a landfill. Note that dredged material disposal sites that involve construction of dikes, berms, or dredging of containments cells may require a separate permit; • Dredging methodology (hydraulic, such as suction dredge, or mechanical, such as backhoe or dragline; and c • Drawings showing the current conditions and proposed dredge areas. Include both current conditions and proposed conditions in one cross-section view so they may be easily compared. If the project does not qualify for the maintenance dredging exemption than an Individual ERP application will be required. The same type of information will be required in the ERP application along with the completed ERP application.The application fee will be$250. Section 3.4.1 provides the link to the applications and a help tutorial for completing the ERP application. 41 Packet Pg. 2898 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 US Army Corp of Engineers: The USACE will require a Standard Permit for an organic removal project. Either an ERP application or the USACE Engineering form 4345 can be submitted. If the FDEP Maintenance Exemption is not applicable than the ERP application with DEP and USACE can be joint. Section 3.4.1 provides the link to the applications and a help tutorial for completing the ERP application. The Information needed to be submitted for the USACE permit includes the same information provided to FDEP in the ERP application plus the following: • Section 7 Checklist. • Map and list of mailing addresses of all property owners located within 500 feet of the proposed project along with mailing labels. Florida Keys National Marine Sanctuary: The Florida Keys National Marine Sanctuary should be contacted when performing any in-water E work in the Sanctuary, which includes work in canals. They will advise you as to whether a permit is required. A permit was required for the organic removal demonstration projects. The permit c application is the same for all the technologies and the information required in the FKNMS submittal is also needed for the FDEP and USACE permit applications as well. Please refer to Section 3.4.1 for the application information. Monroe County: For projects in unincorporated Monroe County, a Monroe County Building Permit is required for y organic removal projects and will need to include review by all applicable departments such as biological. Please refer to Section 3.4.1 for the application information. The attachments to the application are the same documents required by FDEP and the USACOE except the drawings must be signed and sealed by a Professional Engineer or Professional Surveyor and Mapper. �? With regards to the incorporated municipalities of Monroe County, various programs or building departments may require similar permits. Please note the Monroe County Comprehensive Plan prohibits dredging below -6 feet mean low water by non-public entities. 0 Backfilling General technology description: Backfilling of a canal entails the placement of clean fill in sections of a canal that were initially dredged too deep, in some cases greater than 40 feet, in order to raise the canal bottom elevation to within -6 to -8 feet mean low water. The backfilling eliminates the deep stagnant pockets that do not naturally flush with the tides and which contain depleted dissolved oxygen levels and elevated hydrogen sulfide and methane levels. Usually a barge is required to place the fill uniformly throughout the canal as was done for the demonstration project. c Florida Department of Environmental Protection: 76 A backfilling project will require an Individual ERP application. Section 3.4.1 provides the link to the FDEP web page for the application and a help tutorial for completing the application. The Individual ERP application for a backfilling project will need to include the following: E 1. Completed Sections A, C and D of the ERP application; 42 Packet Pg. 2899 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 2. Design drawings; 3. A description of the canal bottom where the backfilling will take place to verify that there are no sensitive natural resources that could be impacted, such as corals or seagrass; 4. Description of the construction methodology including the source of the clean fill; 5. Application fee. Canal water quality improvements are Restorations and the fee is $250; and 6. If the canal bottom is privately owned then all property owners within the footprint of the backfilling project must sign the application as co-applicants. US Army Corp of Engineers: The USACE will require a Standard Permit for a backfilling project. The application can be the ERP application submitted jointly to FDEP and the USACE. Therefore,the Information needed E to be submitted includes the same information provided to DEP in the ERP application plus the U following: c • Section 7 Checklist; and • Map and list of mailing addresses of all property owners located within 500 feet of the proposed project along with mailing labels of that list. Please refer to Section 3 for additional application information. y Florida Keys National Marine Sanctuary: The Florida Keys National Marine Sanctuary should be contacted when performing any in-water t? work in the Sanctuary, which includes work in canals. They will advise you as to whether a permit is required. A permit was required for the backfilling demonstration project. The permit application is the same for all the technologies and the information required in the FKNMS submittal is also needed for the FDEP and USACE permit applications as well. Please refer to Section 3 for the c application information. Monroe County: For projects in unincorporated Monroe County, a Monroe County Building Permit is required for a backfilling project and will need to include review by all applicable departments such as 2 biological. Please refer to Section 3 for the application information. The attachments to the application are the same documents required by FDEP and the USACE except the drawings must be sealed by a Professional Engineer or Professional Surveyor and Mapper. With regards to the incorporated municipalities of Monroe County, various programs or building departments may require similar permits. 43 Packet Pg. 2900 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.5 Factors Affecting Ease of Implementation q For each of the technologies described in this , a guidance document there are factors that affect the ability to implement the project in an efficient manner that maintain compliance with both % y construction and permit requirements: Backfilling: With regards to backfilling a canal for the purpose of water quality restoration, it is B recommended that the organic sediment be Im removed prior to the placement of the fill Image 15: Demonstration Project Canal 277 Big Pine, culvert installation material. This is done to reduce the amount of sediment suspended in the canal as well as, reduce the variability associated with compactions. In some cases the aforementioned action may not be necessary and can add unnecessary cost to the project. In these circumstances, a capping project might be an appropriate option. The configuration of the canal can impact the ability to get equipment into and out of the canal. Narrower canals may cause maneuverability issues for the barges from which the fill material is placed into the water body. If a canal has an excessive number of boats docked within the water, if can prove difficult to coordinate their removal and storage. It is imperative that a close by vacant lot be identified for the stockpiling backfill. This allows the material to be trucked to the site and easily transported onto the barges for placement. Weed pates: The configuration of a canal mouth can affect both effectiveness of an air curtain and the size and layout of the system.Wider canal mouths and deeper canal mouths require more robust systems. Conversely, shallow canal mouths can cause vessel clearance issues for the air curtains. The following should be confirmed prior to the start of the permitting and design phase of the project: • Confirm sufficient vessel clearance exists based on the estimated height of the diffusers; • Accessible electric hook ups are available to tie the proposed system into; and 0 • Homeowners who are willing provide a location for the pumps have been identified; • Canals that require demolition of existing malfunctioning weed gates; and • Presence of a construction staging area. Organic Removal: The configuration of the canal can impact the ability to get equipment into and out of the canal. Narrower canals and the presence of mangroves may cause maneuverability issues for the hydraulic dredges. If a canal has an excessive number of boats docked within the waterbody, if can prove difficult to coordinate their removal and storage. Understanding the condition of the seawalls and how close to the wall the material can be dredged is imperative to designing and costing the project. It is also imperative that a close by vacant lot be identified for the stockpiling and dewatering of sediments prior to the design and permitting phase. Culverts: Shorter culvert connections require less clearing and grubbing. It is recommended that the anticipated flushing rate be fully understood prior to the start of construction. Confirming approvals from the property owners should be completed prior to permitting and design of the 44 Packet Pg. 2901 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 project. Initial studies should examine the location of water, sewer, data, and electric utility lines as their presence will increase the complexity of the project. Finally, confirming there is sufficient staging area is recommended prior to the design and permitting phase of the project. 3.6 Construction Requirements q aught(8) Steps t®vendor selection: 0 The basic construction tender process Step 1: Develop clear objectives (comfort, efficiency, involves the following activities: equipment uptime, etc.); • Bid Solicitation: The owner (i.e. Step 2: Develop and apply a screening process specific participating entity) seeks bids and to the site and expectations; provides a package of material with drawings, specifications, and other Step 3: Select 2 to 4 potential contractors and obtain scope documents. This is also known initial proposals; as making a request for proposal Step 4: Develop major contract requirements using the (RFP) or a request to tender(RTT), contractors' initial proposals; • Subcontracting: General contractors Step 5: Obtain final bids from potential contractors U c take bids from subcontractors for pieces of work. Depending on the based on the owner-developed requirements; project method, this may occur after a Step 6: Select the contractor and develop the final general contractor wins a bid, contract language and service plan; • Bid Submission: Contractors submit Step 7: Manage and oversee the contracts and bids by a deadline, documentation; and • Bid Selection: The owner reviews Step 8: Periodically review the entire contract; build in bids and chooses a winner, a feedback process. • Contract Formation: This phase finalizes the terms and lays the legal groundwork for the project, and • Project Delivery: Construction takes place. 