EPA 840-R-97-001 A Partnership to Restore and Protect the Sound ------- ISLAND SOUND STUDY ____ A P 'trtntnl^i To Raton And Proud TJte Sound ESTUARY OF NATIONAL SIGNIFICANCE The Long Island Sound Study (LISS) is a partnership involving federal, state, interstate, and local agencies, universities, environmental groups, industry, and the public in a program to protect and restore the health of Long Island Sound. The LISS began in 1985 under the sponsorship of the U.S. Environ- mental Protection Agency (EPA) and the states of New York and Connecticut. At the request of the states of Connecticut and New York, EPA designated Long Island Sound an Estuary of National Significance in 1988 and convened a Management Conference. In 1994, the LISS Management Conference issued a Comprehensive Conservation and Management Plan (CCMP) to improve the health of the Long Island Sound, while ensuring compatible human uses. In September 1996, the Governors of New York and Connecti- cut and the EPA signed a Long island Sound Agreement, reaffirming then- commitment to the restoration effort. PRIORITY AREAS OF CONCERN The LISS has identified seven issues tneritihg special attention: (1) low oxy- gen conditions (hypoxia), (2) toxic contamination, (3) pathogen contamina- tion, (4) floatable debris, (5) the impact of these water quality problems and habitat degradation and loss on the health of living resources; (6) public involvement and education, and (7) land use. The LISS has focused its efforts and resources on trie most pressing problem, the low oxygen levels affecting substantial areas of western Long Island Sound in iate summer, and has identified overenrichment of nitrogen as the primary cause. Management has been proceeding in phases. In 1990, the EPA and the states of New York and Connecticut agreed to cap nitrogen loadings as Phase I. The 1994 CCMP contained commitments to begin to reduce the load of nitrogen to the Sound as Phase H. The EPA and the states of New York and Connecticut also committed to develop Nitrogen Reduction Targets for Long Island Sound to guide Phase lit implementation. PURPOSE OF THIS REPORT On February 7, 1997, the states of New York and Connecticut and the EPA released a proposal for Phase m Actions for Hypoxia Management, including nitrogen reduction targets: This report describes the proposal and its benefits. A series of public meetings will be held in New York and Connecticut to pro- mote discussion between agency officials and the public and solicit public input before it is finalized. Written comments are encouraged and can be sub- mitted until October 1, 1997 to the EPA Long Island Sound Office at the fol- lowing addresses: EPA Long Island Sound Office Marine Sciences Research Center SUNY @ Stony Brook Stony Brook, NY 11794-5000 EPA Long Island Sound Office Stamford Government Center 888 Washington Blvd. Stamford, CT 06904-2152 ------- A MATTER OF HYPOXIA 1 UNDERSTANDING HYPOXIA 3 Conditions 3 Causes 3 MANAGING HYPOXIA: A PROGRESS REPORT 5 Sources 5 Reductions 5 PHASE III: FRAMEWORK 9 Oxygen Benchmarks .9 Cost-Effectiveness 9 Allocating Responsibility n PHASE III: PROPOSED ACTIONS 13 Strategies ; 13 Timing 14 Cost . . 14 Financing 14 Effluent Trading 15 Enforcement 15 Evaluating Progress 16 BENEFITS OF THE PHASE III NITROGEN REDUCTION TARGETS 17 Ecosystem Health 17 Human Use Benefits 17 •GETTING THE WORD PUT ... 21 SUGGESTED READING 22 APPENDIX: „ 23 Proposal for Phase in Actions for Hypoxia Management Released for Public Comment by the LISS Policy Committee 23 ------- ------- ,*- rom mid-July through Septem- ber, Long Island Sound and many of its aquatic inhabi- --~ tants suffer from a condition called hypoxia—a technical term for low levels of oxygen in the water. During this period, oxygen levels in the bottom waters of Long Island Sound fall well below normal, to levels inadequate to support healthy populations of aquatic life. But hypoxia is a symptom of a larger problem, the over fertilization of the Sound with nutrients, primarily nitrogen. While nitrogen is a necessary nutrient in a productive ecosystem—a building block for plant and animal tissue—too much nitrogen fuels the excessive growth of planktonic algae. The dense algae blooms cloud the water and shade the bottom. When the algae die and settle to the bot- tom of the Sound, they are decayed by bacteria, a process that uses up available oxygen. Like people and other air-breath- ing creatures, aquatic organisms need oxygen to breathe. Oxygen in short sup- ply impairs the feeding, growth, and reproduction of the Sound's aquatic life. In extreme conditions, some organisms may suffocate and die, while others flee the hypoxic zones. The dense blooms also prevent enough light from reaching shal- low water bottoms to support the growth of submerged aquatic vegetation, an important habitat for shellfish and juve- nile fish. As a result, nitrogen—in excess—impairs the function and health of Long Island Sound (Figure 1). •*Cf » f. EFFECTS OF EXCESS NITROGEN Aquatic Plant Growth Inhibited ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT S'.i"'1"'Ij g?-! ,1!!;, Bis:1; o To address the problem, the Long Island Sound Study (LISS) has been proceeding with a phased approach to nitrogen reduction, allowing the pro- gram to move forward in stages as more information is obtained to sup- port more aggressive steps. The LISS's first formal action to address the hypoxia problem took place in 1990 with the release of its Status Report and Interim Actions for Hypoxia Management. The report announced a freeze on point and non- point nitrogen loadings to the Sound in key geographic areas at 1990 levels —a move intended to prevent the hypoxia problem from getting worse. This constitutes what is now known as Phase I of the LISS hypoxia manage- ment program. Phase n, which was adopted in 1994 upon release of the Long Island Sound Comprehensive Conservation and Management Plan, initiated actions to begin to improve oxygen levels in the Sound. This phase is being actively implemented in Connecticut and New York and will begin to reverse a 300 year trend of ever-increasing nitrogen loads to the Sound. Phase n reduc- tions, while significant, will not restore the health of Long Island Sound. Therefore, the LISS made a commitment to identify a third phase of nitrogen controls to guide long- ;term management. On February 7, 1997, the LISS released a proposal for Phase III Actions for Hypoxia Management, including nitrogen reduction targets for 11 "management zones" that com- prise the Connecticut and New York portion of the Long Island Sound watershed. The LISS has prepared this report to be used in concert with a series of public meetings that will be held in Connecticut and New York to present the proposal and solicit comments. In addition to identifying the nitrogen reduction targets, this report explains the framework within which the tar- gets were established, discusses the benefits associated with achieving the targets, and recommends specific nitrogen control actions that need to be undertaken to help meet the targets. Based on public input, the U.S. Envi- ronmental Protection Agency and the states of Connecticut and New York will formally adopt nitrogen reduction targets by the end of 1997, fulfilling a stated commitment of the Long Island Sound Comprehensive Conservation and Management Plan. ------- .