CS/HB 547

1
A bill to be entitled
2An act relating to water pollution control; amending s.
3403.067, F.S.; providing requirements for basin management
4action plans; allowing such plans to take into account the
5benefits of pollutant load reduction achieved by point or
6nonpoint sources, where appropriate; requiring that the
7Department of Environmental Protection adopt all or part
8of any such plan, or any amendment thereto, by secretarial
9order as provided by state law; providing that the
10provisions of the department's rule relating to the
11equitable abatement of pollutants into surface waters may
12not be applied to water bodies or water body segments for
13which a basin management plan that takes into account
14future or new expanded activities or discharges has been
15adopted; authorizing water quality protection programs to
16include the trading of water quality credits; authorizing
17the department to adopt rules related to the trading of
18water quality credits; requiring that such rulemaking
19include certain provisions; specifying that a water
20quality credit trading pilot project be limited to the
21Lower St. Johns River Basin as a pilot project; requiring
22that the department provide the Legislature with an annual
23report regarding the effectiveness of the pilot project;
24providing report requirements; providing that the
25department may authorize and establish specific
26requirements for water quality credit trading as part of
27the Lower St. Johns River Basin adopted basin management
28action plan; correcting cross-references to conform to
29changes made by the act; amending s. 403.088, F.S.;
30authorizing the department to revise a water pollution
31operation permit under certain circumstances; authorizing
32the department to issue, renew, or reissue such a permit
33if a water quality credit trade meets the requirements of
34403.067, F.S.; requiring that revised permits be
35accompanied by an order establishing a schedule for
36achieving compliance with all permit conditions; providing
37an effective date.
38
39Be It Enacted by the Legislature of the State of Florida:
40
41     Section 1.  Subsections (7) and (8) of section 403.067,
42Florida Statutes, are amended, present subsections (9) through
43(12) are renumbered as sections (11) through (14), respectively,
44and new subsections (8) and (10) are added to that section, to
45read:
46     403.067  Establishment and implementation of total maximum
47daily loads.--
48     (7)  DEVELOPMENT OF BASIN MANAGEMENT PLANS AND
49IMPLEMENTATION OF TOTAL MAXIMUM DAILY LOADS.--
50     (a)  Basin management action plans.--
51     1.  In developing and implementing the total maximum daily
52load for a water body, the department, or the department in
53conjunction with a water management district, may develop a
54basin management action plan that addresses some or all of the
55watersheds and basins tributary to the water body. Such a plan
56must shall integrate the appropriate management strategies
57available to the state through existing water quality protection
58programs to achieve the total maximum daily loads and may
59provide for phased implementation of these management strategies
60to promote timely, cost-effective actions as provided for in s.
61403.151. The plan must shall establish a schedule for
62implementing the management strategies, establish a basis for
63evaluating the plan's effectiveness, and identify feasible
64funding strategies for implementing the plan's management
65strategies. The management strategies may include regional
66treatment systems or other public works, where appropriate, and,
67in the basin listed in subsection (10) for which a basin
68management action plan has been adopted, voluntary trading of
69water quality credits to achieve the needed pollutant load
70reductions.
71     2.  A basin management action plan must shall equitably
72allocate, pursuant to paragraph (6)(b), pollutant reductions to
73individual basins, as a whole to all basins, or to each
74identified point source or category of nonpoint sources, as
75appropriate. For nonpoint sources for which best management
76practices have been adopted, the initial requirement specified
77by the plan must shall be those practices developed pursuant to
78paragraph (c). Where appropriate, the plan may take into account
79the benefits of provide pollutant load reduction achieved by
80point or nonpoint sources credits to dischargers that have
81implemented management strategies to reduce pollutant loads,
82including best management practices, prior to the development of
83the basin management action plan. The plan must shall also
84identify the mechanisms that will address by which potential
85future increases in pollutant loading will be addressed.
86     3.  The basin management action planning process is
87intended to involve the broadest possible range of interested
88parties, with the objective of encouraging the greatest amount
89of cooperation and consensus possible. In developing a basin
90management action plan, the department shall assure that key
91stakeholders, including, but not limited to, applicable local
92governments, water management districts, the Department of
93Agriculture and Consumer Services, other appropriate state
94agencies, local soil and water conservation districts,
95environmental groups, regulated interests, and affected
96pollution sources, are invited to participate in the process.
97The department shall hold at least one public meeting in the
98vicinity of the watershed or basin to discuss and receive
99comments during the planning process and shall otherwise
100encourage public participation to the greatest practicable
101extent. Notice of the public meeting must shall be published in
102a newspaper of general circulation in each county in which the
103watershed or basin lies not less than 5 days nor more than 15
104days before the public meeting. A basin management action plan
105shall not supplant or otherwise alter any assessment made under
106subsection (3) or subsection (4) or any calculation or initial
107allocation.
