The Upper Wagner Creek Water Quality Improvement Plan (UWC Plan) was borne out of a recognized need to improve the water quality in the Miami River. Under the direction of the Miami River Coordinating Committee (predecessor of the Miami River Commission) the UWC Plan was completed in June 1996 with the input of various agencies and recognized experts in the civil engineering and environmental community. The group concluded that previous plans dealing with water quality in the Miami River were hampered by having large geographic scopes that encompassed too many problems spreading effort and funding over a wide spectrum. The group felt that by narrowing the focus on a priority area, it would result in more concentrated activity with measurable productivity. The Upper Wagner Creek area was selected because it was determined to be among the most polluted waters in Dade County. The Plan identifies a series of objectives, strategies and tasks to improve the water quality of Upper Wagner Creek with the eventual goal of "transforming the upper Wagner Creek into a community amenity with pristine water and abundant biological resources enhancing Biscayne Bay". It was felt that the lessons learned in improving the water quality in this area could be readily transported to other sections of the River and thereby improve the water quality of the entire River watershed.

The following is a list of organizations that assisted in the development of the Upper Wagner Creek Water Quality Plan and contributed their expertise to improve water quality in the Miami River:

• Miami River Coordinating Committee

• Metro-Dade Water and Sewer Department (MDWASD)

• Metro-Dade Department of Environmental Resources Management (DERM)

• City of Miami Public Works Department (COM)

• Florida Department of Environmental Protection (DEP)

• United States Environmental Protection Agency (EPA)

• South Florida Water Management District (SFWMD)

• Metro-Dade Planning Department (MDP)

In order for the average individual (i.e. non civil engineer or environmental specialist) to clearly understand this report the following terms that are used throughout this report are defined:

Storm Sewer System - This is an engineered system of culverts and underground pipes that drains rainwater from roadways and neighborhoods and its primary function is to prevent flooding. This system directs stormwater into the river, bay or ocean.

Sanitary Sewer System - This is an engineered system of underground pipes that carries sewer waters from toilets, showers, dishwashers, etc. to a water treatment facility, where the sewage is treated and the treated water in south Florida is discharged into the ocean. The sanitary sewers have numerous pump stations and "push" the sewer water to the treatment facility.

Surface Water Runoff - This is basically rainwater that flows along the surface of the ground or roadway and flows by gravity into a stormwater system, stream, river, bay and or the ocean. Ideally surface water should drain into the ground, however, with roadways, parking lots and other urban development, surface water cannot drain into the ground and the runoff flows into the stormwater systems and the river and carry pollutants from the ground's surface into the river. (example: Oil that leaks from vehicles onto the roadways and parking lots is washed into the river and bay by surface water runoff.)

Solid Waste - This is primarily trash, but can include material such as unsold or rotten produce, litter, tree stumps, materials resulting from building demolition, derelict vessels, abandoned cars, etc. Trash, litter and small solid waste materials are commonly carried by surface water runoff and eventually the trash ends up in the river, bay and ocean via the stormwater system or simple surface water runoff.

Watershed - The surrounding area of land that delivers water runoff to a particular river or stream. For example, the water that enters the Miami River comes from the Miami River Watershed.

Point Source Pollution - Sources of pollution coming from a specific point of discharge such as a pipe from a factory or an oil spill emanating from a hole in a vessel.

Non-Point Source Pollution - Sources of pollution that come from many general sources. Stormwater runoff is an example of non-point source pollution because pollution from many sources combines with the rainwater. Stormwater runoff can contain fertilizers from lawns, gardens and golf courses, street litter, and oil and grease from parking lots and roadways. According to the Florida Department of Environmental Protection, most of Florida's water pollution comes from contaminated stormwater runoff.

Fecal Coliform Bacteria - This is human waste. Levels of this pollutant can be measured by water quality testing methods. The State of Florida sets the safe health standard as less than 1000 fecal coliform bacteria per 100 milliliters. Sadly, Wagner Creek exceeds the state fecal coliform levels almost 100% of the time with some tests exceeding the standard by a multiple of 10,000 times the safe level.