••v CONDITIONS While hypoxia in the Sound is not a new occurrence, a comparison of recent data with that collected since the 1950s sug- gests that it has become more severe and more common. Monitoring of Long Island Sound conducted since 1986 has recorded hypoxia occurrences each year. Natural variations from year to year in weather and other physical factors have affected the size of the impacted area, the length of time each event has lasted, and how low oxygen concentrations have fallen. Generally, hypoxia occurrences have spanned a period of 40 to 80 days from July through September (Figure 2). In 1989, about 40 percent of the Sound's bottom (more than 500 square miles) experienced unhealthy levels of oxygen during the late summer. As recently as 1994, 25 percent of the Sound was affected. CAUSES In order to understand the relationship between natural variations in weather and human-induced pollutant loadings, the LISS developed mathematical mod- els of Long Island Sound. The computer modeling effort was designed to answer some fundamental questions: *• What causes low oxygen condi- tions? *• How much of the problem is caused by natural factors versus human influences? *• What can be done to manage the problem? How effective will differ- ent controls be? *• How much will it cost to correct the problem? *• How long will it take to see improvements? The modeling, combined with field mon- itoring and laboratory studies, provided a level of detail to support some clear con- clusions about hypoxia in the Sound, its causes, and its solutions. In addition, the models allowed the LISS to simulate water quality conditions as they were in the past, as they are today, and as they could be in the future under alternative nitrogen control scenarios. £- I r i DURATION AND TIMING OF HYPOXIA 1987-1990 University of Connecticut 1991-1996 CTDEP Bureau of Water Management 1988 1989 1990 1992 1993 1994 1995 1996 r— r i B • 1 - I; • 1 ». 1 Jan Feb Mar April May June July Aug Sept Oct l\ Mf"': '•"'"" " 1 HVPO> lov Dec ic Period ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA .MANAGEMENT upon the availability of nutrients. These blooms end when the pool of nitrogen available for contin- ued growth is depleted. In pre-colonial days, natural, healthy biological activity brought oxygen levels below sat- uration due to the natural load- ings of organic material and nitrogen, but oxygen levels prob- ably fell below 5 mg/1 only in limited areas and for short peri- ods of time. • Under today's higher nutrient and organic material loading condi- tions, minimum oxygen levels average approximately 1.5 mg/1. These levels are associated with severe hypoxia. » By substantially reducing nitro- gen loadings to the Sound, the minimum oxygen levels in the bottom waters during late sum- mer can be increased to an aver- age of about 3.5 mg/1, thereby significantly reducing the proba- bility and frequency of severe hypoxia and reducing the area affected by hypoxia. • Increases in nitrogen delivered to the Sound could significantly worsen the hypoxia problem, causing larger areas to have lower oxygen levels for longer periods of time. The probability of events like the summer of 1987, when anoxia (no oxygen) became a reality in the Sound, offshore of Hempstead Harbor, would also increase. THE LONG ISLAND SOUND MODELS The LISS has relied heavily on computer modeling of the Sound to sort out the complex interaction between natural conditions and human Influences in causing hypoxia. Two models, a water quality model that approximates the biological and chemical processes of the Sound and a hydrodynamic model that describes physical processes, have been devel- oped, An intensive field program in Long Island Sound to collect data for the computer models was undertaken from April 1988 to September 1989. These data were used to calibrate and verify the models to ensure that they reproduce the important features of the Sound. The water quality model, called LIS 2.0, provided needed insight into the causes of hypoxia and was the basis for actions to begin to reduce nitro- gen discharges to the Sound. However, because it simulates the move- ment of the Sound's waters in only two dimensions (east-west and sur- face to bottom) and in a simplified manner, the LIS 2.0 model did not provide the best technical foundation for identifying the total level of reduction in nitrogen loads that should be attained or the most cost- effective means to achieve targeted reductions. The hydrodynamic model, developed by the National Oceanic and Atmospheric Administration and completed in July, 1993, uses tide and current measurements to simulate the water's circulation in three dimensions (east-west, north-south, surface to bottom). It was coupled to the water quality model, to create LIS 3.0. The LIS 3.0 model provides an advanced tool to relate sources of nitrogen from specific geographic areas to the hypoxia problem in the western Sound. Because the impact of the nitrogen load from different management zones can be deter- mined using LIS 3.0, the LISS can assign priorities for management to ensure that the most the cost-effective options are pursued. n» The most oxygen that can be dis- solved in Long Island Sound at summer water temperatures is about 7.5 milligrams per liter (mg/1) of water. This is known as the saturation level. *• Oxygen concentrations greater than 5.0 mg/1 provide healthy conditions for aquatic life. Con- centrations between 5.0 mg/1 and 3.5 mg/1 are generally healthy, except for the most sensitive species. When concentrations fall below 3.5 mg/1, conditions be- come unhealthy. The most severe effects occur if concentrations fall below 2.0 mg/1, even for short periods of time. *• The growth of algal blooms in Long Island Sound is dependent ------- MANAGING HYPOXIA: A PROGRESS REPORT [..•••• ...•••*.. •«•• SOURCES To improve the health of Long Island Sound, the estimated 99,900 tons of nitrogen that enters the ecosystem each year must be reduced. Of that amount, approximately 41,400 tons are from nat- ural sources and not easily reduced by management activity. The remaining 58,500 tons of nitrogen are associated with human activities and have the potential to be reduced through manage- ment. (Figure 3). In some cases, human activities outside of the area can affect the amount of nitrogen entering Long Island Sound. For exam- ple, 10,700 tons of nitrogen per year enter the Sound through its boundaries — the East River in the west and The Race in the east. The tributaries flowing into Con- necticut bring 2,300 tons of nitrogen per year from activities north of the state line. Deposition of nitrogen from the atmos- phere from rain and dryfall is another sig- nificant source, contributing 6,500 tons of nitrogen per year, 3,700 tons of which fall directly onto the Sound and 2,800 tons onto the watershed. Of the 39,000 tons of nitrogen per year resulting from human activity in the Sound's drainage basin, point source discharges, primarily sewage treatment plants, contribute 37,000 tons of nitrogen and nonpoint source dis- charges, such as agricultural and stormwa- ter runoff, contribute 2,000 tons of nitro- gen. These loading estimates have been revised based on updated information since the 1994 Comprehensive Conserva- tion and Management Plan was published. -. ..•*v ....