lS-440/3-77-026
IALITY MANAGEMENT
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COMPENDIUM I
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
DATE: 9 -N3V 1077
SUBJECT: Compendium on Water Quality Management Accomplishments
FROM- Swep Davis, Acting Deputy Assistant Administra^o^^, ^
for Water Planning and Standards (WH-551) -~-^ ~ A
TO: Regional Administrators
Information Memorandum: INFO-78-10
This memorandum transmits the first Compendium of water quality
management accomplishments. The Compendium presents a sample of
solutions that WQM agencies have developed to deal with water quality
problems, primarily municipal and industrial waste treatment manage-
ment, on-lot disposal, and nonpoint source pollution. Progress in
cleaning up the water was most significant in the northwestern, western,
southeastern and northeastern parts of the nation.
Solutions range from facilities construction, to regulatory measures,
to inspection and enforcement, and often a combination of these types of
approaches is applied. In most instances, the WQM agencies coordinate
but do not actually implement these solutions. Recognizing their role
of formulating a process for water quality management, they worked
closely with the governmental agencies responsible for protecting local
waters. It is noteworthy that the 208 agencies helped establish the
framework for carrying out the water quality solutions during the planning
phase.
The entries contained in the Compendium ar.e either accomplishments,
denoting that implementation is taking place, or performance indicators,
denoting that the solution to a point or nonpoint pollution problem has
been devised and is ready to be applied. To help summarize and analyze
these entries, the Compendium contains: 1) an introduction that high-
lights -the contents, 2) a table of contents that encapsulates each item
and is organized geographically, and 3) an index that is organized by
subject, namely water quality problems.
We realize that this Compendium represents only some of the successes"
that WQM agencies have achieved. EPA Headquarters makes general inquiries
to Regional staff, but we depend on the initiative of project officers
and VJQM agency staff in identifying and transmitting accomplishments and
performance indicators. If you know of items that are not included in
this Compendium, submit them for the next edition.
EPA Form 1320-6 (Rov. 3-76)
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The Compendium will be a periodic publication of the Water Planning'
Division. To ensure future compilation of accomplishments and performance
indicators, the Regional office and WQM agency staff must cooperate to
provide EPA Headquarters with information on program progress. The
Regional Office staff coordinates submissions from the WQM agencies;
write-ups should be sent to the project officer, who will then forward
them to EPA Headquarters. Items should be addressed to:
Ms: Terry S. Peters, Clearinghouse Coordinator
Program Development Branch
Water Planning Division (WH-554)
U.S. EPA
401 M Street, S. W.
Washington, D. C, 20460 .
Attachment
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WATER QUALITY MANAGEMENT ACCOMPLISHMENTS
COMPENDIUM I
EPA HEADQUARTERS
WATER PLANNING DIVISION
DECEMBER 1977
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INTRODUCTION
WHAT IS THE WATER QUALITY MANAGEMENT PROGRAM ACCOMPLISHING?
People have continually asked: "What is the goal of the 208 program?"
The goal is to clean up the nation's water, to reduce pollution from
point and nonpoint sources so that we can fish and swim in our rivers
and streams. This is an ambitious goal, and it has many implications
for a local community.. Now that many 208 agencies are completing the
initial phase of their planning process, we can answer this question
with examples of water quality management accomplishments.
This Compendium documents accomplishments that WQM agencies, assisted by
private groups and local, state, or Federal governments, have produced to
solve water quality problems. These accomplishments demonstrate that the
WQM process has built on the following common steos:
1) identifying the problem
2) developing technical alternatives
3) proposing management arrangements
4) building support among key groups and the general public
5) obtaining political acceptance, adoption, and implementation of
the preferred solution
Reaching solutions to the water quality problems identified in the Compen-
dium also involves broader community issues of economic growth, industrial
development, land use decision-making, public regulation of private enter-
prise, and allocation of financial resources to meet local and.statewide
needs. The successful water quality management planning efforts documented
in this Compendium highlight the key role of the 208 agency in raising
these issues, which decision-makers must resolve in choosing the solution
that is to be implemented. Most 208 agencies are advisory bodies that
lack the authority to resolve these issues. Consequently, they operate
as catalysts, pinpointing critical water quality concerns so that the
public and policymakers can consider the problems, alternative solutions,
and costs and benefits of each option.
The 208 agencies1 always depend on outside support and actively seek that
support; they never function successfully alone. In the case of every
accomplishment, 208 agencies orchestrated cooperative efforts with other
public agencies and private groups that effectively addressed problems
from a water quality standpoint. The solutions to water quality problems
illustrated in the Compendium thus reflect increased legitimacy and a
larger constituency for the 208 program.
Water pollution control is a political process that varies from one
geographic area and from one problem to another. The essential point
of these short case studies is that 208 agencies, whatever the role they
choose and whatever their involvement in the political process, have been
able to move the 208 program from the technical and planning stages into
program adoption and implementation.
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FINDINGS AND ANALYSIS OF THE COMPENDIUM
This edition of the Compendium comprises 58 brief case studies that
involve 40 water quality management agencies. Each case study represents
only one part of the 208 program that an agency is conducting. In some
instances, the accomplishment involves the most pervasive water quality
problem confronting an area. In other cases, the agency identified a
localized source of pollution that it could readily handle and, in the
process, gain public support for the WQM program. None of these case
studies, therefore, encapsulates the entire 208 process within a given
area. Rather, they.highlight portions of the program in which substan-
tial progress has been .made to improve or protect water quality.
The agencies addressed four major problem areas:
Nonpoint Sources
On-Lot Disposal
Industrial Point Sources
Municipal Point Sources
In .order to implement programs aimed at solving these problems, WQM
staff and political decision-makers must first deal with basic issues
arising from each particular type of problem. The following series of
questions pinpoint these issues in the four major areas and thus outline
the problem-solving process established by each WQM program.
Nonpoint Source Pollution: Including urban storm runoff; agricul-
tural, construction, silvicultural, mining runoff; and landfill leachate.
Important Issues:
0 What is the relationship between the nonpoint source and
water quality degradation?
0 Which mix of corrective and preventive best management
practices is most effective and acceptable?
0 How should the financial burden be allocated-between the
public and private sectors?
0 Which technical, political, and financial conditions require
capital-intensive or structural alternatives and which require
labor-intensive or nonstructural alternatives?
0 Will implementation rely on voluntary compliance, regulatory
programs, or a combination of both?
0 What funding mechanisms are available at local, state, and
Federal levels?
0 How should impacted groups be involved in the planning process?
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Qn-Lot Disposal
Important Issues:
0 Can failing septic systems be repaired and properly '; '
maintained or must they be replaced by another form ofwasiewater
treatment? >*'','
0 Which areas in a region are suitable for on-Tot., dfsposal?
0 Are collective septic systems 'or package'-treatment plants '
feasible alternatives to individual septic tanks?
0 What are local attitudes toward growth? -
0 Does the financial capability exist to support a municipal
wastewater treatment system?
Industrial Point Sources
Important Issues: '
0 What standards should be set for industrial pretreatment programs?
0 How can pretreatment requirements be enforced?
0 How can municipal sewage treatment systems be protected from
incompatible industrial wastes? '
0 What kind of and how much responsibility should industries
be assigned for cleaning up receiving waters?
0 How can cost-effective methods of industrial treatment be developed?
Municipal Point Sources
Important Issues:
0 How can cost-effective facility alternatives, in terms
of construction, operation, and maintenance, be attained?
0 Where should regional treatment systems be located?
0 How can regional consistency in facility planning be ensured?
0 How can growth be accommodated?
0 How should resources be allocated between point and nonpoint source
controls to achieve the greatest improvement in water quality?
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Management Agency Selection
Common to all these problems is the need for a management agency with
the authority and capability to ensure implementation of a solution once
it is adopted. In most cases, existing agencies are being used as
management agencies. In these cases, the management agency was involved
in the problem solving process as early as possible. Where a new agency
has been created, those governing bodies with the authority to delegate
such responsibility have been involved.
SUMMARY OF THE COMPENDIUM,ENTRIES
The following table summarizes the outcome of the water quality manage-
ment process in 58 cases, namely the solution that the 208 agency was
instrumental'in formulating and the type of public entity responsible
for implementation. An individual case study may deal with a single
problem and a single solution, but often multiple problems and solutions
are involved. The implementing agency (or agencies) identified in the
table has primary and direct responsibility for carrying out the adopted
program. For example, although the 201 program funds 3/4 of construction
grants, the local government or sewer authority must manage the completed
project and therefore is listed, while the Federal government is not.
Many of the solutions that WQM agencies have developed correspond quite
closely to the problems. For example, the most common solutions to
municipal point source pollution are: upgrading, expanding, or
regionalizing wastewater treatment facilities and achieving closer
coordination between the 201 and 208 programs. Alternatively, agri-
cultural runoff is invariably abated by applying agricultural best
management practices. Nonetheless, several general solution categories
cut across a variety of problems, in particular land use regulation and
intergovernmental coordination.
Implementation is handled by a range of public bodies: city and county
governments for a variety of programs, sewer districts for facility-
related alternatives, and soil conservation districts for agricultural
best management practices. State and, to a lesser extent, Federal
agencies are also involved. 208 agencies play the smallest role in
implementation, because they are largely planning and advisory groups
that develop rather than carry out solutions.
HOW THE COMPENDIUM WAS PREPARED
EPA Headquarters established a Clearinghouse for Water Quality Management
accomplishments to gather information on how the 208 program is solving
water quality problems.. The short case studies in this Compendium were
identified through information submitted to the Clearinghouse and supple-
mented by follow-up inquiries to EPA Regional Offices and/or WQM agencies.
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Submissions to the Clearinghouse are classified as accomplishments,
performance indicators or preliminary entries. A commitment to improve
water quality resulting from the 208 program is the basic criteria used
to identify the accomplishments and performance indicators included in
the Compendium. An accomplishment must.include an activity which has
been adopted and is being implemented. "r
A performance indicator denotes a recommended program or activity which
has received some preliminary commitment but has not reached the imple-
mentation stage. In the case of preliminary entries,'either a specific
program to improve water quality has not been, developed, or action is not
pending on a recommended program. Preliminary entries are not included
in the Compendium.
Obviously, the determination of these ratings accomplishment, performance
indicator, and preliminary entry is subjective and imprecise. In some
instances, more detailed information can make the difference between one
rating and another. Alternatively, additional effort may be required to
make the'transition from one category to another.
As the water quality management process is dynamic, ratings can change.
Performance indicators and preliminary entries may become accomplishments.
Unfortunately, accomplishments can also be "demoted" to performance
indicators, if implementation is stymied due to political, legislative,
or judicial actions. Accordingly, the Clearinghouse will continue to
monitor and, where necessary, revise submissions to maintain an accurate
picture of 208 program progress.
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TABLE OF.CONTENTS
REGION I
MAINE
Page
Southern Kennebec Valley Regional Planning Commission
(Augusta, Maine)
Accomplishment: The water quality management program helped
the Augusta Sanitary District to correct a sewer interceptor
problem stemming from an ineffective pretreatment system and
to improve its regulatory program based on a sewer use
ordinance.
Accomplishment: Water quality analysis and population
projections performed by the water quality management
agency convinced Readfield of the need for a regulatory
program, which the town implemented as a zoning ordinance.
Southern Kennebec Valley Regional Planning Commission
(Augusta, Maine)
Greater Portland Council of Governments
(Portland, Maine)
Performance Indicator: Five water quality management
agencies in Maine, spearheaded by Southern Kennebec Valley
Regional Planning Commission and Greater Portland Council
of Governments, worked with the Maine Department of
Environmental Protection to develop a method for funding
small community wastewater treatment facilities.
Greater Portland Council of Governments (Portland, Maine)
Accomplishment: The Maine legislature passed two bills,
proposed by the Greater Portland water quality management
program, that regulate on-lot disposal systems so as to
improve water quality and lessen the economic burden of
compliance on home owners. --
MASSACHUSETTS
Berkshire County Regional
TPittsfield, Mass.)
Planning Commission
Accomplishment: The water quality management agency
prepared a revised zoning by-law, adopted by the city
of Stdckbridge, which incorporates specific measures
for groundwater protection.
ix
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Accomplishment: The Berkshire County Regional Planning
Commission, through the 208 program, has significantly
speeded regionalization of wastewater treatment
facilities. .--- -- .
- 8
Montachusett Regional Planning Commission (Fitchburg; Mass,) ? -
Performance Indicator: Water quality management piann.Tng I
efforts aided in identification and adoption of a new
sanitary landfill site. ____,.___ ______
12
Northern Middlesex Area Commission (Lowell. Mass.1)
Performance Indicator; A seriously polluted lake, receiving '
significant contamination from poorly maintained septic , ;
tanks, has been reclaimed wi.th money from the section 314'
"Clean Lakes" program as a top priority in the water _
quality management program. -,.-.» _^'_I____r___J_, 13
Old Colony Planning Council (Brockton, Mass.)
Performance Indicator: The water quality management agency " '
assisted in reclamation of a major recreational pond
rendered unusable by contributions from urban runoff. ------ - 14
Southeastern Regional Planning and Economic Developmeni DistHct
(Marion, Mass.) ~-
Performance Indicator: The water quality management agency
established credibility with the industrial community
through coordination of an effort among three competing
silver plating firms to do a feasibility study on joint
pretreatment and through assistance in obtaining funding.
14
REGION II
NEW JERSEY
Middlesex County Planning Board (New Brunswick, New Jersey)
Performance Indicator: The Policy Advisory Committee of
the Middlesex County water quality management program was
instrumental in closing a landfill causing surface and
groundwater pollution in the town of Edison. --,--:.
17
NEW YORK
Nassau-Suffolk Regional Planning Board (Hauppauger New York)
Accomplishment: Citizen involvement in the water quality
management process led the 208 agency to incorporate in its
program a study of health effects of wastewater treatment ''"
alternatives, which would affect the quality and supply of
the Long Island aquifer. . __
19
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, REGION III
DELAWARE :
New' Castle "'County Areawide Waste Treatment Management Planning
Agency, (Wilmington, Delaware)
' i -.^ .'i-.il.; .,...'. - ' , . ' . ' ' . -
Accomplishment: The New., Castle County 208 program helped
to achieve5 a $2 million cost savings in the .County's ..,-'',"'-':.
Capital Improvements Budget through revision of sewer
'extension"plans. --!--- __________ ___-;.__.
21
Performance Indicator: The New Castle County water quality '
management'staff assisted in,,preparation of sewer use
ordinances which were adopted by New .Castle County and the
city of Newark, Delaware to provide consistent sewer use
requirements for the Wilmington regional wastewater.treatment
system. '. ,.-
':.' . . REGION IV
21
ALABAMA
South Alabama Regional Planning Commission (Mobile, Alabama)
Accomplishment: Water quality management monitoring,
analysis-,-and institutional recommendations led to state
adoption of anti-degradation policies and local establish-
ment of an .industrial waste management authority to protect
water quaffty in the Theodore Ship Channel and Mobile Bay. -
FLORIDA
'Central'Florida Regional Planning Council (Bartow, Florida)
Accomplishment: The Central Florida Regional Planning
Council negotiated the expansion of an existing secondary
treatment plant as an alternative to construction of a
new package, plant, thus preventing potential water quality
degradation in a local lake. -:
24
27
Performance Indicator: The water quality management staff and
Polk County office of the Department of Health and
Services (MRS) have developed a cleanup
give eligible juvenile first offenders
lakeshore areas at the same time.
the
Rehabilitative
program which wi 11
a break, and help improve
28
Performance Indicator: The. water quality management agency,
Working with two state agencies, succeeded in obtaining
agreement to modify engineering plans for a road which
would/have discharged large quantities of stormwater into
five lakes,., --------- ,
29
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Performance Indicator: The water quality management agency
has set up a "Waterline" for citizens to call in local
water quality problems. <
30
Tallahassee-Leon County Planning Department (Tallahassee, Florida)
Accomplishment: The Tallahassee-Leon County Planning Department
through its 208 program, developed a drawdown project to improve
water quality on a lake undergoing .advanced eutrophication.
With the support of almost all residents of the lakeside area,
the Leon County Commission approved the project which is now
underway. <
Performance Indicator: The water quality management agency
is developing a comprehensive program to control urban runoff
which is the major source of nutrients causing eutrophication
of Lake Munson and is seeking implementation through adoption
of a stormwater ordinance.
31
32
TENNESSEE
Chattanooga Area Regional Council of Governments
(Chattanooga, Tenn.)
Performance Indicator: The water quality management agency
assigned a staff person to work with the planning
commissions for the city of Chattanooga and Hamilton County
to develop an erosion control ordinance which is informally
applied by the planning commissions through their review
authority. .
Knoxville-Knox County Metro Planning Commission (Knoxville, Tenn.)
Accompllahment: The water quality management agency
reassessed plans for upgrading treatment facilities and
effected cost savings by determining that tertiary
treatment would produce neligible improvement in water
quality, due to nonpoint source contributions and low
dissolved oxygen problems caused by upstream dams.
35
35
First Tennessee-Virginia Development District (Johnson City, Tenn.)
Accomplishment: Through water quality management
assistance and coordination, a regional treatment facility
will be constructed resulting in considerable cost savings.
The water quality management agency is assisting two cities
and a county to create a regional management authority for
the facility. - -
36
Xll
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Performance Indicator; A stream assimilation study carried
out by the water quality management agency will lead to a
stream reelassification, allowing for less stringent treat-
ment requirements while protecting high quality waters.
38
Performance Indicator: The Industrial Subcommittee of the
208 agency's Technical Advisory Committee, through
investigation of industrial and municipal 'treatment compati-
bility, found that an industry could tie into a municipal
system and realize cost savings for both the industry
municipality. *
and
38
REGION V
WISCONSIN
Dane County Regional Planning Commission (Madison, Wisconsin)
Accomplishment: The Dane County, Wisconsin Water Quality
Management agency, working with the Soil and Water Conser-
vation District, generated the implementation of improved
agricultural nonpoint source control measures.
40
Southeastern Wisconsin Regional Planning Commission
(Waukesha-Milwaukee, Wisconsin)
Accomplishment: The Southeastern Wisconsin Regional
Planning Commission provided assistance in developing a
regional wastewater treatment facility for two towns. 42
Wisconsin Department of Natural Resources (Madison, Wisconsin)
Performance Indicator: The Wisconsin Department of Natural
Resources Board adopted, as part of its Administrative Code, '
a sewer extension policy which was developed through the
208 program. ' ~~"
44
Performance Indicator: The Wisconsin Department of Natural
Resources Board approved a comprehensive septic system
management program, developed through the 208 program
implementation is being sought through one of two
alternatives. ,-. :
and
REGION VI
OKLAHOMA
Association of Central Oklahoma Governments (Oklahoma City, Okla.)
Performance Indicator: A landowners' association requested
and independently used 208 interim outputs to influence an
Army Corps of Engineers' decision on the size of a proposed
lake.
45
46
xlii
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Performance Indicator:
set up a 208 "Hotline"
related problems.
The water quality management agency
for citizens to call in their water
47
TEXAS
North Central Texas Council of Governments (Arlington, Texas)
Accomplishment: The water quality management program for
the Dallas-Fort Worth area,is implementing a regional
wastewater treatment management system and is also
investigating its implications for nonpoint source control
and regional planning and development.
REGION VIII
COLORADO
Larimer-Weld Regional Council of Governments (Love!and, Colorado)
Performance Indicator: The Larimer-Weld Regional Council
of Governments developed a "Utility Management Handbook",
which enables small communities to evaluate the financial
feasibility of proposed wastewater treatment alternatives.
51.
MONTANA
Lewis and Clark County Conservation District (Helena, Montana)
.Accomplishment: Approval of a sediment control ordinance
by local referendum, as a result of technical assistance
and public participation provided under a water quality
management program demonstration project.
53
SOUTH DAKOTA
Sixth District Council of Local Governments (Rapid City, S.D.)
Accomplishment: The U.S. Forest Service in the Black
Hills National Forest, in cooperation with the local
water quality management agency, has expanded its best management
practices to incorporate water quality considerations. 56
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UTAH
Five County Association of Governments (St. George, Utah)
Performance Indicator; Based on water.quality analysis
by the Five County Association of Governments, Hurricane
City halted the drilling of a $240,000 well, which would
have yielded contaminated water. 58
Mountainland Association of Governments (Provo, Utah)
Accomplishment: Water quality analysis and facility
planning by the Mountainland Association of Governments
resulted in a $5 million cost savings for three regional : r
wastewater treatment facilities. ->
59
Southeastern Association of Governments (Helper, Utah)
Accomplishment: The Southeastern Association of Govern-
ments analyzed primary and secondary water quality
impacts of energy development in Emery County, Utah and
proposed technical .and financial management measures that
were implemented by industries and local governments.
61
Weber River Water Quality Planning Council (Weber River, Utah)
Accomplishment: Implementation of a water quality manage-
ment stormwater regulatory program to control runoff in
Davis County, Utah as a result of technical and institutional
assistance.
Accomplishment: Implementation of pretreatment and storm-
water regulatory programs on Hi.ll Air Force Base, as a
result of water quality management agency technical
assistance and political involvement. Pretreatment
facilities al'one will cost $6 million.
64
Performance Indicator:
standards on an
quality management technical
Enforcement of hazardous materials
industrial park, as a result of water
assistance. ___:
66
68'
WYOMING
Teton County-Section 208 Planning Agency (Jackson, Wyoming)
Accomplishment: The U.S. Forest Service in the Bridger-
Teton National Forest has expanded its nonpoint source
control program to incorporate water quality considerations,
as a result of 208 funded water quality analysis.