Historically, the Miami River originated in the Everglades and flowed through the Atlantic Coastal Ridge into Biscayne Bay. Today, the river remains the largest tributary to Biscayne Bay and is an economically important waterway for commercial and recreational maritime interests as well as an environmentally important waterway for the continued health of Biscayne Bay. In addition to being the Bay's largest tributary, the Miami River is unfortunately one of the Bay's greatest sources of pollution. The Miami River has had a history of water quality problems from the time the city grew up along its banks. Pollution flowing from the River into the Bay has been a concern raised in numerous reports, studies and investigations since the 1940's. Addressing the water quality degradation has been difficult, because it is caused primarily by non-point source pollution.

Most of the Miami River's pollution is carried into the river by stormwater runoff, sewage system leaks or improper connections to the stormwater system and "poor housekeeping" practices throughout the 69-square-mile Miami River watershed. Pollutants enter the river at numerous different locations. The western portion of the Miami Canal drains highly urban areas, industrial areas, and some areas that are primarily agricultural. The lower portion of the river drains the highly urban and commercial area of downtown Miami.

The first pollutant source we will discuss comes from sanitary sewage collection systems. The function of the sanitary sewer system is to transport sewage from homes and businesses via a piping system to a treatment facility. At the water treatment facility, sewage is treated and treated water is pumped offshore. The Miami River's sewage pollution problem is primarily the result of old, leaking piping systems, a sewage system that historically was interconnected with the stormwater system and many of those connections still exist, and the continued illegal and improper connections of sewage systems to the stormwater system.

The River receives the bulk of its contaminants primarily through the stormwater system. The first one inch of rain water or surface water runoff has shown to hold the majority of the pollutants. Current EPA regulations require new businesses or developments to contain the first inch of rain on the property; however, existing businesses and developments are not required to meet this regulation. Improper land uses or drainage systems result in this water and pollutants being directed into the stormwater systems instead of properly percolating through the ground or being treated on site. Stormwater systems are basically open systems designed to collect excess water created by storms and transport this excess water to streams, rivers, bays or the ocean. Unfortunately, this system acts as a major source of pollution by collecting and transporting rainwater and pollutants as well as solid and liquid wastes that result from "poor housekeeping" or illegal dumping activities.

These above factors have caused the Miami River to have water and sediments, which continually do not meet county and state standards.

1. Problem/Discussion

Stormwater Systems are designed to collect and drain excess water created by storms. However, this system acts as a major source of pollution to the Miami River by collecting contaminants in the surface water as well as solid and liquid wastes from "poor housekeeping practices" and illegal dumping. In addition, this system can overload during large rainfall events such as Hurricane Irene and cause flooding. This sometimes causes floodwaters to infiltrate the sanitary sewage collection system and cause overflows or overloading of the sanitary sewer system. The end result is that fecal coliform bacteria enter the waters of rivers, bays and the ocean. Wagner Creek has very high levels of fecal coliform bacteria.

2. Strategy of UWC Plan:

The strategy of the UWC Plan was to improve stormwater runoff water quality to meet water quality targets and loads. This was to be done by accomplishing six tasks:

1. Complete a design for public stormwater treatment systems that, combined with private treatment systems, will meet adopted water quality targets and community amenity objectives.

2. Review municipal and county ordinances governing private, on site stormwater runoff discharge criteria. Recommend any changes to ensure balanced sharing of responsibilities within a reasonable time frame.

3. Assess sources and secure cost share funding for the construction of the public stormwater infrastructure improvements.

4. Construct the public stormwater treatment improvements.

5. Develop a long-term system maintenance program.

6. Complete and maintain a status and tracking matrix. Recommend future projects and funding.

3. UWC Plan Accomplishments:
The following is a listing of accomplishments:

The City of Miami contracted a consulting firm, Cap Dresser &McKee (CDM), and CDM developed the "Wagner Creek/Seybold Canal Stormwater Master Plan Update", completed in July 1999. This report was created with the help of agencies including: FDEP, DERM, SFWMD, and the City of Miami. The CDM Master Plan suggested the major goals should be to improve flood control, water quality protection, wetland management, and aquifer recharge. They recommended that this should be done through public awareness and education, development of a flexible phased approach, use of proper methods and tools, and field verification of critical data to ensure the plan meets its' goals.