•••. SOURCES OF NITROGEN Human-Caused Load 58,500 tons/yr Natural Load 41,400 tons/yr 18.3% 4.8% 3.4% 6.3% 3.8% '2,800 in-Basin, Human-Caused Load 45,500 tons/yr 81 3% 8.1% 4.4% 6.2% lO Point L"! 8 Nonpoint I I Tributary Import | Indirect Atmosphere | Direct Atmosphere I I Boundary MANAGEMENT ZONES ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT BIOLOGICAL NUTRIENT REMOVAL Conventional primary and secondary sewage treatment plants remove only small amounts of nitrogen and phosphorus from the wastewater. Biological nutrient removal (BNR) removes much greater amounts of nitrogen and phosphorus using natural breakdown processes. Relatively minor modifications (retrofitting) can be made to the equipment or operation of the sewage treatment plant to achieve nutrient removal, but only if the plant has excess capacity. Full BNR often requires recon- struction of the treatment plant at a high cost. In BNR, biological organisms are used to remove the nitrogen from the wastewater. The basic principal is to have alternating anaerobic (no or little oxygen) and aerobic (oxygenated) zones or tanks within the treat- ment process. In the aerobic zones, nitrification occurs while in the anaerobic zones, denttrification occurs. Nitrification is a process in which bacteria convert ammonia and organic nitrogen to nitrate. In sewage treatment plants, ammonia and organic nitrogen come from human wastes and dead plant and animal matter. The nitrifying bacteria are cultured for use at the plants to convert ammonia to nitrite and nitrate. Nitrification occurs naturally in ecosys- tems such as streams and salt marshes and plays an important role in the cycling of nitrogen through the earth's environment. In sewage treat- ment plants and in nature, nitrification requires the presence of nitrify- ing bacteria and high concentrations of dissolved oxygen, also referred to as "oxic" or "aerobic" conditions. In the denitrification process, another type of bacteria extract oxygen from nitrates, causing harmless nitrogen gas to be released into the atmosphere. Like nitrification, denitrification also occurs naturally in salt marshes and other ecosystems but under low oxygen conditions, or "anoxic" conditions, in the presence of denitrifying bacteria, nitrates, and organic carbon. The two processes are linked through the recycling of the wastewater in the anoxic and oxic zones of the tanks. Typically, bacteria and nitrates generated in the nitrification stage are cycled along with sewage from the secondary settling tanks to the anoxic denitrification zone to fuel the denitrification process just described. Eleven watershed management zones, based on natural drainage basin and political boundaries, have been estab- lished to foster identification of nitro- gen sources and comprehensive water- shed planning (Figure 4). REDUCTIONS Since 1990, activities have been underway in New York and Connecti- cut to manage nitrogen from sources within the New York and Connecticut portions of the drainage basin, starting with adoption of the Phase I "freeze" on loadings. The sewage treatment plants under the freeze are identified in Figure 5. For Phase H, the LISS made the addi- tional commitment in 1994 to reduce nitrogen discharges to the Sound by approximately 7,550 tons per year. This phase consists of incorporating a variety of low-cost nitrogen removal technologies at selected sewage treat- ment plants, which are identified in Figure 6. The states have moved aggressively to implement nitrogen control activities, using innovative strategies and seeking the cooperation of local governments. In Connecticut, the goal was to achieve a reduction of 850 tons per year in nitrogen loads. The state of Connecticut has awarded more than $15 million through its State Clean Water Fund to 11 southwestern sewage treatment plants to test and demonstrate the efficiency of up- grades for nitrogen treatment. In addi- tion, the first plant in the state designed to denitrify has been con- structed in Seymour. As of May 1997, the load of nitrogen from plants in the Phase U agreement has been reduced by almost 1,000 tons per year, exceed- ing the Phase II goal. The state of New York revised the per- mits issued to sewage treatment plants, with the consent of local authorities, to establish nitrogen limits at 1990 levels. The permits include an aggregate load for facilities within Management Zones 7-11 (New York City, Westchester County, and Long Island). The New York goal was to reduce nitrogen loadings by 6,700 tons per year from actions to be com- pleted by 2006. To date, one sewage treatment plant in Westchester County and four in New York City have ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT SEWAGE TREATMENT PLANTS SUBJECT TO PHASE I FREEZE IT* Sewage treatment plants dis- charging into Long Island Sound or its tributaries / <* • ' I / r - 'if 'i } W Sewage treat- ment plants subject to "No Net Increase of Nitrogen" under Phase I oftheLISS Nitrogen Reduction Strategy SEWAGE TREATMENT PLANTS SUBJECT TO PHASE II REDUCTIONS .*. """•' l-i^ '• 1 i / /' ( !• / LITCHFIELD I V. i ; < v • >!/ % t / / , \!/ i I // / ' '^ ll/ O-'-' i\ xf V - : ^ f Y * * r\ / ^ )i *, )) ( 'V^^ *• Sewage treatment plants dis- charging into Long Island Sound or its tributaries T*r Sewage treat- ment plants participating in Retrofit Activities under Phase II oftheLISS Nitrogen Reduction Strategy ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT tic I ! implemented nitrogen removal tech- nologies. In addition, New York City will begin to implement additional nitrogen removal technologies at East River sewage treatment plants this year. As a result, it's expected that these actions will result in loadings at or below the 1990 baseline by the end of 1997. In addition, New York City has entered into a consent order to provide at least 50 percent nitrogen reduction for the reconstructed New- town Creek facility, scheduled for completion hi 2007. In addition, both states have: *•• Developed materials and con- ducted training for treatment plant personnel on nitrogen removal technologies and proce- dures. >» Required sewage treatment plants to identify in their plans how they will remove nitrogen, if required to do so. *• Required nutrient monitoring at sewage treatment plants to improve understanding of nitro- gen sources and treatment plant capability. *» Increased the share of nonpoint source pollution control funds targeted to projects that reduce nitrogen loads to the Sound. *» Formulated Coastal Nonpoint Pollution Control Programs to address coastal nonpoint sources of nitrogen. *• Undertaken demonstration pro- jects that address a variety of nonpoint source control issues and technologies (e.g., urban runoff treatment by artificial pond/wetland systems, parking lot runoff treatment, septic sys- tem technologies to treat and remove nitrogen, controlling runoff from agricultural land and from marinas). As of December 31, 1996, nitrogen loadings to the Sound from point and nonpoint sources within the New York and Connecticut portions of the water- shed have been reduced as a result of these activities by 4,900 tons per year from peak loadings (Figure 7). CHANGES IN HUMAN-CAUSED NITROGEN LOADS ------- PHASE III FRAMEWORK ..