108     4.  The department shall adopt all or any part of a basin
109management action plan and any amendment to such plan by
110secretarial order pursuant to chapter 120 to implement the
111provisions of this section.
112     5.  The basin management action plan must shall include
113milestones for implementation and water quality improvement, and
114an associated water quality monitoring component sufficient to
115evaluate whether reasonable progress in pollutant load
116reductions is being achieved over time. An assessment of
117progress toward these milestones shall be conducted every 5
118years, and revisions to the plan shall be made as appropriate.
119Revisions to the basin management action plan shall be made by
120the department in cooperation with basin stakeholders. Revisions
121to the management strategies required for nonpoint sources must
122shall follow the procedures set forth in subparagraph (c)4.
123Revised basin management action plans must shall be adopted
124pursuant to subparagraph 4.
125     6.  In accordance with procedures adopted by rule under
126paragraph (9)(c), basin management action plans may allow point
127or nonpoint sources that will achieve greater pollutant
128reductions than required by an adopted total maximum load or
129wasteload allocation to generate, register, and trade water
130quality credits for the excess reductions to enable other
131sources to achieve their allocation; however, the generation of
132water quality credits does not remove the obligation of a source
133or activity to meet applicable technology requirements or
134adopted best management practices. Such plans must allow trading
135between NPDES permittees, and trading that may or may not
136involve NPDES permittees, where the generation or use of the
137credits involve an entity or activity not subject to department
138water discharge permits whose owner voluntarily elects to obtain
139department authorization for the generation and sale of credits.  
140     7.  The provisions of the department's rule relating to the
141equitable abatement of pollutants into surface waters shall not
142be applied to water bodies or water body segments for which a
143basin management plan that takes into account future new or
144expanded activities or discharges has been adopted under this
145section.
146     (b)  Total maximum daily load implementation.--
147     1.  The department shall be the lead agency in coordinating
148the implementation of the total maximum daily loads through
149existing water quality protection programs. Application of a
150total maximum daily load by a water management district must
151shall be consistent with this section and shall not require the
152issuance of an order or a separate action pursuant to s.
153120.536(1) or s. 120.54 for the adoption of the calculation and
154allocation previously established by the department. Such
155programs may include, but are not limited to:
156     a.  Permitting and other existing regulatory programs,
157including water-quality-based effluent limitations;
158     b.  Nonregulatory and incentive-based programs, including
159best management practices, cost sharing, waste minimization,
160pollution prevention, agreements established pursuant to s.
161403.061(21), and public education;
162     c.  Other water quality management and restoration
163activities, for example surface water improvement and management
164plans approved by water management districts or basin management
165action plans developed pursuant to this subsection;
166     d.  Trading of water quality credits Pollutant trading or
167other equitable economically based agreements;
168     e.  Public works including capital facilities; or
169     f.  Land acquisition.
170     2.  For a basin management action plan adopted pursuant to
171paragraph (a) subparagraph (a)4., any management strategies and
172pollutant reduction requirements associated with a pollutant of
173concern for which a total maximum daily load has been developed,
174including effluent limits set forth for a discharger subject to
175NPDES permitting, if any, must shall be included in a timely
176manner in subsequent NPDES permits or permit modifications for
177that discharger. The department shall not impose limits or
178conditions implementing an adopted total maximum daily load in
179an NPDES permit until the permit expires, the discharge is
180modified, or the permit is reopened pursuant to an adopted basin
181management action plan.
182     a.  Absent a detailed allocation, total maximum daily loads
183shall be implemented through NPDES permit conditions that
184provide for afford a compliance schedule. In such instances, a
185facility's NPDES permit must shall allow time for the issuance
186of an order adopting the basin management action plan. The time
187allowed for the issuance of an order adopting the plan shall not
188exceed 5 years. Upon issuance of an order adopting the plan, the
189permit must shall be reopened or renewed, as necessary, and
190permit conditions consistent with the plan must shall be
191established. Notwithstanding the other provisions of this
192subparagraph, upon request by a NPDES permittee, the department
193as part of a permit issuance, renewal, or modification may
194establish individual allocations prior to the adoption of a
195basin management action plan.
196     b.  For holders of NPDES municipal separate storm sewer
197system permits and other stormwater sources, implementation of a
198total maximum daily load or basin management action plan must
199shall be achieved, to the maximum extent practicable, through
200the use of best management practices or other management
201measures.