In meeting the UWC Plans educational goals, DERM and FDEP created brochures about stormwater systems and general pollution prevention in English, Spanish, and Creole. In addition, DERM has an educational tool that depicts an active stormwater system. This display is used at schools and public gathering presentations and is called "Enviroscape".

The City of Miami completed retrofitting storm sewers in Morris Park and dredged some upper sections of Wagner Creek and retrofitted storm sewers. The city expended $4.6 million on these improvements. Additionally, the City has applied in July 1999 for environmental permits for Phase IV and Phase V Wagner Creek projects for dredging and retrofitting storm sewers. These projects are awaiting DERM approval.

The City of Miami continues to prioritize Wagner Creek for Vactor truck operations. Vactor truck reports indicate improvements, however, they are still encountering problems with agriculture products and trash in stormwater catch basins.

4. Recommendations:

The Stormwater Subcommittee has reviewed the accomplishments and shortcomings of the UWC Plan in the area of Stormwater systems and recommends the following:

• The City should perform topographic studies with a one-foot contour to update the old five-foot contour study. This would show the low points of the city and aid in localized flooding. (CDM)

• The City should obtain soil infiltration data where exfiltration trenches or drainage wells are recommended to ensure effectiveness. (CDM)

• A public information program should be instituted to educate businesses and residents about the stormwater program, and how it affects them. (CDM)

• The City should provide incentives to private businesses to install stormwater treatment devices and/or institute Best Management Practices (BMPs) to treat stormwater runoff. (CDM)

• The Miami River Commission should look into "stormwater parks" in conjunction with the Trust for Public Lands to create open lands where surface water can percolate naturally. (SSC Minutes, January 26, 2000)

• Within three months, develop a comprehensive grid water-sampling program with the objective to identify specific locations within the stormwater system where contaminants are entering and determine the source. (DERM)

• Within one year, a comprehensive inspection program of all stormwater systems that discharge into Wagner Creek to identify all cross connections and within two years eliminate all cross connections. (DERM)

• Within three years, all stormwater drainage systems discharging to Wagner Creek should be upgraded to meet current retention/treatment standards. (DERM)

• Within five years, all required retrofitting of outfalls along the Miami River and its tidal tributaries should be completed such that every outfall structure is in full compliance with applicable standards including federal NPDES requirements. (DERM)

• The Miami River Commission should seek matching funds from the State of Florida to assist in the necessary stormwater drainage system and sewage collection system upgrades. (DERM)

• Directly connected impervious areas should be minimized through the use of porous pavement and "green corridors" around buildings to promote infiltration. (CDM)

1. Problem/Discussion
Sanitary sewage collection systems are designed to be closed systems of pipes and pumps that convey private and commercial sewage to a treatment facility. Here, it is treated to required standards, and then pumped offshore. The problem is that the sanitary system is old, and in some places, poorly designed. Many pipes are corroded and/or cracked, which leads to infiltration and exfiltration problems. In addition, some private and commercial locations have illegal sewer connections to the stormwater systems rather than the sewer system. It is very difficult to locate and correct these improper or illegal connections. All of this contributes to polluting the Miami River.

2. Strategy of UWCP: The strategy of the UWCP was to implement a sewage infrastructure improvement plan. This was to be accomplished through four primary tasks:

• Complete a comprehensive inspection program for each parcel consisting of on site compliance audits with testing and visual inspection of all stormwater and sanitary piping.

• Increase conveyance capacity in the sanitary basins. Prepare a complete implementation plan for the necessary downstream improvements.

• Decrease the rate of sanitary sewage flows in basin No. 54 by identifying large users of water and promoting water conservation and use of water saving devices. Review municipal ordinances governing water conservation and recommend any changes.