-•V hile steps taken in Phases I and II will help to reduce the extent of hypoxia, additional nitrogen reduction is needed to restore *"""" the health of Long Island Sound. Phase III sets the course by setting spe- cific nitrogen reduction targets for each of the 11 management zones around the Sound. An array of environmental and economic considerations were taken into account throughout the process. This chapter describes the process—step by step. OXYGEN BENCHMARKS The water quality standard for oxygen in Long Island Sound is 6 mg/1 in Connecti- cut and 5 mg/1 in New York. Modeling indicates that even if maximum nitrogen reduction technologies were imple- mented, the water quality standards for oxygen would not be achieved through- out the summer in all areas of the Sound. To help establish priorities for action, the LISS has identified oxygen conditions that will minimize adverse impacts on living resources of the Sound. Two major research efforts have pro- vided much of the information on how low oxygen conditions affect living resources in the Sound. The first of these was a study conducted by the EPA's Office of Research and Development. Species of fish and crustaceans (e.g., crab, shrimp, lobster) known to reside in the bottom waters of Long Island Sound were exposed to low levels of oxygen in the laboratory. The effect of different concentration of oxygen on growth and survival was measured. Life stages known to be sensitive to low oxygen lev- els, such as the eggs and juveniles, were emphasized in the tests. In the second study, the Connecticut Department of Environmental Protection (CTDEP) col- lected bottom-dwelling fish and inverte- brates and compared the quantity of organisms and number of species with the levels of oxygen in the water. Both studies corroborated that severe effects occurred whenever levels of oxy- gen feU below 2.0 mg/1. The field sur- veys noted large reductions in the num- ber and types of aquatic rife present. The lab experiments recorded reductions in growth and increases in mortality. In both studies, effects became significant when oxygen levels fell below 3.5 mg/1, though some effects occurred at levels between 3.5-5.0 mg/1. As a result, the LISS has determined that unhealthy conditions occur whenever oxygen levels fall below 2.0 mg/1 at any- time or remain below 3.5 mg/1 over a 24-hour period. Most adverse impacts can be prevented if oxygen levels exceed these conditions, and they have been used as benchmarks to assess the relative benefits of alternative management strategies for improving the health of Long Island Sound. ..•• «••• ^ 1 ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT ,8 j 'IK."*1 COST-EFFEaiVENESS How do we maximize progress in improving water quality within the framework of existing technology and financial capability? The answer lies somewhere between where we are now (Phase II) and what is achievable if all currently available technologies were employed. LISS managers looked at a range of nitrogen reduc- tion options for the three major sources of nitrogen in the watershed, sewage treatment plants, industrial facilities, and nonpoint source runoff, to answer that question >* SEWAGE TREATMENT PLANTS: As nitrogen removal requirements become more stringent, the cost of controls tends to increase. To identify a cost-effective level of treatment, LISS managers arrayed the possible nitrogen reduction options for all 70 sewage treat- ment plants in the 11 management zones and calcu- lated the average oxygen improvement in the Sound per dollar spent. Improvements at sewage treatment plants that had better man average cost-effective- ness at improving oxygen condi- tions in the Sound were identified. These actions, in total, could achieve a 62 percent reduction in loads, or 122,044 pounds/day. INDUSTRIAL FACILITIES: A limited number of industrial facilities dkectly contribute nitrogen to the Sound; all are located in Con- necticut and contribute an esti- mated 6,717 pounds per day of nitrogen to the Sound. Because information on the cost of reduc- ing nitrogen from industrial sources was not readily available, these facilities were not included in the cost analyses used for sewage treatment plants. Instead, the cost-effective level of treat- ment identified for sewage treat- ment plants, 62 percent, was applied to the industrial sources, resulting in a 4,165 pounds per day reduction for industrial facili- ties. This represents an aggressive but cost-effective level of nitro- gen control for these sources. OXYGEN IMPROVEMENT VERSUS COST FOR SEWAGE TREATMENT PLANTS To find out how critical areas of the Sound would respond to specific manage- ment options, data on oxygen improvement versus cost were plotted on curves for three key areas in the Sound: western Narrows, offshore of New Haven, and offshore of Stony Brook. Figure 8 on page 12 shows the curve for the western Narrows. Each point on the curve represents a specific nitrogen reduction approach at a specific plant at an associated cost. The point at which the curve begins to level out represents the "knee" of each curve, the area where we begin to experience much less oxygen improvement for that region per dollar spent. This point separates those options that yield better than average cost- effectiveness from those with below average cost-effectiveness. This analysis was repeated for two other hot spots in the Sound. Actions with better than average cost-effectiveness in improving oxygen conditions in any one of the three locations were identified and the cost of the actions tallied. Based on the curves for the three response regions, environmental improvement can be max- imized and costs minimized with nitrogen reductions of 62 percent reduction from sewage treatment plants (122,044 pounds/day) at a cost of around the $650 million. ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT ESTIMATING POTENTIAL REDUCTIONS IN NONPOINT SOURCE RUNOFF Current information on land cover in the watershed and the cost and effectiveness of best management practices (BMPs) to control nitrogen from that land cover was assessed. To determine a loading reduction level, BMP effectiveness was multiplied by the percent of land on which the BMPs are applied. For example, estimates suggest that BMPs reduce nitrogen runoff, on average, by 20 percent. If BMPs were applied to over 50 percent of the land, the level of nitrogen reduction would be 10 percent from the total nitrogen load from urban and agricultural sources. A maximum level of management (100% coverage) would be unrealistic. Thus, a 50 percent BMP appli- cation scenario, reflective of an aggressive nonpoint source program, was used to cal- culate the Soundwide nonpoint source reduction target. This resulted in a 10 percent reduction in nonpoint source nitrogen runoff. *• NONPOINT SOURCES: Decisions on controls of nonpoint source runoff must be made in the broader context of watershed management, since control measures will also help reduce suspended solids, toxic cont- aminants, pathogens, and floatable debris. The LISS recommends that aggressive controls of nonpoint source pollution be implemented for both existing and new development, through both habitat protection and restoration activities, and structural and nonstructural best management practices. This effort could result in a 10 percent reduction in the non- point source load from sources within the New York and Connecti- cut portions of the watershed, or 2,604 pounds per day. Adding the potential nitrogen reductions from cost-effective controls on sewage