202     c.  The basin management action plan does not relieve the
203discharger from any requirement to obtain, renew, or modify an
204NPDES permit or to abide by other requirements of the permit.
205     d.  Management strategies set forth in a basin management
206action plan to be implemented by a discharger subject to
207permitting by the department must shall be completed pursuant to
208the schedule set forth in the basin management action plan. This
209implementation schedule may extend beyond the 5-year term of an
210NPDES permit.
211     e.  Management strategies and pollution reduction
212requirements set forth in a basin management action plan for a
213specific pollutant of concern shall not be subject to challenge
214under chapter 120 at the time they are incorporated, in an
215identical form, into a subsequent NPDES permit or permit
216modification.
217     f.  For nonagricultural pollutant sources not subject to
218NPDES permitting but permitted pursuant to other state,
219regional, or local water quality programs, the pollutant
220reduction actions adopted in a basin management action plan
221shall be implemented to the maximum extent practicable as part
222of those permitting programs.
223     g.  A nonpoint source discharger included in a basin
224management action plan must shall demonstrate compliance with
225the pollutant reductions established under pursuant to
226subsection (6) by either implementing the appropriate best
227management practices established pursuant to paragraph (c) or
228conducting water quality monitoring prescribed by the department
229or a water management district. A nonpoint source discharger
230may, in accordance with department rules, supplement the
231implementation of best-management practices with water quality
232credit trades in order to demonstrate compliance with the
233pollutant reductions established under subsection (6).
234     h.  A nonpoint source discharger included in a basin
235management action plan may be subject to enforcement action by
236the department or a water management district based upon a
237failure to implement the responsibilities set forth in sub-
238subparagraph g.
239     i.  A landowner, discharger, or other responsible person
240who is implementing applicable management strategies specified
241in an adopted basin management action plan shall not be required
242by permit, enforcement action, or otherwise to implement
243additional management strategies to reduce pollutant loads to
244attain the pollutant reductions established pursuant to
245subsection (6) and shall be deemed to be in compliance with this
246section. This subparagraph does not limit the authority of the
247department to amend a basin management action plan as specified
248in subparagraph (a)5.
249     (c)  Best management practices.--
250     1.  The department, in cooperation with the water
251management districts and other interested parties, as
252appropriate, may develop suitable interim measures, best
253management practices, or other measures necessary to achieve the
254level of pollution reduction established by the department for
255nonagricultural nonpoint pollutant sources in allocations
256developed pursuant to subsection (6) and this subsection. These
257practices and measures may be adopted by rule by the department
258and the water management districts pursuant to ss. 120.536(1)
259and 120.54, and, where adopted by rule, shall be implemented by
260those parties responsible for nonagricultural nonpoint source
261pollution.
262     2.  The Department of Agriculture and Consumer Services may
263develop and adopt by rule pursuant to ss. 120.536(1) and 120.54
264suitable interim measures, best management practices, or other
265measures necessary to achieve the level of pollution reduction
266established by the department for agricultural pollutant sources
267in allocations developed pursuant to subsection (6) and this
268subsection or for programs implemented pursuant to paragraph
269(13)(b) (11)(b). These practices and measures may be implemented
270by those parties responsible for agricultural pollutant sources
271and the department, the water management districts, and the
272Department of Agriculture and Consumer Services shall assist
273with implementation. In the process of developing and adopting
274rules for interim measures, best management practices, or other
275measures, the Department of Agriculture and Consumer Services
276shall consult with the department, the Department of Health, the
277water management districts, representatives from affected
278farming groups, and environmental group representatives. Such
279rules must shall also incorporate provisions for a notice of
280intent to implement the practices and a system to assure the
281implementation of the practices, including recordkeeping
282requirements.
283     3.  Where interim measures, best management practices, or
284other measures are adopted by rule, the effectiveness of such
285practices in achieving the levels of pollution reduction
286established in allocations developed by the department pursuant
287to subsection (6) and this subsection or in programs implemented
288pursuant to paragraph (13)(b) must (11)(b) shall be verified at
289representative sites by the department. The department shall use
290best professional judgment in making the initial verification
291that the best management practices are reasonably expected to be
292effective and, where applicable, must shall notify the
293appropriate water management district or the Department of
294Agriculture and Consumer Services of its initial verification
295before prior to the adoption of a rule proposed pursuant to this
296paragraph. Implementation, in accordance with rules adopted
297under this paragraph, of practices that have been initially
298verified to be effective, or verified to be effective by
299monitoring at representative sites, by the department, shall
300provide a presumption of compliance with state water quality
301standards and release from the provisions of s. 376.307(5) for
302those pollutants addressed by the practices, and the department
303is not authorized to institute proceedings against the owner of
304the source of pollution to recover costs or damages associated
305with the contamination of surface water or groundwater caused by
306those pollutants. Research projects funded by the department, a
307water management district, or the Department of Agriculture and
308Consumer Services to develop or demonstrate interim measures or
309best management practices shall be granted a presumption of
310compliance with state water quality standards and a release from
311the provisions of s. 376.307(5). The presumption of compliance
312and release is shall be limited to the research site and only
313for those pollutants addressed by the interim measures or best
314management practices. Eligibility for the presumption of
315compliance and release is shall be limited to research projects
316on sites where the owner or operator of the research site and
317the department, a water management district, or the Department
318of Agriculture and Consumer Services have entered into a
319contract or other agreement that, at a minimum, specifies the
320research objectives, the cost-share responsibilities of the
321parties, and a schedule that details the beginning and ending
322dates of the project.