• Complete and maintain a status-tracking matrix. Recommend future projects and funding.

3. Accomplishments: The SSC's first actions on this issue were to investigate existing sewer lines for leaks or faulty/improper connections. Mr. John Chorlog of MDWASD reported on this issue.

• He stated that 71 of the 72 manholes in this area were inspected, and eight were found defective and repaired.

• Smoke testing was done on 73 segments in the area and MDWASD found two private, six public, and one cross-connection defect. MDWASD corrected the public defects and turned the private defects over to DERM for correction/enforcement.

• MDWASD also completed a comprehensive Sanitary Sewer Evaluation Survey of the Upper Wagner Creek Study Area. MDWASD inserted cameras into the main line gravity sewers for the entire study area and found 96 defects. All but 14 of them have been repaired, and the remaining defects are scheduled for repair.

• In order to prevent people from lifting manholes to the sewer system to drain floodwaters, some in critical areas have now been bolted and locked.

• DERM has found numerous lateral connections to stormwater manholes that could possibly overflow into sanitary sewage collection systems.

• Overall, sewer pump station reports show low rates, and infiltration problems have been reduced. In addition, pump capacity has been reduced and pump capacity is now at 7 hours, which is below the 10-hour nominal average pump operating time.

4. Recommendations

The Stormwater Subcommittee recommends the following:

• MDWASD and the city work to identify and eliminate all storm/sanitary sewer interconnections. An accurate database of all such connections should be kept. (CDM)

• MDWASD should continue to secure sanitary sewer manhole covers so that unauthorized individuals cannot remove them during times of flooding. (SSC Minutes November 2, 1999)

• The City and County should work together to conduct dye flood testing of existing storm sewer lines too more effectively ascertain its' integrity. (SSC Minutes June 7, 2000)

• The MRC should create a budget proposal for dye flood testing and work with the City of Miami to apply for an EPA 319(h) grant. (SSC Minutes June 7, 2000)

• Within five years, complete the installation of sanitary sewers in the unsewered areas west of NW 27th Avenue and ensure all septic tanks are abandoned. (DERM)

1. Problem/Discussion:

2. Strategy of UWC Plan:

• Establish a multi-agency compliance task force for cross training and effectiveness in several areas like pollution control, regulation, safety, and environmental enhancement and education.

• Repair and clean up the public infrastructure including stormwater, sewer and street systems. Keep solid waste of the streets.

• Thoroughly inspect all properties and public infrastructure.

• Retrofit public and private stormwater systems to improve water quality

4. Recommendations:

• The city should improve regulations concerning the amount of runoff required to remain on site based on soil infiltration capacity, while maintaining the minimum of one inch. (CDM)

• The EPA should adopt water quality target values. (Various)

• The MRC should review municipal and county ordinances governing private, on site stormwater runoff discharge criteria. Recommend any changes to ensure balanced sharing of responsibilities with in a reasonable time frame. (SSC Strategy 1.4, Sept.22)

• No Miami-Dade County Class I Coastal Construction Permits should be issued for seawall/bulkhead work within either municipalities or unincorporated areas of the Miami River or its tidal tributaries unless the cap of the seawall is elevated to prevent runoff of untreated stormwater into surface waters. (DERM)

• Effective immediately, all City of Miami building permits and Miami-Dade County Class I permits should require improvements in drainage infrastructure to the maximum extent possible pursuant to applicable codes. (DERM)

• Within six months, the City of Miami and Miami-Dade County should develop a building permit review process that requires permit applicants to obtain a drainage review from DERM and a plan review stamp of approval prior to processing of building permit applications for projects within the City with areas adjacent to the Miami River or its tidal tributaries. (DERM)

• Within six months, a comprehensive assessment of all categorical land uses within the watershed of the Miami River and its tidal tributaries that are subject to NPDES regulation should be conducted by the EPA with assistance by appropriate agencies.(DERM)

1. Problem /Discussion:

Businesses and residents in the UWC area were unaware that their poor housekeeping practices were a major contributor to water quality degradation in Wagner Creek and the Miami River. Businesses and residents often allowed (and sometimes directed) solid waste, cleaning agents, and petroleum based products into the storm sewer system. This lack of knowledge or in some cases illegal activity significantly contributed to pollutant load carried into the Creek and the River.