treatment plants, industrial sources, and nonpoint runoff sources results in a total reduction of 128,813 pounds per day (23,500 tons per year). The next step is to allocate responsibility for achieving these reductions among the 11 management zones fairly. ALLOCATING RESPONSIBILITY The cost curve analysis provided an option for allocating nitrogen reductions among the sewage treatment plants. Sewage treatment plant upgrades with greater than average cost-effectiveness would be implemented while upgrades with below average cost-effectiveness would not be implemented. However, the LISS decided that relying on the cost curve analysis alone would not be a fair or even feasible approach and would not provide the best solution to allocating nitrogen reduction. There are several reasons for this conclu- sion. Most importantly, the cost estimates were general and not uniform in their development. More accurate cost esti- mates must await detailed facilities plan- ning based upon a clear definition of the nitrogen discharge limits that will have to be met. In addition, local concerns and considerations such as the need to pur- chase land for expansion and to distin- guish between costs for nitrogen removal versus ongoing maintenance, expansions for growth, and secondary upgrade needs (which were not included in the cost esti- mates) were not addressed evenly in the cost analysis. Cost considerations aside, it is necessary for all sewage treatment plants to share the burden of nitrogen removal. All sewage treatment plants contribute nitro- gen to Long Island Sound, albeit with ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT different effect. All jurisdictions will benefit from improved water quality. Therefore, it is reasonable to expect all contributors to the problem to con- tribute to the solution. For those reasons, LISS proposes to assign each management zone equal responsibility to reduce its share of the nitrogen load. To achieve a similar level of oxygen improvement from reductions allocated to each zone by the same percentage, the load reduc- tion target was adjusted slightly to 23,800 tons per year from the original 23,500 tons per year. The total human- derived load coming from sewage treatment plants, industrial point sources, and nonpoint sources is 40,650 tons per year. Therefore, the proposed Soundwide nitrogen target is a 58.5 percent reduction in the human- derived load from point and nonpoint sources hi the watershed. FIGURE'S OXYGEN IMPROVEMENT vs CAPITAL COST OF SEWAGE TREATMENT PLANT UPGRADES Effect of Nitrogen Reductions in Western Long Island Sound I o. I O 500 1,000 1,500 2,000 Capital Cost (millions) 2,500 ------- PHASE III PROPOSED ACTIONS he LISS is proposing actions to minimize adverse impacts of J. hypoxia caused by human ^activities in a cost-effective man- ner, while ensuring that new information is gathered to refine and improve man- agement over the long term. Using the framework described in the previous chapter, the LISS proposes that a 58.5 percent reduction be achieved in the enriched load of nitrogen from sources within the New York and Connecticut portions of the watershed. The specific proposal for Phase III Actions for Hypoxia Management is provided as an appendix to this report. STRATEGIES Attaining the nitrogen reduction targets will require aggressive control of point sources, such as sewage treatment plants and industrial sources, and nonpoint sources, such as on-site sewage systems and runoff from roads, parking lots, and construction sites. To achieve the reduc- tion targets, the states, working with local governments, will select the mix of point and nonpoint source controls to be implemented in each management zone. Recognizing that each watershed is dif- ferent, the proposal provides the states and municipalities considerable flexibil- ity in determining how nitrogen reduc- tion actions are carried out within each zone. Within 2 years after the targets are adopted the states will take the following actions: *• Develop watershed plans for each management zone that will set the course for achieving the targets as scheduled. *• Consistent with those plans, incor- porate limits on the amount of nitro- gen that can be discharged from sewage treatment plants and indus- trial sources into discharge permits. *• Conduct comprehensive nonpoint source management and habitat restoration activities. Because the total nitrogen load entering the Sound from human sources is domi- nated by point source discharges, the pro- posed plan emphasizes technologies that can be applied to sewage treatment facil- ities and industrial discharges. In order to achieve significant reductions in the nonpoint source nitrogen load, home owners, farmers, businesses, municipalities, and the states will need to reduce current inputs of nitrogen to the watershed and restore and preserve the nitrogen removal capabilities of existing natural systems. These reductions can be achieved using a number of approaches—resource-based land use decisions at the local level, watershed- wide use of appropriate structural and nonstractural best management practices ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT 1 : (e.g., stormwater detention ponds, artificial wetlands, streetsweeping, cleaning catch basins), habitat protec- tion and restoration, and pollution pre- vention management practices. All approaches will requke a concerted education and outreach effort. TIMING The planning, financing, and con- struction of upgrades to sewage treat- ment plants necessary to achieve the 58.5 percent reduction target will require sustained effort and commit- ment over a long period of time. Therefore, the LISS recommends phasing-in the necessary reductions over 15 years: • 40 percent in 5 years, • 75 percent in 10 years, and • 100 percent in 15 years. COST The Comprehensive Conservation and Management Plan identified that the cost of achieving maximum nitro- gen removal from all point sources would range from $6 to $8 billion ($5.1 to $6.4 billion in New York state and from $900 million to $1.7 billion in Connecticut). Because of the suc- cessful demonstration of full scale nitrogen removal technologies at sewage treatment plants undertaken as part of Phase n, the estimated costs of capital improvements at sewage treat- ment plants have decreased. The esti- mated cost of achieving maximum nitrogen removal levels at the 70 treat- ment plants in New York and Con- necticut is now about $2.5 billion Because of the cost-effective ap- proach described in the previous chap- ter, the proposed LISS nitrogen reduc- tion strategy would not require all treatment plants to meet limit-of-tech- nology reductions. As a result, the incremental capital cost of achieving the Phase HI point source controls is estimated to be $300 million for New York state and $350 million for Con- necticut. While these cost estimates may be revised as more detailed facil- ity planning and design is performed, they show clearly that the potential cost of achieving our goals can be much less than originally estimated. Nonpoint source controls will be implemented as part of broader water- shed and habitat protection efforts. The cost of controlling nonpoint sources is more difficult to estimate than the cost of point source controls. Rather than one type of technology applied to a similar source, a variety of strategies can