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REGION IX
CALIFORNIA-NEVADA
Tahoe Regional Planning Agency (South Lake Tahoe, California)
Performance Indicator: Two counties are applying a "Handbook
of Best Management Practices" which is part of the Lake Tahoe
water quality management plan. -
72
NEVADA
State Department of Human Resources (Carson City, Nevada]
Performance Indicator: Development, through a 208 demon-
stration project, of an institutional, regulatory, and
technical program to control erosion and runoff caused
by land-disturbfng activities in Nevada
74
REGION X
IDAHO
Ada/Canyon Haste Treatment Management Committee (Boise, Idaho)
Performance Indicator: Two local agencies are applying
recommendations for stormwater control from a handbook
prepared by the water quality management agency: "20 Ways
to Manage Urban Stormwater".
75
Panhandle Planning and Development Council (Coeur d'Alene, Idaho)
Accomplishment: Technical and financial assistance provided
by the water quality management program and increased public
involvement accelerated the implementation of a vessel
discharge ban on, Lakes Pend Qreille and Coeur d'Alene
Performance Indicator: An intensive public involvement
program led to formation of a lakes management association
to support restoration and protection of a ten-lake complex.
Performance Indicator: On the basis of water quality
management studies, the local Health District has
adopted land use controls to mitigate and prevent
further contamination of a major interstate aquifer.
75
76
78
Southeast Idaho Council of Governments (Pocatello, Idaho)
Performance Indicator: The water quality management agency
assisted in developing a land application system for
industrial and municipal wastewater effluent, which, when
implemented, will allow for reuse of valuable water and
nutrient resources.
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XVI
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OREGON
Columbia Regional Association of Governments (Portland, Oregon)
Performance Indicator; The water quality management agency
has prepared, and the State has adopted, a land use frame-
work which defines areas in which new treatment facilities
will be allowed. .__
Lane Council of Governments (Eugene, Oregon)
Accomplishment: The.water quality management agency
achieved the development of cost-effective, regional
wastewater treatment facility and the formation of a
sewerage management agency for Lane County, Springfield,
and Eugene, Oregon. .- , .
Performance Indicator: Problem identification by the 208
program led to a moratorium on septic tank installation
and adoption' of an operations and maintenance ordinance
for existing on-site systems. --, ,,._,. ._
81
82
84'
Mid Willamette Valley Council of Governments (Salem, Oregon)
Accomplishment;. Salem, Oregon, with assistance from the
water quality management agency, adopted an Industrial
Waste Ordinance which regulates .industrial wastes in the
sewage treatment system and discharges into storm sewers. --
Performance Indicator: In order to standardize a regional
base for facilities planning, the Mid Willamette Valley
Council of Governments developed service boundaries and
assisted in developing regional projections for the 33
cities in the area.
85
86
WASHINGTON
Municipality of Metropolitan Seattle (Seattle, Washington)
Performance Indicator: King County and the city of Bethel!
have begun implementation of a drainage management plan
for the Juanita Creek basin.
88
Regional Planning Council of Clark County (Vancouver, Wash.)
Performance Indicator: Identification through the 208
program of major sources of water pollution in numerous
Clark County streams has led to voluntary institution of
BMPS;
Snohomish County Metropolitan Municipal Corporation
(Everett, Wash.)
Performance Indicator: 208 staff, working with the Soil
90
xvi i
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Conservation Service and Agricultural Experiment Station
technical advisors, proposed and secured acceptance of a
set of best management practices to .correct serious
nonpoint source problems from beef and dairy cattle
operations.
91
xvi il
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REGION I
MAINE
Southern Kennebec Valley Regional Planning Commission
(Augusta, Maine)
Accomplishment: The water quality management program helped
the Augusta Sanitary District to correct a sewer interceptor
problem stemming from an ineffective pretreatment system and to
improve its regulatory program based on a sewer use ordinance.
Background
The Augusta Sanitary District was established in 1971 to
furnish sewerage collection and wastewater treatment services
to five communities. This regional system consists of a ten
mile interceptor sewer'and a primary treatment plant. The
sewage effluent is discharged into the Kennebec River,
which is used for drinking water supply and recreation by
residents. The district is currently upgrading its facility
to provide secondary treatment.
Since the trunk line was activated in early 1972, odor
problems have plagued major portions. As part of its 208
program, the Southern Kennebec Valley Regional Planning
Commission provided the district with financial and technical
assistance to identify the cause of this odor and devise
structural a'nd regulatory solutions.
Problem Assessment
The problem identified was sulfuric acid corrosion of the
sewer pipe from sulfate reducing and acid forming bacteria
that emanated in the effluent from woolen mills' pretreatment
lagoons. The mills' pretreatment system actually exacerbated
this reaction, rather than preventing it. Lack of dissolved
oxygen in the wastewater lagoons increased bacterial incubation
during detention, and the aerators only acted as mixers.
Sampling revealed a continual drop in D.O. as the wastewater
flowed through the pretreatment facilities. It was this
inadequate level of dissolved oxygen that allowed biochemical
corrosion of the sewer pipe.
To assess the damage, investigation and testing of pipe sections
were carried out. A field' check revealed uneven damage.
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MAINE , Region I
While the trunk line would not require immediate partial replacement,
safeguards would have to be installed to protect the system from a
potential break.
Technical and Regulatory Solutions
To prevent further biochemical corrosion and minimize
damage in the event of a pipe rupture, the study recommended
structural modifications and improvements. The Augusta Sanitary
District's sewer use ordinance was revised to include pretreat-
ment requirements designed to meet existing textile standards.
A 208 staff member of the Southern Kennebec Valley Regional Planning
Commission (SKVRPC) was instrumental in redrafting the sewer use
ordinance.
The revised sewer use ordinance strikes an effective
balance between private and public responsibility.
Standards are stringent. Private users may select ,the
treatment operations that achieve these standards.
Nonetheless, they are required to install pretreatment,
monitoring, and other necessary equipment and maintain
records on their sewerage-related activities. This
information gathering is designed to facilitate public
enforcement of the ordinance.
Significance
This accomplishment is significant in three respects.
First, the public nuisance created by the odor was tracked
down and eliminated. Odor, however, was only the most perceptible
part of the problem. The biochemical reaction that produced the
odor also corroded the sewer interceptor. Thus, damage from the
corrosion was stopped, and measures to minimize potential adverse
impacts were developed.
Second, a regulatory program, based on a strengthened
sewer use ordinance, was swiftly implemented by the
Augusta Sanitary District. The consultant's final report
was delivered in August, 1976, and the new ordinance
took effect on October 1, 1976.
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MAINE
Region I
Third., local cooperation among public and private parties
ensured prompt implementation of the improved sewer use
ordinance. The 208 agency, Augusta Sanitary District,
communities served by the regional system, and industrial
users worked together to correct the existing deficiencies
in private and public programs.
Southern Kennebec Valley Regional Planning Commission
(Augusta, Maine)
Accomplishment: Water quality analysis and population
projections performed by the water quality management
agency convinced Readfield of the need for a zoning ordinance,
with provisions to control septic systems.
Problem Assessment
The town of Readfield, a small rural community near Augusta,
Maine, previously had not considered land use controls
essential. 208 water quality analysis and population
projections identified eutrophication from phosphorous enrich-
ment as a potential threat to Lake Maranacook, which borders
Readfield. Although agriculture has been pinpointed as the
major source of phosphorous, failing septic systems and storm-
water runoff also generate this pollution. Without adequate
regulation of septic systems and stormwater runoff, both
existing and new development would threaten the basically high
quality of the lake.
Regulatory Solution
The water quality management agency provided Readfield with
technical assistance to prepare a zoning ordinance. The adopted
zoning ordinance lessens the probability of contamination
from septic tanks by establishing minimum lot sizes that relate
to soil suitability and by referencing the State plumbing code,
which imposes strict requirements on new development.
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MAINE Region I
Local resistance to land use controls had been so strong that
no previous attempt to enact a zoning ordinance had been made.
The 208 agency helped to overcome this negative attitude, with
the result that the town planning board enacted the zoning
ordinance the first time it was considered.
Significance
The significance of this accomplishment is twofold. First,
the 208 program produced water quality and demographic information
that educated the community about local nonpoint sources of
pollution. Second, it furnished technical expertise that
enabled Readfield to draw up and adopt a zoning ordinance that
incorporates water quality considerations.
Southern Kennebec Valley Regional Planning Commission (Augusta, Maine)
Greater Portland Council of Governments (Portland, Maine)
Peformance Indicator: Five water quality management agencies
in Maine, spearheaded by Southern Kennebec Valley Regional
Planning Commission and Greater Portland Council of Governments,
worked with the Maine Department of Environmental Protection
to develop a method for funding small community wa'stewater
treatment facilities.
Background
Failing septic systems are a significant problem in small
communities in Maine. Such communities may be included on
the State's construction grants priority list, but they
are so far down the list that funding would be at least
several years av/ay. Failing septic systems degrade water
quali-ty and are illegal. Therefore, solutions are needed now.
The Southern Kennebec Valley Regional Planning Commission
investigated wastewater disposal problems in non-
sewered areas. The preferred solution for failing septic
systems is to solve the problem on-site, if possible.
This is more cost-effective and environmentally acceptable
than extending sewer lines which encourage new growth.
If this solution is not possible, the next alternative is
to use a cluster approach - choosing the closest suitable
site for subsurface disposal to serve a number of homes.
Funding Program
The areawide planning agencies worked with the Maine
Department of Environmental Protection (DEP) to develop
a method for financing cluster systems. ,
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MAINE
Region I
They developed a small-scale construction grants
priority list which would be concurrent with the regular
priority list. Eligibility requirements for this list are
that the total cost for the project is $200,000 or less
and that the facility handles 15,000 gallons per day (serving
approximately 50 homes) or less. The criteria for setting
priorities on this small-scale are the same as those for the
existing State priority list. The main purpose of this funding
method is to provide funds for cluster septic systems, but it
can also be used to fund package wastev/ater treatment plants.
This funding would be available to correct problems for
any small group of homes. The management agency applying
for funding must be a legal entity, such as a town, sanitary
district or lakeshore association. To avoid a proliferation
of management agencies, one management agency can be
designated to cover several towns or even sections of a
town with distinct problems.
EPA Region I has agreed with the proposal for two construction
priority lists. The Maine DEP staff has agreed to support the
plan and proposes to begin implementing it in FY ' 79. From
one to five percent of State funds will be set aside for
this second list. Since these small projects can complete
one step and be ready to go on to the next in a short time,
towns may be on the small-scale list for Step 1, 2 and 3
grants all in the same year.
Setting up the small-scale construction grants list in Maine
to be concurrent with the regular priority list is an
administrative change which requires no revision of regulations,
Significance
For many areas of Maine with failing septic systems, construc-
tion of new subsurface disposal systems is environmentally
and financially more sound than construction of treatment
facilities. This funding scheme worked out in cooperation
between the water quality management agencies in the State
and the Department of Environmental Protection will provide
the financial capability for small groups of homeowners to
correct serious septic system problems much sooner. The
result will be protection of health and water quality, and
for the homeowners, relief from the onus of legal violations.
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MAINE
Region I
Greater Portland Council of Governments (Portland, Maine)
Accomplishment: The Maine legislature passed two bills,
proposed by the Greater Portland water quality management
program, that regulate on-lot disposal systems so as to
improve water quality and lessen the economic burden of
compliance on home owners.
Septic System Management Problems
Many Maine residents use on-lot disposal systems, partly
due to low population densities in the State. At the outset
of Greater Portland Council of Governments' 208 program, its
Citizen Advisory Committee (CAC) identified two specific
problems relating to on-lot disposal: 1) potential septic
system failures resulting from conversion of seasonal homes
to year-round use; and 2) harsh financial penalties for
violations involving malfunctioning systems.
Since about half the State's population relies on on-lot
disposal systems, the Citizen Advisory Committee members
recognized that these were statewide problems. Additionally,
they realized that correction of the on-lot disposal problems
would require State enabling legislation to improve existing
regulatory programs.
Conversion of Homes from Seasonal to Year-Round Use
Maine's plumbing code, which was adopted in the early 1970's,
applies to subsurface disposal systems. However, existing
homes were exempted from this new law, and therefore on-lot
systems in place when the code took effect remained unregulated,
On-lot disposal systems for seasonal dwellings in Maine are
often small and homemade. They are adequate to handle small
amounts of wastes for several months, but inadequate for
year-round use. There are two potential consequences of
septic system failures: 1) surface and groundwater quality
degradation from septic tank leachate, and 2) costly and growth-
inducing extensions of public sewer lines and expansion or
construction of sewage treatment facilities.
Enforcement Provisions for Malfunctioning Septic Systems
Maine State law classifies malfunctioning septic systems as
nuisances that, once identified, must be eliminated. A
municipal officer may order home owners to correct the
defective on-lot systems, and take them to court if they do
not comply. Alternatively, the municipality can correct
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MAINE
Region I
the problems and recover the costs from home owners through
a court procedure. These costs must be repaid to the
municipality within one year. E-ither type of enforcement is
an adversary proceeding, which most municipalities are reluctant
to undertake. Consequently, the law that covered malfunctioning
septic systems had not been systematically enforced.
New Enabling Legislation
The bill covering seasonal home conversion was introduced by a
State Legislator'who is also a member of the Greater Portland
WQM program's CAC. The bill's course through the legislature
was stormy. The WQM staff lobbied for its passage and staff
from several State agencies helped to draft compromise legista-
tion. The'original bill would have required that every seasonal
home being converted to, year-round use within a 250 foot shoreland
area have a septic system in compliance with the State Plumbing
Code. (While this bill was being introduced in the legislature,
another CAC member was instrumental in achieving adoption of a
similar amendment to the Shoreland Zoning Ordinance in his
hometown of Harrison.)
The bill which was finally enacted by the state legislature
requires a permit from the local plumbing inspector for
conversion to year-round use (more than six months) of a
seasonal home within a 250 foot shoreland area. A home owner
must meet one of the following conditions to.receive a permit:
the dwelling's sewage disposal system must meet the standards
of the Maine State Plumbing Code; a site evaluation must be
performed to demonstrate that site conditions, including lot
size and soil type, will permit installation of a sewage
disposal system conforming to the plumbing code if the existing
system should fail; or the sewage disposal system is connected
to an approved sanitary sewer system.
The other bill prepared by the water quality management agency
and adopted by the legislature amends the method for collecting
municipal costs incurred in abating malfunctioning on-lot
disposal systems. This bill gives municipalities the option of
adopting a local ordinance which would allow them to establish
a ten year pay-back period to recover from home owners the costs
of correcting" a malfunctioning septic system. A draft ordinance
has been prepared to assist municipalities in implementing this
law.
Implementation
Each town in Maine has a local plumbing inspector who is
authorized to carry out the provisions in these two acts. Towns
have the authority to set fees for plumbing inspection and can
finance inspections of conversions by establishing a specific fee.
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MAINE
Region I
Significance
The Citizens.Advisory Committee and the staff of the Greater
Portland water quality management program developed
environmentally sound and economically feasible solutions to
problems involving on-lot disposal systems. The two State
laws offer more effective means to handle existing and potential
problems. The potential for contamination :of surface and'ground
waters, greatly increased sewage treatment costs, and unwanted
population growth is limited by the new requirements for
conversion of seasonal homes. Also, existing on-lot dystem
failures are more likely to be corrected now that municipalities
and local plumbing inspectors can recover costs without imposing
a harsh financial burden on individual home owners.
The Citizens Advisory Committee played ,a major role in achieving
implementation of these two programs for managing on-lot disposal
systems. The Committee identified these problems at the outset
of the program, worked closely with the staff in developing
legislation to implement specific septic system management
practices, and achieved implementation of more stringent regulation
of seasonal home conversions in one town within the planning area.
The CAC and WQF1 staff obtained input and assistance from State
agencies in amending the legislation and effectively guided these
bills through the legislature. While the bill enacted to regulate
conversion of seasonal dwellings is less stringent than the
original CAC recommendations, it still provides for protection of
water quality and reduces statewide costs for implementation by
not requiring improvements if an existing septic system is shown
to be adequate.
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MASSACHUSETTS Region I
Berkshire County Regional Planning Commission (Pittsfield, Mass.)
Accomplishment: The water quality management agency
prepared a revised zoning by-law, adopted by the city of
Stockbridge, which protects groundwater.
Data Collection
The Berkshire, County Regional Planning Commission (BCRPC) .
identified the most significant aquifers to provide current
and potential municipal water supplies through the year 2000.
Primary recharge areas were mapped, and existing and potential
threats to groundwater quality were evaluated. BCRPC
developed land use guidelines for protection of major aquifer
recharge areas. To implement the plan recommendations, BCRPC
developed a draft zoning by-law for groundwater protection.
Development of Regulatory Program
In 1975, Massachusetts passed a law that requires all towns in
the state to do a comprehensive revision of their zoning laws.
The Stockbridge Planning Board requested that BCRPC revise
the existing zoning ordinance. The water quality management
staff prepared a zoning ordinance that incorporates the
groundwater protection guidelines from the water quality
management plan. The Planning Board approved the revisions
in January, 1977, and the voters of Stockbridge endorsed the
revisions in March. In addition to traditional zoning districts,
the ordinance defines Conservancy Districts which include floodplain
districts, wetland areas and groundwater recharge areas.
The conservancy districts are overlay districts, superimposed on
existing zoning districts. If there is a discrepancy between
the uses allowed in any area under its zoning classification
and its conservancy district classification, the more restrictive
use takes precedence. Through their review authority the Planning
Board is the management agency.
In addition to the regulations and restrictions for all three
conservancy districts which are in the zoning ordinance, the
ordinance makes proposed uses for groundwater recharge areas
subject to the land use guidelines recommended in the Upper
Housatonic 208 Hater Quality Management Plan (prepared by BCRPC),
which are cited by reference in the ordinance. The goal of the
land use guidelines is to meet standards of 10 mg/1 nitrogen
and 20 mg/1 sodium in groundwaters. These guidelines combine
regulation of development densities with structural controls.
, 9
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MASSACHUSETTS
Significance
Region I
BCRPC achieved a significant step in implementation of plan
recommendations by developing a program "package" for action
by the Planning Board and the citizens of Stockbridge.
Revision of the zoning by-law offered an ideal opportunity
for the Berkshire County 208 staff to incorporate provisions
for groundwater protection into a comprehensive zoning program.
In addition, through assistance to Stockbridge, BCRPC is
building credibility as an agency able to help solve local
problems and incorporate water quality concerns with other
local concerns.
Berkshire County Regional Planning Commission (Pittsfield, Mass.)
Accomplishment: The Berkshire County Regional Planning
Commission, through the 208 program, has significantly speeded
regionalization of wastewater treatment facilities.
Background
In 1969, BCRPC prepared a wastewater management plan which
recommended regionalization of the sewage treatment plant in
Pittsfield to handle sewage flows from Hinsdale and Lenox.
Lenox
The original plan recommended that Lenox abandon new
primary treatment plant in the north of town and turn it into a
pumping station. Action on these recommendations was proceeding
slowly due to local reluctance to abandon the plant and to
technical difficulties.
Solution
BCRPC started its planning program in July, 1975 and, by
September, presented Lenox with a revised facility plan.
Population and land use projections were revised and
sewer service areas and interceptor designs were modified. The
Pittsfield sewage treatment plant has adequate capacity to
handle wastes from Lenox so the redefinition of service areas
routed more sewage to Pittsfield from areas which had initially
been designated for hookup to a Lenox Center treatment plant.
The town approved modification of the regional sewage treatment
plan for Lenox, and the project will be on-line by June, 1978.
10
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MASSACHUSETTS
Significance
Region I
Without the reassessment of the regional wastewater management
plan, action "to hook up North Lenox to the Pittsfield plant
would have taken several years longer. In addition, redefining
the service areas has led to a decrease in the proposed load
for the Lenox Center plant. This will extend the useful life
of the plant. Another result will be improved water quality in
the Housatonic River since sewage flows from North Lenox will
receive secondary treatment at the Pittsfield plant rather than
primary treatment at the North Lenox plant,
Hinsdale
BCRPC had recommended sewering the. North Lakeshore areas of
Hinsdale as well as the town itself. The reasons for recommending
sewering around the lake were health problems due to septic system
failures and eutrophication. BCRPC was able to show that a
regional system would be more cost effective and have greater
reliability than an in-town treatment plant. A regional system
would result in a projected capital cost savings of approximately
25 percent and operating cost savings of approximately 50 percent.
The town accepted BCRPC recommendations and negotiations were
completed with Pittsfield and another town to allow Hinsdale
into the system. .In 1971, disagreement developed with the
state regarding design of a trunk line for future extension
to lakeshore areas. The project reached a standstill.
Solution
Under the 208 program, sewering of the lakeshore was reevaluated.
More data collection and analyses were done to estimate the
effects of sewering on lake eutrophication, to identify public
health problems due to septic system failures, and to reassess
alternative solutions.
Results of the lake eutrophication study were mixed. They
showed that sewering alone wou-ld have very limited benefits
in controlling eutrophication, since other significant sources
of phosphorous were identified. Also, the extension of sewer
lines might lead to environmental degradation due to new
development. Sewering the lakeshore was still chosen as the
best alternative for health reasons, and the town reaffirmed
the decision in September, 1976. Meetings with town officials
were held by BCRPC throughout the reevaluation to keep them
informed of the progress of the study. Extension of the regional
system to Hinsdale is now under way.