3.6.1 Initiating the Bid Process c Bidding is a procurement method by which you can select the vendor for purchasing the required canal restoration services within the estimated budget and time. If you have a standard contract - with a vendor, you can request a proposal. Once the participating entity has created a bid package and the RFP, or request for quote (RFQ) is approved, it can be issued to potential vendors. The vendors can then respond to the bid or request and their responses can then be evaluated. c 3.6.2 Evaluation of Bids and Requisite Qualifications a Upon completion of the Construction Documents, the bid phase commences. This phase is the time frame between the completion of the design process and the award of the construction contract. During this phase, the following actions should be performed: • The Bid Package which should include the 100% Construction documents should be performed, 45 Packet Pg. 2902 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • Respond to applicable Bidders' Request for Information (RFI's) and prepare Addenda to the Bid Package, • Make revisions to the Bidding Documents, as required, • Host a Pre-Bid Conference and site walk-through, • Conduct a Responsibility Review of the Apparent Low Bidder in accord with the project's ) requirements, and c 0 • Host a Pre-Award Conference, to discuss the Bidder's qualifications and understanding of the Project. 3.7 Construction Oversight Construction oversight by the participating entity is important to ensure a project gets completed per the permitted designs and on time and on budget. Oversight of the construction phase of canal restoration projects can be performed by a qualified member of the participating entity's staff or contracted separately. 3.7.1 Performance of Monitoring and Reporting Requirements 0 Performance monitoring begins prior to the commencement of construction and is the responsibility of not only the contractor, but the permit holder as well. Once the permits have been issued and in the lead up to the kick-off meeting, it is recommended that informative materials be developed that can be handed out to the contractor. For more complex canal restoration projects it might be useful to create a short presentation that can be delivered to all parties involved in the construction of the project. Pre-construction discussions with the contractor should focus on the constraints documented in the permits and the best management practices listed in the construction plans or Stormwater Pollution Prevention Plan (SWPPP) should one exist. Such discussions and prepared materials should include but not be limited to information regarding threatened and endangered species, turbidity requirements, and air quality monitoring. It is recommended that the owner's representative develop monitoring plans for potential T&E species, turbidity and SWPPP maintenance. Finally, it is not enough to develop the plans and pass out the fliers regarding the environmental concerns. It is recommends that the owner implement a permit compliance inspection program where by which a member to the contractor's team is assigned to escort the owner's representative around the project site. With regards to c reporting, it should at a minimum be performed in accordance with permit conditions; however, weekly reporting noting the issues of concern can help improve compliance and address items before they become a permit violation. - 3.7.2 Permit Modification Based on the contractor's response to the Bid Documents, modifications to the permit may be requested. Due to their ability to cause significant delays in the project timeline, they are not a recommended unless issues raised by the contractors are unresolvable. Once the owner feels comfortable with what is being requested and a particular path forward, they should request a conference call or a meeting with the regulators to discuss the changes to the project and the additional impacts. From this point, the process will be determined by what is being proposed and the appropriate regulatory requirements as to what aspects of the project are allowed to continue E and what aspects will have to wait for the additional permitting. 46 Packet Pg. 2903 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.7.3 Permit Compliance Based on the permit conditions, it may be necessary to conduct a series of inspections during the construction phase of the project. It is recommended that the owner or the owner's representative perform the inspections. Additionally, the owner may need their representative to conduct stormwater system inspections, review as-built surveys, and create and implement environmental monitoring and management plans 3.7.4 Construction Monitoring In performing construction monitoring, the owner's representative should become familiar with the approved construction plans. The qualified construction inspector is responsible for ensuring the contractor's work conforms to the approved plans and specifications, adheres to construction schedule, and adequacy of construction costs. The following activities should be expected of the owner's representative: • Pre-Construction Conference & Site Walk-Thru: Recommend the agenda and prepare the meeting minutes; • Construction Progress Meeting: Attend regularly scheduled progress meetings; • Requests for Information: Review Contractor Requests for Information (RFI's) and respond as required to clarify the Contract Documents, including providing revised drawings or specifications if needed; • Submittals: Review contractor submittals (schedules, samples, product data, shop drawings, installation drawings, etc.) and provide review comments for same. Complex submittals or submittals requiring review by more than one design discipline may require additional time; • Change Orders: Assist in the evaluation and preparation of change orders; • Project Close-Out: Review and amend the Contractor's punch lists for substantial and final completion. When all items are complete in accordance with the Contract Documents, issue a report indicating final acceptance of same. The Design Team will also verify that the Contractor has submitted all required close-out documentation prior to authorizing approval of final payment to Contractor; • Consult with Owner: Provide consultation and advice to the owner regarding the Contractor's performance of the Contract. Liaise with the County, homeowners, and other stakeholders as necessary to administer the construction contract; and c • Site Inspection: Prepare daily work reports showing contractors activities, equipment, maintenance of traffic and environmental compliance. An Inspector should be on site when the contractor is working. 47 Packet Pg. 2904 Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.7.5 Biological Construction Monitoring Due to the potential presence of marine mammals such as the West Indian Manatee and federally protected m endangered species like the Florida Key deer, it is recommended that participating entities contract staff ,, �f members or ensure personnel familiar with the protected natural resources of Monroe County are on-site during construction. Responsibilities for such environmental professionals include biological surveys noting the presence or absence of protected species, report preparation, construction monitoring, and other services related to compliance with the biological and regulatory � w requirements. Biological monitoring duties require in-field decision-making as well as oral and written �7`k v, communication skills as they will have to communicate with the construction team if and when protected E P N resources enter the construction zone. 3.7.6 Best Management Practices for Canal Image 16: Florida key deer, No Name Key Restoration Projects Best Management Practices (BMPs) are defined as the practice, or combination of practices, that are designed to achieve sustainable management of natural resources and have been determined to be technologically and economically effective, practicable, and based on best available science. The following are standard BMPs for canal restoration projects: + 1. All construction activities shall be performed in accordance with the ° ! FWC Standard Manatee Conditions for In-Water Work. p 2. All construction activities shall be performed in accordance with the FWC Standard Crocodile and Smalltooth Sawfish Conditions for in- water work. 0 3. All construction activities shall be performed in accordance with and the National Marine Fisheries Service Sea Turtle and Smalltooth Sawfish Construction Conditions. 4. Use of in-water spotters to confirm that there are no smalltooth sawfish, sea turtles, or manatees located within the canal prior to the start of construction activities. The in-water spotters will start at the rear of canal methodically surveying the water column as they push forward towards the mouth of the canal. c 5. After the in-water spotters have confirmed that there are no T&E species located within the canal, the contractor will prepare the project area by installing floating turbidity barriers near the front of the canal. The turbidity barrier(s) shall extend from the water's surface down to the bottom of the canal and remain in place throughout the duration of the project to prevent the movement of marine life back into the project area. E 48 Packet Pg. 2905 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 6. If a barge or recreational boat is used in the construction process, the contractor shall utilize a certified diver to visual) clear the landing areas prior to lowering the removable spuds into the canal sediments. 7. Dedicated locations of any in-water _ equipment will be pre-surveyed in order to ensure that federally listed marine ' resources are not present. If any are identified avoidance measures will be implemented. 8. Vibratory hammers should not be Image 17: Multiple turbidity curtains prevent degradation of Outstanding Florida Waters utilized for placement of any in-water equipment. 9. Construction vessels should have at least 2' clearance from the seabed when fully loaded. 10. Construction vessels should identifyand utilize charted ingress and egress routes when g g available 11. If there is a reasonable expectation that stony corals are present at a site, a quantitative benthic survey will be provided to document presence and potential avoidance measures. 12. Construction debris should not be allowed to enter the waters of the Sanctuary at any y time. 13. FKNMS agency staff should be allowed access to the project site as requested to ensure that Sanctuary resources are being protected to the extent possible 14. In project areas where Key Deer may be present, weekly meetings should be held with the contractor and their vehicle drivers to discuss speed limits and Maintenance of Traffic (MOT). An educational leaflet will be distributed to all on-site project personnel prior to initiation of construction. 15. Whenever possible, materials for projects should be moved to the site using upland pathways (existing roads, etc.) vs. marine navigation routes. 