be applied to control a variety of nonpoint sources of nitro- gen. As a result, the costs of achieving nonpoint nitrogen reductions have not been estimated but are expected to be significant. FINANCING As recommended in the Comprehen- sive Conservation and Management Plan, the main source of funding for these wastewater treatment facility improvements will be the State Revolving Fund programs. The EPA, through the federal Clean Water Act, provides financing to support State Revolving Fund loan programs. Connecticut uses the capitalization grant from EPA to leverage with state bond funds to provide grants and low interest loans, at 2 percent interest over 20 years, to finance improve- ments at municipal facilities. Con- necticut provides about $50 million per year in state bonding to supple- ment the $15 million per year pro- vided under the Clean Water Act. At this capitalization rate, Connecticut ------- LONG ISLAMD SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA PI K'-S ANAGEMI should be able to meet municipal financ- ing needs to implement Phase m nitro- gen reductions. During fiscal year 1997, CTDEP awarded $250 million from their Clean Water Fund to finance projects of benefit to Long Island Sound, including major sewage treatment plant upgrades in Norwalk and Waterbury. New York state established its State Revolving Fund in the custody of the Environmental Facilities Corporation. This public corporation benefits local governments in New York state by offer- ing below-market interest rate loans to municipalities to finance wastewater improvements. Currently, the interest rate is set at up to one-half of the market rate to be repaid in 20 years. Lower rates of interest, including zero interest loans, are available for communities that can demonstrate an inability to pay the stan- dard subsidized rate. Another major source of funding in New York state is the $1.75 billion Clean Water/Clean Air Bond Act approved by voters in Noven> ber 1996. The Bond Act targeted $200 million for Long Island Sound that will be available for sewage treatment upgrades, habitat restoration, nonpoint source control, and pollution prevention. The possible funding sources for non- point source controls reflect the diversity of both the sources and the control options. Grant funding through federal and state water quality management, nat- ural resources management, and coastal zone management programs is available for nonpoint source activities. The State Revolving Fund loan program is also available to fund stormwater manage- ment and habitat restoration projects but has not been used to a great extent for these types of activities due to the magni- tude of existing point source funding needs in Connecticut and New York. EFFLUENT TRADING To provide further flexibility and incen- tives for maximizing the timeliness and cost-effectiveness of nitrogen reduction actions, the LISS is investigating the fea- sibility of allowing effluent trading. Trad- ing, if employed as part of the nitrogen reduction effort, may be an innovative way to use market forces to more effi- ciently meet water quality goals. The LISS will develop a proposed trading program and then convene a public forum for federal, state, and local water quality officials, together with public and private interests, to evaluate its potential. ENFORCEMENT The provisions of the federal Clean Water Act provide a vehicle for ensuring that nitrogen reduction targets are legally enforceable. Section 303(d) of the Act requires the identification of a Total Max- imum Daily Load for pollutants that will result in the attainment of water quality standards. Once a Total Maximum Daily Load has been established, the act calls for reductions to be allocated to sources so that the load target is met. New York and Connecticut and EPA will use their authorities to provide an enforceable foundation for achieving the proposed nitrogen reduction targets. The states will, within 2 years of adopting the targets, develop a Total Maximum Daily Load designed to meet state oxygen stan- dards. The current Long Island Sound standards were developed with limited data on how low oxygen levels affect aquatic life in Long Island Sound. EPA is currently developing regional marine oxygen criteria that will provide a more scientifically valid basis for the develop- ment of oxygen standards. Based on this information, the states may, in the future, modify their oxygen standards. ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT I i While LISS managers predict signifi- cant improvement in water quality as the proposed nitrogen reduction tar- gets are implemented, the attainment of current water quality standards at all times and in all areas is not expected. For this reason, the LISS will continue to assess what other kinds of actions will be needed to bring the Sound into full compliance with water quality standards. These actions may include control of nitrogen and carbon sources outside of the Long Island Sound basin (e.g., tributary import from point and non- point sources north of Connecticut, atmospheric deposition, boundary import from point and nonpoint sources affecting New York Harbor and The Race). Alternatives to nitro- gen reduction, such as aeration, will need to be considered as a possible means to achie^ w§ter-j5|uality stan- dards in ffimamng,areas'. EVALUATING PROGRESS The LISS will track, monitor, and report on progress in meeting the nitrogen reduction targets annually. In addition, a formal review of the goals and objectives of the program will be performed every 5 years, coinciding with the progress checkpoints for nitrogen reduction. The review should consider progress in meeting the nitro- gen reduction targets, the levels of oxygen in Long Island Sound in response to loading reductions, the effects of these actions on the health of living resources, other factors that may affect water quality conditions, and scientific and technical advances in controlling nitrogen and under- standing the cause and impacts of hypoxia. As a result of the review, the LISS may recommend improvements .in how the overall program will be implemented. S^5i«^K-4s^g3^r*r^^Sfc ^^^^^^^^^j^^^^^^^~^^^^^^^^^^^^^: '"i ------- BENEFITS OF THE PHASE III NITROGEN REDUCTION ECOSYSTEM HEALTH Phase m will yield significant ecological and environmental benefits. The maxi- mum area of the Sound that is unhealthy for marine life will be reduced by an esti- mated 75 percent (Figures 9 and 10). The period during which unhealthy condi- tions exist in the Sound is predicted to be reduced by 85 percent, from more than 50 days to 6.5 days. By limiting the area and duration of unhealthy conditions, overall biological ef- fects will be greatly reduced Soundwide. In the western Narrows: *• Death rates of larvae of marine life sensitive to hypoxia will be reduced by 67 percent; *• Adverse impacts on fish abundance will be reduced by 97 percent; *~ Adverse impacts on scup (porgy) abundance will be reduced by 61 percent and on winter flounder abundance by 99 percent. Effects on lobster abundance will be elimi- nated. In the waters off of New Haven, Connecticut: *~ Mortality of sensitive larvae will be reduced by 65 percent; *• Adverse impacts on fish abundance will be eliminated. In the waters off of Stony Brook New York: *• Larval mortality will be reduced by an estimated 84 percent; *• Adverse