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MASSACHUSETTS
Significance
Region I
The water quality management program was the vehicle for BCRPC
to provide a concentrated effort to resolve the issues concerning
sewering lakeshore areas of Hinsdale. Water quality management
studies provided more detailed data to verify and give greater
legitimacy to the recommendation. Also, as a result of the .
findings of the eutrophication study, town officials have become
concerned with taking preventive action against further
eutrophication and with lowering nutrient levels from other
sources. Since existing zoning regulations for Hinsdale may
contribute to development pressures on the lake, town officials
are working with BCRPC staff to revise zoning and subdivision
regulations. They are also looking into lake management
techniques, including erosion controls and farming best manage-
ment practices to supplement limited benefits of sewering.
Hontachusett Regional Planning Commission (Fitchburg, Mass.)
Performance Indicator: Water quality management planning
efforts aided in identification and adoption of a new sanitary
landfill site.
Background
The Squannacook River is one of the prime trout streams in
the state. Leachate and runoff from the nearby Townsend dump
are threatening the quality of the stream. Pursuant to
Massachusetts statute, the State Department of Environmental
Quality Engineering (DEQE) ordered the closure of the dump to
eliminate further loadings to the stream.
Technical
The Montachusett water quality management agency assisted in
the formation of a sanitary landfill comittee and directly
provided engineering and planning expertise to the town in
seeking a suitable site for a sanitary landfill. WQM planners
evaluated a number of proposed locations for the new disposal
facility and identified the most suitable location. Montachusetts
Regional Planning Commission also provided population forecasts
and municipal and industrial waste predictions to accurately
determine landfill capacity.
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MASSACHUSETTS
Political Solution and Funding
Region I
Iri September, 1976., Townsend received temporary approval for
the new site from the DEQE, and in February, 1977,'the Townsend
Board of Health designated this area as the proposed landfill
site. ;Subject to appropriation of funds by the town for*
purchase and to the development of a state-approved-engineering
plan, the new landfill should be in operation within a year.
'Sig
icance
Relocation of the landfill will improve and protect the water
quality of the Squannacook River, correct a long-standing shoreline
blight'and help restore and maintain the stream's recreational
'uses; '
The water quality management agency helped identify and
involve key political actors and technical experts to solve
; the problem.
s
The success of this experience is expected to benefit
neighboring towns with similar problems. The town of
Lunenburg has also been ordered to close its dump to prevent
drainage into Hickory Hills Lake. Montachusett Regional
Planning Commission has already supplied waste generation
forecasts £o the town's sanitary landfill committee and
.sponsored meetings with the town's selectmen and engineering
1 consultant. '""
Northern Middlesex Area Commission (Lowell, Mass.)
Performance Indicator: A seriously polluted lake, receiving
significant contamination from poorly maintained septic tanks,
will be recla-imed with money from the section 314 "Clean Lakes"
program as a top priority in the water quality management
'program.
Background
Nutting Lake, in the northern Middlesex region of Massachusetts,
:has been growing increasingly productive over the past decade.
As the lake is an important recreational and aesthetic resource
its reclamation was deemed urgent.
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MASSACHUSETTS
Technical
Region I
Engineering studies were conducted to determine sources and
the extent of contamination. Septic tanks serving lakeside
homes were found to be responsible for significant nutrient
contributions.
Management Program and Funding for Reclamation
A septic tank inspection program requiring yearly inspection
for compliance with the state sanitary code was adopted by
the town of Bill erica. The Health Agent for the town Board
of Health carries out the inspection. The town has received
a Clean Lakes grant under section 314(b) of P.L. 92-500,
and a physical reclamation program will get under way in the
spring.
Significance
Funding from two distinct sections of P.L. 92-500 has enabled
identification and regulatory control of serious nonpoint
sources from leaching septic tanks and active restoration
of the polluted water body.
Old Colony Planning Council (Brockton, Mass.)
Performance Indicator: The water quality management agency
developed a program to reclaim a major recreational pond
rendered unusable by contributions from urban runoff.
Background
Ellis Brett Pond, in D.W. Field's Park in Brockton, Massachusetts,
is the only major natural swimming and fishing facility in this
city of 100,000 people.
Urban runoff has flowed to the pond in increasing amounts
in recent years due to progressive development of major
shopping centers and multi-family dwellings. Local concern
about declining water quality in the pond precipitated
interest from both the 208 agency representing that area
and the Massachusetts Department of Environmental Quality
Engineering (DEQE). A multi-agency effort involving three
tiers of government evolved (city, state and federal),.which
will result in a comprehensive lake reclamation program.
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MASSACHUSETTS
Funding
Region I
The City is scheduled to receive a Clean Lakes grant under
section 314(b) of P.L. 92-500 contingent on City and State
commitment of matching funds. The water quality management
agency has designated a stormwater management system which
will be implemented with the 314(b) funds.
Southeastern Regional Planning and Economic Development
District (Marion, Mass.):'
Performance Indicator: The water quality management agency
established credibility with the industrial community
through coordination of an effort among three competing silver
plating firms to do a feasibility study on joint pretreatment and
through assistance in obtaining funding.
Background
Metal plating is a major industrial activity in southeastern
Massachusetts and wastes from plating processes have long
comprised serious pollution loadings to streams in that area.
Faced with the prospect of installing expensive pretreatment
equipment to meet NPDES requirements, three silver plating
firms are participants in a study to determine the feasibility
of recovering silver from their wastes and jointly using one
pretreatment facility. Two more similar firms are keeping
tabs on the economic feasibility of the project but are not
yet committed.
Logistics
Because of the competitive sensitivity of the firms, an
approach was coordinated through the local Chamber of
Commerce by the water quality management agency. It was
proposed that recovery of the process materials may be
profitable and that economic gains could result from joint
waste pretreatment. The alternative requirements for each
firm under NPDES permits may cost hundreds of thousands of
dollars more than the joint project. EPA,Research and
Development is funding the project and the study is now
underway.
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MASSACHUSETTS
Significance
Region I
The water quality management agency was able to initiate a
cooperative effort with three private companies to develop
a proposal for a joint pretreatment study involving all
three companies. It is important that the agency was able to
secure agreement for a joint effort in a highly competitive
industry. The agency has established credibility for the
water quality management program in the industrial community
by its efforts to find water quality solutions that;will also
be cost effective for industry.
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REGION II
MEN JERSEY
Middlesex County Planning Board (New Brunswick, New Jersey)
Performance Indicator: The Policy Advisory Committee of the
Middlesex County water quality management program was;,instru-
mental in closing a landfill causing surface and ground water
pollution in the town of Edison.
Background
The Kinbuc landfill in Edison is located on a floodplain and
over a major aquifer. The landfill accepted chemical and
toxic wastes as well as solid waste. Separate studies
conducted for the 208 program and EPA confirmed that the
landfill is polluting the Raritan River and the aquifer which
is the second largest drinking water source in the county.
The EPA study recommended closing the landfill.
Policy Advisory Committee Recommended Actions
On the basis of these findings, the 208 Policy Advisory Committee
wrote a letter to the New Jersey Department of Environmental
Protection (DEP) strongly urging the DEP to close the landfill.
The Policy Advisory Committee's involvement was influential in
the initial decision by the DEP to order closure of the landfill
especially because of its membership. The Committee has 50
elected members representing 35 municipalities and includes five
mayors and five elected city council members as well as industry
representatives and private citizens. The Chairman is an
appointed official from a township in the county.
The Policy Advisory Committee recommended legislation, which
is now before the state legislature, for monitoring and
surveillance of landfills. In addition, the state attorney
general agreed to represent the Advisory Committee in hearings
on revisions to the State Solid Haste Act.
Significance
The Policy Advisory Committee helped to raise awareness of
important water quality issues relating to landfill leachate
and identified the water quality management program as an
effective means for dealing with water quality problems
of local concern.
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NEW JERSEY
Region II
Closure of this specific landfill does not solve all problems
related to disposal of chemical and toxic substances; but
through publicity on this landfill, the broader issue of
developing and enforcing a comprehensive solid waste management
program is receiving statewide attention. The Policy Advisory
Committee has been active in seeking long term solutions through
development of statewide legislation to regulate siting and
operation of solid waste disposal facilities.
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NEW YORK
Region II
Nassau-Suffolk Regional Planning Board (Hauppauge, New York)
Accomplishment: Citizen involvement in the water quality
management process led the 208-agency-to incorporate in its
program a study of health effects of wastewater treatment
alternatives, which would affect the quality and supply of the
Long Island aquifer. £""'
Background
The Nassau-Suffolk 208 program confronts both water quality
and water quantity problems in attempting to protect the
Long Island aquifer, the sole drinking water source for the
region. Water quality has deteriorated as a result of septic
tank1 seepage, stormwater and agricultural runoff and infil-
tration, and landfill leachate. Water quantity has decreased
due to increased reliance on the aquifer for residential and
industrial uses and diminished discharge to the aquifer because
of ocean disposal of wastewater and stormwater effluent.
Increased recharge is a major goal of the water quality
management process, and the Citizen Advisory Committee (CAC)
raised the issue of whether stream flow augmentation, storm-
water and sewage disposal, control of leachate, and other
technical alternatives that were under study could impact
public health. CAC members were particularly concerned that
viruses and other contaminants that were in water recycled
to the aquifer might threaten its water supply function.
Citizen Advisory Committee Presentations on Potential Viral
Contamination
To substantiate their concern over possible viral contamination
of the Long Island aquifer, CAC members contacted the Health
Departments of Nassau and Suffolk Counties, which were already
aware of the potential problem. They also arranged for two
specialists to give presentations on viral investigations
before the 208 Policy Advisory Committee and EPA officials.
The evidence contained in these presentations convinced the
208 and EPA regional staffs to modify the water quality management
work plan to include viral monitoring. $110,000 from the
existing budget was allocated for this project, which is managed
by the county health departments and conducted by Brookhaven
National Laboratory. The findings of this study will be incor-
porated into the evaluation of technical alternatives in order
to assess their public health implications.
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New York
Region II
Significance
This accomplishment is significant in two respects. First,
the 208 program was expanded to measure the potential public
health impacts of alternative water quality management solutions
to the Long Island aquifer's quality and quantity problems.
Both research and practical experience indicated that the
aquifer's use as a drinking water supply could be threatened
by^the introduction'of viruses and other contaminants. Without
this study, the final plan recommendations might have been
deficient or detrimental in the area of public health.
Second, this accomplishment demonstrates the contribution that
citizens can and should make to the 208 program. Public
awareness and apprehension generated the viral monitoring
project and assessment of potential public health effects.
Technically competent citizens must become involved in the
water quality management program to ensure comprehensiveness.
This example shows that citizen participation under 208 is an
effective means of utilizing their knowledge.
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REGION III
DELAWARE
New Castle County Areawide Waste Treatment Management Planning
Agency (Wi1mi ngton,,Del aware):
Accomplishment: The New Castle County 208 program helped
to achieve a $2 million cost savings in the County's Capital
Improvements Budget through revision of sewer extension plans.
The New Castle County 208 staff completed an evaluation of
proposed .sewer extension .plans to provide service to homes
with septic systems. The evaluation included a determination
of on-lot disposal methodologies considering environmental
restraints such as soil, type, topography and hydrology.
The 208 staff developed a .priority list for septic system
needs which identified those areas most in need of sewering
and those areas more suitable for continued operations of
on-lot disposal systems. The County revised the Capital
Improvement Plan to include only those areas in need of
immediate sewering, resulting in a $2 million cost savings.
The 208 agency intends to prepare a new septic tank ordinance
in its continuing planning program.
New Castle County Areawide Waste Treatment Management Planning
Agency (Wilmington, Delaware):
Performance Indicator: The New Castle County water quality
management staff assisted in preparation of sewer use
ordinances which were adopted by New Castle County and the
city of Newark, Delaware to provide consistent sewer use
requirements for the Wilmington regional wastewater treatment
system.
Background
In December, 1974, the city of Wilmington, Delaware enacted
a sewer use ordinance which sets limitations for certain
wastewater constituents, both for dischargers within the city
limits and at city/county interface points. Substances and
characteristics which are limited include arsenic, barium,
cadmium, chromium, copper, lead, mercury, selenium, zinc,
nickel, silver, cyanide, ammonia, nitrogen, phosphorus, iron,
phenol, dissolved solids, temperature, pH, BOD, suspended
solids, and color. This ordinance limits specific constituents
discharged from the New Castle County system into the Wilmington
system. Therefore, the County had to establish a more
restrictive control program.
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DELAWARE
Regulatory Program
Region III
New Castle County asked the water quality management agency
staff to provide assistance in revising the county sewer use
ordinance. A coordinated effort by the 208 staff, personnel
from the County Departments of Public Works and Law and
industrial representatives from the 208 Citizens Advisory
Committee produced a revised sewer use ordinance. This was
enacted by the County Council in December, 1975.
The city of Newark, Delaware had to act to meet the more
restrictive limits imposed by the new county ordinance. The
208 agency provided assistance to the Office of the City
Manager to revise the existing sewer use ordinance. The
revised ordinance adopted by the Newark City Council in
June, 1976 is almost identical to that adopted by the county.
Both ordinances limit the same substances and characteristics
as the Wilmington sewer use ordinance. The underlying goal
of the ordinances is to protect regional wastewater treatment
facilities and facility operations.
The Newark ordinance includes a user charge system. Wilmington
and New Castle County enacted separate user charge ordinances,
and user charges are in effect in all three areas. The New
Castle County and Newark ordinances include permitting provisions
for all non-domestic users, but the permitting process is only
initiated upon notification to the individual industry by the
city or county. Wilmington does require industrial self moni-
toring a one-time requirement as part of an Industrial Waste
Questionnaire for the user charge system.
I1
At this time New Castle County has initiated permits for a
few larger industries associated with past problems or
suspected as potential producers of significant quantities of
wastes which cannot be handled in the municipal system. Newark,
due to staff deficiencies, has not initiated any permits.
The major constraint to enforcement of all three ordinances is
that the constituent limitations were selected by an undefined
method and need verification in the Wilmington sewerage system.
Until discharge requirements appropriate to local conditions
and treatment capabilities can be established, many provisions
of the ordinances cannot be enforced. The ordinances contain
the authority to conduct a comprehensive waste survey and the
monitoring necessary for verification of the existing limits;
but due to funding shortages, very little, if any, monitoring
is now underway. As part of its continuing planning process,
the Mew Castle 208 agency intends to develop alternatives to
provide sufficient funding.
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DELAWARE
Region III
Significance
Obtaining enactment of consistent sewer use ordinances in
these three jurisdictions is a major step in controlling
industrial wastewater discharges. It required resolution of
considerable political and legal problems.- An important
aspect of these ordinances is the broad range of substances
and characteristics they regulate. Full enforcement of the
ordinances cannot be effected until an adequate, reliable
financial support program can be .put in place to allow
development of a data base sufficient to establish justifiable
constituent limitations. :
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REGION IV
ALABAMA
South Alabama Regional Planning Commission (Mobile, 'Alabama)
Accomplishment: Water quality management monitoring,-analysis,
and institutional recommendations led to State adoption of
anti-degradation policies and local establishment of an
industrial waste management authority to protect water quality
in the Theodore Ship Channel and Mobile Bay.
Background , ,
Since the early 1970's, EPA Region IV had been concerned
about point and nonpoint source pollution from construction
and use of the Theodore Ship Channel in Mobile Harbor';-. .In
1975, the U.S. Army Corps of Engineers proposed, to
extend the channel by building a barge canal that ,would,be
dead-end and therefore would lack the capacity to assimilate
wastes. One of the major users of the barge, canal will be
the 4,000 acre Theodore Industrial Park, which was 20 percent
completed as of mid-1977. . r
Given the planned barge canal extension, EPA Region IV
declared, on the basis of available modeling data, the .water
quality classification for fish and wildlife in the canal
could only be achieved by total containment of wastes or some
other acceptable water quality management program. The South
Alabama Regional Planning Commission, the 208 agency for
Mobile, Alabama, assumed responsibility for developing, a
water quality management program for the Theodore Ship Channel area
and obtained technical assistance from the local.201 agency,
Alabama Water Improvement Commission, and the U.S.- Army Corps
of Engineers. :
Technical Component ,
The Mobile area 201 agency studied the compatibility of
industrial wastes being mixed with municipal wastes for
treatment in a combined facility. The results indicated that
industrial wastes were not compatible with the conventional
municipal wastes and that a separate industrial waste
treatment system was required.
The water quality management agency then conducted water
quality monitoring in the Theodore Ship Channel to determine
existing water quality and the nonpoint source contribution
from the industrial park. With financial assistance from
the Alabama Water Improvement Commission and technical assistance
from the Corps of Engineers, the South Alabama Regional
Planning Commission performed mathematical and physical
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ALABAMA.
Region IV
modeling to evaluate future water quality and test
alternative industrial discharge points in Mobile Bay.
Simulation by the Corps of Engineers Waterways Experiment
Station in Vicksburg, Mississippi, yielded the discharge
point with the optimal combination of dilution and
dispersion characteristics.
State Discharge Policies for Theodore Ship Channel
Based on the modeling effort and water quality management
agency recommendations, the Water Improvement
Commission adopted a set of policies aimed at maintaining
and improving water quality in the Theodore Ship Channel.
The policies, which support anti-degradation, address both
point and nonpoint sources of pollution. They require
the application of best management practices to control
pollution from construction activities and industrial
stormwater runoff and propose the establishment of an
industrial waste treatment entity. EPA Region IV reinforced
these actions by stating that future NPDES permits would
have to be consistent with the 208 recommendations and
State policies.
Establishment of the Waste Water Treatment - Discharge
Management Authority
When the Theodore Industrial Park was established, no
public agency assumed responsibility for managing the
facility and, in particular, for providing wastewater
treatment service. Since the water quality assessment
revealed that industrial waste management was essential
to protecting the Theodore Ship Channel, the Policy
Committee of the 208 agency recommended that the Mobile
Board of Water and Sewer Commissioners perform these
functions for the Theodore area. This recommendation was
adopted, and the Board accepted the responsibility as the
Waste Water Treatment - Discharge Management Authority for
that purpose.
To discharge its responsibilities, the Authority will
construct a catch basin and 30 inch waste outfall
fine. One local industry located in the Theodore Industrial
Park, DeGussa Alabama, Inc., is cooperating with the Authority on
the design and financing of the outfall line, which incorporates
the discharge point alternative derived from the 208 modeling.
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ALABAMA
Region IV
This industry had intended to construct an 18 inch line
and will apply the cost of that line to the 30 inch line,
which the Authority will finance by a bond issue. Additional
users of the pipeline outfall will pay a: pro rata share of the
construction cost.
Significance
This accomplishment is significant in three respects. First,
the 208 program was instrumental in preserving the water
quality in Mobile Bay and the Theodore Ship Channel and Barge
Canal. Without the monitoring and modeling that the South Alabama
Regional Planning Commission coordinated, two industries
would probably have been issued permits based on
insufficient information, thus jeopardizing water quality
in the area. The anti-degradation policy adopted by the .
Alabama Water Improvement Commission and supported by
EPA Region IV, and the establishment of the management authority
sponsored by the 208 agency ensure that future waste management
in the area will continue to protect water quality in Mobile Bay,
as well as in the Theodore Ship Channel and Barge Canal extension.
Second, this process of formulating and implementing the
solution to a water quality problem is an excellent example
of interagency coordination. Less than 18 months elapsed
between the time EPA Region IV requested additional
monitoring in Mobile Bay and the Mobile Board of Water and
Sewer Commissioners voted to form the management authority.
The South Alabama Regional Planning Commission modified
its 208 program to deal with this priority problem and
successfully drew on the resources of key local, State, and
Federal agencies to produce the technical, and institutional
components essential to a long-range solution.
Finally, the construction of the outfall was
expedited by the cooperation of DeGussa Alabama, Inc., one
of the major industries in the Theodore Industrial Park.
This firm's pledge to underwrite more than half the cost of
the pipe reflects its commitment to protecting the local
environment. Preserving the water quality of Mobile Bay and
the Theodore Ship Channel and Barge Canal extension is a goal
that the public and private sectors can jointly pursue, because
they both stand to benefit from a successful outcome.
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FLORIDA Region IV
Central Florida Regional Planning Council (Bartow, Florida)
Accomplishment: The Central Florida Regional Planning
Council negotiated the expansion of an existing secondary
treatment plant as an alternative to construction of a
new package plant, thus preventing potential water quality
degradation in a. local lake.
Political Solution , _. .
Through its A-95 review responsibilities, the water quality
management agency received a proposal for construction of a
new package treatment plant to serve a housing development
under construction. The perk evaporating pond for the
proposed plant would have been located very close to a lake
and would have eventually infiltrated nutrients into the lake.
It would also have been directly across the street from an
existing secondary treatment plant run by Polk County.
The 208 agency negotiated with the county and the developer
to expand the capacity of the existing plant to accommodate
the new development. The developer and the county reached
' an agreement whereby the developer is paying for expansion
of the existing plant and the county will serve the new
development. ,
Significance
This agreement is important for two reasons. First, the
water quality management agency helped achieve a technically
more acceptable solution. An existing treatment plant's
operations will be more efficient and more cost effective,
and construction of a new^package plant has been avoided.
This solution will also save'the developer land and,money.
Secondly, and almost equally important, the water quality
management program has proved its effectiveness in solving
local solutions and raised its credibility (and the
credibility of the regional planning council which is only
three years old) with both the county and the developer.
In fact, the developer became interested in the water quality
management program and agreed to serve on the Technical
Advisory Committee.