16. Any dredge spoil, as applicable, should be dewatered in upland areas or vessels located within the canal boundaries and all dewatering operations will be fully contained to prevent spoil leakage into waters of the Sanctuary 17. Silt fence (or waddles) and floating turbidity barriers should be installed prior to construction and maintained throughout the project in accordance with performance standards for erosion and sediment control and stormwater treatment set forth in section 62-40.432, Florida Administrative Code (FAC) (also from your project methods) 49 Packet Pg. 2906 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 3.8 Operation and Maintenance By adhering to the following recommendations, the i VCr��U ��� �� participating entity would be able to begin planning for the ��ti � �€ future management of a canal restoration project which i) would go a long way in ensuring the programs long term 1) Operations success: y 2) Maintenance • Describe the overall responsibility for the operation, maintenance, repair, and replacement at the 3) Engineering Support project's conceptual level; 4) Training • Determine if vendors would be allowed to bid on the 5) Administration long term operations, maintenance, repair, and replacement of the restoration technologies; • Clearly describe the entity responsible for the E operation, maintenance, repair, and replacement of the restoration technology equipment during the development of the request for proposal documents; c • Define different conditions under which Repair and Replacement (R&R) work will be performed, who will be liable, and the source of funds for performing R&R activities; • Define reporting requirement for O&M activities and its frequency; and • As a required element of the proposal, vendors shall include the development of an Operations and Maintenance Manual and trainings in their cost proposal. O&M management is a critical component of the restoration. The management function should bind the distinct parts of the program into a cohesive entity. From our experience, the O&M program should contain five very distinct functions: Operations, Maintenance, Engineering, �? Training, and Administration. While evaluation criteria may differ, generally some level of economic criteria will be used. O&M managers need to have a working knowledge of economic metrics such as: 0 • Net present value: Represents the present worth of future cash flows minus the initial cost of the project; and • Life-cycle cost: The present worth of all costs associated with a project. In defining an effective O&M program, each element is comprised of important managerial roles and responsibilities: c Operations: a • Administration: To ensure effective implementation and control of operation activities; • Conduct of Operations: To ensure efficient, safe, and reliable process operations; • Equipment Status Control: To be cognizant of status of all equipment; 50 Packet Pg. 2907 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 • Operator Knowledge and Performance: To ensure that operator knowledge, and performance will support safe and reliable plant operation. Maintenance • Administration: To ensure effective implementation and control of maintenance c activities; • Work Control System: To control the performance of maintenance in an efficient and safe manner such that economical, safe, and reliable plant operation is optimized; • Conduct of Maintenance: To conduct maintenance in a safe and efficient manner; • Preventive Maintenance: To contribute to optimum performance and reliability of plant systems and equipment; and • Maintenance Procedures and Documentation: To provide directions, when appropriate, for the performance of work and to ensure that maintenance is performed safely and efficiently. Engineering Support • Engineering Support Organization and Administration: To ensure effective implementation and control of technical support; • Equipment Modifications: To ensure proper design, review, control, implementation, and documentation of equipment design changes in a timely manner; • Equipment Performance Monitoring: To perform monitoring activities that optimize equipment reliability and efficiency; and • Engineering Support Procedures and Documentation: To ensure that engineer support procedures and documents provide appropriate direction and that they support the efficiency and safe operations of the equipment. Training • Administration: To ensure effective implementation and control of training activities; • General Employee Training: To ensure that personnel have a basic understanding of their responsibilities and safe work practices and have the knowledge and practical abilities necessary to operate the plant safely and reliably; • Training Facilities and Equipment: To ensure the training facilities, equipment, and materials effectively support training activities; • Operator Training: To develop and improve the knowledge and skills necessary to perform assigned job functions; and • Maintenance Training: To develop and improve the knowledge and skills necessary to perform assigned job functions. 51 Packet Pg. 2908 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Administration • Organization and Administration: To establish and ensure effective implementation of policies and the planning and control of equipment activities; • Management Objectives: To formulate and utilize formal management objectives to improve equipment performance; • Management Assessment: To monitor and assess activities to improve all aspects of equipment performance; • Personnel Planning and Qualification: To ensure that positions are filled with highly qualified individuals; and • Industrial Safety: To achieve a high degree of personnel and public safety. 3.8.1 Operations and Maintenance Program An O&M Plan is prepared incrementally during the final stages of the design and system implementation. Upon startup of the restoration technology and ongoing over the life span of the restoration technology, the O&M plan should be revised to capture changes in site conditions, the equipment, and key personnel associated with the project. The first version should be produced as early in the project as possible, to ensure that operation and maintenance needs are understood and planned for accordingly, as well as the roles and responsibilities for on-going operation and maintenance. Early versions of the O&M plan may be quite limited in content, focusing on issues such as staffing, funding, and documentation that need to be worked on well in advance of system startup. Details of specific operation and maintenance activities can be added as needed, and after the system is developed and its specific characteristics become better known to the project team. An Operation & Maintenance Plan is separate from operating manuals and maintenance manuals provided by system or component developers or suppliers. Those documents describe detailed procedures, whereas the O&M Plan describes resource organization, responsibilities, policies, and general procedures. Restoration Specific O&M Plan Operation and maintenance activities can usually be described in a single plan. However, for large or complex systems it may be appropriate to prepare a maintenance plan separately from the operation plan. Similarly, large or complex systems may warrant separate plans for specific aspects of operation or maintenance, including configuration management, staff training, data management, safety, and security. The plan should provide sufficient information for the system y to be effectively operated and maintained, even in the event of a complete turn-over of the personnel originally involved. The conceptual design, system requirements, and design documents will provide initial guidance as to the extent and nature of operation and maintenance activities. As specific aspects are procured and implemented, the plan can be updated and expanded to include more specific information. For small or simple systems, configuration management may be covered within the O&M Plan. 52 Packet Pg. 2909 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Criteria for O & M Plans • Answer all the questions of who, what, where, and when concerning operation �, � and maintenance, ������`'`t. � y � �', IV,�=��, r a O �� • O & M Plans should identify the personnel responsible for operations and maintenance, • Clearly identify the personnel responsible for the operation and maintenance of the system, � s • Outline the staff and facilities including Image 18: Bubble curtain control panel and tools needed for the O&M of the system, • Identify funding sources for the ongoing operations and maintenance of the restorations, c • Detail the type of monitoring required to ensure the systems are operating according to specification, • Describe the checks to be made, and the data to be collected, • Address the training of operators and maintenance personnel, • Outline the procedures for the continued safety and protection of the equipment, y • Detail procedures for preparing the system in advance of extreme weather phenomenon, • Contain or reference other documents needed to maintain the system, and ti • Contain a prescribed maintenance schedule for the equipment or system. 3.8.2 Cost of Operation and Maintenance When factoring maintenance costs, it is recommended that participating entities calculate the costs associated with conducting an inspection of the restoration projects, recovering or replacing the equipment, and utility costs associated with operating the technologies. The primary responsibility for conducting maintenance shall be with the participating entity. This document doesn't preclude local agreements between cooperating groups such homeowners and municipalities as it applies to the performance of maintenance activities. c The disadvantages of reactive maintenance are numerous but mostly not visible to management, which is why so many facilities continue to use this approach. Predictive maintenance is based on the tenet that a proactive approach is better than a reactive one. However, instead of making repairs based on a predetermined calendar schedule, the predictive approach makes repairs based on the actual condition of the equipment. For example, in a predictive maintenance program, key operating parameters of equipment are checked regularly by staff or monitored automatically by sensors. The readings are then analyzed and used to evaluate the condition of the equipment and predict the future performance or likelihood of failure. The key to predictive maintenance is that equipment and system condition determines what maintenance is performed, 53 Packet Pg. 2910 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 rather than a preset schedule. This means that repairs are performed at the ideal time, resources are not wasted on Frequently cited disadvantages unnecessary work, and equipment is maintained at a higher of reactive maintenance level of performance. include: While restoration technologies such as culverts and weed Increased cost due to gates can have lower design and engineering, permitting, unplanned downtime of and construction costs, the long-term monitoring and equipment Increased labor maintenance fees of the aforementioned technologies may costs, especially if overtime is exceed those of backfilling and capping. needed, Long-Term Inspections of Restoration Projects Cost involved with repair or Canal restoration technology inspections can reduce replacement of equipment, facilities maintenance costs and improve availability by • enabling just-in-time maintenance of facilities systems and Possible secondary equipment or process related equipment. Routine inspections can detect trends damage from equipment or conditions that indicate excessive wear or impending failure. failure. This allows for the planning of timely maintenance. c • Inefficient use of staff Maintenance and repair (M&R) spending is a normal and resource: who are always in expected cost of facility ownership. However, the cost can "firefighting mode" be minimized through the implementation of an O&M plan that includes a facility management program and the use of applicable diagnostic tools. The key to success is for managers to become proactive and embark on a realistic, long-range M&R program which requires routine inspection of the canal restoration projects. Well-planned M&R is cost effective. Lack of an effective M&R program results in reactionary (crisis) management as breakdown repair becomes the normal business activity. A reactionary approach results in high penalty costs that take ever-increasing amounts of the M&R and operating budgets. Consequently, the longer M&R is deferred, the more likely the deterioration of the infrastructure associated with the restoration technology will accelerate. Periodic inspections of canal restoration projects are essential to ensure that maintenance is being performed and performance problems are recognized prior to failure. Inspections can be performed by the participating entity (i.e. municipality) or, alternatively, a program can be established to train and certify private-sector inspectors or homeowners to conduct inspections on private property, if property owners are responsible for maintenance. These private-sector inspectors can report inspection findings (inspection forms and photo documentation) to the participating entity for tracking and reporting. Replacement Costs y Preventive maintenance is accomplished on a fixed schedule or frequency and consists of many check-point activities on items, most typically equipment. Examples include filter replacement, lubrication, and mechanical adjustments. Preventive maintenance reduces the risk of system or component failure, which if it occurs, would interfere with essential operations, endanger life or property, involve a high cost, or require a long lead time for replacement. In regards to replacement costs associated air curtains and pumps, replacement costs are likely to be equivalent to the original cost of the component plus installation. 