2. Strategy of UWC Plan:

• Develop and implement a public education program and involve the community.

• Partner with private and public entities to implement educational tools and distribution

• Work with private and public entities to develop site designs that reduce pollutant loads

3. Accomplishments:

• Brochures were created by several agencies in English, Spanish and Creole to educate businesses and residents about the stromwater system and pollution.

• Stormwater manholes and drainage opening were stenciled with pictures of fish or labeled "Do not pollute drains to the River" through programs sponsored by the City of Miami and the MRC.

• Educational River trips for school children and teachers (20-25 per year) provided by the MRCC and MRC discussed the need to eliminate pollution from stormwater systems.

• DERM's "enviroscape" educational display demonstrating stormwater systems was used at fairs, schools, Riverday and other environmental gatherings.

• Include water conservation procedures in all educational materials to reduce the load on the sanitary sewer system.

4. Recommendations:

Problem/Discussion

The Allapatah Market has an unsatisfactory history of neglect and pollution. This market has been characterized as an environmental hazard. The EPA determined that the produce activity in the market has become a major source of pollution to Wagner Creek. Produce is often left on the ground where it is washed into the stormwater system and eventually into the river. Businesses in the area utilized homeless persons to unload and handle produce and created an unhealthy condition. Homeless persons tried to sell produce along the roadside and unsold produce was left to rot and eventually carried into Wagner Creek via the stormwater system.

Strategy of UWCPlan

The strategy of the UWC Plan to clean up the Allapatah market was to implement a comprehensive compliance and enforcement program through four main tasks:

• Conduct a comprehensive, pollution control inspection program on each parcel and street within the Target Area. This will be coordinated with the sewage and pipe inspection program.

• Compile and analyze the results. Develop a plan that utilizes the results to prioritize future and continuing compliance activity and to develop task 3.

• Develop a compliance education program based upon task 2 to identify target audience issues and methods.

• Complete and maintain a status-tracking matrix. Recommend future projects and funding.

3. Accomplishments:

Improvements in the Allapatah Produce Market operation have been a great success story due to the creation of a multi-agency inspection task force and the dedication of Allapatah NET Office. Conditions in this are have been greatly improved as the result of several actions by coordinating agencies.

• First, a multi-agency task force was created and implemented Operation Market Place. The beginning stages were mostly educational inspections to inform companies of their violations.

• Following the educational inspections enforcement inspections were conducted and 234 inspections were made with 419 discrepancies. With the help of the Allapatah NET and the police department, the number of homeless people involved in the produce sales has been greatly reduced.

• The Allapatah NET office has significantly reduced much of the drug trafficking that was prominent in the area.

• In order to clean the existing damages, trucks have been prioritized to vacuum the stormwater drains of the market.

• In order to ensure the continuing advancement of the market, educational meetings were held with marketplace merchants and several agencies to discuss requirements

3. Recommendations

The Stormwater Subcommittee recommends the following: 

• More regular enforcement (with news media invited) of solid waste management and illegal dumping at market areas. (CDM)

• Continued education for merchants on all applicable agency requirements. (Various)

• Continue to encourage and provide incentives to develop a sustainable Produce Market Business Association in order to promote coordinated efforts to clean solid wastes and rodent infestations. (Various)

• The City of Miami and Miami-Dade County Zoning authorities should investigate whether a process can be developed to prevent the issuance of certificates of occupancy, occupational licenses, etc to property owners or business operators unless they are in full compliance with NPDES requirements. (DERM)

• Provide significant recognition for the multi-agency task force members and Allapatah NET office for their dedication and accomplishments for their contributions towards the improvement of the Allapatah Produce Market operation.