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FLORIDA
Region IV
Central Florida Regional Planning Council (Bartow, Florida)
Performance Indicator: The water quality management staff and
the Polk County office of the Department of Health and
Rehabilitative Services (MRS) have developed a clean-
up program which will give eligible juvenile first
offenders a break, and help improve lakeshore areas at the
same time.
How It Works
The program is designed to alleviate the caseload of juvenile
probation officers by enrolling first offenders from the
ages of 12-17 in a work rehabilitation program in lieu of
sentencing and probation. At the same time, their work
will result in cleaner lakeshore and recreation areas.
The Polk County program was begun in Lakeland, where each
juvenile in the work-rehab program spends 8-16 hours in
various environmental clean-up jobs. The juveniles are
assigned environmental clean-up tasks in the Lakeland area,
such as the collection and proper disposal of litter and
trash surrounding several city lakes and recreation areas.
Program Success
So far the program has been very successful. Reactions
from both the teenagers involved and their parents are good.
The program is being expanded from city to county-wide and
the State Attorney's office has commented on its success.
People have also commented on a noticeable improvement in
the lakeshore environment.
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FLORIDA
Region IV
Significance
Among those in direct contact with this clean-up program,
the water quality management agency has created good will
and been identified with a broader range of community
concerns. For the general public, this program has r
resulted in a noticeable improvement in environmental
quality.
Central Florida Regional Planning Council (Bartow, Florida)
Performance Indicator: The water quality management_agency,
working with two state agencies, succeeded in obtaining
agreement to modify engineering plans for a road which
would have discharged large quantities of stormwater into
five lakes. . .
Background .
One of the priority problems in this area .is
eutrophication of lakes, and a major effort is being
directed to develop strategies to prevent stormwater
runoff from further deteriorating surface waters. In
early 1977, the 208 staff became aware of a road project
being designedly the Florida Department of Transportation.
Following the original design, the road would discharge
large quantities of stormwater into five lakes.
Coordination .
The Florida Department of Environmental Regulation had not
been involved in the project until that time. The 208
staff initiated a series of meetings with representatives
of the Department of Environmental Regulation and the
Department of Transportation. Through these meetings,
agreement was reached to modify the engineering plans to
avoid stormwater discharge from the road. The plans are
now being completed.
Significance
The water quality management agency identified a potential
water quality problem and initiated action to deal with
it. The revised engineering plans, when completed, will
protect five lakes from significant amounts of stormwater
discharges. In addition, the 208 agency was able to initiate
coordination between two state agencies.
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FLORIDA Region IV
Central Florida Regional Planning Council (Bartow, Florida)
Performance Indicator: The water quality management
agency has set up a "Water!ine" for citizens to call
in local water quality problems.
Public Outreach Program
In an effort to involve the public in the 208 program,
the water quality management agency installed the
Water!ine, a telephone alert system by which citizens
in the three-county water quality study area can bring
cases of discharge violations and health or safety hazards
in the area's open waters to the attention of the 208 staff.
The Water!ine is a direct telephone line manned by an
answering service on a twenty-four hours-a-day, seven-
days-a-week basis. All calls received on the Water!ine are
returned by the staff within twenty-four hours (weekends
excepted) and a thorough examination of the problem is
conducted. Out-of-town callers can call collect.
How It Works
The Water!ine receives about 10 calls per week. In
one case, in the city of Lakeland, there is a shopping
mall next to Lake Parker. An anonymous Water!ine call
reported that the maintenance company was dumping
parking lot sweepings on the lakeshore. The 208 staff
reported the situation to the Florida Department of
Environmental Regulation (FDER). It took two visits
from FDER officials and the threat of court action
to force'the company to clean up the dumping pile.
Significance
The Water!ine has two levels of significance. One is
the impact of handling individual calls. The case
mentioned above generated city officials' interest in
the 208 program for the first time. Response to this
call showed Lakeland officials that the water quality
management program can help to solve local problems.
In general, the Waterline gives citizens a direct line
of communication to the 208 staff. It also gives the
staff a sense of public priorities and issues and helps
to identify new problem areas. The Waterline can be
maintained indefinitely at small expense.
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FLORIDA Region IV
Tallahassee-Leon County Planning Department (Tallahassee, Florida)
Accomplishment: The Tallahassee-Leon County Planning Department
through its 208 program, developed a drawdown project to improve
water quality on a lake undergoing advanced eutrophication.
With the support of almost all residents of the lakeside
area, the Leon County Commission approved the project which
is now underway.
Background
Lake Munson, in Tallahassee, was severely eutrophic and could
not be restored naturally. The 208 staff developed a drawdown
proposal to partially restore the lake and held public hearings
in October, 1976, to consider the project.
Public Involvement
Lake Munson was developed by wetland drainage, and the
traditional concern of lakeshore residents had been to
maintain water levels. As the algae cover grew, water
quality also became a major concern. The public hearing
on the drawdown project was the first time residents
were consulted. In response to the information presented
at the hearing, the citizen-organized Lake Munson
Preservation Committee circulated a petition in favor
of the drawdown project as a way to improve lake quality.
The Preservation Committee obtained signatures from almost
all lakeside residents and presented the petition to the Leon
County Commission. The County Commission approved the
drawdown project in April and it was soon under way.
Technical Solution
The drawdown is intended to consolidate sedimentary and
nutrient substances, stabilizing them by oxidation. It is
also expected that significant proportions of trace metals
found in the lake's waters will oxidize so they will no
longer be soluble in water.
The drawdown was accomplished by opening a dam at one end
of the lake. The project was begun this spring, and approximately
60-80 percent of the lake bottom surface has been exposed and is
covered with thick vegetation. Monitoring to evaluate the
effectiveness of the drawdown is being conducted by local, state
and federal agencies and is expected to continue over several
years.
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FLORIDA
Region IV
If the drawdown is successful, the Florida Game and Fresh
Water Fish Commission is proposing to restock the lake with
fish. It is anticipated that the drawdown must be repeated
on a three to five year cycle until controls for nutrient
sources are in place (see the next entry).
Significance
This project is significant for two reasons.
First the water quality management agency, by identifying
a water quality problem that directly affects
many residents and by proposing an immediate short-range
solution, stimulated public involvement and support This
public involvement was crucial to local acceptance of the
drawdown project.
Second, the drawdown project is a highly visible attack on
the eutrophication that plagues Lake Munson. The drawdown
is only a temporary solution dealing with the effects of a
pollutant rather than eliminating the sources of lake
degradation. But the Tallahassee-Leon County Planning
Department, as a major part of its water quality management
plan, has developed a program for controlling the nonpoint
sources of pollution. The program is much more likely to
receive citizen input and active support since it builds on
the lake drawdown project and offers a long-term solution
from an agency that is already tackling lake quality problems
Tallahassee-Leon County Planning Department (Tallahassee, Florida)
Performance Indicator: The water quality management agency
is developing a comprehensive program to control urban runoff
which is the major source of nutrients causing eutrophication
of Lake Munson and is seeking implementation through adoption
of a stormwater ordinance.
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FLORIDA
Region IV
Background
Two studies have been performed to identify the source of
nutrients affecting Lake Munson. The first, done by EPA,
identified a seven mgd secondary treatment plant discharging
into the lake and urban stormwater runoff as contributing
about equally to nutrient buildup. A later study done for
the 208 program indicated that approximately 60 percent of
the nutrients in the lake come from urban storm runoff. In
addition to the nutrients, there is a problem with floating
debris from runoff; and significant concentrations of lead
and other heavy metals have been found in the bottom sediments,
The'201 plan for the treatment facility on the lake calls for
land application of effluent by 1980. The city is beginning
construction of the facility, so this pollutant source will
be eliminated.
The lake was formed by draining wetlands in the area and
constructing drainage ditches to convey runoff into the lake.
Several years before the 208 program got underway, the county
had prepared a draft master drainage plan for flood control
and attempted in 1975 to pass a stormwater ordinance to
implement the plan. The ordinance generated so much
controversy that the County Commission withdrew the proposals
and put the plan under advisement.
Stormwater Control Program
The County Commission felt the 208 program offered an
opportunity to reevaluate the drainage plan. The 208
technical staff, working with the county engineer and various
advisory boards, completed a technical review and revision of
the plan and ordinance to include water quality as well as
quantity considerations. In addition, the draft master
drainage plan includes both structural and nonstructural
solutions to the urban stormwater runoff problem. Solutions
include restoration of wetlands, developing trash removal
structures and land use controls. The drainage plan has
already gone through the public hearing process and is now
under final review. The issue that remains to be resolved
is financing for the program. Several alternatives are
being considered, including a bond issue to construct
facilities and some form of user charge system to cover the
operating costs.
When a funding program has been developed, the ordinance
incorporating the specific recommendations in the drainage
plan will go before the Tallahassee City Commission and the
Leon County Commission. Action is expected by December, 1977
at the latest.
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FLORIDA
Management Agency
Region IV
The city of Tallahassee had previously negotiated an
agreement that assigns all drainage system management
responsibility to the County Commission. Therefore, the
management structure and authority are already in place.
By turning to the 208 program as a means of reviving and
revising the drainage plan, the Commission has already
shown a commitment to implementation of the ordinance.
Significance
Development of a master drainage plan is significant for
two reasons. First, the water quality management staff
built extensively on existing work and capitalized on
Leon County's commitment to develop and implement a
master drainage plan. The final plan has been expanded
from a flood control program to a comprehensive urban
runoff control program. Also the agency is making
effective use of the county's existing drainage management
authority.
Second, the agency's strategy for securing approval and
implementation is also important. The drainage management
plan went to public hearing alone. This gave the public
the opportunity to concentrate on a specific set of
issues relating to flood control and urban stormwater runoff
control, rather than having to deal with a diffuse set of
recommendations. . The public hearing was held just as the
Lake Munson drawdown project was getting underway, so there
was already heightened interest in water quality problems
and potential solutions.
.The water quality management staff has recognized that
implementation of specific controls is dependent on presenting
the city and county with an ordinance that covers all program
elements. An adequate funding program is integral to
effective stormwater management, and the water quality
management agency will not ask the city and county to act
until the funding element is complete.
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TENNESSEE
Region IV
Chattanooga Area Regional Council of Governments
(Chattanooga, Tennessee)
Performance Indicator: The water quality management agency
assigned a staff person to work with the planning
commissions for the city of Chattanooga and Hamilton County
to develop an erosion control ordinance which is informally
applied by the planning commissions through their review
authority.
A water quality management staff member on assignment to
the 208 program from the Soil Conservation Service worked
with the Chattanooga and Hamilton County Planning
Commissions to develop an erosion control ordinance.
Together they looked at the suitability of soils in the
area for various uses and developed measures to control
construction runoff and roadbank erosion on the basis of
their study. Both planning commissions have review
authority over proposed projects. The planning staffs
identified those erosion control measures in the draft
ordinance which they can apply in reviewing project
proposals with only an administrative change in procedures.
These criteria are now included in the review process.
When they can demonstrate the effectiveness of these
measures the commissions will,seek full implementation by
presenting the ordinance for adoption by the city and county.
Significance
This activity is significant because the city and county
planning commissions have made a commitment to implementing
erosion controls designed specifically for water quality
improvement. The planning staffs hope to demonstrate, as
far as possible, the effectiveness of these controls in
order to build support for adoption of the ordinance to
fully implement the recommendations.
Knoxville-Knox County Metro Planning Commission
(Knoxville, Tennessee)
Accomplishment: The water quality management agency
reassessed plans for upgrading treatment facilities and
effected cost savings by determining that tertiary
treatment would produce negligible improvement in water
quality, due to nonpoint source contributions and low
dissolved oxygen problems caused by upstream dams.
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TENNESSEE
Background
Region IV
Several years before the start of the 208 program, the
city of Knoxville received a court order to expand and
upgrade existing treatment facilities or to develop
alternative facilities. A recommendation for a regional
facility received strong opposition. A plan was finally
developed for expansion of two treatment facilities and
upgrading them to tertiary treatment.
Cost Saving Solution
Water quality analysis for the 208 program indicated that
municipal point sources are the most serious pollution
sources in the Knoxville area. Further modeling under
the water quality management program showed that incremental
improvement in water quality from secondary to tertiary
treatment was negligible, due to nonpoint source contribution
and low dissolved oxygen problems caused by upstream dams.
The solution developed on the basis of these findings was to
expand and upgrade two facilities to better than secondary
treatment for some constituents but to secondary treatment
as adequate for others. The Tennessee Water Quality Control
Division and EPA reduced effluent limitation requirements
accordingly. Construction will be underway by June, 1978.
Significance
The revised plans for upgrading of facilities in Knoxville
will result in almost the same degree of improvement in water
quality and a cost savings of $2 million to $3 million. The
findings of the modeling effort also identified the
relative importance of nonpoint source contributions, and
raised the issue of the most effective commitment of resources
for water quality improvement.
First Tennessee-Virginia Development District
(Johnson City, Tennessee)
Accomplishment: Through water quality management assistance
and coordination, a regional treatment facility will be
constructed resulting in considerable cost savings. The
water quality management agency is assisting two cities and a
county to create a regional management authority for the facility.
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TENNESSEE
Background
Region IV
Bristol, Virginia, Bristol, Tennessee, and the outlying
areas of Washington County, Virginia were covered by
two separate poorly coordinated 201 plans which proposed
three new treatment facilities for the area. The mayors
of the two towns are'on the 208 Policy Advisory Committee
for the First Tennessee-Virginia Development District.
The 208 staff reviewed the 201 plans and found that one
regional facility would be more cost effective.
Political Agreement
The mayors and members of the Boards of Commissioners for
the two cities and a representative from the county
are meeting regularly with the 208 staff. Agreement has
already been reached on upgrading an existing facility to
serve as the regional facility and the project is under way.
This single facility will result in a cost savings of
approximately $42 million, including $30 million for
construction of one of the additional plants and $12 million
from upgrading the existing plant rather than constructing
a new facility.
Management Structure
The 208 staff is continuing to meet with the city and
county representatives to work out the details of creating
a regional management authority. All three entities have
agreed to the concept of a single management authority.
A lawyer has been retained through the water quality
management program to prepare the necessary resolutions
to create the authority, so that the resolutions will be
consistent and will come before all three entities for
action at the same time. The cities and county are expected
to act by the fall of 1977.
Significance
This accomplishment is particularly significant, in that
the water quality management agency was able to effect a
cost saving of approximately $42 million by revising the
201 plans.
Through the impressive cost savings that the water quality
management agency was able to secure, it demonstrated its
commitment to finding cost effective and locally acceptable
solutions to water quality problems. This commitment has
helped the agency to overcome some initial opposition and to
obtain preliminary agreement for a regional management
authority for the facility.
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TENNESSEE
Region IV
First Tennessee-Virginia Development District
(Johnson City, Tennessee)
Performance Indicator: A stream assimilation study
carried out by the water quality management agency will
lead to a stream reel ass if i cation,, allowing for less
stringent treatment requirements while protecting high
quality waters.
Reclassification
All secondary tributaries in Tennessee are classified as
water quality limited on the basis of literature values,
since the state did not have sufficient resources to
complete in-stream sampling. The 208 agency completed
a stream assimilation study on Brush Creek, one of three
streams in the 208 area classified as water quality
limited. The study indicated that, in fact, the water is
of high quality due to the reaeration capacity of the
stream. On the basis of these findings, the state is in
the process of assigning new waste load allocations to
municipalities and industries on the stream.
Significance
The revised wasteload allocations will result in
substantially reduced treatment costs for the 20-30
industries and three municipalities located on the stream,
while protecting existing water quality. In addition, it
will allow room for industrial expansion along the
stream.
The state and the water quality management agency were
equally surprised by the results of the study. On the
basis of this study, the water quality management agency
is pursuing funding for similar studies on the other two
water quality limited streams in the area. The state
is using this as an example of the importance of additional
state funding for in-stream sampling on secondary
tributaries throughout the state.
First Tennessee-Virginia Development District (Johnson City, Tenn.)
Performance Indicator: The Industrial Subcommittee of the
208 agency's Technical Advisory Committee, through
investigation of industrial and municipal treatment
compatibility, found that an industry could tie into a
municipal system and realize cost savings for both the
industry and municipality.
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TENNESSEE
Region IV
Background
The First Tennessee-Virginia area has a large number
of industries, mainly chemical, light manufacturing
and instrument manufacturing, flost of the large
industries provide treatment and discharge directly
into streams. The Industrial Subcommittee of the
Technical Advisory Committee, made up of representatives
of some of the major industries in the area, is looking
at industrial treatment problems and studying the
feasibility of combining wastes either with municipal or
other industrial wastes for treatment.
Technical Solution and Political Cooperation
One industry, Beaunit, treats waste in-house using an
expensive physical-chemical process and does not meet
discharge requirements. In order to meet NPDES require-
ments Beaunit would have to install ammonia stripping
columns.
Beaunit f.ound it could treat its ammonia wastes in a
nearly domestic system. The municipal treatment facility
in Elizabethton,»where the industry is located, now
provides secondary treatment and is scheduled for
expansion.
With the assistance of the Technical Advisory Committee,
the municipality and Beaunit reached an agreement to
treat wastes from the plant in the municipal facility.
This involves a small additional expansion in the proposed
size of the treatment facility, which the industry will
pay for through user charges and industrial cost recovery.
Significance
This agreement is significant for two reasons. Expansion
of the municipal treatment facility to handle wastes from
Beaunit will result in cost savings for both the
municipality and the industry. It will also result in
water quality improvement since Beaunit's wastes will be
treated to meet discharge requirements.
Secondlfy, the agreement was reached with the assistance of
the Tecfinical Advisory Committee, and especially its
industrial representatives. Some major industries in
the area are very active in using the 208 program as a
vehicle to coordinate their efforts at compliance with
NPDES requirements. The Technical Advisory Committee's
success in this case will raise their credibility both
with industries and municipalities as they attempt to find
solutions for other industrial treatment problems.
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REGION V
WISCONSIN
Dane County Regional Planning Commission (Madison, Wisconsin)
Accomplishment: The Dane County, Wisconsin Water Quality
Management agency, working with the Soil and Water Conservation
District, generated the implementation of improved agricultural
nonpoint source control measures.
Background .
At the outset of its 208 program, the Dane County Regional
Planning Commission recognized that agriculture was a major
source of pollution in the area. Farmers were therefore
identified as a key public that the water quality management
program had to reach. In the past, many farmers had been
opposed to land use planning and regulation, and the water
quality management agency consequently emphasized land
management techniques that would be of practical benefit to
them.
To develop an effective agricultural nonpoint source control
program, the 208 agency worked with the local Soil and Water
Conservation District. An early backer of the 208 program, the SCO
provided technical assistance and public participation that was
instrumental in achieving the implementation of improved .best
management practices (BMPs).
Implementation of Best Management Practices
The water quality management program succeeded in broadening
the scope of best management practices that Dane
County farmers apply. In 1976 Dane County initiated an
agricultural cost-sharing program, based on. a study that
preceded the 208 program. Dane County and the Agricultural
Stabilization and Conservation Service (ASCS) each contributed
$50,000 for the program, which provided funds to local farmers
on a 50-50 cost-sharing basis. These county and federal monies
are complementary; county funds are used for projects that are
not eligible for ASCS funds. ;
In the first year of the cost-sharing program, minimum tillage
and stream bank fencing were emphasized; the 208 program
expanded these practices in the second year. Farmers were
encouraged to vary their tilling on demonstration plots to.
assess the differences among no, minimal, and conventional
tillage. They were also advised to install measures that
complement stream bank fencing, such as off-stream watering
points and cattle crossings.
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WISCONSIN
Technical Assistance
Region V
Before the Dane County Regional Planning Commission (RPC)
was designated as a 208 agency, the RPC negotiated an
agreement with the Soil and Water Conservation District for
performing the agricultural portion of the 208 work plan.
The water quality management agency hired two staff members
to carry out water quality monitoring and assess agricultural
nonpoint source pollution. These staff members were assigned
and accountable to the SWCD, even though the RPC paid their
salaries.
Their analysis revealed that nutrients and sediment from
agriculture were a major cause of pollution in Lake Mendota.
Specifically, weed and algal growth from accelerating
eutrophication caused fluctuating dissolved oxygen levels.
Public Participation
Monitoring sponsored by the 208 program enabled the Soil and
Water Conservation District to convince the farming community
that agriculture was a significant water quality problem.
The water quality management agency depended on the SWCD to
carry this message to its constituents - the local farmers.
Public participation activities in Dane County operated at
the countywide and community (roughly watershed boundaries)
levels; the SWCD chaired.the community meetings in the rural
portions of the study area.
At the early community meetings in 1976, farmers-were
critical of the RPC, because they perceived its land use
planning functions as restricting them. The Soil and Water
Conservation District improved attendance and attitudes of
farmers at recent community meetings by identifying benefits
that they could reap from the water quality management program.
The farming community response to Dane County's cost-sharing
program for agriculture demonstrates the SWCD's positive
influence.
Significance
208 is a political and technical program, and successful
implementation requires addressing both of these facets. The
Dane County 208 agency recognized that involving the SWCD,
which wanted to participate and had the confidence of farmers,
would promote adoption of its technical proposals for agriculture.
Support of the cost-sharing program in the farming community
reflects the commitment to water quality management that the
Dane County 208 has generated. The enthusiasm for this
agricultural nonpoint source control program also attests to
the cooperative attitude that 208 has achieved with the
assistance of the Soil and Water Conservation District.
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WISCONSIN
Region V
Southeastern Wisconsin Regional
(Waukesha-Milwaukee, Wisconsin)
Planning Commission
Accomplishment: The Southeastern Wisconsin Regional
Planning Commission provided assistance in developing a
regional wastewater treatment facility for two towns.