323     4.  Where water quality problems are demonstrated, despite
324the appropriate implementation, operation, and maintenance of
325best management practices and other measures required by
326according to rules adopted under this paragraph, the department,
327a water management district, or the Department of Agriculture
328and Consumer Services, in consultation with the department,
329shall institute a reevaluation of the best management practice
330or other measure. Should the reevaluation determine that the
331best management practice or other measure requires modification,
332the department, a water management district, or the Department
333of Agriculture and Consumer Services, as appropriate, shall
334revise the rule to require implementation of the modified
335practice within a reasonable time period as specified in the
336rule.
337     5.  Agricultural records relating to processes or methods
338of production, costs of production, profits, or other financial
339information held by the Department of Agriculture and Consumer
340Services pursuant to subparagraphs 3. and 4. or pursuant to any
341rule adopted pursuant to subparagraph 2. are confidential and
342exempt from s. 119.07(1) and s. 24(a), Art. I of the State
343Constitution. Upon request, records made confidential and exempt
344pursuant to this subparagraph shall be released to the
345department or any water management district provided that the
346confidentiality specified by this subparagraph for such records
347is maintained.
348     6.  The provisions of subparagraphs 1. and 2. do shall not
349preclude the department or water management district from
350requiring compliance with water quality standards or with
351current best management practice requirements set forth in any
352applicable regulatory program authorized by law for the purpose
353of protecting water quality. Additionally, subparagraphs 1. and
3542. are applicable only to the extent that they do not conflict
355with any rules adopted by the department that are necessary to
356maintain a federally delegated or approved program.
357     (8)  WATER QUALITY CREDIT TRADING.--
358     (a)  Water quality credit trading must be consistent with
359federal law and regulation.
360     (b)  Water quality credit trading must be implemented
361through permits, including water quality credit trading permits,
362other authorizations, or other legally binding agreements as
363established by department rule.
364     (c)  The department shall establish the pollutant load-
365reduction value of water quality credits and shall be
366responsible for authorizing their use.
367     (d)  A person that acquires water quality credits ("buyer")
368shall timely submit to the department an affidavit, signed by
369the buyer and the credit generator ("seller"), disclosing the
370term of acquisition, number of credits, unit credit price paid,
371and any state funding received for the facilities or activities
372that generate the credits. The department shall not participate
373in the establishment of credit prices.
374     (e)  Sellers of water quality credits are responsible for
375achieving the load reductions on which the credits are based and
376complying with the terms of the department authorization and any
377trading agreements into which they may have entered.
378     (f)  Buyers of water quality credits are responsible for
379complying with the terms of the department water discharge
380permit.
381     (g)  The department shall take appropriate action to
382address the failure of a credit seller to fulfill its
383obligations, including, as necessary, deeming the seller's
384credits invalid if the seller cannot achieve the load reductions
385on which the credits were based in a reasonable time. If the
386department determines duly acquired water quality credits to be
387invalid, in whole or in part, thereby causing the credit buyer
388to be unable to timely meet its pollutant-reduction obligations
389under this section, the department shall issue an order
390establishing the actions required of the buyer to meet its
391obligations by alternative means and a reasonable schedule for
392completing the actions. The invalidation of credits shall not
393itself constitute a violation of the buyer's water discharge
394permit.