impacts on fish abundance will be eliminated. While the model analysis was intended to analyze the open waters of the Sound, improvements are expected in harbors, embayments, and near shore waters as well. These waterways are flushed with water from the Sound as a result of tidal action. As the quality of water from the Sound improves, we can expect improvement in the harbors, embay- ments, and near shore waters as well. Improved visibility of waters will also expand the amount of shallow water area conducive to the growth of submerged aquatic vegetation, an important habitat .that has?diminished in rangtefrom histor- levels. »5;,,<.;: vc fc^sfix .siii wimm no ii "io by the S billion regional %ni bpa.fjagj Commercial and ^anii beachgo- jmproved oxy- ~ increas- tj&a^ & engfit people; wlio^e around ., expected ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT benefits from improved water quality resulting from nitrogen reduction in the Sound would include: BOATERS: By loadings to the blooms will be re^ur^aor vented. By reducing or prevent- ing algal blooms, the clarity and aesthetics of the water will be improved, increasing enjoyment for boaters. SWIMMERS: Swimmers will notice better water clarity, as a result of less severe algal growth. Less nitrogen will also bring growth of seaweed back into balance. ANGLERS: Because finfish actively avoid unhealthy waters with low oxygen levels, the Phase HI nitrogen reductions will bene- " fit anglers by increasing the area of the Sound in which fish are likely to be found. SCUBA DIVERS AND SNORKELERS: Scuba divers and snorkelers will benefit from unproved visibility underwater as a result of reduced algal blooms, as well as the pres- ence of more abundant and healthier marine life. BIRDWATCHERS AND SIGHTSEERS: Although birds and wildlife that use the shore area are not directly affected by oxygen levels, many of them feed on marine life, such as small fish, shellfish (e.g., mus- sels), and crustaceans (e.g., 'crabs). By improving the health ^ e waters of the Sound, birds Wildlife will have a greater pply of food, and will be more likely to use the shoreline areas. Therefore, birdwatchers and sightseers will benefit from Phase m nitrogen reductions because shorebirds, waterfowl, and wildlife will be more abundant along the shoreline. COMMERCIAL FISHING AND SHELL- FISHING: The healthier the condi- tion of the Sound, the more fish and shellfish will prosper, which .means that more of them will be available for harvest by people. The value of commercial fishing in Long Island Sound during 1990 was more than $148 million. TOURISM: Visiting the beach, fish- ing and diving charters, sightsee- ing trips, and other leisure pas- times contribute to the local economy, both directly to the tourism industry and to other businesses that support the tourist trade (e.g., restaurants, gas sta- tions, sporting goods stores). • REAL ESTATE: Studies have shown that the value of properties used for recreation (e.g., seasonal cot- tages) drop in value in response to decreasing water quality. It is likely that improved water qual- ity in the Sound^wJlL^increase property valueftalbn^the shot ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEME NT EXISTING OXYGEN CONDITIONS FlGURi'lt) PROJECTED PHASE III OXYGEN CONDITIONS ------- ------- ne of the primary reasons for preparing this report is to pro- i vide information to support public review and comment on both the general direction and specific actions proposed by the LISS to manage hypoxia. The LISS will be soliciting pub- lic input through a series of public meet- ings around the Sound. In addition to this report, fact sheets, summary briefs, and detailed technical backup reports will be available for review. All comments received at meetings or submitted in writing will be considered. A Public Response Summary will provide details on the response to all comments received on the proposed reduction targets. Writ- ten comments are encouraged and can be submitted until October 1, 1997 to the EPA Long Island Sound Office at the fol- lowing addresses: .«• EPA Long Island Sound Office Marine Sciences Research Center SUNY @ Stony Brook Stony Brook, NY 11794-5000 EPA Long Island Sound Office Stamford Government Center 888 Washington Blvd. Stamford, CT 06904-2152 ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT ^s^SMmSw^^^"^^ J^-™rj The following list represents selected reports available from the Long Island Sound Office that provide additional information. 1. Altobello, M.A. 1992. The Economic Importance of Long Island Sound's Water Quality Dependent Activities. University of Connecticut. 2. CTDEP. 1995. A study of Marine Recreational Fisheries in Connecticut. Federal Aid to Sport Fish Restoration. F54R Final Report. 3. Howell, P., D. Simpson. 1994. Abundance of Marine Resources in Relation to Dissolved Oxygen in Long Island Sound. Estuaries. 17:394-402. 4. HydroQual. 1991. Water Quality Modeling Analysis of Hypoxia in Long Island Sound. Prepared for the Management Committee of the Long Island Sound Study and the New England Interstate Water Pollution Control Commission. Job #NENG0012. 5. HydroQual. 1996. Water Quality Modeling Analysis of Hypoxia in Long Island Sound Using LIS 3.0. Prepared for the Management Committee of the Long Island Sound Study and the New England Interstate Water Pollu- tion Control Commission. Job #NENG0035. 6. HydroQual. 1997. Evaluation of Nutrient Management Scenarios Using LIS 3.0. Prepared for the Management Committee of the Long Island Sound Study and the New England Interstate Water Pollution Control Commission. Job #NENG0035. 7. Long Island Sound Study. 1990. Status Report and Interim Actions for Hypoxia Management. 40 pp. U.S. Environmental Protection Agency. 8. Long Island Sound Study. 1994. Comprehensive Conservation and Man- agement Plan. 168 pp. U.S. Environmental Protection Agency, LIS Office, Stamford Connecticut. 9. Long Island Sound Study. 1997. Framework for Developing the Proposed Phase IE Nitrogen Reduction Targets. 19 pp. U.S. Environmental Protec- tion Agency, LIS Office, Stamford Connecticut. 10. Miller, D.C., S.L. Poucher, L. Coiro, S. Rego, W. Munns. 1995. Effects of hypoxia on Growth and Aurvival of Crustaceans and Fishes of Long Island Sound. In: Proceedings of the Long Island Sound Research Conference: Is the Sound Getting Better or Worse? New York Sea Grant Institute. NYSGI- W-94-001 11. Parker, C.A., and J.E. Reilly. 1991. Oxygen Depletion in Long Island Sound: A Historical Perspective. Estuaries. Volume 14, No. 3. 12. U.S. EPA. 1996. Draft Framework for Watershed-Based Trading. U.S. Environmental Protection Agency, Office of Water. Washington, DC. ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT RELEASED FOR PUBLIC COMMENT BY THE LISS POLICY COMMITTEE February 7,1997 PHASEJiyMW^iMEJ^ _ Based upon currently available estimates of treatment performance and costs of nitrogen reduction technologies, a "knee-of-the-curve" analysis was performed to determine appropriate levels of nitrogen reduction to alleviate hypoxia in the Sound. As a result of this analysis, USEPA, NYSDEC, and CTDEP recommend: A 58.5 percent1 reduction in the total enriched load2 of nitrogen to Long Island Sound from point and nonpoint sources within the New York and Connecticut por- tion of the watershed within 15 years3. Each of the 11 watershed-based management zones established by the LISS be allo- cated a 58.5 percent reduction. 