Background
Two communities located on a lake within the 208 planning
area were contributing to eutrophication of the lake.
Heartland, located at the upper end, has a sewage treatment
plant.which discharges into the lake. Discharges from
the plant were affecting surrounding wetlands as well as
the lake.
Del afield, located at the southern end of the lake, is a
city of approximately 2,000 people with no central sewerage
system. All treatment in the town is by individual septic
systems. Combined wastes from these two towns were
seriously affecting the lake. Eutrophication was
accelerating and the lake's many bays and inlets were
filled in with algae and almost useless. There was also a
noticeable impact on fish.
Choosing a Regional Alternative .
Residents of Heartland considered upgrading their facility,
but only to provide service for Heartland. Del afield would
have had to take care of itself. The 208 agency proposed
that a regional treatment facility discharging below the
lake be constructed at Del afield to serve both towns, and
that the Heartland plant be abandoned. There was some
opposition to this proposal, and the citizens of Heartland
had to be convinced that there was sufficient benefit for
them to justify the increased cost of abandoning their
plant for a new facility.
First, the Southeastern Wisconsin Regional Planning Commission
documented the water quality problem at Del afield and
identified relative.contributions from each town to degradation
of the lake. The water quality management agency then costed
alternatives and was able to show that a regional facility
for the two towns was most cost effective and would result in
the greatest improvement in lake quality. A sewer district
with representatives of the two towns and the county was
formed to be the management agency. A 201 Step 1 plan has
been completed for the facility and Step 2 is under way.
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WISCONSIN
Significance
Region V
Through data collection and analysis to identify the relative
contributions from Heartland and Del afield, the water quality
management agency was able to clearly define the problem for
local residents. The water quality management agency was then
able to justify a regional treatment facility through analysis
of the cost and treatment effectivteness of the alternatives
being considered by the two communities. The water quality
management agency provided the necessary technical background
information for the communities to decide on the treatment
facility which will result in the most effective clean-up of
the lake.
Wisconsin Department of Natural Resources (Madison, Wisconsin)
Performance Indicator: The Wisconsin Department of Natural
Resources Board adopted.,as part of its Administrative Code,
a sewer extension policy which was developed through the
208 program.
Background
The Wisconsin Department of Natural Resources (DNR) is
responsible for approving all sewer extensions in the state
and was facad with lawsuits for allowing extensions to
treatment plants which do not meet existing'standards.
Policy Adoption
As one of the first tasks in the water quality management
program, the planning staff developed a sewer extension
policy which was included in revision of the DNR's
administrative code. The policy which is now in effect
for the state prohibits any sewer extension or new hookups
in a community where the sewage treatment plant does not
meet standards for secondary treatment or for more advanced
treatment where stream standards require it.
This section of the code went to public hearing and was the
subject of extensive media coverage and public discussion.
The DNR proposals were adopted without major revisions in
the fall of 1976. '"
Potentially, over half the towns in the state could :be
affected by this policy as they come in with proposals for
sewer extensions. An exception can be granted if several
criteria are met. The most notable is if a community
submits an acceptable schedule for meeting the 1983 goals
of the Federal Water Pollution Control Act without the use
of state or federal funds. Some towns have received exceptions
under this provision.
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WISCONSIN
Significance
Region V
This restrictive sewer extension policy is a strong
incentive for communities to act to meet 1983 water quality
goals, if'they wish to respond to pressures for growth.
Another result of this program has been a noticeable increase
in the number of permit' applications for installation of
septic systems. The 208 staff anticipated this problem and
began to develop a program for septic system management, which
is now, in part, before the state legislature (see below).
Wisconsin Department of Natural Resources (Madison, Wisconsin)
Performance Indicator: The Wisconsin Department of 'Natural
Resources Board approved a comprehensive septic system
management program.,developed through the 208 program, and
implementation is being sought through one of two alternatives,
Background
Septic system management has developed into a statewide issue
in Wisconsin; and, especially with implementation of a ,
restrictive sewer extension policy in the fall of 1976, the
need to have adequate control over new septic installations
became more pressing. The water quality management staff
rearranged -their work schedule to begin work on a septic
system management program in the'fall, 1976. The 208 staff
prepared a "Report on Private On-Site Collection Systems'"
which included an inventory of problems, analysis'of alternatives,
and recommendations for a comprehensive septic system management
program.
Permit Authority and Funding
Currently the Department of Health and Social Services (DHSS)
has responsibility for administering septic system management
and much authority has been delegated to the counties. The
permit fee is $1.00 and there is no funding available for
management. There are also no standard criteria for making
decisions on siting, design, etc.
The proposed system would raise the permit fee to '$100.00,
eighty percent of which would be retained by the county to
fund the program. Each county would also be required to
adopt a uniform code for siting, construction, inspection,
and operation and maintenance.
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WISCONSIN
Management Authority
Region V
The recommendations initially included a transfer of
management authority from the DHSS to the DNR. The State
legislature did not approve this transfer of management
authority.
However, the DHSS participated in developing the recommen-
dations for the septic system program and is in agreement
with all but the transfer of management authority. Before
the legislature had acted on the management proposal, the
"DNR Board and the Secretary of DNSS agreed that if the
legislature defeated the proposal, the two agencies would
appoint an interagency committee to implement the remaining
recommendations. This effort is under way.
Significance
The Water quality management staff has prepared a compre-
.hehsive septic system management program. The proposed
program includes: requirements for operation and maintenance
of exis-ting systems, criteria for siting new septic systems,
alternative management authorities and an adequate funding
program.
The water quality management staff in DNR worked with the
existing management agency, DHSS, to prepare recommendations,
so .there is a commitment to implementation of the management
program. The two agencies also agreed on alternative
approaches to achieving .implementation of the recommendations,
depending on the outcome of legislative action on the
management agency. '. ' .
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REGION VI
OKLAHOMA
Association of Central Oklahoma Governments (Oklahoma City, Okla.)
Performance Indicator: A landowners' association requested
and independently used 208 interim outputs to influence an
Army Corps of Engineers' decision on the size of a proposed
lake.
Members of the Witcher Landowners' Association own land on
or bordering the site of a lake proposed by the Army Corps
of Engineers. The association's main concern was that
following the proposed elevation of the lake, enough land
would be withdrawn from the tax base to endanger the local
independent school district.- A second concern was that urban
and rural runoff would make the lake water of poor quality
for water supply, which is one of the proposed uses.
Through information disseminated by the water quality
management agency, the Landowners' Association became aware
of the areawide 208 program. The association requested
copies of 208 interim outputs on water quality standards
and criteria, water quality management evaluation, and point
source pollution inventory. The members of the association
carefully analyzed this data on their own and-obtained
technical assistance that confirmed their water quality
concerns for the proposed lake.
The Landowners' Association presented its analysis to the
Corps of Engineers. At a subsequent meeting, the Corps
announced the decision to lower the elevation of the lake.
The Corps did not indicate the basis for the decision, but
its reassessment of the original proposal indicates that
the Landowners' Association established credibility by
using technical data to support its concerns.
Significance
The fact that the Witcher Landowners' Association turned to
the water quality management program for support indicates
that the Association of Central Oklahoma Governments was
able to identify the 208 program as a local problem solving
program. The association's success lends legitimacy to the
data generated through 208. Through such positive contacts
with local citizen groups, the water quality management agency
is building a constituency to support the water quality
management plan as it is developed.
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OKLAHOMA Region VI
Association of Central Oklahoma Governments (Oklahoma City, Okla.)
Performance Indicator: The water quality management agency
set up a 208 "Hotline" for citizens to call in their water
related problems.
One of the public participation goals of the Central Oklahoma
208 program is to establish credibility with the public and
to demonstrate how the water quality management program relates
to local concerns. The agency installed a 208 "Hotline" which
operates 24 hours a day to take citizen calls reporting water
related problems and requesting information or expressing
opinions on the water quality management program. The service
has been publicized through educational television authority
and local television public service announcements. Periodically,
a localized press release goes out for coverage in weekly news-
papers.
Since Oklahoma's water resources are limited and there are few
large bodies of water, problems that have been reported so far
have been small and very localized, such as standing waters
that pose a potential health threat. When a call comes in, the
208 staff reports the information to the appropriate State or
local -agency. In one case, the staff mediated with a state
agency to solve the problem. The staff then follows up with
the caller to verify that the problem has been resolved.
Significance
Through the Hotline, the 208 staff is able to respond directly
to residents' concerns and to present the water quality
management program as an effective problem solving mechanism.
Now that the Hotline is in place, it can be maintained indefinitely
as a public service, since the ongoing resource commitment is
smal1.
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TEXAS Region VI
North Central Texas Council of Governments (Arlington, Texas)
Accomplishment: The water quality management program for
the Dallas-Fort Worth area is implementing a regional wastewater
treatment management system and is also investigating its
implications for nonpoint source control and regional planning
and development.
Implementation of a Wastewater Treatment Management System
The North Central Texas Council of Governments (NCTCOG) has
formulated a water quality management program that is
noteworthy in three respects.
First, the water quality management agency is implementing a
regional wastewater treatment system, based on previous basin
planning in the region. NCTCOG has updated the Upper Trinity
River Basin Comprehensive Sewerage Plan, which it prepared
in 1970. This areawide agency is also generating support for
the regional sewerage plan among State and local officials and
the general public.
Assisted by the 208 program, implementation of most original
recommendations proposed in the areawide sewerage plan is
proceeding on schedule. When construction and other improvements
are completed, nineteen regional facilities will serve the
region, seven of which address urbanized needs.
There, are currently four major public entities that contract
with a number of municipalities to operate, maintain, and
expand their sewage treatment plants. The management framework
for each regional operation is a System Customer Council,
composed of representatives from customer cities. These Customer
Councils advise the operator on all phases of the system,
including capital needs, treatment standards, and rates.
This management structure, in turn, is integrated into the water
quality management program by means of a Water Quality Council.
NCTCOG established the Council, whose membership is drawn from
the major system operators and their Customer Councils. The
Water Quality Council performs planning and advisory functions
relating to regional sewerage plan up-dates, proposed Federal
and State legislation, comprehensive water quality planning and
permits issued by the Texas Water Quality Board (TWQB).
As the agency in charge of both the basin planning and 208 programs,
NCTCOG took the opportunity of using the regional sewerage planning
to accelerate the water quality management process. The areawide
agency anticipates preparing two plans in the initial grant period,
instead of the single plan required by the Act, and has completed
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TEXAS Region VI
the 1977 annual plan. As State and EPA staff are members
of NCTCOG advisory committees, they review and comment on
plan drafts. This arrangement should expedite the formal
review and approval process of each annual plan. Thus 3c
and 208 have been mutually beneficial in the Dallas-Fort Worth
region.
Analysis of Nonpoint Source Pollution
Second, NCTCOG has increased public awareness of nonpoint
source pollution. Dramatic evidence of the severity of
pollution from nonpoint source runoff appeared in 1971. A
major storm event brought oxygen levels close to zero andw
approximately 200 tons of fish were killed.
The water quality management program is performing a thorough
assessment of nonpoint source pollution. A preliminary
assessment has been completed, which indicates that urban
runoff from stormwater and construction activities may be
major NPS problems. Regulatory programs will rely on the
results of this assessment. Anticipating the need for nonpoint
source controls, the water quality management agency recently
sponsored a meeting with home builders to discuss on-site
detention facilities as alternatives to storm sewers.
Essentially NCTCOG and its member jurisdictions have acquired
a clear conception of the nature of regional water quality
problems and alternative solutions. They recognize that there
is a trade-off between levels of sewage treatment and abatement
of nonpoint'source pollution.
The TWQB proposed stringent standards of 5 parts per million (ppm)
BOD and 5 ppm suspended solids for municipal treatment
capabilities in the NCTCOG region, as compared to 10 ppm BOD
and 10 ppm suspended solids set in the regional sewerage plan.
A hearing was held on this proposal in May. A coordinating
committee with representatives of NCTCOG and member governments,
including the "cities of Dallas, Fort Worth, Garland and Mesquite;
North Texas Municipal Water District; and Trinity River Authority,
met weekly for three months to prepare testimony for the hearing.
Based on their testimony, the TWQB decided not to require
treatment levels more stringent than 10/10. This decision will
result in a savings of at least $100 million for construction
of municipal treatment facilities. This gives local governments
greater flexibility to balance regional point source and nonpoint
source control efforts. NCTCOG's emphasis is on finding the most
cost-effective pollution abatement techniques and,there is
considerable sentiment that these will prove to be nonpoint source
controls. The member governments will rely on information furnished
by the water quality management program to make an economically
and environmentally sound public investment choice.
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TEXAS
Region VI
Regional Planning and Development Decision-making
Third, the water quality management process is incorporating
water quality into comprehensive planning and development decision-
making for the* region. MCTCOG is consolidating input from several
water quality management technical committees into a Preferred
Regional Development Program (PROP). This program integrates five
functional areas: transportation, sewerage, water supply, housing
and land use.
The water quality management program encompasses the sewerage and
water supply elements. PROP is designed to measure the impact
of alternative development patterns, using an urban growth
simulation model keyed to the Dallas-Fort Worth area.
Based on this planning program, which is scheduled for refinement
over a five-year period, a preferred regional development policy
will be adopted in 1980. The selected regional development policy
will provide a comprehensive framework for specific planning and
development activities. Given the local commitment to regional
wastewater treatment and concern over nonpoint source pollution,
the water quality management program will have a major impact on
decisions relating to the type, amount, and location of future
growth.
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REGION VIII
COLORADO
Larimer-Weld Regional Council of Governments (Love!and, Colorado)
Performance Indicator: The Larimer-Weld Regional Council
of Governments developed a "Utility Management Handbook",
which enables small communities to evaluate the financial
feasibility of proposed wastewater treatment alternatives.
Background
As part of its water quality management program, the
Larimer-Weld Regional Council of Governments reviewed
facility planning that consultants had performed for local
communities. In several cases, the water quality management
staff questioned the population projections and recommended
wastewater treatment systems. On the one hand, they did not
think that demographic trends justified the growth rates
that were estimated. On the other hand, they found that
user chargers were not spelled out, and that consequently
the communities could select an alternative that might prove
to be beyond the means of users. The water quality management
agency produced the "Utility Management Handbook" to help local
officials evaluate proposed facility plans in light of their
own growth rates and financial situations.
Analysis of Financial Feasibility
While the "Utility Management Handbook" provides guidance on
planning and delivery of wastewater service for small communi-
ties, the crux of the analysis involves financial policies.
The bottom line for any facility plan is the charge that
individuals pay for wastewater service, and this handbook enables
local officials to estimate whether residents will be able to
afford a recommended system.
The handbook contains a table which projects annual costs per
household, based on the amount borrowed to finance wastewater
system improvements, population size, debt service, and operating
and maintenance expenses. This table shows how user charges
vary, depending on growth rates and levels of investment in
sewage treatment facilities. As the number of new taps increases,
the cost per user drops, since the same expenses are shared by
more users. Conversely, if population does not grow as antici-
pated, the fixed costs are borne by fewer users and may reach a
prohibitive level.
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COLORADO
Region VIII
Adapting this table to specific facility plans, local
officials can project the range of user charges and
assess the financial feasibility of proposed improvements.
This handbook was well-received in the Larimer-Weld area,
where communities have used it to estimate the risk of,
opting for a particular wastewater treatment alternative.
Significance
This "Utility Management Handbook" provides practical
guidance to small communities that are expanding their
wastewater treatment service. By breaking down the ...
costs of new facilities to show the charges that individual
users would pay, it allows local officials to gauge the
financial feasibility of a given alternative. The handbook
thus promotes economically sound wastewater treatment
management.
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MONTANA Region VIII
Lewis and Clark County Conservation District (Helena, Montana)
Accomplishment: Approval of a sediment control ordinance
by local referendum, as a result of technical assistance and
public participation provided under a water quality management
program demonstration project.
Background
In response to the 1972 Federal Water Pollution Control Act
Amendments, the Montana legislature requested the State Department
of Natural Resources to head up a study of sediment control
problems -and legislative issues. The study yielded three major
findings: 1) erosion is a serious water pollution problem in
Montana; 2) existing enabling legislation provides sufficient
authority to address erosion; and 3) any sediment control program
should'be locally administered and enforced.
The Montana Conservation District law permits local conservation
districts to develop soil conservation ordinances, which must
be adopted by local referendum. The ordinances are administered
locally and enforced through Conservation District Courts. This
enabling legislation had never been carried out, when EPA funded
a demonstration project, which included a pilot program to promote
the enactment of a sediment control ordinance in Lewis and Clark
County.
Lewis and Clark County was selected for this pilot program because
it was willing to participate and its land use patterns and
erosion problems typify Montana conditions. Most-of the land in
the county is divided between Federal agency (48%) and private
(47%) ownership. Agriculture is the primary industry, and most
operators raise livestock. Accordingly, the largest land use in
the county is range!and, which accounts for 65% of the acreage,
followed by forest, with 25% of the total.
The major sources of erosion and sedimentation are: 1) sub-
division development in the urbanized area (the county does not
include the incorporated cities of Helena and East Helena); 2)
irrigated agriculture, and 3) overgrazed rangeland.
WQM-sponsored Technical Assistance and Public Involvement
The 208-funded demonstration project paid for three staff
members: 1) a program manager hired by the Lewis and Clark
County .Conservation District; 2) a water quality specialist
hired by the State Department of Health and Environmental
Sciences; and 3) a sedimentologist hired by the State Department
of Natural Resources and Conservations.
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MONTANA
Region VIII
Financing of Best Management Practices
Since financing of best management practices depends on
local acceptance of the sediment control ordinance, it
would have been premature for the pilot program to specify
funding sources before the referendum had passed. The
Lewis and Clark County study nonetheless identified
potential funding sources at all levels of government.
Agricultural Stabilization and Conservation Service (ASCS)
cost-sharing and Small Business Administration low-interest
loans were identified at the Federal level. Two possible
State sources were proposed: 1) an appropriation from the
State legislature for operating costs and 2) grants or
low-interest loans from the Montana coal severance tax,
contained in the State's 1975 Renewable Resources Act.
Finally, the Lewis and Clark County Conservation District
is authorized to levy a property tax of 1 1/2 mills, part
of which might be applied to support the operating
expenses.
It is important to note that most of these funding sources
cover only part of the cost of best management practices.
Implicit in this survey, therefore, is the assumption that
local ranchers, farmers, and developers will help pay for
improved sediment and erosion controls. This willingness
to cooperate in solving a serious nonpoint source of
pollution led to the passage of the Lewis and Clark County
sediment control ordinance.
Significance
This accomplishment demonstrates the crucial role of the
water quality management program in heightening public
awareness of nonpoint source pollution and gaining support
for best management practices to improve water quality.
Lewis and Clark County possessed the enabling legislation
required to establish a regulatory program for sediment
and erosion control; it lacked widespread local commitment
to solve this nonpoint source problem.
Technical assistance and public participation funded by
the 208 program were the missing links. The water quality
management program enabled concerned State and local
officials to inform and work with citizens and build
consensus for implementing best management practices
designed for local conditions.
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MONTANA
.Region VIII
Two policy advisory committees (PAC), State and local,
were established to assist the Conservation District in
developing land management practices and the sediment
control ordinance. Both the 25-member State PAC and the
60-member local PAC addressed the following subjects:
irrigated cropland, dry cropland; range!and, forest land,
construction and subdivisions, information/education, and
financing/cost effectiveness.
The public involvement process emphasized the following
advantages of sediment control: a) good conservation
practices pay, b) stewardship of the soil resource is :
necessary for future generations, c) prevention of soil
erosion is less costly than remedial measures, d) local
control and administration of erosion and sediment control
regulations is efficient, and e) accelerated soil erosion
and resulting sediment may violate State water quality
standards and laws.
Implementation of the Lewis and Clark Sediment Control Ordinance
On June 20, 1977, voters of Lewis and Clark County approved
the enactment of a sediment control ordinance. This ordinance
incorporates land management standards (best management
practices) developed by: the Soil Conservation Service for
agriculture; the Montana State Forestry Committee for
silviculture, and the Lewis and Clark County Conservation
District for subdivision construction. These best management
practices (BMPs) are-based on site-specific soil, climate,
and use characteristics.
Implementation of a Conservation District-approved erosion
and sediment control plan is the primary means of complying
with these standards/practices. Erosion and sediment
control plans are optional for agricultural activities, as
long as standards are met or exceeded and no erosion problems
occur; they are mandatory for most construction/subdivision
activities. In addition, operators must either prepare an
erosion and sediment control plan or give the Conservation
District notice before starting forestry activities.
Any land occupier. District Supervisor or State or county
water quality official may file a complaint alleging that
accelerated erosion or sediment damage has taken place.
If a violation of the ordinance is verified by the Conserva-
tion District, the land occupier is given an opportunity
for voluntary compliance. If the violation is not corrected,
the District Supervisors are authorized to issue stop work
orders and/or impose fines of up to $500 per day.
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SOUTH DAKOTA
Region VIII
Sixth District Council of Local Governments (Rapid City, S.D.)
Accomplishment: The U.S. Forest Service in the Black Hills
National Forest, in cooperation with the local water quality
management agency, has expanded its best management practices
to incorporate water quality considerations.
Background
The U.S. Forest Service (USFS) has jurisdiction over the
Black Hills National Forest and has been administering best
management practices in the forest for 75 years. Over the
years,Jogging activities have expanded and have become a
significant source of sediment in local streams and rivers.