54 Packet Pg. 2911 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Energy Usage and Utility Costs Energy usage for the operations of restoration technologies such as air curtains I ° can be expensive. Based on the United i) States Energy Information Administration c (EIA), the average price for Kilowatthour in Florida is approximately 11 cents. The type { of restoration technology selected, footprint covered by the technology, and system requirements will all impact the utility costs "> associated with operations. The most recent ` Image 19: Bubble curtain diffusers published information on electricity costs can be reviewed at the EIA's website for monthly electric power costs:https://www.eia.gov/electricity/monthly/epm table grapher. php?t=epmt 5 6 a c c c 55 Packet Pg. 2912 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� 4.0 EFFECTIVENESS OF RESTORATION TECHNOLOGIES Decomposition in sediments consumes oxygen (required by benthic plants and animals) and produces hydrogen sulfide (a toxic gas) after oxygen is depleted. The absence of an oxygenated c water column and a vibrant benthic ecosystem are both signs of a canal that is experiencing poor y water quality. Without sufficient oxygen, benthic organisms and the fish that depend on benthic organisms for habitat lack the necessary conditions to flourish. 4.1 Biological Improvements Florida International University (FIU), evaluated multiple variations of technologies implemented during the Canal Restoration Demonstration Program to determine the effectiveness of each treatment in improving water quality as well as, creating conditions that are conducive to the establishment of good benthic habitat. Based on a scientific evaluation of the treated canals, FIU made the following conclusions on the effectiveness of the four principal technologies used in the E Canal Restoration Demonstration Program: c • Air curtains: Positive effects of these technologies were not measured in the short period of post-treatment monitoring that was conducted for this project. Air curtains had no measurable effect on sediment, fish, or seawall characteristics in either Canal 137, 138, or 287 where they were installed. Although air curtains block the influx of additional wrack from entering a canal,they do not address problems related to the organic material already contained in the sediment; • Culverts: The effectiveness of culverts as measured through this project show mixed results between recipient canals. There was no measurable effect of the culvert on sediment characteristics, fish abundance or seawall diversity compared to the control or pre-treatment conditions. The increased circulation provided by culvert insulation was intended to primarily address water column conditions, thus the subsequent effects on sediment and vegetation may require additional time in order to be identified; E • Backfilling: This technology showed immediate and drastic improvements in c environmental conditions, though observations suggest further steps may need to be taken to preserve the conditions that these technologies quickly generated. The decreased water depth allowed light to penetrate to the sediment. As a result, there were measurable increases in benthic vegetation, fish diversity and abundance and inhabitants of the sea walls; and • Organic removal: The removal of organic material from the canal bottom showed immediate and drastic improvements in environmental conditions, though observations suggest further steps may need to be taken to preserve the conditions that these technologies quickly generated. The sediment depth decreased drastically after organic removal to an average of less than 50 cm in the treated canals. Sediment density increased in both dredged canals to values within the range of seagrass growth in South Florida. Improvements in canals where organic material was removed have not showed an improvement in benthic vegetation, fish, or seawall communities. Sediment and water column conditions may have improved enough to meet requirements of marine plants, though there may be a delay in plant recruitment and animal use (Howard et al. 2018). 56 Packet Pg. 2913 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 4.2 Documented Improvements In order to determine what effect the restoration technologies have on meeting State of Florida water quality standards, FIU developed a water quality monitoring program that compared water quality data from demonstration canals with similar canals that were not included in the restoration program. According to FIU, the main objective of the monitoring program was to provide data needed to make unbiased, statistically rigorous statements about the status and temporal trends of water quality parameters in the remediated canals. The first post-remediation simultaneous monitoring of all canals began in June 2017. FIU used diel (monitoring over a period of time) and water profile data for the assessment. FIU's study concluded that canals that received backfilling (Key Largo#29) and culvert treatment technologies (Big Pine #277, Geiger Key #470, and Geiger Key #472, experienced positive increasing trends in the percentage of dissolved oxygen saturation (%DO Sat) after remediation. For these canals, the response to technology implementation was almost immediate, not only in oxygen concentration but also with the arrival of fish and crab to the remediated canals. As of May 2018, canals that received organic removal and air curtains have yet to display improvements in %DO Saturation. Based on data collected during the limited monitoring period, FIU made the following conclusions about the principle technologies: • Backfilling: This technique resulted in an immediate change in the canal's water quality by significantly improving the water column's DO content. The study from FIU concluded that for deep canals, water quality in residential canals cannot be improved without reducing canal depth. FIU went further in saying that it recommended that bottom elevations within residential canals should be raised to a depth shallower than approximately 7 ft; • Weed gates and air curtains: The use of air curtains or weed gates appeared to be effective in reducing the amount of seaweed wrack entering into the canals; however, canals that only implemented a weed barrier as their treatment method displayed no �? improvement in water quality parameters; • Culvert Installation: This technology effectively increased oxygenation by improving circulation and exchange. This is in alignment with the purpose of culverts which are to c stimulate the exchange with cleaner near shore waters; • Organic removal: Since the implementation of this technology, water quality parameters for canals treated only with organic removal have shown no positive improvement. Monitoring of canals that were treated with organic removal coupled with a weed barrier have yielded more positive results. The study found that without being combined with an 2 air curtain, seaweed would continue to flow into the canal and begin decaying rendering organic removal less effective; and • Aeration: For canals that implemented aeration, the monitoring program found aeration only addresses only oxygenation within the water column. The study was not able to attribute long-term improvements with aeration. FIU's study does recommend combining aeration with air curtains; however, they are not able to attribute a noticeable improvement with such actions. Upon completion of the limited monitoring program, FIU determined the timeframe for monitoring water quality improvements was too short to detect significant and sustained changes as 57 Packet Pg. 2914 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 expected from remediation. Based on their limited monitoring data, FIU was able concluded that DO was the only parameter displayed improvement as a result of the demonstration program. Nutrient concentration levels have not declined in any of the remediated canals. FIU confirmed that Poor water quality is most often a function of depth. The two technologies that demonstrated the greatest ability to improve DO were the backfilling projects and installation of culverts. Both technologies resulted in greater flushing of the canal water which reduced the amount of time water remained in the canal. What the limited monitoring study made clear is that most often, no single restoration technology addresses all water quality issues which may exist in a residential canal (FIU 2018). c c c 58 Packet Pg. 2915 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� 5.0 STRATEGIES FOR IMPROVING COST EFFICIENCY Understanding that the overall cost for restoration is significant and will likely grow overtime, creates a motivation for timely action. Cost efficiencies increase when formal implementation plans are adopted with known budgets and funding sources. Plans, project timelines, and budget c for implementation provide important insight that set expectations for contractors and engineers. This allows contractors and engineers to plan for consistent utilization of construction crews. Additionally, dredging companies and engineering contractors will recognize efficiencies by continuous mobilization within the County. As funding for the long-range operations becomes consistent from year to year, economies of scale will influence the management of restorations. The management principles listed are proven drivers of efficiencies and cost reduction. • Specialization and division of labor: In large scale operations workers can do more specialized tasks. With training they become very proficient in their task, enabling greater efficiency. A good example is a mechanic who becomes more familiar with the same system, can quickly diagnose and repair commonly occurring issues; c • Bulk buying: If you buy a large quantity, then the average costs will be lower. This is because of lower transport costs and less packaging, discounts offered, and other incentives such as prompt payment of invoices; • Spreading overheads: If a firm merged, it could rationalize its operational centers. For example, it could have one head office rather than two; • External economies of scale: This occurs when firms