395     (9)(8)  RULES.--The department is authorized to adopt rules
396pursuant to ss. 120.536(1) and 120.54 for:
397     (a)  Delisting water bodies or water body segments from the
398list developed under subsection (4) pursuant to the guidance
399under subsection (5).;
400     (b)  Administering Administration of funds to implement the
401total maximum daily load and basin management action planning
402programs.;
403     (c)  Water quality credit Procedures for pollutant trading
404among the pollutant sources to a water body or water body
405segment. By September 1, 2008, rulemaking must be initiated
406which provides for the following:, including a mechanism for the
407issuance and tracking of pollutant credits. Such procedures may
408be implemented through permits or other authorizations and must
409be legally binding. Prior to adopting rules for pollutant
410trading under this paragraph, and no later than November 30,
4112006, the Department of Environmental Protection shall submit a
412report to the Governor, the President of the Senate, and the
413Speaker of the House of Representatives containing
414recommendations on such rules, including the proposed basis for
415equitable economically based agreements and the tracking and
416accounting of pollution credits or other similar mechanisms.
417Such recommendations shall be developed in cooperation with a
418technical advisory committee that includes experts in pollutant
419trading and representatives of potentially affected parties;
420     1.  The process to be used to determine how credits are
421generated, quantified, and validated.
422     2.  A publicly accessible water quality credit trading
423registry that tracks water quality credits, trading activities,
424and prices paid for credits.
425     3.  Limitations on the availability and use of water
426quality credits, including a list of eligible pollutants or
427parameters and minimum water quality requirements and, where
428appropriate, adjustments to reflect best-management practice
429performance uncertainties and water-segment-specific location
430factors.
431     4.  The timing and duration of credits and allowance for
432credit transferability.
433     5.  Mechanisms for determining and ensuring compliance with
434trading procedures, including recordkeeping, monitoring,
435reporting, and inspections.
436
437At the time of publication of the draft rules on water quality
438credit trading, the department shall submit a copy to the United
439States Environmental Protection Agency for review.
440     (d)  The total maximum daily load calculation in accordance
441with paragraph (6)(a) immediately upon the effective date of
442this act, for those eight water segments within Lake Okeechobee
443proper as submitted to the United States Environmental
444Protection Agency pursuant to subsection (2).;and
445     (e)  Implementation of other specific provisions.
446     (10)  Water quality credit trading shall be limited to the
447Lower St. Johns River Basin, as defined by the department, as a
448pilot project. The department may authorize water quality credit
449trading and establish specific requirements for trading in the
450adopted basin management action plan for the Lower St. Johns
451River Basin prior to the adoption of rules under paragraph
452(9)(c) in order to effectively implement the pilot project.
453Entities that participate in water quality credit trades shall
454timely report to the department the prices for credits, how the
455prices were determined, and any state funding received for the
456facilities or activities that generated the credits. The
457department shall not participate in the establishment of credit
458prices. No later than 24 months after adoption of the basin
459management action plan for the Lower St. Johns River, the
460department shall submit a report to the Governor, the President
461of the Senate, and the Speaker of the House of Representatives
462on the effectiveness of the pilot project, including the
463following information:
464     (a)  A summary of how water quality credit trading was
465implemented, including the number of pounds of pollutants
466traded.
467     (b)  A description of the individual trades and estimated
468pollutant load reductions that are expected to result from each
469trade.
470     (c)  A description of any conditions placed on trades.
471     (d)  Prices associated with the trades, as reported by the
472traders.
473     (e)  A recommendation as to whether other areas of the
474state would benefit from water quality credit trading and, if
475so, an identification of the statutory changes necessary to
476expand the scope of trading.
477     Section 2.  Paragraphs (e) and (f) of subsection (2) of
478section 403.088, Florida Statutes, are amended to read:
479     403.088  Water pollution operation permits; conditions.--
480     (2)
481     (e)  However, if the discharge will not meet permit
482conditions or applicable statutes and rules, the department may
483issue, renew, revise, or reissue the operation permit if:
484     1.  The applicant is constructing, installing, or placing
485into operation, or has submitted plans and a reasonable schedule
486for constructing, installing, or placing into operation, an
487approved pollution abatement facility or alternative waste
488disposal system;
489     2.  The applicant needs permission to pollute the waters
490within the state for a period of time necessary to complete
491research, planning, construction, installation, or operation of
492an approved and acceptable pollution abatement facility or
493alternative waste disposal system;
494     3.  There is no present, reasonable, alternative means of
495disposing of the waste other than by discharging it into the
496waters of the state;
497     4.  The granting of an operation permit will be in the
498public interest; or
499     5.  The discharge will not be unreasonably destructive to
500the quality of the receiving waters; or.
5016.  A water quality credit trade that meets the
502requirements of s. 403.067.
503     (f)  A permit issued, renewed, or reissued pursuant to
504paragraph (e) shall be accompanied by an order establishing a
505schedule for achieving compliance with all permit conditions.
506Such permit may require compliance with the accompanying order.
507     Section 3.  This act shall take effect July 1, 2008.
508
509


CODING: Words stricken are deletions; words underlined are additions.