Working with the Sixth District water quality management agency,
the Forest Service has prepared a comprehensive timber manage-
ment plan and an expanded set of best management practices (BMPs)
to control the environmental impact of logging practices.
Development of BMPs
Under contract with the water quality management agency, the
USFS prepared a complete hydrologic study of the area and used
the results to classify all streams in the national forest as
high or low sensitivity. High sensivity are those streams used
for drinking water and/or trout streams. Logging aro.und these
streams is more stringently regulated than around low sensitivity
streams, so classified because they have no State designated
beneficial uses and do not drain directly into any streams that
do. Where waterside landscapes are delicate and aesthetically
valuable, additional restraints are placed on logging operations.
BMPs are applied within a framework of these two water classifi-
cations and two land capability classifications.
The BMPs focus on logging activities and attendant road building,
tree thinning, and brush disposal. There has been a proliferation
of roads to accommodate logging activities in the area, and
restrictions on road construction are being implemented. There are
also large stands of ponderosa pine, which must be clean cut in
order to start new growth. A careful program of post-harvest
clearing, reseeding, and road elimination is being implemented to
foster new growth of ponderosa pines. Most controls are non-
structural land management practices.
The USFS has regulatory authority over all lands within the Black
Hills National Forest and is committed to implementing the BMPs
which have been developed in cooperation with the water quality
management agency. The Forest Service is absorbing all costs
connected with implementing the expanded BMPs on Federal lands.,
The Forest Service has also made a preliminary commitment to
continue v/ater quality modeling to assess the effectiveness of
the BMPs.
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SOUTH DAKOTA
Significance
Region VIII
The U.S. Forest Service, working with the 208 agency identified
the sediment/erosion problem in the Black Hills National Forest
and identified solutions which the Forest Service is now
implementing. The USFS has committed its own funds to implement
the expanded BMPs and has made a preliminary commitment to
continue water quality monitoring to document the effectiveness
of these management practices.
Since the USFS has authority over vast tracts of forested land,
the commitment to water quality improvement in the Black Hills
is particularly important. In the Black Hills area, large
amounts of forested land are now subject to BMPs developed
specifically to improve water quality. Success here will help
to justify extension of improved BMPs to state and privately
owned land. It may also have an impact on other lands
administered by the USFS.
Development and implementation of these BMPs could only be
achieved through close cooperation between the water quality
management Agency and the USFS, cooperation that will continue
now that the two agencies share a common goal.
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UTAH
Region VIII
Five County Association of Governments (St. George, Utah)
Performance Indicator: Based on water quality analysis
by the Five County Association of Governments, Hurricane
City halted the drilling of a $240,000 well, which would
have yielded contaminated water.
Water Quality Analysis
The Five County Association of Governments performed dye
tests on the Hurricane City Lagoon, which was leaking, to
identify surface and groundwater impacts. This sampling
revealed contamination of both these water resources.
Water quality analysis further indicated that a new
municipal well, which Hurricane City had planned to drill
at a cost of $240,000 would be contaminated over time by
lagoon wastes. By investigating the hydrology of the
area, the water quality management agency demonstrated that
the proposed well site would not protect this water supply
from municipal point source pollution.
Technical Alternatives
Based on this 208 analysis, Hurricane City halted the planned
drilling of the well and thus saved $240,000. The city had
thought that its existing spring was the only available
source of water but subsequently discovered additional water
rights. Therefore a new well was no longer needed.
To abate pollution from the Hurricane City Lagoon, the water
quality management agency proposed total containment of the
lagoon on a new site and construction of a regional waste-
water treatment plant. Three communities that would be
served by the regional facility have approved this alternative,
and facility planning is in progress.
Significance
The Five County Association of Governments prevented a potential
health hazard from occurring, and its ability to correct existing
municipal point source pollution will be determined in the near
future.
Mountainland Association of Governments (Provo, Utah)
Accomplishment: Water quality analysis and facility planning
by the Mountainland Association of Governments resulted in a
$5 million cost savings for three regional wastewater treatment
facilities.
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UTAH
Region VIII
Background
The State of Utah sets water effluent standards for
biological oxygen demand, total and suspended solids,
and fecal and total coliforms, which are far more
stringent than those of EPA. Utah state officials had
requested funding under Section 201 to install tertiary
treatment capacity in the Timpanogos, Heber Valley, and
Orem regional treatment plants. Each of these plants
is or will be equipped to provide secondary treatment
but is not operating up to current design specifications.
Since substandard water quality exists in all streams
receiving sewage treatment plant effluent, the State
felt that advanced wastewater treatment would be the only
way to adequately clean the water and protect public health.
Technical Contribution
208-sponsored studies, including waste!oad analyses
identified specific nonpoint sources of eutrophication
in the receiving waters, notably livestock grazing, animal
feedlots, and irrigation return flows. Based on these
findings, the Mountainland Association of Governments.
concluded that tertiary treatment would not substantially
improve water quality or was not needed to meet water
quality standards.
The water quality management agency recommended against
upgrading the three regional facilities to tertiary treat-
ment, which would have cost $5 million. As an alternative,
the agency proposed improvements in the existing plants so
that they would function at maximum efficiency and meet
secondary treatment requirements. The affected
communities adopted these recommendations and thus achieved
a substantial cost saving.
Political Contribution
The Mountainland Association of Governments was interested
in building support for its wastewater treatment recommen-
dations not only at the local level, but also at the State
level. Since the State Division of Health controls the
priority list for construction grants, the water quality
management agency had to convince this State agency to
accept its proposed solution, in order for the affected
communities to proceed. Backed by local residents and
officials, the 208 technical advisory committee presented
its findings to the State, which agreed to the proposal for
improving secondary treatment by the three plants at this time.
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UTAH
Region VIH
Significance
This accomplishment is significant in two respects. First,
the water quality management agency produced water quality
analysis that convinced local communities not to request $5
million to install tertiary treatment in three regional
facilities, because pollution from nonpoint sources would
preclude attaining water quality standards.
Second, the Mountain!and Association of Governments persuaded
State officials to accept the alternative of bringing these
plants only up to secondary treatment at this time. The
208 agency thus helped orient State officials toward EPA water
quality standards, an attitudinal shift that will expedite
smooth functioning of the Utah construction grants program.
Southeastern Association of Governments (Helper, Utah)
Accomplishment: The Southeastern Association of Governments
analyzed primary and secondary water quality impacts of
energy development in Emery County, Utah and proposed
technical and financial management measures that were
implemented by industries and local governments.
Background
Towns in Emery County, Utah are experiencing population
growth rates of two to five times their original levels,
as a result of energy development. The industries that
are conducting coal mining and power plant operations in
the area anticipated major secondary impacts and were
willing to alleviate the financial burden on the affected
communities. Southeastern Association of Governments
investigated the full range of water quality problems
stemming from energy development to ensure a comprehensive
approach to water pollution control.
In developing its water quality data base, the water quality
management agency focused on salinity, a problem that had
not been adequately researched in the past. The agency
convinced major industries that this water quality information
would be valuable to them, and they contributed $175,000
toward the salinity studies.
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UTAH
Region VIII
These salinity studies, were incorporated in the overall
water quality assessment. This water quality assessment
indicated that power plant operation and coal mining were
causing water pollution, both'directly, as a result of
their activities, and indirectly, in terms of wastewater
treatment demands by the population that supports the growing
industries.
Heavy Metal and Salt Contamination and Corrective Measures
The water quality management program analysis indicated that
major water quality impacts directly attributable to energy
development involved uranium wastes and salinity. The
Southeastern Association of Governments verified that a
uranium.processor was illegally discharging uranium wastes
into local streams. The agency met with the industry to
discuss the findings, and the industry accepted this evidence
and agreed to cease this illegal disposal. To prevent the
recurrence of this problem, new conditions were incorporated
into this industry's NPDES permit, at the suggestion of the
water quality management agency.
In this part of Utah, salinity is a naturally occurring
water quality problem, which coal mining exacerbates. The
mining activities require water, which becomes increasingly
saline as it seeps through the mines. If this process water
reaches groundwater, it can contaminate local water supplies,
which are-already inadequate to meet the growing industrial'
and residential demand. The water quality management agency
formulated two solutions to this problem.
First, the 208 agency recommended that NPDES permits for local
coal companies include provisions that support containment
and diversion of process water. If the process water is
contained and diverted out of the mine, so that it absorbs
only a minimal amount of salt, its salinity level may be low
enough to allow the water to be used for irrigation. Even
if it must be treated, less treatment will be required.
Second, the water quality management agency proposed that coal
companies ensure that mining activities do not threaten
underground water supplies. In one case, the Southeastern
Association of Governments mediated a dispute between a coal
company that wanted to expand mining near a municipal spring,
and the local community that thought its water supply would be
contaminated. This municipality was ready to take the company
to court to stop its planned expansion, when the 208 agency
convinced both parties to delay action, pending the outcome of
a water quality analysis. This water quality analysis, which
the coal company funded, will indicate whether the proposed
mining would endanger the local water supply.
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UTAH
Region VIII
Municipal Waste'water Treatment Needs and the Establishment
of the Service District
Sewage was a source of water pollution before the population
influx generated by energy development, due to improperly
functioning lagoons and septic tanks. Increased demand for
wastewater treatment service has aggravated this water quality
problem. The 208 agency proposed the formation of a service
district with taxing authority to finance the construction of
sewage treatment and other public facilities.
Utilizing existing State enabling legislation, Emery County
adopted this water quality management program recommendation
and created the Polka Dot Service District, which encompasses
the impact area. This service district is under the juris-
diction of the county government and levies taxes based on
real property. Its primary sources of revenue are the.coal
mining and power plant industries that are operating in the
county. Since these industries anticipated the secondary
impacts that the service district is designed to mitigate, they
cooperated in its establishment. The Polka Dot Service District
began levying taxes in July 1977.
Significance
This accomplishment is significant in three respects. First,
the Southeastern Association of Governments provided the
technical assistance and coordination required to analyze water
quality problems in Emery County.
Second, the 208 agency developed a financial management system,
based on county establishment of a service district, to
alleviate municipal point source pollution and other secondary
impacts of energy development. Improved wastewater treatment
is critical to eliminating water pollution from sewage, and the
Polka Dot Service District has begun to collect revenues for
the construction of necessary facilities.
Third, the water quality management agency facilitated
cooperation between local governments and industries to control
v/ater pollution and other adverse effects of coal mining and
pov/er plant operation. The political climate was essentially
favorable: Local governments welcomed energy development, as
long as the resulting wastewater treatment and other public
facility needs were met, and the industries accepted the costs
of mitigating these secondary impacts. Nonetheless, specific
disputes did arise, and the Southeastern Association of Govern-
ments took the initiative to mediate them. The water quality
management agency also generated financial support from major
industries for its 208 program, by demonstrating the usefulness of
water quality analysis for both the private and public sectors.
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UTAH Region VIII
Meber River Mater Quality Planning Council (Weber River, Utah)
Accomplishment: Implementation of a water quality
management stormwater regulatory program to control runoff
in Davis County, Utah as a result of technical and
institutional assistance.
Background
At the outset of its water quality management program,
the Weber River Water Quality Planning Council identified
stormwater runoff as a major nonpoint source of pollution
in the area. Urban development had started in the flatlands
of the region and then spread to higher elevations, creating
more pressure on the existing storm sewers. The water quality
management agency collected data on water quality and performed
wasteloads and segment classifications, which had not previously
been available.
The Stormwater Master Plan
The water quality management agency staff worked with the
planning staffs of local governments to prepare a stormwater
master plan for Davis County. Storm sewer flows were designed
based on 10-year storm and peak snow flow data. This stormwater
master plan covers both existing and projected development in
the county. Implementation of the stormwater master plan will
thus alleviate past problems, as well as prevent further problems.
Local Sharing of Responsibility for Construction of Stormwater
Facilities
The 208 staff involved city officials within Davis County in
stormwater management by establishing a priority list for
stormwater projects. By- ranking deficiencies in the existing
storm sewer system and identifying those portions that deserved
immediate attention, the water quality management agency was
able to enlist the support of the affected municipalities in
improving local facilities. All 16 cities in the Davis County
Council of Governments approved the stormwater management plan
which was developed under 208 and endorsed by the County
Commissioners.
Davis County agreed to assume responsibility for major
improvements to the storm sewer system; construction of trunk
lines (including the resizing of existing culverts) and
installation of major sediment basins. Local municipalities
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UTAH Region VIII
will build smaller facilities, primarily detention basins,
which include parks and baseball fields. These cities will
also maintain their facilities. Finally, developers are
required to conform to the stormwater master plan. They must
construct their developments such that the stormwater runoff
rate from the area is the same before and after the project is
completed.
Financing
In adopting their stormwater master plan, the Davis County
Commissioners agreed to finance major improvements. There
were two management alternatives available to the county:
1) a stormwater improvement district that was controlled by
the Davis County Commissioners, and 2) a department of the
Davis County Government. The local governments within Davis
County opted for the latter alternative, and the County
Commissioners established a stormwater management department
in May 1977. They set a 2 mill levy, which takes effect
August 1, 1977, that will raise $500,000 annually. Committed
to decreasing pollution from this nonpoint source, the County
Commissioners borrowed money against the mill levy, in
anticipation of future revenues, to start construction of
storm sewer facilities as soon as the department was
established.
Significance
This accomplishment is significant in that the water quality
management agency developed the strategy to implement a
regulatory program for stormwater management. First, the 208
staff, assisted by city and county planners, prepared a master
plan that pinpointed and ranked defects in the existing storm
sewer system and proposed remedial measures.
Second, the water quality management agency gained the backing
of the County Commissioners and local governments to carry out
the regulatory program. These public entities accepted
responsibility for: 1) installing and maintaining facilities,
and 2) requiring private developers to meet standards for
stormwater runoff, contained in the master plan, -in their
projects.
Third,, the County Commissioners and municipal officials selected
the management alternative that would expedite financing of
needed improvements. Their commitment to improving water quality
led them to establish the funding mechanism, that would allow
construction of stormwater controls to begin before the water
quality management planning program ended its initial phase in
the Weber River area.
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UTAH Region VIII
Weber River Water Quality planning Council (Weber River, Utah)
.Accomplishment: Implementation of pretreatment and stormwater
regulatory programs on Hill Air Force Base, as a result of water
quality management agency technical assistance and political
involvement. Pretreatment facilities alone will cost $6 million.
Background
For the past 20 years, Hill Air Force Base has been a heavy
industry in the Weber River area. Airplanes are reconditioned
on the base, and the electroplating that takes place generates
chromium, beryllium and other heavy metal wastes. The existing
* pretreatment facilities were inadequate and caused bypassing and
operating problems at the North Davis County municipal sewage
treatment plant. Also, discharges of industrial wastes to
storm sewers on the base were suspected.
In 1973 Hill Air Force Base commissioned a consultant study
of the industrial discharges, and a pretreatment program was
recommended. Before the water quality management program
began, there were two unresolved issues relating to industrial
waste disposal: 1) the appropriate degree of pretreatment to
require, and 2) whether to issue an NPDES permit for the storm
sewers on the base. These two issues depend on another
consideration: applicable water quality standards.
The State of Utah has set uniform water quality standards,
which require drinking water criteria for numerous pollutants,
even for rivers that flow to the Great Salt Lake, such as
Weber River. The Weber River Water Quality Planning Council
worked with EPA Region VIII, the State, and the U.S. Air Force
to settle these .issues and achieve the implementation of
pretreatment and stormwater regulatory programs on Hill Air
Force Base.
Pretreatment Programs for Industrial Wastes
The Weber River Water Quality Planning Council and EPA Region VIII
cooperated to win the support of the U.S. Air Force and the State
of Utah for pretreatment limitations that they deemed reasonable.
To meet the permit conditions set for industrial discharges, the
, Air Force has allocated $6 million for updating of its pretreat-
ment facilities. The original consultant for the Atr Force had
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UTAH
Region VIII
proposed a $2.5 million pretreatment program. Consequently,
the Air Force, which had obtained a Congressional appropria-
tion for the initial amount, had to request additional
funding to cover the cost of the facilities that were finally
selected. Design of the pretreatment program is nearly
completed, and construction will begin soon.
Regulatory Program for Stormwater Discharges
Water quality monitoring conducted under the 208 program
proved that industrial wastes were being discharged into storm
sewers on Hill Air Force Base. As a result of this water
quality assessment, all accessible drains to the storm sewers
were disconnected in the base buildings. However, the storm
sewer network could not be completely controlled, and therefore
the 208 agency convinced EPA Region VIII to issue the Air Force
an NPDES permit for stormwater discharges. To verify that
permit conditions are being met, the Davis County Health Depart-
ment will conduct monitoring at a point just outside the base.
State Hater Quality Standards Issues
In response to 208 planning by Weber River and other Utah areawide
agencies, the State is revising its water quality standards this
year to more closely reflect EPA criteria. The State has
established a water quality standards review committee, composed
of representatives of these areawide water quality management
agencies.
When water quality management planning began in the Weber River
area, the State Water Pollution Committee, due to its public
health orientation, did not consider stormwater a pollution
problem. Thanks to the efforts of the Weber River Water Quality
Planning Council and other Utah areawide agencies, this Committee
has reversed its policy. The Committee has recognized stormwater
as a pollution source and is awaiting the completion of the
Weber River 208 plan before setting State policy for stormwater
pollution control.
Significance
This accomplishment is significant in three respects. First,
the Weber River Water Quality Planning Council assessed the
full extent of the water quality problem that industrial wastes
from Hill Air Force Base posed. 208 monitoring identified
direct industrial discharges to storm sewers, thereby strengthening
EPA Region VIII's position in requiring stringent pretreatment and
stormwater management programs.
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UTAH
Region VIII
Second, based on the water quality management agency's water
quality analysis, the U.S. Air-Force agreed to construct a
$6 million pretreatment system and to correct piping in the
storm sewer network. In committing itself to this substantial
financial investment, the Air Force has accepted the effluent
limitations contained in the permits for these stormwater
discharges and the pretreatment standards.
Finally, the Weber River 208 agency, supported by EPA Region VIII,
convinced the State of Utah to undertake revision of its water
quality standards, with the assistance of areawi.de agencies.
Realizing that EPA will not fund construction grants at this time
for treatment beyond the secondary level, unless needed to"meet
water quality standards or where cost-effective, Utah is placing
increased emphasis on establishing relevant water quality criteria,
In a major policy shift, the State of Utah has also recognized
stormwater, as a pollution source, thus assuring statewide
supervision of this critical water quality problem.
Weber River Hater Quality Planning Council (Weber River, Utah)
Performance Indicator: Enforcement of hazardous materials
standards on an industrial park, as a result of water quality
management technical .assistance.
Background
The Freeport Distribution Center, formerly a navy depot, was
converted into an industrial park with 200 industries. Water
quality analysis by the Weber River Water Quality Planning
Council indicated that industrial and chemical wastes and oil
were being discharged into the storm sewers. 208 monitoring
pinpointed the wastes, including toxic materials, that were
involved.
Building Inspection
Based on this 208 generated water quality data, the water
quality management agency contacted appropriate Federal and
local agencies to halt these illegal activities. The EPA
Emergency Response Staff, U.S. Coast Guard, county health
department, and water quality management agency inspected
each building in the Freeport Distribution Center. This
search of Freeport tenants and industries was conducted
utilizing EPA authority for hazardous materials regulation:
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UTAH
Region VIII
Significance
As a result of the water quality monitoring and site :
inspection, some industries have ceased discharging-wastes
into the storm sewers, and, alternatively, EPA has required
that the dischargers apply'for NPDES permits. These permits,
when issued, will regulate the dischargers and may require
that certain discharges' cease.
EPA Region VIII has just completed a final report on the
investigation, which documents the extent to which the
water quality problem has been solved.. Once compliance
and/or enforcement action against recalcitrant industries has
taken place, and the industrial wastes are being properly
treated and disposed of, this performance indicator will
become an accomplishment.
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'WYOMING'
Region-'VIII
Teton County-Section 208 Planning Agency (Jackson, Wyoming)
Accomplishment: The U.S. Forest Service in the Bridger-Teton
National Forest has expanded its nonpoint source control program
.to'incorporate water quality considerations, as a result of 208
funded.water quality analysis.
Background
The U.S.. Forest Service, manages 76 percent of the land in
Teton. County. Over half of the $370,000 208 grant was devoted
.to water quality monitoring, and the Forest Service received
$99,000;,for investigations in the Bridger-Teton National Forest.
An extensive system of water quality monitoring stations
was established to provide baseline data and to trace changes
in water quality. Activities identified as creating water
quality problems are: livestock grazing and range management,
oil and gas exploration, recreation, timber harvesting, wildlife
management, fire control, general construction activities, and
special uses such as ski resorts and concessions.
This monitoring indicated that livestock grazing, range manage-
ment, and oil and gas exploration pose the greatest actual or
potential threats to water quality in the National Forest. To
address these problems, the Forest Service staff proposed to
reinforce their nonpoint source control program by modifying
existing practices, adopting new practices, and developing
standby practices that can be applied if the need arises.
Reflecting a practical concern with implementation, the
Supervisor of the Bridger-Teton National Forest incorporated
these improved best management practices (BMPs) into their
management system.
Significance
This accomplishment is significant in three respects. First,
it represents the full cycle of problem definition, solution
identification, and implementation of improved BMPs. The U.S.
Forest Service modified existing controls to take greater account
of water quality impacts and also adopted measures to prevent
water pollution from new activities, particularly oil and gas
exploration. Its monitoring program has been expanded to ensure
detection of water quality problems and prompt remedial action.