benefit from the whole industry y getting bigger and more reliable (e.g. firms will benefit from better infrastructure, access to specialized labor and good supply networks); and • Coordination of Projects: If more than on participating entity pursues a restoration �? project, coordinating schedules and contracting may result in reducing overall costs for each project due to reduced mobilization costs. Planning Project Implementation and Long-term Operation c A most effective methodology for creating efficiencies is to plan: plan for restoration design and construction implementation; plan for community engagement and canal stakeholder input; plan for short-term and long-term operation and maintenance; and plan for financial management of all costs. A Plan addresses many of the principle set forth in Section 2 of this Canal Restoration and Guidance document as well as the management steps defined in Section 2.1.4. The Plan should document and drive decisions on oversight, day-to-day implementation, and enforcement of standards for project outcomes and sustainability of the restored canal. Establishing the y partnership framework, as described in 2.2.3, Roles and Responsibilities, ensures that partners are aware of and carrying out assigned responsibilities in a timely manner, using a schedule that is agreed to by all the partners. The Plan identifies the permits required and includes within the schedule, a timely review, minimizing overlap as described in 4.3 in this Section in addition to the financial plan and tools to ensure an effective project execution. Creating a cost model for the entire project, from concept 59 Packet Pg. 2916 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 design to long-term operation and maintenance reduces surprises for all partners and assists in aligning costs to potential revenue sources. Documentation is important as well. Each decision, each policy, each process for project completion should be fully documented. This ensures that regardless of representation by various partners, change can be effectively managed. Project schedules can be met when all partners know their commitments and the dependencies and impacts of one action on another. Cost increases in time and money typically occur because insufficient planning occurred. Recommendation: It is recommended that all partners participate in development of the overall plan strategies to create ownership and clarity in role and purpose. Efficiency and Effectiveness of Systems While this guidance document recognizes the central importance of funding for new projects and O&M, it also encourages participating entities to put effort into getting more out of the provided funds through operational efficiencies (e.g. energy efficient systems that only operate when needed), which in turn reduces costs. c Additionally, rather than just focusing on short-term fixes, participating entities should also concentrate on measures that "enable" O&M for the long term, i.e. developing appropriate funding, capabilities and governance for the canal restoration. Continued funding of canal restoration O&M is more likely if participants can regularly illustrate the effectiveness of the technology and projects. In addition, establishing governance through agreements, memorandum of understanding, and /or contracts, provides long-term accountability. Budgeting and fiscal controls, within an operating plan, strengthen grant applications for current or future projects. y 5.1 Project Grouping The benefits of grouping projects together and encouraging collaboration across more than one �? project may result in reduced project and management costs for the participating entity, attractive margins for contractors, potentially earlier completion, and often fewer contract disputes. Furthermore, the solution to issues that arise with one restoration technology can often times be applied to similar projects especially when applied within a local geography (e.g. the transport c and placement of fill material in overly deep canals). The emphasis on relationships rather than transactions can establish support for continuous improvement and long-term relationships that extend to future projects. 5.1.2 Benefits of Grouping Similar Projects The following guidance identifies means by which costs can be reduced or controlled by grouping projects together especially on a locally geographic basis. Procurement of larger quantities of materials Typically, the larger the quantity of manufactured or raw material purchased, the less the unit cost will be. To maximize the benefits,the participating entity may need to plan similar canal restoration projects within a set timeframe to take advantage of purchasing larger quantities of materials. 60 Packet Pg. 2917 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 It's typically not beneficial for a participating entity to purchase materials directly from suppliers as contractors often have existing agreements and greater purchasing power. Furthermore, the onus to ensure the equipment works as specified in the canal restoration design plans is on the contractor when they are responsible for procuring the materials. However, participating entities may find it advantageous to seek purchasing agreements with established vendors or request the purchase of larger quantities of materials than required for restorations if a specific restoration technology is known to have a high repair and replacement cost. Such foresight can reduce downtime following extreme weather events should funding to support the canal restoration program be unavailable. Reduction in permitting costs and review times Permit application fees for SFWMD issued ERPs are based on project size and impact area as well as, where the size and quantity of impacts fit into the agency's application fee structure. Due to the relatively small project size and impact area for certain restoration technologies, it's possible that multiple projects could be packaged together and submitted under one application and still fit within a prescribed range (e.g. project size < 10 acres with wetlands impacts less than 1 acres). Packaging O & M of larger number of canals together The benefits and cost efficiencies associated with packaging the O&M for several canal restoration projects together is derived from providing potential vendors from inside and outside the region the opportunity to forecast revenue and invest in local labor resources. Typically O&M contracts are for 2 to 5 years. The longer the term of the maintenance contract the greater efficiencies the performing entity might observe and be able to pass on to the performing entity (i.e. municipality). Additionally, by packaging the operation and maintenance of several canal restoration projects together, participating entities may be able to take advantage of sole source y efficiencies. Such procurement policies would result in the following benefits: • Based on the similarity of restoration technologies applied geographically through the various regions of Monroe County, the location of staff and supplies can be strategically placed to reduce travel time (e.g. seaweed loading and the use of weed gates are likely to be more commonly used in the middle and lower keys); E • Reduced travel costs for technicians if they are able to be sourced locally; c • Familiarity with site conditions and access requirements would reduce the amount of preparation time and time onsite; • Knowledge of the equipment and installation design will maximize the life cycle of restoration technologies through preventative services; and c • Locally stationed labor resources would be able to react in a timely fashion to secure equipment when faced with a pending extreme weather event (i.e. hurricane, flooding, etc). Recommendation: By packaging O&M from multiple projects and awarding longer term contracts, participating entities can achieve efficiencies, responsive and timely repairs, and overall services, reducing the likelihood of a lack of local O&M capabilities post-construction. 61 Packet Pg. 2918 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 5.1.3 Area Focused Restorations Reduced Mobilizations Mobilization is typically defined as follows: preparatory work and operations, including, but not limited to, those necessary for the movement of personnel, equipment, supplies and incidentals c to the project site, for the establishment of all offices, buildings and other facilities necessary for y work, on the project, and for all other work and operations which must be performed or cost incurred prior to beginning work on the , ,,, various items on the project site. gm'��f Contractors expend significant ` preparatory costs early on a large construction project. It is commons that contractors bid theirtf i4ti, mobilization costs as 10 percent of the original contract amount, which is the maximum amount that can be paid during execution of the work. Contractors' mobilization costs provide a revenue source early in the project. These preparatory costs are incurred prior �ati� to beginning construction at the Image 20: Sugarloaf key project site, and reimbursement of mobilization costs in a timely manner is appropriate. By reducing costs that are directly related to the startup of a project, the overall cost is reduced. The following are benefits to reducing the number of mobilizations: • Equipment delivery costs: The cost to move construction equipment from an equipment yard or rental company to the job site and back again is not included in the direct equipment-use project charges. Mobilization (to the site) and demobilization (from the site) are typically separate unit costs in the mobilization fee. If a piece of equipment is already at the job site, it is not appropriate to add delivery costs to the overall mobilization/demobilization costs in developing the cost estimate; and • Transportation costs: Transportation expenses which are included in the cost of a project refer to the use of or cost of maintaining a car used for business, or transport by rail, air, bus, taxi or any other means of conveyance for business purposes. Expenses for commuting to the job site (traveling from home to a workplace) are typically not included y in the cost of a project. If enough business exists in a localized area, contractors will be able hire locally and forego the need to include travel costs for their entire team. Recommendation: With mobilization, contractors are compensated shortly after they incur the applicable costs. When contractors know that they will be compensated initially for mobilization expenses, the participating entity may find that bids are lower because contractors will not have to finance the those costs. Potentially, the savings of not having to finance the mobilization costs for extended periods will result in a reduction in overhead costs that are passed along to the participating entity (i.e. project owner). 