1. 2. 3. To administer and enforce the nitrogen reduction targets consistent with the Clean Water Act, the LISS wiU develop a Total Maximum Daily Load/Wasteload Alloca- tion/Load Allocation (TMDL/WLA/LA) necessary to meet standards for dissolved oxygen in Long Island Sound. A. CTDEP and NYSDEC will work with EPA to develop, by July 1997, a TMDL necessary to meet the dissolved oxygen standards. It has been deter- mined that nitrogen reduction actions necessary to meet current dissolved oxygen standards will be in excess of 58.5 percent and may require treat- ment beyond the current limits of technology. NYSDEC, CTDEP and EPA will propose the TMDL in July 1997 and promulgate the TMDL, as appro- priate, by August 1997. • The TMDL will include point and nonpoint source controls in the New York and Connecticut portion of the watershed to meet the 58.5 percent reduction target. • The TMDL will also include future actions and schedules beyond the 15- year Phase JH plan for achieving water quality standards, such as the con- trol of carbon and nitrogen from outside of the LISS management area, including point and nonpoint sources north of Connecticut in New Eng- land, atmospheric deposition, point and nonpoint sources affecting import from New York Harbor and The Race, and other alternatives, such as aeration and load relocation. B. CTDEP and NYSDEC will develop zone-by-zone plans (WLA/LA) by August 1998 to achieve the nitrogen reduction target, highlighting the mix of point and nonpoint source controls to be implemented in each manage- ment zone, 1. From pre-nitrogen management conditions, defined as the 1990 baseline plus centrate from the cessation of ocean dumping. 2. As defined in the LISS's Framework for Developing the Proposed Phase III Nitrogen Reduction Targets. 3. From August 1999, the date by which the states will propose permit modifications and commit to necessary nonpoint source actions. £•____ ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT C. CTDEP and NYSDEC will propose modifications to NPDES permits for point source discharges by August 1999; • equiring that plans be developed and implemented to achieve the point source component of the nitrogen reduction targets within 15 years, and • incorporating nitrogen loading limits to achieve the point source com- ponent of the five year load reduction target. D. By August 1999, CTDEP and NYSDEC will commit to the actions nec- essary to achieve the nonpoint source reduction component of the five year load reduction target. E. Any permits issued within this interim period must specifically address A-C,above. 4. A15 year, phased, enforceable schedule, commencing after completion of zone by zone plans, be established to assure steady progress hi achieving the nitrogen reduction targets • 40 percent progress toward the 58.5 percent target reduction within five years • 75 percent progress toward the 58.5 percent target reduction within ten years • 100 percent progress toward the 58.5 percent target reduction within 15 years 5. Five years after adoption of the nitrogen reduction targets and every five years thereafter, the LISS will formally evaluate the nitrogen reduction targets con- sidering the progress and cost of implementation, improvements in technology, the regional dissolved oxygen criteria to be published for comment by summer 1997, water quality standards, refined information on the ecosystem response to nitrogen reductions, and research on the impacts of hypoxia to living resources. A. Based on these evaluations, the states will confirm point source loading limits for ten and 15 years in future permit revisions and commit to the actions necessary to achieve the necessary ten and 15 year nonpoint source nitrogen reductions. 6. The following schedule is proposed for the Long Island Sound Study Manage- ment Conference to formally adopt the nitrogen reduction strategy: A. February 1997 - LISS Management Committee to submit the Phase HI, nitrogen reduction strategy to the Policy Committee for approval to move to public comment B. May-June 1997 - LISS to hold public meetings to gather public com- ments. C. My 1997 - Policy Committee to adopt the Phase HI nitrogen reduction strategy 7. By June 1998, the LISS will investigate the feasibility, cost, benefits, and draw- backs of establishing a program to allow nitrogen trading within and among zones hi administering the Phase HI reductions, beyond the current bubble con- cept already in use in New York. However, under no circumstances can trading occur if the 1990 aggregate cap has not been met within a management zone. ------- LONG ISLAND SOUND STUDY PROPOSAL FOR PHASE III ACTIONS FOR HYPOXIA MANAGEMENT ^TIMELINE f February 7,1997 | May-June 19974 ..July 19974 o August 19974 June 1998 <> August 1998 • August 1999 "August 2002 < > August 2004 August 2007 August 2009 August 2014 Policy Committee to authorize release of Proposed Nitrogen Reduc- tion Targets. LISS to hold public meetings to gather public comments. Policy Committee to adopt the Phase m Nitrogen Reduction Targets. States and EPA develop TMDL necessary to meet Nitrogen Reduction Targets and EPA proposes TMDL. States and EPA promulgate the TMDL as appropriate. LISS to report on the feasibility, cost, benefits, and drawbacks of establishing a program to allow nitrogen trading within and among zones in administering the Phase IE reductions, beyond the current bubble concept already in use in New York. CTDEP and NYSDEC will develop zone-by-zone plans (WLA/LA) to achieve the nitrogen reduction target, highlighting the mix of point and nonpoint source controls to be implemented in each management zone. CTDEP and NYSDEC will propose modifications to NPDES permits for point source discharges, requiring that plans be developed and implemented to achieve the point source component of the nitrogen reduction targets within 15 years and incorporating nitrogen loading limits to achieve the point source component of the 5 year load reduc- tion target. CTDEP and NYSDEC will commit to the actions necessary to achieve the nonpoint source reduction component of the 5 year load reduction target. LISS formally evaluates the nitrogen reduction targets considering the progress and cost of implementation, improvements in technol- ogy, the regional dissolved oxygen criteria, water quality standards, refined information on the ecosystem response to nitrogen reduc- tions, and research on the impacts of hypoxia to living resources. CTDEP and NYSDEC wiU propose modifications to NPDES permits for point source discharges incorporating nitrogen loading limits to achieve the point source component of the ten year load reduction target. LISS formally evaluates the nitrogen reduction targets considering the progress and cost of implementation, improvements in technol- ogy, the regional dissolved oxygen criteria, water quality standards, refined information on the ecosystem response to nitrogen reduc- tions, and research on the impacts of hypoxia to living resources. CTDEP and NYSDEC will propose modifications to NPDES permits for point source discharges incorporating nitrogen loading limits to achieve the point source component of the 15 year load reduction target. Nitrogen Reduction Targets achieved. 4. Adopted by Policy Committee, but schedule has slipped. ------- ------- |