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WYOMING
Region VIII
Second, USFS implementation of improved management practices
indicates a firm commitment to maintain'high water quality in
the National Forest. As the major landowner in the county,
the Forest Service is a crucial participant in water quality
management. Its support of the 208 program is evidenced by its
comprehensive approach to nonpoint source control, aimed at both
actual and potential polluting activities.
Finally, these hard outputs reflect strong cooperation between
the U.S. Forest Service and the 208 program in Teton County.
Water quality management funds and staff liaison enabled the
Forest Service to furnish the technical assistance that
addressed local nonpoint sources of water pollution. The water
quality management program thus expedited the development of a
more effective regulatory program to maintain high water quality
in one of the nation's major natural resources.
Implementation
The Supervisor of the Bridger-Teton National Forest is
implementing the following best management practices, which
will be carried out by the U.S. Forest Service and, where
applicable, its lessees. The Forest Service wi 1.1 exercise
regulatory authority on its land and will continue to coordinate
with the 208 planning agency. Increased operating costs
associated with additional management practices will be absorbed
by the USFS.
Adopted Best Management Practices (BMPs)
The BMPs for livestock grazing and range management are
currently being carried out, because these are actual nonpoint
sources of water pollution. In contrast, the BMPs for mineral
resources exploration, which has not yet begun, will be applied
when these anticipated activities are undertaken.
Livestock Grazing
1) Stabilization of streams through revegetation and, in the
case of severely damaged areas, fencing off of stream banks.
These measures, which prevent sedimentation and other pollution,
enhance the streams for aquatic life.
2) Rest-rotation of cattle to permit revegetation of over-
grazed land, supplemented by reseeding where necessary.
3) Application of the Channel Stability Rating procedure,
currently used to develop a hydrologic inventory, to reduce
the potential for channel and stream-bank damage. The procedure
would help determine the allotment for sediment production in
the range areas.
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WYOMING
Region VIII
Range Management
1) Evaluation of hydrologic criteria and internal drainage
features of the soil mantle, as well as soil characteristics,
at each potential prescribed burn site.
2) Definition of optimum moisture and temperature levels for
carrying out the vegetative objectives of prescribed burning,
as part of determining whether soil conditions permit successful
burning.
3) Evaluation of alternatives for sagebrush control in areas
that contain aquatic resources. Herbicide spraying should only
occur when other alternatives prove unfeasible and when it is
demonstrated that aquatic life will not be endangered.
Mineral Resources Exploration
1) To reduce the potential for seepage from test drilling
sites, a fluorescent tracing dye should be injected into each
oil drilling settling pond. Periodic sampling of the stream
water and testing by the National Forest water quality lab
will permit rapid identification of leaking from these ponds.
Immediate implementation of corrective measures at the drilling
site should occur.
2) To minimize the possibility of contaminated groundwater
reaching surface waters, the wells should be cased to a depth
of no less than 200 feet below the elevation of the nearest
stream.
3) To prevent leakage from settling ponds, sealing of the ponds
should be stipulated where percolation testing reveals a.
permeable soil condition.
Other Activities
Continued monitoring of timber harvesting and recreational
activities was suggested to identify any future deterioration
of water quality. The Forest-Service concluded that existing
regulatory programs for wildlife management, fire control,
general construction, and special uses currently appear adequate
to preserve high water quality.
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REGION IX
CALIFORNIA-NEVADA
Tahoe Regional Planning Agency (South Lake Tahoe, California)
Performance Indicator: Two counties are applying a
"Handbook of Best Management Practices" which is part
of the Lake Tahoe water quality management plan.
Background
Under California and Nevada law, all sewage and solid waste
must be exported from the Tahoe Basin. Since these laws
became effective in the early 1970's, it has become
apparent to researchers, water quality regulatory agencies,
and the general public, that erosion and storm water runoff
pose the major remaining threat to water quality in Lake Tahoe.
The Tahoe Regional Planning Agency 208 planning effort has
focused on (1) identifying erosion and storm v/ater runoff
problems, (2) selecting the most environmentally, economically,
and socially acceptable methodology to abate erosion and
storm water runoff problems, and (3) developing ordinances
and other strategies to assure implementation of the selected
erosion and storm water runoff control methodologies.
Best Management Practices Handbook
Once best management practices (BMPs) to control erosion and
storm water runoff were identified, the water quality manage-
ment staff prepared a "Handbook of Best Management Practices."
The handbook explains recommended BMPs in detail. It also
provides local governments and future development permittees
in the Tahoe Basin with a comprehensive methodology for
selecting structural and non-structural erosion and storm
water runoff controls.
The handbook includes BMPs for construction, temporary.and
permanent soil and slope stabilization, and revegetation,
among others. It also contains cost information and
methodologies for soil loss prediction and for calculating
runoff.
There are five counties in the Tahoe regional area. Two of
these counties have already appropriated money specifically
to implement the water quality management plan. Funding is
designated for capital improvements, that is physical
restoration of denuded areas, and for an expansion of county
review procedures.
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CALIFORNIA-NEVADA
Significance
Region IX
The Handbook of Best Management Practices includes
detailed information on applying recommended BMPs. It
provides a useful reference guide for local governments
and developers. Many of the BMPs can be applied through.
expanding the criteria used to review development and
construction projects and by providing more stringent
review.
Two counties have already made the commitment to implement
BMPs for construction and development through expanding .
their review process. They have also begun revegetation
programs as recommended in the handbook.
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NEVADA Region IX
State Department of Human Resources (Carson City, Nevada)
Performance Indicator: Development, through a 208
demonstration project, of an institutional, regulatory,
and technical program to control erosion and runoff caused
by land-disturbing activities in Nevada.
Background
A proposed program to improve water quality was developed
under a 208 demonstration project by the designated state
agency for Nevada. The two-year project was funded a year
before the state-level water quality management program
began, and was directed by a Sounding Board consisting of a
State Assemblyman, the Governor's Press Secretary, the
State Planning Coordinator, a county manager, and the
Director of the State water quality management agency.
Significance
The proposed program to control the water quality impacts
of land-disturbing activities is significant in two respects.
First, a problem-solving approach was applied to perform
an exhaustive analysis of all elements vital to program
implementation. The results of this institutional, regulatory,
and technical evaluation were: a nine-point early action
program that could be initiated virtually immediately and a
legislative action proposal that would be presented for
adoption during the 1977 session of the state legislature.
Second, water quality was established as the major environmental
goal of the program. The primary contributors to water
pollution in Nevada - runoff and erosion - were targeted
for corrective measures. To focus on this water quality
impact, diverse sources of runoff and erosion were consoli-
dated under the broad classification of land-disturbing
activities. This classification includes the military,
recreation, and transportation, as well as agriculture,
construction, forestry, mining, stream modification, and
urbanization.
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REGION X
IDAHO
Ada/Canyon Waste Treatment Management Committee (Boise, Idaho)
Performance Indicator: Two local agencies are applying
recommendations for stormwater control from a handbook
prepared by the water quality management agency: "20 Ways
to Manage Urban Stormwater".
Application of the Stormwater Control Handbook
The Ada/Canyon Waste Treatment Management Committee,
representing two counties, has adopted a stormwater
control handbook, "20 Hays to Manage Urban Stormwater",
prepared by the 208 staff. Many recommendations from
the handbook are being used by the Boise Building
Department and the Ada County Building and Highway
Department. The recommendations will become an integral
element of the Ada County Building Code.
Panhandle Planning and Development Council (Coeur d'Alene, Idaho)
Accomplishment: Technical and financial assistance provided
by the water quality management program and increased
public involvement accelerated the implementation of a -
vessel discharge ban on. Lakes Pend Oreille and Coeur d'Alene.
Background
In 1972, the Panhandle Health District (PHD) adopted an
Environmental Health Code, which in part prohibits wastewater
discharges into any stream or lake by vessels or floathouses
(non-motorized watercraft,used primarily for recreation).
All watercraft are required to have sealed wastewater storage
tanks that are serviced either by the owners or by privately
or publicly operated pumping facilities and detention tanks.
The wastewater is transported from the vessel for disposal
either in private septic tanks (which are viewed as an
interim solution) or municipal treatment plants.
While the Panhandle Health District had the legal authority
to enforce this discharge ban, it lacked the requisite
financial and citizen participation resources. The Panhandle
Planning and Development Council, the areawide water quality
management agency, provided the assistance necessary to
achieve prompt compliance by floathouse owners. (The
enforcement process initially focused on floathouses and is
currently being extended to cover all other vessels.)
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IDAHO
Region X
Technical Assistance
The Panhandle Planning and Development Council subcontracted
with the Panhandle Health District to hire staff for the
vessel discharge elimination project. This PHD staff
inventoried the floathouses to determine their number and
location, current wastewater facilities and on-shore
disposal systems, suitability of adjacent land for disposal,
and other features.
Public Involvement
The Panhandle Health District established a permit program
for floathouses in June, 1976. The development of this
permit program involved a citizen involvement process. Meetings
were held with floathouse owners, in which the basic program,
alternative solutions, compliance schedules and individual
inspections were discussed. As a result of this public
participation effort, the floathouse owners were informed
of their obligations and the health district's permitting
and monitoring procedures, and they worked with PHD staff
to establish a mutually acceptable compliance schedule for
correcting the discharge problem.
Significance
Water quality management program involvement accelerated
the solving of this water pollution problem by an estimated
seven to eight years.
All but 26 of 155 floathouses on Lakes Pend Oreille and
Coeur d'Alene have taken corrective action on wastewater
discharges and, accordingly, have received permits. This
enthusiastic response reflects the favorable political
climate that the water quality management program helped
to cultivate in the Panhandle Health District. By
delegating project responsibility to the agency charged
with enforcing the Environmental Health Code and
contributing expertise in citizen participation, the
208 agency expedited the development of a practical
solution.
Panhandle Planning and Development Council (Coeur d'Alene, Idaho)
Performance Indicator: An intensive public involvement
program led to formation of a lakes management association
to support restoration and protection of a ten-lake complex.
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IDAHO
Region X
Background ^
The natural beauty of these ten lakes and surrounding
woodland and pastures has brought rapid ungoverned
growth in the planning area. Septic tank leachate,
erosion and sedimentation from cattle grazing and
logging, and recreational/misuse of the lakes and
terrain have led to noticeable water quality degradation.
Most of the land is privately owned. The water quality
management agency has made a lakes management plan to
deal with these problems, a top priority element of
its areawide land use plan.
Public Involvement . .
To build support for a lakes management plan, the names
of all residents in the watershed were compiled; and
letters describing the problems were mailed out, with
an invitation to attend public meetings to discuss
remedial proposals. Of 700 residents invited, 200
turned out, and subsequent participation has been
excellent.
A small number of the watershed residents had already
formed ineffective management groups; they were
encouraged to form a coalition. With the help of the
208 staff a large grass roots organization has been
built around the coalition and a -formal political
lakes management association has been organized.
Direct mailings and public gatherings helped achieve
this interim goal. The 208 project manager has,,by :
request, prepared a complete set of by-laws for the
association, and. there is sentiment favoring incorporation.
The association is expected to be instrumental in later
adoption of sewage disposal and other land use
regulations which will make up the comprehensive Takes
management plan. ; . .
Significance
The water quality management staff identified the
constituency for a lakes management program and began
an active campaign to generate public involvement in
program development. The water quality management staff
organized existing citizen groups into one effective
coalition, and this became a base for developing additional
public support. The public interest was generated through
the problem identification and listing of alternatives .
provided by the water quality management agency.
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IDAHO ' Region X
Panhandle Planning and Development Council (Coeur d'Alene, Idaho)
Performance Indicator: On the basis of water quality
management studies, the local Health District has adopted
land use controls to mitigate and prevent further
contamination of a major interstate aquifer.
Background
The size and importance of the Rathdrum aquifer, which
spans a 2-state area, and underlies a great number of
ill-maintained septic tanks, made it a top priority
water quality management survey item. Analyses revealed
high nitrate levels, and in depth studies to define the
scope of the problem are in progress by the Army Corps
of Engineers and the U.S. Geological Survey (USGS) as
subcontractors to the 208 agency.
Management
A moratorium has been imposed on all new septic tanks
and subdivisions by Health District officials. They
have also adopted a set of land use policies which
will restrict on-site sewage disposal in incorporated
areas. Under the new regulations, individual septic
tanks in unincorporated areas must be confined to lots
of 5 or more acres and cluster septic systems may be
used.on one to five acre lots.
Identification of the nitrate problem by the Panhandle
Health District has led to a movement by some environmental
groups to have EPA declare the Rathdrum aquifer a "sole
source aquifer" under the "Safe Drinking Water Act". ,
Interstate cooperation is needed for this aspect of the
program and that is currently being sought by 208 staff and
Health District personnel.
Significance
Policies adopted by the Health District will direct
development to already or soon to be sewered areas and
confine septic systems to land types which can support
them. These actions will help to define 201 facilities
planning needs for the Panhandle area. Designation as a
"sole source aquifer" will allow for more comprehensive
protection of the Rathdrum aquifer.
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IDAHO Region X
Southeastern Idaho Council of Governments (Pocatello, Idaho)
Performance Indicator: The water quality management agency
assisted in developing a land application system for
industrial and municipal wastewater effluent, wh.ich, when
implemented, will allow for reuse of valuable water and
nutrient resources.
Background
The Portneuf River at Pocatello, Idaho is water quality
limited. There are three significant dischargers in the
Pocatello area, the municipal sewage treatment plant and,
two phosphorous processing industries. All three dischargers
were violating some constituent limits in their permits and
had to eliminate permit violations. The Southeastern Idaho
Council of Governments, through the 208 program, initiated a
"Joint Wastewater Treatment Feasibility Study" to develop
a system for joint municipal-industrial treatment.
Technical Solution
Land application of treated wastewater effluent from one of
the industries, J. R. Simplot, a fertilizer manufacturer,
and the municipal treatment plant was chosen as the most
desirable solution. (The other industry decided to deal with
its treatment problem independently.) Larid application is
the least costly joint treatment alternative for Pocatello
and, in addition, offers the opportunity to reuse water and
nutrient resources. The Pocatello area- is primarily
agricultural and has a low average annual rainfall. Local
farmers have indicated their interest in buying the wastewater
irrigant. '
Development of the land application system at the 7,000 acre
site finally chosen will cost approximately $6 million. This
cost is for a full capacity (year-round) system including
wastewater transmission pipes, sprinkler irrigation systems,
on-site storage lagoons or resource recovery impoundments
and site preparation. Pocatello and Simplot intend to
finance the project without Federal assistance. The project
is planned in two phases. When the first phase is completed,
the city can begin collecting revenues from the sale of the
wastewater irrigant. The first phase of the project, at an
anticipated cost of $3 million, will include year-round
collection of all effluent from the industry and collection
from the municipal plant in all but the1 winter months. There
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IDAHO
Region .X
will be only summer irrigation during this phase. Phase
two will provide for year-round collection of wastewater
effluent and growing season irrigation. ; , ;
Preliminary agreements have been made concerning management
of the system, funding,- and shared costs between Pqcatello
and Simplot. Efforts are now directed at executing contracts
between the industry and Pocatello to finalize construction
and management arrangements.
Significance
The joint wastewater treatment, system is significant'for two
reasons. First, the Southeastern Idaho Council of Governments
recognized that the 208 program could provide the impetus,
through funding and a central coordinative role, to-deal with
serious and long standing wastewater treatment problems.. The
project has led to an independent municipal-industrial waste-
water management process which is carried out by the city and
the participating industry. ;
When the completed system becomes operational, it will
eliminate significant wastewater discharges from the Portneuf
River. The key to eliminating these discharges is a relatively
low cost resource recovery project that offers local- farmers
a highly desirable product and a one-step process for irrigation
and fertilizer application.
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OREGON Region X
Columbia Regional Association of Governments (Portland, -Oregon)
Performance Indicator: The water quality management agency has
prepared, and the State has adopted, a land use framework
which defines areas in which new treatment facilities will
be allowed.
Background
The .tri-county area for which Columbia Regional Association
of Governments (CRAG) has planning responsibility contains
four major streams, three of which are considered clean.
Efforts to maintain clean water in this region have;been
-ongoing since the 1950's. Nevertheless, strong growth
pressures suggest population doubling from 1 million to
2 million people in the next 20 years. Low dissolved
oxygen levels in the Willamette River already affect
spawning salmon. In view of serious combined sewer over-
flows i;nto .the Willamette River, considerable contributions
from urban storm runoff, and,future growth expectations,
the water quality management agency saw a need for a
comprehensive waste management plan to deal with these
problems. The current goal of the water quality management
agency is to develop a long-range master plan for sewage
: collection and treatment for the tri-county area. Pursuant
to this goal, a land use framework is an important milestone.
- Management
^
The land use framework classifies the entire area into
urban, rural and natural resources districts and sub-classifies
the region into bounded facility service areas based on
population and employment projections. Using the delineated
Resource Districts and facility service areas and the study of
alternatives to conventional treatment facilities, the water
quality management agency designated those areas in the
land use framework which are suitable for treatment facilities.
This framework has been adopted by the State requisite to EPA
approval of facilities plans in the area. Contracts have been
made between Washington County and three of its municipalities
with respect to future sewering plans following the land use
framework.
Significance
The land use framework is the result of carefully concerted
efforts by the water quality management agency with the U.S.
Geological Survey, the Army Corps of Engineers, local citizens
groups, and local, county and state politicians. This
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Region X
framework is a controlled growth plan which will allow
for staged growth within a limited area and. development
of adequate wastewater treatment facilities. Adoption
of the land use framework is the first step toward
implementation of a comprehensive waste management plan.
Lane Council of Governments (Eugene, Oregon)
Accomplishment: The water quality management agency
achieved the development of a cost-effective, regional
wastewater treatment facility and the formation of a
sewerage management agency for Lane County, Springfield,
and Eugene, Oregon.
Overview
In the Springfield-Eugene area, 208 financial and
technical assistance and political mediation realized
a $3 million cost savings through regionalization of
sewage treatment facilities. Economic pressure from
the State Department of Environmental Quality, in the
form of potential withdrawal of Construction Grants
eligibility, was also a major factor. The political
dimension of this water quality management solution
to a point source problem is particularly significant,
because it was the key to implementing the technical
proposal.
The Technical Solution
Due to past and projected regional growth, the two
existing wastewater treatment facilities in the area
were approaching capacity. In addition, the level of
treatment that the plants provided was inadequate to
meet the water quality goals, and infiltration/inflow
problems were detected.
To improve wastewater treatment service and consequently
water quality in the region, the Lane Council of
Governments (L-COG) incorporated a facility plan into
its water quality management program.
The water quality management agency funded a consultant
study to update and complete the initial facility
planning for the metropolitan area. This study revised
the original wastewater treatment alternatives and
recommended a $72 million regional system, which cost
$3 million less than the two facilities advocated by Springfield.
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Region X
To fulfill the requirements for a Step II Construction
Grant, the consultant study formulated financial and
managerial arrangements for the proposed treatment works.
L-COG adopted the consultant proposal to 'establish a
Metropolitan Wastewater Management Commission to construct,
operate, and maintain the regional facility.
This regional wastewater treatment and management alternative
represent the culmination of facility planning by the
Springfield-Eugene water quality management agency. Antece-
dent products that L-COG generated to guide areawide point
source pollution control include: population projections
that all municipalities in the region have adopted, waste!oad
allocations, and urban .growth boundaries that are keyed to
adequate sewage service. Thus the 208 agency developed the
analytical framework for 201 activities in the metropolitan
area.
The Political Solution
Previous facility planning for the metropolitan area, whose
principal jurisdictions are Lane County and the cities of
Springfield and Eugene, had been stalled by an unresolved
disagreement. Springfield favored improving the two existing
plants, which were located in the two cities, rather than
expanding the downstream plant in Eugene to provide regional
service." In contrast, Lane County, Eugene, and the other
affected municipalities favored the single areawide facility.
The 208 program settled this political dispute through careful
and astute mediation. As the representative of all municipalities
in the area, the Lane Council of Governments furnished a neutral
forum for political discussion and persuasion. Sensitized'to
the concerns of the affected local governments, the water quality
management staff was able to convince them to form a regional
system.
L-COG's efforts to resolve the differences between Springfield
and Eugene were strengthened by Oregon's Construction Grants
priority list. The State set a May 1977 deadline for
delineation of service area boundaries and passage of a bond
issue. Without these results, the metropolitan area would
lose its rating and eligibility for Federal funds. This State
economic incentive and areawide political mediation produced
Springfield's support for regionalization of wastewater treatment
facilities.
As a result, the three jurisdictions approved the cost-effective
regional system and established the Metropolitan Wastewater
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Region X
Management Commission in February 1977. In-recognition
of this technical and political success, the Governor of
Oregon formally designated this commission .as the point
source management* agency for the Springfield-Eugene area
in April 1977.
The Broader Significance
This accomplishment demonstrates two forms of mutual
assistance: between the 201 and 208 programs and between
State and regional levels of government. Oregon's 201
program cooperated to implement an environmentally and
economically beneficial point source solution.
On the one hand, the water quality management agency
provided a technical and political framework for
Construction Grants activities in the metropolitan area.
On the other hand, the State 201 agency furnished the
economic incentive that made the regional solution too
attractive to reject. This cooperation between 201 and 208,
and the State and the Council of Governments has expedited
improving water quality in the Springfield-Eugene area.
Lane Council of Governments (Eugene, Oregon)
Performance Indicator: Problem identification by the 208
program led to a moratorium on septic tank installation
and adoption of an operations and maintenance ordinance
for existing on-site systems.