62 Packet Pg. 2919 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 5.2 Establish Standard Engineering Designs The benefits relying on standard engineering designs for the Monroe County Canal Restoration Program would result in the following benefits and efficiencies that can directly affect cost. • Lower supply chain costs: Contractors and participating entities will be able to negotiate more advantageous agreements with vendors if they can provide some certainty to the supplier about the specifications of the equipment and raw material that the project requires; • Faster restoration design: The amount of time required for the engineers to develop the construction plans will be reduced; • Reduced permit review times: The amount of time required to address regulators questions regarding construction plans will be reduced as the agencies become more familiar with the designs and impacts associated their implementation; • Increased quality assurance: Being able to provide feedback regarding the application of a restoration technique will improve the quality and efficiency with which it is applied; c • Reduced risk: Contractors prefer detailed and complete plans and specifications which provide a better understanding of the project, allowing them to bid more effectively and competitively. Contractors have less risk with their bid. There is no need for them to add unnecessary costs to cover incidental or assumed items since every item of work is spelled out the bid form; and • Consistency for O&M Plans: Standard engineering specifications and design plans provide consistency in establishing long-term operation plans.When unique or specialized plans are developed that do not have information on historical use or performance, the O&M plan must include contingencies for on-going operation and cost projections. This increases uncertainty in performance and in assignment of responsibilities for participating entity and partners. 5.3 Permit Fast Tracking It is assumed that fast tracking of environmental and construction permits for canal restoration projects is not viable. This is due to environmental sensitivities and the abundance of protected natural resources. However, the process of obtaining applicable permits in a timely manner is assisted through the implementation of the following guidance. • Grouping projects: Grouping projects together so that they can be submitted under a single application is only available for projects that are being developed by the same y participating entity. This requires that the projects are located within the same geographical region. When possible, this option should be considered; • Proven technologies: Permit reviewers from respective agencies over time will become familiar with the technologies, regions, and participating entities. An understanding of the requirements and participants partners will eventually reduce the need for costly requests E for additional information or changes to the designs; and 63 Packet Pg. 2920 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 • Minimizing impacts: It is a best practice to select the least-damaging project type, while achieving the purpose of the project. Minimizing or completely avoiding impacts is achieved through an analysis of appropriate and practicable alternatives and a consideration of impact footprint. By selecting projects or designing projects that m avoid/minimize impacts to protected resources' compensatory mitigation, which is achieved through appropriate and practicable restoration, establishment, enhancement, and/or preservation of aquatic resource functions and services, may not be required. Although the mitigation itself may not be excessive in cost, the process of developing the mitigation plan and obtaining signed agreements with mitigation banks does add to the overall timeframe and project cost; By implementing these recommendations and adhering to this guidance, in time, the amount of time required to obtain permits will be minimized down to the most administratively feasible timeframe possible. This will further contribute to cost effectiveness because planning, management, and design time associated with projects will be reduced as the need for regulators to issue multiple requests for additional information will be eliminated due to their familiarity with the program. 5.4 Development of an Approved Contractor and Unit Price Lists. Pre-qualification and the development of unit price sheets or schedule of values are essential components of an effective contractor management system. Establishing unit price contracts with estimated quantities assists in controlling costs. However, the contractor is paid for actual quantities of work performed and as verified by the consultant and/or owner representative. 5.4.1 Standardized Qualification Process Based on Project Type Prequalification is a way to limit the pool of potential bidders to qualified, serious bidders. Proponents of prequalification say that it is a productive approach to contracting the bidders who are not responsive and/or qualified. Not only does Pre-qualification makes the bidding process more efficient as it reduces the likelihood of an unqualified firm being selected. It reduces the likelihood of selecting a contractor who can't complete the work, technically, on time and/or on budget. It increases the potential for contractors to win multiple awards allowing experienced contractors who have gained knowledge to provide competitive bids. It creates positive relationships with vendors who can provide competitive pricing due to the regularity of the work. Furthermore, as a control measure on costs and performance delivery, pre-qualifying can help to prevent/reduce cost over-runs and litigation. Prequalification reduces the risk of an award to a contractor who is working in an unfamiliar environment, taking on a scope of work for which they have little or no experience. The risk can be unfortunate for the contractor and the owner (participating entity). The consequences could erode the public's trust in the Canal Restoration Program. Additionally, pre-qualifying contractors y provides the opportunity to determine if the contractor has a history of compliance with standard health and safety regulations as along with the evaluations of the contractor's resume of similar work. Recommendation: It is recommended that participating entities review the qualifications of potential contractors and vendors prior to proceeding with a canal restoration project. Pre- qualification processes focus on a specific service and project value. 64 Packet Pg. 2921 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 5.4.2 Pre-approve Sources of Materials Frequency of usage drives up volume, providing incentive for vendors to offer the best possible price. The following practices are options that participating entity could use or request of their contractors to control or reduce the cost of canal restorations. c • If the materials can be purchased from multiple sources, compare existing specifications from multiple suppliers; allow comparison bidding/purchasing; • Examine if the tolerances for characteristics can be expanded to purchase from more than one source or a wider range of possible, existing materials (such as size for materials); and • Identify functionality for a material that costs less or has fewer known concerns to determine if it is a reliable substitute. 5.4.3 Pre-Established Unit Prices. Unit price bidding establishes an equitable basis for competitive bidding so that contractors are c bidding on the exact same scope of work. This allows for thorough review and comparison of all bids. Unit price bidding allows designers, consultants, and/or engineers to build in project contingencies for any unknown items that may occur during construction. It ensures that all costs are accounted for and it minimizes the potential for hidden costs. Specifically, unit pricing can promote cost efficiencies when: • The participating entity pays only for the actual quantities performed, supplied, or y constructed on the project, and • General contingency that protects the contractor from inaccurate quantity estimates is minimized. Unit pricing eliminates the potential for contractors' price unnecessary extra items since all items are included through the design phase. c c 65 Packet Pg. 2922 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 c� 6.0 LITERATURE CITED OR RELIED UPON AMEC Environment & Infrastructure 2012. Monroe County Canal Management Master Plan Phase 1 Summary Report. 181 p. c AMEC Environment & Infrastructure 2013. Technical Memorandum Task 1 Bathymetric Surveys of Residential Canals. 19 p. Briceno, H.O., and J.N. Boyer. 2009. Little Venice water quality monitoring project final report. USEPA, Atlanta, GA and FDEP, Ft. Myers, FL. 81 p. CDM. 2001. Monroe County Stormwater Management Master Plan. Monroe County. Key West, FL. 304 p. CDM. 2011. Florida Keys Reasonable Assurance Documentation Update. FDEP. Tallahassee, FL. 52 0 CDM and URS. 2008. Central Keys Area Reasonable Assurance Documentation. FDEP. Tallahassee, FL. 149 p. CDM and URS. 2008b. Northern Keys Area Reasonable Assurance Documentation. FDEP. Tallahassee, FL. 136 p. CDM and URS. 2008c. South-Central Keys Area Reasonable Assurance Documentation. FDEP. Tallahassee, FL. 126 p. v, CH2MHILL. 2000. Monroe County Sanitary Wastewater Master Plan, Vols. 1 and 2. Monroe County. Key West, FL. 219 p. Florida Department of Environmental Protection. 2013. Florida's Coral Reefs. Website Accessed August 28, 2013 http://www.dep.state.fl.us/coastal/habitats/coral/ Florida Department of Environmental Protection. 2011. Site-Specific Information in Support of c Establishing Numeric Nutrient Criteria for Florida Bay — Draft. FDEP, Tallahassee, FL. 52 p. Florida International University. 2018. Water Quality Monitoring Project for Demonstration of Canal Remediation Methods: Florida Keys: Final Report May 2018 Submitted by: Henry O. Briceno Southeast Environmental Research Center Florida International University Miami, Florida Florida Keys National Marine Sanctuary. Undated. Coral reefs support jobs, tourism, and fisheries. https://floridakeys.noaa.gov/corals/econamy.html. Website Accessed October 15, 2019. Florida Keys National Marine Sanctuary; National Oceanic Atmospheric Administration (2013). Florida Keys National Marine Sanctuary Socioeconomic Factsheet. Website Accessed August 28, 2013 http://sanctuaries.noaa.g v/science/socioeconomic/pdfs/fk final.pdf 66 Packet Pg. 2923 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 vmod December 12, 2019 Florida Keys National Marine Sanctuary. 2007. Florida Keys National Marine Sanctuary Revised Management Plan. FKNMS. Marathon, FL. 382 p. Goodwin, C.R. 1991. Simulation of the effects of proposed tide gates on circulation, flushing and water quality in residential canals, Cape Coral, Florida. U.S.G.S. Open-File Report 91-237. 49 p. Howard, J.L; Wilson, S.S.; Lopes, C.C.; and Fourqurean, J.W. 2018. Status of Residential Canal Benthic Habitats in the Florida Keys and the Effectiveness of Remediation Technologies (Project Report) Prepared for the Water Quality Protection Program, Florida Keys National Marine Sanctuary & The Village of Islamorada, Monroe County, Florida Florida International University November 2018 Kruczynski, W.L. 1999. Water quality concerns in the Florida Keys: Sources, effects and solutions. Florida Keys National Marine Sanctuary, Water Quality Protection Program. Marathon, FL, http://ocean.floridamarine.org/FKNMS W /docs/fknms/reparts/1999 Water Quality Concerns Florida Keys.pdf. Website accessed October 16, 2019. National Research Council. 2002. A Review of the Florida Keys Carrying Capacity Study. National Academies Press. Washington, DC. 180 p. National Research Council. 2011. Achieving Nutrient and Sediment Reduction Goals in the Chesapeake Bay: An Evaluation of Program Strategies and Implementation. National Academies Press, Washington, DC. 241 p. URS. 2001. Florida Keys Carrying Capacity Study, Canal Impact Assessment Module. U.S. Army Corps of Engineers, Jacksonville, FL and Florida Department of Community Affairs, Tallahassee, FL. 173 p. United States Department of Energy (Undated) Guide to Financing Energy Smart Schools. United States Army Corps of Engineers and South Florida Water Management District. 2004. Final Programmatic Environmental Impact Statement - Florida Keys Water Quality c Improvements Program. USACE, Jacksonville, FL and SFWMD, West Palm Beach, FL. 214 p. United States Army Corps of Engineers and South Florida Water Management District. 2006. Florida Keys Water Quality Improvement Program: Program Management Plan (Final). USACE, Jacksonville, FL and SFWMD, West Palm Beach, FL. 114 p. 2 c United States Department of Interior and United States Department of Commerce. 2009. Strengthening Science and Decision Support for Ecosystem Management in the Chesapeake Bay and its Watershed. A Revised Report Fulfilling Section 202f of Executive Order 130508. DOI and DOC. Washington, D.C. 58 p. United States Environmental Protection Agency. 1975. Finger-fill canal studies: Florida and North Carolina (EPA 904/9-76-017). USEPA, Washington, DC. 232 p. 67 Packet Pg. 2924 Q.2.b Monroe County Cana/Restoration Program Guidance Wood Environment&Infrastructure Solutions, Inc. Project Number 6783-18-3115 wood December 12, 2019 United States Environmental Protection Agency. 2008. Strengthening the Management, Coordination, and Accountability of the Chesapeake Bay Program. EPA, Annapolis, MD. 122 p. United States Environmental Protection Agency. 2001. National Management Measures Guidance to Control Nonpoint Source Pollution from Marinas and Recreational Boating (EPA 841-B-01-005) USEPA, Washington, DC. 209 p. c c c 68 Packet Pg. 2925 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 c� CJ m 0 APPENDIX A Example Budgetary Sheets 69 Packet Pg. 2926 pue 94epdn 4uewn3 a p'n ' a 4s ' ) 4uewn3 a p'n ®g a 4s ' :4u9ua 3 44 s3 : m N U c� a ;m o iU U � N N Z a" W O CL H C u � a1 N 3 > a o. 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O ]D� Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 c� CJ m 0 APPENDIX B CMMP Canal Selection Process 76 Packet Pg. 2933 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 c� CJ May 28, 2019 TECHNICAL MEMORANDUM ) 0 Prepared For: Ms. Rhonda Haag, Monroe County Prepared By: Wood Environment & Infrastructure Solutions, Inc. Subject: Canal Selection Process Project: EPA Grant No. OOD83418 I. Background An inventory and assessment of the residential canals in Monroe County that was completed in 2003 first characterized the water quality in the residential canals as Poor, Fair, or Good based on canal attributes such as area, tidal energy, construction methodology, and level of development. The initial assessment also identified potential restoration technologies, but did not select restoration technologies for canals nor rank the canals for restoration. Phase II of the Canal Management Master Plan (CMMP)which was completed in 2012 and 2013 provided an evaluation of all 502 Keys canals in the canal inventory database based on available water quality data and other quantitative and qualitative information. Dissolved Oxygen (DO) concentration and relevant biological indicators were used to develop the following canal water quality classification system: Table 1. Water Quality Ranking DO Conditions Biological Conditions Water Quality Ranking w > 4.0 mg/L Positive Good c > 4.0 mg/L Negative Fair 3.0 —4.0 mg/L Positive Fair 3.0 —4.0 mg/L Negative Poor76 y < 3.0 mg/L N/A Poor Additionally, the Poor water quality canals were ranked for priority of restoration based on severity of the problem, habitat quality, potential for achievement, supplemental benefits, project constraints, and public benefits. An example ranking sheet from the Phase II CMMP is provided 77 Packet Pg. 2934 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 in Exhibit I. The top ranked Poor water quality canals were further evaluated for selection of restoration projects under the Demonstration Program. Following the completion of the Phase II CMMP water quality rankings, the FDEP water quality criteria for DO was modified from the 4 mg/L (at any location at any time) threshold to percent saturation at a representative location as follows: c 1. The daily average DO percent saturation shall not be below 42 percent; 2. The weekly average DO percent saturation shall not be below 51 percent; and 3. The monthly average DO percent saturation shall not be below 56 percent. Additionally, the determination of whether a canal exhibits impaired water quality pursuant to FDEP standards requires the collection of multiple samples (at least 20 samples within a 7.5 year period). In 2017, additional water quality data for the Poor and Fair canals was collected during Phase IIIA of the CMMP. The 2017 water quality data was compiled along with the 2013 water c quality data as well as water quality data collected by the FDEP and FIU, and water quality rankings were revised based on the following criteria: • Poor-At least two samples were Poor (<42%), and more than 30 percent of the total number of DO samples were Poor • Fair -At least 50 percent of the DO samples were Poor or Fair (42%<>70%) • Good - Greater 50 percent of the DO samples were Good (>70%), or at least 10 samples were collected and the canal satisfies the criterion set forth in 62-303.320(1) It was assumed under Phase II of the CMMP that restoration of all of the Poor and Fair canals would be required. However, based on revision to the DO criteria as well as the revised ranking criteria, it is expected that only Poor ranked canals will require restoration. It is anticipated that additional monitoring activities will be completed to characterize Fair canals as either Poor or Good. Due to the limited water quality data and the variability in water quality conditions, the current number of Poor water quality canals is unknown. However, based on the available data it is apparent that of the 502 canals, 22 canals have exhibited sufficiently degraded water quality to warrant restoration. 2 II. Canal Selection Considerations y The selection of a canal for restoration should satisfy three primary criteria: • Necessity • Feasibility • Potential Benefit 78 Packet Pg. 2935 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 The necessity for canal restoration is predicated primarily on compliance with the FDEP water quality criteria. The water quality monitoring activities that were completed in 2017 demonstrated that significant variability in water quality conditions can be observed, and the collection of grab samples to characterize DO in a canal may not be representative. Rather, using water quality sondes to collect diet DO readings is preferred. Ideally, a full week of DO readings would be collected to determine whether a canal requires restoration;with restoration necessary for a canal that exhibits three daily average DO readings below 42 percent, or a weekly average below 51 percent. The feasibility of a canal restoration will require site reconnaissance activities to verify that the preferred restoration technology can be implemented. Items to consider when evaluating feasibility include but are not limited to the presence of a sufficient staging area for material handling if backfill and/or organic removal is proposed; a viable location to place blower cabinets if an air curtain is proposed; and the location of underground utilities if a culvert is proposed. The site reconnaissance should also evaluate the presence of sensitive aquatic resources to ensure that the proposed project will not have potential impacts that could be an impedance for permitting. Potential benefit should be evaluated based on appropriate engineering studies and reference to U previous restoration success, such as the demonstration program. For example the monitoring c results for the demonstration program indicate that an air curtain is sufficient to prevent additional water quality degradation from seaweed decomposition, but will not address the impaired water quality from seaweed loading that occurred prior to the installation of the air curtain. Similarly, the demonstration program monitoring indicates that organic removal alone is insufficient to restore water quality, and that backfilling to approximately seven feet below Mean Lower Low Water (MLLW) should be completed following organic removal. The monitoring that was completed for the demonstration program indicates that culverts provide significant benefit to y water quality, but cannot overcome seaweed loading. Therefore, in order to achieve full canal restoration the following hierarchy is suggested: • Reduce residence time through either a culvert or backfilling. Backfilling is recommended �? for canals that exhibit an average depth greater than 10 feet, otherwise a culvert is recommended due to cost efficiency. A hydraulic study should be completed to estimate the residence time reduction that can be achieved. If possible, a tenfold reduction in residence time is recommended, and the installation of a culvert should be considered c infeasible if a twofold reduction in residence time cannot be achieved. For backfilling, the necessity for organic removal should be considered. It is suggested that if the average canal depth is greater than 15 feet, that organic removal is not necessary. If the depth is between 10 and 15 feet, then organic removal should be completed if the average organic thickness is greater than one foot. If the depth is less than 10 feet then organic removal should be completed unless a detailed bathymetry survey demonstrates that organic sediment is not present. • Prevent the migration of seaweed into the canal using an air curtain if necessary. It is suggested that an air curtain is necessary if a canal exhibits over a foot of organic sediment. III. Example Canal Ranking Process The ranking or scoring process should be set up to objectively identify those canals that should be given first consideration for restoration. The higher a canal scores, the more suitable it is for 79 Packet Pg. 2936 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 being restored. The following criteria were used to score and rank the Phase II CMMP Poor and Fair ranked canals located in the City of Marathon in 2018. An example ranking sheet is provided in Exhibit II. 1. Severity of the Problem 0 • Issue 1. Water quality— Dissolved Oxygen-Related Issues: Using the updated FDEP rule for dissolved oxygen (DO), the ranking process attempted to separate canals that either have no monitoring data available or have displayed consistently compliant water quality readings from those canals that have displayed non-compliant or borderline compliant water quality readings. Canals with more than 50 percent of the monitoring data exhibiting DO saturation greater than 70 percent are likely to be compliant and as such were given a low score. Canals that have either consistently displayed DO values below the compliance level of 42 percent or whose data has been borderline compliant and given likely environmental conditions would potentially exhibit non-compliant DO levels were given higher scores. Due to the direct relationship to compliance, water quality was given the greatest weight in the canal ranking process. • Issue 2. Evidence of Nutrient Accumulation: As noted during the CMMP, canals that receive seaweed loads have a significant source of nutrients that can result in near continuous eutrophication of the canal. The impact of seaweed loading on nutrient concentration is often visually evident through algal growth (e.g. slime on the canal surface or walls) and reduced water clarity. The ranking process attempted to score canals with varying degrees of seaweed loading higher than those canals that do not experience such impacts. For instance, a canal that experiences significant seaweed loading, maintains a moderate to severe growth of blue green algae, reduced visibility, and diminished presence of aquatic life received the highest score. • Issue 3. Likelihood of Toxicity: During the Monroe County Canal Demonstration projects, canals that were noted as having extreme depths (> 20 feet below the water surface) displayed an accumulation of hydrogen sulfide in their lower depths. As such, the ranking process weighted deeper canals over shallower canals due to those canals containing hydrogen sulfide that could potential impact near shore waters. 