Background
Discovery of groundwater contamination beneath the town
of_Coburg, Oregon led to the conclusion that poorly
maintained septic tanks were the primary source of pollution.
Regulatory Solution
Analyses done for the 208 program revealed that due to
the soil composition in the area, no additional on-site
disposal units could be accommodated without a serious
threat to groundwater. As a result of these analyses,
the county instituted a moratorium on all new septic
tanks until agreement can be reached to construct a
regional sewage treatment plant to serve this area.
This effectively means no new development in Coburg and
is an indication of the county's commitment to development
of a regional system. The county has also adopted an
ordinance instituting a mandatory inspection and maintenance
program. This is accompanied by a nuisance ordinance which
authorizes forced maintenance in case of neglect.
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OREGON Region X
Management
The county management program will educate the public
about proper use of septic systems, provide periodic
inspections, and require pumping and repair when
necessary. 'The nuisance ordinance sanctioning municipal
service with mandatory reimbursement by non-compliant
homeowners is expected to strengthen participation.
Significance
The water quality management agency, through identification
of a serious water quality problem, was influential in
securing strong action both to prevent further groundwater
contamination from septic systems and to correct existing
septic problems. The moratorium on new development and
adoption of the nuisance ordinance are sanctions which will
serve as powerful incentives to solve existing problems
and develop a regional facility plan.
Mid Willamette Valley Council of Governments (Salem, Oregon)
Accomplishment: Salem, Oregon, with assistance from the
water quality management agency, adopted an Industrial
Waste Ordinance which regulates industrial wastes in the
sewage treatment system and discharges into storm sewers.
Background
The Salem urban area has 16 food processing plants and
nine other industries discharging into the regional Willow
Lake Sewage Treatment Plant. The food processing plants
generally have seasonal operations with extremely high
volumes,, and organic content during summer and early fall.
The Point Source Areawide Technical Advisory Committee (ATAC)
and the water quality management staff gave a high priority
to an industrial study program to address alternatives for
industrial waste treatment and disposal and industrial
pretreatment requirements. The ATAC includes representatives
for four industries and State and Federal regulatory agencies
and public works directors from all major cities in the area.
Development of an Ordinance
There were,two immediate problems to address. The first
was to set daily discharge limits for all industries
discharging into the Willow Creek Plant, to ensure a reserve
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OREGON
Region X
capacity for residential and commercial growth. This
is particularly important because in a year with a
large harvest, food processing discharges could easily
exceed the reserve capacity of the treatment plant for
a two to*three month period. The second problem was
to control industrial discharges into the city's storm
sewers.
The water quality management staff recommended an
Industrial Waste Ordinance for Salem which would require
industries to install pretreatment equipment by limiting
allowable industrial discharges into the municipal
system. After conducting independent data collection and
analysis, Salem adopted the Industrial Waste Ordinance
which requires a permit specifying the daily discharge
limit for each industry. It also sets toxic effluent
standards and restricts discharges into storm sewers
unless unavoidable.
Significance
The water quality management staff and the Areawide
Technical Advisory Committee dealt with two pressing
problems facing the city of Salem. The Industrial Waste
Ordinance which they developed and the city adopted will
protect against seasonal overflows in the Willow Lake
Sewage Treatment Plant. This protects water in the
summer and early fall when overflows were likely to
occur and reserves capacity to accommodate growth. The
ordinance also restricts industrial discharges into storm
sewers. Enforcement of this provision will protect against
dumping untreated wastes into the river.
Mid Willamette Valley Council of Governments (Salem, Oregon)
Performance Indicator: In order to standardize a regional
base for facilities planning, the Mid Willamette Valley
Council of Governments developed service boundaries and
assisted in developing regional projections for the 33
cities in the area.
Background
When the Mid Willamette 208 program began in 1975, some
facilities planning in the area was already under way.
ihere are 33 cities in the area and population and
wasteload projections were being prepared independently
for individual 201 plans using a variety of methodologies.
In addition, delineation of service area boundaries was
available for only a few cities.
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OREGON
Region X
Population Projections
To ensure a standard regional base for facilities planning,
Mid Willamette Valley Council of Governments' highest
priority interim output was achieving acceptance of regional
population and wasteload projections. The water quality
management staff developed uniform methodologies for making
these projections. They then contacted county planning
departments to assist in developing the projections and
obtaining approval from each city. All 33 cities have
approved population and wasteload projections lower than
original estimates.
Urban Service Boundaries
The 1973 Land Use Act in Oregon requires each city to establish
a comprehensive plan and urban growth boundaries to provide
for an orderly transition from rural to urban land use. In
most cases, these comprehensive plans are not completed.
A goal of the water quality management agency was to provide
a consistent regional approach to delineation of urban service
boundaries for the interim period prior to completion of
comprehensive plans. The water quality management agency, in
cooperation with county planning departments, established urban
service boundaries for each incorporated city. Each city
approved the boundaries with the understanding that minor
modifications could be made later. The boundaries established
by this process are suitable for facility planning.
Significance
Delineation of urban service boundaries is important for
several reasons. Most significantly, the boundaries define
growth areas. Sewer service to currently planned facilities
will not be extended past these boundaries. This will in
effect limit urban sprawl.
The urban service boundaries also define the sphere of
influence between the cities and counties for providing
future urban services. Preparation of these boundaries
initiated coordination between two major state agencies,
the Department of Environmental Quality, regulating sewer
facilities, and the Land Conservation and Development
Commission, which regulates land area planning.
Taken together, delineation of urban service areas and
adoption of population and wasteload projections developed
through standard methodologies form a sound base for
developing cost effective and regionally compatible sewage
treatment facilities.
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WASHINGTON Region X
Municipality of Metropolitan Seattle (Seattle, Washington)
Performance Indicator: King County and the city of
Bothell have begun implementation of a drainage management
plan for the Juanita Creek basin.
Background
Studies done in the Seattle metropolitan area prior to the
208 program identified urban storm runoff as a significant
v/ater quality problem and emphasized the need for~drainage
controls. The city of Bellevue began considering a proposal
to set up a Drainage Utility District in the early 1970's.
The utility would have power to levy a service charge on
individual property owners. The proposal generated'a long
controversy and high public involvement before it was
approved by referendum in 1976. Bellevue's experiences raised
regional consciousness of drainage issues.
Juanita Creek Study
The water quality management program initiated a demonstration
study on Juanita Creek to develop a drainage management
program for the creek basin. The management program will be
used as a technical and institutional-regulatory model for
developing drainage management plans for other sub-basins of
the Green River in the Seattle metropolitan area. The King
County Public Works Department is conducting the study, which
covers parts of the cities of Bethel! and Kirkland and
unincorporated land under the jurisdiction of King County.
Regulatory Program
The drainage program for Juanita Creek involves regulatory
and structural elements. The most important regulatory
control is a stormwater drainage ordinance. King County
has had an urban storm drainage ordinance since 1974. This
ordinance requires that all new developments control runoff,
so that there is no more runoff after construction than before.
Although the ordinance does not specify the methods for
controlling runoff, it stipulates that the county will take over
maintenance and operation of holding ponds or other facilities
three years after developers install them.
The city of Bethel! has adopted an urban storm drainage
ordinance which contains essentially the same requirements
as the King County law. This city ordinance was prepared
with 208 staff assistance. Kirkland does not yet have a
similar law.
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WASHINGTON
Structural Controls
The physical design element in the management plan consists
of approximately 75 holding ponds throughout the Juanita
Creek drainage area. King County, Bethel! and Kirkland
have signed an inter!oca! agreement committing them to
jointly implement the management plan.
King County has taken the first step to implement the
physical design plan. The county has appropriated $150,000
to construct a holding pond on land which was recently
donated to the county for a park.
The county Public Works Department is advising developers
on compliance with the runoff control ordinance. County
officials hope to convince groups of developers to join
together to construct regional holding ponds on sites
identified in the physical plan. Such joint projects
could save construction costs for developers and operation
and maintenance costs for the city.
Areawide Drainage Plans
Seattle Metro intends to develop drainage management
plans by sub-basin areas. The Juanita Creek Basin is
only part of the local sub-basin. Implementation costs,
mainly for land aquisition and construction, are estimated
at $3 million to $5 million for one sub-basin. One means
of providing at least part of the necessary funding is
for other cities to set up drainage utilities with billing
power, as Bellevue has done. The water quality management
agency has completed a political case study on Bellevue's
drainage utility. The case study analyzes the political
and public involvement experiences of Bellevue. It is
being widely used by other cities in the planning area
considering creation of a drainage utility.
Significance
Data collection and analysis conducted before the water
quality management program began identified urban storm
runoff as a significant problem.
The water quality management agency could therefore
concentrate on finding solutions. The agency prepared a
drainage management plan for the Juanita Creek basin,
as a demonstration study for the area. It combines
structural solutions to existing problems with a regulatory
Region X
89
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WASHINGTON
Pxegion X
program and review procedures to prevent future problems.
In addition, measures taken to comply with the urban storm
drainage ordinances in King County and Bothell may contribute
to developing the holding pond system which is the
structural plan.
Bothell's drainage ordinance and King County's $150,000
appropriation for construction of a holding pond are
significant steps to implementing the drainage management plan
for Juanita Creek.
The two essential elements which are needed to implement
drainage plans throughout the area are a storm drainage
ordinance and an approved structural plan with a funding
mechanism. Creation of drainage utilities seems to be the
best alternative for providing revenues. The water quality
management agency is applying the lessons learned in Bellevue
to smooth the approval process for drainage utilities in
other cities.
Regional Planning Council of Clark County (Vancouver, Wash.)
Performance Indicator: Identification through the 208
program of major sources of water pollution in numerous
Clark County streams has led to voluntary institution of BMPs.
Background
The Clark County region encompasses many important streams
and lakes - most of which do not meet State water quality
standards. An aggressive program to locate all major sources
of pollution has identified agriculture as a major source.
Under state permitting standards, confined lot systems can
be required to get NPDES permits. Many farmers are voluntarily
changing their practices to eliminate discharges.
Building Public Support
Most of the pollution sources were found to be large
agricultural operations. The water quality management agency
developed agricultural BMPs and asked local conservation
districts for assistance in gaining local support for
instituting BMPs. District conservationists contacted farmers
individually to explain the value of recommended management
practices and received commitments from many farm owners to
implement BMPs. The response to the recommendations has been
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WASHINGTON
Region X
good in the farming community. For example, agricultural
nutrients and BCOD from two major sources have long
deteriorated water quality in Clacamas Lake. Both sources
have been put on compliance schedules which 208 agency
officials expect to result in improvement of "Class C"
quality water to "Class A" status in several years.
Funding
Financial support for agricultural pollution abatement
programs is being obtained from the U.S. Department of
Agriculture, Agricultural Stabilization and Conservation
Service, the State government, and a county property tax,
with local conservation districts playing a key role in
coordinating this process.
Significance
The water quality management agency recognizes that the
local Conservation Districts have the support and
confidence of the farming community. District conser-
vationists, therefore, were asked to play the major role
in spreading the word about the 208 program and educating
farmers on prqposed BMPs. The 208 program is also building
local support by offering farmers a voluntary alternative
to NPDES permitting requirements. The recommended BMPs
can be applied more effectively because a variety of
funding sources are being tapped and existing Conservation
Districts .will simply expand their current'responsibility
to coordinate funding.
Snohomish County Metropolitan Municipal Corporation
(Everett, Wash.)~~
Performance Indicator; 208 staff, working with the Soil
Conservation Service and Agricultural Experiment Station
technical advisors, proposed and secured acceptance of a
set of best management practices to correct serious
nonpoint source problems from beef and dairy cattle operations,
Background
Snohomish and King counties in west central Washington
state are predominantly agricultural, with about 170
separate dairy farms and some beef cattle farming. Monitoring
conducted for the 208 program identified feedlots and dairy
farming operations as major contributors to agriculture
nonpoint source problems.
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WASHINGTON
Building Public Support
Region X
A Washington State University Extension Service technician
on the 208 staff was instrumental in formulating nonpoint
source remedi-al strategies. He and 208 staff members first
compiled a "state-of-the-art" BMP manual, with input from
local farmers. The 208 staff contacted farmers known for
their agricultural leadership experience who agreed to promote
the BMPs, with notable success. One indication of the interest
generated was that some farmers actually came to the water
quality management agency seeking advice 'on how to improve their
farming operations. Recommended BMPs have been initiated on many
farms.
An ongoing monitoring system got under way with initial
implementation of BMPs. Early data from the system suggest a
significant potential for improved water quality.
Management Objective
The water quality management agency has developed a combination
voluntary and regulatory program. The voluntary program is
based upon memoranda of understanding, which have been signed
between Shomet and the Snohomish and" King County Conservation
Districts. The regulatory aspect of the program relies on
existing authority of relevant Health Districts and the State
Department of Ecology.
Significance
By involving local farmers in choosing BMPs and requesting
their assistance to promote widespread application of the
management practices, the 208 agency is developing a good
base of support for voluntary implementation. A monitoring
system is already set up to measure effectiveness of the
initially applied BMPs. Results of the monitoring hopefully
will encourage wider acceptance. A regulatory backup program
to supplement voluntary compliance is being developed.
92
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INDEX
Agricultural Non-Point Sources
VI
MONT.
WYO.
WASH.
Dane County Regional Planning Commission
Lewis and Clark County Conservation District
Teton County-Section 208 Planning Agency
Regional Planning Council of Clark County
Snohomish County Metropolitan Municipal Corp.
Construction and Related Non-Point Sources
TENN.
MONT.
CALIF-
NEV.
Chattanooga Area Regional Council of Goyts.
Lewis and Clark County Conservation District
Tahoe Regional Planning Agency
Development Pressures on Water Quality
ME,
ALA.
FLA.
TENN.
WI
UTAH
WYO.
ORE.
Southern Kennebec Valley Regional Planning
Commission
South Alabama Regional Planning Commission
Central Florida Regional Planning Council
First Tennessee-Virginia Development District
Wisconsin Department of Natural Resources
Southeastern Association of Governments
Teton County-Section 208 Planning Agency
Columbia Regional Council of Governments
Mid Willamette Valley Council of Governments
Industrial Discharge
ME
MA
DEL.
ALA.
TENN.
UTAH
IDAHO
ORE.
Southern Kennebec Valley Regional Planning
Commission
Southeastern Regional Planning and Economic
Development District '
New Castle County Areawide Waste Treatment
Management Planning Agency
South Alabama Regional Planning Commission
First Tennessee-Virginia Development District
Southeastern Association of Governments
Weber River Water Quality Planning Council
Southeast Idaho'Council of Governments
Mid Willamette Valley Council of Governments
Ace.
Ace.
Ace.
P.I.
P.I.
P.I.
Ace.
P.I.
P.I.
Ace.
Ace.
P.I.
P.I.
Ace.
40-41
53-55
69-71
90-91
91-92
P.I. 35
Ace. 53-55
P.I. 72-73
Ace.
Ace.
Ace.
P.I.
P. I.,
P.I.
Ace.
Ace.
P.I.
P.I.
3-4
24-26
27
38
43-44
44-45
60-62
69-71
81-82
86-87
Ace. 1-3
P.I. 15-16
21-23
24-26
38
38-39
60-62
65-67
67-68
79-80
85-86
93
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Lake Degradation
MA Northern Middlesex Area Commission
Old Colony Planning Council
FLA. Leon County Planning Department
IDAHO Panhandle Planning and Development Council
Landfill Leachate
MA
NO
Montachusett Regional Planning Commission
Middlesex County Planning Board
Mining Non-Point Sources
UTAH Southeastern Association of Governments
Municipal Point Sources
ME, Southern Kennebec Valley Regional Planning
Commission
Southern Kennebec Valley Regional Planning
Commission/Greater Portland Council of Govts.
MA Berkshire County Regional Planning Commission
DEL. New Castle County Areawide Waste Treatment
Management Planning Agency
FLA. Central Florida Regional Planning Council
TENN. Knoxville-Knox County Metro Planning Commission
First Tennessee-Virginia Development District
WI Southeastern Wisconsin Regional Planning
Commission
Wisconsin Department of Natural Resources
TX North Central Texas Council of Governments
COLO. Larimer-Weld Regional Council of Governments
UTAH Mountainland Association of Governments
Southeastern Association of Governments
IDAHO Southeast Idaho Council of Governments
ORE. Columbia Regional Association of Governments
Lane Council of Governments
Mid Willamette Valley'Council of Governments
Ace.
Ace.
Ace.
P.I.
Ace.
P.I.
P.I
P.I.
13
14
31-32
32-34
75-76
76-78
12-13
17-18
Ace. 60-62
Ace. 1-3
P.I.
Ace.
Ace.
P.I.
Ace.
Ace.
Ace.
P.I.
P.I.
Ace.
P.I.
Ace.
P.I.
Ace.
Ace.
P.I.
P.I.
Ace.
Ace.
P.I.
4-5
10-12
21-23
21
27
35-36
36-37
38
38-39
42-43
43-44
48-50
51-52
58-60
60-62
79-80
81-82
82-84
85-86
86-87
94.
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Qn-Lot Disposal
ME
MA
DEL
WI
IDAHO
ORE
Southern Kennebec Valley Regional Planning
Commission
Southern Kennebec 'Valley Regional planning
Commission/Greater Portland Council of Govts.
Greater-Portland Council of Governments
Berkshire County Regional Planning Commission
Northern Middlesex Area Commission
New Castle County Areawide Waste Treatment
Management planning Agency
Southeastern Wisconsin Regional Planning Comm,
Wisconsin Department of Natural Resources
Panhandle Planning and Development Council
Lane Council of Governments
Ace. 3-4
Pollution, Depletion of Ground or Surface Waters
MA Berkshire County Regional Planning Commission
NY Nassau-Suffolk Regional Planning Board
ALA South Alabama Regional Planning Commission
FLA Central Florida Regional Planning Council
QKLA Association of Central Oklahoma Governments
TX North Central Texas Council of Governments
UTAH Five County Association of Governments
IDAHO Panhandle Planning and Economic Development
Council
ORE Columbia Regional Association of Governments
Silviculture Runoff
MA Southeastern Regional Planning and Economic
Development Commission
WONT Lewis and Clark County Conservation District
SD Sixth District Council of Local Governments
Urban Storm Runoff
MA
FLA
UTAH
CALIF-
NEV
IDAHO
WASH
Old Colony Planning Council
Leon County planning Department
Weber River Water Quality Planning Council
Tahoe Regional Planning Agency
Ada/Canyon Waste Treatment Management
Committee
Municipality of Metropolitan Seattle
P.I.
Ace.
Ace.
P.I.
Ace.
Ace.
P.I.
P.I.
P.I.
Ace.
Ace.
Ace.
Ace.
P.I.
P.I.
P.I.
P.I.
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P.I.
Ace.
P.I.
P. I..
P.I.
P.I.
Ace.
Ace.
P.I.
P.I.
Ace.
Ace.
P.I.
P.I.
P.I.
4-6
6-8
9-12
13-14
21
42-43
44-45
78
84-85
9-10
19-20
24-26
27
29
30
46
47
48-50
58
75-76
76-77
78
81-82
15-16
53-55
56-57
14-15
32-34
63-64
65-67
72-73
75
88-90
95
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TECHNICAL REPORT DATA
(Please read Instructions on the reverse before completing)
1. REPORT NO.
EPA-440/3-77-026
3. RECIPIENT'S ACCESSION NO.
4. TITLE AND SUBTITLE
Hater Qua!ity Management Accomplishments,
Compendium I.
5. REPORT DATE (date Qf iSSUe)
December 1977
6. PERFORMING ORGANIZATION CODE
7. AUTHOR(S)
Water Planning Division
8. PERFORMING ORGANIZATION REPORT NO.
9. PERFORMING ORGANIZATION NAME AND ADDRESS
Environmental Protection Agency
Water Planning Division
401 M Street, S. W.
Washington, D. C. 20460
10. PROGRAM ELEMENT NO.
2BA644
11. CONTRACT/GRANT NO.
12. SPONSORING AGENCY NAME AND ADDRESS
13. TYPE OF REPORT AND PERIOD COVERED
First edition of semi-annual
14. SPONSORING AGENCY CODE
15. SUPPLEMENTARY NOTES
16. ABSTRACT
The Water Quality Management Accomplishments, Compendium I includes 58 brief
case studies that document programs and activities, deve-loped through WQM planning
efforts, which have significant potential for improving water quality. Cases are
classified as either accomplishments or performance indicators. Accomplishments
indicate programs which have been formally adopted and are being implemented.
Performance indicators are WQM recommended programs which have received some
preliminary commitment but have not reached the implementation stage. The cases
are examples of successful efforts by WQM planning agencies to achieve implementation
of outputs from the 208 program.
17.
KEY WORDS AND DOCUMENT ANALYSIS
DESCRIPTORS
b.lDENTIFIERS/OPEN ENDED TERMS C. COSATI Field/Group
Water quality management Regional
planning water pollution from point
sources and nonpoi-nt sources.
18. DISTRIBUTION.SJAJEMENT
Release unlimited (WH-554)
Available from U.S. EPA, Water Planning
Division, 401 M St., S.W., Wash, D.C. 2046
19. SECURITY CLASS (This Report)
21. NO. OF PAGES
117
2O. SECURITY CLASS (This page)
D
22. PRICE
EPA Form 2220-1 (Rev. 4-77) PREVIOUS EDITION is OBSOLETE
*U.S. GOVERNMENT PRINTING OFFICE : 1977 0-260-880/112
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