2. Environmental Settings c • Issue 1. Connectivity to Nearshore Waters: The basis for cleaning up non-compliant canals is that not only do they present a nuisance condition to homeowners, but non- compliant canals could potentially have a detrimental effect on nearshore waters and the associated aquatic habitat (i.e. coral reefs, seagrass beds, etc.). The process of ranking canals based on their environmental settings resulted in higher scores for canals that discharge either directly into Florida bay or the Atlantic Ocean higher than those that c discharge into a basin. The assumption is that the basin would have a moderating effect a on water being discharged from the canal before it eventually makes its way into open water where sensitive resources typically exist. 3. Project Success • Issue 1. Restoration Technology: Scoring is based on the potential to implement a proven technology that is capable of complete canal water quality restoration. Due to anticipated availability of funds, an estimated technology implementation cost that 80 Packet Pg. 2937 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 exceeds $2M should not be considered for restoration. As such, excessively expensive technologies received a score of 0 in order to separate those canals out from canals that could be restored with cost effective technologies. • Issue 2. Implementation Cost: As previously noted, the availability of funding to complete a restoration is a significant constraint and as such excessively expensive (> c $2M) restoration projects received a score of 0 while the more cost effective restorations received the higher scores. This issue focused on the implementation of all applicable technologies required to restore water quality within the canal. • Issue 3. Homeowner Interest: Very active communities that have expressed interest in participating in the canal restoration program were scored higher than those communities which have not either participated in public meetings regarding the canals or expressed support for the program during various public outreach events. • Issue 4. Project Implementability: This criterion accounts for factors such as staging areas, complexity of permitting issues, mitigation requirements, and potential complications with existing utilities or difficulty of access. Canals that are more suited for the existing restoration program and don't have characteristics that could affect the implementation or timing of the restoration were scored higher than those which might have extenuating circumstances that could delay or prevent the project from occurring. • Issue 5. Public Benefit: This category assumes that the more homeowners that live along a canal, the larger the benefit would be; since more residents would experience the effects of having a restored canal. c c 81 Packet Pg. 2938 Monroe County Cana/Restoration Program Guidance Wood Environment and Infrastructure Solutions, Inc. Project Number 6783-18-3115 woo • December 12, 2019 c� CJ m 0 0 Exhibit 1 Phase II CMMP Ranking Sheet for Canal 242 82 Packet Pg. 2939 pue 94epdn 4uewn3 a p'n ' a 4s ' ) 4uewn3 a p'n ®g a 4s ' :4u9ua 3 44 v si c� Ya CJ a Y° m O > IT O -° co v IL o m O c m Z - b0 C Y N N Q C C d' O O Q N IL E �n L > u O `N^ u ~ O N N Z �_ u c C, y 3 a Y c v o c� 0 -° > co c m u g c O ai co a v p C, o u 'E > Y a v ° c a o (0 O C, (�0 N m N o a C, C, .c c a 3 3 a $ u a u cu c>o E ° a0 C, o o u > ° a uo L N N E VI (0 L C (0 Q U F (0 � a+ N � O VI O 01 01 t0 � N O F C i . 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Project Number 6783-18-3115 woo • December 12, 2019 c� CJ m 0 0 Exhibit II 2018 Ranking Sheet for Canal 242 y 85 Packet Pg. 2942 pue 94epdn 4uewn3o a p'n ' a 4s ' ) 4uewn3o a p'n ogejo4s ' :4u9wg3e44 v o - fo o _ O IL o u Io Iv _ N 3 _ - IL 3 o v o p O o O E ~ O 21 O -c 9 � ill ill ill M N ri ei ei E 09 E 0 3 z 0 E £ ° m ° ° o Z Z o o vl o vl vl �o �o m u m � 0 a 9 N O O > N ° v I v 'o Z i 0 �° o `o o v a a ° n V ° o o v t v o a v c o E o o a v v "' v "' °u m o E v o o v 0 o v v o v m °u o on m Q 9 v m > o a v - �, v o > 9 o + -vo w v a v o a o o Yv o - 3 .°. o > v a v a o E o > a o a o w n a c w n v o t E o v a .� v m - - 3 o Y v E o ° o Y �, n - a L y o v 3 `^ v o v + o o v ro u - o v 0 N 9 m 0 a ° a Q v o ° E L Y a t ° 33 0 0 u £ o v Q > o v 3 v `o o f ° v a m o m 3 m Lv vz 0 >o mO ov 00 v> z - ° 0E _cv o d mn a �n 0 a s > o m o _ > o a v a 0 > ° o o Eg Eo Q > o o ° 0 av v s c o m > v - 10 ° v c c c a 3 v ° v n m m N a s v o v v '^ v v `o E _ + 0 v c 0 t a c v c o a o L m o fD u o v ° E t o i o v o `o w o m" 9 v L ° E _-0 0 0 9 t v t v 9 s c .3 o E v Y v v V m n °1 `0 c p E '� °1 ° > v 0 w3 m o a w o 9 °; - ° ai ° o m n w 0 o a c c u + E a - u ., m ° ° 'oo v o `0 c 3 o E o + c 3 v 3 o vl -o ° o a ° ° n°n a v ° v 0 o a u o a 75 o v U va9 0 m E Ev ao o o ° o . w I op 3 o c a v a o v E t °u a - E u 0 t o o °° .°. v ` „o�. uq o �n „o�. v 9 t c > v •, i " ruo v v v p °' '� nn : E E ° `oE v` mv Ltc - E $ o m nn £ 0 EJ v o v `o 0 0 m •� o o m o v °u '.c ° v E 'm a ° t v E o U 0 c` c• Q g g `° = w Q a v q 'o' v 3 m '• ° ° E o w. 9 > v E o a O 4c a v a s v v o m a n n o o v ° m ° ° 'a ° o o n Q H a > + Q.2.c 1 J t , 3 `! 4 :, 4 � 5 MONROE COUNTY, FLORIDA t? 6 MONROE COUNTY BOARD OF COUNTY COMMISSIONERS c� c� 7 RESOLUTION NO. -2021 8 0. 9 A RESOLUTION OF THE BOARD OF COUNTY COMMISSIONERS OF 10 MONROE COUNTY, FLORIDA APPROVING THE UPDATE TO THE o 11 CANAL MANAGEMENT MASTER PLAN (COMP) BY ADOPTING THE 12 CANAL RESTORATION PROGRAM GUIDANCE DOCUMENT AND BY 13 ADOPTING THE REVISED GUIDELINES TO SELECT CANALS FOR c� 14 RESTORATION. a 15 s 16 17 U) 18 19 WHEREAS, the Florida Keys are designated as an Area of Critical State Concern to protect the 20 many significant resources, including the protection and improvement of nearshore water quality; and 21 WHEREAS, the waters surrounding the Florida Keys of Monroe County, Florida, are situated 22 within the boundaries of the Florida Keys National Marine; and 23 �° 24 WHEREAS,the waters surrounding the Florida Keys of Monroe County,Florida, are designated U 25 as Outstanding Florida Waters; and 26 27 WHEREAS,the Florida Keys National Marine Sanctuary (FKNMS) established a Water Quality 28 Protection Program in 1994 to maintain and restore the ideal water quality needed for the marine 29 ecosystem in the Florida Keys and the sanctuary waters; and 30 2 31 WHEREAS, the Florida Department of Environmental Protection (FDEP) in 2008, developed 32 the Florida Keys Reasonable Assurance Document (FKRAD) for the purpose of addressing both o 33 anthropogenic nutrient loading and diminished dissolved oxygen concentrations within canals; and o 34 2 35 WHEREAS,in 2012/2013,the County prepared a 2013 Canal Management Master Plan(CCMP) 36 which included an evaluation of virtually every canal in the county, including all the municipalities; and 37 38 WHEREAS, over 500 canals were was visited and tested/ranked for water quality, resulting in = :E 39 300 canals being considered impaired and not meeting State water quality standards; and 40 �s 41 WHEREAS,the County completed numerous canal restoration demonstration projects to evaluate 42 water quality improvement and restoration options; and 43 44 U Packet Pg.2944 Q.2.c 1 WHEREAS, as an Area of Critical State Concern, the County has a Work Program adopted by 0. 2 the Administration Commission,providing tasks the County must complete, and 3 4 WHEREAS, Administration Commission Rule 28-20.140, F.A.C., became effective on Fu 5 November 26, 2020, and includes a Canal Restoration Implementation portion within the Work Program, 6 and ; and c� 7 8 WHEREAS, Rule 28-20.140 (5)(d)1., F.A.C., requires: By December 30, 2020, Monroe County 9 shall update the 2013 Canal Management Master Plan (CCMP) to include any updated water quality 10 assessment of canals, a methodology to prioritize need for water quality improvement, appropriate 11 restoration options and revised canal rankings based on new information; and ° 12 13 WHEREAS, Rule 28-20.140 (5)(d)2., F.A.C., requires: By December 30, 2020, Monroe County 14 shall develop and adopt guidelines to select canals for restoration, including a process to evaluate the o 15 feasibility of the project, the proposed restoration design (evaluate long-term cost-effective solutions) 16 and associated funding needs; and 17 U) 18 WHEREAS,Monroe County has updated the Canal Management Master Plan(CCMP)Guidance 19 Document and guidelines to select canals for restoration,pursuant to the requirements of Rule 28-20.140, 20 F.A.C., and 21 m 22 WHEREAS, the quality of nearshore waters, water bodies, wetlands, mangroves, seagrass(es), E 23 and other natural native features of Monroe County, is critical to the environmental, economic, and o 24 recreational prosperity of Monroe County, and to the health, safety, and welfare of the residents of and 25 visitors to Monroe County; and r_ 26 27 WHEREAS, it is a valid public purpose for Monroe County to restore and protect water a 28 resources; and 29 30 WHEREAS, it serves a public purpose for Monroe County to approve the updated CMMP and 31 adopt the guidelines to select canals for restoration; 2 32 33 NOW THEREFORE, BE IT RESOLVED BY THE BOARD OF COUNTY ° 34 COMMISSIONERS OF MONROE COUNTY: 35 36 Section 1. The recitals contained herein are true and correct and are hereby incorporated as if 37 fully set forth herein. A 38 Section 2: The Board of County Commissioners does hereby approve the update to the Canal 39 Management Master Plan by adopting the Canal Restoration Program Guidance 40 Document attached as Exhibit 1 and by adopting the Revised Guidelines to Select 41 Canals for Restoration, attached as Exhibit 2. 42 r_ 43 Section 3: This Resolution shall become effective immediately upon its adoption. E 44 Packet Pg.2945 Q.2.c 1 PASSED AND ADOPTED, by the Board of County Commissioners of Monroe County, Florida 0. 2 at a regular meeting of said Board on the 19t' day of May 2021. 3 4 Mayor Michelle Coldiron 5 Mayor Pro Tem David Rice 6 Commissioner Craig Cates �- 7 Commissioner Eddie Martinez c� 8 Commissioner Mike Forster 9 10 11 (SEAL) BOARD OF COUNTY COMMISSIONERS o 12 ATTEST: KEVIN MADOK, CLERK OF MONROE COUNTY, FLORIDA 13 14 tj 15 16 s 17 BY BY U) 18 As Deputy Clerk Mayor Michelle Coldiron 19 20 21 m 0 0 m U 0 .E C� m 2 0 0 0 0 a �s m :E 0 �s 0 0 m E U Packet Pg.2946 Q.2.c 2 3 4 Exhibit 1 5 6 Canal Management Master Plan 7 8 Guidance Document 9 00 10 E 0 I m C� 0 0 U 0 m U) 0 C� 0 0 m 0 0 0 m U 0 .E C� m O 0 0 0 0 a �s m :E 0 �s 0 U) 0 m E U Packet Pg.2947 Q.2.c 2 3 Exhibit 2 4 5 6 Revised Guidelines to Select Canals for Restoration t? 7 8 9 10 0 I m C� 0 0 U 0 m U) 0 C� 0 0 m 0 0 0 m U 0 .E C� m O 0 0 0 0 a �s m :E 0 �s 0 0 m E U Packet Pg.2948 (sleue0&gala$o&saullapinE)pue a&epdn&uawnooa aouepinE)ueldia&sew leueo) I ZOZ�Z Ilady&sll epajpo OwMueN leueo;}eaa:&uawLjoe&&y N tr N 1 r L {(, V N eNi eNi � � V � ilt u m - a c It u m F U! �I � ;tj7t c t' LY { t{y m v Z m Ln C t m t — m v y o x o o O °. o (U — V v a o C m m x C by N m 0 -O (U O '^ " u W m (Uo C ; (U Y E Y - > 0 m Y f r b0 m (UO (-U (U �1 L 4 Obo O i '^ vVi O O 3 L N y t„ E Q N y M Z. 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